Downtown Shelbyville · Downtown Shelbyville contains many of the aspects listed above. There are a large number of residents in the downtown area and several major employers within

Downtown ShelbyvilleSmall Area Plan

107 South Pennsylvania StreetSuite 100, Schrader BuildingIndianapolis, Indiana 46204-3684Phone: 317 633 4040Fax: 317 633 4153

ii C I T Y O F S H E L B Y V I L L E , I N D I A N A

iiiD O W N T O W N S M A L L A R E A P L A N

Throughout the nation there are countless examples ofcommunities that have recognized the importance oftheir downtowns and have developed innovative waysto breath new life into them. The success of an entirecommunity is directly related to the vitality and healthof its downtown. Downtowns have historicallyrepresented the symbolic heart of the community.

Throughout the comprehensive planning processresidents, business owners, and City officialsrecognized the importance of a vital and economicallyhealthy downtown. To achieve this success thoseinvolved in the planning process listed four primaryissues that needed to be addressed and ultimatelyresolved. They included:

1 resolution to current and future parking issues,2 increased economic activity and continued

business development in the downtown,3 increased vehicular and pedestrian safety on the

public square, and4 aesthetic improvements to the corridors and

entries into downtown.

The purpose of this Plan is to critically evaluate theseconcerns and develop appropriate solutions. Of thefour items listed above, the current state of the publicsquare and parking were consistently mentioned bythose in the public forums as the two major problemsfacing the downtown. Although this documentevaluates all four matters, these two items areanalyzed in greater detail based on the public’s opinionand initial analyses. It is also important to maintain abroad perspective concerning how each of these itemsare integrally related to one another and understandthat the resolution to one cannot come at the expenseof another.

The time frame for this document addresses steps thatcan be undertaken or initiated over the next five years.In an effort to focus on specific issues, this Planconcentrates on the Harrison Street corridorencompassing approximately one block on either sidefrom Colescott Street to the Blue River. Such afocused plan allows City officials, communityorganizations, and business leaders to concentratetheir efforts on generating immediate successes,ultimately leading to long-term solutions to downtownShelbyville’s revitalization.

ForewordThe Downtown Small Area Plan is a part of the Cityof Shelbyville’s initiative to update the ComprehensivePlan. Both documents seek a proactive approach toplanning and guiding appropriate developmentthroughout the community. The ultimate goal of thisDowntown Plan is to build on the success of projectsalready undertaken by community leaders and to buildupon efforts to enhance the downtown’s vitality.Improving and preserving the unique character of thedowntown and the buildings that comprise it should bekey guiding principles to this process over the comingyears.

This Plan is part of an evolving process to strengthenthe heart of the community. Due to the nature of thisdocument, not all the issues can be thoroughlyevaluated to the degree necessary. The issuesdiscussed in Chapters Three, Four, Five and Six willneed to be examined further to determine theirfeasibility, impacts on the larger community, andadditional implementation strategies. The purpose ofthe catalyst projects listed is to address the primaryissues currently facing the downtown, proposealternatives for future improvements, and generate along-term vision for the future of downtownShelbyville and the community as a whole.

Downtown Shelbyville circa 1982

iv C I T Y O F S H E L B Y V I L L E , I N D I A N A

Table of Contents

PrefaceForeword ............................................................. iiiTable of Contents ................................................. ivAcknowledgments ................................................ v

Chapter 1 - Downtown AnalysisDowntown Analysis - Introduction ......................... 4Small Area Plan Study Area Map .......................... 5Historical Perspective ........................................... 6Existing Land Uses ............................................... 8Land Use Map - Street Level................................ 9Land Use Map - Second Level.............................10Land Use Map - Third Level................................ 11Existing Circulation and Parking-General...............12Existing Circulation and Parking Map....................13Existing Circulation & Parking-Public Square ........14Existing Economic Issues .....................................16

Chapter 2 - General PlanIntroduction - General Plan ..................................20Recommended Streetscape Phasing Map..............21General Implementation Measures ........................22General Implementation Measures-Urban Design ..23

Chapter 3 - The Public SquareIntroduction - Public Square Configuration ............26Square Options “A”, “B”, and “C” .......................27Square Option “D” and Summary Matrix ..............28Proposed Public Square Reconfiguration ...............29

Chapter 4 - Circulation and ParkingIntroduction - Circulation and Parking ...................32Circulation and Parking Alternatives Map.............33Additional Public Parking Alternatives ...................34

Chapter 5 - Downtown GatewaysIntroduction - Downtown Gateways .....................38Gateway Locations Map ......................................39Northern Gateway...............................................40

Chapter 6 - Economic DevelopmentIntroduction - Economic Development ..................42Additional Economic Opportunities .......................43Rehabilitation of Historic Buildings ........................44

Chapter 7 - ConclusionConclusion ..........................................................46

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Acknowledgments

The Shelbyville Downtown Small Area Planis the result of hard work and contributions from manypeople. A plan that does not involve those it hopes toserve will not be as successful. For this reason, thoseinterested in the success of the downtown put forthmuch effort, thoughts, ideas, goals, and vision. It isappropriate and necessary to give special recognitionand appreciation to those who were an integral part ofthis process.

Special thanks to the people of Shelbyville, particularlythose who provided their valuable insight into thisplanning process by participating in the public work-shops, key group interviews and the public presenta-tion “open house” held in May (2001). Special thanksalso to the following people who made this effortpossible.

Mayor of Shelbyville:Frank Zerr

City Council:Cheryl AtwoodOrville BransonScott FurgesonJeff MartinW. Anthony SipesJim SleethRoland Stine

City of Shelbyville Plan Commission:

David Finkel, President Larry LuxDennis Baker James MacklinDiAnne Forville Amy MooreScott Furgeson Jeff SponselTerry James

Planning Staff:

Thomas DeBaun, DirectorAmy Butcher, Deputy Director

Steering Committee Members:

Cheryl Atwood James Garrett, Jr.Orville Branson Cheryl MillerMike Dellinger Amy MooreDavid Finkel Terry SmithDiAnne Forville Jeff Sponsel

Special thanks to Jeff Sponsel for providing thehistorical photographs found on pages 6 and 7.

vi C I T Y O F S H E L B Y V I L L E , I N D I A N A

Part OneExisting Conditions


2 C I T Y O F S H E L B Y V I L L E , I N D I A N A

Chapter 1Downtown Analysis


Downtown Analysis - IntroductionShelbyville’s original downtown represented thecharacter of a small community during an earlier time.The compact urban form provided a conduciveenvironment for residents to walk to and shop at manyof the local businesses which comprised thedowntown. The original public square represented thecenter of City and County governments and served asa public gathering place.

The layout of Shelbyville’s original town square wastypical of most communities in Indiana. The primaryroads into town traversed directly through thedowntown and were a convenient means of access toactivities in the center of Shelbyville. As the amountof traffic and the frequency of large trucks increased,safety became more of an issue, and this assetbecame more of a detriment to the downtown’s imageand economic vitality.

Access to Shelbyville and the downtown is primarilyalong State Road 9 (Harrison Street) and State Road44 (Broadway Street). Although both routes funnel asignificant amount of traffic into the downtown area, alarge number of heavy trucks travel through thedowntown square causing numerous conflicts.

Over the years, public policy and changing economicpatterns shifted economic activity away from the towncenter. Development patterns shifted from aconcentrated (small) area to a more dispersed patternscattered throughout the community. Like many othercommunities, as people moved to the edge of thecommunity businesses and services followed creatinga void in the heart of the community. A primaryinfluence of this trend was the automobile and themobility it provided. Due to these changes and otherinfluences, many small towns suffered over the years,and Shelbyville was no exception.

Fortunately, recent trends indicate a reversal in thismovement away from town centers, and manydowntowns have new life. Reasons for this shiftinclude a return of residences to the downtown,proximity to employment, and a desire to maintain theeconomic, cultural and historical aspects that make thecommunity unique.

Downtown Shelbyville contains many of the aspectslisted above. There are a large number of residents inthe downtown area and several major employerswithin easy (walkable) access. Although the number

and variety of businesses is not what it could be, itrepresents a solid core from which to build.

As the largest single employer downtown, MajorHospital represents an influential component of thedowntown’s vitality. The hospital employees’ currentand future use of infrastructure such as streets,parking, and other City services can directly impactdevelopment in the downtown area. The City ofShelbyville and interested downtown stakeholdersshould maintain ongoing dialogue with the hospital toanticipate and plan for change as conditions warrant inthe future.

