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2 0 2 5THE CITY OF SOUTH BEND • INDIANACOMPREHENSIVE PL AN
Our bridge to the future ...
Amended 2022
Area Plan Commision Approval Resolution
Common Council Approval Resolution
This copy of City Plan belongs to:
NAME:
CONTACT INFO:
Amendments to City Plan:
Northeast Neighborhood Plan - October 2022
Rum Village Neighborhood Plan - October 2022
Kennedy Park Neighborhood Plan - September 2022
Near West Side Neighborhood Plan - August 2022
Miami Hills Neighborhood Plan - July 2020
Southeast Neighborhood Plan - February 2019
West Side Main Streets - 2014
ABOUT THE COMMUNITY’S VISION
Hundreds of participants provided the basic input used by the
City Plan Civic Alliance and City staff to develop South Bend’s
vision statement, Envision South Bend in 2025 . . .. The vision
statement is a guiding element of this comprehensive plan and
has been used to develop its Goals, Objectives, and Policies.
South Bend Common Council adopted the
vision statement in May 2004.
Envision South Bend
in 2025 . . .
South Bend is a vibrant, caring city. Residents and
government celebrate our diversity and vitality.
Together, we nurture our educational, social,
cultural, natural, human and economic resources.
Our City Government dedicates itself to civic engagement with
open, effective dialogue among citizens and governing bodies.
We enjoy a high quality of life enriched through our achievements
of ethnic and racial harmony, volunteerism, philanthropy, and just
and equal access to economic and social opportunities.
We are a center of learning. Our excellent schools and world-class
institutions of higher education, engaged with the community,
prepare our youth to compete in the 21st century.
We are a community that fosters entrepreneurship, and attracts
and retains competitive businesses by continually investing in our
work force and technology.
We are a city of safe and unique neighborhoods with diverse
housing choices. We have a built environment that embraces our
historic heritage while facilitating progressive design and land use,
utilizing modern infrastructure.
We have a dynamic downtown that is a hub for housing, commerce
and government, and a regional destination for culture, arts and
entertainment.
We have an excellent transportation system that offers alternative
modes of transport, provides accessibility throughout the community,
values pedestrians, and is integrated locally and regionally.
We are proud stewards of the natural environment, preserving the
St. Joseph River as a valuable resource and cherishing our parks
and plentiful green spaces.
Welcome from the Mayor
October 2006
We have been through an extraordinary process to develop City Plan. The level of public
participation was unprecedented as we crafted our community’s blueprint for the future.
From the first visioning sessions in the fall of 2003 to the final public review meetings in
the summer of 2006, all segments of the community participated as true stakeholders.
The next 20 years will be an exciting time as City Plan guides our growth and development.
South Bend is the regional center for culture and finance, health care and education.
Following City Plan will enhance that role, and will bring heightened focus on the river
and on youth development. South Bend will be a community of choice because of our
flourishing downtown, new business opportunities, a vibrant housing market, commitment
to arts and entertainment, and educational excellence. Through strong partnerships, hard
work and good planning we will make South Bend a great Midwestern city.
Realizing this vision will require creativity in the face of financial constraints. Nevertheless
I am confident that our can-do attitude will build on our assets to help us thrive. Our
diversity and our willingness to encourage initiative and adapt to change will be key
components in our success. Please join me in committing our imagination, our talents
and our resources to implement this Plan as we make South Bend one of the most livable
cities in the country.
Sincerely,
Stephen J. Luecke
Mayor
ACKNOWLEDGMENTS
Cty of South BendStephen J. Luecke, Mayor
South Bend Common Councl
District 1: Derek D. Dieter
District 2: Charlotte D. Pfeifer
District 3: Roland Kelly
District 4: Ann Puzzello
District 5: David A. Varner
District 6: Ervin Kuspa
At Large: Al “Buddy” Kirsits
At Large: Timothy A. Rouse
At Large: Karen L. White
Cty Clerk
John Voorde
Cty Departments
Admnstraton and Fnance
Catherine Fanello, City Controller
Buldng
Don Fozo, Building Commissioner
Code Enforcement
Catherine Toppel, Director
Communcatons & Specal Projects
Mikki Dobski Shidler, Director
Communty & Economc Deelopment
Sharon T. Kendall, Executive Director
Fre
Luther Taylor, Chief
Legal Department
Charles Leone, City Attorney
Parks & Recreaton
Phil St. Clair, Superintendent
Polce
Thomas Fautz, Chief
Publc Works
Gary Gilot, Director
Department of Communty & Economc Deelopment
Sharon T. Kendall, Executive Director
Dson of Communty Deelopment
Pamela C. Meyer, Director
Dson of Economc Deelopment
Donald E. Inks, Director
Dson of Fnancal and Program
Management
Elizabeth Leonard, Director
Communty Deelopment City Plan Team
Project Management
George Adler
Jitin Kain
Marco Mariani
Pamela Meyer
Planners
Michael Divita
Chris Dressel
David Fecteau
Elizabeth Maradik
Administrative Support
Laura Raygoza
Nancy Schrager
Thanks to all other Community &
Economic Development colleagues and
interns who in various ways assisted
with City Plan.
...and to Jon R. Hunt (1942—2003) for his
contributions to City Plan.
City Plan Cc Allance
Jose Arevalo
Mara Boettcher
Vivian Lee Borysiak
Gail Brodie
Myra Butts
Solenia Carr
Linda Chism
Wayne Curry, Jr.
Jim Dincolo
June Edwards
Luis Espinoza
Ted Foti
John Hagen
Jan Halperin
John Hamilton
Larry Harringer
Ernest Haynes, Sr.
Linda Hopkins
Dawn Jones
Lynne LoSecco
David Martinez
Dave Nowak
AnnMarie Power
Roy Prince, Jr.
Donnie Rogers
Kevin Rooney
Arnold Sallie
Kathy Schuth
Gordon Slutsky
John Stamper
Connie Ray Tooley
Mike Urbanski
Susan Visser
Elonda Wilder-Hamilton
Myrtle Wilson
Todd Zeiger
Area Plan Commsson
Jim Clay
John DeLee
Steve Eslinger
Gary Gilot
Robert Hawley
Alberta Husband
Roland Kelly
Karl King
John McNamara
Willie Ed Morgan, Sr.
Larry Phillips
Gerry Phipps
Phil Sutton
Tim Walz
Richard Warner
John Byorni, Executive Director
Larry Magliozzi, Assistant Director
Specal Thanks
To the general public for
participating in the process to
create City Plan.
To These Individuals
Sandy Adler
Trinidad Alfaro
Dennis Andres
Leonora Battani
Nora Batteast
Tania Bengtsson
Carolyn Bilger
Allert Brown-Gort
Virginia Calvin
Mark Chambers
Fr. Christopher Cox
Lynn Coleman
Will Ditzler
Ann Divine
Anthony Dukes
Eleodoro Febres
John Fisher
Jim Frick
Tracy Graham
Thomas Gruber
Yeny Guerra
Nancy Hellyer
Robert Henry
Juan Hernandez
Amanda Holmer
William Howell
Charles Jamerson
Eugene Kim
Dave Kimble
Les Lamon
John Leszczynski
Michael Lykoudis
Larry Magliozzi
Jorge Marin
Mary McLain
Pat McMahon
Pastor Eddie Miller
Tom Miller
Carlis Phillips
Andy Place, Sr.
Steve Posten
Joan Raymond
Una Mae Reck
Cristina Rocha
Jesusa Rodriguez
Edwin Rosado
Beth Sanford
Dave Sassano
Mary Beth Saunders
Sandy Seanor
David Seymour
Frances Shavers
Don Sporleder
Darran Treamor
Ann Thompson
Fred Thon
LeRoy Troyer
Eliud Villanueva
Victoria Webb
Tonya Zozulya
To the South Bend Regional
Museum of Art for organizing
and exhibiting the Envisioning
The Future art exhibit.
Consultants/Advisors
Planning
Capraro Consulting Services
City of Grand Rapids, MI, Planning Department
City of Rochester, NY, Bureau of Planning
Edwards & Kelcey
Graphic Design/Media
CA Studios
Grass Roots Media
Pitcock Design Group
To the print and electronic media for
their support in advertising and
covering the City Plan process.
Public Meeting Venues
A.J. Wright Distribution Center
Century Center
Gospel Center Missionary Church
Greater St. John Missionary Baptist
Church
Ivy Tech State College
Leighton Center For Senior Health
Our Lady of Hungary School
Robinson Community Learning Center
St. Adalbert’s Parish
St. Joseph County Public Library
Main Library
Virginia M. Tutt Branch
Western Branch
South Bend Community School
Corporation
Adams High School
Edison Intermediate Center
Harrison Primary Center
Hay Primary Center
Jackson Intermediate Center
LaSalle Intermediate Academy
Monroe Primary Center
Nuner Primary Center
Perley Primary Center
Washington High School
South Bend Parks and Recreation
Charles Black Center
Erskine Golf Course
O’Brien Recreation Center
Pinhook Pavilion
South Bend Regional Airport
West Side Democratic and Civic Club
YWCA
TABLE OF CONTENTS
x
1. INTRODUCTION
A. PURPOSE. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
B. PLANNING AREA . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1
C. PLANNING HISTORY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
D. PLANNING PROCESS. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
E. PLAN CONTENT . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8
F. FUTURE GOALS. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
2. LOCAL CONTEXT
A. HISTORY OF SOUTH BEND . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .11
B. DEMOGRAPHIC INFORMATION . . . . . . . . . . . . . . . . . . . . . . . . .12
C. POPULATION PROJECTIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . .15
3. LAND USE AND GROWTH
A. CURRENT LAND USE. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
B. FUTURE LAND USE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .20
C. AREA-SPECIFIC PLANNING . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .24
D. MIxED-USE DEVELOPMENTS. . . . . . . . . . . . . . . . . . . . . . . . . . . .26
E. COMPATIBLE USES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .27
F. COORDINATING LAND USE AND
TRANSPORTATION PLANNING . . . . . . . . . . . . . . . . . . . . . . . . . .28
G. BALANCING GROWTH . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .28
H. ANNExATION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .29
I. PRESERVING OPEN SPACE. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .30
J. GOAL, OBJECTIVES, AND POLICIES . . . . . . . . . . . . . . . . . . . . . .31
4. TRANSPORTATION
A. ROADWAY SYSTEM. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35
B. TRANSIT SYSTEM . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .38
C. BICYCLE AND PEDESTRIAN SYSTEM . . . . . . . . . . . . . . . . . . . . .39
D. REGIONAL CONNECTIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .40
E. PLANNING AND COORDINATION . . . . . . . . . . . . . . . . . . . . . . .42
F. GOAL, OBJECTIVE, AND POLICIES . . . . . . . . . . . . . . . . . . . . . . .43
5. PUBLIC FACILITIES AND SERVICES
A. PUBLIC BUILDINGS AND COMMUNITY ASSETS . . . . . . . . . .47
B. STREETS AND PUBLIC WAYS . . . . . . . . . . . . . . . . . . . . . . . . . . . .48
C. WATER, SANITARY, AND STORM WATER SEWERS. . . . . . . . .49
D. TELECOMMUNICATIONS INFRASTRUCTURE . . . . . . . . . . . . .50
E. PARKS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .50
F. POLICE, FIRE, AND EMERGENCY MEDICAL SERVICES . . . . .52
G. PUBLIC HEALTH PLANNING. . . . . . . . . . . . . . . . . . . . . . . . . . . . . 55
H. GOAL, OBJECTIVES, AND POLICIES . . . . . . . . . . . . . . . . . . . . . .58
6. HOUSING
A. PLANNING FOR HOUSING . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .63
B. HOUSING VARIETY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .64
C. ExISTING HOUSING CONDITIONS . . . . . . . . . . . . . . . . . . . . . . .64
D. HOME VALUES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .66
E. DETERMINING MARKET VALUE . . . . . . . . . . . . . . . . . . . . . . . . . .66
F. POVERTY AND HOUSING . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .67
G. HOUSING TENURE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .67
H. NEW HOUSING AND NEIGHBORHOOD DEVELOPMENT . .69
I. GOAL, OBJECTIVES, AND POLICIES . . . . . . . . . . . . . . . . . . . . . .71
7. ECONOMIC DEVELOPMENT
A. URBAN DEVELOPMENT . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .75
B. BUSINESS DEVELOPMENT . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .77
C. LOCAL LAND DEVELOPMENT . . . . . . . . . . . . . . . . . . . . . . . . . . .80
D. PUBLIC/PRIVATE PARTNERSHIPS . . . . . . . . . . . . . . . . . . . . . . . .80
E. TOURISM. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 81
F. GOAL, OBJECTIVES, AND POLICIES . . . . . . . . . . . . . . . . . . . . . .83
8. ENVIRONMENTAL MANAGEMENT
A. THE ST. JOSEPH RIVER . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .87
B. THE PUBLIC WATER SUPPLY. . . . . . . . . . . . . . . . . . . . . . . . . . . . .89
C. BROWNFIELDS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .89
D. WETLANDS AND NATURAL OPEN SPACE HABITATS . . . . . .90
E. HOUSEHOLD HAZARDOUS WASTE . . . . . . . . . . . . . . . . . . . . . .91
F. TREE CITY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .92
G. ENERGY CONSERVATION. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .92
H. AIR QUALITY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .93
I. GOAL, OBJECTIVES, AND POLICIES . . . . . . . . . . . . . . . . . . . . . .95
9. URBAN DESIGN
A. URBAN FORM . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .99
B. DOWNTOWN AND SURROUNDING NEIGHBORHOODS. . 100
C. GATHERING PLACES. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 101
D. LANDMARKS AND HISTORIC PRESERVATION . . . . . . . . . . .102
E. PHYSICAL AND VISUAL CONNECTIONS . . . . . . . . . . . . . . . . .103
F. GOAL, OBJECTIVES, AND POLICIES . . . . . . . . . . . . . . . . . . . . .105
10. COMMUNITY BUILDING
A. NEIGHBORHOOD-BASED ORGANIZATIONS . . . . . . . . . . . . .109
B. PUBLIC PARTICIPATION IN LOCAL
GOVERNMENT AFFAIRS. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .110
C. RACIAL ETHNIC CHALLENGES. . . . . . . . . . . . . . . . . . . . . . . . . . .110
D. AREAS OF CONCENTRATED POVERTY . . . . . . . . . . . . . . . . . . .111
E. CRIME . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .111
F. Ex-OFFENDERS. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .112
G. OPPORTUNITIES FOR YOUTH . . . . . . . . . . . . . . . . . . . . . . . . . . .113
H. THE IDENTITY OF SOUTH BEND . . . . . . . . . . . . . . . . . . . . . . . . .114
I. GOAL, OBJECTIVES, AND POLICIES . . . . . . . . . . . . . . . . . . . . . .116
11. ARTS AND CULTURE
A. THE BENEFIT OF THE ARTS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .119
B. INTEGRATING THE ARTS INTO THE COMMUNITY . . . . . . .120
C. DOWNTOWN AS A REGIONAL ARTS DESTINATION. . . . . . 122
D. INCREASING ARTS AWARENESS AND ACCESSIBILITY. . . . 124
E. ARTS FUNDING AND OTHER SUPPORT . . . . . . . . . . . . . . . . .124
F. GOAL, OBJECTIVES, AND POLICIES . . . . . . . . . . . . . . . . . . . . .126
12. EDUCATION
A. SCHOOLS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .129
B. HIGHER EDUCATION. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .131
C. EDUCATIONAL ATTAINMENT. . . . . . . . . . . . . . . . . . . . . . . . . . . 132
D. ALTERNATIVE EDUCATION . . . . . . . . . . . . . . . . . . . . . . . . . . . . .133
E. SCHOOL PARTNERSHIPS. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 133
F. VOCATIONAL EDUCATION . . . . . . . . . . . . . . . . . . . . . . . . . . . . .134
G. CONTINUING EDUCATION . . . . . . . . . . . . . . . . . . . . . . . . . . . . .134
H. GOAL, OBJECTIVES, AND POLICIES . . . . . . . . . . . . . . . . . . . . .135
13. IMPLEMENTATION
A. IMPLEMENTATION TECHNIQUES . . . . . . . . . . . . . . . . . . . . . . .139
B. FUNDING . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .140
C. SHORT-TERM STRATEGIES . . . . . . . . . . . . . . . . . . . . . . . . . . . . .140
D. MONITORING AND REVIEW. . . . . . . . . . . . . . . . . . . . . . . . . . . . 142
E. HOW THE ACTION PLAN IS ORGANIZED. . . . . . . . . . . . . . . . 143
F. IMPLEMENTATION ACTION PLAN . . . . . . . . . . . . . . . . . . . . . .144
GLOSSARY
. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 163
x
TABLES
Table 2.1 Population by Race/Ethnicity in South Bend: 1990–2000 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12
Table 2.2 Age Distribution by Race/Ethnicity in South Bend: 2000 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13
Table 2.3 Educational Attainment in South Bend: 1990–2000 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13
Table 2.4 Household Size by Race/Ethnicity in South Bend: 2000. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
Table 2.5 Household Income in South Bend and St. Joseph County: 1999 . . . . . . . . . . . . . . . . . . . . . . . . . . .14
Table 2.6 Median Household Income in South Bend and St. Joseph County: 1980–2000. . . . . . . . . . . . . .14
Table 2.7 Specified Owner-Occupied Housing Units in South Bend and St. Joseph: 2000 . . . . . . . . . . . .14
Table 2.8 Owner-Occupied Housing in South Bend and the County Remainder, 1980–2000. . . . . . . . . .14
Table 2.9 Occupation of Employed Persons in South Bend: 2000. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
Table 2.10 Largest Employers in St. Joseph County: 2005 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .15
Table 4.1 2030 Transportation Plan Project Listing. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .37
Table 5.1 South Bend Police Department Average Response Times: 2004–2005. . . . . . . . . . . . . . . . . . . . . .53
Table 5.2 South Bend Fire Department Average Response Times: 2004–2005. . . . . . . . . . . . . . . . . . . . . . . .54
Table 5.3 Emergency Medical Services Average Response Times: 2004–2005 . . . . . . . . . . . . . . . . . . . . . . . .54
Table 6.1 The Age of South Bend’s Housing. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 64
Table 6.2 Windshield Surveys of South Bend Housing Units: 1991 and 1998 . . . . . . . . . . . . . . . . . . . . . . . . .64
Table 6.3 Median Sales Price of Existing Homes by Region in the United States: 2004. . . . . . . . . . . . . . . 66
Table 6.4 Value of Specified Owner-Occupied Housing Units, 2000 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .66
Table 6.5 Households and Housing in South Bend and St. Joseph County: 2000 . . . . . . . . . . . . . . . . . . . .68
Table 6.6 Owner- and Renter-Occupied Housing: 1980 – 2000 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .68
Table 7.1 Commuting Patterns to and from St. Joseph County, Top Five Areas: 2004 . . . . . . . . . . . . . . . . .78
Table 7.2 Selected Private Employment, by Industry: St. Joseph County: 1998–2003 . . . . . . . . . . . . . . . . .78
Table 10.1 Crime Rates in South Bend: 1995–2004 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .112
Table 12.1 Achievement Gaps, State of Indiana, based on 2002–2003 ISTEP . . . . . . . . . . . . . . . . . . . . . . . . .131
Table 12.2 Educational Attainment for Persons 25 Years and Older in South Bend, 1990 and 2000 . . . .132
MAPS
Map 3.1 Future Land Use Map . . . . . . . . . . . . . . . . .19
Map 3.2 Land Capacity: Land Available for
Development . . . . . . . . . . . . . . . . . . . . . . . .21
Map 3.3 Areas With Neighborhood and
Commercial Corridor Plans . . . . . . . . . . . . .25
Map 3.4 History of Annexations . . . . . . . . . . . . . . . . .29
Map 4.1 Street Classification . . . . . . . . . . . . . . . . . . . .36
Map 4.2 TRANSPO Routes. . . . . . . . . . . . . . . . . . . . . . .38
Map 4.3 St. Joseph County Bicycle Routes
and Trails. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .39
Map 5.1 Public Facilities. . . . . . . . . . . . . . . . . . . . . . . . .48
Map 5.2 Parks and Open Spaces. . . . . . . . . . . . . . . . . 51
Map 6.1 Recognized Neighborhood
Organizations. . . . . . . . . . . . . . . . . . . . . . . . . .63
Map 6.2 South Bend Historic Districts . . . . . . . . . . . .65
Map 7.1 Redevelopment and Economic
Development Areas . . . . . . . . . . . . . . . . . . . .77
Map 8.1 Wetlands. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 91
Map 11.1 Arts and Cultural Venues in
Downtown South Bend. . . . . . . . . . . . . . . . .121
Map 12.1 South Bend Community School
Corporation High School Districts. . . . . . .131
x
LOCAL CONTEXT
LOCAL CONTEXT 11
A parade on Michigan Street in downtown South Bend in the 1960s.
Postcard depicting the Oliver Chilled Plow Works.Postcard depicting the Studebaker Manufacturing Plant in the 1910s.
A. HisTOry Of sOuTH BENd
The St. Joseph River originates in Michigan and flows
south and west through northern Indiana on its
210-mile journey to Lake Michigan. Potawatomi
Indians of the Pokagon Band were the first known
people to live along the shores of the river. The
earliest European explorers settled at the river’s
southernmost bend. French explorer Rene Robert
Cavalier Sieur de La Salle first landed at what is now
Highland Cemetery in 1679. In 1823, Alexis Coquillard
founded a fur trading post a short distance from the
site of La Salle’s landing. The settlement’s name,
South Bend, indicates the importance of the river to
its inhabitants. Organized as a town in 1835, it was
incorporated as a city in 1865. South Bend is the
county seat for St. Joseph County.
Industry began developing in South Bend in the late
1830s. By the mid-1840s, manufacturers were locating
on two constructed canals called “races” on each
side of the St. Joseph River in the downtown. The
geographic location of the city was advantageously
chosen on the transportation route for merchandise
and tools needed in the West for development and
for the shipment east of forest products for eastern
markets. Railroads were built connecting South Bend
to Toledo and Chicago in 1851. South Bend’s strategic
location has always been one of its great strengths.
In the second half of the 19th century, South Bend’s
industry expanded rapidly. Locally owned industry
included the Studebaker Brothers Manufacturing
Company, the world’s largest producer of wagons;
the Oliver Chilled Plow Works (which contributed to
tremendous growth in agricultural production); the
Birdsell Manufacturing Company; and the Bendix
Corporation, as well as numerous smaller supporting
industries. These corporations provided the foundation
for South Bend’s growth for almost a century.
The massive industrial growth that marked the late
19th and early 20th centuries slowed in the years
following World War II. A number of the large
industries that had helped build South Bend are
no longer in the area. Local leaders responded to
this decline of heavy industry by diversifying the
local economy toward smaller scale manufacturing,
transportation/distribution-related industry, medical
services, education, and other professional services.
The city’s location along an interstate highway,
numerous railroads, and a fiber optic “highway”
continue to position the community for continued
growth into the high-tech future.
12 LOCAL CONTEXT
Sources: U.S. Census Bureau and City of South Bend.
Golden Dome at the University of Notre Dame, IN.
Sources: U.S. Census Bureau and City of South Bend.
A major presence in the area is the University of
Notre Dame, founded in 1842 northeast of the city
by the Reverend Edward Sorin, C.S.C., and six
Catholic brothers. Originally a school for
young men, the university became
co-educational in 1972. In 2004, the
university had a student
population of 11,479.
Today South Bend is a growing city
of about 108,000 residents spread
over approximately 40 square miles.
It is the home of numerous sports and
recreational opportunities for visitors
and residents alike, along with several
excellent institutions of higher education
and a renowned regional hospital.
B. dEmOgrApHiC iNfOrmATiON
Demographic trends are important to any community
concerned with growth: how to anticipate it, how
to encourage it, and how to accommodate it. Various
techniques are used to model how populations
change over time. An analysis of existing census
data showing population trends over the recent
past can help project forward the future size and
composition of the population and help a
community plan for future change.
population Change
South Bend has a long history as a city of industry,
its factories offering employment to skilled and
unskilled labor from Europe and the American South
for almost a century. Following the closing of the
Studebaker Corporation in 1963, however, the City’s
population began a 30-year decline. The 1990s
slowly began to reverse that trend as the local
economy adapted and diversified: the 2000 Census
showed an increase of 2,278 persons, or 2.2 percent,
the first gain since 1960. Comparatively, St. Joseph
County grew by 18,507, or 7.4 percent, during the
1990s (see Fig 2.1).
South Bend’s growth in the 1990s was exclusively
within the minority population. In 1960, South Bend
was 90 percent Caucasian. At the beginning of the
21st century, South Bend had become an increasingly
diverse community: 66.1 percent Caucasian, 24.6
percent African American, and 9.3 percent Asian,
Native American, some other race, or two or more
races. Hispanics, 8.5 percent of the population, were
the fastest growing group by far (see Table 2.1).
TABLE 2.1: Population by Race/Ethnicity in South Bend: 1990–2000
race/ethnicity 1990 2000
Change,
+ / -
%
Change
Caucasian 80,221 71,195 -9,026 -11%
African American 22,049 26,522 4,473 20%
Asian/Pacific Islander/Native Hawaiian 916 1,361 445 49%
Native American 386 440 54 14%
Some other race 1,939 5,250 3,311 171%
2 or more races n/a 3,021 3,021 n/a
Totals 105,511 107,789 2,278
Hispanic
(of any race)3,546 9,110 5,564 157%
100,000
150,000
200,000
250,000
300,000
Numberof Persons 1960 1970 1980 1990 2000
50,000
238,614 245,045 241,617 247,052 265,559
132,445 125,580 109,727 105,511 107,789
South Bend St. Joseph County
FIGURE 2.1: Change in Population: 1960-2000
LOCAL CONTEXT 13
TABLE 2.3: Educational Attainment in South Bend: 1990-2000
1990 population 2000 population
Population 25 years and over 67,916 100% 66,715 100%
Less than 9th grade 6,243 9.2%4,326 6.5%
9th to 12th grade, no diploma 12,786 18.8% 10,550 15.8%
High school graduate (includes equivalency) 21,301 31.4% 20,857 31.3%
Some college, no degree 11,423 16.8% 13,816 20.7%
Associate degree 3,629 5.3%3,618 5.4%
Bachelor’s degree 7,234 10.7%7,932 11.9%
Graduate or professional degree 5,300 7.8%5,616 8.4%
Percent high school graduate or higher 72.0%.7%
Percent bachelor’s degree or higher 18.5%20.3%
Sources: U.S. Census Bureau and City of South Bend.
Sources: U.S. Census Bureau and City of South Bend.Sources: U.S. Census Bureau and City of South Bend.
Age and race
In 2000, the median age for South Bend was 33
years. Population distribution consisted of 27.3
percent under the age of 18; 10.4 percent from 18 to
24; 29.3 percent from 25 to 44; 18.2 percent from 45
to 64; and 14.8 percent who were 65 years of age or
older (see Table 2.2).
Educational Attainment
The overall educational attainment for South Bend
residents improved over the 1990s. In 2000, almost
78 percent of South Bend’s residents had completed
high school, and more than 20 percent possessed a
bachelor’s degree or higher (see Table 2.3).
Households
According to the 2000 census, there were 42,908
households in South Bend. Household size varied
significantly by race/ethnicity. The average house-
hold size citywide was 2.45 (see Table 2.4).
In South Bend in 2000, 13,082 households (30.5
percent of all households) had children under the
age of 18; of those, 4,702 (35.9 percent of households
with children) were female headed. There were
13,953 households (32.5 percent of all households)
made up of individuals living alone; of those
householders, 5,434 (38.9 percent) were 65 years
of age and over.
Household income
In 1999, South Bend’s households were 42 percent of
all households in the county. While 54.1 percent of
all households in the county earning under $25,000
lived in South Bend, only 24.5 percent of those
earning over $100,000 did.
As Tables 2.5 and 2.6 indicate, South Bend attracted
an increasing proportion of the lower-income
residents living in St. Joseph County during the
last few decades of the 20th century.
TABLE 2.2: Age Distribution by Race/Ethnicity
in South Bend: 2000
Age Caucasian alone
African American alone
All other alone 2 or more races Hispanic(of any race)
Under 5 4,593 2,717 933 652 1,354
5 to 9 4,311 2,891 752 517 1,123
10 to 14 3,958 2,794 574 351 801
15 to 19 3,861 2,377 583 260 791
20 to 24 5,441 1,933 913 231 1,145
25 to 29 5,781 1,876 878 204 1,026
30 to 34 5,316 1,824 674 165 786
35 to 39 5,013 1,934 436 123 566
40 to 44 4,978 1,890 377 140 470
45 to 49 4,858 1,498 311 101 342
50 to 54 4,148 1,148 235 72 258
55 to 59 3,061 828 109 50 145
60 to 64 2,419 635 84 41 95
65 to 69 2,624 645 66 31 71
70 to 74 3,268 578 67 33 63
75 to 79 3,111 490 33 16 35
80 to 84 2,252 253 14 19 21
85 and over 2,202 211 12 15 18
Subtotals 71,195 26,522 7,051 3,021 9,110
TABLE 2.4: Household Size by
Race/Ethnicity in South Bend: 2000
race Average Household size
Caucasian 2.26
African American 2.80
American Indian 3.00
Two or more 2.89
Hispanic (of any race)4.02
Citywide averagehousehold size 2.45
14 LOCAL CONTEXT
Sources: U.S. Census Bureau and City of South Bend.
Sources: U.S. Census Bureau and City of South Bend.
Sources: U.S. Census Bureau and City of South Bend.
Sources: U.S. Census Bureau and City of South Bend.
Home Values
Income will determine to a large extent the value of a home a household can afford to
buy. South Bend has a larger percentage of its housing units valued at less than $50,000
than does the county as a whole.
The “value” of the homes comes from the value assigned by the head-of-household
who completed the census long form. The data indicates that South Bend contains
more than its “share” of homes valued under $50,000 while the county enjoys a much
larger percentage of homes at the upper end of the price scale.
Related data shows that in 1970, South Bend contained 53.7 percent of all net assessed
value in the County; in 2001, 29.9 percent of the County’s net assessed value was within
South Bend city limits.
Homeownership
Census 2000 indicates (see Tables 2.7 and 2.8) that the rate of homeownership in
South Bend has declined while homeownership in the county remainder (i.e., the
unincorporated portions of St. Joseph County) has continued to increase.
TABLE 2.5: Household Income in South Bend and St. Joseph County: 1999
south Bend st. Joseph County % of households in
south Bend
Number and percent earning
<$25,000 15,866 (37.2%) 29,319 (29.1%)54.1%
Number and percent earning
$25,000–$99,999 24,568 (57.7%) 62,353 (62.0%)39.4%
Number and percent earning
$100,000 and up 2,193 (5.1%) 8,957 (8.9%)24.5%
Total number of households 42,627 (100%) 100,629 (100%)42.4%
TABLE 2.6: Median Household Income in South Bend
and St. Joseph County: 1980–2000
1980 1990 2000
South Bend $15,678 $24,131 $32,439
St. Joseph County $17,570 $28,235 $40,420
South Bend as % of County 89.2% 85.5% 80.3%
TABLE 2.7: Specified Owner-Occupied Housing Units in
South Bend and St. Joseph County: 2000
Value south Bend st. Joseph County
<$50,000 6,941 (27.3%)9,534 (14.5%)
$50,000–$149,999 17,220 (67.9%) 45,880 (70.2%)
$150,000 and up 1,212 (4.8%)9,941 (15.3%)
Total units in sample 25,373 (100%) 65,355 (100%)
TABLE 2.8: Owner-Occupied Housing in South Bend and the County Remainder: 1980–2000
1980 1990 2000
South Bend
total occupied units 42,082 42,260 42,908
owner-occupied 29,530 27,867 27,054
% owner-occupied 70.2% 65.9% 63.1%
County
Remainder
total occupied units 27,834 32,104 37,587
owner-occupied 24,014 27,893 33,632
% owner-occupied 86.3% 86.9% 89.5%
LOCAL CONTEXT 15
Sources: U.S. Census Bureau and City of South Bend.Source: Chamber of Commerce of St. Joseph County.
For decades the area economy was known for its
dependence on large manufacturing operations. In
1950, the Studebaker Corporation alone employed
more than 24,000 people. Since that time the
economy has diversified, registering growth in
education and health care as well as in warehousing
and distribution.
As indicated in Table 2.9, manufacturing still remains
a significant sector of employment in the area.
Occupation of Employed persons
Table 2.9 illustrates the industry classification of
employed persons 16 years and older according to
the 2000 census. Educational, health, and social
services comprised the largest employment sector
with 11,422 jobs. Manufacturing was second with
9,338 jobs.
Largest Employers
In 2005, the University of Notre Dame was the largest
employer in St. Joseph County. Following the
University of Notre Dame, Memorial Health System,
the South Bend Community School Corporation, and
St. Joseph Regional Medical Center were the largest
employers in the region (see Table 2.10).
C. pOpuLATiON prOJECTiONs
projection method
Projecting the growth of a community’s population
is an important part of developing a comprehensive
plan. The population projections provided by the
Indiana Business Research Center (IBRC) for the City
Plan process were based on a “share-of-growth”
method, a method which projects the population of
a smaller area in relation to independent projections
for a larger area of which it is a part. In this case, the
IBRC’s projections for South Bend were related to
IBRC’s projections, released in July 2003, for
St. Joseph County. The cohort component method,
a relatively complex and data-intensive technique,
was used to generate the county-level projections.
