The Plainfield Comprehensive Plan reflects a twenty year time period. This planning period allows adequate time to implement new development ordinances, land use patterns, transportation networks and facility plans. Capital improvement funding strategies, funding sources and planning techniques are important facets of the comprehensive plan's implementation and ultimate success.
Administering the Plan
The comprehensive plan text and accompanying maps represent the "vision" of Plainfield residents for the future development of their community. The focus of this plan is a conceptual land use plan that visually depicts the development of areas within the Plainfield Planning Area utilizing a variety of land use management techniques. This conceptual plan is a result of citizen and community leadership input that is represented in the recommendations of this plan.
The Future Development Plan illustrated in Chapter Five of this plan does not provide exact snapshots of how Plainfield and its planning area will look in 2020. The uncertainty associated with the timing and location of future development requires the community to remain flexible towards future possibilities.
ECONOMIC TOOLS
Town Budget
The annual budget is one of the most important tools for Plan implementation because it sets priorities for actions each year. Capital and operational funding decisions should directly reflect the goals and priorities set forth by the Town Council and the Plan Commission. The Plan should serve as the basis for staff's recommended work programs and a focus for the Town Council discussion of priorities from year to year. Specifically, Town staff should review the Plan's goals and implementation programs and recommend appropriate strategies to achieve the Plan's goals in a manner that is consistent with Plan policies.
If funds are not available for specific recommendations, the Town needs to evaluate whether they should be removed from the Plan during the annual review. When there is a conflict between budget priorities and the goals and policies of this Plan, the Town Council should consider whether those goals and policies remain valid for Plainfield. If they are valid, then the Town Council should re-evaluate budget priorities.
Tax Increment Financing Districts
The purpose of the Town of Plainfield's Redevelopment Commission is to oversee tax increment financing districts. Due to the amount of development in Plainfield, the Town should consider continuing to use TIF districts as appropriate for building infrastructure improvements and to redevelop areas for future commercial and industrial growth. Decisions on the use of TIF should carefully consider the type of businesses being attracted and their potential benefits and impacts on the Town.
Capital Improvements Program
Currently, the Town does not have a comprehensive capital improvements program upon which to prioritize budgetary concerns. Therefore, the Town should maintain and annually update a long-range and five-year Capital Improvements Program (CIP).
The long-range CIP is an important planning tool to ensure that the Town's facilities are cost-effective and to ensure that the Town will be able to fund needed public facilities and infrastructure improvements. The long-range CIP should reflect the size, approximate location and estimated costs of improvements needed to serve anticipated growth for the next 15 to 20 years. The CIP should be updated at least once every five years or when significant changes to the base systems modify the Town's long term capital investment strategies. For example changes in service areas, significant changes in the Future Development Plan Map, or changes in service demand or delivery patterns will create a need for the CIP to be updated.
The five-year CIP should list short term projects needed to maintain existing levels of service, with each project being assigned a budget and a time frame for completion. The CIP should also delineate the portion of the project costs that are designed to provide new capacity and the portion that is required to fund existing deficiencies. This delineation will enable the Town to quantify the capital costs associated with new development and to monitor the expenditure of development fees. The five-year CIP should be updated annually to reflect the Town's budgetary decisions.
The following is a list of capital improvement projects that are supported by the recommendations developed within the comprehensive plan:
A sidewalk repair, replacement, and construction plan including funding mechanism and schedule.
The sequence, timing, and structure/equipment needs for additional fire stations including funding mechanism.
A road improvement plan that prioritizes repair, rebuild, reconstruction, and construction projects and identifies schedule and funding mechanism.
Renovation/replacement of the existing Town Hall facilities to meet the needs of the town administration and departments. Include scheduling and funding mechanisms.
Repair, replacement, and upgrade of the water and sewer treatment plants and distribution systems including schedule and funding mechanism.
Upgrade of police/fire safety communications equipment and infrastructure including schedule and funding mechanisms.
Initiate and adopt a strategic development plan and capital improvements plan for newly annexed properties to ensure that future development patterns will be consistent with the existing character of Plainfield.