The map on the following page indicates thegeographic scope of the study area. The areaindicated begins to allude to either the areas ofprimary concern or the major influences on thedowntown. In addition to the immediate public squarearea, other areas of concern include the parcels ofland just south of the Blue River and the southernentry point into downtown comprised primarily ofMickey’s Plaza.

The remainder of this chapter explores the numerousother factors impacting downtown Shelbyville. Inaddition to a brief historical overview of thedowntown, existing land uses, vehicular circulation andparking are also analyzed. A brief description ofeconomic conditions is also included in this chapter.

5D O W N T O W N S M A L L A R E A P L A N


Historical Perspective

Downtown Square Looking South, Circa 1920

The original 1823 plat of Shelbyville was comprisedprimarily of what the downtown is today. Proceedsfrom early land sales were applied to land acquisitionand the construction of the County’s first courthouse.This courthouse was located in the center of the publicsquare until it burned in 1850. The courthouse wasrebuilt at its current location along South HarrisonStreet, and the square became an open public plaza.

As the series of photos indicate, the central squareaccommodated vehicles and pedestrians alikethroughout the early 1900’s. The former courthousesite was reduced to a small, centrally-located fountainwith traffic flowing directly through the square. Theopen plaza served as a central gathering space for thedowntown and larger community for numerous socialand political events. The original interurban whichconnected various parts of Shelbyville also passedthrough the public square.

In 1956, the square was redesigned to accommodatethe increased influence and popularity of theautomobile. A large parking lot was placed in thecenter of the square, creating somewhat of a round-a-bout with traffic circulating around the centralizedparking area. This configuration is what can be foundhere today.

Downtown Shelbyville is comprised of a designatedhistoric district as well. The Shelbyville CommercialHistoric District, shown on the map on Page 5,contains a majority of the historic buildings foundwithin the city. Some of the notable buildings include:

• City Hall• Old City High School (Town Hall)• Blessing-Deprez Building• Knights of Pythias Building

In 1978 an effort was undertaken to improve thephysical appearance of the public square. With agenerous donation from Knauf Fiberglass, streetscapeimprovements such as landscaping, street lights, anddecorative sidewalk pavers were incorporated toenhance the downtown setting. Although theseenhancements addressed downtown needs at the time,changing economic trends, increased traffic, and thegeneral effects of time have combined to create asetting that is once again in need of rejuvenation.

Up until the early 1980’s downtown Shelbyville servedas the primary business district for the City and

Downtown Square Looking Northeast, Circa 1900

Downtown Shelbyville Looking North, Circa 1949


Downtown Square, Circa 1982

County. Nearly all the prominent businesses servingthe community surrounded the central plaza. As thepopularity of the automobile gathered strength andbusinesses moved nearer to residents on the outskirtsof town, the downtown struggled to retain its role asthe community focal point. Today, several buildingsare underutilized or vacant. Most of the businesses inthe downtown are service-oriented or professionaloffices.

In recent years, there has generally been a highturnover rate among businesses in the downtown.Vehicular parking has also become a major issue forwould-be patrons and employees of the downtownbusinesses. Improving pedestrian-related aestheticsand safety have taken on added importance. Thenumber and frequency of large trucks passing throughthe square have generated problems for businessowners and pedestrians alike.

In 1997, Mainstreet Shelbyville was organized toaddress some of the issues discussed previously.Since that time, the organization has been successfulin assisting local businesses and promoting thedowntown. The organization has sponsored numerousevents and has actively promoted downtown as aplace to visit, shop, and dine.

The downtown has had a diverse history, and thistrend of diversity continues today and will continueinto the future. Continued cooperation andcoordination between the City and other stakeholderswill ensure the downtown remains a vibrant andeconomically vital part of the community. Like manyother communities throughout the country that haverevitalized their downtowns, Shelbyville has thenecessary resources and spirit to follow this trend.


IntroductionThis section evaluates existing land uses in thedowntown study area. Due to the historic nature ofthe area, a majority of the buildings are multi-storybrick buildings fronting the streets. Because fewbuildings have been demolished and replaced withparking lots or new construction, the continuity of theurban fabric has remained relatively intact. Mostparking is located behind existing buildings, generatingless of a visual impact on the aesthetics of thedowntown streetscape.

Method of AnalysisAn analysis of existing land uses is the primarymethod of determining the issues and problems of thearea. Building inventories and conditions illustratebusiness types, vacancies, and nodes of activity. Dueto the dynamic nature of the business environment,this survey represents a snapshot of existing land usesas of May, 2001.

General ConditionsMany of the buildings in the study area are two andthree story commercial brick buildings built betweenthe mid 1800’s and early 1900’s. Unfortunately, mostof these same buildings have been vacant and/orunderutilized on the upper floors for many years.Buildings that are fully occupied generally haveresidential rental units on the second and third floors.Unfortunately, many of these units are in poorcondition and are in need of significant improvements.Many residents who took part in the public workshopsfor the Comprehensive Plan said the amount of vacantspace and the perception it creates is one of severalfactors affecting the downtown’s inability to attractreinvestment.

The preservation of historic buildings in the downtownis vital to maintaining the unique character of the area.Numerous, complex issues must be addressed in orderto make a building viable for reuse. The structuralintegrity of the building must first be examined. Inaddition to that, ADA and fire code compliance mustalso be addressed to make a building viable for publicuse. Although making some buildings code-compliantwould be cost prohibitive, there are many buildingsthat could be rehabilitated at reasonable costs.

In addition to having major employment centers in thedowntown, it is equally important to have supportingretail and service businesses catering to the needs of

Existing Land Usesthose living and working downtown as well. Listedbelow are some of the primary land uses in thedowntown.

1 Major Hospital2 City Hall3 Shelby County Courthouse and Annex4 Mickey’s (retail) Plaza

Major Hospital has been a steady employer andcorporate citizen in the community over the last eightyyears; however, its continued growth and expansionhas created a situation where the hospital will soon beexploring options for future expansion. Due to the“land-locked” status of the hospital’s current site, it isassumed the hospital will be searching for locations toexpand outside its current location. The City shouldwork closely with Major Hospital and any otherinterested parties to explore options for the future useof the existing building and site.

As mentioned previously, the number of vacantbuildings downtown has been an ongoing problem overthe years. But this problem also represents anopportunity to create catalysts for improvement.Listed below are some of the key buildings thatrepresent this potential for redevelopment.

5 Safeway Supermarket site6 Porter Pool building7 some of the Methodist Building’s floors8 Knights of Pythias building

Community EventsCommunity events and festivals are integral to theidentity and spirit of the community. There are severalevents held annually in Shelbyville that have a longtradition. The largest one is the Bears of Blue RiverFestival which is held annually during August. Otherspecial events or activities that take place downtown,or have taken place in the past, include:

• Spring clean-up activities,• car shows, farmers’ markets, pancake breakfasts,• the Cinco de Mayo Festival (May),• pumpkin painting contest (October),• Late Night events, and• Oktoberfest (planned for September 2001).





Existing Circulation and Parking - GeneralIntroductionThis section examines existing traffic patterns in andaround the public square including vehicular andpedestrian circulation. This section also evaluates theamount and availability of parking throughout the studyarea and various infrastructure issues (streets,sidewalks, underground utilities, etc...) that may needto be addressed. Finally, an examination of gatewaysor entrances into the downtown is also explored.

Method of AnalysisSeveral site visits were conducted to evaluate existingtraffic related issues on the downtown square andsurrounding street network. In regards to parking, asurvey was conducted to tally the approximate numberof spaces within the study area.

General ConditionsPrimary access to the Shelbyville public square isserved by State Road 9 which runs directly throughthe downtown square. State Road 44, one block southof the square, is the designated truck route through theCity and follows Broadway to Harrison Street andsouth to Colescott Street. These two routes generatethe largest volume of traffic, including large trucktraffic, through the downtown. During the publicworkshops, residents repeatedly discussed theirconcerns about vehicular and pedestrian safety due tothe size and number of trucks traveling through thesquare.

In regards to pedestrian circulation in the downtown,the dashed circle on the map on the following pagerepresents a 1/4 mile radius from the center of thepublic square. A distance of 1/4 mile is generallyconsidered to be a comfortable 5 to 10 minute walkfor the average individual. The purpose of the graphicis to provide a sense of scale to the downtown areaand to illustrate potential alternatives to access variousparts or destinations in the downtown.