The projections did not take into account economic
variables, such as employment levels and unemploy-
ment rates, because those variables are not as
predictable as the movement and lifecycle of
population which are, in and of themselves, the
best inputs to determine future population growth
or decline. However, economic variables can
significantly influence migration trends. It is impor-
tant to remember that population projections are a
useful planning tool, and is neither predetermined
nor inevitable.
TABLE 2.9: Occupation of Employed Persons in South Bend: 2000
industry Employment
south Bend - Employed civilian population 16 years and over:47,107
Educational, health, and social services 11,422
Manufacturing 9,338
Retail trade 5,759
Arts, entertainment, recreation, accommodation, and food services 3,628
Professional, scientific, management, administrative, and waste management services 3,518
Finance, insurance, real estate, and rental and leasing 2,577
Other services (except public administration)2,336
Construction 2,333
Transportation and warehousing, and utilities 1,934
Wholesale trade 1,789
Public administration 1,199
Information 1,189
Agriculture, forestry, fishing and hunting, and mining 85
TABLE 2.10: Largest Employers in St. Joseph County: 2005
Employer Number of Employees
University of Notre Dame 4,200
Memorial Health System 3,600
South Bend Community School Corporation 3,338
Saint Joseph Regional Medical Center, Inc.3,260
St. Joseph County 2,025
The Diocese of Fort Wayne-South Bend 1,750
City of South Bend 1,535
Indiana University South Bend 1,400
Madison Center 1,239
Meijer, Inc.1,200
16 LOCAL CONTEXT
implications of the iBrC
population projection
The IBRC’s share-of-growth method anticipates
South Bend capturing approximately 12 percent of
all St. Joseph County’s population growth during the
20-year period, 2005–2025. South Bend’s population
projection shows slow but steady population growth
throughout that 20-year period. In 2025, South Bend’s
population is projected to be 110,914, an increase of
3,025 persons over the 2005 total of 107,889.
The demographic composition of South Bend’s
population will continue to become more diverse
with growth projected in all groups except for
Caucasians, expected to decrease by more than
3,300 persons. The fastest growing racial/ethnic
groupings are anticipated among people identify-
ing themselves as two or more races and Hispanic.
The number of African Americans will continue to
increase though at a slower rate than other minorities.
South Bend’s population will also continue to
grow older. In 2005, according to census population
estimates, 14,767 persons, 13.6 percent of the
population, were 65 years of age and older; in 2025,
that age group will have grown to 19,756 persons,
17.8 percent of the population.
The population of school age children is expected to
change very little through 2025, though it is projected
to drop slightly below the 2005 figure. Perhaps
more worthy of note are the expected racial/ethnic
shifts, requiring more effort to accommodate the
educational needs of the growing Hispanic and
multicultural populations.
The IBRC’s projection expects changing demographics
to have an impact on the composition of the avail-
able workforce. The racial/ethnic composition of
the population aged 25–54 (the prime working age
years) will make it advantageous for business leaders
and managers to have bi-lingual or multi-lingual
capabilities and to be effective in communicating
with workers who have varying degrees of proficiency
with the English language. More significantly for
economic development, the number of persons in
the prime working age years is projected to decrease
by 3,762 over the 20-year period.
A slowly growing, increasingly diverse community,
with an aging population and a declining number of
persons in the prime working age years, are some of
the challenges the population projections present.
Alternative growth Targets
The IBRC’s population projections were based on
the assumption that no significant change, positive
or negative, would occur in South Bend or the
surrounding area throughout the planning period.
The population projections were interpreted by
both the City and the general community as unde-
sirable and were, in fact, taken as a “call to action”
and one of the reasons for developing City Plan.
City staff then established a “preferred” rate of
growth as a goal that more accurately reflected the
aspirations expressed in the community’s vision
statement adopted by Common Council in May
2004. The growth goal established of approximately
16,500 persons over the 20–year planning period is
aggressive and assumes active implementation of
City Plan’s policies, including the action steps
contained in the Implementation Action Plan.
LOCAL CONTEXT 17
INTRODUCTION
INTRODUCTION
A comprehensive plan is a tangible representation
of where a community aspires to be in the future
and it establishes the guiding steps on how best to
achieve that vision through a framework of Goals,
Objectives, and Policies. The plan embodies the
community’s values and provides guidance regarding
development decisions during the planning period.
A. PURPOSE
City Plan is the comprehensive plan for the City
of South Bend. It is the City’s guide for decision-
making regarding physical development and the
allocation of resources. It provides local government
officials direction in developing programs and
strategies, making capital expenditures, and setting
annual budgets. Although the Plan focuses on most
aspects of city life related to the physical environment,
it touches on some important social aspects as well.
City Plan encourages residents and businesses to
join together to ensure that the community’s vision
is achieved.
City Plan is comprehensive in nature because of the
following three elements:· It is long range, covering a timeline of 20 years.· It addresses the entire geographic area of the city
and some area beyond the city limits.· It addresses 10 planning topics that have an effect
on the community’s quality of life.
B. PLANNING AREA
The City of South Bend is located in north central
Indiana and is the county seat of St. Joseph County.
The city covers an area of 40 square miles and is well
connected regionally and nationally by road, rail,
and air transportation. The St. Joseph River, which
has an east to west flow, is the city’s major natural
feature. The Michigan border is approximately six
miles north of South Bend’s Central Business District.
South Bend is the largest city in the “Michiana”
region, which includes four counties in northern
Indiana (LaPorte, St. Joseph, Elkhart, and Marshall)
and two in southwest Michigan (Berrien and Cass).
After South Bend, the largest cities and towns
within the region are Mishawaka, Elkhart, Warsaw,
and Plymouth, in Indiana, and Niles and Cassopolis
in Michigan.
South Bend attracts visitors from around the country
to its many tourist destinations and arts venues
including the Morris Performing Arts Center, the
College Football Hall of Fame, the Studebaker
National Museum, the Northern Indiana Center
for History, and the East Race (kayaking). Located
downtown and designed by the acclaimed architect
Phillip Johnson, the Century Center draws regional
and national conventions throughout the year.
C. PLANNING HISTORY
In 1921, the Indiana legislature enacted legislation
enabling municipalities to establish planning
commissions “to promote the orderly and
economic development of the urban area.” South
Bend established its first planning commission the
following year. The South Bend City Planning
Commission developed the basic institutional
framework for planning in the city by establishing
the following: Subdivision Rules and Regulations
(1922); a city Zoning Ordinance (1923); and the Board
of Zoning Appeals (1927). The City Planning
Commission completed its first Major Streets and
Thoroughfares Plan in 1923.
South Bend in its regional context.
INTRODUCTION
Prior to the early 1950s, planning efforts were
hampered by the lack of planning staff, resulting
in a lack of any overall coordination. To encourage
coordination, the City Planning Commission devel-
oped four reports/plans which, when consolidated,
became South Bend’s first comprehensive plan. The
four components of the comprehensive plan were:
A Report on Government Buildings Site Location for
St. Joseph County and South Bend, Indiana (1955);
Land Use Analysis (1957); Major Thoroughfares (1959);
and A Long-Range Plan for Recreation Areas (1960).
These were condensed into a smaller document
titled The Comprehensive Plan: A Condensation (1961).
Though the South Bend Common Council did not
adopt The Comprehensive Plan, many of the plan’s
elements were eventually realized. One example is
the development and completion of the St. Joseph
Valley Parkway, the limited-access highway to the
south and west of the city. Another important idea
advocated in the plan was the need for an industrial
park near the convergence of the St. Joseph Valley
Parkway, the South Bend Regional Airport and
I-80/90 which eventually became the Blackthorn
Industrial Park.
To increase coordination between County and City
government planning efforts in response to the
closing of the Studebaker Corporation (1963), the
Area Plan Commission of St. Joseph County (APC)
was established in 1965. The City Planning Commission
was then disbanded. By joining the APC, the City of
South Bend relinquished its jurisdiction over zoning
in the unincorporated areas within two miles of
the city limits. The APC continues to be the local
governmental body with jurisdiction over subdivision
changes and an advisory role in zoning changes in
South Bend, the unincorporated areas of the county,
and five towns in St. Joseph County.
In 1973, a joint transportation — land use plan was
developed utilizing funds from two federal agencies:
the Federal Highway Administration (FHWA) and
the U.S. Department of Housing and Urban
Development (HUD). This plan, titled the South
Bend Urban Area Transportation Study, was never
officially adopted, but was unofficially followed in
making land use decisions, including the updating
of the Zoning Ordinance. The 1973 plan focused
more on transportation issues and contained several
traffic analyses and forecasts, alternative circulation
designs, and other transportation-related elements,
while the amount of information on land use planning
was considerably less.
The first comprehensive plan formally approved by
the South Bend Common Council—The Comprehensive
Plan for the City of South Bend, Unincorporated Areas
of St. Joseph County and the Towns of Lakeville, New
Carlisle, North Liberty, and Roseland—was a one-page
document adopted in 1986. This met the state’s
minimum legal requirement that all jurisdictions
which implemented zoning adopt a comprehensive
plan. Since then some jurisdictions in the County
have completed more detailed comprehensive
plans. In 2002, the Area Plan Commission completed
The Comprehensive Plan for South Bend and St. Joseph
County, which was formally adopted by the St.
Joseph County Council and the South Bend Common
Council. The 2002 plan primarily established a
broad framework for county-wide resources and
development patterns, including some areas around
the edges of South Bend. It did not, however, under
its broad approach, significantly address the specific
concerns facing South Bend.
Over the past 40 plus years, South Bend has experi-
enced change in its local economic base; its popu-
lation, density, and socio-economic makeup; and
its ability to attract businesses and residents. Key
trends that have prompted the City of South Bend
to consider developing a new comprehensive plan
include:· The economy has diversified and is no longer
dependent on a manufacturing base.· Population has declined from a peak of 132,445
in 1960 to 107,789 in 2000.· The population is much more diverse.· The city has increased in size from 24 to 40
square miles.· Growth continues at the edges, stretching
City services.· The city’s housing stock is aging.· The downtown has begun to attract development.· Many areas in the city have no plans.· The ability of the City to raise revenue to provide
services continues to diminish.
Indiana State Law
The State of Indiana has established certain stan-
dards for developing comprehensive plans. The
State legislated these standards “for the promotion
of public health, safety, morals, convenience, order,
or the general welfare and for the sake of efficiency
and economy in the process of development.”
INTRODUCTION
Indiana Code (I.C. 36-7-4-500) requires all comprehensive
plans, at a minimum, to include the following elements:· A statement of objectives for the future
development of the jurisdiction.· A statement of policy for the land use
development of the jurisdiction.· A statement of policy for the development of
public ways, public places, public lands, public
structures, and public utilities.
D. PLANNING PROCESS
In 2002, Mayor Stephen J. Luecke directed the
Department of Community and Economic
Development to develop and manage a planning
process that would engage the entire community
in planning for the future of their city. The Mayor
wanted the planning process to be inclusive because
the city’s comprehensive plan, City Plan, would serve
as a guide for decision making over the next 20 years
and would need community support transcending
any one administration or Common Council.
Scope
The scope of City Plan was established within the
context of its Guiding Principles, basic rules or
truths that were paramount in guiding the
planning process:· Collaborative: City Plan should adopt an open
and collaborative approach to decision making,
respecting cultural diversity and encouraging
widespread and informed public participation, and
partnerships involving all sectors of the community.· Strategic: City Plan should be strategic in nature
and establish priorities to maximize available
resources to address community assets and needs.
· Context: City Plan should recognize and address
the city’s context and role within the region. It must
acknowledge the comprehensive plans of neighbor-
ing communities. · Sustainability: City Plan should ensure the health
and longevity of the residents of the city by includ-
ing policies and strategies that are environmentally
sensitive and innovative.· Evaluation: City Plan should have a built-in process
to update the plan while providing a means of mea-
suring the implementation of its strategies.· Flexibility: City Plan should provide a methodol-
ogy to recognize change and incorporate the means
for modifying and updating its content.· Identity: City Plan should demonstrate a com-
mitment to preserving the city’s unique history to
enhance its identity.· Economic Base: City Plan should foster the preser-
vation and expansion of the City’s tax base.
Raising Awareness
An important principle of the entire City Plan planning
process was to raise awareness in the community
and educate the public on important planning
concepts. To do this, City staff developed two guest
speaker series, conducted during Phases I and II
of the planning process. The American City Guest
Speaker Series (2003 and 2004) brought nationally
renowned experts to South Bend to give public
presentations on key planning issues to spur
interest in the planning process. The presentations
were well attended by the general public and
government decision makers. Attendance averaged
approximately 175 people per presentation. The City
also partnered with major employers in the area to
bring in additional speakers throughout the planning
process, including the new urbanist Andres Duany.
In the fall of 2004, the Indiana Planning Association
at its statewide convention awarded the American
William Hudnut inaugurates the American City I Guest Speaker Series, April 2003.
INTRODUCTION
City Guest Speaker Series the “Excellence in Planning
–Outstanding Marketing Project” award.
Public Participation
South Bend’s 1961 Comprehensive Plan contained
no evidence of public involvement. Current planning
practice encourages public participation in developing
a vision for the future, assessing current conditions,
and establishing objectives and policies on how best
to achieve that vision. Public participation was a key
principle in the development of City Plan.
To integrate public participation into the planning
process, the Mayor appointed the City Plan Civic
Alliance, comprised of 50 individuals from a broad
cross-section of the community. The Civic Alliance
provided the means formally to incorporate diverse
perspectives into the planning process and gave
professional planners and other City officials and
area experts the point of view of “citizen planners.”
Process Phases
City staff developed a phased process, approximately
three years long, to develop City Plan.
PHASE I
I.I. Visioning sessions
The first public meetings were visioning sessions
held at handicapped accessible locations throughout
the community: three meetings in each Common
Council district, one on the Indiana University South
Bend campus, another on the University of Notre
Dame campus, and another to gather input from
fifth grade students at a local parochial school
–21 meetings in all. At all meetings the participants
were asked to envision the community they would
like South Bend to be in the year 2025. The result of
these sessions, attended by more than 600 residents,
was compiled in a document titled Elements of a
Vision for South Bend (February 2004).
I.II. Reporting back to the community
Elements of a Vision for South Bend was presented
back to the community to confirm its accuracy in
eight public meetings, one of which was conducted
entirely in Spanish. Attended by approximately 300
people, these meetings were also designed to solicit
public views regarding obstacles, barriers, and
constraints which could prevent the realization of
the community’s aspirations. The information
gathered informed the next step in the process.
Children participating in a visioning session, November 2003.
Matrix explaining the three phases of the City Plan process.
INTRODUCTION
PROCESS CHRONOLOGY
DATES SIGNIFICANT ACTIVITIES & EVENTS
• • • • • • • • • • • • • • • • • • • • • • • • •2003
April–June An American City, Guest Speaker Series held
(approximate attendance: 1200)
September City Plan Civic Alliance appointed (50 Members)
October–December Phase I public meetings conducted (approximate attendance: 600)
• • • • • • • • • • • • • • • • • • • • • • • • •2004
February Elements of a Vision for South Bend report released
February Phase I report back meetings held (approximate attendance: 300+)
March Vision Statement: Envision South Bend in 2025…* drafted
April–July Envisioning The Future Art exhibit
May Vision Statement adopted as resolution by South Bend Common Council
May–June An American City II, Guest Speaker Series held (approximate attendance: 500)
Summer / Fall Current conditions analysis conducted
(more than 100 meetings w/ 170+ stakeholders)
• • • • • • • • • • • • • • • • • • • • • • • • •2005
January Report back meetings to Stakeholders held
(approximate attendance: 200+)
March Current Conditions Report (2004-2005)* released
June Phase II public meetings held (approximate attendance: 400)
July City Plan Phase II Community Meetings Report* released
August–September Land demand capacity analysis conducted
September–October City Plan Goals, Objectives, and Policies drafted
November City Plan, Draft 1 produced
• • • • • • • • • • • • • • • • • • • • • • • • •2006
January Draft I reviewed by Civic Alliance and key stakeholders
(approximate attendance: 100)
February–May City Plan, Draft 2 produced
June Phase II public meetings held (approximate attendance: 300)
July Revisions made to Draft 2
September Final Draft presented to the Area Plan Commission of St. Joseph County
October Final Draft presented to the South Bend Common Council for
adoption as resolution.
* These reports are available for download from the City Plan Web site at www.SouthBendCityPlan.org
INTRODUCTION
II.IV. Developing Goals, Objectives, and Policies
Analysis of the public input received during the
“solution meetings” was documented in City Plan
Phase II Community Meetings Summary Report. This
document, along with Elements of a Vision for South
Bend and the Current Conditions Report, 2004—2005,
became an important source of material for develop-
ing Goals, Objectives, and Policies for City Plan.
I.III. Drafting the Vision
City Plan staff worked with the Civic Alliance to craft
a vision statement based on what was gathered
from the community. The vision statement titled
Envision South Bend in 2025 was completed and
adopted by the South Bend Common Council on
May 10, 2004.
PHASE II
II.I. Establishing topic areas
Based on the information gathered from the public
at the February report back meetings, 12 general
topics were identified for further research:
Transportation, Infrastructure, Land Use and Zoning,
Urban Design, Environmental Management, Parks
and Open Space, Community Building, Health and
Safety, Housing, Economic Development, Arts and
Culture, and Education.
II.II. Analyzing Current Conditions
The Civic Alliance divided into seven panels to
research their assigned topic areas to develop an
analysis of current conditions. Over the course of
several months the Civic Alliance Panels held more
than 100 small group meetings with more than 170
community stakeholders as part of their research on
the 12 topic areas. Stakeholders included the business
community; elected and appointed government
officials; CEOs and executive directors; experts in the
topic areas from the public, private, and nonprofit
sectors; clergy from different faith communities; and
leaders from various civic organizations. A draft
of this extensive, in-depth analysis was provided
to more than 200 stakeholders in January 2005 for
feedback. Revisions were made based on this input
and in March 2005 the Current Conditions Report,
2004-2005 (CCR) was published for the public.
II.III. Seeking solutions
The CCR identified the community’s strengths and
key issues and informed the development of the
exercise used in the next round of community
meetings in June 2005. These ten public meetings
held throughout the city were popularly referred to
as the “solution meetings” because the questions
posed to the public sought creative ways to address
key issues and facilitate movement toward realizing
the community’s vision. Approximately 400 people
participated in these meetings.
Participant reporting back at Phase I visioning session, November 2003.Current Conditions Report being presented to stakeholders, January 2005.Civic Alliance members present their research on key issues to City officials, November 2004.
Participants working on map exercise during Phase II meeting, June 2005.
INTRODUCTION
Before writing could begin on the Goals, Objectives,
and Policies, an analysis of current and projected
land use was necessary. Those involved in this
technical analysis included staff from several City
and County departments. All staff involved were
members of the Neighborhood Strategic Planning
Team (NSPT), an inter-departmental committee with
representatives from all City departments, including
the Mayor, providing an internal forum for discussions
related to City Plan.
The land demand capacity analysis involved two
basic steps: (1) identify land, both inside and outside
current city limits, available for future development
for industrial, commercial, and residential uses
(“capacity”); (2) project desired future growth for
each of those land uses (“demand”). The result of
this analysis formed the basis of the Future Land Use
Map, an essential part of City Plan.
Drawing from the land demand capacity analysis,
initial work began on the Goals, Objectives, and
Policies of City Plan. A First Cut of these was discussed
with the NSPT in a series of meetings. Following this
discussion, staff conducted further research and began
compiling a draft of the Plan’s implementation strategies.
A Civic Alliance member helps facilitate a Phase II public meeting in Spanish, June 2005.
Participants identify priority issues during Phase II meeting, June 2005.
II.V. Producing City Plan Draft 1
Once the Goals, Objectives, and Policies were
revised following input from the NSPT, additional
research was conducted, and Draft 1 began to take
shape. The purpose of Draft 1 was to get input from
key community stakeholders prior to offering
City Plan for public review. The draft was sent to
approximately 40 key community stakeholders
identified by the Mayor and Civic Alliance, in addition
to City department heads and the Civic Alliance, for
review. Staff organized meetings in January 2006
to receive their comments. The goal of the meetings
was to have the Civic Alliance and key community
stakeholders review Draft 1 to ensure that comments
heard throughout the process had been reflected
in the text and achieve general consensus on the
content of the draft.
The original 12 topic areas were then compressed
into 10 chapters by logically grouping Infrastructure,
Parks and Recreation, and Health and Safety into a
new chapter titled “Public Facilities and Services.”
This chapter addresses those facilities and services
that are essential to the community’s development
and which enhance the community’s overall
quality of life.
INTRODUCTION
PHASE III
III.I. Producing City Plan Draft 2
Draft 2 was developed based on input from the
stakeholder meetings. The revised text and
additional information, charts, tables, graphic design
elements, and photographs were incorporated into
a template of the design layout.
III.II. Presenting Draft 2 to the Public
Upon final review by the Mayor, Draft 2 was
presented to the public in a series of seven meetings
throughout the city, including one in Spanish. At
each meeting, participants were asked to breakout
into small groups, each of which dealt with a few
strategies from the Implementation Action Plan
(IAP). Participant feedback was compiled and
incorporated into the final draft of City Plan.
III.II. Adopting the Plan
The final draft was presented by the Mayor and the
Civic Alliance first to the Area Plan Commission of
St. Joseph County for a favorable recommendation
and then to the South Bend Common Council for
approval by resolution.
E. PLAN CONTENT
City Plan consists of four sections:· Chapters 1 and 2 are Introduction and Local Context,
providing background information.· Chapters 3 through 12 contain the core planning
topics and their Goals, Objectives, and Policies.· Chapter 13 contains information on the Plan’s
implementation, with an Implementation Action
Plan (IAP) that provides detailed actions to achieve
priority policies, during the first five years.· A Glossary of planning terms.
How to Use City Plan
City Plan will be of interest to developers, business
owners, home buyers, investors, educators,
neighborhood organizations, grant writers, students,
planners, city residents, etc. Anyone interested in
where South Bend hopes to be twenty years from
now will find something of value in City Plan.
Basic information about South Bend and its history is
located in chapter 2. Population projections are also
included in this chapter.
The core elements of the document can be found in
chapters 3 through 12. These chapters will be useful
to any person or organization working with govern-
ment at any level. Each chapter consists of two parts.
The first part provides a narrative description—and
items of special interest in sidebars, maps, and/or
charts—which presents important information on
current conditions and changes needed to move the
community toward the vision established in Phase I
of the planning process .
The second part of each chapter provides the goal
for that topic and the objectives and policies that
will guide decision making on issues related to that
topic during the planning period. Though it is not
explicitly stated, each policy implicitly begins with:
“It is the policy of the City of South Bend to . . ..”
Some City Plan policies from each chapter have been
placed in the Implementation Action Plan (IAP),
which establishes plan priorities for the first five
years. These policies are cross-referenced and have
page numbers in parenthesis so readers can quickly
find the Action Steps that relate to its implementation.
Some topic areas overlap. For example, while the
Transportation chapter has objectives and policies
related to transportation, because transportation
significantly influences urban design and economic
development some policies in those two chapters
address transportation issues as well, directly and
indirectly. Please keep this in mind as you look
through the Plan for topics of interest to you.
A participant expresses his views during Phase III meeting, June 2006.Small group discussions focused on reviewing the Implementation Action Plan during Phase III public review meetings, June 2006.
INTRODUCTION
Chapter 13 is the Implementation chapter and
includes the IAP. The IAP organizes the priority
policies from chapters 3 through 12 under eight
holistic strategies. The action steps in the IAP are
the most specific portions of the plan, establishing
direction and priorities for the first five years. They
list some of the steps that different City departments
and their partners will follow to achieve the intent
of the policies.
In the first column of the IAP, only policy numbers
are listed. For example, priority policies are listed as
‘AC 1.2’ or ‘ED 4.1.’ Following each reference, a page
number is given to assist the reader easily to locate
the policy in its entirety.
Taken together, City Plan’s objectives and policies,
totaling over 350, provide an excellent overview of
the community’s values and aspirations.
The Glossary at the end of the document gives
brief definitions/explanations of technical terms
employed throughout the plan.
F. FUTURE GOALS
As previously stated, each chapter in City Plan contains
two sections: the first is an introduction that outlines
current conditions and key issues that are important
to the community for the topic discussed in that
chapter. The introduction builds an argument for
the next section of the chapter, which contains the
future goal, and the objectives and policies that will
help to achieve it. Each goal statement represents
the community’s vision for the future for that
particular topic. The 10 City Plan goals are:
1. Land Use and Growth: Encourage sustainable
growth that preserves and enhances the character of
South Bend and ensures compatibility of land uses
in the community.
2. Transportation: Provide a balanced transportation
system that is integrated locally and regionally,
supports alternative modes of transportation, and
is pedestrian friendly.
3. Public Facilities and Services: Provide efficient
and progressive public facilities and services that
accommodate future growth and meet the
community’s changing needs.
4. Housing: Achieve a thriving South Bend housing
market that offers appealing neighborhoods with
diverse housing choices.
5. Economic Development: Promote a healthy
and diversified economy that fosters a competitive
business environment and offers opportunities for
employment and entrepreneurship.
6. Environmental Management: Promote sustainable
environmentalthat enhances the quality of air, water,
and land resources, and preserves the St. Joseph
River as an irreplaceable resource.
7. Urban Design: Promote an attractive and aes-
thetically pleasing public realm that preserves and
enhances the City’s history and built environment.
8. Community Building: Attain a vibrant, inclusive
community that achieves ethnic and racial harmony,
provides equal access to economic and social
opportunities, and encourages civic engagement.
9. Arts and Culture: Establish a dynamic arts and
cultural environment that is integrated into the
social and economic fabric of the city, promotes
broad awareness, and sustains the downtown as a
regional arts destination.
10. Education: Enhance South Bend as a center of
life-long educational opportunities that support
people of all ages to compete successfully in a
global economy.
The following excerpt from the
community’s vision for 2025
helped shape the Goal,
Objectives, and Policies for
Land Use and Growth:
Envision South Bend in 2025…
We are a city of safe and
unique neighborhoods with
diverse housing choices. We
have a built environment that
embraces our historic heritage
while facilitating progressive
design and land use, utilizing
modern infrastructure.LAND USE AND GROWTH
LAND USE AND GROWTH 19
The way land is used shapes the community in
fundamental ways, affecting all aspects of community
life: opportunities for jobs, housing, recreation,
and businesses; community character and design;
and the need for public facilities and services of all
types as well as the impact of traffic, noise, and air
quality. As the City continues to grow and change,
it is important to take a comprehensive look at the
distribution of land uses in the community.
Since its founding in 1835, South Bend’s boundaries
have continued to expand. The City anticipates that
market forces and economic trends will continue to
make it beneficial for South Bend to follow a policy
of orderly and balanced growth.
Zoning is the community’s primary tool for regulating
land uses and is legislated by local governments.
Zoning divides a community into districts or zones
which specify the permitted and prohibited uses.
The most common zoning categories are residential,
commercial, industrial, and institutional.
A. CURRENT LAND USE
Industrial development contributed to the way land
use patterns have evolved throughout the city’s
history as changes occurred in manufacturing
technology, power generation, methods of trans-
portation and distribution, and residential lifestyle
preferences. The City’s Zoning Ordinance, created
in the 1920s and amended numerous times over
several decades, became less and less effective
in preventing the land use conflicts that naturally
arose. In 2004, the City adopted a completely
revised Zoning Ordinance that is much more
20 LAND USE AND GROWTH
effective in dealing with and preventing land use
conflicts. With its more current planning concepts
this Zoning Ordinance will help enhance the quality
of life in this community.
A study of existing land use patterns in the area
reveals the following:· The Central Business District is the community’s
urban core with government, finance, cultural,
institutional, specialty retail, and office as the
primary land uses. This area was originally platted
in a grid pattern on the southern bend of the St.
Joseph River. It generally maintains that pattern.
Most of the major arterial access streets converge
in the Central Business District.· Commercial activity is primarily concentrated
along the major arterial streets.· The Erskine Hills Shopping District (Ireland Road,
South Bend) and University Park Mall area (Grape
Road, Mishawaka) serve as regional, commercial
nodes or centers.· Most of the medium-density residential (6-12
units/acre) is concentrated around the city center.
This inner ring of residential uses is primarily
pre-World War II housing built on smaller lot
sizes with homes sited close to the street.· Post-World War II housing patterns have developed
more toward the current city limits. Low-density
residential (1-5 units/acre) includes newer housing,
larger lot sizes, curved street patterns, and cul-de-sacs.· High—density residential units (more than 12
units/acre) are located intermittently throughout
the city.· Mixed-use developments are located in the
Central Business District, along corridors, and
some other select locations.
B. FUTURE LAND USE
Future land uses for the city and its fringes are
shown in the Future Land Use Map (see Map 3.1).
The Future Land Use Map is a visual representation
of City Plan’s objectives and policies that relate to
growth and development. It incorporates community
ideas gathered from the public over the course of
the planning process.
The following three approaches are generally used
by communities in developing future land use maps:
1. Parcel specific: Future land use is designated for
every specific parcel in the city.
2. Character based: The future land use map high-
lights broad areas where change is desired. Each
area then specifies the types of uses and character
that is desired.
3. Hybrid: A combination of both the parcel specific
and the character approach. It allows for more
flexibility in decision making.
City Plan’s Future Land Use Map is the result of a
hybrid approach. It should not be interpreted as
a parcel-specific zoning map. It depicts general
land-use distribution for the next 20 years that the
community has identified to provide guidance for
policy makers, developers, property owners, etc.
Service Area
The Service Area Boundary establishes the extent
of the area currently outside city limits which the
City can reasonably expect to be able to service
fully—with water, sewer, police and fire protection,
and code enforcement—when required or when
appropriate, over the course of the planning period.
The Service Area refers to the entire area inside the
Service Area Boundary, both within current city
limits and the area between current city limits and
the Service Area Boundary. The focus of the City of
South Bend over the 20-year planning period will
be primarily on the Plan’s Service Area, promoting
balanced growth inside and outside the city limits.
It should be noted that the unincorporated areas
between the city limits and the Service Area Boundary
do not fall within the planning jurisdiction of the
City. However, City services such as water and sewer
have been extended in certain areas, and the City’s
Emergency Medical Service is under contract to the
County to provide services. Additionally, it has been
demonstrated that there is demand for City services
on the city’s edges to accommodate smart growth
in the future.
Land Capacity
In 2005, land capacity analysis revealed that
approximately 4,500 acres of land were available for
development inside city limits, and approximately
9,500 acres were available outside city limits but
inside the Service Area Boundary (See Map 3.2). This
totals approximately 14,000 acres of land available
for development in the City Plan Service Area. This
capacity included areas in the city and its fringes
generally larger than five acres. The land inside city
limits includes vacant land that was not developed
historically and greyfield/brownfield sites that have
potential for redevelopment.
LAND USE AND GROWTH 21
Areas Outside City Limits
Three townships have experienced the majority
of the growth on the edges of South Bend: Clay,
Centre, and German. A fourth, Warren Township, has
seen more recent growth over the years. The Future
Land Use Map addresses land uses outside city limits
for these townships, some more than others:
Centre Township: Residential land uses on the south
side are growing in demand compared to the tradi-
tional growth areas in Clay and Harris townships. In
addition, the availability of sewer and water mains,
the commercial development on Ireland Road, and
the proposed realignment of U.S. 31 to interstate
standards is further contributing to the attractive-
ness of Centre Township as an area in which to live
and do business.
Clay Township: During the 1960s and 1970s, Clay
Township experienced considerable suburban
development, the subdivisions designed with larger
lot sizes, cul-de-sacs, and exclusive single-family
residential uses. The proximity of commercial areas
in South Bend and the U.S. 31 (now U.S. 331) corridor
provide areas for shopping and entertainment. A
significant land use is institutional, with the Uni-
versity of Notre Dame occupying the southwestern
portion of unincorporated Clay Township, adjacent
to the city on its northeastern edge.
German Township: German has experienced
periods of relatively low activity interspersed with
periods of significant activity and land use change.
The South Bend Regional Airport in the southeast
part of the township has been a catalyst for in-
dustrial development, including warehousing, in
22 LAND USE AND GROWTH
the region. This area has also seen an increase in
residential development due to Interstate 80/90
cutting through the center of the township, and the
St. Joseph Valley Parkway, on the western part of
the township, connecting Michigan to the north and
Elkhart County to the east.
Future Land Use Map
The graphical presentation of the Future Land Use
Map utilizes the current zoning and land use maps,
both parcel specific, in combination as a base map,
and projects areas where change is likely to occur.
A large portion of the city is projected to maintain its
current uses throughout the planning period. Areas
where conflicts were evident or areas that needed
land use changes based on community feedback
have been addressed. The Future Land Use Map
provides general guidance to the Area Plan
Commission and the South Bend Common Council
regarding rezoning petitions. It also guides developers
and property owners when making investment
decisions on the future use of a property.
Principles of smart growth helped shape the
development of the Future Land Use Map. These
principles help create compatible land use patterns
and promote development patterns that meet the
diverse needs of the community. The following
terms are used in the Future Land Use Map:
1. Neighborhood Commercial Node: These are small-
scale retail and service areas that serve the adjacent
neighborhoods and complement their character.