PHYSICAL CONDITIONS
Land Use and Zoning Amendments
The Plan is a statement of policy. However, it is not a regulatory document. The most common regulatory tools for implementing a comprehensive plan include local zoning and subdivision ordinances. Of all the implementation measures available for use, zoning by far will receive the most attention in ensuring the implementation of the comprehensive plan. By updating the zoning and subdivision ordinances and bringing them into conformity with the Plan, the Town has two powerful tools to make its vision become a reality. The adoption of the Plan "outdates" the ordinances and it is therefore recommended that the zoning and subdivision ordinances be updated. Some items that should be included in the ordinance are as follows:
The zoning maps should generally remain consistent with the future land use plan. However, within the overall land use pattern established by the Plan there is considerable room for variation between the land use plan and zoning map. The zoning categories do not need to be identical to the Plan land use categories as guidelines were provided to create a link between future land use and the current zoning districts. However, the zoning map should be reviewed and inconsistencies between the zoning map and the Plan addressed.
Add a hospitality and airport district to regulate the land uses on the east side of Quaker Boulevard (SR 267) around the new Ronald Reagan Corridor Inter-Change.
Add specific zoning and subdivision regulations which promote development that favors preservation of historic buildings, makes mandatory the establishment of trail linkages and encourages creative subdivision design.
Increase landscaping standards, especially perimeter buffer yards to increase buffers between uses and increase aesthetic appeal.
Set forth design considerations that provide for unique architectural designs in commercial, industrial and office areas similar to what has been created for housing and subdivisions.
Provide neighborhood and local commercial and industrial lot size maximums, so that the Town can manage the size of sites within neighborhoods.
Continue to monitor the established corridor development plan requirements for gateway corridors including Perimeter Parkway, Stafford Road, SR 267, and Ronald Reagan Parkway that address design issues, such as landscaping, architectural style, lighting, signage and other considerations.
Promote integrated development of landscaping, trails and open space into new development and redevelopment projects.
Subdivision Control Ordinance
The regulations of the Town's Subdivision Control Ordinance are primarily concerned with the platting of lots, the layout of streets, the location of public spaces and the construction of public improvements associated with the process of subdividing land. In addition, the Ordinance contributes to the maintenance of clear and accurate land records. Subdivision ordinances also typically respond to the need to protect floodplains, wetlands and other sensitive environmental areas, including the Bat Habitat located in the southern portion of the airport owned property. These environmental conservation matters have been identified in the comprehensive plan and its policies for the overall pattern of growth and the prospects of expenditures for public facilities.
The Town's subdivision ordinance should be reviewed as part of the next steps in the implementation of the comprehensive plan.
Sub-area Plans
A sub-area plan provides specific recommendations for development. Sub-area planning, which is planning at the neighborhood level, the road corridor level or for a downtown area, is an important step after completing the comprehensive plan. These sub-area plans are more detailed than the Comprehensive Plan. Sub-area plans provide the downtown, entry corridors and existing neighborhoods with guidance on conservation, revitalization and redevelopment activities. The first phase of sub-area plans includes detailed conceptual design recommendations and polices. The second phase of the sub-area plan is to take some of the conceptual design recommendations and implement them. In the case of a corridor or gateway plan, this would include developing construction documents and cost estimates to build the recommendations of the Plan. In some cases such as neighborhood sub-areas, one additional task of the sub-area plan may be to acquire land for redevelopment accompanied by detailed land use planning.
In addition, sub-area planning is known for leading to an overall increase in citizen involvement, leadership development and neighborhood commitment. The Town should take the next step in its planning program and develop sub-area plans first for Airport Study area, which encompasses the land south of I-70 and east of SR 267, then for major entry corridors including Quaker (SR 267) and finally a redevelopment sub-area plan for State Institution Redevelopment Area.
Neighborhood Preservation
The residents of Plainfield take great pride in their neighborhoods. The integrity of many areas can be threatened by zoning and development practices that could result in projects that would be considered incompatible for existing neighborhoods.
New development projects, if not properly done, can have a dramatic impact on the character and viability of existing neighborhoods. However, other actions such as the division of platted lots into smaller lots and the granting of variances, provide more subtle but lasting change within a given neighborhood area. Finally, the consistent enforcement of regulatory codes and ordinances can have a long term positive impact on existing neighborhoods.
