City of Kendallville
Comprehensive Plan
The City of Kendallville Comprehensive Plan was funded, in part, by a
planning grant administered by the Indiana Office of Community and
Rural Affairs through the Small Cities and Towns Development Block
Grant (CDBG) program.
Primary Planning Assistance provided by:
Table of Contents
Preface
Overview ............................................................... ii
History of Planning Initiatives in Kendallville ...... ii
Planning Jurisdiction ........................................... ii
The Vision, Goals, and Objectives ......................... iv
Comprehensive Plan Mandate................................. v
Kendallville’s Fulfillment of the Mandate ............... v
Beneficiaries ......................................................... vi
Limitations of a Comprehensive Plan..................... vi
Chapter One: Community Profile
Demographics ........................................................ 2
Public Input and Notice .......................................... 3
Interest Group Interviews..................................... 3
Community Leaders Roundtable .......................... 4
Public Workshops................................................ 4
Additional Opportunities ..................................... 4
Public Hearing ....................................................... 5
Conclusion ............................................................. 5
Chapter Two: Vision
City of Kendallville’s Vision for the Future ............ 8
Chapter Three: Manage Land Use and Growth
Introduction ......................................................... 10
Goal ..................................................................... 11
Additional Information ......................................... 13
Agriculture ........................................................ 13
Open Space and Recreation ............................... 13
Residential ........................................................ 14
Residential Growth Management ....................... 16
Commercial ....................................................... 20
Commercial Growth Management ..................... 21
Industrial ........................................................... 23
Industrial Growth Management .......................... 23
General Growth Management Strategies ............ 23
Airport .............................................................. 24
Annexation ........................................................ 24
Future Land Use Classification Descriptions ......... 26
Future Land Use Classification Map ..................... 41
Chapter Four: Foster Convenient Circulation
Introduction ......................................................... 44
Goal ..................................................................... 44
Additional Information ......................................... 46
Vehicular Network ............................................ 46
Pedestrian Network Plan .................................... 47
Other Modes of Transportation .......................... 49
Thoroughfare Plan Map Descriptions .................... 50
Pedestrian Network Map Descriptions .................. 55
Thoroughfare Plan Map ........................................ 63
Pedestrian Network Map ...................................... 65
Chapter Five: Serve Community Needs
Introduction.......................................................... 68
Goal ..................................................................... 68
Additional Information ......................................... 69
Utility Services .................................................. 69
Public Services .................................................. 70
Parks and Recreation ......................................... 72
Chapter Six: Stimulate Economic Growth
Introduction.......................................................... 76
Goal ..................................................................... 76
Additional Information ......................................... 78
Available Sites................................................... 79
Expansion and Retention ................................... 79
New Economic Growth...................................... 79
The Role of Tourism.......................................... 81
Chapter Seven: Nurture Environmental Quality
Introduction.......................................................... 84
Goal ..................................................................... 84
Additional Information ......................................... 86
Water Quality .................................................... 86
Conserving and Managing Other Environmental
Amenities ......................................................... 86
“Green” Development........................................ 87
Chapter Eight: Strengthen Community Character and Identity
Introduction.......................................................... 90
Goal ..................................................................... 90
Additional Information ......................................... 91
Gateways ........................................................... 91
Corridors ........................................................... 92
Zoning and Subdivision Standards ..................... 92
Downtown Kendallville ..................................... 93
Chapter Nine: Conclusion
Conclusion ........................................................... 98
Appendix A: Demographics
Appendix B: Public Participation
Appendix C: Documentation of Approval
Preface
Overview
HISTORY OF PLANNING INITIATIVES IN KENDALLVILLE
This Comprehensive Plan will replace the
City’s 1963 Comprehensive Plan which
included three (3) basic components: research
and a study of existing conditions; proposals
for future land use, supporting community
services, and thoroughfares; and consideration
for implementation. The objectives of the
original plan were to “recognize the physical,
economic, and cultural characteristics of the
community, and propose planning action
which will reflect the continuation of the most
desirable aspects of each in the further
development of the community.”
There have been other planning initiatives in
Kendallville since the 1963 Comprehensive
Plan. An intern City Planner created a
Kendallville Comprehensive Development
Plan in 1977 after the two-lane State Road 3
bi-pass was completed. This plan was not
officially adopted by the City of Kendallville,
but does contain interesting information about
the impact of the bypass on the growth and
development of Kendallville.
In 1991 a “Strategic Plan” was completed, and
its focus was “on the process of planning
rather than on the plan that is produced.” It
covered beautification, downtown, economic
development, education, environmental issues,
government, healthcare and social services,
recreation, tourism, and transportation.
PLANNING JURISDICTION
This new Comprehensive Plan, like most of
the previous planning initiatives, goes beyond
planning for land within Kendallville’s
corporate limits to include the City’s extraterritorial jurisdiction. This area includes
approximately two (2) miles of unincorporated
land around the perimeter of the City.
Kendallville’s City Limits encompass 3,940
acres, and the extra-territorial jurisdiction adds
another 13,449 acres to Kendallville’s
planning jurisdiction.
Even though the extra-territorial jurisdictional
area is not within the corporate limits, the
residents and businesses of this area are part
of the Kendallville community. What happens
in Kendallville, impacts them. These areas
include Little Long Lake, Round Lake, Noble
Hawk, Cobblestone, and the Kendallville
Outdoor Recreation Complex along Allen
Chapel Road/County Road 1000E, Meadow
Lane, and agricultural areas.
For the purpose of this Plan, general
references to the City of Kendallville,
Kendallville, or the planning jurisdiction are
meant to include the corporate limits as well
as the extra-territorial jurisdiction. When the
intent is to call out one specific area, the terms
“city limits, “corporate limits,” or “extraterritorial jurisdiction” will be used.
In 1994, the City embarked on a Land Use
Analysis that included a detailed demographic
and economic data analysis, a community
goals exercise, and proposed land use
scenario.
ii
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Preface
SCHOOLHOUSE RD
WAYNE CENTER RD (CR 900 E)
CR 900 N
(CR 825 N)
A RPORT RD
APPLEMAN RD (CR 800N)
RD
COUNTY LINE RD
RD
RIL
EY
G
IN
GL
NORTH LIMA RD
AN
CR 600 E
STRATER ROAD (CR 750 N)
N
SAWYER RD (CR
660 E)
ALLEN CHAPEL RD
RIMMEL RD (CR 800 N)
KAMMERER RD
FA R ST
RILEY ST
AVE
DIAMOND ST
DRAKE RD
GARDEN ST
WESTON
(CR 600 N)
PROGRESS DR EAST
DOWLING ST
ROGERS RD
DOWLING ST
LL ST
M TCHE
ARK AVE
OR
LIMA RD
CH
AR
D
PL
MAIN ST
US HIGHWAY 6
CR 600 E
HENRY ST
WAITS RD (CR 500 N)
CR 1000 E
BEACON RD (CR 700 E)
SHERMAN ST
MAIN ST
MAPES ROAD (CR 550 N)
LIS
BO
D
NR
(CR
415
Corporate Limits and
Extra-Territorial Jurisdiction
MAP LEGEND
N)
Corporate Limits
CR 750 E
Extra-Territorial Jurisdiction
CR 350 N
STATE RD 8
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
CR 300 N
iii
Preface
The Vision, Goals, and Objectives
A vision for the City of Kendallville’s future
emerged through various meetings and
workshops and from an extensive study of the
community. This vision is in Chapter Two
and is the basis for the goals, objectives, and
implementation measures that are included in
this document. Chapter Two: Vision is
followed by six (6) chapters, each dedicated to
one (1) of Kendallville’s broad goals. The
goals are associated with the following topics:






Manage Land Use and Growth
Foster Convenient Circulation
Serve Community Needs
Stimulate Economic Growth
Nurture Environmental Quality
Strengthen Community Character and Identity
As the Comprehensive Plan was being
prepared, drafts were reviewed by a Steering
Committee made up of a diverse group of
citizens and community leaders. It was also
reviewed by interest groups, City boards and
commissions, and the general public. The
final outcome is a user-friendly
Comprehensive Plan that is full of goals and
objectives that were significantly influenced
by the residents of the Kendallville
community, and a Comprehensive Plan that
contains attainable implementation measures.
The vision, goals, objectives, and
implementation measures in these chapters
will effectively and specifically guide
decisions for policies, programs, and projects.
The buy-in to the vision, commitment to the
goals, and pursuit of the objectives and
implementation measures will result in a
significant positive change for the City of
Kendallville and its planning jurisdiction.
The Plan is intended to be a working
document, meaning it should periodically be
reviewed, evaluated, and updated to reflect
changing trends, outlooks, and thinking. In
this way, it will remain a relevant guide to the
future growth and development of the City of
Kendallville.
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CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Preface
Comprehensive Plan Mandate
The State of Indiana, through Indiana Statutes,
Title 36, Article 7, as amended, empowers
communities to plan with the purpose of
improving “the health, safety, convenience,
and welfare of the citizens and to plan for the
future development of their communities to
the end:
Kendallville’s Fulfillment of the Mandate
All State of Indiana minimum requirements
have been met or exceeded throughout the
planning process and within the
Comprehensive Plan. Some of the highlights
include:

1. That highway systems (and road systems)
be carefully planned;
2. That new communities grow only with
adequate public way, utility, health,
educational, and recreational facilities;

3. That the needs of agriculture, industry, and
business be recognized in future growth;
4. That residential areas provide healthful
surroundings for family life; and
5. That the growth of the community is
commensurate with and promotive of the
efficient and economical use of public
funds [IC 36-7-4-201].”
Indiana Statutes state that communities may
establish planning and zoning entities to fulfill
that purpose [IC 36-7-4-201]. The Plan
Commission is the body responsible for
maintaining a comprehensive plan, which is
required by state law to be developed and
maintained [IC 36-7-4-501] if the community
wishes to exercise the power of zoning.
Indiana Code 36-7-4-502 and 36-7-4-503 state
the required and permissible contents of a
comprehensive plan. The required plan
elements are listed below.


The City of Kendallville Comprehensive
Plan exhibits analysis of the community,
existing land uses, development trends,
land use suitability, economic feasibility,
and natural land features.
Public involvement provided the
foundation for this Comprehensive Plan.
This public input exceeded the criteria
required by the State by providing several
opportunities for people to provide input at
the beginning of the planning process.
Community input is woven into the
content of this document with specific
results contained in Appendix B.
The City of Kendallville Comprehensive
Plan has an overall theme of improving the
health, safety, and welfare of residents and
contains the State required elements in the
chapters that follow.
The City of Kendallville Comprehensive
Plan contains several extra components
that exceed those required by the State.
For instance, the Plan includes chapters on
infrastructure systems, economic growth,
environmental quality, community
facilities, and community character.
1. A statement of objectives for the future
development of the jurisdiction.
2. A statement of policy for the land use
development of the jurisdiction.
3. A statement of policy for the development
of public ways, public places, public lands,
public structures, and public utilities.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
v
Preface
Beneficiaries
The City of Kendallville Comprehensive Plan
is designed to benefit the community as a
whole, as opposed to a single property owner
or group of property owners. As a result, from
time to time, implementing this Plan may
adversely affect a single property owner or a
small group of property owners. However
difficult or controversial, the greater good of
the community will be served through the
implementation of this Plan. No community
has ever regularly improved itself without
some controversy, opposition, or adverse
effects on small numbers of property owners.
The City has committed to implement, to the
extent possible, this Plan with the greater good
of the community in mind. As an assurance,
each project, program, or policy that results
from this Plan will first be evaluated to
confirm the end result will positively move the
community forward in the spirit of the
Comprehensive Plan. Unforeseen conditions
and situations must be considered in respect to
where the community is at a specific time.
Limitations of a Comprehensive Plan
It is important to keep in mind that this Plan is
not enforceable in itself and should not be
mistaken as a zoning ordinance or as a
substitute for other regulatory ordinances.
This Comprehensive Plan has been designed
to serve as a guideline for the future of the
City of Kendallville. The City will utilize its
zoning and subdivision control ordinances as a
primary means of implementation and will
update those ordinances periodically to
improve successful implementation. The City
will also use department policies, along with
its capital, intellectual, political, and human
resources to help achieve the vision, goals,
and objectives of this Plan.
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CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Chapter One
Community Profile
Community Profile
Demographics
The US Constitution requires the federal
government to administer a census every ten
(10) years to allocate the number of US
Representatives to each state. The data
gathered from the census is often used to
evaluate demographic changes in
communities, counties, states, and the country
as a whole. The demographic data collected
by the census may be used to help understand
a community’s past and where that
community is today. The same data can also
be analyzed to create estimates and
projections to help predict the future of the
community.
Preparations are being made for the 2010
Census meaning much of the “current” census
data is ten (10) years old. A few, more current
statistics are available for Kendallville and
Noble County, and that information is noted.
Nonetheless, the City of Kendallville should
update the demographic data in this Plan with
statistics from the 2010 Census when that
information becomes available.
The information and statistics that follow are
from the US Census Bureau
(www.census.gov) and the Indiana University
Kelley School of Business Indiana Business
Research Center website
(www.stats.indiana.edu). In most cases, the
data is rounded to the nearest hundred.
According to the 2000 Census, Kendallville is
the largest community in Noble County with a
population of 9,616. The 2007 population
estimate for the City of Kendallville is 10,327,
an increase of seven percent (7%) since 2000.
Between 1990 and 2000, Kendallville
experienced a twenty-four percent (24%)
population increase. This increase was greater
than increases experienced in Noble County
(22%) and the State of Indiana (10%).
2
Kendallville’s population has historically
made up twenty-one percent (21%) of the
Noble County population and that trend
continues based on the 2007 population
estimates.
Approximately seventy-five percent (75%) of
Kendallville residents age twenty-five (25)
and over have attained a high school diploma
or higher. This figure falls short of the same
figure for Noble County (77%) and the State
of Indiana (82%). Twelve percent (12%) of
Kendallville residents have attained a
bachelor’s degree or higher. These figures for
Noble County and the State of Indiana are
eleven percent (11%) and nineteen percent
(19%), respectively. It is important to note
that these figures, from the 2000 Census,
account only for those living within the
Kendallville City Limits.
The median home value in 2000 for owneroccupied homes in Kendallville was $81,100.
This is less than the median home value for
owner-occupied homes in Noble County
($88,600) and the State of Indiana ($94,300).
Based on the 2000 Census, nearly half of the
housing units in Kendallville were built before
1960. Of all housing units, approximately
sixty-one percent (61%) were owneroccupied, thirty-two percent (32%) were
renter-occupied, and seven percent (7%) were
vacant in 2000. The owner-occupied rates for
Noble County and Indiana were higher at
seventy-one percent (71%) and sixty-six
percent (66%), respectively.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Community Profile
Kendallville’s median household income
appears to be falling behind Noble County and
the State of Indiana. In 1990, Kendallville’s
median household income was eighty-seven
percent (87%) of the median household
income for Noble County. In 2000,
Kendallville’s median household income was
approximately $34,000 – which was about
seventy-nine percent (79%) of the same figure
for Noble County ($42,700). Noble County
figures have stayed consistent with State
figures.
Again, it is important to reiterate that these
statistics – particularly home value and
household income – only include areas within
the Kendallville City Limits. Clearly, adding
newer and/or higher-valued residential areas
like Noble Hawk, Cobblestone, Little Long
Lake, and Round Lake would likely swing
home value and household income statistics
close or even above the same figures for the
State of Indiana.
The 2000 Census indicates that forty-six
percent (46%) of those in the Kendallville
workforce are employed in manufacturing.
Thirteen percent (13%) are employed in the
education, health, and social service
industries, and ten percent (10%) are
employed in retail trade.
It should be noted that in 2008 and 2009 the
national economy has been suffering from a
recession characterized by job losses, high
unemployment, mortgage defaults, and
declining property values. Kendallville and
Noble County have experienced this recession
firsthand with one of the highest
unemployment rates in Indiana for much of
2009. That rate has ranged from sixteen and
one-half percent (16.5%) to seventeen and
nine-tenths percent (17.9%).
Additional demographic information,
including data, charts, graphs, descriptions
and sources of the data are located in
Appendix A.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Public Input and Notice
Various input opportunities were offered to
residents and employees of the City of
Kendallville and its planning jurisdiction.
Meetings geared to obtain input from
community leadership, interest groups, and the
general public were held during the initial
phase of the planning process.
Each input opportunity included a
“Community Values Survey” that encouraged
participants to think about issues that may
influence a community’s values. Folks were
asked to rate their opinions on topics such as
farmland preservation, property rights, the
location of new development, and the
regulation of new development. Results of the
survey are referenced throughout this
document. Additionally, a copy of the survey
questions and all of the responses are located
in Appendix B.
A summary of each input opportunity follows.
INTEREST GROUP INTERVIEWS
The first input opportunity was targeted for
interest groups. Six (6) interest groups were
identified: agricultural and rural interests;
parks and recreation, soil, and environmental
interests; real estate professionals, developers,
and builders; transportation, utility, and
emergency service interests; economic
development, business, industry, and
downtown interests; and neighborhood
associations and lake associations.
Invitation letters were sent to over 100
individuals seeking their participation. An allday series of interviews was held with
representatives from each interest group. The
interest groups met independently to ensure
adequate attention was given to each specific
area of interest.
Each interest group was given a brief
overview of the comprehensive planning
process and invited to participate in the
Community Values Survey. Interviewees
were asked to share their attitudes and
3
Community Profile
perceptions about growth and development in
and around Kendallville, as well as identify
the community’s assets, liabilities, and needs.
Interest group participants were given the
opportunity to identify or explain specific
issues relating to their interests.
Thirty-six (36) people participated in the
initial interest group interview.
COMMUNITY LEADERS ROUNDTABLE
Invitations were sent to community leaders
that have an interest in community planning.
These groups included Kendallville’s elected
officials, the Kendallville Board of Public
Works, members of the Kendallville Advisory
Plan Commission, and members of the
Kendallville Board of Zoning Appeals (BZA).
was published in the local newspaper,
provided to a local radio station, and
distributed to the Chamber of Commerce.
In total, twenty-six (26) people participated in
the public workshops. The public workshop
participants were first asked to complete the
Community Values Survey. The second part
of the public workshop required participants
to identify Kendallville’s liabilities, assets,
and needs. Each participant was asked to
dream about what they would accomplish in
Kendallville if funding was not an issue.
For a complete list of the needs identified
during the public workshops, as well as a
listing of the liabilities, assets, and dreams,
refer to Appendix B.
The leadership was given a brief overview of
the comprehensive planning process and asked
to participate in the Community Values
Survey. The City’s leadership was asked to
discuss the current state of affairs in
Kendallville and to identify the community’s
strengths and weaknesses. The City’s
leadership was asked to dream and discuss
what the best future for Kendallville would be.
Finally, leaders were encouraged to share
advice on the preparation of the
Comprehensive Plan.
ADDITIONAL OPPORTUNITIES
The Community Values Survey was also
made available at the Office of Building,
Planning, and Zoning for those residents who
were interested in participating, but unable to
attend a public workshop.
PUBLIC WORKSHOPS
The third opportunity for input was a set of
two (2) public workshops aimed to gather
information from the general public. One (1)
public workshop was scheduled for 4:00 PM
to catch people at the tail end of the workday
or on their way home from work, and a second
workshop was set in the evening.
Those community leaders, interest group
participants, and members of the general
public that participated in the initial input part
of the process were personally invited to
review a draft of the Kendallville
Comprehensive Plan. Additionally, a press
release was submitted to local media to
generate awareness about the Kendallville
Comprehensive Plan and to solicit feedback
on the draft. Informal “open house” meetings
were held to hear comments and answer
questions about the draft of the plan.
To promote the public workshops, postcard
invitations were sent to 300 residents.
Approximately twenty-five percent (25%) of
the post cards were sent to residents of the
extra-territorial jurisdictional area, while the
other seventy-five percent (75%) went to
residents inside the Kendallville City Limits.
A press release about the public workshops
4
A follow up article was written and submitted
to the local newspaper to educate the public
and increase awareness about the drafting of
the Kendallville Comprehensive Plan. The
article also served to solicit additional public
participation.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Community Profile
Public Hearing
A legally advertised public hearing was held
by the Kendallville Advisory Plan
Commission on May 3, 2010. The Plan
Commission unanimously certified the
Comprehensive Plan, and sent it to the
Kendallville City Council for final adoption.
Conclusion
Based on demographic research and input
from City leaders, local interest groups, and
residents of Kendallville’s planning
jurisdiction, the primary community needs in
Kendallville are:





Establishing policies to address basic
growth and development issues such as the
extension of utility infrastructure and
annexation.
Revitalizing the community’s core
including the downtown commercial area;
surrounding older residential
neighborhoods; and abandoned industrial
properties.
Committing to the Comprehensive Plan
and planning, in general, to best utilize the
community’s resources.
Broadening the community’s economic
base by encouraging diversity in the types
of employers and employment
opportunities.
Encouraging full utilization of
Kendallville’s rich amenities and
enhancement of those amenities where
necessary and practical.
The remaining chapters address these
important issues, as well as other issues, by
outlining a vision, goals, objectives, and
implementation measures.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
5
Community Profile
6
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Chapter Two
Vision
Vision
City of Kendallville’s Vision for the Future
In an effort to develop a vision for
Kendallville, the Steering Committee spent
hours assessing various components of the
community for the Comprehensive Plan. The
Committee seemed to always come back to
the question “for whom is this Plan intended?”
The City of Kendallville is already a familyfriendly and visitor-friendly place. This fact
shined through during every community input
session. Friendly, caring people; low crime;
quality schools; great recreational facilities;
and a high quality of life coupled with a
moderate cost of living make Kendallville an
ideal place to raise a family. Several of these
characteristics also make Kendallville a great
place to visit.
The City of Kendallville desires to maintain
and strengthen its identity as a “familyfriendly” community by attracting families
and keeping them in Kendallville throughout
their retirement years. This Plan focuses on
maximizing the opportunities to live, work,
and recreate for families – both families that
currently call Kendallville home and those
that will in the future.
Once a generation has completed its education
(e.g. secondary or post-secondary) and the
necessary social and geographic exploration
often associated with young adulthood, it will
be attracted to or back to the amenities,
character, and opportunities that Kendallville
possesses. Those same features, along with
quality medical care and specialty housing
opportunities like condominiums, will also
appeal to and be appreciated by those nearing
or in retirement.
The “opportunities to recreate” that families
find so appealing combined with special
events will make Kendallville a great place for
visitors, thereby strengthening the City’s
identity as a visitor-friendly place.
8
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Chapter Three
Manage Land Use and Growth
Manage Land Use and Growth
Introduction
The land use portion of this section is a core
component of the Comprehensive Plan and is
mandated by State Statute. Land use is simply
how a piece of land is used. Thus, future land
use is how a piece of land is best suited to be
used in the future. Future land use should not
be confused with zoning. A piece of ground
can be zoned one way, but the future use of
that same piece of ground could be completely
different. For example, an area may be zoned
“agricultural,” but its future land use may be
“industrial.” More differences between future
land use and zoning are listed in the table
below.
Future Land Use
Zoning
Not legally binding
Legally binding
A “guide” for development
and/or change
“Laws” that regulate
development and change
General – land use classification
is tied to an area
Specific – zoning district is tied
to each parcel
The “Plan”
A tool to implement the “Plan”
Future Land Use Classification
Map usually reviewed and
amended every five years and
initiated by a governmental
body
Zoning Map usually amended on
an as-needed basis and initiated
by a property owner
It is the intent of this Plan to encourage the
advancement of compact form within the
corporate limits of the City of Kendallville.
Compact form describes a land use pattern
that emphasizes full utilization of land inside
the City to promote effective, well-organized,
and responsible development. It is, in
essence, using land resources responsibly and
recognizing that land is a limited resource.
Communities that recognize, plan for, and
implement the compact form concept are
typically more pedestrian-friendly and have an
improved quality of life. These communities
are more economically stable and achieve a
10
higher quality of public services with lower
tax rates.
While outlining policies that advance compact
land use forms, this Plan also acknowledges
the existence of a suburban-style land use
pattern in specific areas within the corporate
limits as well as in the extra-territorial
jurisdiction. Kendallville shall support this
type of development where and when it is
appropriate.
This chapter addresses current land use issues,
and attempts to minimize and mitigate
conflicts in the future by appropriately
distributing land uses, as illustrated on the
Future Land Use Classification Map. The
Kendallville planning jurisdiction has been
divided into land use classifications based on
the current use of the land, adjacent uses,
accessibility, availability of infrastructure and
services, and the suitability of the land.
The Future Land Use Classification Map and
the policies of advancing compact form, while
acknowledging the existence of a suburbanstyle development in certain areas, are
consistent with and support the land use
policies contained within the Noble County
Comprehensive Plan.
A goal, objectives, and implementation
measures that address land use and growth
management issues are identified in the
remainder of this chapter. Implementation
measures are abbreviated as IM, and identified
with a number that corresponds with the
appropriate objective.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Manage Land Use and Growth
Goal: Manage Land Use and Growth
Proactively manage and direct growth and
development in the City of Kendallville to
provide an orderly and responsible land
development pattern, community
sustainability, and the highest quality of life
for current and future residents.
Objective 1: Advance Compact Form.
IM 1.1 Update the Kendallville Zoning
Ordinance to accommodate and
support infill, redevelopment, and
compact form.
IM 1.2
IM 1.3
IM 1.4
Objective 2: Manage Community Growth.
IM 2.1 Utilize the Comprehensive Plan and
Future Land Use Classification Map
when considering development
proposals and rezoning petitions.
Recognize that small deviations from
this Plan and the Future Land Use
Classification Map will accumulate
and have a negative impact on the
City’s future.
IM 2.2
Update, utilize, and enforce the
Kendallville Zoning Ordinance,
Kendallville Subdivision Control
Ordinance, and other applicable
ordinances.
IM 2.3
Ensure an adequate quantity of suitable
land exists for all desired land uses.
Encourage the revitalization of
commercial buildings in and around
downtown Kendallville through
programs such as the existing Façade
Improvement Matching Grant
Program.
IM 2.4
Establish policies outlining when new
development is required to connect to
public utilities.
IM 2.5
Develop policies to help evaluate the
expansion of the Kendallville City
Limits through annexation.
Develop and offer incentives for the
redevelopment of vacant industrial
properties.
IM 2.6
Modify the Kendallville Subdivision
Control Ordinance to protect existing
streets from damages caused by
construction traffic associated with
new development.
Promote redevelopment by placing an
equal priority on providing improved
infrastructure and services to vacant
lots in need of infill development and
areas in need of redevelopment.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
11
Manage Land Use and Growth
Objective 3: Mitigate Conflicting Land Uses.
IM 3.1 Explicitly permit existing agricultural
operations to continue at current
levels.
IM 3.2
IM 3.3
Buffer residential and other sensitive
land uses from commercial and
industrial development or
redevelopment.
Modify the Kendallville Zoning
Ordinance to include adult business
regulations and anti-funneling
regulations; and to insure any “useconversions” are consistent with the
character of the neighborhood.
IM 3.4
Protect the Kendallville Municipal
Airport from the encroachment of
noise-sensitive uses that may hinder
future expansion of the facility and
increases in operations.
IM 3.5
Incorporate non-remonstrance
provisions for annexation and “right to
farm” language into the rezoning and
subdivision approval process.
IM 3.6
Incorporate non-remonstrance
provisions for airport expansion into
the zoning and subdivision approval
process when projects are proposed
within one (1) mile of the Kendallville
Municipal Airport.
12
Objective 4: Improve Communication About the ExtraTerritorial Jurisdiction.
IM 4.1 Document the procedure for
development and enforcement within
the extra-territorial jurisdiction and
make it available to the development
community.
IM 4.2
Require City standards to be met for
all infrastructure improvements within
the extra-territorial jurisdiction.
IM 4.3
Establish policies for connecting to
public utilities and policies for the
expansion of the corporate limits
through annexation.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Manage Land Use and Growth
Additional Information
Eighty-eight percent (88%) of respondents in
the Community Values Survey want to
regulate land use to prevent conflicts even if it
means losing the development investment.
This speaks strongly about the degree of
regulation and quality of development that
Kendallville residents expect.
The following sections provide additional
information necessary to promote
redevelopment and allocate and distribute
growth and development throughout
Kendallville’s planning jurisdiction.
AGRICULTURE
Because Kendallville’s planning jurisdiction
extends nearly two (2) miles beyond the
Kendallville City Limits, it is essential that the
community recognize agricultural operations
within the planning jurisdiction. The
agricultural land within the extra-territorial
jurisdiction gives the community the land it
needs to continue to grow and develop, and
also contributes to Kendallville’s small town
charm.
Respondents to the Community Values Survey
were indecisive about protecting all
productive agricultural land from new
development and permitting productive
agricultural land to be developed. Twentynine percent (29%) were neutral between the
two (2) extremes, and another forty-one
percent (41%) of the respondents did not feel
strongly either way. The conclusion is that
undeveloped land near the City is expected to
eventually develop regardless if it is
productive agricultural land or not.
The agricultural community generally does
not want to stand in the way of community
growth. However, local farmers want the
right to continue agricultural operations until
they choose to sell or develop the land. This
means that residents of new developments
located adjacent to agricultural land should
have little right to complain about the impacts
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
and effects of existing agricultural operations.
New development should not adversely
impact drainage of agricultural land.
Additionally, the agricultural community
within the extra-territorial jurisdiction
sometimes feels “left out” when it comes to
enforcement of issues like trespassing.
OPEN SPACE AND RECREATION
Access to open space and recreational areas is
essential to a high quality of life, good health,
and community spirit. Specifically in
Kendallville, these areas include Bixler Lake
Park and Campground, Sunset Park, the
Kendallville Outdoor Recreation Complex,
Noble County Fairgrounds, Detering Nature
Preserve, Lonidaw Nature Preserve, multiple
golf courses, and the lakes in and around
Kendallville.
From a land use and growth management
perspective, open space and recreational areas
are valuable because they can serve as a way
to protect environmentally sensitive areas by
incorporating them into an amenity that can be
appreciated and enjoyed by the public. Often,
these areas also create a buffer between noncompatible land uses.
Generally, Kendallville should strive to
maintain its existing recreational and open
space areas. The City should consider adding
to the system of recreation and open space, by
modifying the Kendallville Subdivision
Control Ordinance to require subdivisions of a
certain size (e.g. either number of lots or acres
of property) to provide land, develop it, and
maintain it as open space and/or recreational
areas. The regulations can range from very
simple – such as requiring an outdoor picnic
area in an office complex – to something more
substantial such as requiring the installation of
a playground in a residential subdivision.
Specific details about the Kendallville parks
and recreation system are in Chapter Five:
Serve Community Needs.
13
Manage Land Use and Growth
RESIDENTIAL
Residential uses include single-family homes,
multiple-family buildings, condominiums,
assisted living facilities, and the like.
Kendallville desires to provide housing
opportunities for people with different
incomes, needs, and desires. The City also
recognizes that housing needs change with the
economy and as people age and their
household size changes. A mix of housing is
important so that residents are able to find
housing that enables them to live in
Kendallville throughout their lives.
Residential in Rural Areas
For the purposes of this Plan, residential in
rural areas is meant to include residential lots
within the City’s extra-territorial jurisdiction
that are at least two (2) acres (or adequately
sized to comply with Noble County Health
Department regulations for septic); without
water and/or sewer utilities; and generally
developed with driveway access directly off of
a county road.
Rural residential development reduces the
opportunity for the City to expand and grow.
A strip of residential development along a
county road makes it cost prohibitive to
provide utilities to those homes, and more
importantly, to land beyond those homes. The
proliferation of rural residential development
can be detrimental to community growth by
inadvertently creating a growth boundary for
the community. Unfortunately, big picture
issues like this are not a typical consideration
when such a proposal is presented.
Kendallville should strictly limit new rural
residential development in the City’s planning
jurisdiction.
14
Residential in Lake Areas
Kendallville should establish regulations to
minimize or eliminate the potential for
“funneling” along the lakes. While the lake
shorelines appear to be completely developed,
it is possible for one (1) lot to be purchased,
and the structures to be demolished to allow
for this type of development. Funneling
occurs when a lakefront property is used to
provide lake access for “second tier”
development. Funneling typically adds a
larger population of lake users each with their
own watercraft. The additional number of
watercraft results in an increase of noise and
environmental degradation and decreases
water safety and quality of life for lake
residents.
New lake residential developments should
have architectural features that building off
surrounding properties or are “cottage” style.
These structures will also have front façade
characteristics on the façade that face the
street and the lake shore.
Residential Areas on the Fringe
For the purposes of this Plan, residential areas
on the fringe are generally meant to include
subdivisions with curvilinear streets, homes
that are generally wider than they are deep,
and lots that are larger than 11,000 square feet
(¼ of an acre), but smaller than 43,560 square
feet (1 acre).
While the City should emphasize compact
form as the primary style of development for
all land use types, the desire for suburbanstyle subdivisions is the preference of some.
The City must recognize that costs associated
with providing service to this type of
development are higher than the costs
associated with compact development.
However, good planning and management of
suburban-style residential developments will
allow these areas to be efficiently and
effectively incorporated into the community.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Manage Land Use and Growth
Infill development in residential areas on the
fringe should be consistent in character with
the neighborhood context (e.g. similar widthto-depth ratios and 4:12 or greater pitch for
roof lines).
Residential in Urban Areas
Kendallville officials recognize the
importance of older compact residential
neighborhoods. The City has applied for and
will continue to apply for grants for
neighborhood stabilization and improvement
when such funds are available. The most
recent proposed project (in 2009-2010)
involves the purchase of homes in
neighborhoods directly east of downtown
Kendallville. These homes will be
rehabilitated before they are sold to moderateincome families.
Traditional, old town-style neighborhoods
possess character and diversity of housing
opportunities that can be marketed to various
age groups, family sizes, and income levels.
These neighborhoods are also a vital part of
revitalizing the core of Kendallville. For this
reason, it is critical that the City review and
revise enforcement and penalty sections of the
Kendallville Zoning Ordinance and other code
provisions, while stepping up actual
enforcement.
roof pitch, open front porches, and structures
that are deeper than they are wide.
A traditional residential zoning district could
also be used to better regulate conversions
from single-family homes to duplexes or
triplexes that seem to be the source of many
land use conflicts. The zoning district would
not necessarily prohibit these types of
conversions; it would just require the
conversions to be completed in a way that
compliments the neighborhood and mitigates
possible conflict.
Additionally, a traditional residential zoning
district provides the opportunity for expansion
of the City’s existing gridiron street pattern
and/or a new “traditional residential”
neighborhood to develop elsewhere in the
City, further advancing compact form.
Another way to work towards improving older
compact residential neighborhoods is to make
sure the City’s zoning regulations are
conducive to improving and protecting these
properties. The Kendallville Zoning
Ordinance should be modified to include a
“traditional residential” zoning district that
would make it easier to improve existing
properties without adding extra processes.
The regulations might allow for greater
coverage ratios, smaller setbacks, and alley
access. A traditional residential zoning
district would also allow the development of
vacant lots in a way that is consistent with the
neighborhood, potentially requiring a certain
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
15
Manage Land Use and Growth
RESIDENTIAL GROWTH MANAGEMENT
It is important to note at the time of this Plan,
national, regional, and local real estate
markets have been greatly impacted by a
prolonged economic recession. The current
real estate market is weak with homes being
worth notably less than they were just a
couple of years ago.
Executive Housing
The supply of executive housing (i.e.
$250,000 and greater) is adequate in
Kendallville until the year 2025. Both
existing homes and lots available for new
custom home construction are plentiful.
Particularly, new homes and available lots can
be found in Noble Hawk and Cobblestone golf
course communities. The fully developed lake
communities of Round Lake and Little Long
Lake, as well as various homes and properties
scattered throughout Kendallville, also offer
alternative executive housing opportunities.
The supply of moderate cost condominiums,
villaminiums, and high quality attached
single-family homes and apartments that
would attract young professionals, young
families, and seniors is very limited in
Kendallville. The City’s condominium
complexes are full with minimal turnover.
The City has two (2) villaminium
developments which are similar to
condominiums except that the owner actually
owns the land as well as the home, and pays
into an association for exterior maintenance.
Additionally, these developments do not have
extra amenities such as a club house or
recreational facilities. To appeal to these
target populations, Kendallville should plan
for and encourage the development of high
density, moderate cost housing alternatives,
specifically condominiums, villaminiums, and
high quality attached single-family homes in
the form of duplexes and townhomes.
Moderate Cost Housing
Moderate cost housing (i.e. $100,000 to
$250,000) includes single-family detached
homes, single-family attached homes (i.e.
duplexes and townhomes), condominiums,
and high quality apartments.
Low Cost Housing
Low cost housing (i.e. less than $100,000)
includes single-family detached homes,
single-family attached homes (i.e. duplexes
and townhomes), income-based apartments,
and market rate apartments.
The supply of moderate cost single-family
detached homes seems to be adequate now –
in a weak real estate market. There is
tremendous diversity with single-family
detached options being available in many
subdivisions including Hollybrook Heights,
Knolls of Fairview, and Buffalo Ridge.
Moderate cost housing options are also
available in Kendallville’s traditional
residential neighborhoods and near the lakes.
Quality, low cost housing in the form of
income-based and market-rate apartments are
in short supply in Kendallville. Deerfield
Apartments and Drake Terrace, which offer
income-based apartments, are consistently
above ninety-five percent (95%) occupancy.
Nelson Estates provides market-rate
apartments and is regularly above ninety
percent (90%) occupancy. The Kendallville
Retirement Community is consistently full
with a short waiting list.
While there are lots available for new
construction in Kendallville’s newer
subdivisions, as Kendallville’s population
continues to grow, those wishing to build
might find it difficult to find an available lot.
Kendallville should plan for and encourage
the platting of moderate cost single-family
detached subdivisions.
16
Low cost single-family detached homes are
plentiful in the current market. There are
homes in traditional neighborhoods as well as
older subdivisions that fit into this price range.
Kendallville should plan for the development
of more low cost housing opportunities.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Manage Land Use and Growth
These should primarily include apartments
and attached single-family dwellings in the
form of duplexes or townhomes.
Type of Future Residential Development
Based on the supply and type of housing
opportunities in Kendallville, projected
increases in population, and Kendallville’s
vision of being a family-friendly community,
residential growth in Kendallville’s future
should include:




New moderate cost housing in the form of
urban and suburban subdivisions
comprised of single-family attached or
detached homes;
New moderate cost housing in the form of
condominiums, villaminiums, and quality
apartments with on-site amenities;
New low cost housing in the form of
single-family attached homes and
apartments; and
New low cost housing designed
specifically for the aging population.
Regardless of the type of residential
development, the City of Kendallville will
discourage developments with uniform
appearance, and emphasize quality
landscaping, canopy trees, architectural
diversity, and character in new residential
developments.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Quantity of Future Residential Development
Kendallville experienced a twenty-three
percent (23%) growth in population from
1990 to 2000, and experienced an estimated
seven percent (7%) growth in population from
2000 to 2008. Population increases will likely
continue in Kendallville. The 2030 population
projections released by the US Census Bureau
predict a seven percent (7%) growth rate for
Noble County and a twelve percent (12%)
growth rate for the State of Indiana. For the
purposes of this Plan, a ten percent (10%)
growth rate will be used to project the 2030
population of the City of Kendallville.
When the population projections are converted
into dwelling units, Kendallville could add
400 to 500 new dwelling units between the
years 2010 and 2020; and another 400 to 500
new dwelling units between 2020 and 2030.
Using one-third (1/3) of an acre (i.e. lot size of
100 feet by 150 feet) as the average lot size,
approximately 150 acres of land will be
needed for new residential development
between the years 2010 and 2020. Another
150 acres of land will be needed for new
residential development between 2020 and
2030. At least twenty-five percent (25%) of
the projected residential development will be
high density.
17
Manage Land Use and Growth
Established Residential
Established Residential areas are already
constructed or platted as residential, and need
to be “fully absorbed.” These areas should be
the first priority for new residential
development. The Established Residential
areas will primarily fulfill the need for
residential development in Kendallville from
2010 to 2020.
Location of Future Residential Development
The aforementioned figures (i.e. population
growth, new households, and acreage for new
residential development) give an estimate of
the residential growth that Kendallville can
expect to experience over the next twenty (20)
years. However, it is much more important to
the future of Kendallville that the location of
growth be managed, regardless of the actual
quantity.
The Residential Development Phasing Map
extracts the residential areas from the Future
Land Use Classification Map and assigns each
a timeframe for development.
SCHOOLHOUSE RD
WAYNE CENTER RD (CR 900 E)
CR 900 N
(CR 825 N)
A RPORT RD
APPLEMAN RD (CR 800N)
ALLEN CHAPEL RD
L e Long Lake
STRATER ROAD (CR 750 N)
N
RD
COUNTY L NE RD
RD
RIL
EY
G
IN
GL
NORTH LIMA RD
AN
CR 600 E
SAWYER RD (CR
660 E)
R MMEL RD (CR 800 N)
Round Lake
KAMMERER RD
DIAMOND ST
DRAKE RD
B x e Lake
GARDEN ST
WESTON
(CR 600 N)
PROGRESS DR EAST
DOWLING ST
ST
ROGERS RD
DOWLING ST
AVE
LL
MITCHE
FAIR ST
RILEY ST
Hende son
Lake
PARK AVE
OR
LIMA RD
CH
AR
D
PL
MA N ST
US HIGHWAY 6
CR 600 E
HENRY ST
WAITS RD (CR 500 N)
CR 1000 E
BEACON RD (CR 700 E)
SHERMAN ST
MA N ST
MAPES ROAD (CR 550 N)
LIS
BO
D
NR
(CR
415
Residential Development
Phasing Map
MAP LEGEND
N)
Established Residential (2010 - 2020)
CR 750 E
Planned Residential (2015 - 2030)
Future Residential (2025+ )
Extra-Territorial Jurisdiction
CR 350 N
STATE RD 8
18
CR 300 N
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Manage Land Use and Growth
Planned Residential
Planned Residential areas are for new
residential growth once Established
Residential areas are ninety percent (90%)
utilized. Planned Residential areas may be
used to accommodate a development cannot
be accommodated in an Established
Residential area only when the development
adjacent to existing development AND is
clearly a benefit to the community. Planned
Residential areas include expansions of
existing residential subdivisions as well as
entirely new residential areas, and include the
following areas (in no particular order):






Between North Lima Road and Richard
Road;
The area south of Appleman Road
(County Road 800N) and west of Allen
Chapel Road (County Road 1000E)
extending stub streets like Northfield Lane
and Edgewood Drive;
Between North Lima Road and Angling
Road;
South of Bixler Lake Park on both sides of
Sherman Street;
South of Waits Road (County Road 500N)
on both sides of Sherman Street extended;
and
Along Drake Road, west of State Road 3
and extending south along Beacon Road
(County Road 700E).
Planned Residential areas will likely fill the
need for residential development in
Kendallville from the year 2015 to 2030.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Future Residential
Future Residential areas are reserved for
residential development to serve
Kendallville’s population from the year 2025
and beyond.
Kendallville recognizes some of the proposed
locations for new residential growth are along
the railroad, and appropriate buffering and
setbacks will be required before any
development is approved for these areas.
The Future Land Use Classification Map
designates a significant quantity of land for
future suburban residential and high-density
residential, much more than the projected 300
acres needed over the next twenty (20) years.
There are many reasons for this. First,
property is not always available meaning there
is not always a willing seller. Second, the
population projections and extrapolation of
those projections could be conservative.
Most importantly, the areas designated for
future residential development have certain
characteristics that make them more suitable
for residential development than for other
types of development including proximity to
utilities; proximity to schools and parks;
vehicular accessibility and safety; and
potential for pedestrian connectivity.
In most cases, the City has already recognized
certain land is most suited for residential
development at a density to support utility
systems. This is evident in how the water and
sewer systems have expanded through these
future growth areas. It is vital that
Kendallville “reserve” this land for future
suburban and high density residential
development, even if that development occurs
twenty (20) or more years into the future. The
community will then be able to realize a return
on the infrastructure investment that has
already been made and make the best use of
the community’s land resources.
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Manage Land Use and Growth
COMMERCIAL
Commercial uses include retail, service,
office, entertainment, restaurant, and similar
establishments. In Kendallville, primary
commercial areas include downtown
Kendallville and the US Highway 6 Corridor.
There are also dispersed low intensity
commercial nodes in and around the City.
It should be noted that public workshop
participants listed “quality restaurants” as the
City’s biggest need.
Downtown Kendallville
Downtown Kendallville can be roughly
defined as the 100 block of North Main Street,
and the 100 and 200 blocks of South Main
Street. It is a remarkable stretch of historic
commercial buildings that together comprise a
Historic District on the National Register. It is
critical that the community continue to take
the steps necessary to protect, preserve,
enhance, and continue the revitalization of
Downtown Kendallville.
Downtown serves as the nostalgic core of the
community even though it is no longer the
primary commercial hub. The Community
Values Survey suggests residents do share a
fondness for the historic character of these
buildings, but not at the cost of losing
investment and jobs.
Downtown Kendallville has a good mix of
uses including the entertainment opportunities,
small scale restaurants, specialty retail stores,
offices, service-oriented businesses, and
businesses in finance, insurance, and real
estate. Kendallville city government is also a
key component of downtown.
Downtown Kendallville is going to benefit
most from the continuation of the current
mixture of uses, and adding second floor
occupancy in the form of offices or residential
lofts. The downtown would also benefit from
a pocket park or plaza area that can serve as a
center for downtown activities.
20
A well-crafted “downtown commercial”
zoning district would help permit and support
the mixed use composition that is critical to
downtown’s revitalization. Such a district
might create more accommodating regulations
such as relaxed parking regulations and
promote front and rear customer entrances. A
downtown commercial zoning district could
help ensure that infill of vacant lots (that could
occur in the future) is consistent in character
with existing downtown buildings.
US Highway 6 Corridor
With approximately 20,000 vehicles passing
through each day, commercial uses find the
US Highway 6 Corridor very appealing.
Those uses primarily include restaurants, gas
stations, and retail stores. The market
supports, and will sustain, this type of land use
indefinitely along US Highway 6.
The City of Kendallville has enacted
architectural standards for new development
along US Highway 6. These standards ensure
quality development and redevelopment of
property along US Highway 6 and improve
the first impression people get when driving
through Kendallville.
There are several areas along the US Highway
6 Corridor expected to transition to
commercial uses over the next twenty (20)
years. Specific attention should be given to
make new development and redevelopment
projects provide pedestrian facilities; safe
vehicular access; minimal curb cuts; high
quality development; and appropriate
buffering to sensitive adjacent uses.
Low Intensity Commercial Nodes
There are a handful of low intensity
commercial nodes in Kendallville. Generally,
these are small commercial establishments
geared toward serving a very specific and
geographically-close population. The South
Side Market on South Main Street and the
Fasten-All store on US Highway 6 are both
examples of low intensity commercial nodes.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Manage Land Use and Growth
The City of Kendallville’s zoning ordinance
should accommodate these types of
commercial nodes when appropriate. It is
critical that these nodes be small and context
sensitive to mitigate conflict with the
dominate use of the area.
These areas have prime accessibility,
proximity to utilities, visibility, and
appropriate uses planned for adjacent parcels.
As a result, these areas should be reserved for
future commercial development.
The Future Commercial Development Phasing
Map extracts the commercial areas from the
Future Land Use Classification Map and
assigns each a timeframe for development.
COMMERCIAL GROWTH MANAGEMENT
There is currently enough land zoned and
available for commercial development in
Kendallville to fulfill the needs of the
community for at least the next twenty (20)
years. However, there are certain areas that
possess characteristics that make them more
suitable for commercial development than
other types of development.
SCHOOLHOUSE RD
WAYNE CENTER RD (CR 900 E)
CR 900 N
(CR 825 N)
AIRPORT RD
APPLEMAN RD (CR 800N)
ALLEN CHAPEL RD
L e Long Lake
STRATER ROAD (CR 750 N)
N
RD
COUNTY LINE RD
RD
RIL
EY
G
IN
GL
NORTH LIMA RD
AN
CR 600 E
SAWYER RD (CR
660 E)
RIMMEL RD (CR 800 N)
Round Lake
KAMMERER RD
FA R ST
RILEY ST
Hende son
Lake
AVE
DIAMOND ST
DRAKE RD
B x e Lake
GARDEN ST
WESTON
(CR 600 N)
PROGRESS DR EAST
DOWLING ST
ROGERS RD
DOWLING ST
LL ST
M TCHE
ARK AVE
OR
LIMA RD
CH
AR
D
PL
MAIN ST
US HIGHWAY 6
CR 600 E
HENRY ST
WAITS RD (CR 500 N)
CR 1000 E
BEACON RD (CR 700 E)
SHERMAN ST
MA N ST
MAPES ROAD (CR 550 N)
LIS
BO
D
NR
(CR
415
Commercial Development
Phasing Map
MAP LEGEND
N)
Established Commercial (2010 - 2020)
CR 750 E
Planned Commercial (2020 - 2030)
Future Commerc ial (2028+ )
Extra-Territorial Jurisdiction
CR 350 N
STATE RD 8
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
CR 300 N
21
Manage Land Use and Growth
Established Commercial
Established Commercial areas are the
downtown, existing commercial buildings
along US Highway 6, and existing buildings
in the low intensity commercial nodes. These
areas need to be “fully utilized.” These
properties should be the first priority for reuse,
redevelopment, infill, and increased intensity
to absorb new or changing commercial
establishments. The Established Commercial
areas should fill the need for commercial
development in Kendallville from the year
2010 to 2020.
in Kendallville from the year 2028 and
beyond.
Planned Commercial
Planned Commercial areas are for new growth
once Established Commercial areas are ninety
percent (90%) “utilized” or when a new
development cannot be accommodated in an
Established Commercial area; AND only
when the development is clearly a benefit to
the community. Planned Commercial areas
include greenfield sites as well as
redevelopment sites, and will likely fill the
need for commercial development in
Kendallville from the year 2020 to 2030.
Kendallville will limit commercial
development along State Road 3 to two (2)
specific areas: the T-intersection of State
Road 3 and US Highway 6; and along State
Road 3 south of Drake Road, with the most
intense development being on the west side of
State Road 3. These commercial
developments shall have cohesive design; safe
vehicular access off of Commerce Drive
extended south and Drake Road; pedestrian
facilities; quality materials and architectural
design; and landscaping.
South State Road 3 Corridor
State Road 3, south of US Highway 6, is a
four-lane limited access highway, with
moderate to high traffic counts, and a
significant quantity of available frontage.
These characteristics make it very attractive
for commercial development. With careful
planning and management of growth, the area
can be selectively developed to provide safe
and accessible consumer opportunities for
residential development in those areas.
Future Commercial
Future Commercial areas are reserved for
commercial development to serve
Kendallville’s population eighteen (18) years
or more from now. The areas possess ideal
qualities for commercial development:
visibility, accessibility, and proximity to
utilities. It is important that these parcels be
identified now, because the first wave of
development pressure could suggest
institutional or residential uses that in the long
term would not maximize the benefit to the
City. Utilizing these “ideally commercial”
areas for non-commercial uses will push
commercial developments to locations that are
not as well suited, thus compromising
accessibility, safety, efficiency, and land
resources. These Future Commercial areas
will fill the need for commercial development
22
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Manage Land Use and Growth
INDUSTRIAL
Industrial uses in Kendallville include
manufacturing, warehousing, distribution,
assembly and similar operations.
Kendallville’s industrial areas provide many
jobs and a diversified tax base; they are also a
source of pride for community residents.
From “home grown” industries like Flint and
Walling, to national names like Kraft,
Kendallville has a notable industrial base.
GENERAL GROWTH MANAGEMENT STRATEGIES
US Highway 6 Growth Pressure
The pressure to grow out – along US Highway
6 in general – is obvious. This expansion
outward often results in a contraction inward
for the rest of the community. Additionally,
this growth pattern creates a strain on City
services such as longer distances for Fire
Department and Police Department responses,
and the elongation of utility systems.
Industry can generate heavy truck traffic,
noise, undesirable aesthetic appearance, air
pollution, and the like. Kendallville will
mitigate the potential negative effects of
industrial development by promoting
industrial uses where quality access to
highways and railways exist, where they are
compatible with adjacent uses, and where
adequate utilities and public services exist.
This Plan supports the growth along US
Highway 6 when City services and utilities
can support it, and when established areas are
unable to accommodate the development. For
instance, continuing to grow to the east along
US Highway 6, without funding a new fire
station and fire personnel to serve that area,
could increase the City’s Insurance Service
Organization (ISO) rating, thereby increasing
insurance premiums for ALL property owners,
and potentially making Kendallville less
attractive to those wishing to invest. This is
why compact form and making the best use of
urban areas is so critical to Kendallville’s
future.
INDUSTRIAL GROWTH MANAGEMENT
Kendallville’s industrial uses are located
primarily in the East Industrial Park.
However, there are smaller industrial areas
located southwest of downtown along Ohio
Street; directly north and west of downtown
along Krueger Street; and in the northwest
part of Kendallville along Stonebraker Drive.
The East Industrial Park currently has two (2)
lots, totaling 100 acres, available as industrial
greenfield sites.
There are at least a dozen industrial buildings
totaling over 620,000 square feet of space
available for sale or lease. Kendallville will
take an active role in the redevelopment of
some of these properties, and encourage their
reuse and redevelopment over greenfield site
development.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Commercial and residential growth should be
consistent with the “Phasing Maps” (contained
within this section) that limit expansion
outward, particularly along US Highway 6.
Industrial expansions along US Highway 6,
beyond the Kendallville Industrial Park East,
should be permitted only when the
demonstrated benefits to the community
significantly outweigh the costs.
23
Manage Land Use and Growth
Protection of Existing Infrastructure
Kendallville should also take steps to protect
existing infrastructure from being damaged or
torn up during development. Concerns
specifically involve heavy construction traffic
accessing a new development site on
inadequate streets. Streets, not designed to
handle heavy traffic, could be damaged or
destroyed during construction. Although the
community is left with a nice new
development, the streets accessing it would be
in poor condition.
There are a variety of ways the City can
mitigate this issue. The City may designate
“heavy construction traffic routes” and require
the developer to use those routes as part of the
approval. If such routes do not exist,
potentially the City and developer can work
together to reinforce streets or portions of
streets to create such a route. The City could
ask for financial security (e.g. bonds or line of
credit) from a developer as part of the
approval process.
AIRPORT
The Kendallville Municipal Airport’s ability
to grow and expand its operations is impacted
by the uses of land surrounding it. An Airport
Hazard Overlay District should be added to
the Kendallville Zoning Ordinance to protect
the airport from incompatible adjacent uses.
Such a district would add a set of regulations –
primarily restricting noise-sensitive uses,
lighting, and height – to the base zoning
district.
The Airport Hazard Overlay District might
also include some basic public education
mechanisms. As existing homes or businesses
within the Airport Hazard Overlay District are
modified, maybe a one-sheet informational
brochure is given to the owner during the
permit process. The brochure could simply
remind the owner of their proximity to the
airport and how the airport might impact the
property in the future. New development
could received the same type of literature, but
24
also be required to sign a “non-remonstrance”
waiver.
While industrial land uses are typically
compatible with airport operations, land
around the Kendallville Municipal Airport is
not a logical location for all types of new
industry. Kendallville’s industrial parks with
prime accessibility and utility infrastructure
are a better location for most industry.
As a result, the future land use strategy around
the Kendallville Municipal Airport should
include preserving agricultural land uses as
long as possible. Airport acquisition of
adjacent agricultural land before
growth/development pressures arise would
provide the best protection. If land acquisition
by the airport is not possible, business centers
or technology facilities that are not noisesensitive would be most compatible with the
airport.
ANNEXATION
Since 2000, Kendallville has completed a
handful of voluntary annexations including the
Parkview Noble Hospital complex and areas
within the East Industrial Park. While
Kendallville prefers voluntary annexations,
the City should consider involuntary
annexations that enable growth of the
community while maintaining or reducing
property tax rates. The City of Kendallville
commits to undertaking annexation only when
it is beneficial to the fiscal interest of the
current residents and taxpayers of the City.
The State of Indiana’s current one percent
(1%) cap on owner-occupied residences, two
percent (2%) cap on farms and enter-occupied
residences, and three percent (3%) cap on
industrial and commercial property will
impact the distribution of taxes to all local
governments when it is fully implemented in
2010.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Manage Land Use and Growth
Revenues
Annexation provides revenue to the City in the
form of property taxes. Annexation does not
result in a decrease in property tax revenue for
other taxing agencies. For example, the
county and library would not lose tax revenue
if the City annexed an area.
City and to the fiscal interest of the residents
and taxpayers of the City.
Annexation can result in the City receiving
additional revenue for Motor Vehicle
Highway Fund, Local Road and Street Funds,
and economic development-related income
taxes. These funds are based on population or
miles of streets, and would result in a transfer
of revenue to the City of Kendallville.
Expenditures
The expenses incurred by the City for
annexation are for the provision of municipal
services, both capital and non-capital.
Generally, these services include utility
infrastructure and service, parks, police, fire
(to those not already in Township), and
administrative services.
There is often confusion that a municipality
must provide sidewalks, curbs, lighting, and
improved streets and width equivalent to the
standard required by the City for new
development. Aside from pressure to do so,
this is not required.
If annexation is not plausible for new
developments in the extra territorial
jurisdiction, it should be required to meet all
of the infrastructure development standards of
the City. Development that receives City
utility service should also be required to
include a non-remonstrance agreement that
prohibits all current and future property
owners from remonstrating. Annexation
agreements that outline the conditions and
proposed timeframe for annexation should
also be included.
The bottom line is annexation of adjacent
developed areas should only be undertaken
when it is beneficial to the future plans of the
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
25
Manage Land Use and Growth
Future Land Use Classification Map
The Future Land Use Classification Map
applies land use classifications across
Kendallville’s planning jurisdiction. The term
“land use classification” is used instead of
“land use” because each classification
integrates both land use and development
form. This hybrid approach for classifying
future development of land will result in a
better system for managing development,
particularly in urban areas.
The following land use classifications are used
on the Land Use Classification Map found on
page 41:














Agricultural
Rural Residential
Open Space and Recreation
Lake Residential
Suburban Residential
Urban Residential
High Density Residential
Office and Institutional
Downtown Commercial
Low Intensity Commercial
High Intensity Commercial
Industrial
Airport Hazard Overlay
Wellhead Protection Overlay
LAND USE CLASSIFICATION AND DESCRIPTION
Each of the land classifications listed above
has a page dedicated to describing how it can
be used to manage growth and development.
Further, the following headings are used, as
described below, to convey the essence of
each classification. These descriptions are
intended to be conceptual.
widely applied, while others are very specific
to geographic locations.
Land Uses: This section describes the general
land uses that would be permitted in the
classification. The zoning ordinance would
indicate specific land uses permitted.
Examples: This section strives to convey one (1)
or more developments in Kendallville to
represent the classification. All examples may
not be exact matches, but represent the most
similar in intensity and density.
Appropriate Adjacent Classifications: This section
describes the land use classifications that are
best used adjacent to the subject classification.
Three (3) categories of compatibility exist.
“Best Fit” are classifications that are most
suited for adjacency. “Conditional Fit”
indicates land classifications that are suitable
for adjacency if the building orientation,
transitions, and architecture are implemented
with sensitivity. The third category is those
land classifications not listed, which represent
classifications that are not typically
appropriate adjacent to the subject
classification.
Development and Structural Features: This section
identifies structural features (height, mass, and
form); the orientation of the structure(s) on the
site; and features that would generally be
applied to entire subdivisions.
Regulation Implementation: This section describes
how the City’s development regulations will
implement the land use classification’s intent.
Purpose: This section gives a brief description
of why the land use classification has been
established.
Geographic Location: This section conveys where
each classification is best utilized within
Kendallville’s planning jurisdiction. Some
descriptions are vague because they can be
26
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Manage Land Use and Growth
Agricultural
Purpose
To maintain undeveloped areas for productive
agricultural uses; conservation of natural features;
and as a resource for long-term future growth of
the community
Geographic Location
Located primarily in Kendallville’s extraterritorial jurisdiction
Land Uses



Crops, pasturage, small confined feeding, farm
buildings, and farm houses
Hobby farms and orchards
Forests and woodlots
Examples


Orchard Hill Farms
TRS Farms, Barker Bros. Farms
Appropriate Adjacent Classifications