These areas encourage more pedestrian-oriented land
uses and some auto-oriented land uses. Such nodes
generally commence at major street intersections in
the neighborhood but with time may expand into
the corridors of the intersection. Mixed uses are
encouraged in neighborhood commercial nodes.
2. Regional Commercial Node: These are large-scale
commercial areas that serve a large, metropolitan
area and are regional draws; for example, large
shopping malls and retail centers. These nodes
generate large volumes of traffic and are usually
located on the outskirts of a city or town. Although
regional nodes promote auto-oriented land uses,
they can be developed to facilitate pedestrian activity.
Sprawl defines patterns of urban growth which include
large acreage of low-density residential development,
rigid separation between residential and commercial uses,
residential and commercial development in rural areas
away from urban centers, minimal support for non-
motorized transportation methods, and a lack of integrated
transportation and land use planning
Smart growth advocates land use patterns that are
compact, transit-oriented, walkable, bicycle-friendly, and
include mixed-use development with a range of housing
choices. This philosophy keeps density concentrated in
the center of a town or city, combating sprawl.
Smart Growth Principles
1. Foster distinctive, attractive communities with a strong
sense of place.
2. Strengthen and direct development toward existing
built-up areas and infrastructure.
3. Take advantage of compact building design.
4. Mix land uses.
5. Create walkable neighborhoods.
6. Create a range of housing opportunities and choices.
7. Encourage community and stakeholder collaboration
in development decisions.
8. Make development decisions predictable, fair, and cost
effective.
9. Encourage the preservation of open space, natural
beauty, and critical environmental areas.
10. Provide a variety of transportation choices.
Adapted from the Smart Growth Network
SPRAWL VS. SMART GROWTH
Typical sprawl development: low-density, single use, auto-oriented.
Pedestrian-oriented land use: specialty retail on Michigan Street.
Auto-oriented land use: a fast food restaurant drive through.
LAND USE AND GROWTH 23
Example of Commercial use: Erskine Village retail development on Ireland Road.
Example of High-Density Residential use: The Pointe Apartments in downtown South Bend.
Example of Low-Density Residential use: Lafayette Falls on the city’s south side.
3. Low-Density Residential: Predominantly
residential areas where there are no more than five
(5) housing units per acre.
4. Medium-Density Residential: Predominantly
residential areas where there are between six (6) and
twelve (12) housing units per acre;
may include duplexes.
5. High-Density Residential: Predominantly resi-
dential areas where there are more than twelve (12)
housing units per acre, including duplexes, apartment
buildings, and town houses.
6. Commercial (Office and Retail): A general term
that includes activities within land use areas that are
predominantly connected with the sale, rental, and
distribution of products or performance of services;
includes bars, restaurants, entertainment, office, retail,
car sale lots, and miscellaneous commercial uses.
7. Light Industrial: Light industrial uses are usually
less capital intensive than heavy industrial uses and
are more consumer oriented than business oriented.
Light industry has less environmental impact than
heavy industry and in small scale is more tolerated
in residential areas. It includes activities such as
product assembly and front office areas.
8. Heavy Industrial: These are uses characterized by
manufacturing and processing operations that may
require substantial amounts of outdoor storage or
outdoor operations. These uses tend to generate
heavy traffic, some of which may produce relatively
high levels of noise.
Example of Medium-Density Residential use: Homes on Portage Avenue.Example of Industrial use: Deluxe Sheet Metal at Blackthorn Industrial Park.
Example of Green Space use: a Playground at Rum Village Park.
24 LAND USE AND GROWTH
9. Institutional: Facilities of public or private primary
or secondary schools; vocational and technical
schools; colleges and universities; government
facilities, hospitals, and museums.
10. Mixed Use: An area where a combination of
residential, commercial, office, and industrial uses
can co-locate, generally through a coordinated
development approach. The type, size, and location
of these businesses are determined by the Zoning
Ordinance and the prevailing neighborhood plan.
11.Central Business District (CBD): The Central
Business District is a zoning classification of the
area that is the traditional, compact, urban core of
South Bend.
12. Parks and Open Space: Parks refer to neighbor-
hood, community, or regional park land that is used
for active and passive recreation. Open space refers
to undeveloped lands and wooded areas suitable
primarily for passive recreation or conservation uses.
Map Description
The Future Land Use Map Service Area can be
divided into four quadrants for further discussion
using Main Street and Sample Street as the north-
south and east-west dividers.
1. Northwest Quadrant: The northern portion of this
quadrant is projected to contain Industrial uses since
the South Bend Regional Airport and the Blackthorn
Industrial Park are both located here. These uses
serve as catalysts for light industrial and manufac-
turing activity with regional impact. This area also
shows potential for future mixed-use development.
Vacant land in this quadrant is projected to have
two uses: medium-density residential, satisfying
the community’s desire for more residential inside
current city limits, and green space to support
residential use.
2. Northeast Quadrant: Land uses in this quadrant
are generally expected to maintain current patterns.
As the largest employer in the region, the presence
of the University of Notre Dame just north of the
current city limits is an asset for future institutional
development as well as mixed-use neighborhoods
that cater to the needs of a diverse population.
3. Southeast Quadrant: Land uses in this quadrant
are also generally expected to maintain current
patterns. Changes in land use are mostly projected
for areas on the fringes and outside current city limits.
Development activity has shown potential for future
mixed-use development (or planned unit development)
on parcels currently zoned as residential. Additionally,
with the presence of a regional, commercial node
in this quadrant, commercial uses are predicted to
maintain a steady growth rate.
4. Southwest Quadrant: This quadrant encourages
the further development of industrial uses to
complement existing land use patterns. In a portion
of this quadrant, land currently zoned for agricultural
use has been projected to change to industrial activity.
This change in use helps meet the City’s need for
future industrial land. This quadrant also has
potential for new parks and recreational facilities.
C. AREA-SPECIFIC PLANNING
In addition to a citywide comprehensive plan, most
communities also plan for particular geographic areas.
Area-specific plans provide a community more
detailed guidance on land use and development
and are typically developed to address areas such
as neighborhoods, historic districts, economic
development areas, corridors, annexation areas, and
the downtown. Area-specific plans help protect
the character of unique areas by engaging their
residents and stakeholders. They allow the area to
be analyzed in detail and offer alternatives for the
future. While area-specific planning is an effective
tool for a community looking to the future, each
area does not exist in isolation from the rest of the
city. It is important to consider the impact that
planning for one area has on the adjacent areas and
on the city as a whole.
Sector Planning
Sector planning is a tool for managing and
coordinating the development and implementation
of area-specific plans. Each sector contains a variety
of district, neighborhood, and/or corridor plans.
Sector planning allows a community to address
transportation connectivity, environmental issues,
land use and infrastructure development, etc. on a
scale that is smaller than a citywide comprehensive
plan but larger than a neighborhood plan. It
involves dividing a city’s entire geography into a
few manageable areas and preparing sector plans
for each. Once completed, sector plans become
valuable in developing or updating the community’s
comprehensive plan.
LAND USE AND GROWTH 25
By creating a structure for long-term planning, a
community can more efficiently coordinate planning
issues that are common to various parts of the city.
Sector planning includes:· Establishing a process to divide the city into
manageable sectors and formalize the boundaries
for those sectors.· Forming a leadership group or committee
composed of residents, businesses, and other
interest groups to oversee the development of
sector plans. Residents of the sector participate in
the planning process through specific topic area
committees.· Involving the leadership group in creating a
planning process that involves the residents of a
sector and establish a future vision for the area
with implementation strategies.· Developing sector plans and use them to provide
guidance to all the districts, neighborhoods, and
corridors within the sector.
Types of Area-Specific Plans
There are three types of area-specific plans: district,
neighborhood, and corridor plans.
District Plans
A district is generally said to be an area that is visually
homogenous in character and may be homogenous
in land use. Districts include areas such as downtowns,
historic districts, environmentally sensitive areas,
industrial parks, redevelopment areas, or other major
commercial areas. A district plan can discuss major
transportation connections or facilities that serve more
than a neighborhood but less than the entire city.
26 LAND USE AND GROWTH
Mixed-use development: first floor retail and second floor residential.
Neighborhood Plans
A neighborhood is a localized community in a city
or suburb that can be characterized by similar or
compatible land uses. Many communities engage
in neighborhood planning to help examine an area
at a detailed level. Neighborhood plans can include
a lot-by-lot look at all parcels in the area as well as
recommendations on their future use. Through
participation in neighborhood-based organizations,
residents can be involved in making decisions for
the future of the area. Neighborhood plans take
into account surrounding geography, transportation
networks, and connectivity issues with the rest of
the city.
Corridor Plans
In urban planning, a corridor refers to a portion
of land (usually a block wide) on either side of a
main thoroughfare or access road. Corridors are
historically areas in a community where most of the
commercial activity began and flourished. Preserving
and enhancing the commercial and mixed-use
character of a corridor is often the major goal of
corridor plans. Corridors are also important to a
community since frequently they are gateways into
a community’s urban core and offer first impressions
for many visitors.
D. MIXED-USE DEVELOPMENTS
Mixed-use developments refer to structures and areas
that combine two or more types of development
–commercial, office, industrial, or institutional–
usually accompanied by residential uses. Mixed-use
developments can include a vertical or horizontal
mix of uses and benefit a community by:· Helping create a sense of place.· Maximizing use of existing public infrastructure,
i.e., roads, sewer, water.· Maximizing use of land by supporting sustainable
land development.· Encouraging historic preservation and reuse of
existing buildings.
Mixed-use developments can encourage, in a variety
of ways, the kind of pedestrian activity people enjoy
about city life: housing units on a building’s upper
floors provide population density, encouraging retail
development on the ground floor; retail windows
at ground level enhance the pedestrian experience,
attracting more people to an area; more pedestrian
activity helps create street life, an essential element
of urban living.
Traditional Neighborhood Development (TND) was a
planning practice common in the early 20th century
which provides a model for mixed-use develop-
ment. Traditional neighborhood developments are
characterized by moderately high densities and di-
verse land uses. This approach integrates all aspects
of daily living usually within walking distance to
facilitate a high degree of civic integration and social
interaction among residents.
Planned Unit Developments are intended to encour-
age creativity and innovation in the design of areas
by promoting a more efficient use of developable
land and open space. Such provisions allow land
to be developed in a manner that does not fit into
all the use, bulk, and open space requirements of
any of the standard zoning districts. A planned unit
development is regulated as one unit instead of
each lot being regulated separately.
Downtowns are traditionally the oldest and most
densely developed areas in a community, character-
ized by multiple and intense uses. South Bend’s
downtown has significantly changed since the
LAND USE AND GROWTH 27
1960s, as many buildings were vacated in the city’s
urban core. Piecemeal demolition over the years has
reduced the downtown’s density, with surface parking
lots occupying a significant portion of land uses.
Downtown revitalization strategies require that
cities promote a more intense mix of uses in the
downtown area. Higher density development
helps create a vibrant urban core and maximizes
use of existing infrastructure. The following issues
prominently surfaced for the downtown during the
planning process:· Lower density due to excessive number of
surface parking lots.· Limited mixed-use structures with retail, office,
and residential uses.· Limited pedestrian-oriented uses.· Effect of traffic patterns on downtown vibrancy.
E. COMPATIBLE USES
Ensuring compatibility of land uses helps maintain
the quality of life of a community. Since a land use
decision on any individual parcel will affect sur-
rounding parcels of land, sound decisions have to be
made to ensure that different land uses complement
each other and create the best urban form.
What are considered compatible land uses will
change over time. Prior to the widespread owner-
ship of automobiles, residential units were routinely
built a short walk from industries, a convenience
for both employer and employee. With growing
prosperity, the desire arose to try to isolate the
undesirable aspects of industry—odor, noise, traffic,
etc.—from residential areas, prompting a national
trend toward single-use zoning districts, such as
Principles of New Urbanism
The heart of New Urbanism is in the design of neighborhoods, which can be defined by 13 elements, according to town
planners Andres Duany and Elizabeth Plater-Zyberk, two of the founders of the Congress for the New Urbanism:
1. The neighborhood has a discernible center. This is often a square or a green and sometimes a busy or memorable street corner. A transit
stop would be located at this center.
2. Most of the dwellings are within a five-minute walk of the center, an average of roughly 2,000 feet.
3. There are a variety of dwelling types—usually houses, rowhouses, and apartments—so that younger and older people, singles and
families, the poor and the wealthy may find places to live.
4. At the edge of the neighborhood, there are shops and offices of sufficiently varied types to supply the weekly needs of a household.
5. A small ancillary building is permitted within the backyard of each house. It may be used as a rental unit or place to work (e.g., office or
craft workshop).
6. An elementary school is close enough so that most children can walk from their home.
7. There are small playgrounds accessible to every dwelling—not more than a tenth of a mile away.
8. Streets within the neighborhood form a connected network, which disperses traffic by providing a variety of pedestrian and vehicular
routes to any destination.
9. The streets are relatively narrow and shaded by rows of trees. This slows traffic, creating an environment suitable for pedestrians and
bicycles.
10. Buildings in the neighborhood center are placed close to the street, creating a well-defined outdoor room.
11. Parking lots and garage doors rarely front the street. Parking is relegated to the rear of buildings, usually accessed by alleys.
12. Certain prominent sites at the termination of street vistas or in the neighborhood center are reserved for civic buildings. These provide
sites for community meetings, education, and religious or cultural activities.
13. The neighborhood is organized to be self-governing. A formal association debates and decides matters of maintenance, security, and
physical change. Taxation is the responsibility of the larger community.
Photographs courtesy of Duany Plater-Zyberk & Company, 2006.
NEW URBANISM
New Urbanism promotes the creation and redevelopment of compact communities which are lively, mixed-use, walkable,
and diverse. New Urbanism evolved as a response to cities’ sprawling growth patterns and the development of strip malls,
large parking lots, suburban housing developments, and highways. New Urbanists believe the principles of New Urbanism
apply to a wide range of projects associated with the following three distinct geographies:
• the region: metropolis, city and town, the neighborhood
• the district and the corridor
• the block, the street, and the building
28 LAND USE AND GROWTH
Traffic patterns have an impact on surrounding land uses.
suburban subdivisions and shopping malls. The return
to the development of a mix of uses offers greater
variety in urban living in response to some of the
negative consequences of older zoning regulations.
City government, land use experts, and the general
public recognize that new developments need to
integrate well with their surroundings. This is
achieved by following a plan, incorporating
characteristics of the surrounding area into the
development, and establishing appropriate buffers,
for example, green space and less intensive uses,
to reduce land use conflicts.
F. COORDINATING LAND USE AND
TRANSPORTATION PLANNING
The transportation system significantly influences
land use. Transportation planning decisions such as
new road construction or street widening have an
impact on surrounding land uses. Land use
decisions for a property may result in the generation
of higher volumes of traffic or the creation of new
transportation connections.
Traffic volumes and choices of mode of transportation
are influenced by the location, density, and mixture of
land uses. Communities that encourage a separation
in land uses encourage more automobile use which
often results in higher congestion in some areas.
Similarly, low-density land uses may encourage
driving and require longer travel times. In compact,
mixed-use centers there is a more harmonious
integration of land use and transportation planning
since people can walk more, meeting several of their
needs in one location. Also, higher-density develop-
ment with smaller setbacks and connected sidewalks
can encourage walking and bicycling. Buildings set
far apart by vast surface parking and wide access
roads can discourage walking between uses.
Coordination between transportation planning and
every kind of development is essential to ensure cost
effective and efficient development and growth.
Planning for public transportation is an integral part
of planning for new development.
G. BALANCING GROWTH
Good land use planning involves managing the
development and use of land in ways that will
enhance the quality of life of the community. Land
use planning must accommodate and anticipate
complex environmental, economic, and social
variables, some of which are outside the control of
local government. Yet, the objectives and policies
dealing with growth and development throughout
the different chapters of City Plan combine to form
a holistic, interconnected approach to the develop-
ment and use of land. This approach will attempt to
foster economic growth, preserve natural resources,
and improve the community’s quality of life.
City Plan builds on the community’s desire to be more
vibrant and incorporate smart growth principles in
planning for the future. To encourage and accom-
modate growth in an orderly fashion, sufficient land
must be available to meet the varied demands for
different types of land uses needed during the
20-year planning period. There must be an adequate
“supply” of land with access to City services for
housing, industry, office development, commercial
uses, open space, park land, schools, etc.
LAND USE AND GROWTH 29
The growth strategy for South Bend is based on two
general principles.· Promote infill development inside current
city limits to address the revitalization and
redevelopment of older areas in the city.· Manage growth on the fringe through sustainable
and efficient provision of City utilities and services.
H. ANNEXATION
Annexation is a process used by the City to extend
municipal boundaries. State statute establishes the
criteria for annexation; South Bend’s Annexation
Policy and Plan explains the City’s annexation goals.
Guidelines stated within the policy ensure that areas
being considered for annexation further the City’s
broader growth-related goals and are consistent
with State law.
An analysis of community feedback from the planning
process showed preference for more development
within the downtown and existing vacant areas
within city limits, but with the understanding that
those areas alone could not satisfy all market needs.
The community recognized the need to pursue a
policy of selective annexation.
Being able to provide the full range of urban infra-
structure and services helps attract development
to the community. By increasing the amount of
available land with access to the full range of public
services, the City creates opportunities for coordi-
nated residential, commercial, industrial, and other
development. South Bend’s orderly growth offers
30 LAND USE AND GROWTH
Open spaces enhance the quality of life in a community.
many benefits for both the City and the currently
unincorporated areas of St. Joseph County. Due to
the increase in services the City must provide to its
new residents and businesses, annexation also in-
creases costs to the City. On balance, orderly growth
must ensure that costs to the City do not exceed the
benefits gained.
I. PRESERVING OPEN SPACE
As stewards of the natural environment, it is important
to ensure the preservation of environmentally
sensitive areas and to plan for the parkland needs of
our growing community. Green space and parkland
are essential to any city’s quality of life, providing
developed areas for recreation and sport and natural
areas for relaxation. Maintaining open space offers
opportunities for natural systems preservation,
recreation, and education. Open spaces include
farmland, wetlands, riparian lands, forests and
woodlands, parks, and urban open space.
ANNEXATION LAW
Based on local annexation law, there are two methods
by which an annexation may occur:
• Voluntary annexation
• Involuntary annexation
In order for an area to be eligible for annexation,
it is required to have at least 12.5 percent of its total
boundary touching the existing city boundary.
The City of South Bend has developed an Annexation
Policy and Plan that is used as a tool to determine how and
where the City should grow. This document establishes
guidelines used to conclude the appropriateness of a
specific area being annexed by the City, such as: the
ability to further the City’s Annexation Policy and Plan,
existing population density, and potential for future
development. In addition, the area must be currently
zoned for residential, commercial, business, or industrial
uses. Since there are expenses associated with annexing
land, the costs and ease by which the City can provide
its services must be taken into consideration when
determining feasibility of annexing. The greatest capital
costs to the City will occur when providing sanitary sewers,
water mains, police protection, and fire protection.
Source: Annexation Policy and Plan for City of South Bend, Indiana
To achieve the community’s Vision . . .
The City will need to effectively plan for the future of the
community’s districts, neighborhoods, and corridors.
The City should encourage mixed-use developments that
enhance the pedestrian experience and encourage active
street life, especially in the downtown area.
New developments will need to integrate well
with their surroundings.
The City will need to focus development efforts within the
Service Area to promote compact, cost effective growth
and assist in the preservation of green space. Smart growth
principles should be used in development decision making.
The City will need to provide sufficient land to meet the
community’s projected growth in 2025 and encourage a
compatible mix of land uses in the community. Consistency
between plans and ordinances relating to land use,
and coordination between land use and transportation
planning will lead to more efficient and cost
effective land use patterns.
LAND USE AND GROWTH 31
J. GOAL
Encourage sustainable growth
that preserves and enhances the
character of South Bend and
ensures compatibility of land
uses in the community.
OBJECTIVES AND POLICIES
Objective LU 1: Plan for the future of the
community’s districts, neighborhoods,
and corridors.
Policies
LU 1.1 Pursue the development of area-specific
plans with broad community involvement.
(Community Planning, p. 161)
LU 1.2 Integrate City Plan policies into future plans
for the City’s districts, neighborhoods, and
corridors. (Community Planning, p. 161)
Objective LU 2: Encourage a compatible mix of
land uses in the community.
Policies
LU 2.1 Encourage developers to use planned unit
and traditional neighborhood development
models to promote land use compatibility
in future developments.
LU 2.2 Pursue a mix of land uses along major
corridors and other locations identified on
the Future Land Use Map.
LU 2.3 Ensure coordination of land uses among
adjacent area-specific plans.
LU 2.4 Provide buffer spaces between non-
compatible land uses.
Objective LU 3: Increase the urban density of the
Central Business District (CBD).
Policies
LU 3.1 Provide incentives to build on underutilized
and vacant lots to increase the density of
the CBD.
LU 3.2 Encourage pedestrian-oriented, mixed-use
development in the CBD.
(Pedestrian-Oriented Development, p. 156)
Objective LU 4: Ensure consistency between
plans and ordinances relating to land use.
Policies
LU 4.1 Integrate City Plan policies into all land-
related ordinances. (Municipal Code, p. 154)
LU 4.2 Review and modify local ordinances
following an update in City Plan to maintain
consistency.
LU 4.3 Ensure consistency between City and
County subdivision ordinances.
(Compatibility with County, p. 155)
Objective LU 5: Coordinate land use and trans-
portation planning.
Policies
LU 5.1 Conduct assessments of the impact that
transportation initiatives are projected to
have on surrounding land uses.
LU 5.2 Ensure municipal interdepartmental coordi-
nation on development projects.
LU 5.3 Maintain frequent communication between
the Michiana Area Council of Governments
(MACOG) and municipal departments on
development projects.
LU 5.4 Consider the needs of the South Bend
Regional Airport when planning for the
future of surrounding neighborhoods.
LU 5.5 Incorporate adjacent municipalities’
future plans when conducting land use
and transportation planning along
the city’s edges.
32 LAND USE AND GROWTH
Objective LU 6: Focus development efforts within
the Service Area.
Policies
LU 6.1 Promote orderly and planned growth that
expands outward from current city limits.
LU 6.2 Provide incentives for development utilizing
existing infrastructure inside the city limits.
(Incentives, p. 146)
LU 6.3 Establish and maintain a coordinated
development process to support future
growth in the Service Area.
(Development Process, p. 154)
LU 6.4 Create and maintain an updated current
land use map of all parcels within the city.
Objective LU 7: Provide sufficient land to meet
the City’s projected growth in 2025.
Policies
LU 7.1 Extend water and sewer services within the
Service Area to encourage future growth in
an efficient and orderly manner.
LU 7.2 Require the annexation of contiguous
property being serviced with City utilities,
where legally feasible, to provide for
future uses as identified in the
Future Land Use Map.
Objective LU 8: Preserve green space land uses.
Policies:
LU 8.1 Maintain the future use of green space
land uses wherever possible and replace
parkland that is lost through redevelopment
with comparable new parkland in the same
general vicinity.
LU 8.2 Encourage the retention of open spaces for
recreational purposes.
LU 8.3 Promote compact development patterns
that preserve open space in new
developments. (Municipal Code, p. 154)
LAND USE AND GROWTH 33
The following excerpt from the
community’s vision for 2025
helped shape the Goal,
Objectives, and Policies for
Transportation:
Envision South Bend in 2025...
We have an excellent
transportation system that
offers alternative modes of
transport, provides accessibility
throughout the community,
values pedestrians, and is
integrated locally
and regionally.TRANSPORTATION
TRANSPORTATION 35
Transportation shapes a community’s development
patterns in a fundamental way. The transportation
system provides the means for the movement of
goods and services and people. The best systems
provide this function in a safe, efficient, and
environmentally sensitive manner.
A safe system minimizes conflicts between bicyclists,
pedestrians, and vehicles. Traffic calming strategies
are aimed at improving traffic safety and neighborhood
livability by reducing vehicle speeds and volumes.
Traffic calming measures may include devices such
as roundabouts, curb extensions, and medians.
A transportation system’s quality is measured in
two ways. The first is the level of access it provides
to destinations within the system; the second is the
level of service it provides those who use the system.
As we plan for the future of our community, it
becomes increasingly important to consider fuel-
efficient vehicles and to pursue alternative fuels for
vehicles. Using alternative fuels can generally reduce
the amount of harmful pollutants in the atmosphere.
South Bend’s local transportation system is a valuable
asset for economic development and commerce. The
city is well situated for the movement of freight over
land and air and is becoming a location of choice for
distribution facilities, particularly in the Airport
Economic Development Area. The South Bend
Regional Airport connects passengers and freight
regionally and nationally. South Bend’s local
transportation system consists of streets, public
transit, and bike and pedestrian pathways.
A. ROADWAY SYSTEM
South Bend’s roadway system is composed of
arterial, collector, and local streets. These streets
provide efficient traffic circulation in the community.
In 2005 the city had approximately five hundred
miles of streets, most of which have sidewalks on
both sides.This linear mileage of streets expands
annually as the city grows.
Gateway Corridors
There are three primary gateways into the city, all
converging in the downtown. Michigan Street is
the main north-south arterial running through the
center of downtown. Lincoln Way West connects
the airport on the northwest side of the city with the
downtown. Western Avenue (State Road 2) extends
from the downtown to the western edge of the city.
Two other corridors that direct traffic flow into the
downtown are Portage Avenue and South Bend
Avenue (State Road 23). Portage Avenue is a two-lane
street running through residential districts with
commercial nodes concentrated at major intersections.
South Bend Avenue enters the city through
residential neighborhoods in the southwest,
continues through the downtown into the residential
section of the northeast neighborhood, and becomes
a five-lane arterial with significant commercial
strip development between Edison Road and
Ironwood Drive.
South Bend Regional Airport and South Shore interurban line. Photograph courtesy of Michael Murphy Design, Inc.
36 TRANSPORTATION
A local Street: Marquette Street.
A collector Street: Northside Boulevard.
An arterial Street: Main Street.
TRANSPORTATION 37
Guide Signs
Appropriate guide signs are essential to direct
residents and visitors safely and efficiently to promi-
nent local destinations. They are used to indicate
locations, distances, directions, and routes in the
community. The two types of guide signs are:
TABLE 4.1: 2030 Transportation Plan Project Listing
Open to Traffic Year Project Street Name Terminus begins here Terminus ends here Type of Work
1 2025 Ironwood Drive Pleasant Street Edison Road Added Travel Lanes
2 2025 Jackson Road Miami Highway Ironwood Road Added Travel Lanes
3 2009 Lincolnway West Meadowview Street US 31 New Road CNS
4 2015 Logan Street Mishawaka Avenue Jefferson Boulevard Added Travel Lanes
5 2009 Marion Street Dr. MLK Jr. Drive Michigan Street One-way Conversion
6 2015 McKinley Highway Ironwood Drive Manchester Drive Added Travel Lanes
7 2009 Miami Street Kern Road Jackson Road Added Travel Lanes
8 2020 Mishawaka Avenue Pedestrian Signal @ IUSB Ironwood Drive Center Turn Lane
9 2015 Nimtz Parkway SB City Limit (w/o US 31)Didam Street (a new road)Added Travel Lanes
10 2015 Nimtz Parkway Poppy Road Didam Street (a new road)Added Travel Lanes
11 2009 Olive Road Toll Road Bridge Brick Road Added Travel Lanes
12 2015 Olive Street SR 23 (Prairie Street)Sample Street Added Travel Lanes
13 2009 Portage Avenue Lathrop Street Toll Road Bridge Added Travel Lanes
14 2015 Twyckenham Drive South Bend Avenue Ivy Road New Road CNS
15 2015 Olive Road Brick Road Adams Road New Road Construction
16 2015 Auten Road Portage Road Mayflower Road New Road Construction
17 2009 Douglas Road SR 23 Mishawaka City Limits Added Travel Lanes
18 2009 Hickory Road Hepler Street Douglas Road New Road CNS
19 2015 Hickory Road Douglas Road SR 23 New Road CNS
20 2009 Adams Road Olive Road US 31 Added Travel Lanes
21 2015 Lincolnway West US 31 Pine Road New Road CNS
22 2015 Pine Road Edison Road Lincolnway West New Road CNS
23 2015 Olive Road Lincolnway West (realigned)Lincolnway West (current)New Road CNS
Destination Signs: These signs are tourist-oriented
directional signs that display the identification of
and directional information for businesses, services,
and activities.
Recreational or Cultural Interest Area Signs: These
signs guide road users to a general area and then to
specific facilities or activities within the area. Rec-
reational attractions include such facilities as parks,
campgrounds, and sports facilities; cultural attrac-
tions include museums, art galleries, and
historical buildings or sites.
Source: 2030 Transportation Plan, Michiana Area Council of Governments (MACOG).
38 TRANSPORTATION
B. TRANSIT SYSTEM
Local transit service is provided by the South Bend
Public Transportation Corporation (TRANSPO). The
corporation was founded in 1885 and was formerly
known as the South Bend Railway Company.
A comparative analysis of transit service in some
Indiana cities shows that TRANSPO ridership went
down between 2001 and 2003, but an upward trend
was observed in 2004. This was mostly due to TRANSPO’s
increased marketing to youth and college students.
TRANSPO currently covers more than 183 miles of bus
routes with a fleet of over sixty vehicles. Its entire bus
fleet travels about two million miles annually and is
an energy-saving, affordable, and environmentally
friendly option for residents in the area. The entire
fleet of buses operates on B20 bio-diesel fuel.
The TRANSPO trolleys are a recent addition to the
fleet and provide residents and visitors convenient
access to downtown South Bend attractions. The
trolleys are American Heritage Streetcar replicas
and approximate the look and feel of an
old-fashioned streetcar.
Sources: Indiana Department of Transportation and TRANSPO (2006), One-Way Passenger Trips.
Figure 4-1: TRANSPO Ridership Trends: 2000-2005
TRANSPORTATION 39
Bike path along the St. Joseph River.
C. BICYCLE AND PEDESTRIAN SYSTEM
The bicycle and pedestrian circulation system
includes sidewalks that are primarily designed for
pedestrian movement, bike lanes, and paths that can
be shared by bicyclists and pedestrians. During the
City Plan public meetings, the community expressed
concern over the shortage of facilities for bicycle and
pedestrian movement in the city. An improved and
expanded network of these pathways would offer more
exercise choices to residents and support bicycling
and walking as viable options to the automobile.
Encouraging bicycling is a simple way toward
improving public health. With more people bicycling,
communities can experience reduced traffic,
improved air quality, and greater physical fitness.
South Bend currently offers about six miles of
multipurpose bikeways/walkways and 1.78 miles
of bicycle lanes on Twyckenham Drive between
McKinley Avenue and South Bend Avenue.
40 TRANSPORTATION
Bicycle and Pedestrian Signage
To alert joggers, walkers, and cyclists about potential
hazards and to convey regulatory messages to all
vehicles adequate signage is essential as the City
develops more recreational paths, lanes, and trails.
Aesthetically pleasing signage that indicates routes,
destinations, and distances can provide bicyclists
and pedestrians a more pleasing and safe
recreational experience.
D. REGIONAL CONNECTIONS
South Bend is located within a day’s drive of 28
metropolitan areas, including Chicago, Detroit,
Indianapolis, Toledo, Cleveland, and St. Louis, to
mention a few. Twenty-two percent of the population
of the United States lives within this driving distance.
South Bend’s geographical location is enhanced by
the regional transportation network, which includes:
South Bend Regional Airport: South Bend Regional
Airport provides daily flights for passengers and
freight to prominent destinations, including Atlanta,
Cincinnati, Cleveland, Chicago, Detroit, Las Vegas,
Minneapolis, and Orlando.
South Shore Commuter Rail Line: The South Shore,
located at the South Bend Regional Airport, provides
round-trip daily and weekend travel to Chicago and
points between.
I-80/90 (Indiana Toll Road): The Toll Road is an
important link in the interstate highway system,
connecting the East Coast and the West Coast. Known
as the “Main Street of the Midwest,” it is located
about three miles north of South Bend’s downtown.
U.S. 31: U.S. 31 is the main north-south transportation
route connecting South Bend with Indianapolis
and Michigan. Planning for improvements to this
important corridor began in 1998, and the Indiana
Department of Transportation identified a final re-route
of a new, limited-access section of the highway in
2004. The rerouting will have a significant impact
on the south side of South Bend, including changes
in existing land uses. Once the new, limited-access
section of highway is complete, it is anticipated to
shorten the trip between South Bend and
Indianapolis by more than 30 minutes.
TRAFFIC CALMING
Traffic calming means slowing drivers down to make
local streets safer for walkers, cyclists, and others. Traffic
calming allows cars to travel at reasonable speeds, while
reducing the chances for accidents, and improving the
chances that retail will prosper and neighborhood streets
will be safer.
Techniques include planting trees and improving other
visual elements within the right-of-way, reducing lane
widths, and bringing curbs out further into the right-of-
way in some locations.
ALTERNATIVE MODES OF
TRANSPORTATION
The word alternative means “other than.” An alternative
mode of transportation is usually anything other than a
single-family car. Walking, cycling, and riding busses and
trains are alternatives to driving cars. Newer alternatives
include Bus Rapid Transit (BRT), people movers, and the
Segway™.