Parking on the downtown square is dominated by theparking lot located in the center which containsapproximately sixty-six spaces. Other major parkingareas include employee and visitor parking for MajorHospital (approximately 225 spaces) and for Mickey’sPlaza (approximately 200 spaces). As the map on thefollowing page indicates, the remaining parking isscattered in smaller pockets throughout the downtown.From the survey taken, there are approximately 1,525spaces within the downtown study area. This figure

includes most of the on-street parking but does notdistinguish between public parking and private, orbusiness patron parking.

Providing adequate access that is compliant with theAmericans with Disabilities Act (ADA) is anotherissue. Currently there is an inadequate amount ofhandicap-accessible parking spaces on or around thepublic square. Proper curbs and sidewalks for thosewith physical limitations needs to be evaluated andaddressed as a priority.

There is a lack of directional and informational signagein the downtown. Motorists and pedestrians alikemust be able to easily recognize their surroundings andknow where they are going. Signage directing visitorsand residents alike to downtown attractions or simplyto available parking areas are the first steps in makingthe downtown a more user-friendly destination.

Infrastructure ConditionsThe condition of sidewalks, curbs (curb-cuts),handicap ramps, street lights, and local streets is notonly a maintenance concern but an aesthetic one aswell. Prioritizing where to concentrate maintenance,funding, and other resources to improve the aestheticsand functionality of these components in thedowntown are essential to improving the businessclimate of the area. In order to ensure investmentsare made by existing and potential business owners inthe downtown, the City must show a commitment aswell by investing in the area.

Gateways to the DowntownThe importance of community gateways has beenhighlighted in the Comprehensive Plan, ImplementationWorkbook, and again in this Small Area Plan.Although all three documents explore this issue andmany of the issues are similar, differences lie in thescale of each project. The importance of creating apleasant pedestrian experience is vital to the successof the downtown. Additionally, State Roads 9 and 44are the primary vehicular routes into and throughdowntown. Encouraging redevelopment andincorporating urban design enhancements along suchgateways can spur revitalization efforts throughout thedowntown.



IntroductionIn order to determine appropriate solutions to thenumerous circulation issues on the public square, athorough analysis of existing problems in the area mustbe conducted. This page and the photograph on thefollowing page highlight some of the primary vehicularand pedestrian issues on the square.

General Liabilities• Lack of safe, ADA accessible parking spaces.• Excessive (semi)truck traffic generating numerous

issues including:-noise pollution (throttling up and down)-vibration-air pollution (causing building degradation)-trucks taking up both travel lanes whenmaking turns around the circle, and-truck trailers rolling over curbs and sidewalksand destroying landscaping.

• Parking spaces in central lot utilized by businessemployees rather than patrons.

Urban Design Issues• Lack of cohesive outdoor space for community

events.• Vending machines located in front of businesses.• Inconsistent maintenance of landscaping.• Island medians too small/narrow to provide

pedestrians with a sense of safety from traffic.• Parking lot full of cars detracts from the water

fountain located in the center.

Infrastructure IssuesThis analysis examines “above-grade” infrastructuresuch as streets, sidewalks, curbs, and street lights.Determining underground infrastructure conditions is amuch more difficult task that can only be accuratelyevaluated through additional engineering studies thatexpose existing conditions. Listed below are some ofthe “above-grade” issues that have been examined.

• Lack of ADA-accessible curb-cuts and ramps.• Lack of storm sewers under the public square.• Deteriorated sidewalks in some locations.

Specific Problem AreasThere are several problematic areas associated withcirculation around the circle. The following analysisrefers to the photograph on the following page andaccompanying graphic below.

1 Speed of vehicles along Harrison Street too fastwhen approaching the square.

2 Numerous conflict points where vehicles enterand exit the central parking area.

3 Vehicles backing out of parking spaces into theflow of traffic.

4 Vehicles pulling out of parking spaces into the flowof traffic.

5 Confusion concerning who has right-of-way:-motorists vs. pedestrians-motorist vs. motorist

6 Lack of direct, safe routes for pedestrians tryingto cross from the central parking lot to surroundingbusinesses.

Vehicular Circulation on the Square

Existing Circulation and Parking - Public Square


Existing Circulation and Parking - Public Square

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Photo Circa 1980Vehicular and Pedestrian Conflicts on the Square


Existing Economic IssuesIntroductionAny effort to revitalize or enhance the aesthetics ofthe downtown will fail if approached as an isolatedissue. Maintaining a healthy business climate is vitalto the ultimate success of downtown and that ofgreater Shelbyville.

Method of AnalysisDue to the importance of this issue, a separatedocument was developed that focused on thedowntown’s economic issues. The document containsinformation on the various types of businesses whichcomprise the downtown area, a market analysis ofpast and future trends, and recommendations forfuture development based on those trends. Foradditional economic information and projections, referto the Economic Development Opportunities andRequired Actions report completed in January, 2001.

General ConditionsDowntown Shelbyville currently is comprised of avariety of business and land uses. According to theeconomic study referenced above there areapproximately 1,000 employees in the downtown area.Of this total, approximately 600-700 are located withinthe Small Area Plan study area.

A majority of the employers in the downtown aresmall business owners with less than twentyemployees. To contrast the large number of smallbusinesses, there is also the impact of a select numberof large employers within or near the study area.These large employers influencing the development ofdowntown include:

• Major Hospital• Knauf Fiberglass• City and County government agencies

As with most downtowns, there is also a largepercentage of service sector employers. For abreakdown of the types of land uses, refer to the landuse maps located earlier in this chapter.

Even though there is a large amount of vacant spacein the downtown, many long time businesses exist inthe area. These businesses include financialinstitutions, restaurants, some warehouse/distributionbusinesses, service-oriented operations, furniture andappliance stores, and specialty/”niche” shops.Although financially stable now, many of these small

businesses would benefit greatly from a downtowneconomic revitalization effort.

Downtown and greater Shelbyville are uniquelypositioned to utilize the fiberoptic line recentlyinstalled. The City negotiated free access to the linefor the next thirty years. Currently, only the MethodistBuilding on the public square is linked to this high-techinfrastructure.

Part Two Implementation Measures



Chapter 2General Plan


Introduction - General PlanThis Small Area Plan focuses on projects that can beinitiated or undertaken over the next five years. Themap on the following page indicates the areas ofhighest priority to focus funds and efforts. Thefollowing implementation measures center onimprovements to the public square, increasing publicparking, and creating a gateway feature along theBlue River. The map also indicates a long termphasing plan which addresses urban design andstreetscape issues throughout downtown.

The various phases of downtown (re)developmentshould be viewed as a series of interrelated stepsensuring the long-term health and vitality of thedowntown and greater Shelbyville. Although this Planinvestigates opportunities over a five-year time frame,many of these ideas may not become reality foranother ten to twenty years. Listed below is a briefsummary of each of the phases relating to urbandesign issues and the primary focus for each.

Phase OneThis initial phase represents the primary focus of theSmall Area Plan. Throughout the comprehensiveplanning process, residents and City officials alikereiterated their concern for the public square and theirdesire to see its revitalization. Improving pedestrianand vehicular circulation, addressing parking issues,and improving the overall pedestrian experience andsafety on the square are central issues addressed inthis phase. This phase is directly influenced andaffected by the Parkway Arterial proposed in theComprehensive Plan which will reduce truck traffic onthe public square.

Phase TwoCreating a lasting image and entry into the downtownis another key to the future viability of the downtown.The development of a strong gateway experiencealong north State Road 9 for the motorist andpedestrian alike is the focus of this phase.Redevelopment opportunities for the Porter Poolbuilding and vacant Safeway Supermarket site couldraise the quality of development for the downtown andoverall community.

Phase ThreeThe final phase of this five year plan involves linkingthe new gateway feature(s) along the Blue River withthe downtown square. This effort could include acoordinated effort with the Parks and Recreation

Department to create a pedestrian path from the Riversouth along Harrison Street to the public square.Streetscape improvements that enhance the pedestrianexperience and safety is key to this phase.

Long-term PhasesThe remaining phases indicate a long-termcommitment to downtown Shelbyville and ultimatelythe businesses comprising it. The two primarycomponents of this vision include streetscapeimprovements and the redevelopment of Mickey’sPlaza into a southern gateway for the downtown.Streetscape improvements along the three remainingstreets radiating from the square, including HarrisonStreet to the southern gateway, comprise one part ofthis phase. Streetscape improvements along eastBroadway Street could be incorporated as part of theIndiana Department of Transportation’s plans toimprove East State Road 44 within the next ten years.