Best Fit: Agricultural, Open Space and
Recreation, and Rural Residential
Conditional Fit: Lake Residential, Suburban
Residential, Office and Institutional, High
Intensity Commercial, and Industrial
Development and Structural Features

Largely undeveloped farms and farmsteads
Regulation Implementation

Utilize traditional zoning to regulate this land
use classification.
Because Kendallville’s planning jurisdiction extends
nearly two (2) miles beyond the Kendallville City
Limits, it is essential that the community recognize
agricultural land uses.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
27
Manage Land Use and Growth
Rural Residential
Purpose
To identify residential development that possesses
rural characteristics including large lots, large
front yard setbacks, driveway access directly off of
a county road, and a density that does not support
water and sanitary sewer infrastructure
Geographic Location
Located primarily within Kendallville’s extraterritorial jurisdiction
Land Uses


Single-family detached residential
Hobby farms
Examples


Eagle’s Nest Addition
Generally, property with metes and bounds
legal descriptions
Appropriate Adjacent Classifications


Best Fit: Agricultural, Open Space and
Recreation, Rural Residential, Lake
Residential, and Suburban Residential
Conditional Fit: Urban Residential, High
Density Residential, and Office and
Institutional
Development and Structural Features



These rural residential areas are along Drake Road.
Centralized building envelope
Lots two (2) acres or greater
Maximum two (2) or three (3) stories with
gable or hip roof, if the context reflects the
same
Regulation Implementation

28
Utilize traditional zoning to regulate this land
use classification
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Manage Land Use and Growth
Open Space and Recreation
Purpose
To protect established conservation areas; to
establish open space; to serve as a transition
between incompatible uses; and to preserve land
for private and public parks and recreational
facilities
Geographic Location
Distributed throughout Kendallville’s jurisdiction,
generally within walking distance from residential
areas, and in proximity to more dense residential
areas
Land Uses

Parks, recreation, trails, golf courses, and
nature preserves
Examples




Bixler Lake Park and Sunset Park
Kendallville Country Club, Noble Hawk Golf
Links, and Cobblestone Golf Course
Kendallville Outdoor Recreation Complex
Detering Nature Preserve
Appropriate Adjacent Classifications

Best Fit: All land use classification
Development and Structural Features



Internal and external pedestrian connectivity
Promote active and/or passive recreation
Protect and enhance environmental features
Regulation Implementation

Utilize traditional zoning to regulate this land
use classification
Recreational opportunities are diverse and plentiful in
Kendallville.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
29
Manage Land Use and Growth
Lake Residential
Purpose
To recognize the uniqueness of residential areas
on lakes and to take into consideration the
concerns that accompany development on a
waterfront
Geographic Location
Lots bordering lakes in Kendallville’s planning
jurisdiction
Land Uses


Single-family detached residential
One and two-family condominium units
Examples

Round Lake and Little Long Lake
Appropriate Adjacent Classifications


Best Fit: Open Space and Recreation, Rural
Residential, Lake Residential, and Suburban
Residential
Conditional Fit: Agricultural, Urban
Residential, High Density Residential, Office
and Institutional, and Low Intensity
Commercial
Development and Structural Features








Centralized building envelope
Established street-side and water-side building
setbacks should be utilized
Internal and external pedestrian connectivity
Maximum two (2) stories with gable and/or
hip roofs
Onsite garages facing perimeter road; front of
home facing the lake
Second tier lots may be used for accessory
buildings
Street layout follows shape of shoreline
Structures and land alterations should be
sensitive to the lake
Little Long Lake and Round Lake help diversify
housing opportunities in the Kendallville community.
Regulation Implementation

30
Utilize traditional zoning to regulate this land
use classification
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Manage Land Use and Growth
Suburban Residential
Purpose
To establish housing opportunities that possess
suburban-style characteristics including use of
curvilinear street patterns and cul-de-sacs, curbed
streets, lots between one-quarter (¼) acre and one
(1) acre in size, attached garages, structures that
are generally wider than they are deep, and
generally, access to water and sanitary sewer
utilities
Geographic Location
Located inside the outer edges of Kendallville City
Limits, and to a limited degree, outside and
contiguous to Kendallville City Limits
Land Uses


Single-family detached residential
Neighborhood amenities
Examples



Country Club Hills, Cobblestone, and Noble
Hawk
Garden Park Village, Knolls of Fairview, and
Orchard Place
Hollybrook Heights
Appropriate Adjacent Classifications


Best Fit: Open Space and Recreation, Rural
Residential, Lake Residential, Suburban
Residential, and Urban Residential
Conditional Fit: Agricultural, High Density
Residential, Office and Institutional, and Low
Intensity Commercial
Development and Structural Features







Attached garages
Centralized building envelope
Structures generally wider than they are deep
Front façade facing a public right-of-way
Internal and external pedestrian connectivity
Maximum two (2) or three (3) stories with
gable or hip roofs, if the context reflects the
same
Predominant use of curvilinear street layout
with cul-de-sacs
A variety of suburban residential developments are
available in Kendallville.
Regulation Implementation

Utilize traditional zoning to regulate this land
use classification
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
31
Manage Land Use and Growth
Urban Residential
Purpose
To establish housing opportunities that possess
traditional-neighborhood characteristics including
lots less than quarter (¼) acre, small setbacks, high
percentage of the lot covered with structures,
gridiron pattern of streets and alleys, curbs, and
older homes that are generally narrower than they
are wide
Geographic Location
Utilized inside Kendallville City Limits,
particularly contiguous to downtown
Land Uses



Small lot single-family detached residential
Two-family residential units
Townhouses
Examples



Residential portions of Mitchell’s Addition
Idding’s Addition (intersection of South Oak
Street and Vine Street)
Clark’s Addition (intersection of Clark Street
and Mott Street)
Appropriate Adjacent Classifications


Best Fit: Open Space and Recreation,
Suburban Residential, Urban Residential,
High Density Residential, and Low Intensity
Commercial
Conditional Fit: Lake Residential, Downtown
Commercial, Office and Institutional, and
High Intensity Commercial
Development and Structural Features






Centralized or zero lot line building envelope
Front façade facing a public right-of-way
Internal and external pedestrian connectivity
Maximum two (2) or three (3) stories with
gable or hip roof, if the context reflects the
same scale
Street pattern may vary between grid or
modified grid
Use of alleys
Urban residential neighborhoods can be a vital part
of revitalizing a community’s core.
Regulation Implementation

32
Utilize hybrid (i.e. traditional and form-based)
zoning to regulate this land use classification
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Manage Land Use and Growth
High Density Residential
Purpose
To establish affordable and desirable housing
opportunities for the young adult, temporary, and
aging populations
Geographic Location
Utilized throughout Kendallville in medium-sized
to small-sized nodes
Land Uses






Apartments
Two-family residential units
Townhouses
Multiple-unit condominium structures
Assisted living facilities
Retirement communities
Examples



Apartment complexes such as Carriage House,
Lamplighter, Nelson Estates, Deerfield, and
Kendallville Retirement Community
East Pointe and North Pointe Condominiums
and Haley Estates
Small multiple-family structures
Appropriate Adjacent Classifications


Best Fit: Open Space and Recreation, Urban
Residential, High Density Residential,
Downtown Commercial, Office and
Institutional, and Low Intensity Commercial
Conditional Fit: Lake Residential, Suburban
Residential, High Intensity Commercial, and
Industrial
Development and Structural Features





Centralized or zero lot line building envelope
Centralized parking
Internal and external pedestrian connectivity
Maximum two (2) or three (3) stories with
gable or hip roofs, if the context reflects the
same
Multiple primary structures on a single lot in
some cases
High density residential development includes many
different forms in Kendallville.
Regulation Implementation

Utilize traditional zoning to regulate this land
use classification
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
33
Manage Land Use and Growth
Office and Institutional
Purpose
To establish areas for large scale institutions that
may have unique development characteristics; and
to establish areas for small scale offices
characterized by traffic volumes significantly
lower than commercial developments
Geographic Location
Utilized throughout Kendallville, but most
appropriate along secondary arterials or collectors;
low intensity institutions may be integrated into
neighborhoods
Land Uses



Place of worship, school, library, hospital, and
community center
Federal, state, and local government
Stand-alone medical, dental, and professional
service offices
Examples




East Noble High School
Professional East Village
Four County Area Vocational Cooperative
Kendallville Municipal Airport
Appropriate Adjacent Classifications


Best Fit: Open Space and Recreation, High
Density Residential, Downtown Commercial,
Office and Institutional, Low Intensity
Commercial, and High Intensity Commercial
Conditional Fit: Agricultural, Lake
Residential, Suburban Residential, Urban
Residential, and Industrial
Development and Structural Features



Internal and external pedestrian connectivity
Protect pre-development environmental
features
Structures should be sensitive to the
surrounding context
Regulation Implementation

34
Utilize traditional zoning to regulate this land
use classification
Office and institutional land uses include
developments of various sizes and scale including
large complexes (e.g. Parkview Noble Hospital) to
small offices parks (e.g. Professional East Village).
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Manage Land Use and Growth
Downtown Commercial
Purpose
To recognize and accommodate the uniqueness of
the commercial core by providing the opportunity
to integrate a mixture of uses while remaining
sensitive to the surrounding historical character
Geographic Location
Downtown Kendallville
Land Uses



Predominately retail, service, office,
entertainment, restaurant, and institutional
Residential uses on upper floors
Public surface parking lots located primarily
behind buildings
Examples

Downtown Kendallville
Appropriate Adjacent Classifications


Best Fit: Open Space and Recreation, High
Density Residential, Downtown Commercial,
Office and Institutional, and Low Intensity
Commercial
Conditional Fit: Urban Residential and High
Intensity Commercial
Development and Structural Features





Context sensitive – existing setbacks, building
form, traffic circulation, lighting, signs, and
connectivity
Internal and external pedestrian connectivity
Off-street parking supplemented by on-street
parking
Transparent glass or permeable storefronts
Use of alleys
Regulation Implementation

Utilize hybrid (i.e. traditional and form-based)
zoning to regulate this land use classification
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Downtown Kendallville has a good mixture of uses
including storefronts and upper floor residential units.
35
Manage Land Use and Growth
Low Intensity Commercial
Purpose
To establish areas for low intensity commercial
uses that serve the local neighborhood, a targeted
population, or other dominant use, are generally
smaller in scale, and experience low traffic
volumes
Geographic Location
Utilized throughout Kendallville in small-sized
nodes
Land Uses




Dry cleaning, barber shop, and other personal
services
Café, coffee shop, and ice cream shop
Convenience retail
Club or lodge
Examples


South Side Market on South Main Street
Fastenal facility along US Highway 6
Appropriate Adjacent Classifications


Best Fit: Open Space and Recreation, Urban
Residential, High Density Residential,
Downtown Commercial, Office and
Institutional, and Low Intensity Commercial
Conditional Fit: Lake Residential, Suburban
Residential, High Intensity Commercial, and
Industrial
Low intensity commercial uses generally serve specific
and geographically-close populations.
Development and Structural Features






Buffer adjacent residential uses
Context-sensitive – building materials, traffic
circulation, signs, lighting, connectivity, and
hours of operation
Discourage strip development
Internal and external pedestrian connectivity
Maximum of 100,000 square feet of land in
one (1) Low Intensity Commercial node
Maximum two (2) stories
Regulation Implementation

36
Utilize traditional zoning to regulate this land
use classification
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Manage Land Use and Growth
High Intensity Commercial
Purpose
To establish areas for high intensity and general
commercial uses that serves the community and
larger region
Geographic Location
Utilized throughout Kendallville along primary
arterials with excellent and safe access
Land Uses

Indoor and outdoor retail, service, hotel,
office, entertainment, and restaurant
Examples



Shopping centers such as Fairview Center,
Publix Village Square, The Shoppes at
Orchard Park, and Kendallville Plaza
Kendallville Events Center
Stand-alone facilities such as the Holiday Inn
Express, Max Platt Ford, Hayden Honda, and
Papa John’s Pizza
Appropriate Adjacent Classifications


Best Fit: Open Space and Recreation, Office
and Institutional, Low Intensity Commercial,
and High Intensity Commercial
Conditional Fit: Agricultural, Urban
Residential, High Density Residential,
Downtown Commercial, and Industrial
Development and Structural Features




Centralized building envelope
Buffer adjacent residential uses
Internal and external pedestrian connectivity
Landscaped parking areas
Regulation Implementation

Utilize traditional zoning to regulate this land
use classification
The consumer opportunities provided in high intensity
commercial areas are vital to a community’s
wellbeing.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
37
Manage Land Use and Growth
Industrial
Purpose
To establish areas for industrial uses that provides
employment opportunities for the community and
larger region
Geographic Location
Focused on the east side of Kendallville, along US
Highway 6, and in other medium-sized to largesized pockets around Kendallville that have access
to arterials and railroads
Land Uses


Manufacturing and production
Warehousing and distribution
Examples


Kendallville East Industrial Park
Stand-alone facilities including Kraft, Taylor
Made Systems, and Quick Tanks, Inc.
Appropriate Adjacent Classifications


Best Fit: Open Space and Recreation, and
Industrial
Conditional Fit: Agricultural, High Density
Residential, Office and Institutional, Low
Intensity Commercial, and High Intensity
Commercial
Development and Structural Features




Buffer adjacent residential areas
Centralized building envelope
External pedestrian connectivity
Screen outdoor storage areas
Regulation Implementation

Utilize traditional zoning to regulate this land
use classification
Industrial areas provide employment opportunities for
a community.
38
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Manage Land Use and Growth
Airport Hazard Overlay
Wellhead Protection Overlay
Purpose
Purpose
To protect the current and future operation of the
Kendallville Municipal Airport
Geographic Location
To protect public wellheads that provides water
for the City of Kendallville or large residential
developments
Based on the Federal Aviation Administration’s
(FAA) recommended buffer around general
aviation airports
Geographic Location
Appropriate Underlying Land Uses
Appropriate Underlying Land Uses

Examples



Agriculture
Very low density residential (1 dwelling
unit/10 acres)
Business and industry that are not sensitive to
noise
Passive recreation
One (1), three (3), and ten (10) year recharge areas
around established and proposed wellheads


All uses, excluding quarry, gas stations, and
chemical storage
Not applicable
Appropriate Underlying Classifications
Best Fit: Not applicable
Conditional Fit: Not applicable
Examples


Appropriate Underlying Classifications
Development and Structural Features



Not applicable
Best Fit: Agricultural, Open Space and
Recreation, Rural Residential, and Industrial
Conditional Fit: Low Intensity Commercial
and High Intensity Commercial

Not applicable
Regulation Implementation

Utilize zoning overlay to regulate this land use
classification
Development and Structural Features



Low structure height
Low intensity, full cutoff light fixtures
No retention ponds or recreational ponds
Regulation Implementation

Utilize zoning overlay to regulate this land use
classification
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
39
Manage Land Use and Growth
SCHOOLHOUSE RD
WAYNE CENTER RD (CR 900 E)
CR 900 N
(CR 825 N)
AIRPORT RD
APPLEMAN RD (CR 800N)
COUNTY LINE RD
RD
LE
Y
RD
R
G
IN
GL
NORTH LIMA RD
AN
CR 600 E
STRATER ROAD (CR 750 N)
N
SAWYER RD (CR
660 E)
ALLEN CHAPEL RD
RIMMEL RD CR 800 N)
KAMMERER RD
D AMOND ST
GARDEN ST
WESTON
DRAKE RD
ROGERS RD
PROGRESS DR EAST
DOWLING ST
LL ST
AVE
M TCHE
(CR 600 N)
FAIR ST
RILEY ST
DOWL NG ST
PARK AVE
OR
LIMA RD
CH
AR
D
PL
MAIN ST
US H GH AY 6
CR 600 E
HENRY ST
WAITS RD (CR 500 N)
CR 1000 E
BEACON RD (CR 700 E)
SHERMAN ST
MAIN ST
MAPES ROAD (CR 550 N)
LIS
BO
D
NR
(CR
41 5
Wellhead Protection Area
MAP LEGEND
N)
One Year Capture Area
CR 750 E
Five Year Capture Area
Ten Year Capture Area
Corporate Limits
CR 350 N
Extra-Territorial Jurisdiction
STATE RD 8
40
CR 300 N
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
SCHOOLHOUSE RD
CR 900 N
WAYNE CENTER RD (CR 900 E)
Future Land Use Classification Map
Agricultural
Rural Residential
3
APPLEMAN RD (CR 800N)
Open Space and Recreation
ALLEN CHAPEL RD
SAWYER RD (CR
660 E)
RIMMEL RD (CR 800 N)
Little Long Lake
Lake Residential
Suburban Residential
COUNTY LINE RD
RD
EY
R IL
RD
NORTH LIMA RD
G
IN
GL
AN
Round Lake
KAMMERER RD
FAIR ST
RILEY ST
Bixler Lake
GARDEN ST
DRAKE RD
6
Low Intensity Commercial
Extra-Territorial Jurisdiction
ROGERS RD
PROGRESS DR EAST
AVE
WESTON
(CR 600 N)
DIAMOND ST
Downtown Commercial
Proposed New Road
DOWLING ST
LL ST
Office and Institutional
Industrial
DOWLING ST
MITCHE
High Density Residential
High Intensity Commercial
PARK AVE
OR
CH
LIMA R
D
AR
D P
L
T
MAIN S
6
Henderson
Lake
Urban Residential
STRATER ROAD (CR 750 N)
N
CR 600 E
MAP LEGEND
(CR 825 N)
AIRPORT RD
US HIGHWAY 6
City of Kendallville, Indiana
Airport Hazard Overlay
HENRY ST
CR 600 E
OHIO ST
SHERMAN ST
WAITS RD (CR 500 N)
CR 1000 E
BEACON RD (CR 700 E)
3
MAIN ST
MAPES ROAD (CR 550 N)
BON
RD
(CR
415
N)
CR 750 E
LIS
March 31, 2010
CR 350 N
NOTE: This is not a Zoning Map.
STATE RD 8
CR 300 N
Chapter Four
Foster Convenient Circulation
Foster Convenient Circulation
Introduction
A transportation plan is one (1) component of
a Comprehensive Plan that is required by the
State of Indiana. This chapter, Foster
Convenient Circulation, is a transportation
plan that looks specifically at the components
necessary to foster convenient circulation
within the City of Kendallville and its
planning jurisdiction. The plan elements
include vehicular street network, pedestrian
network, and alternative modes of
transportation. A Thoroughfare Plan Map and
Pedestrian Network Map are included as well.
A goal, objectives, and implementation
measures (IM) that promote efficient
transportation systems and coordinated
improvements to those systems are identified
in the remainder of this chapter. Note,
implementation measures are abbreviated as
IM, and identified with a number that
corresponds with the appropriate objective.
44
Goal: Foster Convenient Circulation
Provide a safe, appropriate, cost effective, and
convenient circulation system that
accommodates multiple common modes of
transportation.
Objective 1: Develop and continue to maintain a street
network that is efficient and safe.
IM 1.1 Ensure that adequate right-of-way is
preserved for proper drainage,
sidewalks, on-street parking, planned
extensions, and planned widenings.
IM 1.2
As land develops, work with Noble
County to begin establishing a one-half
(0.5) mile grid system of collector
streets in the extra-territorial
jurisdiction to ensure connectivity and
efficient circulation.
IM 1.3
As development occurs, require critical
new connections as shown on the
Thoroughfare Plan Map.
IM 1.4
Ensure accessibility and efficiency for
emergency services.
IM 1.5
Strongly encourage connectivity
between street networks in
neighboring subdivisions.
IM 1.6
Prepare and maintain a five-year
capital improvements plan that
identifies realistic construction and
maintenance projects prioritized by
importance and funding availability.
IM 1.7
Minimize driveway cuts along arterial
and collector streets.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Foster Convenient Circulation
Objective 2: Develop a pedestrian network of sidewalks, side
paths, and off-street trails that connect popular destinations
and provide recreational opportunities.
IM 2.1 Require sidewalks within all new
residential subdivisions including
pedestrian linkages to adjacent
development and areas likely to
develop.
IM 2.2
Require pedestrian facilities as part of
commercial, office, and institutional
developments such that pedestrians
can safely reach main entrances from
perimeter roads.
IM 2.3
Encourage pedestrian facilities,
particularly along perimeter roads, as
part of industrial developments and as
part of the redevelopment of
brownfield sites.
IM 2.4
Coordinate with other agencies [e.g.
Indiana Department of Natural
Resources (IDNR)] to help connect
Kendallville’s pedestrian network to
pedestrian facilities (i.e. Rails to
Trails) outside Kendallville’s planning
jurisdiction.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Objective 3: Encourage enhancement of the Municipal
Airport.
IM 3.1 Periodically publish reports about the
economic benefits of the airport to
help the public realize its value.
IM 3.2
Protect the Kendallville Municipal
Airport from the encroachment of
noise-sensitive uses that may hinder
future expansion of the facility and
increases in operations.
IM 3.3
Encourage corporations that utilize
aircraft to base their aircraft at the
Kendallville Municipal Airport.
IM 3.4
Incorporate non-remonstrance
provisions for airport expansion into
the zoning and subdivision approval
process when projects are proposed
within one (1) mile of the Kendallville
Municipal Airport, and build
educational components into the
permit process for expanding
developments.
Objective 4: Integrate transportation facilities into the fabric
of the community.
IM 4.1 Balance the need to widen streets with
the need for pedestrian facilities and
streetscape design.
IM 4.2
Mitigate dangerous intersections by
redesigning, reconstructing, re-signing,
installing signals, or other means.
IM 4.3
Work to provide safe pedestrian
crosswalks, trail crossings, and
railroad crossings.
IM 4.4
Consider pedestrian safety, circulation,
and accessibility as a component of a
street improvement project or large
development project.
IM 4.5
Maintain and promote lighting of
public ways – vehicular and pedestrian
– to encourage safety.
45
Foster Convenient Circulation
Additional Information
VEHICULAR NETWORK
Street classifications are important because
appropriate land uses, setbacks, and
accessibility can be based, in part, on the
classification of the street a property fronts.
Kendallville uses the Indiana Department of
Transportation’s (INDOT) classification
system which includes primary arterials,
secondary arterials, collectors, and local
streets.
The vehicular network in Kendallville does
not end at the City’s jurisdictional boundary.
Any assessment of vehicular circulation must
consider the larger vehicular network. For
this reason, reference was made to the Noble
County Comprehensive Plan throughout the
development of the Kendallville Thoroughfare
Plan Map to ensure consistency in the maps
and policies.
Modifications and Additions
The 2008-2009 reconstruction of US Highway
6 west of Main Street included consistent lane
sizes and configurations, curbs, sidewalks, and
a completely new street base and surface. The
project has been a significant improvement in
circulation as well as, safety and aesthetics.
The City believes similar improvements are
needed along US Highway 6 east of Main
Street. This stretch of US Highway 6 involves
various lane configurations, inconsistent lane
sizes, and intermittent curbs and sidewalks.
Much of US Highway 6 east of Main Street is
not physically urbanized, even though the
development along it is. Several of the
intersections along the stretch of US Highway
6 east of Main Street could be upgraded and
safe pedestrian crossings could be addressed
in such a project. City officials will actively
lobby the Indiana Department of
Transportation (INDOT) to identify the issues,
complete necessary engineering studies, and
get a proposed project on the schedule – even
if it is ten (10) years or more in the future.
46
There are issues with left turns from Eunice
Avenue, West Avenue, and East Avenue onto
US Highway 6. These streets are currently
local streets providing access to only a dozen
or so mostly residential properties. As
development occurs on the north side of
Kendallville, particularly the area between
Shalley Drive and Miller Road, West Avenue
and East Avenue should be extended north to
provide connectivity to the new development.
Additionally, new development in this area
should provide east-west connectivity between
North Lima Road/State Road 3 and Riley
Road.
Kendallville’s current street project, set to
begin construction in Spring 2010, is the
urbanization of East Dowling Street from Park
Avenue to US Highway 6, including the
intersection of Allen Chapel Road/County
Road 1000E. The project includes curb and
gutter, as well as sidewalk on the north side of
East Dowling Street.
The City of Kendallville also applied for
Federal Stimulus Funds to mill and resurface
eighteen (18) city streets.
The City should consider the extension
Donaldson Drive north to intersect directly
with North Angling Road. The intersection of
North Lima Road/State Road 3 and US
Highway 6 is one of the most congested in
Kendallville, and the extension of Donaldson
Drive may relieve some of that congestion.
Several circulation issues outside the
Kendallville City Limits were identified
throughout the planning process. These issues
are mentioned here not as a “laundry list” of
things the City should accomplish over the
next twenty (20) years, but to generate
awareness, and to outline the basic framework
of streets that will help the circulation system
grow in a way that is efficient and safe. As
development proposals are presented, these
circulation issues may be able to be addressed.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Foster Convenient Circulation