Benefits of Alternative Transportation Modes:• Creates more choices for residents.• Allows people who cannot drive, or choose not
to drive, to travel.• Reduces traffic congestion.• Improves air quality.• Provides a cheaper form of travel than owning
and maintaining a car.
Walking and biking trail along the St. Joseph River.
Source: Northern Indiana Commuter Transportation District, 2006
Figure 4-2: South Shore Ridership Trends: 2000-2005
TRANSPORTATION 41
South Bend Regional Airport entrance.
St. Joseph Valley Parkway (U.S. 31/20 Bypass): The
Parkway is a limited-access highway that runs east
and west along the south side of South Bend and
north and south on the city’s west side, providing a
limited-access corridor from the south side to the
Toll Road and beyond to St. Joseph and Benton Harbor,
Michigan, and east to Elkhart County.
Amtrak: The Amtrak station on Washington Street
in South Bend is a community resource that offers
connectivity to various other hubs across the country.
Amtrak service is available from South Bend on
two routes, with direct service to the East Coast
and Chicago.
Railroad Facilities (freight): Two national railroad
lines serving St. Joseph County run through South
Bend: Canadian National (CN) and Norfolk Southern
(NS). One regional railroad line exists: the Chicago
South Shore & South Bend Railroad (separate from
the South Shore Commuter Line).
Commuters at the South Shore station in the South Bend Regional Airport.
TRANSPORTATION, LAND USE,
AND ECONOMIC DEVELOPMENT
Transportation is intricately tied to land use and
economic development. The types of infrastructure built,
whether streets, public transportation, or a combination
of both, help to determine what kinds of buildings and
communities are created.
For instance, where roads and public transportation
combine along a route, higher densities of buildings
generally follow because these areas are more accessible
to a greater number of people. More people gathering in
an area improve the chances of developing a strong local
market for goods and services there.
In 1998, South Bend’s Mayor and Common Council
created the Commercial Corridor Program to improve the
vitality and commercial appeal of several streets where
commerce traditionally thrived. All five commercial
corridors offer service to drivers as well as public
transportation routes.
As of 2006, almost seven million dollars has been invested
improving the appearance and commercial appeal of
these important streets.
Source: Amtrak, 2006
Figure 4-3: Amtrak Ridership Trends: 2000-2005
Photograph courtesy of Michael Murphy Design, Inc.Photograph courtesy of Michael Murphy Design, Inc.
42 TRANSPORTATION
E. PLANNING AND COORDINATION
Transportation planning and coordination in the
region is primarily the concern of the Michiana Area
Council of Governments (MACOG). This regional
intergovernmental agency has been established to
foster cooperative, coordinated, and comprehensive
planning activities. MACOG is the designated
Metropolitan Planning Organization (MPO) and
represents Elkhart, Marshall, and St. Joseph counties
in Indiana. As an MPO, MACOG, in coordination with
the state departments of transportation and public
transit operators, is responsible for carrying out the
transportation planning process for urbanized areas
and serves as a broad-range planning forum for
decision makers, local elected officials, and planning
agencies. The Department of Public Works for the
City of South Bend works in collaboration with
MACOG to implement transportation projects in
the South Bend area.
Community feedback received throughout the
City Plan process indicated a greater need for
extensive public involvement during the
development stages of transportation projects.
To achieve the community’s Vision . . .
The City will need to provide safe and efficient
traffic circulation and bicycle and pedestrian
mobility throughout the community.
The City should help promote public
transportation options in the community
to reduce dependency on the automobile.
Supporting and promoting multiple modes
of transportation will also help conserve
non-renewable sources of energy.
South Bend’s regional transportation
connectivity will need to be improved.
The City will need to enhance coordination
with local and regional transportation
agencies and service providers and assist
them in engaging the community in
transportation planning efforts.
TRANSPORTATION 43
F. GOAL
Provide a balanced transportation
system that is integrated locally
and regionally, supports alternative
modes of transportation,
and is pedestrian friendly.
OBJECTIVES AND POLICIES
Objective T 1: Provide safe and efficient traffic
circulation throughout the community.
Policies
T 1.1 Establish and maintain a coordinated
system of guide signs to enable residents,
tourists, and visitors to find prominent,
local destinations.
T 1.2 Establish and maintain clearly visible and
appealing street signage.
T 1.3 Utilize traffic calming techniques when and
where appropriate.
T 1.4 Design roadways and intersections with
bicycle and pedestrian safety considerations.
(Pedestrian-Oriented Development, p. 156)
T 1.5 Maintain an appropriate level of service
(LOS) for the roadway system.
Objective T 2: Promote the use of public
transportation.
Policies
T 2.1 Coordinate with TRANSPO to enhance
routes, service frequency, and bus stop
design and location.
T 2.2 Encourage area employers to promote the
use of public transportation within their
organizations. (Alternative Modes of
Transportation, p. 159)
T 2.3 Encourage dial-a-ride programs.
T 2.4 Assist TRANSPO in marketing bus service
to all age groups.
T 2.5 Assist the Northern Indiana Commuter Trans-
portation District (NICTD) in promoting the
use of the South Shore Commuter Rail Line.
T 2.6 Support high-speed rail in the region.
Objective T 3: Provide safe and convenient
bicycle and pedestrian mobility and facilities
throughout the community.
Policies
T 3.1 Develop and maintain a coordinated
circulation system for bicyclists and
pedestrians which connects neighborhoods
to existing parks and recreational facilities,
green space, commercial corridors, etc.
(Pedestrian-Oriented Development, p. 156)
T 3.2 Coordinate city bicycle routes with
St. Joseph County bikeway network.
T 3.3 Provide City outreach programs to
promote bicycle safety.
T 3.4 Support public amenities along bicycle
routes and pedestrian walkways.
T 3.5 Ensure that public parks have adequate
sidewalk infrastructure.
T 3.6 Require bicycle parking standards for new
developments.
T 3.7 Enforce Municipal Code requirements
relative to sidewalk installation and repair.
Objective T 4: Support multiple modes of
transportation.
Policies
T 4.1 Promote the benefits of walking and
bicycling as viable options to driving.
(Alternative Modes of Transportation, p. 159)
T 4.2 Encourage ride sharing/carpooling.
T 4.3 Encourage the use of alternatively fueled
vehicles (AFVs). (Impact on Natural
Environment, p. 158)
44 TRANSPORTATION
Objective T 5: Improve South Bend’s regional
transportation connectivity.
Policies
T 5.1 Support efforts to establish public
transportation connectivity with
Elkhart County.
T 5.2 Support efforts to improve vehicular
connectivity between South Bend
and Indianapolis.
T 5.3 Support efforts to reduce the South Shore
Commuter Rail Line travel time to Chicago.
T 5.4 Support efforts of the South Bend Regional
Airport to expand connectivity to various
hubs across the nation.
T 5.5 Support efforts to maintain the Amtrak
presence in South Bend.
Objective T 6: Enhance coordination with local
and regional transportation agencies and
service providers.
Policies
T 6.1 Participate in transportation planning
with local jurisdictions, service providers,
and state and federal departments
of transportation.
T 6.2 Support Michiana Area Council of
Governments’ efforts in coordinating
regional transportation planning.
T 6.3 Pursue compatible transportation and
land use planning with municipalities in
St. Joseph County.
(Community Planning, p. 161)
Objective T 7: Engage the community in
transportation planning efforts.
Policies
T 7.1 Involve neighborhoods in transportation
infrastructure project planning.
(Public Outreach, p. 153)
T 7.2 Assist local and regional agencies in
engaging South Bend residents in
transportation planning efforts.
(Transportation Planning, p. 153)
TRANSPORTATION 45
The following excerpt from the
community’s vision for 2025
helped shape the Goal,
Objectives, and Policies for
Public Facilities and Services:
Envision South Bend in 2025…
We have a built environment
that embraces our
historic heritage
while facilitating
progressive design and
land use, utilizing
modern infrastructure.PUBLIC FACILITIESAND SERVICES
PUBLIC FACILITIES AND SERVICES 47
A community’s quality of life is often measured by
the quality of services and facilities it provides to its
residents. Public facilities and services are those
facilities and services that are essential to support
the community and its development and to enhance
the overall quality of life. They include such
necessities as public buildings and community
assets; streets and public ways; water, sanitary, and
storm water sewers; telecommunications
infrastructure; parks; and police, fire, and emergency
medical services. Public facilities can be government-
owned-and-operated facilities or privately owned
facilities that receive funding from public entities.
The location, size, timing, and financing of public
facilities must be planned well in advance of
construction. Advance planning provides justification
for the project, minimizes project costs, and maximizes
public benefits and private sector support. The City
of South Bend’s investments in public facilities are
designed to respond to the identified needs of both
our current and future population.
A. PUBLIC BUILDINGS AND
COMMUNITY ASSETS
Public buildings and community assets can be
divided into three categories:
1. Local government buildings: These include the
buildings and facilities that are needed by the City
to provide the highest level of public service to the
community, such as police and fire stations and
public works facilities. The City of South Bend shares
the County-City Building downtown with St. Joseph
County. County-owned facilities provide services to
county and city residents.
View of the County-City Building, downtown South Bend.
2. Cultural and recreational facilities: These
facilities are community amenities that contribute
to the vibrancy of any city. Every community values
such facilities since they enhance economic devel-
opment in the area and are used by people of all
age groups. Key cultural and recreational facilities
in South Bend include the Morris Performing Arts
Center, Northern Indiana Center for History,
Studebaker National Museum, the East Race,
Potowatami Zoo, Century Center, and the College
Football Hall of Fame, to name a few.
3. Essential community assets: There are some
community assets that are essential to a municipality’s
function but may not fall under the control of the
municipality. All of these vital, public facilities have
significant physical presence in a city. While the City
may not control the investment decisions of these
Newly redesigned City of South Bend Web site.
48 PUBLIC FACILITIES AND SERVICES
public entities, the City must work with them to
coordinate effective planning for the future of the
community. Some amenities of this nature in
South Bend are:• South Bend Community Schools• St. Joseph County Libraries• South Bend Regional Airport
B. STREETS AND PUBLIC WAYS
A coordinated network of streets and public ways
is essential to a successful roadway system in a
community. The system provides a means for the
efficient movement of goods, services, and people
in the community. The local street network is
maintained by the Department of Public Works’
Bureau of Streets. Its responsibilities include snow
removal on all public rights-of-way within the city
limits, resurfacing of streets (paving, slurry seal,
crack filling, pothole repair), maintenance, street
sweeping, alley grading, alley reconstruction, and
fall leaf pickup.
Construction crew installing new sidewalks.
PUBLIC FACILITIES AND SERVICES 49
Public meetings and feedback gathered during the
City Plan process revealed the community’s desire
for a high level of street maintenance over the next
20 years. Street maintenance ensures the efficient
management of traffic throughout the community.
In addition, the maintenance of public ways provides
higher levels of safety for bicyclists and pedestrians.
C. WATER, SANITARY, AND STORM
WATER SEWERS
Water Supply
The delivery of a clean and reliable water supply to all
households is a basic service of many municipalities.
South Bend’s Department of Public Works maintains
the local water supply and distribution system. The
Division of Water Works supplies drinking water
to 122,000 customers in the city and surrounding
unincorporated areas. It maintains more than 520
miles of water mains, 42,000 water meters, four
filtration plants, eight well fields, and four water
storage facilities which hold a total capacity of 17.5
million gallons of water.
Sanitary and Storm Water Sewers
Most municipalities across the nation have three types
of systems that handle sewage and storm water:
1. Sanitary sewers: This system transports
wastewater from homes, offices, factories, restaurants,
and shops to the wastewater treatment plant where
it is treated before being discharged into rivers or
other water bodies.
2. Storm water drainage system: This system
transports surface runoff from rainstorms and
snowmelt into lakes, rivers, streams, ponds, and
retention basins.
Typical Combined Sewer SystemCombined sewer systems (CSS) are designed to discharge directly to surface water bodies such as rivers, estuaries, and coastal waters during wet weather when total flows exceed the capacity of the CSS or treatment plant. (Source: EPA)
Typical Separate Sanitary and Storm Sewer SystemsSanitary sewer systems are designed to collect and convey wastewater mixed with limited amounts of infiltration and inflow to a treatment plant. A separate storm sewer system is used in many areas to collect and convey storm water runoff directly to surface water bodies. (Source: EPA)
50 PUBLIC FACILITIES AND SERVICES
3. Combined sewer system: This system combines
both the sanitary and storm water systems and
carries sanitary sewage and storm water to the
wastewater treatment plant.
Combined sewer overflows (CSOs) and storm water
pipe discharges are point source pollutants that
cause an increase in the levels of E. coli in the St.
Joseph River. Five out of 14 municipalities within
the St. Joseph River Watershed have CSOs: South
Bend has 35 CSOs, Elkhart has 22, Mishawaka 19,
and Goshen and Wakarusa have 6 CSOs each. The
United States Environmental Protection Agency
requires communities with combined sewer systems
to develop long-term CSO control plans that will
ultimately provide for full compliance with the Clean
Water Act, including attainment of water quality
standards. South Bend has been working on
separating the two systems since the early 1990s.
D. TELECOMMUNICATIONS
INFRASTRUCTURE
Telecommunication involves the transmitting or
receiving of voice, video, or data over a distance
by any electrical or electromagnetic medium. The
infrastructure required to transmit this information
will be an important consideration as the community
plans for future growth and development.
The St. Joseph Valley Metronet was founded in 2005
to establish links in the local telecommunications
infrastructure between local companies and the
fiber optic trunk lines that run through the area.
This nonprofit organization was formed after a
research committee appointed by the St. Joseph
County Chamber of Commerce and Project Future (a
regional economic development agency) concluded
that advanced information technology had become
an integral part of grades K-12, higher education,
and research programs, and was being increasingly
used in businesses, healthcare institutions, and
government agencies. Further, many employers
expressed the need for state-of-the-art
communications and access to a wide range of
information, resources, and services.
With the installation of Metronet’s “dark” fiber optic
network, South Bend is in a position to provide the
telecommunications infrastructure that is
necessary to attract high-tech companies to the area
and enhance economic development in the region.
E. PARKS
Parks and open spaces serve a variety of functions
and produce a multitude of benefits to the
community and the environment. Well-maintained,
safe, and accessible parks promote physical activity
and social interaction; cultivate a sense of pride and
identity; enhance property values (research shows
that many people are willing to pay more to live
near parks); strengthen the local economy through
festivals and other revenue-generating activities;
opportunities for the reuse of unproductive land;
provide educational opportunities to learn about
nature; and mitigate air pollution, reduce storm water
runoff, and assist in protecting biodiversity.
South Bend boasts a well-developed park system,
with some parks closely connected to the City’s rich
history and named in memory of prominent civic
leaders and entrepreneurs who have left a positive
mark on South Bend’s development.Outdoor skate park at O’Brien Recreation Center.
Interactive water playground at Kennedy Park.
People enjoying the Leeper Park Art Fair.
PUBLIC FACILITIES AND SERVICES 51
NATIONAL PARK STANDARDS
(ACREAGE/POPULATION)
National park and recreation standards are developed by
the National Recreation and Park Association (NRPA). The
NRPA standards are viewed as a guide. They can
be applied nationwide for planning, acquisition, and
development of park, recreation, and open space. They
recommend minimum goals to be achieved and are to
be interpreted according to specific local needs. The
standards are used to: • Evaluate existing and forecast future park and
recreational needs of a community based on
population and acreage.• Determine minimum acceptable park acreage and
recreational facilities for a community.• Guide and assist regional development.• Justify the need for parks and open space in a land
use context.
Below is an example of the applicability of the national
standards for certain recreational facilities:
Park Types
The National Recreation and Park Association develops
acreage standards for various types of parks, including
community, neighborhood, and block parks. These
standards are shown below:
Recreation Type National Standard
Public swimming pools 1/20,000 people
Baseball 1/5,000 people
Volleyball 1/5,000 people
Football 1/20,000 people
Soccer 1/10,000 people
Park Type National Acreage Standards
Community parks 7 acres/1,000 people
Neighborhood parks 3 acres/1,000 people
Block parks 0.5 acres/1,000 people
52 PUBLIC FACILITIES AND SERVICES
police station on West Sample Street, built in 2005.
The Board of Public Safety provides civilian
oversight of both the police and fire departments
and is a Mayoral-appointed, five-member civilian
board authorized by state statute.
In 2005, the South Bend Police Department
consisted of 261 sworn officers and 108
civilian employees. The respon-
sibilities of civilians range from
clerical work to forensic and
crime analysis, to positions in
management. In addition,
in 2005 there were more
than one hundred trained
volunteers providing
various supplementary
services when needed, such
as traffic control during
community events.
All officers of the South Bend Police Department
undergo extensive physical, written, and oral
examination, followed by 15 weeks of basic
training at the Indiana Law Enforcement Academy
and 15 weeks of field training in South Bend. Once
hired, police officers are required to participate in
periodic training and are encouraged to
continue their education. Accord-
ing to the South Bend Police
Department, as of March
2006, 81 of the 261 sworn
officers (31 percent) had
an associate’s, bachelor’s,
or master’s degree.
Over the past few
decades, the Police De-
partment has continually
updated its technology
to enhance its policing
capabilities. Department
crime analysts use geographic
information systems (GIS) to map
There are 57 public parks, playgrounds, and other
properties in the city, encompassing nearly 1,300
acres and ranging in size from 0.3 to 313 acres.
South Bend has 11 community parks, 22
neighborhood parks, 17 block parks, and 7 special
parks (i.e., golf courses, trails) that serve as
educational, recreational, and social centers and
enhance the quality of urban living.
However, in spite of the existing parks and
recreational facilities, South Bend is deficient in
the number of community, neighborhood, and
block parks and certain recreational facilities, such
as swimming pools and volleyball courts, when
measured against national park acreage standards
developed by the National Recreation and Park
Association. This acreage shortage will become even
more pronounced when the city gains more
residents over the next two decades. In addition
to the acreage shortfall, the community voiced
concerns about the lack of park connectivity as well
as age and condition of some public park facilities.
The South Bend Parks and Recreation Master Plan
adopted in 2005 calls for the construction of an
outdoor family aquatics facility and an amphitheater
in the next 5-10 years. It also identifies a need for a
number of new sports facilities, such as basketball
courts, baseball diamonds, and soccer fields.
F. POLICE, FIRE, AND EMERGENCY
MEDICAL SERVICES
South Bend Police Department
Law enforcement services are provided by the South
Bend Police Department headquartered at the main
New South Bend Police headquarters on Sample Street.
In addition to squad cars, South Bend Police officers patrol areas on bikes.
PUBLIC FACILITIES AND SERVICES 53
criminal activity. This analysis helps to identify
high-crime areas, the types of crimes being
committed, and the best way to respond. The
Forensic Lab’s Automated Fingerprint Identification
System (AFIS), one of only four in the state, compares
fingerprints from crime scenes against county, state,
and federal databases. The Forensic Lab’s Data
Acquisition System (DAS) compares shell casings
and striations on bullets with bullets or firearms
taken from other local crime scenes and a national
database. The South Bend Police Department shares
the capabilities of the Forensic Lab with other law
enforcement agencies in the region.
Every patrol car is equipped as a mobile office with
a secure computer providing continuous access to
city, county, state, federal, and homeland security
databases. In the event of a natural disaster,
communication from each patrol car remains secure
through e-mail. Approximately one-third of all
patrol cars are equipped with a portable defibrillator,
assisting officers responding to acute medical
emergencies. In addition, as part of an ongoing
process to improve community relations, all patrol cars
are equipped with video cameras to provide a
continuous record of officer interaction with the public.
Source: South Bend Police Department, 2006.
A South Bend Police officer at a neighborhood cookout.
Response time—the duration between receipt of a
call at police dispatch and the arrival of an officer on
the scene—is a key indicator of police
responsiveness to the community. Separating all
calls for service into two categories—crimes in
progress and all other calls—average response times
improved from 2004 to 2005 (see Table 5.1).
The Police Department has several specialty units,
including the Canine Unit; a special weapons and
tactics team (SWAT); a bomb squad with state-of-
the-art equipment serving a seven-county area in
northern Indiana and southern Michigan; the
Neighborhood Enforcement Services Team (NEST),
specializing in surveillance and enforcement of
crimes that negatively impact quality of life, in-
cluding prostitution and drug dealing; a Narcotics
Division that works with county, state, and federal
agents to combat this serious issue; and a School
Resource Officer Program in which a police officer
is assigned to each high school and intermediate
school in the South Bend Community School
Corporation to provide security and nurture good
relationships with school-age youth. Since
September 11, 2001, the South Bend Police
Department has also been actively involved in
emergency planning with other local governments
and engaged in specialty training of South Bend
officers to ensure preparedness for terrorist incidents.
Policymakers, policing agencies, and researchers
recognize more and more that understanding the
context of crime—the where and when of a criminal
event—is key to understanding how crime can be
controlled and prevented. To increase this
understanding of the community, Community
Oriented Policing Strategies (COPS) encourages
officers to interact with the public as a partner. Over
the last 15 years, the South Bend Police Department
has developed extensive Neighborhood Watch (180
groups) and Business Watch (40 businesses)
Programs. Since 1997, the department began formal
COPS training for all officers and civilian members of
the department, as well as hundreds of community
and business leaders.
Dealing with the public as a partner rather than a
recipient of services is complicated. It is helpful for
the police officer to understand the relationship
between unemployment and crime, as well as the
interrelations of social, economic, and demographic
characteristics in urban neighborhoods. In addition,
technology has become essential to all aspects of
police work. For these reasons, it is important that
the Police Department make an effort to increase
the number of officers with higher education and
advanced training.
TABLE 5.1: South Bend Police Department
Average Response Times (minutes:seconds)
Priority
Year Crimes In progress All Other Calls
2004 4:33 6:41
2005 3:25 6:28
54 PUBLIC FACILITIES AND SERVICES
The department recognizes the need to adapt to
the changing demographics of the community: the
need for more Spanish-speaking officers and civilian
employees; the need to increase the number of
minority police officers hired; and the need to
cultivate more effectively good relations with all
segments of the community and to recruit future
officers and civilians actively from the local area.
South Bend Fire Department and EMS
Since the South Bend Fire Department became
a professional department in 1887, it has held a
reputation for being one of the finest in the Midwest.
The new Central Fire Station located on South Main
Street just south of downtown was completed in
2005. In 2005, the department consisted of 248
full-time sworn firefighters and eight civilians. The
department concentrates its efforts in five key areas:
fire suppression, emergency medical services,
public education, prevention services, and
special operations.
Fire Suppression: To ensure proper fire suppression
coverage throughout the city, an adequate number
of fire stations must be built and maintained. In 2005,
the Fire Department provided services out of 11 fire
stations in the city. Construction of a new station on
Lincoln Way West and Dr. Martin Luther King, Jr.
Boulevard began in 2006 and is scheduled for
Source: South Bend Police Department, 2006.Source: South Bend Police Department, 2006.
New Central Fire Station on Michigan Street just south of downtown.South Bend Fire and EMS trucks at one of the 11 fire stations.
completion in 2007. Feasibility studies on the need
and location of other stations are currently under way.
In 2005, the Fire Department’s fire suppression
fleet included 11 fire trucks, four ladder trucks,
and various supplementary vehicles. During that
year, the department responded to a total of 564
fires, 189 of which were in residential structures.
Response time–the duration between receipt of a
call at dispatch and the arrival of a fire truck on the
scene–is a key indicator of quality fire suppression
services. As Table 5.2 indicates, average response
times improved slightly from 2004 to 2005.
Emergency Medical Services (EMS): This division
provides Advanced Life Support (ALS) countywide,
as well as providing ALS at several sporting events at
the University of Notre Dame. Four transport units
are dedicated to South Bend. Three transport units
and one nontransport unit are dedicated to St. Joseph
County. EMS responded to approximately seventeen
thousand medical emergencies throughout the
TABLE 5.2: South Bend Fire Department
Average Response Times (minutes:seconds)
Priority
Year Urgent/Life threatning All Other Calls
2004 4:55 6:33
2005 4:34 6:30
TABLE 5.3: Emergency Medical Services Calls
Average Response Times (minutes:seconds)
Year Average Response Time
2004 5:10
2005 5:15
PUBLIC FACILITIES AND SERVICES 55
county in 2005, an average of more than 46
incidents per day. Average response times
remained constant during 2004-2005 (see Table 5.3).
The Fire Department offers monthly EMS training for
all firefighters, and the department’s two sponsoring
hospitals offer four monthly in-service trainings for
all EMS certified persons within the county. All
firefighters receive 20 weeks of fire fighting and
emergency medical technician (EMT) training. In
2005, the department had 61 paramedics, 24
intermediate EMTs, 27 advanced EMTs, 99 basic
EMTs, and 20 first responders. The department
plans to eventually require all firefighters to obtain
paramedic certification; currently, all new hires are
required to obtain intermediate EMT certification
within three years of their swearing-in date.
Public Education and Fire Prevention: The Fire
Prevention Division carries out the following
responsibilities relating to inspections, public
education, and investigations:
Building Inspection: The Inspection Bureau
performs code enforcement activities for
commercial buildings and buildings with three
or more apartments.
Public Education: Three public education
officers speak on fire safety to groups in the
community and at schools. The department
dramatizes fire safety through the use of a
“Safety House,” a portable house trailer in which
fire dangers can be simulated. The department
also distributes free smoke detectors.
Fire Investigation: The Arson Bureau is comprised
of two South Bend firefighters and one South
Bend police officer who investigate fires for
origin and cause. In 2005, 219 fires were
investigated in South Bend, of which 158 were
residential, 46 commercial, and 15 in vehicles. A
total of 84 were considered to be arson.
Special Operations: This division is responsible for
the areas of the department not directly related to
fire suppression or EMS. Services provided include:
Hazardous Materials Response Team: Includes
one hazardous materials truck.
Swiftwater Response Team: Provides river
rescue services.
Tactical Rescue Response Team: Includes
a tactical rescue truck.
Administration of the Indiana River Rescue
School: Provides training for firefighters from
across the country who learn water rescue
techniques on the East Race and
St. Joseph River.
Nationwide, hazardous materials units have been
given the task of weapons of mass destruction
(WMD) preparedness. The Special Operations
Division is the homeland security branch of the Fire
Department with one dedicated truck. Response
teams respond to calls not only within South Bend,
but also throughout the Indiana Homeland Security
District #2 which covers seven counties.
Disaster Preparedness: The St. Joseph County
Emergency Management Agency (EMA) manages
the mitigation, preparedness, response, and
recovery from natural and human-made disasters.
The EMA assists local municipalities, public
institutions, private businesses, and schools with
emergency planning. In times of emergency or
declared disasters, it maintains a list of County
resources and capabilities and provides coordina-
tion of response agencies with additional resources
needed to bring back normal, day-to-day function.
During and following disaster events, the EMA is
responsible for filing necessary documentation, and
coordinating with agencies and individuals who may
claim assistance.
The administrative “infrastructure” exists for health
and disaster planning in St. Joseph County. It is
essential that units of government work together to
ensure that the organizations remain flexible, active,
and prepared. The City of South Bend remains a
significant and engaged partner in these planning
functions.
G. PUBLIC HEALTH PLANNING
The increasing integration of the global economy
has made imported goods, overseas travel, and
undocumented workers commonplace. This has
increased the importance of planning and preparing
for the possible outbreak of infectious diseases. It
is equally important to prepare for other undesired
possibilities, such as natural disasters and terrorist
incidents. All these planning activities require coor-
dination and collaboration of key local institutions
and organizations. The government’s role in health
and disaster planning is crucial to assist this process
in determining where investment is most needed
and will produce the greatest good.
Access to Health Care
The lack of equitable access to affordable health care
is a national issue that no individual community or
jurisdiction can address on its own. However, local
56 PUBLIC FACILITIES AND SERVICES
River Park Family Medicine neighborhood clinic on Ironwood Drive.
communities still have to deal with the consequenc-
es of this lack of access. Access to quality health care
is largely determined by whether or not a household
has health insurance.
The St. Joseph County Health Department published
the St. Joseph County Community Health Assessment
in 2004 using self-reported health status, determinants
of health data from Indiana’s Behavioral Risk Factor
Survey, and mortality data from the Indiana State
Department of Health. This assessment showed
more than 13 percent of county residents lacked
health insurance. Research indicates that the
unemployed and lower-income households are
more likely to lack health insurance than the general
population. In recent years, these populations within
the county tend to be concentrated in South Bend.
There are seven extremely high-quality health
clinics in South Bend that provide care to the eligible
uninsured. The Healthy Communities Initiative (HCI)
coordinates a program in which physicians provide a
limited amount of volunteer care to people involved
in the program. These are two excellent examples
of what can be done when the community works
together to address a recognized need. However,
many still lack access to basic health care. There are
limited steps a jurisdiction can take to assist people
who lack access to needed healthcare services. City
government can support institutions and
organizations that deal with these issues in a variety
of ways other than direct financial support.
Disease Prevention
Currently (in 2006), there is no comprehensive health
plan for the community that identifies areas of
particular need and coordinates efforts to address
them. The St. Joseph County Health Department
began a planning process in 2003-2004 called
Mobilizing for Action through Planning and
Partnerships (M.A.P.P.), a communitywide strategic
planning tool promoted by the federal Centers for
Disease Control and Prevention (CDC). The purpose
was to assist the community in prioritizing public
health issues and identifying resources for
addressing those issues. The sole result of this
process was the creation of the Community Health
Improvement Alliance (CHIA), an administrative
structure for an alliance of local governments,
medical establishments, healthcare providers, and
nonprofit organizations. The CHIA can provide the
infrastructure for comprehensive healthcare
planning and is a good start in achieving this
important objective.
The City of South Bend has limited statutory authority
or financial resources to affect health-related issues
directly, other than the responsibilities previously
Memorial Hospital main entrance in downtown South Bend.
PUBLIC FACILITIES AND SERVICES 57
mentioned. However, the City can support,
encourage, and collaborate with other governmental
entities, medical establishments, healthcare
professionals, and nonprofits in a variety of ways
that promote good health. The support of
educational strategies is one such step.
A combination of factors influence individual
health: biological, environmental, and behavioral
(i.e., personal choice). Sometimes choices are made
due to personal preference and sometimes to a lack
of information and other external circumstances.
Disease prevention strategies seek to educate
individuals to assist them in making informed
lifestyle choices. Indiana’s state health plan (A Plan
for Community Health Improvement, 2004-2007)
emphasizes prevention as the key and best strategy
for improving health and health status.
There are many ways hospitals and healthcare
professionals reach out to people in the community
to provide needed care. St. Joseph County Health
Department, Memorial Hospital and Health System,
Saint Joseph Regional Medical Center, Healthy
Communities Initiative, and several other nonprofit
agencies, all offer free educational programs which
encourage a healthy lifestyle and help improve the
quality of life for those living with a chronic dis-
ease. Other programs screen children and educate
parents about the dangers of lead poisoning from
lead-based paint. Some of the ways the City sup-
ports improvement of public health is to prevent the
onset of preventable diseases through education
and informed choices.
To achieve the community’s Vision . . .
The City will need to coordinate planning and development activities for municipal buildings and facilities.
Community assets such as schools and libraries will need to be maintained and enhanced.
Traffic patterns will need to be improved and efficient and environmentally friendly streets and public ways will need
to be designed and constructed. The City will need to ensure that the maintenance of public ways provides higher
levels of safety for bicyclists and pedestrians.
The City should ensure coordinated and efficient planning for all utilities, maintain a clean and dependable water
supply, and provide an efficient wastewater collection, treatment, and disposal system to protect the natural
environment while serving the needs of the community.
The City will need to encourage the development of a telecommunications infrastructure that enhances the local
economy and the City’s level of communication and service.
The City will need to provide and maintain a range of parks and recreational facilities throughout the community and
develop a well-connected and safe park system.
The City will need to recruit a diverse workforce and retain highly qualified police and fire personnel who will
respond in an efficient and coordinated fashion to the community’s public safety and emergency medical needs.
The City will need to partner with others to establish and maintain communications equipment that coordinates
public safety and emergency medical needs across jurisdictions.
Comprehensive health planning will need to be promoted and the community encouraged to pursue
a healthy lifestyle. The City will need to work with its partners to increase access to affordable
healthcare services for the entire community.
58 PUBLIC FACILITIES AND SERVICES
OBJECTIVES AND POLICIES
1. PUBLIC BUILDINGS AND COMMUNITY ASSETS
Objective PF 1.1: Coordinate planning and
development activities for municipal buildings
and facilities.
Policies
PF 1.1.1 Maintain and upgrade municipal buildings
and facilities to provide the highest level of
City services.
PF 1.1.2 Develop multi-use municipal facilities that
can be shared by various City departments.
PF 1.1.3 Support the maintenance and upgrading of
local recreational and cultural buildings.
PF 1.1.4 Support the construction of new facilities
and expansion of existing recreational and
cultural facilities.
Objective PF 1.2: Maintain and enhance essential
community assets.
Policies
PF 1.2.1 Support efforts of volunteer organizations
that help maintain and upgrade essential
community assets.
2. STREETS AND PUBLIC WAYS
Objective PF 2.1: Provide adequate maintenance
and upgrading of local streets and public ways.
Policies
PF 2.1.1 Encourage the State government to main-
tain State thoroughfares in good condition.
PF 2.1.2 Improve bicycle and pedestrian safety on
local streets by providing bike lanes, paths,
and pedestrian walkways.