Redevelopment opportunities at the intersection ofColescott and Harrison Streets could furtherinvigorate the downtown business climate. Thecreation of a significant gateway feature anchoring thesouthern part of downtown would serve as theopposite “bookend” to the northern entry at the BlueRiver. Such a scenario could generate a well-designedurban experience for those passing through or visitingthe downtown.

Public Parking IssuesIntegral to the success of all phases describedpreviously is an adequate supply of public parking.Establishing a program or system that addressescurrent parking issues and also sets up potentialsolutions for future parking needs is key to developinga proactive approach to resolving parking issues. Thisis discussed in greater detail in Chapter 4.

Economic IssuesIn addition to the urban design issues listed above, it isequally important to encourage a vibrant collection ofbusinesses that will spur downtown redevelopmentand investment. Chapter 6 explores the economicpotential of the area. New and exciting businessopportunities utilizing the existing yet untappedfiberoptic line running through the downtown is oneresource to enhance the community’s future economichealth. Another tool centers on providing anopportunity for continuing education in the communityin the form of a life-long learning center.



In addition to the specific catalyst projects outlined inthe chapters that follow, there are also some generalimplementation measures that can be appliedthroughout the downtown. They are meant tosupplement and strengthen the general goals forimproving the area. These suggestions relate to urbandesign, infrastructure, circulation and economicdevelopment. These improvement efforts must alsopreserve the existing historic resources to maintain theintegrity of the downtown. Additional implementationmeasures are listed below.

Land Use Strategies• Generating a strategy to reuse vacant buildings and/

or vacant (upper-level) floors.• Protecting existing homes from inappropriate

conversion to home offices, businesses, andmultifamily units.

• Addressing and encouraging improvements toexisting residential units and promoting new rentaland owner-occupied residences throughout thedowntown.

Government Policy Strategies• Creating a “mini-capital improvement plan” to

highlight areas or issues to be addressed by the Cityover the next five years regarding infrastructureimprovements.

• Developing a Traditional Neighborhood zoningclassification to protect residential areas and theirhistoric character.

• Developing a Downtown Zoning Districtclassification to maintain and protect existing,significant buildings that comprise downtown.

• Developing design guidelines for appropriate newdevelopment and building renovation.

Marketing Strategies• Developing a general marketing and promotional

strategy for downtown business and events.• Creating a tour to show/educate residents how

upper floors of historic buildings can be renovatedfor business or residential use. This could bemodeled after a similar tour sponsored byNoblesville, Indiana’s Mainstreet organization.

• Continuing the walking tour of downtownhighlighting some of the historic buildings or placesand the stories behind them. This could besupplemented by educational placards with picturesand accompanying information about the history ofthe public square.

Additional Strategies• Offering evening classes in downtown space(s) for

hobbyists using local talent as educators--woodworking, painting, etc...

• Developing a plan or program to coordinate streetfurniture, trees, and other amenities throughout thedowntown. This could include unified directionaland business signage as well as general streetscapeenhancements.

• Developing physical and visual connections to theBlue River.

This brief list begins to allude to some of the manyissues and opportunities in the downtown.Stakeholders in the downtown must work together in arenewed spirit of cooperation to improve thedowntown, avoid the duplication of efforts, and remainever-mindful of the long-term vision for thedowntown. The following chapters detail how someof these measures and ideas can become reality.

General Implementation Measures


General Implementation Measures - Urban Design

Existing Streetscape at W. Broadway St. (looking West)• Lack of visual and physical separation between

pedestrian and street parking.• Continuous paving doesn’t provide a defined edge

between pedestrian and vehicular spaces.• Lack of unified (size, proportion, etc...) business

signage detracts from the streetscape’s image.• Building materials along storefront not consistent

with historic nature of surrounding buildings.• Small planting beds will significantly limit the lifespan

and growth potential of trees.

Proposed Streetscape Enhancements• Increased landscaping provides a more pedestrian-

friendly setting and opportunity for plant growth.• Canopy over sidewalk provides shade for

pedestrians and can unify various building facades.• Properly pruned trees still allow motorists to see

adjacent businesses and signage.• Building/storefront rehabilitation can improve the

aesthetic quality of the streetscape.• Consistent/unified signage can improve the visual

appeal of existing storefronts.• Potted plants add visual appeal and human scale.

Existing Streetscape at S. Harrison and Hendricks Streets• Lack of visual and physical separation between

pedestrian and parking area.• Amount of paved area doesn’t provide a pedestrian-

friendly setting and increases ambient temperature.• Lack of continuous sidewalk in parking lot signifies

incomplete sidewalk network for would-be users.• No defined edges between pedestrian and vehicular

traffic or parking area particularly south ofHendricks Street.

• Severe tree pruning is unsightly and blocks views toretail establishments more than limbed-up trees.

Proposed Streetscape Enhancements• Increased landscaping provides greater sense of

enclosure and safety for pedestrians.• Tree canopy over sidewalk provides shade for

pedestrians and reduces ambient temperature.• Properly pruned trees still allow motorists to see

adjacent businesses and signage.• Extension of sidewalk to the south maintains

continuity of sidewalk system.• Hedge provides visual separation between

pedestrian and adjacent parking areas, thusdecreasing the amount of pavement in the viewshed.


General Implementation Measures - Urban Design

Existing Streetscape at N. Harrison and PennsylvaniaStreets (looking North)• Lack of visual and physical separation between

pedestrian and parking area.• Number of curb-cuts increases safety issues for

vehicular traffic and creates potential conflictsbetween motorist and pedestrians.

• Amount of paved area doesn’t provide a pedestrian-friendly setting.

• Existing signage not scaled to the pedestrian or thespeed of vehicular traffic.

• Lack of sidewalk in parking lot signifies incompletesidewalk network for would-be users.

• No defined edges between pedestrian and vehiculartraffic or parking area.

Proposed Streetscape Enhancements• Increased landscaping provides greater sense of

safety for pedestrians.• Decreased number of curb-cuts increases

pedestrian and motorist safety while maintainingadequate access for businesses.

• Properly pruned trees still allow motorists to seeadjacent businesses and signage.

• Extension of sidewalk maintains continuity ofsidewalk system.

• Hedge provides visual separation betweenpedestrian and adjacent parking areas, thusdecreasing the amount of pavement in the viewshed.

• Business signage appropriately scaled to thestreetscape setting.

• Proposed firestation headquarters in the distanceserves as a gateway feature or entrance for thedowntown.

Chapter 3The Public Square


IntroductionPedestrian and vehicular circulation on the publicsquare is of primary concern to both citizens and Cityofficials. Of specific concern is the volume and speedof large trucks traveling along State Road 9. Thissection explores the positive and negative aspects ofvarious alternatives for improving circulation on thesquare. Although there is no “magic bullet” for solvingall the complexities, a recommendation is put forth asthe best opportunity for addressing a number of thecurrent problems existing on the public square.

IssuesOne key to improving the aesthetics and function onthe square requires improved pedestrian and vehicularcirculation. Although the proposed Parkway Arterialreferenced in the Comprehensive Plan seeks toreduce the amount of truck traffic in the downtown,such a solution will not occur for several years. As aresult, this Small Area Plan proposes an alternativethat will at least reduce the impact of current trafficpatterns.

The parking area in the center of the square not onlydetracts from the aesthetic value of the area but alsocreates safety concerns. Traffic entering and exitingthe parking lot is a safety issue for motorists andpedestrians alike. For additional information onexisting circulation issues refer to the ExistingCirculation and Parking section of Chapter 1.

Method of AnalysisThe method of analysis to evaluate options forimproving circulation and safety issues on the squarebegan by examining (and ultimately eliminating)previous proposals. Numerous site visits wereconducted to gather information, and a walking tourwith downtown representatives and other localbusiness leaders was also conducted to gain furtherinsight. The culmination of this information formed thebasis for the analyses described earlier in ChapterOne. The matrix on page 28 summarizes andcompares the numerous factors that were used tojudge the potential for each proposed option.