The triangle created by the intersection of
Appleman Road/County Road 800N and
Riley Road is awkward and now has to
manage increased traffic from the new
Wayne Center Elementary School.
Visibility at the intersection of Sherman
Street and Waits Road/County Road 500N
is limited because of topography.
The one-mile county road network should
be expanded to include one-half (0.5) mile
grid streets. These streets should serve as
collectors providing curb cuts to local
streets accessing entire subdivisions.
Capital Improvement Plan
Street projects should be identified and
prioritized in a five-year capital improvements
plan. Based on available and potential funds,
the City should select the top priority project
or projects to be completed over the next five
(5) years. The majority of improvement funds
should be spent on planned projects.
Spending resources on unplanned
improvements should be limited to emergency
repairs.
When projects are undertaken, it is crucial that
quality improvements are made and pedestrian
facilities are successfully woven into the
project.
PEDESTRIAN NETWORK PLAN
Eighty-one percent (81%) of the respondents
to the Community Values Survey want
Kendallville to be a walkable community with
sidewalks and bikepaths installed throughout
the community. Fifty-six percent (56%) of the
respondents feel strongly about this issue.
Pedestrian networks are a family-friendly
amenity that can set Kendallville apart from
larger communities or communities without
such a network. In addition to increasing the
quality of life by providing a recreational
opportunity, a complete pedestrian network
can mitigate traffic by providing an alternative
to using a vehicle. Pedestrian networks are
also known to improve the overall health of
the community.
Kendallville has a great start on providing a
pedestrian network with sidewalks in the
majority of residential areas inside the City.
Existing trails through Bixler Lake Park and
Campground, Detering and Lonidaw Nature
Preserves, and Blackman Woods Preserve are
another component of the existing pedestrian
network in Kendallville.
A path connecting Bixler Lake Park and
Campground and the Kendallville Outdoor
Recreation Complex exists, but it is not a
formal trail. Plans to connect Bixler Lake
Park, the Kendallville Outdoor Recreation
Complex, and the Mid-American Windmill
Museum with trails are under development,
and would be a tremendous asset in providing
pedestrian connectivity.
Additionally, the Indiana Department of
Natural Resources (IDNR) has acquired
approximately forty percent (40%) of the
right-of-way necessary for the construction of
a trail from Kendallville to Rome City. If
completed, this trail would add a new
dimension to Kendallville’s pedestrian
network.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
47
Foster Convenient Circulation
A functional network will take many years of
concerted effort. First and foremost, new
development should have the appropriate
pedestrian facilities.




New residential developments should have
internal sidewalks, as well as sidewalks
connecting the neighborhood to the
community at large;
New commercial developments should
have internal sidewalks, as well as
pedestrian facilities that connect it to
adjacent developments and the
community-wide pedestrian network;
New institutional developments should
have internal, as well as pedestrian
connectivity to adjacent development and
the community-wide network; and
New industrial developments should be
encouraged to provide internal pedestrian
connectivity, and be required to provide
pedestrian connectivity from the industrial
development to the community-wide
network.
When the community-wide pedestrian
network is not developed in an area of
Kendallville that is experiencing growth, the
internal pedestrian facilities of the new
development should extend to the edge of the
site along perimeter roads to provide future
connectivity.
Second, it is important to maintain and
improve the community’s existing pedestrian
facilities. Much of the older part of
Kendallville has sidewalks and is identified as
the “Urban Sidewalk Area” on the Pedestrian
Network Map. Because this is an older part of
town, attention should be focused on sidewalk
maintenance, specifically retrofitting
intersections to comply with the Americans
with Disabilities Act (ADA). The City could
institute a sidewalk program to assist property
owners wishing to improve their sidewalks.
The program could be low interest loan or
some form of a cost share.
48
Finally, Kendallville should focus its
investment on priority pedestrian collectors.
The priority pedestrian collectors are
destination-oriented: schools linked to
neighborhoods; parks linked to
neighborhoods; and local attractions being
linked together.









Develop a more formalized pedestrian
connection between Bixler Lake Park and
Campground, the Kendallville Outdoor
Recreation Complex, and the MidAmerican Windmill Museum;
Complete the sidewalk portion of the East
Dowling Street construction project;
Work with the Indiana Department of
Transportation (INDOT) to create
formalized pedestrian crosswalks at the
intersections of US Highway 6 and North
Lima Road; US Highway 6 and Riley
Street/Riley Road; US Highway 6 and
Kammerer Road/Fairview Run; and US
Highway 6 and Allen Chapel Road;
Complete pedestrian facilities along at
least one (1) side of Drake Road between
downtown and Hillcrest Drive;
Install sidewalk along Sherman Street in
front of South Side Elementary School;
Complete sidewalk along at least one (1)
side of Riley Road inside city limits;
Install a pedestrian facility along
Kammerer Road, between US Highway 6
and Allen Chapel Road;
Install sidewalk along Allen Chapel Road
from Kammerer Road to the Kendallville
Outdoor Recreation Complex; and
Install missing sections of sidewalk along
North Angling Road from North Lima
Road to the Carriage House Apartments.
Kendallville shall strive to implement the
initial phase of priority pedestrian collectors
over the next twenty (20) years, and leverage
local funds with grants and donations from
transportation, recreation, environmental,
health, and local organizations.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Foster Convenient Circulation
Kendallville’s pedestrian network will make
use of these existing, developed, and proposed
pedestrian facilities and ultimately be
comprised of residential sidewalks, urban
residential sidewalks, urban commercial
sidewalks, on-street bike lanes, side paths, and
off-street trails.
OTHER MODES OF TRANSPORTATION
Rail
Kendallville is served by an east-west railroad
operated by Norfolk Southern that bisects the
City. The City should work with the railroad
owners to maintain safe crossings and market
the rail line as an economic asset.
Transit
The existing Noble Transit System is an on
demand system that provides transportation
services to the elderly population. The system
focuses on getting this segment of the
population to and from appointments and
shopping for a nominal fee. The current
system is an asset to the community and
continues to grow as the demand for its
service grows.
Air
The Kendallville Municipal Airport is within
the municipal boundaries of the City of
Kendallville even though it is not contiguous
to the city limits. It is, in effect, an “island of
city limits” located north of the remainder of
the city limits.
The Airport’s Board of Aviation
Commissioners recently adopted a five-year
capital improvements plan that includes
repairing taxiway pavement in 2009; design
and construction of runway and taxiway
improvements in 2010 and 2011; stormwater
improvements in 2012; and design and
installation of medium intensity runway lights
(MIRL) in 2013 and 2014.
The Kendallville Municipal Airport is an asset
to the community. The airport is home to one
(1) of three (3) glider clubs nationwide and
also hosts community events. Additionally,
the airport is an economic development
resource. Some believe that general aviation
airports, such as the Kendallville Municipal
Airport, will drive the next wave of economic
activity – the way interstates do today and
railroads have in the past. With this in mind,
it is increasingly important to support the
airport, promote its enhancement, and restrict
encroachment of incompatible land uses.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
49
Foster Convenient Circulation
Thoroughfare Plan Map
The Thoroughfare Plan Map illustrates the
future classification of streets in Kendallville’s
planning jurisdiction. The future
classification takes into consideration the
current classification of each street, as well as
existing and future land uses along each street.
The following street classifications are used
on the Thoroughfare Plan Map found on page
63:




Primary Arterial
Secondary Arterial
Collector
Local
STREET CLASSIFICATION AND DESCRIPTION
Each of the street classifications listed above
has a page dedicated to describing it. The
intent is to use the descriptions as a guide for
street projects – either construction of new
streets or improvement of existing streets.
The street classification descriptions should
not be used as benchmarks for Kendallville’s
existing streets.
General Description: This section gives a brief
description of the street classification, why it
has been established, and its potential to be
developed in the future.
timelines, funding cycles, physical constraints,
and political constraints. This section
communicates the primary and secondary
priorities for each street classification.
Primary priorities are those that should not be
foregone in design decisions. Secondary
priorities are those that may be considered for
compromise, non-inclusion, or later phases of
the project.
Traffic Management Options: This section describes
vehicular traffic management options to
consider when improving a street. The options
listed are intended to identify the most
appropriate means to intersect streets, slow
traffic when appropriate, increase traffic
efficiency when appropriate, and improve
safety.
Image Examples: Images of each street
classification are included. The images are
intended to portray some of the best examples
available in Kendallville or in another Indiana
community. The images may not represent
the purest intent of the street classification.
When applied in the real world, variations in
design may be necessary.
Street Features: This section conveys the primary
design standards of the street classification.
The standards include right-of-way widths,
number of lanes, lane width, curbing,
sidewalks, on-street parking, and street trees
and tree plots within the right-of-way.
Typical Cross Section: This section refers to a
typical cross section illustration of the street
classification. The illustration is intended to
portray the “ideal” version of the street with
the understanding that when applied in the real
world, variations in design are often
necessary.
Design Priorities: During the design phase of all
street improvement projects, decisions have to
be made to meet budgetary constraints,
50
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Foster Convenient Circulation
Primary Arterial
General Description
Primary arterials are designed to carry very heavy
volumes of traffic to major destinations in, out, or
through the City. In Kendallville, primary
arterials are limited to state-controlled US
Highway 6 and portions of State Road 3.
Kendallville will probably not see additional
primary arterials developed during this Plan’s
timeframe.
Street Features








Minimum Right-of-Way: 100 feet
Maximum Number of Lanes: Four (4) lanes with turn
lanes at major intersections
Minimum Lane Width: Twelve (12) feet
Curbs: Required within corporate limits
Sidewalks: Required in urban areas and per
Pedestrian Network Plan
On-Street Parking: Prohibited
Tree Plot: Required
Street Trees: Preferred
Typical Cross Section

See illustration below
Primary Design Priorities





Limiting access (i.e. curb cuts)
Sensitivity to context
Intersection design
Pedestrian facilities
Width of travel lanes
US Highway 6, a small portion of State Road 3 North
(North Lima Road), and State Road 3 South (not
pictured) are primary arterials.
Secondary Design Priorities

Street trees
Traffic Management Options



Acceleration and deceleration lanes
Defined turn lanes at intersections
Stop lights, flashers, and signage
Primary Arterial: Typical Cross Section in Urban Areas
100 feet of Right-of-Way
Lane Width:
12 feet Min.
Curb: 2 feet
Tree Plot: 10 feet
Sidewalk: 5 feet
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
51
Foster Convenient Circulation
Secondary Arterial
General Description
Secondary arterials are designed to carry heavy
volumes of traffic to major destinations inside and
outside of the City. Secondary arterials primarily
connect collectors with primary arterials.
Kendallville controls some of the community’s
secondary arterials; some are controlled by Noble
County and one (1) is under state-control. Any
“new” secondary arterials in Kendallville’s future
will mostly like be existing streets that are
required to handle additional volumes of traffic
due to new development.
Street Features








Minimum Right-of-Way: Sixty (60) feet
Maximum Number of Lanes: Two (2) lanes with turn
lanes at major intersections
Minimum Lane Width: Twelve (12) feet
Curbs: Required within corporate limits
Sidewalks: Required in urban areas and per
Pedestrian Network Plan
On-Street Parking: Not permitted, except in downtown
Tree Plot: Preferred
Street Trees: Preferred
Typical Cross Section

See illustration below
Main Street and Riley Street are examples of
secondary arterials.
Primary Design Priorities



Intersection design
Pedestrian facilities
Width of travel lanes
Traffic Management Options



Secondary Design Priorities




Limiting access (i.e. curb cuts)
Sensitivity to context
Street trees
Width of tree plot
Acceleration and deceleration lanes
Defined turn lanes at intersections
Stop lights, flashers, and signage
Secondary Arterial: Typical Cross Section in Urban Areas
60 feet of Right-of-Way
Curb: 2 feet
Lane Width:
12 feet Min.
52
Tree Plot: 8 feet
Sidewalk: 5 feet
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Foster Convenient Circulation
Collector
General Description
A collector is designed primarily to provide access
to platted subdivisions and to allow on-street
parking when deemed safe. Driveway cuts should
be limited with preference given to local streets
accessing entire subdivisions. Collector streets
primarily connect to other collectors; connect local
streets with secondary arterials and primary
arterials; and secondary arterials with other
secondary arterials. The City will likely
experience the development of new collector
streets (both through new construction and by
local streets being required to accommodate
additional volumes of traffic due to new
development) during the timeframe of this Plan.
Street Features








Minimum Right-of-Way: Sixty (60) feet
Maximum Number of Lanes: Two (2) lanes with turn
lanes at major intersections
Minimum Lane Width: Eleven (11) feet
Curbs: Required within corporate limits and within
new developments
Sidewalks: Required in urban areas and per
Pedestrian Network Plan
On-Street Parking: Variable, mostly in urban areas and
based on context and safety
Tree Plot: Preferred
Street Trees: Required
Sherman Street is an example of a collector.
Secondary Design Priorities



Intersection design
Width of travel lanes
Width of tree plot
Traffic Management Options




Narrower lane widths
On-street parking
Roundabouts
Signage
Typical Cross Section

See illustration below
Primary Design Priorities



Sensitivity to context
Pedestrian facilities
Street trees
Collector: Typical Cross Section in Urban Areas
60 feet of Right-of-Way
Parking Lane: 8 feet
Lane Width:
11 feet Min.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Curb: 2 feet
Tree Plot: 8 feet
Sidewalk: 5 feet
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Foster Convenient Circulation
Local Street
General Description
A local street is designed primarily to provide
access to platted residential lots and other
individual properties. These streets generally
connect with collector streets and other local
streets. Local streets may include non-through
streets. The City of Kendallville will experience
the development of new local streets during the
timeframe of this Plan.
Street Features








Minimum Right-of-Way: Fifty (50) feet
Maximum Number of Lanes: Two (2) lanes
Minimum Lane Width: Eleven (11) feet
Curbs: Required within corporate limits and in new
developments
Sidewalks: Required in urban areas and per
Pedestrian Network Plan
On-Street Parking: Permitted on one (1) side of the
street, not permitted on cul-de-sacs
Tree Plot: Required
Street Trees: Required
Typical Cross Section

See illustration below
Primary Design Priorities




South Oak Street and West William Street are
examples of local streets.
Access to properties
Sensitivity to context
Pedestrian facilities
Street trees
Traffic Management Options




Secondary Design Priorities



On-street parking
Width of travel lanes
Width of tree plot
Narrower lane widths
On-street parking
Roundabouts
Signage
Local Street: Typical Cross Section in Urban Areas
50 feet of Right-of-Way
Parking Lane: 7 feet
Lane Width:
11 feet Min.
54
Curb: 18 inches
Tree Plot: 5 feet
Sidewalk: 4 feet
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
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Pedestrian Network Map
The Pedestrian Network Map focuses on
facilities for non-motorized transportation,
primarily walking and bicycling within
Kendallville’s planning jurisdiction. Many of
the pedestrian facilities exist, but the map goes
further to plan for expansion of the
Kendallville pedestrian network.
The following pedestrian network
classifications are used on the Pedestrian
Network Map on page 65:






Residential sidewalk
Urban residential sidewalk
Urban commercial sidewalk
On-street bicycle lane
Side path
Off-street trail
PEDESTRIAN FACILITY CLASSIFICATION AND DESCRIPTION
Each of the pedestrian facility classifications
listed above has a page dedicated to describing
it. The intent is to use the descriptions as a
guide for pedestrian facility projects – either
the new construction of new facilities or
improvements to existing facilities. The
pedestrian facility descriptions should not be
used as benchmarks for Kendallville’s existing
pedestrian facilities. The following headings
are used, as described below, to convey the
essence of each pedestrian facility
classification.
communicates the primary and secondary
priorities for each pedestrian facility
classification. Primary priorities are those that
should not be foregone in design decisions.
Secondary priorities are those that maybe
considered for compromise, non-inclusion, or
later phases of the project.
Safety Enhancements: This section describes safety
options to consider when installing or
improving a pedestrian facility. The
enhancements listed are intended to be the
most appropriate for the subject facility.
Image Examples: This section includes images of
each pedestrian facility classification. The
images are intended to portray some of the
best examples available in Kendallville or in
another Indiana community if the facility is
currently not present in Kendallville. The
images may not represent the purest intent of
the facility. When applied in the real world,
variations in design may be necessary.
General Description: This section gives a brief
description of the pedestrian facility
classification and why it has been established.
Pedestrian Facility Features: This section conveys
the primary design standards of the pedestrian
facility. The standards include right-of-way,
minimum width, construction materials,
obstructions, and street separation.
Design Priorities: During the design phase of all
pedestrian facilities, decisions have to be
made to best meet budgetary constraints,
timelines, funding cycles, physical constraints,
and public opinions. This section
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
55
Foster Convenient Circulation
Residential Sidewalk
General Description
A residential sidewalk provides connectivity from
home to home and linkages to pedestrian facilities
along streets outside the neighborhood. A
residential sidewalk is designed to accommodate
walking, strollers, and children’s recreation in
suburban neighborhoods.
Facility Features





Right-of-way: Within public right-of-way
Minimum Width: Five (5) feet
Surface: Concrete
Obstructions: None allowed
Street Separation: Five-foot (5’) tree plot
Primary Design Priorities



Reinforce neighborhood character
Americans with Disabilities Act (ADA)
compliance at intersections
Minimize obstructions
Secondary Design Priorities


Avoid steep slopes
Avoid unnecessary curvature of alignment
Safety Enhancements




56
Striped crosswalks
Change in pavement material at intersections
Lighting
Tree canopy trimmed to give seven (7) feet or
more of clearance
Residential sidewalks exist in the majority of
Kendallville’s suburban-style neighborhoods.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
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Urban Residential Sidewalk
General Description
An urban residential sidewalk provides
connectivity from home to home and linkages to
pedestrian facilities along streets outside the
neighborhood or to urban commercial sidewalks.
An urban residential sidewalk is designed to
accommodate walking, strollers, and children’s
recreation in urban neighborhoods.
Facility Features





Right-of-way: Within public right-of-way
Minimum Width: Five (5) feet
Surface: Concrete
Obstructions: Not preferred
Street Separation: Not required
Primary Design Priorities




Reinforce neighborhood character
ADA compliance at intersections
Avoid unnecessary curvature of alignment
Street trees
Secondary Design Priorities

Avoid steep slopes
Safety Enhancements




Striped crosswalks
Change in pavement material at intersections
Lighting
Tree canopy trimmed to give seven (7) feet or
more of clearance
Many of Kendallville’s older urban residential
sidewalk intersections have been retrofitted and are
compliant with the Americans with Disabilities Act
(ADA).
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
57
Foster Convenient Circulation
Urban Commercial Sidewalk
General Description
An urban commercial sidewalk provides
connectivity from business to business and
linkages to other pedestrian facilities along streets
outside the commercial district. An urban
commercial sidewalk is designed to accommodate
walking, strollers, street furniture, and outdoor
dining.
Facility Features





Right-of-way: Within public right-of-way
Minimum Width: Eight (8) feet; twelve (12) feet when
also used for outdoor dining
Surface: Concrete; may include brick or paver
accents
Obstructions: Street lights, street signs, planters, trees,
public art, and seating may be located on the
sidewalk as long as six (6) feet of clear-way is
consistently maintained
Street Separation: Not required
Primary Design Priorities



Reinforce commercial character
ADA compliance at intersections
Street trees
Secondary Design Priorities



Avoid steep slopes
Consistent placement of obstructions
Minimize obstructions
Urban commercial sidewalks can vary significantly
depending on the commercial area they serve.
Safety Enhancements





58
Striped crosswalks
Change in pavement material at intersections
Bollards
Lighting
Tree canopy trimmed to give seven (7) feet or
more of clearance
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
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On-street Bicycle Lane
General Description
An on-street bicycle lane is intended to provide a
safer facility for fast-moving bicycle traffic, as
well as linkages between side paths and off-street
trails and other popular destinations. An on-street
bicycle lane is designed to accommodate bicycle
commuting, fitness cycling, and recreational
cycling along existing roadways.
Facility Features





Right-of-way: Within public right-of-way
Minimum Width: Five (5) feet
Surface: Asphalt, debris free
Obstructions: None allowed
Street Separation: By painted stripe
Primary Design Priorities





On-street bicycle lanes help ensure cyclists’ safety by
defining limits for motorists.
Avoid unnecessary curvature of alignment
Unobstructed
Information and traffic signs
Lane definition
Drainage away from on-street bicycle lane
Secondary Design Priorities



Avoid steep slopes
Lighting
Placement on both sides of the street
Safety Enhancements





Striped lanes at street intersections
Minimal vertical offset in pavement transitions
Lighting
Regular street sweeping of debris from bicycle
lanes
Storm water inlet orientation and product
selection
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
59
Foster Convenient Circulation
Side Path
General Description
A side path is designed to accommodate walking,
jogging, strollers, children’s recreation,
skating/blading, slow to moderate-speed cycling
along collector and secondary arterial streets.
Generally, a side path provides connectivity from
neighborhood to neighborhood and linkages to
community amenities.
Facility Features





Right-of-way: Within public right-of-way
Minimum Width: Eight (8) feet
Surface: Asphalt
Obstructions: None allowed
Street Separation: Six-foot (6’)
This side path runs along Sherman Street providing
access to the Bixler Lake trail system.
Primary Design Priorities


Reinforce neighborhood character
Minimize obstructions
Secondary Design Priorities


ADA compliance at intersections
Avoid steep slopes
Safety Enhancements





60
Striped crosswalks
Change in pavement material at intersections
Bollards
Lighting
Tree canopy trimmed to give seven (7) feet or
more of clearance
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
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Off-street Trail
General Description
An off-street trail provides recreational and fitness
opportunities within a natural setting. Off-street
trails may provide connectivity between other
pedestrian facilities and community destinations.
Off-street trails are designed to accommodate
walking, jogging, community, strollers, children’s
recreation, skating/blading, and slow to moderate
speed cycling.
Facility Features





Right-of-way: Not in a public right-of-way, but within
an easement, or public park
Minimum Width: Six (6) feet of surface with at least
one-foot (1’) of shoulder on each side
Surface: Asphalt, crushed limestone, or other suitable
surface
Obstructions: None allowed
Street Separation: Not applicable
Primary Design Priorities





Reinforce natural character
Minimize disturbance to sensitive natural
features
Use curves to avoid natural features
Unobstructed
Drainage away from off-street trail
Secondary Design Priorities


ADA compliance at intersections
Avoid steep slopes
The off-street trails within the Bixler Lake Park and
Campground are comprised of a variety of different
surfaces.
Safety Enhancements




Striped crossings or grade separated crossings
at street intersections
Signs for bicycles, pedestrians, and
automobiles at intersections
Bollards at approaches to major streets or midblock crossings
Lighting at intersections
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
61
Foster Convenient Circulation
62
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
SCHOOLHOUSE RD
CR 900 N
WAYNE CENTER RD (CR 900 E)
Thoroughfare Plan Map
Primary Arterial
Secondary Arterial
3
APPLEMAN RD (CR 800N)
Proposed Secondary Arterial
ALLEN CHAPEL RD
SAWYER RD (CR
660 E)
RIMMEL RD (CR 800 N)
Little Long Lake
Collector
Proposed Collector
COUNTY LINE RD
RD
EY
R IL
RD
NORTH LIMA RD
G
IN
GL
AN
Round Lake
KAMMERER RD
Bixler Lake
GARDEN ST
WESTON
DIAMOND ST
Airport
Extra-Territorial Jursiction
6
ROGERS RD
PROGRESS DR EAST
AVE
M
DRAKE RD
Rail Road
FAIR ST
RILEY ST
DOWLING ST
ST
ITCHELL
(CR 600 N)
Proposed Local Street
DOWLING ST
PARK AVE
OR
CH
LIMA R
D
AR
D P
L
T
MAIN S
6
Henderson
Lake
Local Street
STRATER ROAD (CR 750 N)
N
CR 600 E
MAP LEGEND
(CR 825 N)
AIRPORT RD
US HIGHWAY 6
City of Kendallville, Indiana
HENRY ST
CR 600 E
OHIO ST
SHERMAN ST
WAITS RD (CR 500 N)
CR 1000 E
BEACON RD (CR 700 E)
3
MAIN ST
MAPES ROAD (CR 550 N)
BON
RD
(CR
415
N)
CR 750 E
LIS
March 31, 2010
CR 350 N
STATE RD 8
CR 300 N
SCHOOLHOUSE RD
CR 900 N
WAYNE CENTER RD (CR 900 E)
Pedestrian Network Plan Map
ALLEN CHAPEL RD
SAWYER RD (CR
660 E)
APPLEMAN RD (CR 800N)
Little Long Lake
RD
COUNTY LINE RD
EY
FAIR ST
Proposed New Road
Extra-Territorial Jurisdiction
AVE
S
GARDEN ST
DIAMOND ST
P
HENRY ST
A
Bixler Lake
P
P
6
A
S
CR 600 E
OHIO ST
PROGRESS DR EAST
DOWLING ST
ROGERS RD
A
M
WESTON
DRAKE RD
Proposed Pedestrian Connection
A
PARK AVE
LIMA R
D
RILEY ST
T
MAIN S
D P
L
AR
CH
OR
A
KAMMERER RD
Pedestrian Collectors (Priority)
DOWLING ST
ST
ITCHELL
A
Attraction
Pedestrian Collectors (Existing)
STRATER ROAD (CR 750 N)
A
Henderson
Lake
Park
Urban Sidewalk Area
Round Lake
S
School
Safe Pedestrian Crossing
A
R IL
RD
NORTH LIMA RD
G
IN
GL
AN
CR 600 E
S
3
6
(CR 600 N)
S
P
A
N
US HIGHWAY 6
MAP LEGEND
(CR 825 N)
AIRPORT RD
RIMMEL RD (CR 800 N)
City of Kendallville, Indiana
SHERMAN ST
S
WAITS RD (CR 500 N)
CR 1000 E
BEACON RD (CR 700 E)
3
MAIN ST
MAPES ROAD (CR 550 N)
BON
CR 750 E
LIS
RD
(CR
415
N)
A
A
March 31, 2010
CR 350 N
STATE RD 8
CR 300 N
Chapter Five
Serve Community Needs
Serve Community Needs
Introduction
Kendallville’s elected officials and City staff
strive to anticipate and meet the needs of the
community by maintaining public lands and
facilities and by providing services. The
following types of services and facilities are
addressed in this chapter:



Utility services;
Public services; and
Parks and recreation.
The types of utilities discussed in this section
include water, sanitary sewer, and storm
sewers. Public services include police, fire,
and City administration. The third category
includes passive and active parks, natural
areas, pavilions, and recreational facilities.
Primarily, the local government provides the
services listed above, but private entities may
also provide certain services. For instance, a
golf course is a recreation facility, but it is
neither owned nor operated by the City.
Likewise, certain public services may be
privately-owned and operated. Although,
primary emphasis is on City-operated facilities
and services, the existence of private facilities
and services has been taken into consideration.
The remainder of this chapter contains the
goal, objectives, implementation measures
(IM), and elaboration on specific steps related
to serving the community’s needs. Note,
implementation measures are abbreviated as
IM, and identified with a number that
corresponds with the appropriate objective.
68
Goal: Serve Community Needs
Maintain and enhance viable infrastructure
systems; adequate public services; and diverse
recreational facilities to meet the current and
future needs of the City of Kendallville.
Objective 1: Position the City utilities to accommodate
community growth while maintaining or enhancing the
existing level of service to current users.
IM 1.1 Develop and maintain a five-year
capital improvements plan that
coordinates utility expansions with
proposed growth and redevelopment
areas.
IM 1.2
Require specific quality construction
standards to be met or exceeded
whenever new utility lines are
installed.
IM 1.3
Require new development to connect
to City utilities.
Objective 2: Maximize the use of the community’s resources
when providing public services.
IM 2.1 Maintain the existing Insurance
Service Organization (ISO) rating
across the City by managing where
growth occurs. Specifically, control
growth further to the east, while
favoring redevelopment.
IM 2.2
Coordinate with organizations to
proactively provide or supplement
community service programs.
IM 2.3
Be prepared to capitalize on
opportunities that may help improve
and/or fund improvements to City
Hall.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Serve Community Needs
Objective 3: Promote full utilization of existing recreational
facilities, and enhance these facilities when practical.
IM 3.1 Update and adopt an Indiana
Department of Natural Resources
(IDNR) approved Five-Year Park and
Recreation Master Plan.
IM 3.2
Make maintaining existing park
amenities the highest priority, and
work to develop an efficient cyclical
maintenance program.
IM 3.3
Periodically review the recreational
facilities and programs offered by local
organizations to minimize duplication,
thus freeing up City resources.
IM 3.4
Modify the existing Kendallville
Subdivision Control Ordinance to
require new developments to establish
and maintain useable open space areas.
IM 3.5
Work to connect Kendallville’s parks,
neighborhoods, schools, and other
amenities with sidewalks, side paths,
or off-street trails.
IM 3.6
Consider the development of a small
park or plaza area in downtown
Kendallville.
IM 3.7
Evaluate the feasibility of relocating
the Park Department Office to Bixler
Lake Park and Campground.
IM 3.8
Assess support for and the feasibility
of an outdoor amphitheater on existing
park property.
Additional Information
The following sections provide the
background and essential information relating
to the provision of utility services, public
services, and parks and recreation to serve the
community’s needs. The information in these
sections also denotes actions in process and
potential strategies that contribute to serving
the public’s needs or the overall vision for
Kendallville.
UTILITY SERVICES
Water
The Kendallville Water Department consists
of three (3) half-million (500,000) gallon
water towers, treatment and iron removal
facilities, and forty-six (46) miles of water
mains. The Kendallville Water Department
provides water service to over 3,200
customers, and to all major industries in
Kendallville. Additionally, the Kendallville
Water Department provides service to areas
outside the Kendallville City Limits including
the Meadow Lane area, Noble Hawk Golf
Links and subdivision, Cobblestone Golf
Course and subdivision, and the Kendallville
Outdoor Recreation Complex.
Recent improvements to the Kendallville water system
provide constant, uninterrupted service to Parkview
Noble Hospital and other west end developments.
The Kendallville Water Department has
recently completed a west end loop of the
distribution system that included construction
of the City’s third water tower. A relatively
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
69
Serve Community Needs
new well also serves the Kendallville
Industrial Park East.
Water Pollution Control
The Kendallville Water Pollution Control
Facility, located on West Wayne Street has a
total capacity of 2.68 million gallons per day
(mgd). The facility is at seventy-five percent
(75%) capacity. While there is available
capacity to treat waste from growth and
redevelopment, the type of discharge can
make a difference in the City’s ability to treat
it.
Sanitary sewers owned and operated by the
City of Kendallville extend outside the City’s
corporate limits to Noble Hawk, Cobblestone,
the Meadow Lane area, and the Kendallville
Outdoor Recreation Complex. These users
currently pay a forty percent (40%) surcharge
for wastewater disposal.
Extending sanitary sewer and water
infrastructure from Kendallville north to the
residential areas around Round Lake and
Little Long Lake has been studied multiple
times since 1991. There is significant cost to
this project, and each time a study is
completed, the cost estimates increase. It has
been the City’s policy to wait for the lake
associations to petition the City for sanitary
sewer service, as the lake associations would
bear the responsibility for much of the cost of
the project.
As the City develops north, towards the lakes,
special consideration should be given to sizing
utility mains appropriately to eventually serve
the residential areas around Round Lake and
Little Long Lake, the Kendallville Municipal
Airport, and Wayne Center Elementary
School. Additionally, as development occurs
between the corporate limits and the lakes, the
City should research and publish costs for the
extension of infrastructure.
Growth of Utility Systems
The provision of water treatment and
distribution and sanitary sewer collection and
treatment are basic and vital to the
community’s ability to grow. Both systems
currently expand to the east and north edges of
the Kendallville City Limits and even beyond
the corporate limits to the west and south.
The existence of municipal water and sewer
utilities in these areas are, in part, dictating the
location of growth. Both utility systems
should expand by adding lines to service new
development on land that is contiguous to the
corporate limits or existing utility mains.
Generally, those areas include land





South of Bixler Lake Park and
Campground;
South of Waits Road/County Road 500N;
East of Sherman Street;
Along Drake Road/County Road 600 N
west of South State Road 3; and
North of the city limits and south of the
development around Little Long Lake.
PUBLIC SERVICES
It is not uncommon for cities in Indiana to
have less resources than necessary to provide
the services their citizens and businesses need.
When the State of Indiana froze property tax
levies for all communities at their current rates
in 2003, Kendallville was below its maximum
levy and hit especially hard at a time when the
community was striving to be efficient and
prudent with its resources. It is estimated that
the property tax freeze has cost the City of
Kendallville a million dollars each year since
2003. This coupled with recent decreases in
assessed value has resulted in less money in
the City’s overall budget.
The City of Kendallville has an approved
Combined Sewer Overflow Long Term
Strategy Plan that is complete.
70
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Serve Community Needs
City Administration
Despite the scarcity of resources, the
community members that participated in
workshops and interviews are pleased with
services provided by City government, and
how Kendallville has grown over the past
several decades.
However, the condition of City Hall is a
source of concern for citizens. Kendallville
needs to be prepared to capitalize on
opportunities that may become available to
significantly renovate and/or develop a new
City Hall in downtown Kendallville.
Although a facility needs assessment has not
been completed, consideration should be
given to creating an accessible, larger, ground
floor meeting room; meeting the physical and
technological needs of each department; and
creating a focal point for downtown that sets a
standard for development in the City’s core.
Public Safety
Despite having less money in the City-wide
budget than in previous years, the City has not
reduced the amount of money allocated to
public safety. Nonetheless, there is
agreement that the Police Department and Fire
Department are understaffed and already
“doing more with less.” As difficult as it is,
these departments must continue to find ways
to improve efficiencies. Some ideas include:



Partnering with other agencies (e.g.
hospital, YMCA, and library) to
implement preventative and proactive
programs such as self-defense classes,
smoke detector awareness, or CPR classes;
Continue seeking Federal and State
funding for programs or staff that would
combat drug problems; and
Continue utilizing and expanding the
reserve officer and volunteer firefighter
programs.
services. For example, Fire Station #2 solved
the community’s emergency response issues
when it was developed on US Highway 6,
north of the railroad tracks. This, in fact, gave
the community one (1) station on the north
side and one (1) station on the south side of
the railroad. Both were strategically located
to best serve the “north half” and “south half”
of the community.
However, Kendallville’s growth pattern since
the establishment of Fire Station #2 has
primarily been east and west along US
Highway 6. The closest fire station to
Kendallville’s newest industrial area is three
(3) miles away. Longer response times can
impact the community’s Insurance Service
Organization (ISO) rating and, in turn, result
in higher insurance premiums. This is just one
(1) example that illustrates how important it is
to properly manage growth.
This example provides insight into how,
physically, the community must grow. Unless
Kendallville is willing and able to
significantly invest in additional public
services and facilities (e.g. fire stations and
equipment), growth on the fringes, especially
further out along US Highway 6, should be
limited. New residential, commercial, and
institutional development shall be limited to
areas within or immediately contiguous to the
city limits. While preferred inside or
immediately contiguous to city limits,
industrial development should be strictly
controlled and permitted further from the
corporate limits only under exceptional
circumstances.
Even with the maximization of resources, one
thing is clear, Kendallville must grow in ways
that consider the impact on these public
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
71
Serve Community Needs
PARKS AND RECREATION
Residents of Kendallville are proud of the
community’s recreational amenities. Those
amenities include Bixler Lake Park and
Campground – a 117 acre lake with two (2)
beaches surrounded by over 400 acres of park
land including three plus (3+) mile walking
trail, and playgrounds; Sunset Park; the
Kendallville Outdoor Recreation Complex;
and Blackman Woods Preserve. The Park
Department Office is housed in the Youth
Center off Iddings Street which is also used
for park programs.
ACRES, Inc. owns two (2) nature preserves in
Kendallville’s planning jurisdiction including
the twenty-five (25) acre Detering Nature
Preserve and thirty (30) acre Lonidaw Nature
Preserve. Detering Nature Preserve is located
east of Friendly Village with a trailhead off of
Kammerer Road. Lonidaw Nature Preserve is
located along Allen Chapel Road (County
Road 1000 East), just north of Kammerer
Road (County Road 700 North).
There are multiple private organizations that
offer a variety of fitness and wellness
opportunities, including the Cole Family
Center YMCA. Kendallville’s planning
jurisdiction contains three (3) golf courses:
Kendallville Country Club, Noble Hawk Golf
Links, and Cobblestone Golf Course.
Clearly, Kendallville’s park land and
recreational opportunities are above average
from a quality and quantity perspective. This
Comprehensive Plan recognizes that fact and
commends past and present City officials for
their commitment to providing these services
to the community. The following components
should be viewed as ways to improve upon
and better utilize these already fantastic
community resources.
A Five-Year Park and Recreation Master Plan
should be completed and approved by the
Indiana Department of Natural Resources
(IDNR) so that Kendallville can be eligible for
State and Federal grants. These grants are
72
generally for land acquisition and park
development and improvement. Like the
other City departments, the Park Department
budget is tight, and leveraging its resources
with grants and donations from outside
agencies is critical to successful
implementation of new projects and programs.
The most recent Five-Year Park and
Recreation Master Plan expired in 2005.
Many of the projects in that Plan have been
completed; those that have not been
completed should be reconsidered to see if the
projects still have merit given the needs and
demands of the community and the resources
available to the Park Department.
Because Kendallville park resources are so
great – from a quantity and quality
perspective, the City has faced some
challenges with funding maintenance. The
community must get creative on generating
income and reducing expenses. Bixler Lake
Park and Campground and the new Recreation
Complex have so much to offer. They are
fantastic resources, and the community should
strive to use the facilities for more events and
activities. Maximizing the use of these
facilities could be a way to generate funds to
offset some of the maintenance costs.
The Kendallville Outdoor Recreation Complex is an
eighty-nine (89) acre facility for outdoor sports and
special events. The facility boasts four (4) diamonds,
three (3) soccer fields, basketball, and shuffleboard
courts.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Serve Community Needs
A cost-benefit analysis should be conducted
on the current services provided by the Park
Department to determine the least effective
programs. The result could be to eliminate the
least effective programs or to retool them to
be more efficient. Another analysis might
look outside the Park Department’s programs
to see if programs offered by other
organizations duplicate the Park Department’s
offerings. The Park Department could
consider partnering with these organizations
or dropping duplicate park programs all
together.
The State of Indiana is working towards
acquisition of strategic parcels of abandoned
railroad right-of-way on the northwest edge of
Kendallville. The abandoned railroad rightof-way is for the development of a trail
between Rome City and Kendallville. The
State, through the Department of Natural
Resources, intends to continue the land
acquisition process and hold title to the land
until a local organization is willing to accept
the land and spearhead construction of the
trail.
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Relocation of the Park Department Office
to Bixler Lake Park;
Development of an outdoor amphitheater;
Development of a downtown plaza or
park; and
Small parks or recreational facilities
integrated near neighborhoods that do not
currently have a park within walking
distance.
Pedestrian Network: Destinations within
Bixler Lake Park and Campground are
connected by existing trails. The trails make
up three (3) formal walking trails that are
published and made available to park patrons
along with a tree and shrub identification
guide. There is also a mountain bike trail
within the Bixler Lake Park.
The Kendallville community supports this
effort to the extent possible because it would
add a new recreational opportunity for those
desiring fitness running or fitness cycling and
elevates the pedestrian network to a new level
by providing connectivity to an adjacent
community. Later phases of the project could
branch off towards the Kendallville Municipal
Airport, extend through Kendallville accessing
Noble Hawk Golf Links and Blackman
Woods Preserve on the south side of the City;
and continue south toward Avilla.
New Projects
New capital projects for the Kendallville
Parks and Recreation system should be
focused on the following (in no particular
order):

Development and expansion of a
pedestrian network;
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Trails within Bixler Lake Park and Campground are
comprised of a variety of different surfaces and
provide pedestrian access around the entire perimeter
of the lake.
73
Serve Community Needs
Bixler Lake Park and Campground’s internal
trail system is connected to neighborhoods
west of the park by sidewalks along Diamond
Street and Sherman Street. Consideration
should be given to extending sidewalk along
Lake Park Drive (from Cedar Street) where it
enters the park and connecting to the existing
pedestrian walkways along Lake Park Drive
that leads north around the lake.
Bixler Lake Park and Campground, the
Kendallville Outdoor Recreation Complex,
and the Mid-American Windmill Museum are
physically very close to one another, and
should have a more formalized pedestrian
connection between them.
Funding for trails and other pedestrian
facilities, particularly those that provide
connectivity to destinations or other pedestrian
facilities, can be available from a variety of
sources including natural resources,
recreation, health, and transportation agencies.
Relocation Park Office: The relocation of the
Park Department Office to Bixler Lake Park
and Campground makes sense from an
operational perspective. Bixler Lake Park is
the hub for recreational activity in
Kendallville, and department’s maintenance
facility is located there. Having the Park
Department Office physically located in
Bixler Lake Park makes the office more
accessible to park patrons and allows for
easier supervision of park-related activities. A
new location may result in internal
communication efficiencies, resource
efficiencies, and additional opportunities to
provide programming in cooperation with the
Kendallville Public Library.
carefully, it could be a source of revenue to
facilitate additional community events.
Furthermore, an organization other than the
Park Department may be able to facilitate
programming and promotion.
Downtown Park: A new pocket park or
outdoor plaza area in downtown could serve
as the center for public events and activities
that contribute to the vitality of the community
core. It could also serve as outdoor seating for
a restaurant.
New Parks: The Kendallville Subdivision
Control Ordinance should require new
residential developments to set aside land for
open space or to establish a recreational
facility or park. The maintenance of these
facilities would be the responsibility,
collectively, of the property owners. This
concept is widely adopted by other
communities in the Midwest and serves to
assure park amenities exist within walking
distance of each household. Similarly,
regulations may be adopted requiring or
encouraging large non-residential
developments to establish simple green spaces
or recreational facilities for their employees.
Outdoor Amphitheater: An outdoor
amphitheater could be used to enhance a
variety of existing community events and add
more family-friendly events to Kendallville.
Existing parks possess areas that could be
appropriate for such a facility. While the
construction and maintenance costs of an
outdoor amphitheater should be studied
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CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Chapter Six
Stimulate Economic Growth
Stimulate Economic Growth
Introduction
This chapter looks at ways to expand the local
economy, while also looking at how to
collaborate effectively with economic
development organizations and other
Northeast Indiana communities for economic
growth. It should be noted that the nation has
been experiencing a recession characterized
by job losses, high unemployment, mortgage
defaults, and declining property values.
Kendallville has experienced, firsthand, the
national recession, including plant closures
and high unemployment.
Successful economic development must
leverage local and business resources
including shovel ready sites, redevelopment
buildings and sites, utility infrastructure,
human capital, entrepreneurs, and business
leaders. It must also recognize that
community quality of life is a factor.
The remainder of this chapter contains a goal,
objectives, and implementation measures that
elaborate on strengthening the local economy.
Note, implementation measures are
abbreviated as IM, and identified with a
number that corresponds with the appropriate
objective.
76
Goal: Stimulate Economic Growth
Expand and diversify the local economy to
enhance the standard of living for current and
future residents of the City of Kendallville.
Objective 1: Strengthen the comprehensive expansion and
retention program.
IM 1.1 Together with the Noble County
Economic Development Corporation,
work to establish and maintain an
inventory of existing business and
industry, and determine which has the
greatest potential for expansion.
IM 1.2
Identify the City’s best entrepreneurs
and understand, through their
experiences, how improvement can be
made to the local economy.
IM 1.3
Establish local incentive programs
targeted to help existing businesses.
IM 1.4
Publicize State incentive programs.
Objective 2: Foster entrepreneurship and small business
development.
IM 2.1 Develop a local entrepreneurship or
business apprenticeship program led
by successful businesses.
IM 2.2
Work with existing business and
industry to determine goods and
services that are needed locally, but
not available.
IM 2.3
Update the Kendallville Zoning
Ordinance to expand provisions for
home-based businesses that have
minimal impacts on adjacent
properties.
IM 2.4
Work to transition successful and
growing home-based businesses to
commercial or industrial areas.
IM 2.5
Establish an entrepreneurship center or
small business incubator that would
provide space and assistance for new
start-up business and industry or
business and industry in transition.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Stimulate Economic Growth
Objective 3: Promote orderly and sustainable economic
growth.
IM 3.1 Strongly encourage new business and
industry to locate in areas where
adequate public facilities exist, within
service areas of existing emergency
services, and in areas zoned for such
uses.
IM 3.2
IM 3.3
Promote the redevelopment of vacant
buildings and properties and
discourage premature development of
greenfield sites.
Ensure proposed business and
industrial sites are compatible with
surrounding uses and ensure
redeveloped sites are sensitive to
adjacent uses.
Objective 4: Continually assess and strive to improve the
quality of life for residents.
IM 4.1 Recognize the relationship between
quality of life and business and
industry recruitment.
IM 4.2
IM 4.3
Work with the local high schools, Four
County Area Vocational Cooperative,
the Freedom Academy, the
Kendallville Public Library, and
Literacy Empowerment Advocacy
Program (LEAP) to equip students and
displaced workers with the skills
needed to fill local employment needs.
Objective 5: Position Kendallville to grow and attract the
industry it needs to strengthen and diversify.
IM 5.1 Evaluate the local organizations
involved in economic development
and determine a single primary
contact.
IM 5.2
Determine what types of business and
industry are best suited to diversify
and complement the existing economic
base.
IM 5.3
Recognize the need for, and encourage
the development of, information
infrastructure and business class
internet access in Kendallville.
IM 5.4
Develop an incentive program that
rates and qualifies projects based on
pre-determined criteria.
IM 5.5
Commit to investing in, and setting
aside money for, economic
development projects with emphasis
on “packaging” sites and buildings for
redevelopment.
IM 5.6
Continue participating in regional
economic development efforts that
support the Northeast Indiana region
on a national and global scale.
IM 5.7
Utilize the value of the Kendallville
Municipal Airport to attract and grow
business and industry.
Strive to establish a culture of planning
and communication that will lead to
new efficiencies and the best means to
utilize the community’s resources.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
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Stimulate Economic Growth
Objective 6: Recognize the role that tourism can play in the
Kendallville economy.
IM 6.1 Maintain and support the Kendallville
Chamber of Commerce, the Noble
County Convention and Visitors
Bureau, and other agencies that play a
role in local tourism.
IM 6.2
Strive to attract first class serviceoriented businesses that provide
dining, shopping, accommodations,
and experiences to meet the needs of
tourists.
IM 6.3
Organize and promote events
throughout the year that help generate
funds for local resources and that raise
awareness of Kendallville’s assets.
IM 6.4
In conjunction with the Noble County
Convention and Visitors Bureau,
develop a strategy to promote tourism
within Kendallville, specifically.
Additional Information
The City of Kendallville is committed to
investing in economic development. While
other communities are using their County
Economic Development Income Tax (CEDIT)
revenues to fund budget shortfalls,
Kendallville has allocated all their County
Economic Development Income Tax (CEDIT)
revenue through 2018 to develop the
Kendallville Industrial Park East and provide
incentives to local business and industry.
There are several agencies that promote
economic development in Kendallville. The
following organizations are listed as
“economic development contacts” on the
City’s website.

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Kendallville Economic Development
Commission;
Kendallville Economic Improvement
District;
Kendallville Economic Development
Advisory Committee;
Kendallville Redevelopment Commission;
Kendallville Local Development
Corporation; and
Kendallville Chamber of Commerce.
In addition to the aforementioned
organizations, the City partners with the
following regional organizations to promote
Kendallville on a larger scale.

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
Indiana Economic Development
Corporation;
Region 3A;
Noble County Economic Development
Corporation;
Northeast Indiana Regional Partnership;
and
THR!VE Noble County, an initiative
sponsored in part by the Indiana Home
Town Competitiveness model.
Each organization has its own mission,
purpose, list of member contacts, as well as a
role in economic development in Kendallville.
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CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Stimulate Economic Growth
To create a clear and organized first
impression, Kendallville should determine and
publicize a single point person or organization
as the primary contact.
AVAILABLE SITES
The Noble County Economic Development
Corporation website lists eight (8) available
industrial buildings with over 430,000 square
feet of space on thirty-nine (39) acres within
Kendallville’s planning jurisdiction. By
comparison, there are two (2) undeveloped
industrial lots totaling 100 acres listed on the
same website. Clearly, this information is
subject to change regularly, but these figures
express the substantial number of vacant
industrial facilities in Kendallville. Although,
the City still receives property tax revenue
from these vacant facilities, they can
negatively impact community character and
may decrease adjacent property values.
One (1) of the economic development
organizations in Kendallville should focus
heavily on these properties. A cost-benefit
analysis should be conducted determining
options (e.g. redevelopment, reuse, and/or
demolition). To complement the creation of
“shovel ready sites,” perhaps Kendallville
should work with owners of these properties
to create “turn-key” facilities.
Redevelopment of vacant industrial facilities must be
a key component of economic development in
Kendallville.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
EXPANSION AND RETENTION
The expansion and retention of existing
business and industry should receive as much
attention and effort, if not more, than
attracting new business and industry. It is
critical that Kendallville’s economic
development efforts are based on expanding
and strengthening existing business and
industry. City and economic development
officials should foster and maintain
relationships with existing industries, and
through them, strive to better understand the
local business climate.