A series of steps can be taken which involve both regulatory and administrative measures:
Adopt Neighborhood Design Standards - The deterioration of older, more established neighborhoods can occur when new residential infill design is incompatible with the scale, density and character of existing neighborhoods. By incorporating neighborhood design standards within the zoning ordinance, the existing character of neighborhoods can be better maintained to prevent new developments and additions to existing structures which are incompatible.
While the Town has established general residential design requirements, these are targeted towards new development within subdivisions rather than infill development into existing neighborhoods. Additional regulations should be developed which govern infill development. The intent of these regulations would be to ensure that building designs are compatible with the characteristics of neighborhoods in terms of scale, mass, building patterns, and facade articulation. Design elements of prevalent neighborhood architectural styles and regulations that ensure that accessory buildings are compatible with the principal structure should also be included. This will allow for modern design and interpretation of neighborhood architectural styles.
Increase Housing and Property Maintenance Code Enforcement - While enforcement of zoning is an on-going process, more attention should be provided to code enforcement in existing neighborhoods. Typically, enforcement would target rental properties, as they are more susceptible to enforcement violations. All properties should abide by minimum standards. Therefore, stepping up housing and property maintenance enforcement will involve the evaluation of existing codes to determine necessary revisions. Furthermore, additional staff would be necessary to increase enforcement efforts.
Review of Lot Division/Combination Requirements - Lot size compatibility with existing neighborhood standards can be incorporated into the subdivision control ordinance and zoning ordinance. Procedures outlining the compatibility determination process will ensure that lot divisions do not create incompatible building sites.
Community Aesthetics
Appearance has much to do with a strong sense of community. Design standards, which can be contained in a zoning ordinance, are one way to make areas more attractive, while enhancing or protecting a certain character of the Town. Design standards, however, need to be strictly enforced in order to ensure success. Incentive programs such as increasing density, permitting zero lot and reducing yards and setbacks can help ensure that individuals adhere to the design guidelines provided.
The Town has taken the step of creating design standards for residential areas. However, creating a premier economic address in the Town will require design standards for non-residential development. Design standards will offer more regulation than design guidelines, and will require review by the Design Review Committee.
Examples of non-residential design standards that could be added to the zoning ordinance to improve the appearance of commercial and industrial areas include reducing the amount of parking allowed in the front of a building, prohibiting buildings from "turning their backs" onto major corridors, and keeping service areas (storage, trash pick-up, loading) behind the building. Architectural standards that could be put in place include massing, materials, lighting, roof pitch, visual appeal, compatibility, entry way treatments, wall treatments, and window treatment. While some of these elements are incorporated into the design standards, creating a Non-residential Architectural Standards Manual will increase the enforceability and visibility of the requirements.
Increased "streetscape" standards that address landscaping and signage will provide a noticeable effect on the entire community, and will be very effective in developing the "look" along selected roadway corridors. The Town has an opportunity to participate in aesthetic improvements as part of street projects it undertakes, and can influence the design of state highways through proactive involvement.
Transportation
To a certain extent, the success of the future land use recommendations of the Plan depends on how the transportation improvements highlighted in this comprehensive plan are implemented. A detailed transportation plan has been included as part of this comprehensive plan update. As new developments are proposed before the Plan Commission, the Plan Commission should evaluate the impact the proposed development will have on the transportation network. In addition, the Plan Commission should also consider the impacts of any improvements such as turning lanes, widening of streets, sidewalks and linkages to the trail system that the developer might propose.
To help facilitate review of developments and plan for future improvements including the continued development of Plainfield greenway and pathway system, a five year capital improvements program should be established and updated to reflect the needs, desires and priorities of the Plan Commission as new developments continue to occur in Plainfield. Plainfield has done an excellent job of monitoring and planning for near term roadway investments, whether publicly or privately funded. This multi-year scheduling should be expanded to include any acquisitions of land for trails, the linear greenway, and identified parks on the community facilities map. Other items to include would be sidewalks and on-street bike lanes and construction costs for all of these projects.