PF 2.1.3 Maintain and upgrade alleys.
Objective PF 2.2: Design and construct efficient
and environmentally friendly streets and
public ways.
Policies
PF 2.2.1 Incorporate sustainable design solutions in
the design of streets and public ways.
PF 2.2.2 Include sidewalks on both sides of all
streets to facilitate pedestrian mobility
throughout the community.
(Pedestrian-Oriented Development, p. 156)
PF 2.2.3 Require streets in new developments
to be well connected to the city’s existing
street pattern.
PF 2.2.4 Incorporate streetscape elements along
local, collector, and arterial streets in the city.
PF 2.2.5 Coordinate the planning and installation
of utilities with the construction and
reconstruction of streets.
3. WATER SUPPLY AND SANITARY AND STORM
WATER SEWERS
Objective PF 3.1: Ensure a clean and dependable
water supply to meet the existing and future
needs of the community.
Polices
PF 3.1.1 Provide a safe and clean water supply that
exceeds minimum standards set by state
and federal regulations for water quality.
PF 3.1.2 Provide water at consistent pressures to
all users in the city.
PF 3.1.3 Ensure the proper maintenance of water
storage and distribution facilities.
PF 3.1.4 Install and maintain public fire hydrants to
serve the fire protection needs of all city
residents and businesses.
H. GOAL
Provide efficient and
progressive public
facilities and services
that accommodate
future growth and meet
the community’s
changing needs.
58
PUBLIC FACILITIES AND SERVICES 59
PF 3.1.5 Promote water conservation techniques
to all residents and businesses.
(Impact on Natural Environment, p. 158)
Objective PF 3.2: Provide an efficient wastewater
collection, treatment, and disposal system.
Policies
PF 3.2.1 Provide preventative maintenance of the
sanitary and storm water system.
PF 3.2.2 Improve and update the infrastructure of
areas in the city that experience frequent
sewer system overloading.
(Water and Sewer, p. 150)
PF 3.2.3 Comply with the EPA’s control policy to
reduce combined sewer overflows (CSO)
in South Bend. (Water and Sewer, p. 150)
PF 3.2.4 Ensure that all developments in the city are
connected to the City sanitary sewer system.
Objective PF 3.3: Coordinate service areas
planning for all utilities.
Policies
PF 3.3.1 Ensure unified service areas for water,
sanitary, and storm water extensions.
(Community Planning, p. 161)
PF 3.3.2 Integrate master planning for water and
sewers with other citywide planning activities.
4. TELECOMMUNICATIONS INFRASTRUCTURE
Objective PF 4.1: Encourage the development of a
telecommunications infrastructure that enhances
the City’s level of communication and service.
Policies
PF 4.1.1 Support local initiatives that enhance
telecommunications and information
infrastructure in the community.
(High Technology, p. 145)
PF 4.1.2 Encourage new developments to include
infrastructure necessary to support modern
communication. (Municipal Code, p. 154)
PF 4.1.3 Promote the telecommunications
infrastructure as an asset for research and
development. (Community Assets, p. 147)
PF 4.1.4 Partner with regional organizations to
integrate telecommunications infrastructure
planning in the region.
(High Technology, p. 145)
PF 4.1.5 Maintain and repair existing conduits for
potential future use.
PF 4.1.6 Support ways to achieve telecommunication
access for all housing units.
5. PARKS
Objective PF 5.1: Provide and maintain a range of
parks and recreational facilities throughout the city.
Policies
PF 5.1.1 Provide ongoing maintenance for City
parks and recreational facilities.
PF 5.1.2 Provide a balance of active and passive
recreation opportunities in the City park
system. (Parks, p. 150)
PF 5.1.3 Partner with schools, colleges, private
organizations, and neighboring jurisdictions
to provide adequate recreation facilities for
the general public. (Parks, p. 150)
PF 5.1.4 Involve the general public, especially youth,
in the planning, design, and maintenance of
parks and recreational facilities.
(Youth Involvement, p. 153)
PF 5.1.5 Utilize the standards set by the National
Recreation and Parks Association in
developing future parks in the city.
PF 5.1.6 Recycle selected brownfields into public
parkland after environmental assessment
or remediation.
PF 5.1.7 Partner with neighborhood groups to
convert selected vacant properties in the
city for park and recreational uses.
Objective PF 5.2: Develop a well-connected and
safe park system.
Policies
PF 5.2.1 Develop and maintain a citywide plan for
bicycle lanes, paths, and pedestrian walk-
ways that connect the local park system.
(Pedestrian-Oriented Development, p. 156)
PF 5.2.2 Provide efficient park security to moni-
tor activity at local parks and recreational
venues. (Parks, p. 150)
6. POLICE, FIRE, AND EMERGENCY MEDICAL
SERVICES (EMS)
Objective PF 6.1: Recruit and retain highly quali-
fied police and fire personnel.
Policies
PF 6.1.1 Provide continual training and education to
keep up with innovations in all aspects of
law enforcement and fire safety.
PF 6.1.2 Create, maintain, and promote cadet
programs for local intermediate and high
school youth interested in careers in the
police and fire departments.
PF 6.1.3 Support in-service training and internship
opportunities for youth.
Objective PF 6.2: Provide efficient and coordi-
nated response to public safety and emergency
medical needs of the community.
Policies
PF 6.2.1 Ensure that police, fire, and EMS personnel
maintain appropriate response times.
60 PUBLIC FACILITIES AND SERVICES
PF 6.2.2 Collaborate with other jurisdictions and
organizations in the region to maintain
emergency plans for natural disasters,
epidemics, hazardous spills, and acts of
terrorism. (Emergency Preparedness, p. 149)
PF 6.2.3 Establish and maintain formal agreements
that coordinate the activities of law
enforcement, fire, and emergency
medical services in the region.
Objective PF 6.3: Maintain equipment that co-
ordinates public safety and emergency medical
needs in the region.
Policies
PF 6.3.1 Maintain compatible state-of-the-art
communication equipment that provides
the best level of service to the community.
PF 6.3.2 Ensure interoperability of voice, data,
image, and video communication systems
between and among area law enforcement,
fire, and emergency medical services within
St. Joseph County.
(Emergency Preparedness, p. 149)
7. PUBLIC HEALTH PLANNING
Objective PF 7.1: Promote comprehensive
health planning.
Policies
PF 7.1.1 Support the provision of services that
effectively meet the changing healthcare
needs of residents.
PF 7.1.2 Encourage the local health department,
institutions of higher education, and health-
care providers to identify and investigate
causes of existing local health disparities.
PF 7.1.3 Partner with medical, governmental, and
nonprofit entities to ensure local disaster
preparedness for health emergencies.
Objective PF 7.2: Encourage the community to
pursue a healthy lifestyle.
Policies
PF 7.2.1 Support efforts that educate uninsured and
underserved populations on proper care for
chronic diseases.
PF 7.2.2 Promote dissemination of information to
parents with infants and to seniors on the
importance of immunization.
PF 7.2.3 Support healthcare programs that
provide preventive screening.
PF 7.2.4 Partner with public and private entities to
support implementation of health, exercise,
and weight loss programs.
PF 7.2.5 Support organizational partnerships that
encourage a healthy lifestyle and help
educate the public about the importance of
preventative care.
PF 7.2.6 Support regional and national health
promotion and disease prevention activities.
PF 7.2.7 Support efforts to reduce tobacco use
in the community.
PF 7.2.8 Promote good nutrition and health
education in schools.
PF 7.2.9 Support a youth development approach for
prevention/intervention on health issues
related to behavior.
Objective PF 7.3: Increase access to affordable
healthcare services for the entire community.
Policies
PF 7.3.1 Support dynamic, effective health outreach
activities that serve difficult-to-reach and
underserved populations.
PF 7.3.2 Encourage the provision of culturally
appropriate health services.
PF 7.3.3 Encourage the establishment of
health and wellness centers.
PF 7.3.4 Encourage healthcare organizations to
increase the number and the proportion
of minority physicians practicing within
the community.
PF 7.3.5 Support efforts to develop a volunteer
system to supplement healthcare services.
PUBLIC FACILITIES AND SERVICES 61
The following excerpt from the
community’s vision for 2025
helped shape the Goal,
Objectives, and Policies
for Housing:
Envision South Bend in 2025…
We are a city of safe and unique
neighborhoods with diverse
housing choices. We have a
built environment that
embraces our historic heritage
while facilitating progressive
design and land use, utilizing
modern infrastructure.HOUSING
HOUSING 63
Housing is a basic human need and one of the
most physically identifiable and important features
of a community. Housing styles and types, and the
neighborhoods they create, significantly contribute
to a city’s identity and self-image. In order to remain
competitive in the region’s housing market and
prosper, South Bend must offer a balanced mix of
housing types and styles to meet the needs and
market demands of current and future residents.
A. PLANNING FOR HOUSING
A key element of planning involves establishing
population projections to help anticipate future
needs. The City of South Bend contracted with the
Indiana Business Research Center (IBRC) of Indiana
University to do population projections for the City
over the 20-year planning period. (See Introduction.)
The projection estimated that South Bend would
grow by 3,025 persons over the 20-year planning
period: from 107,889 in 2005 to 110,914 in 2025.
Assuming the household size remains constant–
2.45 persons per household, using the average
household size in South Bend according to the 2000
census–the city would need an additional 1,235
housing units (requiring an average of 62 additional
units annually over the 20-year planning period) to
house this increase in population.
Neither the City government nor the general public
considered this rate of growth desirable. A “preferred”
rate of growth was then established that more
accurately reflected the community’s aspirations for
a thriving housing market. Based on the economic
growth desired by participants in the planning
process, City staff established a figure of 16,500, a
64 HOUSING
built since 1990 (see Table 6.1). Though there are
hundreds of well-maintained, historic homes, not
all homeowners can afford the maintenance an old
house requires. In addition, all homes built prior to
1978 may contain lead-based paint, a known health
hazard to children. Homes built prior to 1960–more
than 66 percent of South Bend’s housing–are very
likely to have lead-based paint.
The City of South Bend conducted a “windshield
survey” of housing units within the city in 1991 and
again in 1998. These studies revealed that the
condition of housing in South Bend, on average,
had declined over the 1990s (see Table 6.2).
A single-family home in the Deer Run neighborhood.
significant, but realistic, increase in population. This
growth will require an estimated 6,735 additional
housing units (implying an average of 337 additional
units annually over the 20-year planning period). To
encourage and accommodate this more rapid rate of
growth, some changes in the local housing stock will
be necessary.
B. HOUSING VARIETY
Different types of housing serve the needs and
desires of people of different income levels, lifestyles,
and life stages. While there are many housing styles
in the city, there is a general uniformity of type.
In 2000, 76 percent of all housing units in South Bend
were single-family, detached homes. Less than
15 percent of all housing units were in apartment
buildings with five or more units. The remaining
units, less than 10 percent of the total, were found
in structures containing two to four units each. The
total number of people living in group quarters,
such as nursing homes, grew from 2,125 in 1990 to
2,817 in 2000, an increase of almost 33 percent. This
trend is expected to continue as the population ages
over the 20-year planning period.
Due to both the aging population and the desire to
attract more young people, participants in the
planning process recognized the need to encourage
the development of more diverse housing types,
such as condominiums, town houses, villas, and
apartment buildings, in addition to new and
rehabilitated single-family, detached homes.
C. EXISTING HOUSING CONDITIONS
Of the 47,172 housing units in South Bend at the
end of 2004, 28 percent were built prior to 1939
and approximately 38 percent were built during the
1940s and 1950s. Only 7.8 percent of all units were
Single-family homes in the Near Northwest neighborhood.
The Irish Hills apartment complex on South Bend’s south side.
TABLE 6.1: The Age of South Bend’s Housing
Year Built South Bend, Indiana As % of total
Total:47,172 100.0%
Apr. 2000-Dec. 2004 942
7.8%1995–March 2000 1,301
1990–1994 1,418
1980–1989 2,694
25.9%1970–1979 4,411
1960–1969 5,128
1950–1959 10,761 38.2%1940-1949 7,261
1939 or earlier 13,256 28.1%
Source: 2000 Census; City of South Bend Building permits,2000-2004.
TABLE 6.2: Windshield Surveys of
South Bend Housing Units: 1991 and 1998
1991 1998
Structures needing only normal maintenance 80.7% 69.7%
Structures needing minor repairs 17.8% 28.3%
Structures substandard/deteriorating 1.4% 1.9%
Structures totally deficient; demolition required 0.1% 0.1%
Source: City of South Bend, Department of Community and Economic Development.
HOUSING 65
HISTORIC DISTRICTS
The National Register of Historic Places is the official list
of cultural resources considered worthy of preservation
in the United States. Since 1966 the National Register has
coordinated and supported public and private efforts
to identify, evaluate, and protect the country’s historic
and archeological resources. The National Register is
administered by the U.S. Department of the Interior.
In each state the program is administered by a State
Historic Preservation Officer (SHPO). In Indiana, the
SPHO is the Director of the Indiana Division of Historic
Preservation and Archaeology. The Historic Preservation
Commission of South Bend and St. Joseph County is the
local historic preservation authority.
Local historic district designation is different than the
National Register designation. Local historic districts are
entire neighborhoods or other areas that include many
historic properties. The designation provides controls
on the appearance of existing and proposed buildings.
Designation is an honor, meaning the community
believes the architecture, history, and character of the
area are worthy of recognition and protection.
In South Bend, there are nine districts listed in the
National Register and nine districts that have been
locally designated.
66 HOUSING
value and character not found in newer subdivisions.
Lower home prices are one of the city’s strengths.
To compare home values, realtors use the “median
sales price” as a primary indicator. The median
sales price is a typical market price where half of all
homes sell for more and half sell for less. For the
South Bend-Mishawaka area in 2004, the median
sales price was $93,600, approximately 62.8 percent
of the regional median sales price (see Table 6.3). The
median sales price of homes sold within the City
of South Bend in 2004 was $57,000 (Greater South
Bend—Mishawaka Multiple Listing Service). One
of the reasons for the lower median sales price in
South Bend was the concentration within the City of
homes valued at less than $50,000 (see Table 6.4).
E. DETERMINING MARKET VALUE
The market value of a house is based on more than
the home itself. Three of the most important
factors influencing home values are tax rates, crime,
and schools.
Property taxes: A reassessment of all real property
in Indiana went into effect March 1, 2002, following
an Indiana Supreme Court decision that found
the previous method for assessing tax value
unconstitutional. The result of this decision was
to move Indiana closer to a system that assesses
tax value by a kind of market value, called “market
value-in-use.” The reassessment produced a
significant increase in the taxes owed on older homes
which had enjoyed, under the old system, a reduced
tax value through a calculated “depreciation.”
Throughout the planning process, many homeowners
and landlords voiced their concern about the
increase in their property taxes. This tax increase
has been especially difficult for homeowners on
fixed incomes and investors who own property in
older and historic neighborhoods. Though City
government has limited control over property tax
issues, participants encouraged the City to recognize
the challenge and seek reasonable remedies.
Crime: South Bend is perceived as having a high
crime rate, a characterization many South Bend
residents believe is unfair. South Bend’s crime rate
declined by more than 26 percent during the period
1995–2004 (See also Community Building chapter).
The issues of actual crime, perceptions of crime, and
police/community relations, and how all three influ-
ence homebuyers’ choices, are recognized as areas
needing to be addressed over the planning period.
TABLE 6.4: Value of Specified Owner-Occupied Housing Units, 2000
VALUE St. Joseph County South Bend
< $50,000 9,534 (14.6%) 6,941 (27.3%)
$50,000—$149,999 45,880 (70.2%) 17,220 (67.9%)
$150,000 and up 9,941 (15.2%) 1,212 (4.8%)
Total units in sample 65,355 (100%) 25,373 (100%)
TABLE 6.3 Median Sales Price of Existing Homes by Region in the United States
Region Median sales price As % of national sales price
U.S. $184,100 100.0%
Northeast $220,000 119.5%
Midwest $149,000 80.9%
South $169,000 91.8%
West $265,800 144.4%
In a study done by the Brookings Institution (Toward a
New Metropolis: The Opportunity to Rebuild America,
December 2004), the authors calculated conservatively
that the typical residential unit lasts an average of
170 years. The authors converted that housing “life
expectancy” into a percentage lost annually (.58%).
Applying this percentage to South Bend, planners
estimated that 5,472 housing units will need to
be replaced over the planning period. The total
number of “new” units needed by 2025–to replace
units lost and to accommodate desired growth–is
estimated to be 12,207.
Throughout the planning process, participants
supported home rehabilitation programs for income-
eligible homeowners. Participants also encouraged
the City to continue to partner with a variety of
agencies and neighborhood-based organizations to
support neighborhood revitalization and housing
rehabilitation, transforming deteriorated blocks into
healthy, urban neighborhoods. Improved property
maintenance, timely enforcement of City codes,
and creative reuse of abandoned properties build
residents’ pride and make neighborhoods more
attractive. In addition, it may also be beneficial to
lobby the State legislature to address the problem of
property owners with repeat code violations.
D. HOME VALUES
Home prices in the Midwest are generally lower than in
other regions of the country, as Table 6.3 demonstrates.
Lower home prices are partly due to slow population
growth, a balance of supply and demand region wide,
and the migration of jobs to the West and South.
Many of South Bend’s neighborhoods contain older
homes which are affordable and provide excellent Source: National Association of Realtors, Median Sales Price of Existing Homes for Metropolitain Areas, 2004.
Source: U.S. Census Bureau, 2000.
HOUSING 67
Schools: Schools significantly influence homebuyers’
choices, particularly homebuyers with school-age
children. South Bend offers a selection of both
public and private schools. Public school district
boundaries do not match city boundaries and South
Bend city limits now extend into two public school
districts. South Bend Community School Corporation
(SBCSC) includes all of South Bend except for a small
portion of the city south of the St. Joseph River and
east of Ironwood Road, which is in the Penn Harris
Madison School Corporation (PHM). Any future
growth of the city north to the Michigan state line
will be within the SBCSC; some growth to the south
may continue into PHM (see Map 12.1).
In 2006, approximately 22,000 students were
enrolled in the SBCSC, approximately 100 were
enrolled at PHM, and approximately 6,200 were
enrolled in private schools. As these enrollment
numbers indicate, the SBCSC is the most significant
public school district for South Bend city residents.
The SBCSC has approximately ten National Merit
Scholarships per year, other nationally recognized
achievements, and statewide achievements as well.
The SBCSC confronts challenges similar to other
urban school districts. However, many positive
improvements have been implemented since the
school system reorganized in 2002: the curriculum
has been strengthened, state-of-the-art classroom
technology installed, magnet school programs
created, honors programs offered in the arts and
sciences, and tens of millions of dollars invested
in capital improvements in all school buildings, to
mention just a few major initiatives.
Challenges remain for the SBCSC, such as the effects
of concentrated poverty and achievement gaps. In the
2003–2004 school year, 55 percent of the system’s
21,871 students were eligible for free or reduced-price
lunches, an indication of the lack of student families’
financial resources within the school district. Achievement
gaps, which exist nationally, are differences in the
levels of learning among different demographic
student subgroups. These gaps result from complex
interrelationships among poverty, race, ethnicity,
family, personal, and social characteristics.
Though the SBCSC has shown improvement in
standardized test scores since 1996, the scores
continue to lag behind the two largest neighboring
public school systems. Standardized test scores
are imperfect measures for predicting a student’s
performance. However, fair or not, standardized test
scores are frequently used to compare schools, and
this has an indirect but important influence on
South Bend’s housing market. (See Education chapter.)
F. POVERTY AND HOUSING
Poverty influences the housing market in South Bend,
directly and indirectly. Almost 17 percent of the city’s
population in the 2000 census lived below the poverty
level. In 2000, in the entire county the proportion of
all households below the poverty line was only 10.4
percent, while the national average was 12.4 percent.
Table 6.5 shows that a greater proportion of South
Bend’s population living below the poverty level is
under 18 or over 65 than in the county as a whole,
and a greater percentage of South Bend’s renters
and homeowners spend more than 30 percent of
their monthly income on housing. Income obviously
influences a household’s ability to invest resources
into home maintenance. Participants in the planning
process expressed the desire for City Plan to address
this issue.
G. HOUSING TENURE
Between 1960 and 1990, South Bend’s population
declined from 132,445 to 105,511. This decline had
a significant impact on the local housing market
including the rate of homeownership which declined
from 73.3 percent in 1960 to 63.1 percent in 2000
(see Table 6.6). By contrast, the 2000 census reported
that the rate of homeownership for the State of Indiana
was 74.9 percent; for the nation, it was 67.5 percent.
The increase in the demand for rental housing has
many causes. Population loss, coupled with an
increasing concentration within city limits of residents
with limited financial means, created a growing
demand for rental units. This demand helped foster
a market for investors converting single-family
homes into rental property: by 2005, there were
more than 6,000 single-family homes which had
become an important part of the local rental market.
In 2005, the South Bend Public Housing Authority
managed 814 units and approximately 2,000 Section
8 rental vouchers which, combined, represented
more than 17 percent of South Bend’s rental market.
There is also a growing demand for upscale rental
units, particularly in and around the downtown.
Overall, South Bend’s competitive edge as a market
of choice for the home buying public has suffered
compared to the unincorporated areas of the county
(see Table 6.6).
68 HOUSING
There are many reasons why people choose to be
renters. The convenience of renting is attractive
to many young professionals and “empty-nesters.”
Some renters simply cannot afford the costs associated
with homeownership regardless of its long-term
financial benefits. Most college students are renters.
According to the University of Notre Dame, the
percentage of all Notre Dame undergraduates living
off campus has increased from 2 percent to 18
percent between 1990 and 2005. Indiana University
South Bend (IUSB), currently a commuter campus,
has no comparable data on its student body.
However, IUSB aspires to be a residential campus
and has included in its long-term plan the construction
of approximately 700 student apartments on
university-owned land. Participants in the planning
process acknowledged the importance of meeting
the needs of those who choose to rent. However,
they wanted to encourage homeownership both
to stabilize neighborhoods and provide more
opportunities for people to build equity.
Demolition of dilapidated house in a South Bend neighborhood.
TABLE 6.5: Households and Housing in South Bend and St. Joseph County, 2000
City of South Bend St. Joseph County
Number % Number %
Annual Household Income
Total in sample:42,627 100.0% 100,629 100.0%
Less than $19,900 12,255 28.8% 21,808 21.6%
$20,000 to $29,999 7,152 16.8% 14,563 14.5%
$30,000 to $39,999 6,335 14.9% 13,337 13.2%
$40,000 to $49,999 5,079 11.9% 11,429 11.4%
$50,000 to $74,999 6,714 15.7% 20,689 20.6%
$75,000 to $99,999 2,899 6.8% 9,846 9.8%
$100,000 and over 2,193 5.1% 8,957 8.9%
Median Household Income $32,439 $40,420
Median Family Income $39,046 $49,653
Persons Below Poverty Status by Age
Percentages shown are of total population for
whom poverty status is determined
Under 18 years 6,913 6.6% 9,429 3.7%
18 to 64 9,180 8.8% 14,370 5.7%
65 and over 1,359 1.3% 2,427 1.0%
Total Persons Below Poverty Status 17,452 16.7% 26,226 10.4%
Overpayment for Housing
Households paying more than 30% of monthly income for housing
(percentages indicate % of all renters and % of all homeowners)
Renters 6,095 38.6% 9,917 35.1%
Homeowners 4,598 18.1% 10,400 15.9%
Source: U.S. Census Bureau, 2000.
TABLE 6.6: Owner- and Renter-Occupied Housing, 1980–2000
1980 1990 2000
United States Homeownership rate 65.5% 64.1% 67.5%
Unincorporated
areas of
St. Joseph
County
Total occupied units 27,834 32,104 37,587
Owner-occupied 24,014 27,893 33,632
Renter-occupied 3,820 4,211 3,955
% Owner-occupied 86.3% 86.9% 89.5%
South Bend
Total occupied units 42,082 42,260 42,908
Owner-occupied 29,530 27,867 27,054
Renter-occupied 12,552 14,393 15,854
% Owner-occupied 70.2% 65.9% 63.1%
Source: U.S. Census Bureau, Historical Census Data, Censuses 1980, 1990, 2000
HOUSING 69
For many years, the City has supported homebuyer
education and down payment assistance programs
for low– and moderate-income households. The
City expects to continue offering these programs.
The increase in subprime lending to people with
troubled credit histories significantly expanded after
Congress passed the Alternative Mortgage Trans-
action Parity Act in 1982. This legislative change
provided access to mortgages for many people who
would previously have been denied. However, it
increased the need for prospective borrowers to
become better educated to understand fully the
financial implications of the mortgage they are
signing, including how to recognize predatory terms.
The City of South Bend has offered pre- and post-
purchase homebuyer counseling to hundreds of
South Bend residents since the mid-1990s. Between
November 2000 and June 2005, 619 households
received pre-purchase counseling, and 370 received
post-purchase counseling. There is clearly a demand
for this type of financial education.
H. NEW HOUSING AND NEIGHBORHOOD
DEVELOPMENT
Beginning in the mid-1980s, City government has
planned and supported the development of new
housing through a combination of efforts including
annexation, creative reuse of vacant structures,
new infill construction at scattered sites, and
redevelopment of two older neighborhoods near
the downtown. Some of this housing has been market
based; some has been subsidized to ensure affordability
to low- and moderate-income households. All
approaches have recognized the importance of the
neighborhood and neighborhood design to the
success of each project.
Approximately one-third of the city’s population growth
during the 1990s occurred in the downtown where
new rental units were developed through creative
reuse of older buildings–Central High School, Robertson’s
Department Store, and Stephenson Mill, an abandoned
industrial structure–along with new construction of
an apartment complex along the East Race.
Of the two redeveloped neighborhoods, the City-
initiated work in the South East Neighborhood
primarily involved clearance of more than one
hundred homes which were replaced with subsidized,
single-family homes and rental units, and single-
family units sold at market rates. Immediately west
of downtown, a nationally recognized revitalization
project–the West Washington Revitalization Project–
primarily involved clearing a deteriorated commercial
area and building a combination of subsidized rental
units, subsidized single-family units, and single-
family units sold at market rates.
Participants in the planning process expressed the
desire to encourage market-rate housing development
in the downtown, both owner-occupied and rental
units, and increased housing choices and variety
throughout the city. One increasingly popular
concept is Traditional Neighborhood Development
(TND). TND integrates all aspects of daily living
usually within walking distance to facilitate a high
degree of civic integration and social interaction
among residents. TND is an approach that can be
followed when platting a new development on
the fringe or when revitalizing an older, inner-city
neighborhood. (See Land Use and Growth and Urban
Design chapters.)
An additional approach to revitalizing neighborhoods
may be to implement a variation of the “Neighborhood
Tier System,” the proposed residential area policy of
The Comprehensive Plan for South Bend and
St. Joseph County, 2002. The Plan states: “The logic
behind the residential area policy is to focus
residential-based activities where they result in
the greatest impact.”
SENIOR HOUSING
AgINg BABY BOOMERS
In and near retirement, the generation that did so much
to change the face of American politics, social norms,
and science in the last half of the 20th century is now
reinventing itself yet again as active, energetic seniors
with still more to contribute to their communities.
The demand for mid- to high-rise buildings in dense, urban
settings is one of the hottest trends for independent
and assisted living. Unlike previous generations,
which traditionally flocked to the Sun Belt regions,
baby boomers are more likely to look for retirement
homes not far from where they spent most of their
active lives. This is a trend that has developed slowly
over the last decade.
Cities like having empty-nester residents because
they pay taxes to help support public schools even
though they have no children in the system. As more
boomers become empty nesters, they are even more
likely than previous generations to have the urge to
move back to downtown areas. In contrast to previous
generations, boomers are more likely to be single as
well as college educated, making them more likely
to be drawn to urban cultural attractions such as
performing arts, museums, and gourmet food.
“Trends, characteristics of senior homebuyers profiled in national survey,”
Seniors Real Estate Specialists Web site, http://www.seniorsrealestate.
com/sarec/, Nov 15, 2005.
70 HOUSING
The policy consists of three major elements:
1. Assess and categorize residential areas by
condition.
2. Determine what activities are most appropriate
for those conditions.
3. Prioritize those activities within an overall
improvement strategy.
An updated Building Conditions Survey is an essential
tool of this strategy to help identify areas and
measure progress. Implementing this residential
area policy would provide an objective method
for prioritizing resources dedicated to housing and
neighborhood revitalization.
INFILL HOUSING
Infill housing is constructed on vacant or underutilized land consisting usually of small or odd shaped parcels. Land or
infrastructure costs often necessitate a higher density than the typical suburban development. Infill projects offer housing
that a variety of demographic groups find appealing.
Advantages
The growing trend of people moving back to the city is creating a demand for high-quality housing. Urban infill development
can spark neighborhood revitalization, attract taxpaying citizens, and generate superior financial returns. While supported
by both developers and public officials, urban infill housing development also presents some unique challenges.
Analysts cite a number of advantages to infill:
• Provides housing opportunities necessary to accommodate projected growth.
• Favors the demographic trend toward smaller households.
• Encourages community revitalization.
• Reduces sprawl.
• Reduces auto-dependency.
How can infill housing be accomplished?
To encourage infill development, and ensure each city provides housing opportunities necessary to accommodate growth,
cities should:
• Ensure that the city’s regulatory framework encourages this type of development.
• Provide for the prompt processing of regulatory approvals and permits.
• Make public investments and provide supportive services.
• Gain community acceptance.
Sources: Washington Research Council and Urban Land Institute
To achieve the community’s Vision . . .
Property owners will need to maintain their
homes in good condition and the City will need to
work with developers to ensure that an adequate
supply of housing is available to meet the varied
needs, preferences, and financial capabilities of
households now and into the future. Housing
development in the Central Business District (CBD)
will need to be stimulated.
The City should encourage mixed-income
neighborhoods that collectively reflect the
diversity of income levels of the region and ensure
well-designed, infill housing on vacant land in
the City’s neighborhoods which will increase the
marketability of those neighborhoods.
The property tax burden on residential
properties in older neighborhoods will
also need to be addressed.
HOUSING 71
OBJECTIVES AND POLICIES
Objective H 1: Ensure that an adequate supply
of housing is available to meet the needs,
preferences, and financial capabilities of
households now and in the future.
Policies
H 1.1 Encourage residential developments to
contain a mix of housing types, densities,
price ranges, and amenities.
(Municipal Code, p. 154)
H 1.2 Encourage rental housing for all income
levels throughout the city.
H 1.3 Encourage the development of mixed-use
buildings.
H 1.4 Encourage the development of a variety of
housing types and care choices for seniors
and disabled persons.
H 1.5 Support existing transitional housing providers
and shelters that offer a continuum of care
to move people toward self-sufficiency.
Objective H 2: Maintain South Bend’s housing
stock in good condition.
Policies
H 2.1 Provide incentives to renovate and repair
older and historic homes. (Incentives, p. 146)
H 2.2 Promote existing tax credit opportunities for
historic properties.
(Neighborhood Strengths, p. 148)
H 2.3 Support the efforts of community organizations
to rehabilitate and repair older homes.
H 2.4 Promote housing rehabilitation training and
certification programs for contractors.
H 2.5 Pursue alternatives to the demolition of
structurally sound housing.
H 2.6 Encourage homeowners to maintain
their homes.
(Vacant and Abandoned Properties, p. 160)
H 2.7 Encourage rehabilitation and maintenance
of nonowner occupied residential properties.
(Vacant and Abandoned Properties, p. 160)
H 2.8 Develop and maintain a system to monitor
all current and future rental properties in
South Bend to ensure that they meet basic
minimum standards as defined by the City’s
housing code.
H 2.9 Provide effective and timely code
enforcement in the city.
H 2.10 Educate property owners on code
requirements. (Property Maintenance, p. 157)
H 2.11 Encourage mortgage companies and lien
holders to maintain foreclosed properties.
(Vacant and Abandoned Properties, p. 160)
H 2.12 Support the elimination of lead-based paint
hazards from older homes.
Objective H 3: Strive for livable, mixed-income
neighborhoods that collectively reflect the
diversity of income levels of the region.
Policies
H 3.1 Encourage housing opportunities for low-
income households (below 80% of median
family income) throughout the city to avoid
concentration in any one area.
H 3.2 Support housing opportunities for medium-
to-high-income households throughout
the city. (Incentives, p. 146)
I. GOAL
Achieve a thriving
South Bend housing market
that offers appealing
neighborhoods with diverse
housing choices.
72 HOUSING
Objective H 4: Ensure well-designed, infill hous-
ing on vacant land in the city’s neighborhoods.
Policies
H 4.1 Support the efforts of community
organizations in developing infill housing.
H 4.2 Utilize neighborhood and commercial
corridor plan strategies to encourage
infill housing.
H 4.3 Provide incentives to developments that
meet established design standards for infill
housing. (Municipal Code, p. 154)
Objective H 5: Increase the marketability of
South Bend’s neighborhoods.
Policies
H 5.1 Promote the variety, style, and affordability
of the housing stock.
(Neighborhood Strengths, p. 148)
H 5.2 Partner with realtors to market assets of all
South Bend neighborhoods equitably to
area employers and potential homebuyers.
(Community Assets, p. 147)
H 5.3 Promote the unique qualities and benefits
of living in historic neighborhoods.
(Neighborhood Strengths, p. 148)
H 5.4 Educate the public about actual neighborhood
crime to reduce misperception.