Implementation MeasuresThe recommended alternative seeks to return thepublic square to a common public plaza reminiscent ofthe one that was there prior to the mid-1950’s. Inconjunction with this improvement, maintaining and/orexpanding parking around the square is a primary

Introduction - Public Square Configurationconcern as well. All of the options shown seek tocreate a greater balance between the requirements ofautomobiles and the need for a more pedestrian-friendly environment. To be successful thisreconfiguration must coincide with alternative parkingstrategies discussed in Chapter 4.

VisionThe goal is to once again return the public square tothe social prominence it once held and increase publicsafety. This includes creating a balance between theneeds of the pedestrian and the physical requirementsof accommodating the automobile. Like manycommunities, Shelbyville must strive to create ahealthy and vibrant downtown that symbolizes thevalues and aspirations of the community. Therecommendation proposed for the public squarereconfiguration is only conceptual in nature and willrequire further study to determine its feasibility.Based on such future studies, the proposedreconfiguration may or may not be implemented in itscurrent form. Such a challenge may not be completedin five or even ten years, but community leaders musthave the forethought and vision to set the process inmotion to ultimately achieve the goal to enhanceShelbyville’s public square, whatever shape itultimately takes.

27D O W N T O W N S H E L B Y V I L L E S M A L L A R E A P L A N

• Direct travel path forlarge trucks means lessnoise, vibration, andpollution.

• More greenspace.• Could work well with the

Bears of Blue RiverFestival.

• Could eventuallyconnect the islandswhen (if) the ParkwayArterial becomes reality.

Con’s

Option “B”Pro’s

• Insufficient amount ofparking.

• Problem of parkedvehicles pulling out intotraffic still remains.

• Sense of place stilllacking.

• Doesn’t reduce thenumber of pedestrian/vehicular conflict points.

• Could work well with theBears of Blue RiverFestival.

• Creates a sense of place.• Adequate greenspace.• Creates a focal point

opportunity.• Separates pedestrian/

vehicular trafficpatterns.

Con’s

Option “C”Pro’s

• Insufficient amount ofparking.

• Problem of parkedvehicles pulling out intotraffic still remains.

• Circuitous travel path oflarge trucks meanscontinued noise/vibration/pollution.

• Good amount of parking.• Clear circulation

patterns.• Direct travel path for

large trucks means lessnoise, vibration, andpollution.

Con’s

Option “A”Pro’s

• Design focuses onneeds of the car, not thepedestrian.

• Nothing has been doneto reduce the speed oftraffic along Harrison St.

• The intersection cutsthe heart out of thecommunity.

• Doesn’t lend itself to theBears of Blue RiverFestival.

• No sense of place.


• Equals the existingamount of parking.

• Clearly definespedestrian and vehicularcirculation.

• Generous amount ofgreenspace.

• Reintroduces the heartof the community.

• Allows North/Southtraffic to continuethrough the square, butreduces the speed.

• Places parking at thefront door of stores andbusinesses.

Con’s

Option “D”Pro’s

• Inability to directlytravel East/West onWashington St.

• Redesign could increasevehicular traffic onnearby streets.

Design CriteriaOption

"A"Option

"B"Option

"C"Option

"D"Tangible Criteria (weighted for importance)

Number of Parking Spaces (86 Currently) 2 2 2 2(2-fewer, 4-same as existing, 6-more) (60 spaces) (22 spaces) (16 spaces) (64 spaces)

Pedestrian vs. Motorist Conflict Points 2 4 6 6(2-more, 4-same as existing, 6-fewer)

Motorist vs. Motorist Conflict Points 2 2 4 6(2-more, 4-same as existing, 6-fewer)

Quantity of Greenspace 3 3 3 3(1-less, 2-same as existing, 3-more)

Initial (up-front) Costs 1 3 2 1(1-more, 2-same, 3-less than other options)

Maintenance Costs 1 1 1 1(1-more, 2-same as existing, 3-less)

Pedestrian Safety 1 2 3 3(1-decreased, 2-same, 3-increased)

Traffic Flow(1-worse, 2-same as existing, 3-better)North/South Traffic Flow 2 3 2 3East/West Traffic Flow 3 2 2 1(Large) Truck Navigation 3 3 2 3Reduced Speed Along Harrison Street 3 1 2 3

Intangible Criteria(1-less, 2-same as existing, 3-greater)

Historical Accuracy 1 1 2 2Sense of Place 1 1 3 3Potential for Community Focal Point 1 1 3 3Conducive to Social Events 1 1 3 3Access to Quality Greenspace 1 2 2 2

Total "Score" 28 32 42 45


Proposed Public Square ReconfigurationThe conceptual plan below details “Option D” shownon the previous page. It is understood that none of theoptions will solve all existing problems, but this planrepresents the best alternative for resolving orminimizing a majority of them. Listed below are someof the unique design features of this reconfiguration.

• The creation of four parking courts that allowspatrons to park closer to businesses and separatespedestrians from the regular flow of traffic.

• Each court provides safer ADA-accessible parkingspaces.

• The parking courts are designed to reduce thenumber of conflict points with the regular flow oftraffic. Parking is accessed from Washington Streetonly.

• Paving material changes at crosswalks, and parkingareas visually separate pedestrians from vehicularspace.

• Height of parking courts is relatively equal to that ofthe sidewalks but slightly higher than the street.Courts and sidewalks are separated by movable,decorative planter, bollards, etc... that can berearranged for special events.

• Street trees provide a sense of enclosure at eachcourt providing shade (reducing the ambienttemperature), a greater sense of place, and a morepedestrian-friendly setting.

• When approaching the public square, the centralgreenspace serves as a visual cue for motorists toreduce their speed.

• Greenspace extends one block in either directionalong Harrison Street to provide safety forpedestrians and alert motorists of the changingsetting.

• Central greenspace provides the opportunity tocreate a focal point for the downtown and greaterShelbyville.


Proposed Public Square ReconfigurationAlthough reconfiguring the public square is a largepiece of the downtown redevelopment puzzle, it is stillonly a conceptual idea in need of further study. Itssuccess will depend largely on the other issuesdiscussed in the remainder of this document. Becausethis design dramatically changes the aesthetic andfunctional characteristics of the public square,additional issues will need to be examined morecritically.

The proposed reconfiguration of the public squarerepresents one catalyst project relative to theDowntown Small Area Plan. As mentionedpreviously, the central greenspace serves as a primeopportunity to create a central focal point for thecommunity. The illustration below is simply aconceptual idea that illustrates the potential the publicsquare holds. What that focal element ultimatelybecomes should be determined by the citizens ofShelbyville. It could be a large sculptural element,water feature, or simply an elegantly landscapedspace. Whatever shape it takes, it must be of a scalelarge enough to complement but not overpower thepublic space.

It is understood that the proposed reconfiguration ofthe public square will have a “ripple effect” on thesurrounding street network. Although the IndianaDepartment of Transportation has preliminarilyendorsed the concept of the reconfiguration, there areconcerns about how it might impact surrounding trafficflow. Implementing this proposal will requireadditional studies to determine the feasibility of thereconfiguration and its impact on the surroundingstreet network and traffic patterns. The scope ofsuch a study would need to encompass the HarrisonStreet corridor from Colescott Street to the Blue Riveras well as the numerous cross-streets intersectingHarrison Street. The amount of on-street parkingwould also need to reflect any forecasted changes tothe volume of traffic on local side streets. Anincrease or decrease in on-street parking will alsoaffect off-street parking. The following chapterexplores several options to alleviate current parkingissues as well as a strategy to address future parkingneeds.

Chapter 4Circulation and Parking


IntroductionDiscussions during the comprehensive planningprocess revealed a strong desire for adequate andconvenient public parking in the downtown. Theimportance of this issue was reinforced during keygroup interviews and steering committee meetings.Addressing parking challenges and anticipating futureconcerns for safe and efficient circulation in thedowntown area are the focus of this chapter.

Parking is just one of several interrelated factors thatinfluence the downtown’s vitality. An objectiveevaluation of existing parking conditions can determinethe real impacts of parking on the downtown’seconomic revitalization.

Developing innovative methods to generate additionalpublic parking is a key element to the downtown’ssuccess. This section conceptually examines variousoptions to increase public parking throughout thedowntown. Engineering and other transportationstudies will be required to further develop theseconcepts into feasible solutions.

IssuesThere is currently an inadequate amount of convenientparking in the downtown. A large portion ofdesignated public parking is utilized by employeesworking downtown. Enforcement of current parkingregulations pertaining to limited on-street parking andconflicts between employee and patron parking arekey components of the current parking situation.