Some regional transportation planning has been occurring, including the Central Indiana Suburban Transportation Mobility Study (CISTMS) and the upcoming Indy Regional Transportation Plan (IRTP). Other on-going efforts include the MPO's continued update of their Regional Transportation Improvement Program. Because the Plainfield transportation network is included in the Indianapolis urbanized area identified by the Federal Highway Administration, it is imperative that Plainfield's transportation program is communicated and included MPO plans. In this way, future changes and impacts that are identified by the MPO can be responded to by the Town, and any federal funding eligibility will be established for priority projects. Continued participation in MPO activities will ensure Plainfield the greatest level of control over the design and implementation of transportation projects in the Town.
LEADERSHIP
Annual Review / Monitoring
The Town of Plainfield will continue to grow and change, and so should the Plainfield Comprehensive Plan. The Town should review the Plan annually in order to determine whether or not its recommendations are still relevant and to propose strategies to be pursued under the coming year's budget. It is important to understand that changing conditions can have significant impacts on the effectiveness of the Plan.
The recommendations in this Plan are intended to depict the Town's composition and growth to the year 2025, but the Plan should not be expected to be valid until that time without further updates. A system for the annual review of the Plan and implementation efforts should be put in place; in addition, another full update to the Town's comprehensive plan should be planned within the next five to ten years.
The annual review of the Plan should monitor such things as:
Major differences between projected economic and demographic growth rates and actual growth;
Necessary adjustments to the implementation tools and techniques - these may be brought on by changes in state legislature, etc.;
Deviations by the Plan Commission or Town Council from the Comprehensive Plan, and why those deviations were made;
Requests for amendments to the Comprehensive Plan, in order to determine if there is a pattern of requested changes emerging; and
Changes in the local/regional political structure that may affect the implementation of the Plan.
Creating a geographic information system (GIS) to maintain and update information relating to land use patterns and locations. Such a system would enable the Town’s staff to accurately track patterns of development, changes in population, and other new developments pertinent to the implementation of the Plan.
Relationship to Other Plans
The comprehensive plan provides a framework for future decision-making. The Plan recommends the preparation of a series of plans for parks and trails, transportation improvements, and utilities. These plans are intended to describe detailed projects for inclusion in the Town's long range plans. These are also intended to address service, staffing and funding requirements in more detail.
Master plans are considered to be a part of the Plan. Each of these detailed plans should be drafted in such a manner that is consistent with the goals of the Plan. During the process of creating the master plan, there likely will be some suggested refinements to the policies and recommendations of this document. These refinements should be incorporated into the annual review and update process. One such Master Plan would be the Ronald Reagan Corridor Master Plan created in 2004.
Annexation
Annexation is a key tool for the Town to increase its tax base, level of control over development, and provide greater opportunity to attract businesses to the area. Annexing property into a jurisdiction is often an emotional process. Annexation helps cities and towns provide services, manage growth and ensure their communities' economic and physical well-being by increasing their tax base. As the Town continues to grow to the west and south, an annexation strategy will be needed to determine the priority of bringing areas into the Town limits. In this strategy, the Town should give consideration to each proposed annexation area and the possible timing of annexation. A separate annexation plan should be prepared for the Town and should include a cost estimate of planned services, method or methods of financing those services and a plan for organization and extension of those services. Additionally, the Town should embark on on-going communication with those the citizens and businesses outside of its current jurisdiction to try and establish open lines of communication and support for future annexation into the Town. Plainfield should develop an annexation strategy in accordance with State Law. Complete a detailed annexation study that identifies and prioritizes contiguous areas to be included in the Town's boundaries, determines the most appropriate land use potentials and determines how services, if needed, will be delivered to the site.
Regional Planning
Every government is affected by what happens beyond its jurisdictional borders, and the Town of Plainfield is no exception. As documented throughout this process, growth from Indianapolis and Avon has impacted the Town and its development and it will continue to do so physically and economically. The Town must be proactive and coordinate with the Hendricks County and Avon, particularly in the area of land use planning, to manage growth that occurs outside the Plainfield town boundaries. As this plan was created, discussions with the County as well as with officials in Avon has allowed some joint planning to begin to occur. Once the Comprehensive Plan is adopted, the newly adopted Comprehensive Plan should be presented to the Hendricks County Area Plan Commission, the Avon Plan Commission, the Airport, the Hendricks County Economic Development Partnership, and the Indianapolis MPO staff. This open communication will provide an understanding to these other organizations regarding the goals and development policies of the Town and its anticipated growth for the future. This understanding will assist the MPO and the Airport in its identification of projects and land use impacts as these continue to move forward.