H 5.5 Encourage media to highlight the positive
aspects of South Bend’s neighborhoods.
H 5.6 Develop and maintain a coordinated
strategy to identify vacant and abandoned
housing and return it to productive use.
(Vacant and Abandoned Properties, p. 160)
Objective H 6: Stimulate housing development in
the Central Business District (CBD).
Policies
H 6.1 Partner with downtown organizations and
local businesses to promote the CBD and its
potential for new and rehabilitated housing.
(Downtown Housing, p. 145)
H 6.2 Utilize the downtown master plan to coordinate
housing development in the CBD.
(Community Planning, p. 161)
H 6.3 Provide incentives to build new or rehabilitate
buildings in the CBD for residential and
mixed-use development. (Incentives, p. 146)
H 6.4 Support homeownership opportunities in
new multi-unit structures by encouraging
the creation of condominiums, cooperatives,
mutual housing associations, and limited-
equity cooperatives.
Objective H 7: Address the property tax burden
on residential properties in older neighborhoods.
Policies
H 7.1 Support a property tax reassessment
process that assures equitable assessment
throughout St. Joseph County.
H 7.2 Consider creative options relative to lessening
the assessment burden. (Tax Base, p. 146)
Objective H 8: Promote homeownership within
city limits.
Policies:
H 8.1 Encourage large employers located in
South Bend to provide incentives for
employees to own and occupy homes within
city limits. (Neighborhood Strengths, p. 148)
H 8.2 Provide first-time homebuyer programs.
H 8.3 Collaborate with the South Bend Community
School Corporation (SBCSC) to include
financial responsibility as part of the high
school curriculum.
(Opportunities For Low-Income Residents, p. 159)
H 8.4 Support laws and/or policies against
predatory lending.
(Vacant and Abandoned Properties, p. 160)
The following excerpt from the
community’s vision for 2025
helped shape the Goal,
Objectives, and Policies
for Economic Development:
Envision South Bend in 2025…
We are a community that
fosters entrepreneurship, and
attracts and retains competitive
businesses by continually
investing in our
workforce and technology.ECONOMIC DEVELOPMENT
ECONOMIC DEVELOPMENT 75
Economic development is the process of increasing
living standards and opportunities for community
residents. Economic development planning requires
awareness of the community’s assets and liabilities
in order to build on the positives and reduce perceived
weaknesses. To accomplish this, ongoing cooperation
and collaboration among units of government, the
private sector, labor, educational institutions,
environmental organizations, and the general public
are essential. By improving the quality of life through
economic development, a community creates a
place where people and businesses want to locate.
A community measures its quality of life by its ability to
supply employment and an educated workforce, offer
good schools and healthy neighborhoods, maintain
quality public services and infrastructure, and
provide effective land use and transportation planning.
The arts make significant contributions to the quality
of life of a community by stimulating economic
development and providing educational and
entertainment opportunities. Strategic support of
the arts can help establish a community’s identity
locally, regionally, and even nationally.
“Smart growth” refers to a set of general principles
which, if followed, can maximize the benefits of growth
while reducing its negative unintended consequences.
One way to promote smart growth and achieve
sustainable economic development is by selectively
targeting incentives to areas where growth is
desired. Economic development that follows Smart
Growth principles respects the natural environment
and makes effective use of existing infrastructure.
The City of South Bend supports and enhances the
local economic environment by partnering with
organizations such as the Chamber of Commerce of
St. Joseph County, Project Future, the Michiana Area
Council of Governments (MACOG), the state of Indiana,
and the federal government. The City encourages
economic opportunities through partnering with
smaller nonprofit organizations, neighborhood
groups, educational institutions, community-based
activities, and business, as well.
A. URBAN DEVELOPMENT
A vibrant Central Business District (CBD) is critical
to a community’s economic development. Typically
the oldest part of a city, the CBD possesses
features advantageous to business. Usually the
center for government, culture, arts, and entertainment,
the CBD is often the largest single employment
center in a region.
Central High Apartments in downtown South Bend: a former high school converted to apartments.
An evening view of downtown South Bend. Photo Courtesy: McDonald Studio, South Bend
76 ECONOMIC DEVELOPMENT
South Bend’s downtown area
covers a geography that includes
the Central Business District, as
defined by the South Bend Zoning
Ordinance, and surrounding
neighborhoods. The CBD has
retained prominence as a
governmental and office location.
Past efforts have led to revitalization
in retail businesses, restaurants,
and entertainment destinations
in and around the CBD. One third
of South Bend’s entire population growth during the
1990s occurred in the city’s downtown area.
Urban Living
National studies indicate that the demand for urban
living is growing throughout the country. There are
more adults without children and young professionals
wanting to find lofts and urban housing in and
around the central business district so they can be
close to work, specialty shopping, entertainment, and
the arts. There is a continued interest in being able
to commute to work without owning an automobile
if all the necessary residential amenities such as
convenience and grocery stores are available.
The lack of housing options in the CBD was a primary
concern mentioned in several City Plan public meetings
and discussions during the planning process. Many
national experts, including speakers invited to the
City Plan speaker series, stated that more urban
housing options will draw more residents to the
downtown area. Once a critical mass is created with
residents, other specialty stores, restaurants, and
entertainment options will follow.
Commercial Corridors
Several corridors serve as entryways into the city
and converge in the CBD. These corridors have
traditionally been areas of commercial activity in the
community but are presently faced with several
challenges including brownfield sites, vacant buildings,
and deteriorating infrastructure. To counter this,
the Commercial Corridor program was initiated by
Mayor Stephen J. Luecke in 1998. The five corridors
recognized in this program include: Western Avenue,
Portage Avenue, South Gateway or Michigan Street
and Main Street, Lincoln Way West, and Miami
Street. Each corridor is awarded annual funding to
spend appropriately, according to its needs.
Growth at the Edge
In some areas of South Bend, growth in the light
industrial and warehousing sector has been consistent
over the past fifteen years. Most of these areas,
however, have been on the city’s fringe, particularly
around the extremely successful Airport Economic
Development Area by the South Bend Regional
Airport. Along the south side of the city, strong
growth in new residential development has spurred
new commercial development along Ireland Road.
Businesses along the Miami Street Commercial Corridor.
REDEVELOPMENT TOOLS
The Redevelopment Commission declares an area a
“redevelopment area” to address blight. The commission’s
main functions are to buy blighted land, clear it, and
make it available for new development, thereby
reducing blight and increasing the tax base. Within a
redevelopment area the Redevelopment Commission
has the power of eminent domain.
TIF
Tax increment financing (TIF) is a technique used to
facilitate redevelopment in areas where market forces
alone are not enough. When a TIF district is designated,
the property tax assessment at that time is established
as the base value. With new development, the total
tax assessment within the TIF district increases. The
increase in property tax revenues resulting from the new
development is called the “increment.” The increment
provides an annual source of financing for important
public improvements within the district which grows
each year. The TIF increment helps the district become
competitive and offers a sure source of funding until the
TIF designation is removed.
Tax Abatements
Tax abatements encourage investment in capital
improvements by phasing in taxes on new development.
Such investments include improvements to buildings,
purchases of new manufacturing equipment, or the
construction of new housing, commercial, or manufacturing
buildings. Tax abatements provide relief, at a diminishing
level each year, on the increase in taxes resulting from
the new investment.
In South Bend, the period of tax abatement runs from
three to ten years for commercial real property, five
years for personal property, and five years for single-
family residential construction. The size of the abatement
is determined by how well an investment meets standards
defined in the South Bend Tax Abatement Ordinance.
ECONOMIC DEVELOPMENT 77
Growth in City’s Core
Growth in the city’s core has been less than what has
occurred at the fringe. Assisting the growth has been
the provision of incentives, particularly on former
brownfield sites, that have been environmentally
remediated and returned to productive use. One
example is the former Oliver Plow Works site on
Chapin Street.
Preparing brownfields for future development and
providing tax abatements for new housing and
businesses are two means of encouraging
development in targeted areas.
B. BUSINESS DEVELOPMENT
According to an article from the Brookings Institution’s
Center on Urban and Metropolitan Policy, when
a business chooses its location it considers such
factors as tax rates and policies and proximity to
suppliers, contractors, and natural resources, the
skills and cost of labor, the cost of housing, and the
quality of the transportation system. Regions with
strong education and training programs and a
quick process for obtaining permits are desirable.
Areas with a large professional workforce, major
airports, and a high quality of life attract corporate
headquarters. Places with those same qualities and
universities attract research and development. Back
offices usually locate where technically skilled workers,
cost-effective telecommunications, and low real
estate and housing prices are available. Manufacturing
companies desire places with a skilled workforce
and low utility costs.
78 ECONOMIC DEVELOPMENT
TABLE 7.2: Selected Private Employment, by Industry
St. Joseph County: 1998–2003
Industry Number of Employees % Change of employees,
1998-2003
Year 1998 2000 2003
Total 120,449 125,092 118,086 -2.0%
Educational Services 8,732 9,020 11,040 26.4%
Health Care and Social Assistance 13,954 14,959 16,778 20.2%
Professional, Scientific, and Technical Services 4,969 5,251 5,351 7.7%
Administrative Support, Waste Management,
and Remediation Services 5,750 6,337 6,099 6.1%
Accommodation and Food Services 10,036 10,508 9,923 -1.1%
Retail Trade 17,523 17,676 16,677 -4.8%
Other Services, except Public Administration 7,328 7,435 6,813 -7.0%
Finance and Insurance 5,338 4,924 4,877 -8.6%
Manufacturing 20,972 21,224 18,510 -11.7%
Wholesale Trade 7,188 7,470 5,912 -17.7%
Construction 6,935 7,134 5,504 -20.6%
South Bend’s profile suggests that it is can successfully
support headquarters, as well as back office
operations, manufacturing, entrepreneurs, and
research and development activities.
Workforce Education
Education and training are vital to preparing a
workforce with the diverse skills necessary to meet
the needs of an increasingly complex economy.
Educational institutions must conduct strategic
research and assessment of technological and other
changes on the local economy to assist in maintaining
a skilled workforce. They must also compare the
needs of employers with the workforce skills being
developed to assure a good fit. An educated
workforce and skilled labor pool are paramount
in location decisions by large employers. City Plan
meeting participants noted the important roles of
strong primary education, appropriate trades and
vocational training, and the presence of local higher
education institutions play in creating a workforce
that can compete in tomorrow’s economy. In addition
to serving traditional students, schools such as Indiana
University South Bend and Ivy Tech Community
College of Indiana also provide continuing
education for nontraditional students.
TABLE 7.1: Commuting Patterns to and from St. Joseph County, Top Five Areas, 2004
# Commuting INTO
St. Joseph County FROM
# Commuting FROM
St. Joseph County TO
1. State of Michigan 6,100 1. Elkhart County 11,617
2. Elkhart County 4,059 2. State of Michigan 1,985
3. Marshall County 2,682 3. Marshall County 1,135
4. LaPorte County 2,678 4. LaPorte County 967
5. Starke County 756 5. Kosciusko County 225
Total 16,275 Total 15,929
Regional Impact
South Bend’s geographic location is one of its
strongest assets, providing excellent transportation
options which have been strategically used for
economic development. The Blackthorn Corporate
Park, the South Bend Regional Airport, the South
Shore Commuter Rail Line, the St.
Joseph Valley Parkway, and the
Indiana Toll Road create a cluster in
the northwest portion of the city
making it an excellent location for
distribution, warehousing, and light
manufacturing, among other
kinds of businesses.
Source: Indiana Business Resource Center, 2005.
Source: U.S. Census Bureau, County Business Patterns (NAICS), week of March 12 for each year.Table created by: Division of Community Development, City of South Bend; September 23, 2005.
The South Bend Regional Airport is Indiana’s second
busiest airport and is a multimodal facility offering
bus transit services for local and regional destinations.
The South Shore electric rail line connects the
South Bend Regional Airport with cities throughout
northwestern Indiana, with the final destination in
downtown Chicago, Illinois.
In 2003 the number of people who both live and
work in St. Joseph County exceeded 144,000, while
approximately 18,500 people from other counties/
states commuted to St. Joseph County for work.
About 17,000 St. Joseph County residents commute
to other counties/states for work—with the majority
going into neighboring Elkhart County. According
to the 2004 American Community Survey (ACS), the
average travel time to work for those in St. Joseph
ECONOMIC DEVELOPMENT 79
County was just under 20 minutes. Less than 7 per-
cent of workers 16 and older carpooled to work, and
a mere 1.2 percent took public transportation. About
87.8 percent traveled alone.
Impact of Large Employers
As the area’s largest employer, the University of
Notre Dame generates substantial economic benefits
for the region, especially in retail, construction, and
real estate. A study (Notre Dame and the Local Economy,
2002: Economic Impact Report) commissioned by the
University of Notre Dame states that: • Notre Dame is the second most visited attraction
in the state of Indiana. During fiscal year 2002, an
estimated 673,000 visitors came to Notre Dame
from outside St. Joseph County, spending an
estimated $92.1 million with area hotels,
restaurants, and retailers.• The university generated $833 million of new
income in 2002 in St. Joseph County, which
translates into one of every ten dollars in the
local economy.• In fiscal year 2002, the university purchased $536
million in goods and services, spending $305.9
million in St. Joseph County.
The area’s second largest employer is Memorial
Health System, located in downtown South Bend.
Memorial Health System employs approximately
3,600 people and continues to expand its hospital
campus near Leeper Park. Memorial has been rated
one of the nation’s top 100 hospitals and has helped
make South Bend a regional center for medical care.
In 2006, more than 14,000 surgeries were performed
at Memorial Hospital, prompting the development
of an expanded surgical center that is projected to
cost more than eighty million dollars. In addition,
Indiana University completed construction of a
medical school in South Bend near the University
of Norte Dame’s campus, preparing the way for ad-
ditional highly skilled employment opportunities in
the field of medicine and medical research.
The area’s third largest employer is the public school
system. South Bend Community School Corporation
(SBCSC), with 3,338 employees, is both an essential
community institution responsible for educating the
majority of the city’s youth as well as a significant
employer and economic presence in the community.
Employment growth has been greatest in educa-
tional services and healthcare related services, both
of which are anticipated to continue growing, as
are professional, scientific, and technical services.
However, as Table 7.2 indicates, manufacturing is still
the largest employment sector in St. Joseph County.
SOURCES OF REVENUE
In accordance with Indiana statutes, the City maintains budgetary controls integrated within its accounting system. The
objective of these budgetary controls is to ensure compliance with the legal provisions embodied in the annual budget
which is adopted by the Common Council and then reviewed and approved by the Indiana Board of Tax Review.
The City has maintained a Performance-Based Budget since the mid-1990s, incorporating within the accounting practices
the means of measuring progress toward stated objectives. The City has received awards for budget presentation from the
Government Finance Officer’s Association for several years.
The City’s maintenance of its fiscal integrity makes it possible
to issue bonds at competitive rates to pay for public works
projects that benefit the entire community. Since the early
1990s, the City has maintained a “AA” credit rating from
Standard & Poor’s. Its credit profile of the City in 2004
identified the City’s strengths to include “a diversified
local economy” and “a history of strong liquidity and good
financial management.” This is the result of a solid financial
position, low direct debt levels, sound financial performance,
and conservative budgeting.
In order for the City to maintain its solid financial foundation, it must plan for future capital and operating expenditures.
Revenues come from a variety of sources to pay for the many services and developments that the City provides. In 2005,
property taxes were the single largest source of revenue (see Chart 7.1). In 2006, the State Legislature passed new legislation
that will place a cap on all property owners’ tax bills at 2 percent of the property’s assessed value. By 2010, this change will
result in a significant reduction in revenue collected from property taxes. The City is continuing a search for other sources
of revenue to reduce its reliance on property taxes while maintaining a high level of service to the community.
If no replacement revenue sources are identified, the City’s ability to provide services will be negatively impacted.
80 ECONOMIC DEVELOPMENT
C. LOCAL LAND DEVELOPMENT
Development Process
An efficient development process ensures that
businesses can develop and expand effectively while
still allowing City government, nearby property owners,
and the community in general a proper voice in the
development of their city. Building permits are issued
by the Building Department, which is responsible for
ensuring that buildings and signs in South Bend and
St. Joseph County are constructed and maintained
according to building and zoning codes. The Building
Department also administers design review standards.
The Board of Zoning Appeals considers variance
and special exception requests, while the Area Plan
Commission administers rezoning and subdivision
petitions. Other City departments facilitate
development by providing infrastructure such as
streets and utilities.
The local land development process was considered
by some local developers as cumbersome and
inefficient during the City Plan public meetings.
Participants recognized the need to shorten the land
development and permitting process and suggested
that projects which met an identified local priority
needed to be expedited. Suggestions also included
consolidating the permitting process.
Infill/Brownfields
South Bend like many communities in the Midwest,
contains its fair share of underutilized sites and
structures. The change from a manufacturing based
economy to a service and technology based economy
left several abandoned and underutilized
manufacturing plants, storage facilities, and structures.
The former Studebaker and Oliver factories, located
in the city’s core, are examples of redevelopment
undertaken by the City and the Redevelopment
Commission to address these underutilized sites.
The Studebaker/Oliver Plow Works Redevelopment
Strategy, a 10-15 year program, developed in 1999, is
being implemented and includes property acquisition,
clearance, environmental remediation,
and site preparation.
D. PUBLIC/PRIVATE PARTNERSHIPS
Open channels of communication between the
public and private sectors encourage partnerships
for developing a strong, local economy. Businesses
and local government can work together to tackle
pressing economic issues proactively, making sure
the community is well positioned for physical and
economic growth, for changes in technology and
world markets, and for responding to all demographic
segments in the community.
The City’s Department of Community and Economic
Development, through its Division of Economic
Development, promotes the retention and expansion
of existing businesses and the development of new
business through financing programs, relocation
incentives, land/building availability assistance,
industrial revenue bonds for manufacturing facilities,
tax abatement, and technical assistance.
The City partners with the Chamber of Commerce of
St. Joseph County to enhance economic
development in the region. The Chamber’s strategic
plan, Accelerating Business Growth, was developed
in 2004 to increase entrepreneurial activity in the
community and improve the business climate
YOUNG PROFESSIONALS
As the economy in the United States becomes more
knowledge based, businesses are placing greater
emphasis on the availability of a skilled, educated work-
force. Local economies can secure this human capital by
attracting young professionals. Young, educated people
bring ideas and innovation to the companies they work
for and the communities in which they live. Because
this group often selects a preferred place to live before
looking for employment, cities must be able to offer the
amenities to attract them. Through a commitment to
volunteering and service, these energetic 20- and 30-
somethings are the civic leaders of the future.
According to population projections from the Indiana
Business Research Center, the Indiana portion of the
South Bend MSA will add about 17,454 residents by 2020,
growing 6.6 percent from its 2004 population. This is 1.6
percentage points lower than the state. South Bend–
Mishawaka is projected to see a large increase in the age
group 45 to 64, while young adults aged 25 to 44 are the
only age group projected to decrease.
Two recently formed grassroots organizations in the area
focused on attracting and retaining young professionals
in the community are ‘BASS and YPN.
1. ‘Bend Area Service/Sports/Social (‘BASS)
The ‘BASS Club aims to attract and retain talented and
vibrant individuals (ages 21-39) by fostering connections
to each other and to the community through an array of
social, service, and sports-oriented activities.
2. Young Professionals Network (YPN)
YPN is a professional development program of the
Chamber of Commerce of St. Joseph County encouraging
young professionals between the ages of 21 and 39 to
become actively involved and engaged in area businesses
and the future of the region through networking, the
exchange of ideas, and professional development.
ECONOMIC DEVELOPMENT 81
Regional AttractionsTop left: University of NotreDame football fans gather at Notre Dame Stadium to see the marching band prior to a game.
bottom left: The Studebaker National Museum displays a collection of vehicles manufactured by the Studebaker Corporation, once the largest employer in the city.
bottom right: The MorrisPerforming Arts Center hosts a number of performing art events throughout the year.
and quality of life in the region. The City funds a
Chamber staff person to run a business visitation
program where existing local businesses are guided
to resources that can assist them in expanding their
companies and employment. In addition to the
efforts of the Chamber, Project Future, a nonprofit
organization affiliated with it, conducts economic
development planning for St. Joseph County.
Project Future communicates on a local, regional, and
national level to increase awareness of the St. Joseph
County area and acts as a catalyst for
economic development.
Positive outcomes of public/private partnerships
are visible throughout the community. An outcome
of such a partnership is the recent establishment
of the St. Joe Valley Metronet (2005), a high-speed
telecommunications network for local businesses,
education and healthcare institutions, and
government agencies.
E. TOURISM
Tourism is generally referred to as a service industry,
comprising a number of tangible and intangible
components. Many communities depend upon
travel expenditures of out-of-town residents as a
source of revenue. The City of South Bend, along
with agencies such as the South Bend/Mishawaka
Convention and Visitors Bureau and the Chamber of
Commerce of St. Joseph County, are actively involved
in managing and enhancing tourism in the community.
Business travelers and tourists have a variety of
accommodation choices in the Central Business
District from the Marriott Riverfront Hotel and the
Holiday Inn to several local bed and breakfast inns.
The Century Center is the main convention center
and is host to many annual conventions and special
events. Additional meeting space is available in the
nearby College Football Hall of Fame. The multimillion
dollar restoration of the Morris Performing Arts Center
and the Palais Royale Ballroom allows the South Bend
convention district to offer entertainment and
banquet options for a variety of events.
There are some public/private partnerships that help
enhance economic development and tourism in
the area. One such organization, Downtown South
Bend, Inc. (DTSB) is a nonprofit that was formed to
provide marketing, promotions, business recruit-
ment and retention initiatives, and beautification
projects in the downtown area. In doing so, DTSB
highlights the assets of the City’s downtown and
helps attract visitors.
82 ECONOMIC DEVELOPMENT
Revenue from tourism can be enhanced by creating
a more vibrant downtown with social and cultural
activities for all age groups and by offering a variety
of unique arts and entertainment venues such as
museums, specialty shops, restaurants, and bars.
Such activities can be an important component of a
community’s economy, creating jobs, attracting
tourists, and helping shape the community’s identity.
TOWN/GOWN RELATIONSHIPS
Successful relationships between a city and
institutions of higher education are necessary to
create a competitive business environment and
bring about social progress. These relationships are
especially critical in an economy driven by knowledge-
based industries.
Communities and institutions of higher education
share mutual interests. Urban areas provide learning
opportunities for students, who can gain real life
experiences by serving the community. Professors
partner with government, local businesses, and
nonprofit organizations on applied research projects
which benefit the community. Graduating students
are an educated workforce that strengthens the
community’s job base. The resources, knowledge, and
innovation developed within the college or university
are used by local government and business to improve
services and create new industries.
A city’s quality of life influences the ability of a
college or university to attract first-rate faculty and
students. Many people are drawn to a college town
environment. Cities support institutions of higher
education through infrastructure investments, land
use decisions, and by supporting an investment
environment that encourages the development of
entertainment opportunities and amenities, such as
restaurants, bookstores, and unique shops.
To achieve the community’s Vision . . .
The City will need to focus economic development on increasing living standards and employment
opportunities for area residents and fostering an educated and well-trained workforce.
The principles of Smart Growth should be pursued through efforts such as stimulating the rehabilitation
and adaptive reuse of properties in the city and making effective use of existing infrastructure, including a
concerted effort to preserve significant buildings whenever possible.
The land development process will need to be shortened and made more efficient.
Stronger public/private partnerships will need to be established.
The City will need to create urban housing options that will draw more residents to the downtown area and
make the downtown a vibrant and exciting place. This will assist in retaining and
attracting skilled professionals of all ages. A vibrant city with a strong identity will also increase
the amount of revenue generated from tourism.
ECONOMIC DEVELOPMENT 83
OBJECTIVES AND POLICIES
Objective ED 1: Stimulate the rehabilitation and
adaptive reuse of property in the city.
Policies
ED 1.1 Establish and maintain a current inventory
of land inside the city limits that is available
for reuse and redevelopment efforts.
ED 1.2 Encourage reuse of abandoned and
underutilized land and structures.
(Redevelopment, p. 155)
ED 1.3 Reduce regulatory barriers and promote
brownfield remediation.
ED 1.4 Provide incentives for rehabilitation of
abandoned and underutilized structures.
(Redevelopment, p. 155)
ED 1.5 Ensure a coordinated review process to
determine the feasibility or infeasibility of
preservation.
Objective ED 2: Retain existing businesses and
recruit new ones to the city.
Policies
ED 2.1 Provide incentives to attract and retain
businesses. (Incentives, p. 146)
ED 2.2 Support and promote entrepreneurial
efforts linked to emerging markets, high
technology, and research and development.
(High Technology, p. 145)
ED 2.3 Create opportunities for manufacturing
companies to locate in the community.
ED 2.4 Ensure regular and direct communication
with area employers and institutions of
higher education to foster partnerships and
entrepreneurial efforts.
ED 2.5 Support the development and enhancement
of telecommunications infrastructure that
serves current and future business needs.
(High Technology, p. 145)
ED 2.6 Encourage initiatives that advance innovation
in research and development for local
businesses. (High Technology, p. 145)
Objective ED 3: Foster a well-trained local
workforce.
Policies
ED 3.1 Encourage employers to create business
internships and apprenticeship programs
for high school and college students.
ED 3.2 Collaborate with area schools, institutions
of higher education, and businesses to
ensure that workforce training provides the
skills needed in the local economy.
(Job Creation, p. 146)
ED 3.3 Support vocational education and workforce
development opportunities for youth.
(Job Opportunities, p. 151)
ED 3.4 Encourage institutions of higher education
to maintain continuing education and
certification programs for high-demand jobs.
Objective ED 4: Enhance economic development
in the Michiana region.
Policies
ED 4.1 Facilitate regional economic development
initiatives.
ED 4.2 Encourage the formation of regional clus-
ters of companies and institutions.
ED 4.3 Partner with and support the efforts of
State and regional economic development
organizations. (Job Creation, p. 146)
F. GOAL
Promote a healthy and
diversified economy that
fosters a competitive business
environment and offers
opportunities for employment
and entrepreneurship.
84 ECONOMIC DEVELOPMENT
ED 4.4 Ensure working economic development
relationships with other jurisdictions in
the region.
ED 4.5 Encourage business investment that
improves wages and working conditions.
ED 4.6 Encourage business investment that
actively seeks to employ and promote a
diverse workforce.
Objective ED 5: Retain and attract young, skilled
professionals to the community.
Policies
ED 5.1 Provide incentives to science, engineering,
and high-tech businesses to locate in the
city. (High Technology, p. 145)
ED 5.2 Recruit high-technology employers that
offer high-paying jobs to the area.
(High Technology, p. 145)
ED 5.3 Promote existing community facilities and
assets to potential future businesses.
ED 5.4 Support the creation of market-rate and
affordable rental and owner-occupied
housing that meets the needs of
young professionals.
Objective ED 6: Provide an efficient and
well-defined land development process.
Policies
ED 6.1 Create and maintain an efficient system to
disseminate information and guidance on
land development.
(Development Process, p. 154)
ED 6.2 Support continuing technological advances
in equipment to make the development
permitting process more efficient.
(Development Process, p. 154)
Objective ED 7: Support neighborhood-based
economic development.
Policies
ED 7.1 Partner with and support the efforts of
community, neighborhood, faith-based,
and business organizations to stimulate
neighborhood-based businesses.
ED 7.2 Provide technical, financial, and management
assistance to small businesses operating in the
city’s neighborhoods.
ED 7.3 Support neighborhood-based economic
opportunities as identified in
area-specific plans.
Objective ED 8: Promote economic development
efforts that expand the property tax base.
Policies
ED 8.1 Promote property tax paying development
in the city. (Tax Base, p. 146)
ED 8.2 Identify and evaluate revenue alternatives
to City property tax. (Tax Base, p. 146)
ED 8.3 Pursue user fees, voluntary payments, and
other alternative fees for nontax-paying
organizations that utilize land in the city.
(Tax Base, p. 146)
Objective ED 9: Increase the amount of revenue
generated from tourism.
Policies
ED 9.1 Promote tourism opportunities in the city
by actively highlighting the assets of
South Bend. (Community Assets, p. 147)
ED 9.2 Promote recreational and cultural
opportunities along the St. Joseph River.
(Community Assets, p. 147)
ED 9.3 Promote South Bend as a host site for local,
regional, and national events.
(Community Assets, p. 147)
ED 9.4 Promote downtown South Bend as a
destination for visitors with interests in
specialty shopping, dining, entertainment,
sports, and the arts and culture.
(Community Assets, p. 147)
ECONOMIC DEVELOPMENT 85
The following excerpt from the
community’s vision for 2025
helped shape the Goal,
Objectives, and Policies for
Environmental Management:
Envision South Bend in 2025…
We are proud stewards of the
natural environment,
preserving the St. Joseph River
as a valuable resource and
cherishing our parks and
plentiful green spaces.ENVIRONMENTAL MANAGEMENT
ENVIRONMENTAL MANAGEMENT 87
The natural and human environments are intimately
interconnected. The role of environmental management
is to control and manage human activities to
minimize negative effects on the environment. As
stewards of the natural environment, we need to be
concerned with such areas as water, air, soil, wetlands,
and wildlife habitat, as well as energy efficiency,
recycling, and solid waste disposal.
Most human activities leave some mark on the natural
environment. Pollution from industrial processes,
combined sewer overflows, the volume of our solid
waste stream, and the destruction of open spaces
all leave a long-lasting, and at times irreversible,
mark on the natural landscape. These consequences
of human activity can reduce the quality of life in
an area, in addition to contributing to
health-related problems.
Local government and the community, in partnership
with state and federal authorities, are responsible
for minimizing adverse human impacts on the
environment. But more positively, the community
can choose to pursue policies that actively preserve
and protect natural resources, public health, and the
community’s overall quality of life.
A. THE ST. JOSEPH RIVER
The St. Joseph River has been central to the
development and growth of South Bend. The river
served as a trading route for early French explorers
and became the site for industrial and commercial
development through the construction of “races,”
engineered channels using the river’s water to
produce power for industry.
East Race waterway in downtown South Bend.
Reliance on the river has evolved from power source
and mode of transport to vital recreation, tourist, and
economic development resource. It is essential in this
economic environment that the quality of the water
be maintained and improved to enhance these new
uses, as well as to implement the community’s role
as steward of the natural environment.
The St. Joseph River supports an entire eco-system
that includes the various wildlife and vegetation it
sustains. In 2001, South Bend joined with the City of
Elkhart to undertake long-term biological monitoring
of the St. Joseph River by sampling and testing the
river’s fish populations. The resulting Index of Biotic
Integrity (IBI) scores in 2004 revealed fair-to-good
fish community health, though trace amounts of
polychlorinated biphenyls (PCBs) were found in
all species and mercury in one species. Human
impacts, such as land use patterns, bridge building,
and dredging, which adversely affect the habitat of
the river, are also being noted. In 2004, sampling
of stream insect communities began, and the initial
Invertebrate Community Index (ICI) score indicated
good aquatic insect community health.
A challenge South Bend shares with many older cities
is how to deal with combined storm and sanitary
drains which can release untreated sewage into the
river during periods of heavy precipitation. The City
has been addressing this costly issue for more than
20 years, including an investment since the 1980s
of more than $85 million to improve and expand
the wastewater treatment plant. During the 1990s,
the City began implementing “early actions” of a
Combined Sewer Overflow (CSO) Long-Term Control
Plan (LTCP). Phase I of the plan is expected to take 10
years to implement and cost approximately
$118 million.Phase II will require additional dollars,
88 ENVIRONMENTAL MANAGEMENT
yet to be determined. The LTCP is the largest public
works project in the City’s history.
Impervious surfaces in the urban landscape collect numerous pollutants such as automobile oil, grease,
brake pad dust, sediment from construction sites, bacteria from animal waste, lawn fertilizers and pesticides,
as well as atmospheric settling of phosphorus, nitrogen, and other airborne pollutants. When it rains,
rainwater runoff can carry high concentrations of these pollutants–called nonpoint source pollution–to
nearby waterways. This runoff needs to be naturally filtered–through wetlands, swales, retention/detention
ponds, etc.–to limit the pollution reaching the river.
The participants in the planning process encouraged their fellow citizens to assist in preserving and
enhancing the river’s ecosystem and to adopt the river as their own. Education is a key strategy to keep
the river in public view, so it will continue to be recognized as the community’s irreplaceable resource
throughout the planning period and beyond.
The St. Joseph River Basin.
SURFACE WATER POLLUTION
Surface water pollution can make water unsafe for
drinking, fishing, swimming, and other activities.
Pollutants are categorized based on their source:
point and nonpoint.
Point Source Pollutants: These pollutants originate
from specific, stationary sources. Examples include
pipes, wells, and petroleum storage tanks. Point
pollution is regulated by the EPA’s Clean Water Act.
Nonpoint Source Pollutants: These pollutants
originate from unspecified sources, such as
agriculture, construction, and storm water runoff
from roofs, parking lots, yards, farm fields, etc.
Storm water runoff carries numerous pollutants,
such as oil, heavy metals, pesticides, and herbicides.