There is also a need to provide adequate parking forthose currently living in the downtown. As more andmore people take up residence in downtown buildingsand/or existing homes, there will be an increaseddemand for on- and off-street parking. This additionalparking need for residents must take into considerationthe unique setting of the downtown.

Implementation MeasuresThis chapter examines five alternatives that addressthe parking situation around downtown. In addition,other strategies to help alleviate parking problemsincluding pedestrian paths, modifications to existingstreets, and traffic calming elements are alsodiscussed. The five avenues examined to generateadditional parking include:

• building a parking garage• properly signing the numerous small pockets of

public parking scattered throughout downtown,• creating an innovative partnership with existing

businesses to “deed” a portion of their parkingspaces for public use,

• developing a city program that aggressively pursuesthe acquisition of properties for parking courts, and

• increasing on-street parking opportunities.

Considering the relevant factors to resolving existingparking concerns, the most economical and realisticcourse of action is for the City to begin activelyacquiring existing surface lots for public parking.Two potential areas along Jackson Street could bestrategic locations to incorporate this concept.Directional signage throughout the downtown woulddirect motorists to these locations and the parkingareas would also be adequately signed. This conceptis detailed further on the following pages.

In addition to vehicular issues, increased pedestrianaccess and safety to parking areas is a high priority.Pedestrian access could be coordinated with the Parksand Recreation Department’s efforts to link portionsof the City with people trails. One such trail couldconnect Sunset Park to the proposed Visitor’s Centerat the Porter Pool building and continue east alongMechanic and Franklin Streets to Kennedy Park. Apeople trail would also travel from the proposedVisitor’s Center south along Harrison Street throughthe public square and connect to the proposedsouthern gateway at Mickey’s plaza.

VisionThe ultimate goal in addressing this issue is to createadequate parking for both downtown business patronsand employees. Accomplishing this without creatingan adverse impact on the aesthetic quality of thedowntown is key to maintaining the historic nature ofthe area. In addition, increased vehicular access inthe downtown must be balanced with the needs andsafety of the pedestrian.

Introduction - Circulation and Parking


Circulation and Parking AlternativesThe map below graphically summarizes some of theissues and recommendations discussed on thefollowing pages. In addition to the reconfiguration ofthe public square, other elements of note include:

• an allowance for overflow parking behind the PorterPool building,

• proposed pedestrian paths linking the Blue River todowntown and points beyond,

• conversion of on-street parking from parallel toangled orientation in front of the library to the FirstBaptist Church, and along two blocks of EastWashington Street,

• proposed locations for the public parking courtsalong East and West Jackson Street, and

• potential infill (re)development site with building nextto sidewalk, and parking at the back of the buildingwith entries at the back and along the street.


Parking GarageThis section explores the factors involved to justifybuilding a parking structure to alleviate parking issueson the public square and throughout the downtown.Such a facility would need to be strategically locatedand be of significant size to make it cost-effective.Unless unique circumstances exist, the high cost ofbuilding, maintaining and operating a parking garage isdifficult to justify in small communities.

The feasibility and success of the garage hinges onseveral factors. To defray the costs of such a facility,it must either be part of a private development or apublic/private partnership. A joint partnership wouldneed to be forged between the City and an entity(employer) that will occupy a majority of the facilityon a daily basis. Commitments from employers in thedowntown would be needed to ensure employeesutilize the facility. As an economic and urban designissue, there would also need to be provisions made toallow the first floor to accommodate retail space.

Public Parking SignageThis scenario would assume most of the existingparking locations would remain unchanged. Thefocus of this effort would be to provide and highlightdistinct elements indicating where public parking islocated. Urban design features such as pylon signage,distinct lighting, or creative paving patterns are justsome of the methods to create this distinction.

In order to address the immediate need for parking,developing a program to more efficiently utilizesurface parking would provide the most benefit for thedowntown with the least amount of negative impact.This alternative would reduce current conflictsbetween patron and employee parking as well.Clearly delineating public parking from employeeparking should be a coordinated effort betweenbusiness owners and City officials. Such acoordination program would include a plan to makeparking in the downtown as user-friendly as possible.Means of achieving this include:

• developing a standard system of directional signageso motorists can easily navigate the downtown andlocate public parking areas,

• designing public parking areas that are easy todistinguish from private parking, and

• developing landscape standards specific todowntown that screen large parking lots frompedestrian view.

An additional option to gain parking is to create alarge, overflow parking area behind the Porter Poolbuilding. This could serve a dual purpose as parkingfor those accessing the trail system or thosepatronizing downtown businesses. Streetscapeenhancements along this portion of Harrison Streetwould create a more walkable, pedestrian-friendlyenvironment and reinforce the connection between theNorthern Gateway and the public square.

Public/Private PartnershipCreating a cooperative effort between the City andlocal businesses to develop additional parking for thepublic is the focus of this alternative. This innovativeapproach would involve the City and any participatingdowntown business with a large amount of (unused)parking forging a voluntary agreement that allows theCity to “use” a portion of the parking lot for freepublic parking. The business would retain ownershipof the property but would allow access for public use.In exchange the business could receive tax incentivesor some other form of “rebate” for partnering with theCity in such a manner.

Land AcquisitionCreating more efficient use of existing parking areasby providing more options and locations for surfaceparking is the focus of this alternative. The City couldset up a program to fund the acquisition, redesign, andmaintenance of public parking areas. As with theother options discussed, one key to this would includeproper signage to inform and direct motorists to thevarious pockets of parking. In order to make such asystem economically and functionally efficient, theCity would focus on acquiring contiguous parcels ofland. This would improve circulation and safety onlocal streets. Creating one large parking area versusseveral smaller lots could potentially reduce thenumber of curb-cuts along the streets.

As a design consideration, the design of these parkingareas could emulate the parking courts proposed forthe public square reconfiguration. Such courts couldcross over existing streets to create a seamlessparking plaza. Although the street would still passthrough the parking court, a change in elevation ormaterial (pattern) would serve as a distinction alerting

Additional Public Parking Alternatives


Additional Public Parking Alternativesthe motorist of the subtle change in the function of thestreet. The map on page 33 illustrates two examplesof how and where this concept could be applied.

An additional benefit of this course of action centerson a long-term parking solution for the downtown. Asincreased parking demands warrant it, the opportunityto convert a surface lot into a multi-story parkinggarage becomes more feasible. Additionally, a parkingstructure strategically connected to existing buildingscould potentially resolve some ADA, accessibility, orlife safety (exiting) requirements. This response tothe parking issue not only provides a short termsolution, but also sets the stage for a long-term(potential) solution as well.

On Street ParkingOn street parking is one of the primary means of freepublic parking in the downtown. As a safety issue, onstreet parking forces motorists to slow down andbecome more aware of their surroundings. It can alsoallow patrons to park directly in front of a business’front door, thus providing a convenient means ofaccessibility.

It is accepted that there are some streets in thedowntown that cannot accommodate additionalparking. It may be possible, however, to gainadditional parking spaces without compromising thesafety of motorists or pedestrians, or the integrity ofthe urban fabric. Where appropriate, this can beaccomplished by converting parallel parking to angledparking.

As the map on Page 33 illustrates, one potentiallocation to increase on-street parking is along WestBroadway Street from Harrison to Tompkins Street.This would provide additional parking for library,church and Grover Museum patrons. Anotheropportunity is along East Washington Street from thepublic square to Pike Street. This would provideadditional parking for the numerous businesses alongthis downtown block.

Implementation MeasuresImplementing a sound strategy to increase publicparking in the downtown will require coordinatedefforts on several fronts. A combination of thestrategies detailed in this chapter could provide a cost-effective way for the City and downtown businessesto resolve one of the primary issues facing the area.The City should exhaust all options to utilize parkingareas that are currently available. This documentprovides only a brief overview of existing parkingconditions in the downtown. Detailed studies will needto be conducted further to determine the feasibility ofthe proposed solutions and examine any other factorsthat may influence the character and setting of thedowntown.

The next phase in this process will be to develop anaccurate assessment of how much public parkingexists and where it is located. In order to mitigateimmediate parking concerns, a plan must bedeveloped to reduce conflicts between employee andpatron parking. The key is to keep long-term parkersfrom occupying spaces meant for short-term parking.Two-hour parking limits should be enforced, anddesignated public parking areas should be signed assuch. Employers should coordinate with the City,other business owners, and downtown churches orsimilar organizations to develop alternative sites orprograms for employee parking.