Plainfield's growth over the next twenty years is expected to exceed the Town's current boundaries. However, Plainfield cannot control land use and zoning outside its Town boundaries, and therefore requires the Town to rely upon the relationships it has established with Hendricks County and the Town of Avon in implementing similar growth goals and strategies. Therefore an ideal situation would be for the County to amend its comprehensive plan regarding Guilford Township to include the recommendations of the Plainfield Comprehensive Plan. Likewise, the Town of Plainfield should seek to strive for an inter-jurisdictional boundary agreement or "buffer area" which delineates the growth boundary between the Plainfield and Avon and therefore allows the management of each Town's desired land use patterns and jurisdictional boundary.
Additionally, establishing joint review of projects with both Hendricks County and Avon in areas outside the Town's boundaries will lessen the impact of developers "pitting" county and both Town's interests against one another to get the better design and infrastructure deal.
Another area of regional planning exists with the Indianapolis Airport. As documented in other sections of the plan, the airport has a distinct bearing on the future growth of the community. The airport owns several parcels of land in the Town and there are still questions regarding the future development of those parcels by the airport. At the time of this plan, the airport had just begun its land planning process to detail development outside the immediate area of the airport to determine potential future uses. Plainfield has taken that first step in defining within its planning boundaries the Towns desired development. As the planning processes continue discussions are needed between the airport and the Town to ensure that the best possible development scenario exists for both entities. Additionally, during this process issues such as signage, specifically billboards and the placement of rental car facilities were identified with the steering committee. Concerns have risen regarding the number of billboards locating near and within the Town's boundaries. It is the Town's desire to limit such uses and it detracts from the overall quality and character Plainfield has established. This issue highlights a need of communication and understanding between these two entities to create a solution to these ever present issues.
On-Going Communication
The importance of regular and continuing communication by the Town with its residents must be acknowledged. Town officials have a responsibility to communicate with their citizens and business owners about the success of the Town's Comprehensive Plan. In past efforts accomplished by the Plainfield government leaders, communication has been a key in attracting new citizens. With the advent of the World Wide Web, it is now easier to keep the residents of Plainfield up to date with decisions and projects in the Town. Since the Town already prepares an annual "State of the Town" report, this report should be expanded to include the Comprehensive Plan. The Town could reach more people by posting this information on the webpage.
Since communication involves a two-way dialogue, the Town should look for new ways to solicit input from its citizens. Citizen involvement and support is a very important tool for implementation. The citizen turnout for the public meetings conducted as a part of this plan was not as successful as Town leaders desired. Therefore, such efforts as establishing a citizen committee responsible for assisting with the implementation of the Plan will get citizens involved and active in Town efforts and foster ownership in the implementation of the Plan.
Summary Recommendations
When implemented, the above recommendations, goals, objectives and policies will guide growth and development in Plainfield over the next twenty years. However, due to funding and staffing resources, the implementation of these all at once and the responsibility of that implementation is not feasible. Therefore, the recommendations has been prioritized. The priorities are provided in a time frame and responsibility is assigned to different departments, boards, commissions and private entities in Plainfield. The time frames established are merely to provide some guidance in the manner in which to implement the recommendations. It should not take the place of the Plan Commission and Town Council reviewing and prioritizing the recommendations based upon resources and current conditions in the community. It may be possible that a recommendation made for the long term be implemented in the short term. It will be the responsibility for the Plan Commission, Town Council and Town Manager to make the determination. Listed below are the specific recommendations for implementation. The table lists the action, the time frame and the lead decision makers to take responsibility over the action.
ACTION
IMPLEMENTATION RESPONSIBILITY
IMPLEMENTATION TIMING
Planning
Create detailed annexation strategy
Town Manager’s Office/Planning Staff/ Plan Commission
Intermediate
Initiate and adopt a strategic development plan and capital improvements plan for newly annexed properties.