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Where are decisions made for the plant;
What issues do local companies face;
Who are their suppliers;
Who are their buyers; and
Are there concerns with local labor or
labor organizations?
Understanding and building relationships with
local business and industry increases the
City’s awareness of the pressures faced by
local business and industry and allows the
City to deal directly with issues before they
become “deal-breakers.” Often, a good
understanding of perspectives and strong
relationship enables both parties to capitalize
on opportunities which they might not
otherwise be aware.
NEW ECONOMIC GROWTH
Entrepreneurship
While Kendallville wants to provide support
for business and industry, the City recognizes
that homegrown businesses generally have
stronger ties to the local community and a
commitment to stay and invest locally as the
business prospers. Successful homegrown
businesses are a source of pride for the
community. Additionally, small businesses
and small industries are a critical component
of a healthy economy. For these reasons,
Kendallville will focus on assisting
entrepreneurs and small business startups.
79
Stimulate Economic Growth
An entrepreneurship center or business
incubator in or near Kendallville could offer
many services and benefits to the emerging
business community. The facility could offer
educational programs and assistance to
inexperienced entrepreneurs that might have a
great concept, but not know what to do next.
It could provide accounting, legal, human
resource, and tax advisor services to new
businesses to make sure these administrative
details are not overlooked. Training may also
include enhancing the creative potential of the
entrepreneur, allowing the person to reinvent
an existing business to become more
productive, or allowing a startup venture to
get off the ground with greater chance of longterm success.
Kendallville has organizations that could
facilitate or assist with the development of an
entrepreneurship center or business incubator.
The Four County Area Vocational
Cooperative, the Kendallville branch of the
Service Corps of Retired Executives
(SCORE), and the entrepreneurial pillar of the
Noble THR!VE program currently provide
similar services, but not under the auspices of
a formal entrepreneurship center or incubator.
Recruitment
Regional economic development agencies
typically focus on recruitment, and get the
local government involved when interest is
expressed. Kendallville should prepare for
new recruits by knowing the types of business
and industry that will diversify and
complement the existing economic base. The
community should be prepared to showcase its
quality of life and local amenities, and offer
incentives.
Noble County Economic Development
Corporation work hand-in-hand with local
officials. Both groups offer a variety of
incentive packages to complement local
incentives.
Kendallville will continue the use of local
economic incentives, but only when a project
provides a notable benefit to the community.
The key is to make sure incentives are offered
only to the very best projects that will provide
the most benefit.
Kendallville should develop a set of
“incentive criteria” to rate and qualify
economic development projects. These
criteria determine an economic development
project’s eligibility for incentives. For
instance, projects that involve the location of a
locally-owned corporate headquarters might
rank higher than a project involving
construction of a new manufacturing plant. A
project that doubles its workforce might rank
higher than one (1) that adds only ten percent
(10%) to its workforce. Projects that are not
sensitive to the environment or public health
may not qualify for incentives. Projects
creating high-wage jobs rank higher than
those that create low-wage jobs, and so on.
It is important that the criteria be determined
and made available before ranking projects.
This means the industry knows, in advance,
what the community seeks and can determine
where its project ranks even before requesting
incentives.
Kendallville is familiar with and has
employed a variety of state and local
incentives. Tax increment financing (TIF),
tax abatement, and bond financing are local
incentives that can be used for economic
development projects. The State of Indiana
Economic Development Corporation and the
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CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Stimulate Economic Growth
THE ROLE OF TOURISM
The tourism industry in Kendallville
contributes to the economy, but more
importantly, it adds value to the quality of life
for its residents. Notable facilities include
Bixler Lake Park and Campground, the MidAmerican Windmill Museum, the Kendallville
Outdoor Recreation Complex, and downtown
Kendallville. Notable events include
Bluegrass Festivals, Kid City, Apple Festival,
and the Noble County Fair.
Kendallville will strive to become a “minivacation” destination for the average family.
These “mini-vacations” might include visitors
in town for a tournament; visitors in town
staying with family or friends; visitors in town
for an event; or folks just passing through.
Networking with local and regional bus
companies to become the destination of a
“mystery trip” would be one way to boost
local tourism.
Having family-friendly amenities and events provides
opportunities for visitors to experience the City’s
amenities and interact with Kendallville’s biggest asset
– friendly and caring residents.
A handful of the projects contained within this
Comprehensive Plan would enhance the
existing tourist and visitor amenities: a
pedestrian network linking local attractions;
the continued revitalization of downtown; the
development of a downtown plaza or park;
and an outdoor amphitheater.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
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Stimulate Economic Growth
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CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Chapter Seven
Nurture Environmental Quality
Nurture Environmental Quality
Introduction
Clean water, clean air, clean soil, and an
aesthetically pleasing environment are some
of the reasons for nurturing environmental
quality. Maintaining natural areas and
restoring natural features will enhance the
quality of life in the City of Kendallville.
Bixler Lake, Round Lake, Little Long Lake,
Henderson Lake, and Bixler Lake Ditch (i.e.
Deible Creek) are prominent water resources
in the City of Kendallville. Because the flood
zones in Kendallville are generally
undeveloped, the City is impacted very little
by flooding. It is important to preserve natural
drainage patterns so that flooding continues to
be a non-issue for the community.
The remainder of this chapter contains a goal,
objectives, and implementation measures that
elaborate on nurturing environmental quality.
Note, implementation measures are
abbreviated as IM, and identified with a
number that corresponds with the appropriate
objective.
84
Goal: Nurture Environmental Quality
Enrich environmental systems and features
within Kendallville’s planning jurisdiction.
Objective 1: Minimize conflicts between development and
the natural environment.
IM 1.1 Allow flexibility for new
developments to preserve (i.e. avoid
developing) existing high quality
natural features and habitats.
IM 1.2
Require buffers to filter surface water
before it reaches a lake, creek, or ditch.
IM 1.3
Integrate open space in future
developments to provide recreational
amenities and natural habitats.
IM 1.4
Require suitable soils as a prerequisite
for development.
IM 1.5
Work through the Noble County
Surveyor and appropriate state
agencies to strengthen and enforce
regulations that minimize soil erosion
and prevent pollution at construction
sites.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Nurture Environmental Quality
Objective 2: Protect the quality and quantity of ground
water and minimize surface water contaminants.
IM 2.1 Monitor changes in State and Federal
laws dealing with groundwater
supplies, and comply with applicable
requirements.
IM 2.2
Manage stormwater runoff to maintain
and enhance water quality of lakes and
streams.
IM 2.3
Denote wellhead protection areas
around the community’s wells and
protect them from uses that can
contaminate drinking water.
IM 2.4
Reduce discharges of non-point source
pollutants through education, storm
water management, and reduction of
impervious surfaces.
IM 2.5
IM 2.6
Require buildings and impervious
surfaces to be set back from the top of
the bank of a stream or ditch.
Utilize native or prairie grasses and
other absorption plant materials along
regulated ditches.
Objective 3: Conserve and restore natural areas, including
woodlots, wetlands, and water features.
IM 3.1 Participate in State and Federal
programs [e.g. Natural Resource
Conservation Service (NRCS); Farm
Services Administration (FSA); US
Department of Agriculture (USDA);
and Indiana Department of Natural
Resources (IDNR)] to conserve,
sustain, and restore natural areas.
IM 3.2
Support the newly created Tree
Commission in its efforts to achieve
“Tree City USA” status.
IM 3.3
Require appropriate landscaping be
installed, especially canopy trees,
when new development occurs.
IM 3.4
Encourage new development to
preserve existing natural areas through
the use of development incentives.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Objective 4: Improve Air Quality.
IM 4.1 Support efforts to make trails
accessible, reliable, safe, convenient,
and an attractive alternative to
vehicular transportation.
IM 4.2
Give priority to “clean” business and
industry when economic development
incentives are requested.
Objective 5: Develop and promote a solid waste
management plan that emphasizes waste reduction and
recycling.
IM 5.1 Advocate the expansion of recycling to
minimize waste disposal of plastic
bottles, cardboard, metal, and other
recyclable items.
IM 5.2
Modify the Kendallville Zoning
Ordinance to allow alternative energy
sources (e.g. solar panels and wind
turbines).
IM 5.3
Educate the development community
about the benefits of “green”
buildings, and encourage the
development of “green” buildings in
Kendallville.
85
Nurture Environmental Quality
Additional Information
The Kendallville community wants to
conserve, preserve, and protect its
environmental amenities, but not to the point
where the amenities cannot be enjoyed by
residents. There must be a balance between
providing access, enjoyment, education, and
recreation in these natural areas while
protecting and preserving them for future
generations.
WATER QUALITY
Water bodies generally have a designated use
associated with them. These uses can include
drinking water, fishing, swimming, recreation,
aesthetics, or irrigation. Each designated use
has specific water quality standards
established by the Environmental Protection
Agency (EPA). The Federal Clean Water Act
requires states to identify waters that do not
meet those water quality standards and are
therefore classified as “impaired.” Indiana’s
Department of Environmental Management
(IDEM) is responsible for testing and
classifying waters in Indiana.
According to Indiana’s 2008 list of impaired
water bodies [known as the 303(d) list]
prepared by the Indiana Department of
Environmental Management (IDEM),
Henderson Lake is the only impaired water
feature in Kendallville. The quality standard
not being met is polychlorinated biphenyls
(PCBs) in fish tissue.
Kendallville is sensitive to land uses and
practices that may contaminate ground water
resources and/or surface water resources.
Kendallville’s lakes are an amenity and asset
that need to be protected against degradation.
Development that poses a risk to ground water
and surface water will be prohibited unless
proven measures are used to protect the water
resource.
Drainage and storm water management for
developments within Kendallville’s planning
jurisdiction is governed by the Noble County
86
Storm and Erosion Control Ordinance and
approved by the Noble County Surveyor’s
Office. This allows impacts of development
to be considered on a county-wide scale.
Kendallville should participate in the process
of reviewing drainage plans for new
developments, and should not hesitate to
provide comments, positive or negative, about
drainage.
While flooding causes more damage to
communities than any other type of natural
disasters, Kendallville does not have large
floodplain issues. The Federal Emergency
Management Agency’s (FEMA) Flood
Insurance Rate Map (FIRM) shows that the
100-year floodplain is limited to areas around
the lakes and along the ditches between the
lakes. Regardless of the limited floodplain,
Kendallville will protect these small areas
from development, and discourage
development in areas known for localized
flooding [those not shown on the Flood
Insurance Rate Map (FIRM)].
CONSERVING AND MANAGING OTHER ENVIRONMENTAL
AMENITIES
Kendallville has areas that are or could be
considered wetlands and wet soils. The City
will strive to ensure State and Federal laws for
wetland mitigation are met, and will consider
ways to limit development in these areas.
Some mitigation techniques include
encouraging the use of conservation
easements, promoting planned developments
that are designed to preserve these areas, and
requiring high quality soils that are suitable
for development.
Woodlots should be managed and preserved to
the greatest extent possible. ACRES Land
Trust has already acquired two (2) large
woodlots and established nature preserves in
each. A tree stand can reduce air temperatures
in the summer by as much as ten degrees
Fahrenheit (10ºF); clean pollutants from the
air, absorbing an estimated ten (10) tons of
carbon dioxide per year per acre of wooded
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Nurture Environmental Quality
lot; and reduce the soil erosion on adjacent
construction sites. For the property owner,
saving a few trees on-site reduces energy bills
and may make the property more valuable and
easier to sell. New development should be
designed to minimize the impact on existing
woodlots and tree stands.
The City of Kendallville is working towards
becoming part of the Tree City USA program.
A Tree Commission has been formed for this
purpose. To be designated a Tree City,
Kendallville needs to adopt and implement a
tree care ordinance; pass a proclamation for
the observance of Arbor Day; and fund a
community forestry program with an annual
budget of two dollars ($2) per capita. These
elements establish a framework for the
community to actively preserve and promote
trees. Besides the benefits of the trees
themselves, benefits of becoming a Tree City
include improved image of the community
and increased pride.
Riparian corridors are various zones of
vegetation located along rivers and creeks.
These corridors have significant ecological
and aesthetic value. Healthy riparian corridors
are typically composed of large trees, woody
understory and small flowers, grasses, and
groundcovers. This vegetation stabilizes the
banks of the waterway; reduces the amount or
sediments and pollutants entering waterways;
reduces water temperatures necessary to
support aquatic life; and lessens flooding and
drainage problems.
“GREEN” DEVELOPMENT
More than half of the participants in the
Community Values Survey responded
favorably to committing to becoming a
“green” community. While becoming more
environmentally conscious means different
things to different people, for the purposes of
this Comprehensive Plan, moving towards
“green” means reducing wastes, increasing
recycling, using alternative energy sources,
and promoting “green” development.”
The City of Kendallville has a yard waste
composting site that allows residents to drop
off grass clippings, branches, and other
unwanted plant materials. It is then
composted and converted into mulch that is
available to residents. This site is well-used
and reduces the quantity of wastes that go into
a landfill. The City should take the necessary
steps to ensure its longevity.
While there are only a few streams and ditches in the
“developed” part of Kendallville’s planning
jurisdiction, as the community grows it will encompass
more and more of these types of corridors. The City’s
ordinances should strive to minimize the effect
development has on these natural areas.
Kendallville’s only recycling drop-off site is
along Weston Avenue. The site is managed
by the Northeast Indiana Solid Waste
Management District. There have been issues
with the recycling facility being full or
overflowing, so the City should insist on
better management of that site and encourage
additional drop-off sites. Also, the costs and
participation rates of curbside recycling
should be evaluated.
Alternative energy sources, primarily solar
energy panels and wind turbines, are
becoming more mainstream as Americans try
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to lessen dependence on fossil fuels. There
are two (2) basic types of alternative energy
facilities: the first is an on-site device where
energy is generated and used on that site; and
the second is a commercial-scale facility
where large amounts of energy are generated
and connected to the energy grid for mass
distribution.
It is very possible to see interest in on-site
alternative energy devices in Kendallville’s
planning jurisdiction. The City should be
prepared to allow the use of these alternative
energy devices in a way that mitigates
negative effects to neighboring properties.
These regulations should be woven into the
Kendallville Zoning Ordinance. A large scale
energy generation facility requires vast
amounts of land, and while it is unlikely such
a facility would seek to locate in close
proximity to a municipality, the basic
framework for regulating this type of facility
should be included in the Kendallville Zoning
Ordinance.
Finally, Kendallville should become familiar
with and begin to educate the development
community on the concept of high
performance green buildings. Leadership in
Energy and Environmental Design (LEED) is
a nationally recognized rating system for
green buildings. This rating system promotes
a “whole-building approach” by evaluating the
building’s design, construction, and operation
and recognizing performance in five (5) areas:
sustainable site development, water savings,
energy efficiency, materials selection, and
indoor environmental quality.
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Chapter Eight
Strengthen Community
Character and Identity
Strengthen Community Character and Identity
Introduction
A community’s identity relies on physical
features, vitality, cleanliness, land use
patterns, cultural amenities, and reputation.
Kendallville wants a family-friendly
community with a balanced mix of job
centers, consumer opportunities, recreational
amenities, entertainment, and housing options.
Kendallville also wants a vibrant downtown to
strengthen the heart of the City.
Building on the positive aspects of
Kendallville is instrumental in retaining and
attracting residents and businesses. To
advance Kendallville’s character, the
following strategies are recommended.



Enhancing gateways and beautifying main
corridors;
Improving development standards for new
development through zoning and
subdivision standards; and
Revitalizing the downtown.
The remainder of this chapter contains a goal,
objectives, and implementation measures that
elaborate on strengthening community
character and identity. Note, implementation
measures are abbreviated as IM, and identified
with a number that corresponds with the
appropriate objective.
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Goal: Strengthen Community Character and
Identity
Develop and maintain a community identity
that promotes a positive and appealing image
of the City.
Objective 1: Enhance gateways into the community and
beautify main corridors.
IM 1.1 Identify main “entrances” into the
community and construct a physical
feature that exudes the character and
identity Kendallville desires to portray.
IM 1.2
Expand the scope and applicability of
the current architectural design and
landscaping standards required along
major thoroughfares to include noncommercial uses.
IM 1.3
Consider developing an “adopt a rightof-way” program to fund and maintain
improvements at gateways and along
major transportation corridors.
Objective 2: Preserve historic and cultural amenities.
IM 2.1 Encourage maintenance and
enhancement of historic structures and
cultural amenities through programs
such as the downtown façade grant
program.
IM 2.2
Develop guidelines for maintenance
and enhancement of historic structures.
IM 2.3
Educate and inform the community
about the role a Historic Preservation
Commission could play in preserving
the character of historic areas, and
work towards formation of such a
commission.
IM 2.4
Ensure that infill and redevelopment
projects in historic and cultural areas
are sensitive to the context and
appropriate for the area.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Strengthen Community Character and Identity
Objective 3: Promote the use of quality materials and
aesthetic standards.
IM 3.1 Modify the Kendallville Zoning
Ordinance to require the use of high
quality materials and design features
that are consistent with the image
Kendallville wishes to portray.
IM 3.2
Increase the minimum landscape
standards for all new development.
IM 3.3
Offer incentives to developers to
minimize monotonous and repetitive
design in residential subdivisions.
Additional Information
GATEWAYS
A community gateway can be a single element
in the landscape, such as a signature building
at a highly visible location. It can also be as
simple as a sign. Gateways are important
because they reflect the unique features and
values of that community and shape a visitor’s
first impression.
Objective 4: Improve the vitality of downtown Kendallville.
IM 4.1 Develop an inventory of existing
downtown businesses and establish an
open and working relationship with
business owners.
IM 4.2
IM 4.3
Recognize the importance of the Main
Street Business Association, and
encourage participation in that
organization.
Modify the Kendallville Zoning
Ordinance to include a downtown
commercial zoning district to ensure
infill and redevelopment in downtown
is sensitive to the context and
appropriate for the area.
IM 4.4
Address perceptions about the lack of
parking in downtown.
IM 4.5
Create a downtown park or plaza area
that can be used for existing and new
special events.
Objective 5: Improve the visual appeal of older
neighborhoods.
IM 5.1 Modify the Kendallville Zoning
Ordinance to include a traditional
residential district to accommodate the
issues specific to older neighborhoods.
IM 5.2
There are multiple signs welcoming passers-by along
US 6, traveling west. This sign, advertising
downtown Kendallville, is located more than a mile
inside the Kendallville City Limits.
Kendallville’s current gateways have been
blurred by the growth along US Highway 6
and State Road 3. It is hard to keep up with
where Kendallville begins and ends along
these main thoroughfares. Whatever the
gateway feature becomes, it must, at
minimum, be highly visible, made of high
quality materials, and well-maintained. The
gateway feature should be consistent at all
locations, but scaled appropriately.
As the community gateways project continues
to develop, the City should consider searching
for outside funding sources for
implementation.
Enforce the zoning regulations and
maintenance requirements for vacant
buildings and lots.
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Strengthen Community Character and Identity
CORRIDORS
Kendallville has already recognized the role
main corridors play in shaping a community’s
character and identity. The City has
implemented architectural standards for
commercial developments along arterial and
collector streets. These standards require the
use of quality materials on building façades,
breaks in expansive wall planes, screened
trash receptacles, and landscaping. The
application of these standards should extend
beyond commercial uses, and potentially
beyond major thoroughfares to include some
degree of quality standard for every type of
development in the community.
The Kendallville Zoning Ordinance requires the use
of high quality materials, such as brick or stone, on
façade facing major thoroughfares.
Overgrown and untidy right-of-way along US
Highway 6, primarily east of Main Street,
impacts the impressions of passers-by. These
areas are generally non-urbanized roadways
(i.e. no curb and no sidewalk) even though the
development is urbanized. The responsibility
of maintenance of these areas is an issue.
These issues should be brought up as the City
begins communicating with the Indiana
Department of Transportation (INDOT) about
the urbanization of this portion of US
Highway 6. In the meantime, for untidy rightof-way areas maintained by property owners,
the City should attempt addressing problem
areas casually. Possibly a letter from the
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Chamber or City or newspaper campaign
could bring about the desired effect.
ZONING AND SUBDIVISION STANDARDS
Kendallville will update its zoning and
subdivision control ordinances to establish
higher standards for development. In recent
years, courts have more frequently upheld
aesthetic regulations, and communities have
utilized such standards to improve the quality
of life and character of the community.
Kendallville is already requiring the use of
quality building materials and landscaping for
commercial developments along main
thoroughfares. These standards are a great
start, and after a few years of implementation,
the standards should be reevaluated to make
sure they are producing the desired effect on
the character of the community. Once a
community gets accustomed to higher quality
development, it is not uncommon for the
standards to be increased or made applicable
to non-commercial development.
Another key component of a community’s
character is signs. The City should take a
careful look at the current sign regulations and
how the use of signs adds to or detracts from
the community’s character.
An abundance of outdoor advertizing mechanisms can
detract from a community’s desired character.
This Comprehensive Plan emphasizes
redevelopment. Clearly, this is critical to
improving Kendallville’s character. While
changes to the Kendallville Zoning Ordinance
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Strengthen Community Character and Identity
will not “create” redevelopment, they can help
make redevelopment “more feasible.”
Buffering standards are critical to successful
redevelopment because older developments
were generally built on smaller lots with
smaller setbacks. Also, form and
performance-based regulations that look at the
physical characteristics of structures and
performance standards of uses may make it
easier to redevelop some properties.
A “traditional residential” zoning district
could be used to better regulate the conversion
of older single-family homes to multiplefamily units. This district would not
necessarily prohibit these types of
conversions; it would just require the
conversions be completed in a way that
compliments the neighborhood.
Modifying the Kendallville Zoning Ordinance
to include a “downtown commercial” zoning
district could allow uses by right that might be
appropriate in downtown, but not in other
commercial districts. Regulations of the
district might be more accommodating of the
physical restraints of downtown – for example
relaxed parking requirements. Also, the
proposed district would ensure redevelopment
of parcels and improvements to buildings are
sensitive to the context.
DOWNTOWN KENDALLVILLE
Downtown Kendallville has an outstanding
stretch of historic structures that is on the
National Register of Historic Places. Because
downtown is such a large contributor to
Kendallville’s character and identity, it is
critical that the downtown commercial district
be preserved and protected. Allowing a
mixture of uses in a downtown commercial
district (as previously discussed) and
discouraging the development of public
parking lots along the Main Street corridor
will help maintain downtown remain vital and
vibrant.
CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Downtown Kendallville has consistent and very
appealing streetscape features including handicap
accessible sidewalks, brick pavers, historic light
fixtures, flags, banners, trees, and seasonal plants.
There are some vacant buildings in downtown,
but there are also vacancies in nearly every
other commercial development in
Kendallville. The vacancies seem to be
conglomerated in the 200 block of South Main
Street on the west side of the street, and on the
100 block of South Main Street on the east
side of the block. The Kendallville Publishing
Company, the Kendallville City Hall, the
Strand Theater, the Northeastern Center, and
Weible’s Paint and Wallpaper have the largest
“sidewalk” presence on Main Street. It is
important to retain downtown occupants, these
in particular, because they occupy so many
storefronts and draw people downtown either
for business or employment.
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Strengthen Community Character and Identity
Kendallville has recently adopted a Façade
Improvement Matching Grant Program that
provides a dollar for dollar match for projects
that improve the exterior façades of downtown
buildings. There is a $15,000 limit on the
amount of the grant, and the program ensures
proposed improvements are sensitive to the
character of the structure and surrounding
structures. There has already been a great deal
of interest in the program, and such a program
will assist property owners in maintaining and
preserving the physical resources of
downtown.
Another way to help preserve the historic
character of downtown is to establish a
Historic Preservation Commission –
something that has been discussed, but not
implemented. The Façade Improvement
Matching Grant Program should be considered
an “educational step” towards the
establishment of a Historic Preservation
Commission, because the façade grant
program requires proposed improvements to
meet certain standards similar to what a
Historic Preservation Commission might
require. Once property owners and the public
become familiar with these types of
regulations and begin to see results, the City
should reconsider establishing a Historic
Preservation Commission.
Sometimes dealing with perception is more
difficult than dealing with reality. There is a
perceived parking problem in downtown
Kendallville. It is likely that a parking
shortage does exist at specific times – for
instance when a blockbuster movie is playing
at the Strand Theater. It is more likely
because a parking space or parking lot is not
available in front of the store’s front entrance;
folks assume that parking is not available,
which is not the case.
The Façade Improvement Matching Grant Program is
enhancing the character of downtown. The top photo
is a “before shot” of an approved grant project. The
bottom photo is “after.”
Signs along Main Street identify the location of public
parking lots located behind stores.
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CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Strengthen Community Character and Identity
The more people that visit downtown
Kendallville, the more vibrant the downtown
becomes. Downtown merchants express that
the best months for them are when events are
held in downtown – July’s car show;
October’s Apple Festival; and December’s
Christmas. These events draw people
downtown.
The development of a downtown plaza or
pocket park should be considered for
downtown Kendallville. Such a facility could
become the “event center” for downtown –
hosting an array of events and activities
throughout the year: an additional stage for the
Bluegrass Festival; a blueberry brunch; live
radio broadcasts; art in the park; and
community ice cream socials.
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Strengthen Community Character and Identity
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CITY OF KENDALLVILLE COMPREHENSIVE PLAN – 03/31/2010
Chapter Nine
Conclusion
Conclusion
Leaders in most communities are faced daily
with problems and situations that need
immediate resolution. This forces decisions to
be made on a reactive basis rather than a
proactive basis.
future is in the hands of its citizens... as
residents, businesses, and community leaders.
Kendallville’s leaders, interest groups, and the
general public can look to the Comprehensive
Plan as a positive vision for the future and
begin working towards its realization. By
instilling the vision of this document, leaders
can make decisions, set priorities, and
negotiate changes that are consistent with and
complementary to the goals, and objectives.
Growth and development can be directed in a
way that will provide the most benefit to the
community, strengthening its economic health
and the quality of life of its residents. Orderly
growth provides more opportunities for
quality development, resulting in protection of
Kendallville’s natural environment, amenities,
neighborhoods, and business districts.
By carrying out the implementation measures
contained in this document, the community is
more likely to achieve its long-range vision.
Effective implementation will require efforts
from the whole community, whether it is
teams of volunteers focusing on the
beautification of gateways or the combined
efforts of the City and businesses to spearhead
economic development. Successful
implementation will occur through a series of
small, manageable steps that, over time, build
upon the success of the previous efforts.
A comprehensive plan is not a static “set in
stone” series of unalterable ideas or projects.
To be effective, the Plan must be periodically
reviewed, evaluated, and updated to reflect
changing trends, outlooks, and thinking in the
community. In doing so, Kendallville can
collectively plan for the future in a positive
and proactive way.
Whether it is a vibrant downtown, a good mix
of residential communities, or a competitive
office and light industrial base, Kendallville’s
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