Once clearly defined public parking areas areestablished a brochure could be developed thatdelineates where parking exists for patrons. Thiscould be distributed by the numerous businesses in thedowntown or picked up in City Hall. If an evaluationand efficient utilization of existing parking does notcreate enough new parking, then additional parkingstrategies, including a parking garage, should bereevaluated.


Chapter 5Downtown Gateways


IntroductionThis chapter explores potential gateway locations intodowntown Shelbyville. This exploration will give equalvalue to the perspectives of both the pedestrian andmotorist. Community gateways not only shape avisitor’s first impression of the community but can alsoreflect the unique features and values of Shelbyville.Gateways not only provide a first impression to visitorsbut citizens as well. Determining and delineatingappropriate gateway locations into Shelbyville’sdowntown is the first step in this process.

IssuesGateways can take on a variety of forms. They canvary in scale from a signature building down to unifiedsignage, street lighting, or similar street furniture.Gateways are simply a means to designate ordifferentiate one area from another through distinctchanges in the urban setting.

As mentioned previously, this Small Area Plan seeksto undertake catalyst projects over the next five years.To ensure efforts and funding are used efficiently, it isimportant to focus efforts on what is deemed to be themost important entry into downtown. The northernentry into downtown along State Road 9 provides thebest opportunity to create a lasting entry point todowntown.

Two sites across the highway from one another justsouth of the Blue River provide the greatestopportunity to create a true entry experience. Plansare currently underway to convert the old Porter Poolbuilding into a visitor’s center for Shelbyville. Theabandoned Safeway supermarket site also holds greatpotential for redevelopment. Creating pedestrian-scale gateways as part of the community’s largergreenways plan through the Parks and RecreationDepartment is also another avenue to be explored.

Implementation MeasuresThe City should focus its energy in creating a northernentry into the downtown. The Blue River serves as anatural point of entry into the downtown area and theredevelopment of the Porter Pool building andabandoned Safeway supermarket site could enhancethis feature.

The City should continue plans and efforts to locate anew firestation headquarters on the former Safewaysupermarket site. The firestation headquarters

represents an ideal opportunity to create a signature,municipal building for the City of Shelbyville. Bycreating a quality public building, the City would setthe standard by which the private sector couldemulate.

Another enhancement opportunity involves communitylandscaping or beautification efforts utilizing volunteersand organizations (Adopt-a-Highway/Medianconcept). The local Beautification Committee couldbe an instrumental part of this initiative. Anotheralternative is to involve the local art community as asource of talent, creativity, and insight to establish apublic art campaign.

VisionThe creation of a northern gateway is intended toserve as a model not only for downtown but alsogreater Shelbyville. Creating a northern downtowngateway through infill development represents acreative solution to enhance the character of thecommunity fabric and strengthen its economic base.Using this as a model, it is anticipated the developmentof a gateway at Mickey’s Plaza could be modeledafter the northern gateway and serve as an anchor forthe southern portion of the downtown.

As an eastern entry, the City should coordinate withthe Indiana Department of Transportation whenimprovements, currently being planned, are made toEast Broadway Street. These improvements areplanned to begin just east of Noble Street and extendeast along Broadway St./State Road 44 to the I-74Interchange. The intersection of Vine and BroadwayStreets could serve as an opportune location to createa gateway statement. Such street improvementswould be an opportune time to improve the aestheticappeal of this prominent corridor as one approachesdowntown from the east.

Introduction - Downtown Gateways



IntroductionAs the map on the previous page shows and theillustrative plan below conceptually represents,developing a significant feature at the Blue River andHarrison Street could generate a new identity for thedowntown. The illustration below is one potentialalternative for this gateway. The emphasis for anyredevelopment plans of the area should focus on acoordinated effort to treat the two sites as one entryexperience.

Proposed Firestation HeadquartersThe firestation headquarters could provide a dramaticview as one approaches from the north or south alongHarrison Street. Designing the firestation to serve asa multi-functional public building with space for publicmeetings and gathering would also add value to thecommunity and offer an additional amenity for thepublic’s use.

Northern GatewayProposed Visitor’s CenterRevitalizing the Porter Pool building could also becomepart of a larger effort to enhance this importantsection of downtown. The building could not onlyserve as a visitor’s center but the larger grounds couldprovide the opportunity to create an active park. Thiscould include serving as a trail head or a canoe liverylocation. The site could also accommodate large,overflow public parking for downtown visitors as well.

Revitalizing this entryway into the downtown alsoprovides the opportunity to restore the naturalvegetation and landscaping along the Blue River. Notonly would this be an aesthetic improvement but wouldalso prevent harmful, polluted runoff from entering thewaterway. Restoring this natural corridor would notonly improve the quality of the natural environment butalso complement the Parks and RecreationDepartment’s plans to create a network of pedestriantrails throughout Shelbyville.

Chapter 6Economic Development


IntroductionExploring opportunities for business development andretention is a fundamental key to downtownShelbyville. To promote an active setting during allhours and days of the week, two distinct yetinterrelated strategies must be pursued. One shouldcenter on providing daily services within convenientwalking distance (1/4 to 1/2 mile radius) for residentsin the immediate downtown. Refer to the map onPage 13 which delineates the size of one such area.The second approach should be to focus on cultural,educational, and entertainment activities that willattract people from the larger community andthroughout the County.

IssuesIn order to address the long-term vitality of downtown,steps must be taken to strengthen the existingeconomic base. It is important to retain the onlysupermarket downtown as a convenient and essentialservice for downtown residents. Similarly, the FederalPost Office and State License Branch are importantcomponents that provide a variety of services in thedowntown. City officials and business leaders mustrecognize the needs of existing businesses whilesimultaneously looking for new ways to attractdevelopment.

Implementation MeasuresThe first perspective should attract businesses thatprovide daily services (laundry, dry cleaning, groceries,videos, hardware, etc...). There is an adequatethreshold of residents currently living in the downtownarea that could support such businesses. Specificbusiness development opportunities discussed duringpublic and steering committee meetings orrecommended in the economic development studyinclude:

• hardware store--recruit a store that caters to theneeds of home restoration and (business) facadeimprovements, and

• additional pubs or restaurants,• Secondary Education or Community College• Life Long Learning Center• Visitor’s Center• “Class A” office space,• performing arts center,• Bed and Breakfast(s)• Reuse of the Knights of Pythias Building

Two buildings of significance on the public square arethe Methodist Building and the Knights of PythiasBuilding. Their imposing presence is an important partof the square’s sense of place, and their historical linksto Shelbyville are well documented. Both buildings areseverely underutilized and special efforts must bemade to find the appropriate businesses to locate inthem. The Knights of Pythias Building, withapproximately 26,400 square feet of floor space on itsthree floors, could lend itself well as a gathering spacefor public and private events.

Another potential implementation measure involves abody specifically organized to actively develop andoversee downtown building projects. This entity couldbe comprised of individuals from various non-profitagencies with an interest or specialty relevant todowntown (re)development. Its duties could includepurchasing, managing, and maintaining buildings on thepublic square and/or downtown area. Pooling suchresources could streamline decision-making processes,provide limited funding for renovation projects, applyfor grants, and encourage businesses that complementone another. This scenario could also reduce the issueof building owners competing against one another fortenants.

It is important to promote activities or land uses thatdraw people to the downtown on a regular basis(theater, restaurants, continuing education center,etc...). The key is to create a setting that initiallyattracts people to the downtown and secondarilyoffers additional opportunities for them to stay andlinger. The City should provide incentives toencourage and direct businesses downtown--as infilldevelopment-- rather than on the community’speriphery or on greenfield sites.

VisionThe economic health and viability of downtownShelbyville is a large component of the community’squality of life. It is possible for new development tocoexist within the historic fabric of the downtown.Shelbyville must look to ways of retaining the historicnature of the downtown while simultaneously lookingtoward the future and embracing the potential of newtechnologies that are readily available to the City andbusinesses. The opportunities discussed on thefollowing page represent just two of the manypotential avenues to improving the quality of life inShelbyville.

Introduction - Economic Development


Additional Economic OpportunitiesLife Long Learning CenterThere have been on-going conversations and interestin developing a life long learning center to serve theShelby County community. The concept of the lifelong learning center (LLLC) would focus on creatinga “one-stop” center for employment, educational, andfamily services. It could also include numerouscommunity organizations located under one roof. Alife long learning center represents not only aneconomic opportunity but more importantly a valuablecommunity resource for those in need.