Town Manager’s Office/Planning Staff/ Plan Commission
Intermediate
Prepare subarea plan for Airport Study Area
Planning Staff/ Plan Commission
Short Term
Prepare subarea plan for SR 267.
Planning Staff/Town Engineer/ Plan Commission
Short Term
Prepare subarea plan for State Institutional Redevelopment Area.
Planning Staff/ Plan Commission
Long Term
Land Use and Zoning
Review the zoning map for inconsistencies between the zoning map and the Plan
Plan Commission
Intermediate
Add a hospitality and airport district to regulate the land uses on the east side of Quaker Boulevard (SR 267) and south of I-70.
Plan Commission
Short Term
Eliminate the I-4 Heavy Industrial District.
Plan Commission
Intermediate
Add specific zoning and subdivision regulations which promote development that favors preservation of historic buildings, makes mandatory the establishment of trail linkages and encourages creative subdivision design.
Plan Commission
Intermediate
Set forth design considerations that provide for unique architectural designs in commercial, industrial and office areas similar to what has been created for housing and subdivisions.
Plan Commission
Intermediate
Continue to monitor the established corridor development plan requirements for gateway corridors including Perimeter Parkway, SR 267, and Ronald Reagan Parkway that address design issues, such as landscaping, architectural style, lighting, signage and other considerations.
Planning Staff
Long Term
Promote integrated development of landscaping, trails and open space into new development and redevelopment projects.
Planning Staff
Long Term
Neighborhood Preservation
Adopt Neighborhood Design Standards.
Town Council/ Plan Commission
Long Term
Increase Housing and Property Maintenance Code Enforcement.
Planning Staff
Intermediate
Review Lot Division/Combination Requirements.
Planning Staff
Short Term
Administration/Leadership
Review requests for amendments to the Comprehensive Plan, in order to determine if there is a pattern of requested changes emerging.
Planning Staff
Long Term
Create a geographic information system (GIS) to maintain and update information.
Town Engineer
Intermediate
Undertake annual review and update of comprehensive plan.
Plan Commission/Town Council
Long Term
Continue on-going coordination with Hendricks County, Avon, Brownsburg, IAA and Indianapolis MPO
Town Council
Long Term
Meet with Hendricks County officials to discuss amending the County Comprehensive Plan to implement the future land uses planned for Guilford Township
Planning Staff
Short Term
Establish joint review with Hendricks County for projects within Guilford Township
Planning Staff
Long Term
Housing
Gather and monitor records including new residential growth and demolition of housing units, condition of units, vacancy rates, rents and housing costs as well as develop and maintain a log of approved subdivisions including the name of the subdivision, the location, year it was approved, the number of lots platted, and the number of lots constructed.
Planning Staff
Long Term
The Town should undertake a targeted neighborhood structure by structure conditions survey to establish a baseline for housing conditions in Plainfield.
Planning Staff
Long Term
The Town should identify older, transitioning neighborhood areas to create a plan for each defined neighborhood.
Town Council
Long Term
Establish a housing subcommittee of the Plan Commission to review findings of the planning and building departments annually.
Plan Commission
Intermediate
Implement systematic and targeted programs of code enforcement and site cleanup.
Planning Staff
Long Term
Transportation
Complete Construction of Perimeter Parkway
Town Engineer
Intermediate
Complete southern link of 267/67
Town Engineer
Long Term
Widen Hadley Road
Town Engineer
Long Term
Complete Ronald Reagan Corridor
Town Engineer
Intermediate
Widen Stafford Road
Town Engineer
Long Term
Initiate studying of new interchange @ I-70/Moon
Town Engineer
Long Term
Monitor traffic conditions before/after Six Points Road Interchange
Town Engineer
Short Term
Continue to maintain current transportation project Capital Improvements Program
Town Engineer
Short Term
Parks and Recreation
Complete Trail connections identified in Comp Plan
Parks Staff
Intermediate
Investigate development of Park @ Moon & CR 700
Parks Staff
Intermediate
Investigate development of new park on Northeast
Parks Staff
Intermediate
Short Term - actions needed to be completed in 1 - 5 years
Intermediate - actions needed to be completed in 5 - 10 year time frame
Long Term - actions needed to be completed in 10 to 20 year time frame