What You Can Do to Prevent Nonpoint
Sources of Pollution:• Keep litter, pet wastes, leaves, and debris out of
street gutters and storm drains.• Apply lawn and garden chemicals sparingly and
according to directions.• Dispose of used oil, antifreeze, paints, and other
household chemicals properly, not in storm
sewers or drains. • Clean up spilled brake fluid, oil, grease, and
antifreeze. Do not hose them into the street
where they can eventually reach local streams
and lakes.• Control soil erosion on your property by planting
ground cover and stabilizing erosion-prone areas.• Develop construction erosion/sediment control
ordinances.• Inspect and pump your septic system, at a
minimum, every 3-5 years.• Purchase household detergents and cleaners that
are low in phosphorous to reduce the amount of
nutrients discharged into our lakes, streams, and
coastal waters.
ENVIRONMENTAL MANAGEMENT 89
B. THE PUBLIC WATER SUPPLY
A good public water supply is vital to the community.
To sustain the high quality of water South Bend
residents enjoy, the City must continue to monitor
the water supply and upgrade water facilities. This
will remain important as the City grows and as state
and federal water quality regulations become stricter.
The St. Joseph Valley Aquifer is a “sole-source aquifer,”
the sole or primary source of the public water supply
for the South Bend-Mishawaka area. The aquifer lies
within the St. Joseph River Basin. According to the
Indiana Department of Natural Resources, Division
of Water, due to the depth of the aquifer and the
composition of the soils, “The aquifer is moderately
susceptible to ground water contamination”
(Indiana—Executive Summary, “Water Resource
Availability in the St. Joseph River Basin,” 1987).
Due to the long history of heavy industry in the
South Bend-Mishawaka area, a concerted effort
is needed to constantly monitor well fields and
develop new ones when necessary.
South Bend will continue to apply new technologies
for filtering the public water supply to extract
minerals, such as iron and manganese, which,
while not harmful, are aesthetically displeasing.
High-quality, good-tasting water adds to the quality
of life the community can offer to current and future
residents, businesses, and visitors.
To ensure continued protection of the St. Joseph
Valley Aquifer, which is shared by many jurisdictions,
regional coordination is essential. Communication
and cooperation among those jurisdictions will
make certain that this vital natural resource will be
sustained for future generations.
C. BROWNFIELDS
Brownfields are abandoned or underutilized parcels
of land with real or perceived contamination. Almost
every city in the country contains some brownfields.
In a city with a long industrial history, such as
South Bend, brownfields can pose a significant
challenge. The City has struggled with redeveloping
its historic and industrial core since the economic
transformations of the 1960s and 1970s left behind
obsolete and deteriorated manufacturing and
warehouse buildings.
The City has maintained a brownfields database
since 2000, identifying 243 potential brownfields
of various sizes in the City, from corner gas stations
to multi-acre manufacturing plants. The owners of
these properties have been slow to redevelop them
due to fears of liability and lack of information about
the current status of brownfield properties. To move
redevelopment forward, the involvement of the
public sector is essential.
A number of actions have been taken to return some
of these properties to productive use. A variety of
tools–such as site assessment, remediation, and
building demolition–have been utilized to prepare
Parameter Range Observed Standard
Alkalinity as CaCO3 246 Aesthetic Only
Hardness as CaCO3 318 Aesthetic Only
pH (units)7.3 6.5—8.5
Iron—Total <0.026 Aesthetic Only
Manganese (Total) <0.0031 Aesthetic Only
Nitrate as N 0.32 10.0
Calcium (Total) 82 250
Magnesium (Total) 28 NA
Sulfate as SO4 27 NA
Copper (Total) <0.026 1.3
Lead (Total)<0.005 0.015
SOUTH BEND CITY WATER
FACTS ABOUT THE SOUTH BEND WATER SUPPLY• Water in the City system exceeds every drinking
water standard established by the Environmental
Protection Agency. • Water is tested for many organic compounds that
cannot be tasted, seen, or smelled to preserve
high water quality. • Water quality is reported annually and explained
in a water bill insert in the Consumer Confidence
Report. • Most of the water comes from the Edison, Pinhook,
and North Station Filtration Plants and the
Cleveland Road well field. • Carriage Hills, South, Olive Street, and Erskine well
fields are used when water demand is high.
WATER QUALITY TESTING
Data in parts per million, 2005
Mayor Luecke at the press conference announcing the Clean River Initiative.
90 ENVIRONMENTAL MANAGEMENT
sites for future development, revitalize neighborhoods
and commercial corridors, expand the local tax base,
and create new employment opportunities. Recent
successes include the remediation in 2003 of a 14.6-
acre unlicensed, inactive landfill into an environmental
educational center called Frederickson Park; and
the clearance and environmental remediation of the
Oliver Plow Works site (2002-2005), converting 36
acres of obsolete structures into an attractive light
industrial park. In 2006, work began to demolish
some of the largest Studebaker buildings to prepare
these sites for additional light industrial and
institutional uses. This is expensive and complicated
work, with the City’s role as a catalyst essential to
the reuse of many of these properties.
Wetlands serve as a natural means to filter storm water runoff.
D. WETLANDS AND NATURAL OPEN
SPACE HABITATS
Wetlands and open space habitats provide unique
environments for animals, plants, and insects.
Healthy wetlands benefit fish, wildlife, and humans
by protecting many natural resources, including
groundwater and the aquifer. Trees and natural
open areas benefit the community by providing
habitats for wildlife, as well as plant life that cleans
the air by absorbing carbon dioxide and releasing
oxygen. Both wetlands and natural open areas serve
as important natural means for filtering storm water
runoff and protecting water quality. Protecting and
preserving these natural resources will contribute to
a high quality of life for the community throughout
the planning period and beyond.
The Environmental Protection Agency (EPA) has
identified nonpoint source pollution (primarily from
storm water runoff) as the leading source of surface
water and groundwater quality impairments in the
country. When properly managed, wetlands can help
prevent this pollution from degrading water quality
by acting as a natural filter. Two methods to achieve
this are: preserve wetlands and restore degraded
wetlands with the potential to control nonpoint
source pollution, while encouraging proper
management of upstream watershed activities, such
as agriculture, forestry, and urban development.
A third strategy promotes the use of engineered
From left to right: Interior of the former Studebaker ManufacturingPlant; Exterior view of former Oliver Plow Works; Environmentalremediation of a former brownfield on Michigan Street.
ENVIRONMENTAL MANAGEMENT 91
vegetated treatment systems (VTS). VTS are espe-
cially effective in removing suspended solids and
sediment from nonpoint source pollution before the
runoff reaches natural wetlands.
One method for preserving natural open space is by
encouraging cluster developments. This approach
requires new developments to “cluster” residential,
office, or commercial structures within a portion
of the site being developed, leaving the balance to
remain in its natural state. This offers many benefits,
including: preservation of a greater portion of the
natural environment than if the development were
evenly spread throughout the site; reduction in
the coverage of impervious surfaces; and greater
efficiency and cost effectiveness in the provision of
public utilities.
E. HOUSEHOLD HAZARDOUS WASTE
Household hazardous waste (HHW) presents a
substantial challenge to every community due to
its widespread distribution and potential harmful
effects when improperly handled. HHW is a subset
of solid waste, characterized by ignitability, cor-
rosiveness, toxicity, reactivity, or by explicit listing in
the federal code by the EPA. Examples of common
HHW include paints, batteries, and antifreeze, to
mention a few. When improperly disposed of, HHW
may contaminate soil and groundwater, cause fires
or injury, and in general have a negative impact on
the community’s quality of life.
South Bend residents are encouraged to dispose
of their HHW at a designated facility in Mishawaka
opened in 1995 and managed by the St. Joseph
County Solid Waste Management District. Each
92 ENVIRONMENTAL MANAGEMENT
day the facility was open in 2005, an average of 20
households, seven of which were from South Bend,
disposed of their HHW there. The total volume of
hazardous liquids disposed of at the facility has
steadily grown: for example, between 2003 and
2005 the amount of latex paint increased from 3,400
gallons to 4,900 gallons; and other liquids increased
from 990 gallons to 7,250 gallons. In 2005, the facility
processed more than 20,000 pounds of discarded
electronic equipment, as well. The facility is clearly
underutilized by South Bend residents.
To address the issue in a holistic, effective way,
education and rigorous enforcement of existing
ordinances must both be pursued. South Bend
Municipal Code does not specifically address HHW.
Some changes in City Code may be required. Partici-
pants in the planning process expressed their desire
to bring HHW to greater prominence as one method
by which the community could take a more active
role as stewards of the natural environment.
F. TREE CITY
South Bend has been recognized as a Tree City since
1997 and has planted more than 2,600 trees since
2000 throughout the community. Aerial views of
the city reveal significant tree coverage in many of
the city’s neighborhoods and parks; by contrast, the
downtown has limited tree coverage. The greening
of downtown will enhance the urban environment.
The City maintains a nursery which provides trees
for planting in parks and for various City-sponsored
Mature trees in Rum Village Park.
projects. Participants in the planning process
expressed support for efforts to expand the urban
forest throughout the city, both in the rights-of-way
and on private property.
G. ENERGY CONSERVATION
Individuals, organizations, and institutions can
practice energy efficiency and energy conservation.
Energy resources that are efficiently and appropriately
used reduce energy-related expenses, minimize
pollution, and preserve natural resources.
There are several practices the community can use
to promote and implement energy conservation.
The U.S. Department of Energy’s Zero Energy
Homes research initiative is one example. A Zero
Energy Home (ZEH) combines state-of-the-art,
energy-efficient construction and appliances with
commercially available, renewable energy systems
to approach net zero energy consumption from the
utility provider. In addition, developers can apply
for LEED (Leadership in Energy and Environmental
Design) Green Building Rating System® certification
for their buildings as a method of promoting the
highest possible current and future energy-efficient
and environmentally sensitive design standards.
Throughout the planning period, regional cooperation
between jurisdictions will contribute to greater
protection of the environment. Toward this end, the
City of South Bend joined with St. Joseph County in
1999 to establish a curbside recycling program.
ENVIRONMENTAL MANAGEMENT 93
The City of South Bend provides trash collection for
the City’s residents, disposing of the waste at two
landfills: Southeast Berrien County Landfill in
Buchanan, Michigan, and Prarie View Landfill in
Wyatt, Indiana; each has a 40-year life span. In 2005,
each landfill had about 20 years capacity left and
each had the opportunity to add additional capacity.
The City of South Bend disposed of a total of
approximately 40,000 tons of solid waste at the two
landfills in 2005. In 2005, more than 13,450 tons of
recycled commodities were collected in St. Joseph
County, and the participation rate was approximately
54 percent countywide. Available data does not
indicate the participation rate by jurisdiction within
the county, but anecdotal evidence points to the
need for additional educational outreach into the
community regarding recycling.
H. AIR QUALITY
The six major air pollutants known to contribute to
poor air quality–carbon monoxide, lead, nitrogen
dioxide, ozone, particulate matter, and sulfur dioxide–
are primarily caused by vehicle emissions and coal-
burning power plants.
Air pollution crosses geographic boundaries, so air
quality issues need to be examined in a regional
context. Indiana has 22 coal-burning power plants
statewide. In 2005, coal-burning power plants
contributed to Indiana’s ranking as fourth in the country
for mercury emissions and fifth in the country for
overall air pollution. In St. Joseph County on the
campus of the University of Notre Dame, there is
one coal-burning power plant. Other near-by plants
operate in Gary, Hammond, and Wheatfield, Indiana.
While St. Joseph and Elkhart counties’ air quality is
considered satisfactory based on ozone and
particulate matter levels, there were some instances
of ozone nonattainment in 2004. St. Joseph and
Elkhart counties will need to comply with Clean Air
Act requirements by 2009. Failing to comply with
EPA regulations is detrimental to both public health
and the local economy. Nonattainment can result in
specific penalties which can inhibit business
development. Throughout the planning period local
government needs to take an active role in region-
wide discussions on power generation and support
alternative sources of energy whenever possible.
LEED
The LEED (Leadership in Energy and Environmental
Design) Green Building Rating System® is a voluntary,
consensus-based national standard for building high-
performance, sustainable buildings. LEED was developed
by the U.S. Green Building Council (USGBC), the leading
organization promoting the green building industry.
According to the USGBC, the purpose of LEED is to:• define “green building” by establishing a common
standard of measurement • promote integrated, whole-building design practices • recognize environmental leadership in the building
industry • stimulate green competition • raise consumer awareness of green building benefits • transform the building market
LEED emphasizes state-of-the-art strategies for
sustainable site development, water savings, energy
efficiency, materials selection, and indoor environmental
quality in new commercial construction, major renovation
projects, homes, neighborhood development, and
others. LEED recognizes achievements and promotes
expertise in green building through a comprehensive
system offering project certification, professional
accreditation, training, and practical resources.
Photograph courtesy of Weston Solutions, Inc. GreenGrid®
Green Roof over the Target Store, South Loop, Chicago, IL.
94 ENVIRONMENTAL MANAGEMENT
The U.S. Department of Energy’s (DOE’s) Energy
Policy Act of 1992 requires fleets owned or operated
by federal and state governments and alternative
fuel providers to meet a portion of their light duty
vehicle acquisitions with alternative fuel vehicles.”
However, this does not extend to local governments
and private fleets. In spite of the lack of regulation,
DOE encourages local governments to voluntarily
use alternative fuel vehicles through its Clean Cities
Program created in 1993. Alternative fuel vehicles
(AFVs) include any dedicated, flexible-fuel, or
dual-fuel vehicles; alternative fuels include ethanol,
natural gas, propane, hydrogen, bio-diesel,
electricity, and p-series fuels.
The use of alternative, cleaner fuels (and fuel-
efficient vehicles) where possible in the City’s fleet
through partnerships with other entities (local, state,
or federal) can help make this transition to cleaner
vehicles. In addition, it is worthwhile to consider
instituting emission control requirements on all
vehicles licensed in St. Joseph County.
To achieve the community’s Vision . . .
The City will need to combat the combined sewer
overflows and adopt means to filter nonpoint
sources of pollution to maintain a clean and
reliable water supply.
The City will need to enhance and protect the St.
Joseph River ecosystem and conserve and protect
wetlands and natural open space habitats. The
number of trees in the urban forest canopy should
be increased.
The City should facilitate the productive reuse
of brownfield properties and work to ensure the
proper disposal of household hazardous waste
and to reduce the amount of non-biodegradable
materials in land fills.
Energy efficient design, development, and practice
will need to be promoted and new methods to
improve the air quality in the region will need to
be developed.
ENVIRONMENTAL MANAGEMENT 95
OBJECTIVES AND POLICIES
Objective EM 1: Enhance and protect the
St. Joseph River ecosystem.
Policies
EM 1.1 Monitor wildlife and native vegetation
along the river to ensure its sustainability.
(Impact on Natural Environment, p. 158)
EM 1.2 Educate the general public on the
St. Joseph River ecosystem and methods to
sustain it.
(Impact on Natural Environment, p. 158)
EM 1.3 Implement the Combined Sewer Overflow
(CSO) Long-Term Control Plan.
(Job Creation, p. 146)
EM 1.4 Partner with neighboring communities to
enhance the St. Joseph River ecosystem.
EM 1.5 Support the enforcement of
discharge ordinances.
EM 1.6 Encourage the use of pervious materials
and other techniques to reduce the
amount of runoff.
Objective EM 2: Ensure the availability of a clean
and reliable water supply.
Policies
EM 2.1 Support local and regional efforts to protect
the St. Joseph Valley Aquifer.
EM 2.2 Provide educational programs that raise
awareness about preserving groundwater
supply. (Impact on Natural Environment, p. 158)
EM 2.3 Promote the use of environmentally friendly
pesticides and insecticides on green space.
(Impact on Natural Environment, p. 158)
EM 2.4 Encourage the retention and preservation
of wetlands.
EM 2.5 Pursue potential alternative sources
of potable water.
EM 2.6 Utilize state-of-the-art technology to
monitor and enhance water quality.
(Impact on Natural Environment, p. 158)
EM 2.7 Develop and maintain an inventory of
potential sources of contamination.
Objective EM 3: Facilitate the productive reuse of
brownfield properties.
Policies
EM 3.1 Pursue financial resources to conduct
environmental testing, remediation, and/or
clearance of abandoned, underutilized,
or vacant properties with development
potential. (Redevelopment, p. 155)
EM 3.2 Educate the public regarding the benefits of
brownfield remediation.
EM 3.3 Provide incentives for brownfield reuse.
(Redevelopment, p. 155)
EM 3.4 Maintain and update the City’s brownfields
database on a routine basis.
EM 3.5 Establish public/private partnerships for
brownfield investment.
Objective EM 4: Conserve and protect wetlands
and natural open space habitats.
Policies
EM 4.1 Require developers to include a percentage
of open space in all new developments.
(Municipal Code, p. 154)
EM 4.2 Partner with neighboring jurisdictions to
maintain an updated inventory of natural
resources and open spaces.
EM 4.3 Utilize bioengineering technology and native
plants in storm water drainage facilities.
I. GOAL
Promote sustainable
environmental management
that enhances the quality of
air, water, and land resources,
and preserves the
St. Joseph River as an
irreplaceable resource.
96 ENVIRONMENTAL MANAGEMENT
EM 4.4 Utilize prevention plans to reduce the
negative impacts of exotic and invasive
species on native species and ecosystems.
EM 4.5 Encourage the establishment and
maintenance of vegetative buffers
around wetlands.
Objective EM 5: Ensure the proper disposal of
household hazardous waste materials.
Policies
EM 5.1 Partner with the St. Joseph County Waste
Management District and local environmental
groups to educate residents on the proper
disposal of household hazardous waste.
(Household Hazardous Waste, p. 160)
EM 5.2 Partner with local, regional, and state
entities to develop alternatives for proper
disposal. (Household Hazardous Waste, p. 160)
EM 5.3 Ensure the Municipal Code effectively
addresses household hazardous waste.
Objective EM 6: Reduce the amount of
non-biodegradable materials in landfills.
Policies
EM 6.1 Promote the benefits to the natural
environment of recycling waste.
EM 6.2 Encourage and support recycling awareness.
EM 6.3 Promote the creative use of recycled materials.
Objective EM 7: Increase the number of
trees and urban forest canopy.
Policies
EM 7.1 Educate the public about existing resources
for purchasing, planting, and maintaining
appropriate trees.
EM 7.2 Provide incentives to property owners
to plant trees in the tree lawn and on
private property.
EM 7.3 Plant trees in the public right-of-way in
select locations.
EM 7.4 Maintain the City’s status as a Tree City
U.S.A. community.
Objective EM 8: Promote energy efficient design,
development, and practice.
Policies
EM 8.1 Promote the use of the Leadership in Energy
and Environmental Design (LEED) Green
Building Rating System in all developments.
(Impact on Natural Environment, p. 158)
EM 8.2 Encourage the use of renewable energy
technology in all developments.
EM 8.3 Partner with local utility providers to
create and/or develop incentives rewarding
energy conservation.
EM 8.4 Support education programs to raise
awareness of alternative energy sources in
the community.
Objective EM 9: Improve air quality in the region.
Policies
EM 9.1 Implement local and regional plans to
attain EPA mandated air quality standards.
(Impact on Natural Environment, p. 158)
EM 9.2 Promote the use of public transit and other
alternative modes of transportation.
(Alternative Modes of Transportation, p. 159)
EM 9.3 Partner with local and regional
organizations to promote ozone action days.
EM 9.4 Support environmentally friendly forms of
power generation.
EM 9.5 Support instituting vehicle emissions
inspections in St. Joseph County.
EM 9.6 Encourage the use of alternatives to
gas-powered tools.
ENVIRONMENTAL MANAGEMENT 97
The following excerpt from the
community’s vision for 2025
helped shape the Goal,
Objectives, and Policies for
Urban Design:
Envision South Bend in 2025…
We have a built environment
that embraces our
historic heritage while
facilitating progressive design
and land use, utilizing
modern infrastructure.URBAN DESIGN
URBAN DESIGN 99
Urban design involves the planning and design of
the public realm. It includes the aesthetic appeal
of an area, the grouping and massing of buildings,
and the spaces and landscapes between them. An
important aspect of urban design is to evaluate the
quality and usefulness of all spaces (public and private)
to create a built environment that respects the
community’s history and cultural heritage. Urban
design elements can generally be described at
three different scales:
Large scale: Includes general elements such as a
city’s entire urban form and the networks such as
transportation connections that are the foundation
of city life.
Medium scale: Includes more specific elements such
as building placement in developments, and visual
and physical connections in an area.
Small scale: Includes micro elements such as the
streetlights, benches, and sidewalk treatments that
help enhance the character of a place.
A. URBAN FORM
The city’s urban form is generally defined by its
public spaces, buildings, and structures: how they
are designed, what they look like, and how all of
them are connected to each other. Urban density
and the use of land (residential, commercial, industrial,
or institutional) are also important aspects that make
up the urban form of a community. South Bend’s
setting on the southern bend of the beautiful
St. Joseph River establishes the community’s urban
form. The river, which runs through the heart of
downtown, has historically provided the City with a
transportation system, a source of power for industry,
and opportunities for recreation, economic
development, and aesthetic enjoyment.
As the city continues to grow and become more
urban, preserving the character and identity of its
unique spaces becomes an important aspect of City
planning. A tool for enhancing the urban fabric of a
community is the use of design guidelines. Effective
design guidelines include graphic illustrations and
written text that are clear and provide the direction
that is needed to reach design solutions in a plan’s
Some elements of good urban spaces: (left to right) water feature, landscaping, seating .
“Fridays by the Fountain” at the Jon R. Hunt Plaza by the Morris Performing Arts Center in downtown South Bend.
100 URBAN DESIGN
policies. Design guidelines can help create an
attractive and efficient city and respect the historic,
urban form of the community.
Design Quality
High-quality design in buildings as well as the city’s
urban streetscape can promote a strong sense
of identity and pride in its residents. The use of
appropriate urban design elements such as water,
landscaping, and adequate seating enhance the
appeal of a public space. Policies in City Plan can
help create the attractive, urban character that
the community desires. Urban design policies can
maintain and strengthen the urban fabric of the city’s
older, established neighborhoods and encourage
the city’s commercial and mixed-use centers to
attract more people.
B. DOWNTOWN AND SURROUNDING
NEIGHBORHOODS
South Bend’s downtown, the prime location for retail
for several decades in the 20th century, remains
the urban core of the entire region. It provides
higher-density, specialized commercial, office, and
some residential land uses. The downtown and its
surrounding neighborhoods are the densest parts
of the city followed by medium- and lower-density
development toward the city fringes. Most of the
neighborhoods around the downtown were
developed prior to World War II, which is visible
from the architectural style of the buildings and
grid pattern of the streets. Housing is maintained at
various levels in these neighborhoods: the homes in
historic districts and areas with strong neighborhood
organizations tend to be better maintained.
Urban renewal strategies in the 1970s resulted in
the demolition of many downtown buildings with
architectural and historical significance. Many of
the sites, initially converted to surface parking lots,
have continued in that use in part due to a slow real
estate market and an increased need for inexpensive
parking in the downtown. In recent years, efforts
to revitalize the downtown have encouraged more
businesses, restaurants, and supporting amenities
to locate there. There is continued interest from
residents to see human-scale and pedestrian-oriented
development in the downtown area. A recurring
theme in various community meetings during the
City Plan process was the need to encourage more
residential uses in the downtown through mixed-
use development, with retail on the first floor and
residential above.
LANDSCAPE DESIGN PRINCIPLES
Landscape design is a combination of design principles and elements of art used to create attractive outdoor spaces.
The basic landscape design principles include:• Unity: all parts of the landscape go/belong together. This can generally be accomplished by using mass planting
and repetition.• Balance: refers to having an equal balance of visual attraction in the landscape. Symmetrical balance is achieved through
both sides of the landscape being mirror images. Asymmetrical balance is not mirror image, but uses elements that help
make both sides have equal attraction.• Transition: the gradual change of elements by placement of items with varying textures, forms, or sizes.• Focalization: to direct one’s attention or peoples’ path to a particular location or element by placement at a vanishing point.• Proportion: refers to the size of components within the design and how they relate to each other and the composite design.• Rhythm: helps to guide the users’ eye through the designed space.• Repetition: the repeated use of items with the same color, shape, form, line, and/or texture which can help accomplish
rhythm, focalization, and unity.• Simplicity: avoiding the use of unneeded components.
While developing a landscape design, the existing environment, built and natural, should be considered, including existing
plants, natural factors and features, land form, neighboring structures and their elements, and needs/activities of the area.
URBAN DESIGN 101
Downtown gathering space: KeyBank Red Table Plaza.Surface parking lots reduce urban density.
National case studies suggest that specialty retail and
residential uses help maintain an urban character in
the downtown. Additionally, by developing parking
wherever possible on the interior of blocks surrounded
by ground floor developments creates interest and
excitement for pedestrians. Less surface parking and
more landscaping requirements to screen parking
lots can create a more pleasant atmosphere for the
users and pedestrians.
C. GATHERING PLACES
Public places have traditionally served as gathering
places, where people come to express themselves
or engage in conversation with others. Cities have
various public and semipublic gathering places
where users can experience a sense of community.
The best public gathering spaces are those where
people of various ages and backgrounds engage in
a variety of activities such as talking, playing, people
watching, or performing.
Streets, parks, plazas, and squares are some examples
of public gathering spaces where people of diverse
cultures and backgrounds mingle together. They
serve as venues for cultural events, parades, and
performances. Maintaining these public spaces is
vital for every community in order to continue the
encouragement of social interaction between
various groups.
The built environment around every public gathering
place plays an important role in its success. The
presence of adequate seating such as benches and
chairs is an amenity that enhances the experience
of users in the space. Trees provide shade during
warm, summer days. Other amenities of the built
environment include water features such as fountains
that draw people to the public space.
During the City Plan process, participants consistently
discussed the loss of public space in the community.
Giving prominence to the creation and design of
public spaces will help create a more vibrant city. The
design of public gathering spaces is an important
aspect of urban design and will need to be an integral
part of new developments in the community.
PEDESTRIAN-FRIENDLY DESIGN
To provide a safe and friendly environment for
pedestrians, there are many factors that must be
considered. The following are some key design elements
which create an environment that encourages people
to walk:• Buildings close to the street.• Tree-lined streets.• Human-scale signage.• On-street parking which provides a buffer
between pedestrians and traffic.• Decreased number of approaches by placing
garages and parking in rear of buildings with
access from the side street–this reduces the risk of
pedestrians being struck by a vehicle.• Narrow streets–helps to slow vehicles.• Slow traffic speed on streets.• Pedestrian crosswalks.• Sidewalks.
Pedestrian-friendly environments promote the use
of walking as an alternative mode of transportation
which also reduces traffic congestion. Since walking
is a physically and mentally healthy activity, this
environment contributes to and promotes a healthy
lifestyle. Also, pedestrian-friendly environments make
people feel comfortable walking and provide social
and recreational opportunities.
102 URBAN DESIGN
Some prominent downtown landmarks: above: the College Foot-ball Hall of Fame and the Knute Rockne Plaza;
left: Historic St. Joseph County Courthousebuilt in the 1890s;
right: Violin Woman, by sculptor Tuck Langland, at the Jon R. Hunt Plaza.
D. LANDMARKS AND HISTORIC
PRESERVATION
Landmarks are structures that are easily recognizable
and create visual reference points for people in the
community. Landmarks, which enhance the identity
of a community, are often points of historic or
cultural interest, such as civic buildings, churches,
monuments, or any building with a distinctive
design, height, or siting that sets it apart from its
surroundings. Some prominent downtown landmarks
include: the JMS Building, St. Joseph County
Courthouse, College Football Hall of Fame, Morris
Performing Arts Center, and the Century Center.
Historic preservation is the process of preserving
part of a community, from an individual building or
part of a building to a whole neighborhood, because
of its historic importance. Preserving buildings,
structures, and neighborhoods enhances the unique
character of a place and maintains the historic built
environment. Preservation also helps maintain
identity and educates people about a community’s
history. Many communities use historic preservation
as an economic revitalization tool. The Historic
Preservation Commission of South Bend and St. Joseph
County and the Historic Landmarks Foundation are
active and devoted to this purpose.
The community desires development that sensitively
preserves historic structures and the adaptive reuse
of historic buildings, in the downtown and throughout
the city. The beautifully restored Morris Performing
Arts Center and Palais Royale are examples of
successful renovation work that helped catalyze
development in the area. The renovated State
Theater façade further south on Michigan Street
URBAN DESIGN 103
combines the old and the new to support a pedestrian-friendly corridor of
rehabilitated buildings and new developments.
E. PHYSICAL AND VISUAL CONNECTIONS
The protection of identified views and vistas are important urban design
elements that help maintain the character of a city. Enhancing physical and
visual connections requires that buildings be designed and placed in relation
to existing street patterns and respect the urban fabric of an area. The
preservation of features that create visual connections helps create a
sense of place and strengthens community identity.
Far left: Lobby of the Morris Performing Arts Center–Built in 1921 in Spanish Renaissance style, the Morris was reopened in 2000 following years of detailed restoration work.
Top left: Remedy Building–Built in the 1890s for the South Bend Remedy Company, moved and restored in 2002-03, now the offices of Historic Landmark Foundation.
Bottom left: Tippecanoe Place–Built for the Studebaker family in 1889,declared a historic landmark in 1978 and converted to an upscale restaurant.
104 URBAN DESIGN
Central High School Apartments in downtown South Bend and surrounding neighborhoods to the northwest.
The character of major arterials can leave a significant
impression on visitors traveling through or into the
city, and those in South Bend are in need of
improvement. These arterials establish an image of
the community. Improving the primary gateways
into South Bend has been an important part of the
City’s Commercial Corridor Program that began in
1998. The City has partnered with businesses and
neighborhood organizations to enhance several of
these important and distinct commercial corridors.
Participants in the planning process expressed the
need to preserve sight lines and views to prominent
landmarks, and to create aesthetically pleasing
public and private spaces. Participants encouraged
the City to enhance major arterial streets to stimulate
business activity, increase the aesthetic driving or
walking experience, and announce to visitors when
they are entering and leaving the downtown.
To achieve the community’s Vision . . .
The urban fabric of the city’s older, established
neighborhoods will need to be strengthened.
The City will need to encourage more pedestrian
oriented mixed-use development in the
downtown. The character of the community’s
entryways and corridors will have to be made
more attractive and inviting.
Designated historic buildings and other significant
structures in the city will need to be preserved
and maintained in productive use as an integral
element of the community’s identity.
The City will need to purposefully improve the
aesthetic appeal of the built environment and ensure
that pleasing visual sightlines such as vistas are
preserved and enhanced. The design of public
gathering spaces will need to be an
integral part of new developments
in the community.
URBAN DESIGN 105
OBJECTIVES AND POLICIES
Objective UD 1: Enhance the aesthetic appeal of
the built environment.
Policies
UD 1.1 Require developments to utilize design
techniques that create an attractive, urban
character for the Central Business District,
corridors, and commercial areas.
(Neighborhood and Urban Character, p. 155)
UD 1.2 Promote landscaped spaces of various
types and sizes for social interaction
throughout the community.
UD 1.3 Incorporate the principles of landscape
design in all developments, public spaces,
and rights-of-way.
(Neighborhood and Urban Character, p. 155)
UD 1.4 Encourage attractive and architecturally
appealing designs for buildings to create
distinctive, visual reference points in
the community.
UD 1.5 Require aesthetically pleasing parking facilities.
UD 1.6 Respect the scale, design, and aesthetic
quality of established neighborhoods when
undertaking infill development projects.
(Neighborhood and Urban Character, p. 155)
UD 1.7 Promote urban design elements in new
developments that are appropriately scaled
and conducive to pedestrians, including
pedestrian safety considerations.
UD 1.8 Include design guidelines in area-specific
plans that address urban design issues.
(Neighborhood and Urban Character, p. 155)
Objective UD 2: Preserve and enhance designated
historic buildings and other structures in the city.
Policies
UD 2.1 Provide incentives to preserve historic
buildings in the city.
UD 2.2 Pursue alternative sources of funding for
historic preservation initiatives.
UD 2.3 Encourage the salvage of significant features
from buildings that are beyond repair.
UD 2.4 Establish guidelines that determine the
feasibility of preserving buildings and
structures. (Development Process, p. 154)
UD 2.5 Assist neighborhoods and other potential
historic districts identify, recognize, and
highlight their historic heritage.
(Community Planning, p. 161)
UD 2.6 Support programs to improve and renovate
building façades and exteriors.
F. GOAL
Promote an attractive and
aesthetically pleasing public
realm that preserves and
enhances the city’s history
and built environment.
106 URBAN DESIGN
Objective UD 3: Preserve, enhance, and
create aesthetically pleasing visual and
physical connections.
Policies
UD 3.1 Ensure that area-specific plans address
access to, and visual connections among,
natural features, landmarks, parks, and
significant structures in the city.
(Neighborhood and Urban Character, p. 155)
UD 3.2 Incorporate existing vistas and visual
connections in new developments and
create opportunities for new ones in future
development. (Municipal Code, p. 154)
UD 3.3 Preserve pedestrian access and visual
connections to the St. Joseph River.
(Municipal Code, p. 154)
UD 3.4 Require that all developments in the city
satisfy baseline urban design criteria
established for the neighborhood or area.
(Neighborhood and Urban Character, p. 155)
Objective UD 4: Improve the character of the
community’s entryways and corridors.
Policies
UD 4.1 Include landscape and urban design
principles in plans and design guidelines
for corridors.