IssuesThere has been a determined need in Shelby Countyto develop continuing educational opportunities foradults and nontraditional students. An educated andproperly trained workforce is vital to any economicdevelopment strategies for the City and County. TheLLLC could also provide rehabilitation services,literacy programs, family and parenting programs, jobplacement and assessment activities, or basic job skillstraining.

Locating such a facility in the downtown couldpotentially be beneficial to everyone involved. Itscentral location would provide relatively easy accessfor everyone in the County. Additionally, the facilitywould generate increased activity in the downtownwhich would encourage existing businesses to extendtheir hours of operation and potentially encourage newbusinesses to locate in or near the downtown.

Providing adequate parking for the LLLC would alsobe a vital factor to its success. Shared parking withan existing, primarily daytime-oriented business is onepotential option. The siting of the LLLC andaccompanying parking must not interfere with, orreplace, existing parking for downtown businesspatrons. As alluded to in the parking alternativessection of Chapter 4, the LLLC could partner withother interested stakeholders to build a parking garageif future conditions warrant it.

Implementation MeasuresThe success of such a facility would depend largely onforging partnerships within the Shelby Countycommunity. Involvement of the business andeducational communities along with relevantgovernment and non-profit agencies is anotherimportant aspect of a Shelby County life long learningcenter.

Fiber Optic TechnologyThe City of Shelbyville is in the unique position ofhaving access to a powerful economic tool in the formof a fiberoptic line running through the City. The FiberTechnology Board has been actively pursuingopportunities to utilize this technology in Shelbyville.

IssuesThe key issue regarding the fiberoptic line is how tofully utilize its potential. To that end, a cooperativeeffort between City and County officials and businessleaders created the Fiber Technology Board toexplore any alternatives to developing the technology.The existing Methodist Building on the square alreadyis equipped with the fiberoptic line but is not wired upfor service.

Implementation MeasuresThe City, in conjunction with other interested partiesshould aggressively pursue the economic developmentof the fiberoptic technology specific to the downtown.Creating a high-tech business environment in the midstof a historically rich, traditional downtown settingcould serve as a unique marketing tool for Shelbyville.

The technology could be used as a means to attract acontinuing education campus and/or a long distancelearning center to the downtown area. There arenumerous other types of high-tech businesses thatcould be attracted to such a unique setting.

One option for some of these businesses is to locate insome of the upper floors of the existing commercialbuildings. In most instances, such high-tech,information-based businesses can operate outside theconventional “nine-to-five” work day. Downtownemployees during the evening hours would encouragecontinued pedestrian activity and ideally increasedcommerce. This could attract supporting businessessuch as restaurants and bars to cater to the expandedclientele during a longer time period in the day.

Any strategy to attract high-tech businesses todowntown Shelbyville cannot come at the expense ofexisting businesses. Economic growth must bebalanced with the needs of existing business ownerswho have an integral stake in the downtown. Toensure the long-term economic vitality of allbusinesses, there must be a quality mix of businessesthat attract a variety of residents to the downtown.


Rehabilitation of Historic BuildingsIntroductionThis section serves as a brief “How To” manual toassist businesses and individuals on methods forrenovating downtown buildings. Restoring historicbuildings not only improves the image of thedowntown but also increases income by allowing forhigher rents, increases retail sales, and provides fortax incentives. This section includes pertinent local,State, and Federal resources regarding the necessarysteps to creating a quality built environment.

IssuesThere are numerous issues to consider when decidingto reinvest in the downtown. Often, the assistance ofan architectural or engineering professional may beneeded. Some issues to consider at the beginning ofa project are listed below.

• Verifying the proposed building is structurally sound.• Complying with all ADA code requirements.• Verifying the existing zoning requirements on the

property allow for the planned use of the building.• Acquiring proper building permits before

construction.• Proper facade restoration and cleaning methods.• Installing signage that meets the City’s sign code.

Implementation MeasuresAt the local level, one key to consider is investigatinghow similar projects have been done in the downtown.Learning from previous projects is one way to avoidunnecessary problems during a renovation process.When researching a property, city or countygovernments may have important records pertaining tobuilding permit records, plat maps, and deed records.The local historical society, public library, andnewspaper can also be valuable sources ofinformation. They often possess archives of historicbuilding photos which can provide clues to alterationsthat may have occurred over time.

At the State level, there are organizations that provideassistance to the owner of a historic building. HistoricLandmarks Foundation of Indiana (HLFI) is one suchorganization. As one of the largest non-profitpreservation organizations in the country, HLFIprovides preservation consultation services tocommunities through its regional offices throughout theState and from its headquarters in Indianapolis. HLFIcan provide limited design assistance, referrals toqualified professionals and contractors, assistance with

nominations to the National or State Register ofHistoric Places, and some limited fundraising andgrant opportunities.

Another State organization is the Division of HistoricPreservation and Archaeology (DHPA) within theIndiana Department of Natural Resources. DHPAalso can provide limited design assistance, referrals toqualified professionals, assistance with nominations tothe National or State Register of Historic Places.Limited fundraising and grant opportunities are alsoavailable.

The Indiana Building Code includes a provision forexisting buildings entitled Rule 8 Review that utilizes ascoring system to rate life safety issues. Theseprimarily focus on fire safety, means of egress(exiting), and general safety in a building. Althoughnew construction must meet current codes, conditionsthat do not affect the life safety systems of theexisting building may remain. A design professionalor building code consultant can assist in determiningwhich code issues will likely affect a project.

Several grants and low interest loans are also availableto not-for-profit organizations and individuals throughHLFI and DHPA. These grants come from a varietyof sources including Build Indiana funds, HometownGrant funds, revolving loans and preservation grants.

At the Federal level, there are several programs thatprovide financial incentives for rehabilitating buildings.The Federal Government has an investment tax creditprogram that can provide a 20% tax credit onqualifying costs of a substantial rehabilitation to anincome-producing historic structure. The structuremust be on the National Register of Historic Placesindividually or as a contributing building within ahistoric district to qualify for the credit.

In conjunction with the Federal program, the Stateadministers a similar program through the DHPA.The State provides an additional 20% credit up to$100,000 on one’s state tax liability for qualifyingexpenses. Non-residential, income-producing buildingsconstructed before 1936 that do not qualify for theNational Register individually or as part of a historicdistrict may be eligible for a 10% credit on qualifyingexpenditures. Because there are several requirementsto qualify for these tax credit programs interestedparties are encouraged to contact the DHPA forfurther information.

Chapter 7Conclusion


ConclusionCommunities both large and small across the nationare striving for innovative methods to revitalize andstrengthen their downtowns. As we enter the twenty-first century and the rate and type of change becomesmore pronounced, residents are looking to theircommunity for a sense of stability and rootedness.Downtowns have historically served as this symbolicheart and foundation for the community.

This Small Area Plan should be viewed asShelbyville’s commitment to enhance and strengthenits social, civic, and economic center. The City ofShelbyville recognizes the inherent potential of thedowntown and it, along with other interested parties,hopes to continue to enhance and strengthen thedowntown area. The overarching goal of thisdocument is to generate a unified, long-term vision fordowntown Shelbyville. Although numerous projectsare discussed involving various groups, agencies, andindividuals, all focus on improving Shelbyville’s qualityof life.

Developing a balanced approach to futureachievements in the downtown must include respectand appreciation for the past. The reconfiguration ofthe square serves as an excellent example of such anapproach. In order to address current parking andcirculation issues, the proposed solution takes some ofits cues from successes of the past and how residentsonce viewed and interacted with the public square.

Although this document is entitled a Downtown SmallArea Plan, its influence encompasses more than thisnarrowly defined area. The ultimate success of thisdocument and downtown Shelbyville will rely on thelevel of cooperation of various agencies, businessesand individuals in the community. Improving thedowntown cannot be approached with an “us” vs.“them” mentality. It’s not just a matter of “fixing up”the downtown for downtown’s sake. In most cases,the success and appeal of a community is measuredby the health of its downtown and not by how manyshopping centers or commercial strips it has. Thedowntown is a reflection of the health and vitality ofthe entire community and the collective values of itsresidents.

Downtown Shelbyville · Downtown Shelbyville contains many of the aspects listed above. There are a large number of residents in the downtown area and several major employers within

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