(Neighborhood and Urban Character, p. 155)
UD 4.2 Establish attractive gateways at key
entry points into the city and ensure
aesthetically pleasing street amenities
along those coridors.
UD 4.3 Encourage special streetscape design for
designated intersections that create entry
points into the city.
UD 4.4 Promote more mixed-use developments
along the corridors.
URBAN DESIGN 107
The following excerpt from
the community’s vision for
2025 helped shape the Goal,
Objectives, and Policies for
Community Building:
Envision South Bend in 2025…
Our city government dedicates
itself to civic engagement
with open, effective dialogue
among citizens and
governing bodies. We enjoy
a high quality of life enriched
through our achievements of
ethnic and racial harmony,
volunteerism, philanthropy,
and just and equal access
to economic and
social opportunities.COMMUNITY BUILDING
COMMUNITY BUILDING 109
Community building is a process that aims to
improve a community’s quality of life. Community
building strengthens the capacity of residents,
neighborhood associations, and community
organizations to identify opportunities and priorities
that facilitate positive change. Collaboration and
communication are essential to this ongoing process.
The development of community identity is both a
component, and a result, of community building.
Ultimately, the goals of community building are
to enrich the civic life of the community, nurture
strong, vibrant neighborhoods, and encourage
bridge building between and among diverse social
and economic groups.
A. NEIGHBORHOOD-BASED
ORGANIZATIONS
There has been considerable attention paid
nationally to the importance of “social capital” since
Robert Putnam’s book Bowling Alone: The Collapse
and Revival of American Community was published
in 2000. Social capital is the feeling of trust and
reciprocity that binds people to one another and is
facilitated by formal and informal relationships or
networks. A neighborhood-based organization is
one example of a formal social network. In 2005,
there were 33 neighborhood-based organizations,
varying in levels of sophistication, within South
Bend. There is a long tradition in the community of
groups forming to revitalize a neighborhood or to
address a specific neighborhood or citywide need.
In fact, some neighborhoods have more than
one organization.
Residents consider options at their neighborhood meeting.
Residents and city officials discuss “solutions” in a Phase II City Plan meeting in June 2005.
Neighborhood-based organizations are a productive
way that residents of the city direct their
civic-mindedness. City government has encouraged
this civic-mindedness by supporting organizations
such as the Neighborhood Resources Corporation
that provides neighborhood-based organizations
with training and helps build neighborhood
capacity. Through neighborhood planning, local
government receives organized input from residents
and businesses about their interests and desires
for the area. Neighborhood planning develops the
capacity for civic engagement of the residents and
businesses and provides opportunities for them
to become acquainted with each other and local
government. Through planning, the knowledge
and experience–that is, capacity–of residents,
businesses, and neighborhood-based organizations
are developed, partnerships are established, new
leadership is developed, and the desires of the
area are formalized in a plan for the future of that
110 COMMUNITY BUILDING
area. Plan implementation is accomplished using
a combination of City, federal, and state funds, and
grants from private sources.
Throughout the planning process, participants
expressed their desire to see productive partnering
between local government and the community in
a variety of ways, neighborhood planning being
only one.
Citizens learn about government operations at a Local Government Academy class.
People gather at Jon R. Hunt Plaza to listen to speakers on immigration reform.
Martin Luther King, Jr. Day march in downtown South Bend.
B. PUBLIC PARTICIPATION IN LOCAL
GOVERNMENT AFFAIRS
As with many cities throughout the United States,
the number of people who vote has declined in
South Bend. Few people attend meetings of the
locally elected Public School Board. Positions on
South Bend Common Council subcommittees
reserved for citizen participants often go unfilled.
Public apathy and sometimes even alienation are
national challenges faced by local governments.
However, these problems are not inevitable.
Aristotle said that we are political beings, and
that a part of us emerges only to the extent that
we participate in public life. Participants in the
planning process expressed the desire to foster a
culture of inclusiveness, to encourage residents to
participate in important decisions that affect the life
of their community by creating processes that go
beyond one person, one vote. Public participation
builds civic-mindedness, reduces alienation, and
strengthens social stability. Participants said they
would like to see more of what City government
already does through participatory programs, such
as the decision making residents and businesses
take on in some neighborhoods, commercial
corridors, and in the downtown through City–
supported revitalization efforts. Expanding these
partnerships will help foster a vibrant civic culture.
C. RACIAL/ETHNIC CHALLENGES
South Bend has always been a community of
immigrants. From the middle of the 19th century
through the middle of the 20th, immigrants from
Central and Western Europe, Ireland, and England
came to South Bend to work in its factories. South
Bend’s African American population grew rapidly
after World War II, when African Americans from
the American South provided the next wave of new
arrivals. Hispanics are the most recent members
to join the South Bend community, along with
Asians from India and China, among other places
in the Far East.
Demographic change can generate tension
from time to time in any community. Population
projections for South Bend anticipate continued
growth over the planning period in the Hispanic,
African American, and Asian communities.
Accompanying growth in the minority population
is an anticipated decline in the percentage of
Caucasians: by 2025, the Caucasian proportion of
South Bend’s population is projected to drop to
around 60 percent.
Participants in the planning process encouraged the
community to celebrate this diversity and support
interaction and collaboration among different
ethnic and racial groups. Improved communication
between local government and the general public
will encourage greater participation of South Bend’s
COMMUNITY BUILDING 111
residents in government decision making. Improved
communication and collaboration between the
police department and the public can foster
excellent police/community relations and assist with
the prevention and detection of crime.
D. AREAS OF CONCENTRATED POVERTY
Some areas in the city have experienced significant
physical deterioration over the past few decades,
with dilapidated or abandoned housing, vacant
commercial structures, unkempt yards, and vacant,
overgrown lots. In some of these areas, those with
financial means have moved out, leaving the poorest
behind. Areas of concentrated poverty do not
provide an encouraging environment for those who
live there. These areas are sometimes perceived,
deservedly or not, in ways that tend to cast the
entire city in a negative light.
Scholars have described concentrated poverty as
those areas where more than 40 percent of the
residents live below the federal poverty line. In the
2000 census, there were six census block groups
in South Bend, encompassing approximately 100
city blocks, where 48 percent of the residents (1,376
of 2,839) lived in poverty. These four areas are
primarily located immediately south and west of the
downtown. The poverty rate citywide in 2000 was
approximately 17 percent.
Concentrated poverty is a complex issue confronting
many urban areas. A holistic approach–coordinating
economic development, workforce development,
health and safety initiatives, and the provision of
social services–offers the best prospect for success.
E. CRIME
Extensive research continues to be conducted
on the causes of crime and how best to address
those causes. Some researchers believe that crime
cannot be understood without having accurate
knowledge of the full context–demographic,
economic, geographic, and social–in which it occurs.
Alternatively, others focus on the opportunities
for crime in an area, as shaped by residents’
daily activities. This view concentrates on the
convergence of three key elements necessary for a
criminal event to take place: motivated offenders,
suitable targets, and the absence of someone able
to prevent it.
Although these two perspectives are related,
an important distinction can be made between
them. The first approach focuses on the ability
or inability of residents in an area (for example,
Year 1970 1980 1990 2000
City of South Bend
Population Below Poverty Level 11,755 13,044 14,854 17,452
% of Population Below Poverty Level 9.4 12.1 14.4 16.7
St. Joseph County, excluding South Bend
Population Below Poverty Level 8,621 8,370 7,794 8,774
% of Population Below Poverty Level 7.5 6.8 5.9 5.9
South Bend’s Share of County Population Below Poverty Level 57.7 60.9 65.6 66.5
South Bend’s Share of County Population 52.0 46.7 44.1 41.4
POVERTY IN SOUTH BEND
The number of South Bend residents living below the poverty line shows a long-term upward trend. The 1970 census showed
11,755 city residents, or 9.4% of the population, living in poverty. In 2000, nearly 17,500 residents, or 16.7% of the population,
lived below the poverty line.
Poverty is becoming increasingly concentrated within the city limits. While the population of St. Joseph County as a whole
living in poverty has slowly increased from 8.5% in 1970 to 10.4% in 2000, the percentage of St. Joseph County residents
outside of South Bend who live in poverty has consistently declined. In 1970, 7.5% of county residents not living within
South Bend were below the poverty level; in 2000, this figure had declined to 5.9%. The City of South Bend had only slightly
more than its fair share of residents living below the poverty level in 1970. In that year, South Bend accounted for 52% of the
county’s total population and 58% of the county’s population living in poverty. However, in 2000, South Bend accounted for
only 41% of the country’s total population but 67% of the country’s population living in poverty.
Source: U. S. Census Bureau
Note: Poverty status determined for year prior to Census; percentage of population below poverty level is figured on universe for
whom poverty status is determined, not on total population
112 COMMUNITY BUILDING
TABLE 10.1: Crime Rates in South Bend: 1995-2004
V i o l e n t C r i m e R a t e P r o p e r t y C r i m e R a t e
Year
Index
offense
rate* Totals
Total Murder Rape Robbery
Aggravated
assault Total Burglary Larceny
Motor
vehicle
theft
1995 9,444.0 924.3 24.5 81.1 366.9 451.8 8,519.7 2,269.3 5,583.6 666.8
1996 10,140.6 957.6 20.6 87.1 479.8 370.1 9,183.0 2,698.7 5,795.6 688.7
1997 9,326.3 822.3 15.9 66.3 348.1 392.0 8,504.0 2,142.1 5,697.3 664.6
1998 8,901.4 761.3 13.6 70.9 348.6 328.2 8,140.1 2,005.9 5,400.2 734.0
1999 8,806.5 782.9 17.0 75.9 356.5 333.5 8,023.6 2,254.5 5,052.2 716.9
2000 7,882.1 739.4 11.1 63.1 360.0 305.2 7,142.7 1,790.5 4,684.2 668.0
2001 8,548.4 832.2 19.7 73.1 456.4 283.0 7,716.2 1,810.5 5,250.7 655.0
2002 7,720.1 771.7 18.8 87.5 333.2 332.2 6,948.4 1,718.5 4,689.7 540.2
2003 7,214.3 727.7 15.2 73.9 307.0 331.6 6,486.6 1,625.9 4,354.7 506.0
2004 6,946.2 722.0 9.5 67.3 325.9 319.3 6,224.2 1,473.4 4,240.1 510.7
% change
1995-2004 -26.45 -21.89 -61.22 -17.02 -11.17 -29.33 -26.94 -35.07 -24.06 -23.41
Source: 1996-2002: U.S. Deptartment of Justice, Bureau of Justice Statistics, Data online. Source: 2003-2004: South Bend Police Department, memo from Chief Fautz to Board of Public Safety, January 7, 2005.* Crime rate per 100,000 population. Population source: U.S. Census. Estimates used for 2001-2004.
a neighborhood) to work together to achieve
a common goal, like reducing predatory crime.
By contrast, the second approach focuses on
residents’ daily activities to see how those activities
create opportunities for crime. The first considers
community explanations for crime; the second
focuses on individual offenders and victims.
The crime rate in South Bend dropped more than
26 percent in the ten-year period 1995–2004 (See
Table 10.1). Despite that significant improvement,
people are still concerned about crime in their
neighborhoods and in the downtown.
While it may not be possible to eliminate crime
completely, it is reasonable to believe that crime
and the fear of crime can be reduced and controlled.
Community Oriented Policing Strategies (COPS)
offer an excellent approach. COPS provide ways the
police department can work with the community
as a partner to help intervene with those who are
at risk of deviant behavior, build social ties between
police officers and neighborhood organizations,
and train residents and businesses how to anticipate
the possibility of crime and eliminate or reduce the
opportunity for it to occur.
F. EX-OFFENDERS
Approximately 630,000 offenders nationwide are
released from prison every year. Fewer than half of
all released offenders stay out of trouble for at least
three years after their release from prison, and many
of these offenders commit serious and/or violent
offenses while under parole supervision.
There were 246 adult ex-offenders on parole who
moved back to South Bend in 2003, a fairly constant
number according to the DuComb Community
Corrections Center in South Bend. Many
ex-offenders have little or no family network to assist
them in making the transition back into society.
Felony records make finding employment a serious
challenge, particularly when accompanied by a lack
of job skills. In addition, many lack basic life skills,
such as parenting and conflict resolution.
It benefits both the ex-offender and the entire
community to provide a smooth transition from
prison back into society by helping ex-offenders
become productive, positive members of the
community. Collaboration between local and
state governments and the agencies providing
transition services is essential. Collaboration can
help establish continuity for prisoners between their
prison programs and activities, their reentry plans,
and the type of supervision and services they will
receive once released.
Examples of successful program elements
developed in other communities include
institution-based readiness programs, institutional
and community assessment centers, reentry courts,
COMMUNITY BUILDING 113
supervised or electronically monitored boarding
houses, mentoring programs, and community
corrections centers.
G. OPPORTUNITIES FOR YOUTH
South Bend’s young people are one of the
community’s most valuable resources. To help young
people reach their full potential, it is important to
identify needs, focus on long-term solutions, and
develop policies. The issues confronting youth are
also issues confronting families, so solutions must
include support for families.
The 2000 census indicated that 42 percent of all
youth aged 6–17 lived in single-parent households;
more than 21 percent of all South Bend’s youth aged
6-17 lived in poverty. According to the St. Joseph
County Health Department, the percentage of
pregnant women with no or inadequate prenatal
care increased from 6.8 percent to 14.8 percent over
the 2001–2003 period.
There are numerous agencies that provide services
to youth. However, existing needs strain the
resources of parents, the school system, and the
network of agencies and institutions that serve
youth. The planning process identified the
following key areas requiring attention:
High School Graduation
Keeping young people in school is an absolute
necessity for a growing economy, regardless
of the young person’s career aspirations. For a
young person, high school graduation needs to be
seen as fundamental to fulfilling potentials at all
WEED & SEED
Weed & Seed is a collaborative effort by the United States Department of Justice, the State of
Indiana, the City of South Bend, the St. Joseph County Prosecutor’s office, and the South Bend
Police Department to reduce crime and drug trafficking in designated neighborhoods by
developing broad economic and social opportunities with federal, state, and local agencies, as
well as private organizations and community groups.
Weeding• Law Enforcement: Utilizing Weed & Seed funds for extra law enforcement to reduce crimes such as homicide, drug
sales, prostitution, burglary, and theft.• Community Policing: Police and community residents working together to prevent crime and increase safety in
the neighborhoods.
Seeding• Prevention, Intervention, and Treatment: Providing Safe Havens, locations that are secure against crime and illegal
activity, and offer services for residents and opportunities for youth to be productive, successful, and enhance skills.• Neighborhood Restoration: Working to improve the neighborhoods through cleaning vacant lots, repairing curbs
and sidewalks, increasing owner-occupied housing, and increasing community involvement.
Map of South Bend’s Weed & Seed Neighborhood, 2006.
Top to bottom: Weed & Seed volunteers at a neighborhood cleanup event. Weed & Seed youth at a after-school program.
114 COMMUNITY BUILDING
The St. Joseph River flowing through downtown South Bend.
levels, whether immediate employment or higher
education. (See also Education and Arts and
Culture chapters.)
Jobs/Job Training
Connecting young people to employment and/or
training opportunities is beneficial to both the
individual and the community. Government,
businesses, nonprofit organizations, and educational
institutions, working together, can provide these
opportunities. (See also Economic Development chapter.)
After-School Activities
After-school programs provide educational, social,
and physical activities in adult-supervised, nurturing
environments.These activities offer constructive
alternatives for youth, while providing positive role
models. (See also Education chapter.)
Family Support
Coordination of services and programs is critical to
providing a framework of community support to
ensure a family environment that is conducive to
nurturing children into responsible adults.
(See also Education chapter.)
Civic Engagement
To nurture future leaders, government, in
collaboration with the community, can support ways
to engage youth in civic activities, and help them
learn how government works, how decisions are
made, and the value of public involvement.
H. THE IDENTITY OF SOUTH BEND
A community’s identity is based largely on the
physical environment and how it is perceived
by residents and visitors. The appearance of a
community can contribute positively or negatively
THE CITY PLAN SONG
Public participation, critical to the success of City Plan,
is an important component of community building.
Cindy Berryman, the music teacher at St. Joseph Grade
School in South Bend, recognized the process’
educational opportunities and incorporated City Plan
into her 5th grade music class. She assigned her
students to write a song and melody conveying their
hopes for South Bend. Ms. Berryman and her class
accepted an invitation to perform the song at one
of the visioning sessions in November 2003. The
performance helped attract the largest number of
participants of all the Phase I meetings and the refrain
became the unofficial song for the planning process:
Let’s make South Bend a better place
For all of us to work and play.
We want to help make a plan
So we can grow in every way.
5th grade students perform the City Plan song.
COMMUNITY BUILDING 115
to the community’s sense of pride, welcome
or discourage visitors, and establish or detract
from one’s sense of place. Understanding how
the physical (built and natural) elements of the
community are perceived is critical to establishing
strategies directed toward preserving and
enhancing assets, or eliminating or reducing the
negative impact of undesirable features.
The industrial transformation that lasted from the
1950s through the 1970s has challenged South
Bend’s identity. Largely a blue-collar community for
most of its history, the local economy has become
far more diverse and complex. These economic
and accompanying physical changes, combined
with the community’s current racial, ethnic, and
religious diversity, presents a very different physical
and cultural picture than what was seen 40 years
ago. Updating the community’s image and
identity to reflect the current reality will require
communitywide commitment and collaboration.
Throughout the planning process, the community
highlighted several strengths with which the
city can develop a 21st century identity. Some
of these include the St. Joseph River; the city’s
historic districts and outstanding architecture; the
downtown; regional attractions such as museums,
performance venues, restaurants, and tourist
attractions; the parks system; and historic landmarks
and the creative reuse of buildings. These are the
physical features which can be used to develop an
identity that honors the city’s history, celebrates
and promotes the community’s diverse cultural
heritages, and supports economic development.
Participants in the City Plan process looked forward
to significant development that reinforces the
unique character of the community rather than
promoting generic development that could be
found in any city, anywhere.
To achieve the community’s Vision . . .
The City will need to strengthen partnerships
with the community, promote diversity and
inclusiveness, and increase public participation in
local government affairs.
Communication and collaboration between the
South Bend Police Department and the general
public will need to be improved and the citywide
crime rate reduced. Ex-offenders reentering
society will need assistance to become productive
participants in the life of the community.
The City’s approach to addressing issues of
concentrated poverty should be holistic,
coordinating economic development, workforce
development, health and safety initiatives, and the
provision of social services.
The entire community will need to work
together to strengthen families as a means of
addressing issues confronting youth.
The community’s image and identity
should reflect current realities. To establish
that identity will require communitywide
commitment and collaboration.
116 COMMUNITY BUILDING
F. GOAL
Attain a vibrant, inclusive
community that achieves
ethnic and racial
harmony, provides equal
access to economic and
social opportunities,
and encourages civic
engagement.
Objective CB 1: Increase public participation in
local government affairs.
Policies
CB 1.1 Ensure methods for wide community input
in major City initiatives. (Public Outreach, p. 153)
CB 1.2 Provide educational opportunities on the
administration of local government.
CB 1.3 Promote the positive results of civic
awareness and involvement.
(Volunteering, p. 153)
CB 1.4 Provide opportunities for community input
through the City’s Web site.
(Public Outreach, p. 153)
CB 1.5 Ensure collaboration with businesses, com-
munity, faith-based, and civic and neigh-
borhood organizations on the development
and implementation of area-specific plans.
(Public Outreach, p. 153)
CB 1.6 Provide a variety of internships and other
learning opportunities in City government.
CB 1.7 Engage youth to become aware of and
involved in local government affairs.
(Involvement in Local Government, p. 152)
CB 1.8 Encourage active participation from people
of all races, ethnicities, ages, and socio-
economic groups in local governance.
(Public Outreach, p. 153)
CB 1.9 Support efforts that increase the
administrative and organizational capacity
of neighborhood-based organizations.
(Volunteering, p. 153)
Objective CB 2: Promote diversity and
inclusiveness in the community.
Policies
CB 2.1 Support the celebration of all racial and
ethnic heritages.
CB 2.2 Promote early and continued education
of youth on the value of cultural and racial
diversity. (Ethnic/Racial Diversity, p. 159)
CB 2.3 Facilitate cooperation among all races,
ethnicities, and socio-economic groups.
(Ethnic/Racial Diversity, p. 159)
CB 2.4 Support the expansion of public service and
volunteer opportunities for people of all
ages. (Volunteering, p. 153)
CB 2.5 Employ a racially and culturally diverse City
workforce. (Recruiting a Diverse Workforce, p. 149)
Objective CB 3: Improve communication and
collaboration between public safety officials and
the general public.
Policies
CB 3.1 Expand recruiting efforts to increase the
number of minority public safety officers
hired. (Recruiting a Diverse Workforce, p. 149)
CB 3.2 Support citizen police academies.
CB 3.3 Ensure continuous training of police officers
to educate them on the best possible
response to all types of service calls.
CB 3.4 Encourage collaborative efforts between
police officers and civilians on
community projects.
116
COMMUNITY BUILDING 117
Objective CB 4: Address the physical and social
condition of the areas with the greatest concen-
tration of poverty.
Policies
CB 4.1 Assist in coordinating the efforts of social
service agencies to identify and address
residents’ basic needs.
CB 4.2 Promote awareness of the Earned Income
Tax Credit (EITC).
(Opportunities for Low-Income Residents, p. 159)
CB 4.3 Support programs that manage Individual
Development Accounts (IDAs) to assist
income-eligible residents accumulate assets.
CB 4.4 Support financial education classes for
adults and youth.
CB 4.5 Pursue nongovernmental funding sources
for local community and economic
development efforts.
CB 4.6 Encourage home rehabilitation in targeted
neighborhoods.
CB 4.7 Ensure code, building, and environmental
ordinances are enforced in a consistent and
timely manner.
CB 4.8 Support homeownership programs
and initiatives.
CB 4.9 Evaluate regularly the effectiveness of
City-supported programs that address
poverty-related issues.
(Anti-Poverty Program Assessment, p. 161)
Objective CB 5: Reduce the crime rate in South
Bend.
Policies
CB 5.1 Research and implement innovative
policing techniques and programs.
CB 5.2 Promote neighborhood-based crime
prevention programs.
CB 5.3 Assist residents and businesses to identify
the various crime risks they are exposed to
and recommend crime prevention
techniques to remove or reduce those risks.
CB 5.4 Partner with the retail community to
implement programs that enhance the
personal security of shoppers.
CB 5.5 Educate the public on their role in
preventing crime.
Objective CB 6: Assist ex-offenders to reenter
society effectively.
Policies
CB 6.1 Support efforts to establish programs that
provide safe, structured, and supervised
environments teaching basic life skills for
ex-offenders.
CB 6.2 Partner with technical schools, institutions
of higher education, nonprofit service
providers, and government entities to
develop and deliver job training programs
for ex-offenders.
CB 6.3 Support the efforts of community- and
faith-based organizations providing
mentoring and transitional services
for ex-offenders.
CB 6.4 Encourage continuity between institutional
programs and activities, offenders’ reentry
plans, and the supervision and services they
receive once released.
Objective CB 7: Enhance South Bend’s identity.
Policies
CB 7.1 Promote and build upon local assets and
cultural and ethnic traditions.
(Community Assets, p. 147)
CB 7.2 Support the celebration of the community’s
history and diverse cultural heritages.
(Community Assets, p. 147)
CB 7.3 Preserve and enhance historically and
culturally significant community assets.
(Community Assets, p. 147)
The following excerpt from the
community’s vision for 2025
helped shape the Goal,
Objectives, and Policies
for Arts and Culture:
Envision South Bend in 2025…
We have a dynamic downtown
that is a hub for housing,
commerce and government,
and a regional destination
for culture, arts,
and entertainment.ARTS AND CULTURE
ARTS AND CULTURE 119
Culture is often defined as the sum total of the ways
of life of a people, including traditions, customs, and
the means by which a people order and interpret
their world. Different artistic activities–writing,
painting, dancing, theater, etc.–are primary methods
people use to interpret the world. Culture is passed
on to others primarily through formal education,
museums, the arts, media, and personal interactions
between individuals and generations. South Bend is
rich with the diverse cultures of its people.
There is a relationship between the arts, cultural
activities, and community well-being. Art and
cultural activities provide multiple benefits to
both individuals and the community. Individuals
benefit emotionally and intellectually when they
participate in the arts, either as performers or
viewers, and this participation strengthens the
community as well. For example, the personal
benefit of increased understanding of other
viewpoints translates into the public benefit of
increased tolerance, an important community
value in our pluralistic democracy. The public can
take full advantage of this beneficial impact by
integrating arts and culture into the educational
system, community celebrations, neighborhood life,
urban design, commerce and tourism, and public-
sector institutions. The roles art and culture play in
the economic and social life of our city needs to be
developed as fully as possible.
Art and culture are not capable of achieving these
positive benefits on their own. In 2005, researchers
at the RAND Corporation published a national study
funded by the Wallace Foundation, titled Gifts of the
Local artist conducting a pottery workshop for children during ArtBeat, 2005 .
Muse, on the positive personal and social roles the
arts play. In the study the authors stated: “After all,
the existence of works of art alone does not make for
a vital arts culture: it is the interplay between artistic
creation, aesthetic enjoyment, and public discourse
about art that creates and maintains such a culture.
The goal of public policy should be to bring as many
people as possible into engagement with their
culture through meaningful experience of the arts.”
A. THE BENEFIT OF THE ARTS
In the Gifts of the Muse, the authors identify three
primary benefits resulting from positive experiences
with the arts.
1. Participating in arts and cultural experiences
provides personal pleasure and promotes an
individual’s intellectual, emotional, and social
development.
2. This type of personal development provides
clear public benefits. For example, arts experiences
nurture greater receptivity to new perspectives,
which, in turn, can foster tolerance. This clearly
benefits a diverse society that advocates pluralism,
free speech, and freedom of religion.
3. Public benefits which accrue to a community that
values art and culture range from economic growth
to nurturing a community of shared values, shared
challenges, and equal opportunities.
120 ARTS AND CULTURE
Food and crafts attract residents to the Miami Street Fall Festival.
Arts Café: A Near NorthWest Neighborhood arts event.
B. INTEGRATING THE ARTS INTO
THE COMMUNITY
Socially: Diversity as Cultural Asset
The population of South Bend has become
much more diverse over the last 20 years, and
demographic projections suggest that that diversity
will grow over the next 20. (See Local Context chapter,
Demographic Information.) This demographic,
religious, and cultural variety offers the community
vitality and possibility. Cultural organizations and
venues, such as museums and festivals, offer the
means for celebrating this diversity, encouraging
cross-cultural understanding through education,
and providing opportunities for employment and
economic development.
Participants in the City Plan process encouraged
embracing this diversity through City support of
cultural events, programs, and other initiatives,
particularly those events involving collaboration
between artists of different cultures. Businesses and
neighborhood organizations were also encouraged
to work together using the arts as a neighborhood
revitalization and economic development tool.
Economically: Art and Culture as Economic
Generators
The creative industries are a growth sector in the
economy. Americans for the Arts reported in
Creative Industries 2005, that nationally in 2003-2004
businesses centered around the arts grew at a faster
rate than all U.S. businesses: 5.5 percent compared to
3.8 percent. Artistic and cultural activities and events
can be an important part of South Bend’s economy,
attracting tourists, creating jobs, and helping shape
the community’s identity in the 21st century.Children enjoy wagon rides at the Rum Village Family Fun Fair.
CELEBRATING CULTURAL
DIvERSITY
Cultural diversity can be the catalyst for positive
change, engaging all ages and communities. This
diversity can be embraced while building trust and
understanding and can act as the economic engine that
drives municipalities toward growth and prosperity.
The recognition
and coexistence of
a variety of cultural
assets are imperative
for the growth
and economic
development of
our communities
and should be
woven into the
planning and/or redevelopment process. As the
diversity of our communities increases, there must be
a greater focus on community cultural planning that
includes reconsideration of cultural audiences and
strengthening infrastructure to assist the cultural sector.
Growth and action toward understanding cultural
diversity has extraordinary advantages. Implementing
inclusive, comprehensive initiatives that raise visibility
and promote cultural recognition and diversity can
foster the economic development of our communities.
Cinco de Mayo celebration at Howard Park, South Bend.
Martin Luther King, Jr. Day celebration
at the Century Center, downtown South Bend.
ARTS AND CULTURE 121
Morris Performing Arts Center hosts big-name performers all year.
South Bend Regional Museum of Art located at the Century Center.
Studebaker National Museum and Northern Indiana Center for History are located in a neighborhood just west of downtown.
122 ARTS AND CULTURE
Posters from Art Beat 2005 and 2006.
Cities and states around the country are working
on ways to develop the arts as an economic
generator. South Bend has an impressive pool of
local artistic talent, some with national reputations;
audiences eager for quality entertainment; and
local philanthropic support. Participants in the City
Plan process expressed a strong desire to see this
combination of assets better organized to benefit
the economic life of the community.
C. DOWNTOWN AS A REGIONAL
ARTS DESTINATION
South Bend can boast of several premier venues
for the performing and fine arts in the downtown,
as well as quality tourist attractions and cultural
museums. The Morris Performing Arts Center has
been rated one of the top 50 performance spaces
in the world. Football fans come from all over the
country to visit the College Football Hall of Fame,
and the Studebaker National Museum draws
automotive enthusiasts from across the country.
The Northern Indiana Center for History holds a
variety of exhibits, from photographs, paintings,
and artifacts of local history to exhibits borrowed
from museums around the county. The South
Bend Regional Museum of Art has hosted exhibits
by artists from the surrounding multi-state area,
complementing its permanent collection of regional
American art. Annual community events, such as
Art Beat, the Leeper Park Art Fair, and the East Race
concert series, bring people to the downtown from
southern Michigan and adjacent Indiana counties.
South Bend’s downtown can build on its potential
by integrating arts and culture into the community’s
economic development practices.
Public art and art-related events along the St. Joseph
River can serve as catalysts in downtown revitalization
efforts. Mark di Suvero’s “The Keepers of the Fire”
sculpture on the St. Joseph River and outdoor
sculptures at the South Bend Regional Museum
of Art are some examples of the community’s
commitment to public art along the river.
The City of South Bend has been pursuing the
development of an arts district in the downtown to
build upon its various assets. Providing a physical
connection between existing and future arts spaces
and public art works will serve to enhance the
downtown as a destination for visitors. Incorporating
other seasonal public spaces, such as the Key Bank
Plaza and Jon R. Hunt Plaza, will reinforce this
connectivity. Formalizing this intent as part of a
downtown master plan will further promote the
downtown as a regional center for the arts.
During the City Plan process, participants suggested
installing improved signage to direct visitors to arts
destinations as well as provide connectivity between
arts venues. Human-scale public art throughout
downtown can also enhance the streetscape and
increase the aesthetic pleasure for both
pedestrians and drivers.
The Century Center forms a backdrop for the Keepers of the Fire sculpture on the St. Joseph River.
Images courtesy of Downtown South Bend, Inc.
ARTS AND CULTURE 123
ART BEAT 2005
Art Beat is a free, downtown South Bend evening stroll
along the sidewalks featuring the works of local visual,
musical, performing, and culinary artists. The artists’ work
is showcased in, outside of, or surrounding the downtown
organizations and businesses that are involved in and
support the cultural arts.
Art Beat showcases South Bend and the surrounding
community’s variety of local performing, visual, and
culinary artists, and creates awareness of the role
downtown organizations and businesses play in the
artisans’ promotion and success.
124 ARTS AND CULTURE
D. INCREASING ARTS AWARENESS
AND ACCESSIBILITY
Outreach to Youth and the Student Population
Early childhood education can influence a person
for life. Art is an essential element in the education
of the young, stimulating creativity, making learning
fun, and laying the groundwork for a lifelong interest
in the arts. The integration of the arts into education,
pre-school through 12th grade, is a crucial factor in
fostering arts awareness in the next generation. A
multi-layered approach that involves young people
in the arts helps them reach their full potential and
can transform the occasional observer of art and
cultural activities into an active participant and creator.
Communication among arts organizations helps
stretch limited advertising dollars and promotes
creative collaboration to continue to develop
audiences. As the Gifts of the Muse stated: “A
demand-side approach [to the arts] would aim to
build a market for the arts by cultivating the capacity
of individuals to gain benefits from arts experience.”
Some artistic and cultural opportunities for young
people in the community include:• Arts-related programs in the public and
private schools• Arts classes in the South Bend Regional
Museum of Art• Orchestra and band opportunities, including
the Youth Symphony and the IUSB Symphony• Learning opportunities for the visual arts, music,
theater, and dance at local colleges
and universities• Film appreciation programs for domestic and
international films through area universities
Outreach to the General Public
Collaboration between different arts and cultural
venues and groups can help integrate the arts and
culture into the community’s social fabric and create
events that educate, entertain, and attract people
from the wider region. A series of coordinated events
among several arts/cultural organizations, the public
school system, and institutions of higher education
could provide an annual or semi-annual regional
attraction that would educate and engage the public,
generate tourism dollars, support the arts, and
contribute to South Bend’s 21st century identity as a
regional destination for arts and cultural activities.
E. ARTS FUNDING AND OTHER SUPPORT
In December 2004, the Community Foundation of
St. Joseph County introduced the ArtsEverywhere
Initiative, an important effort to develop and
celebrate arts and culture in the community. This
initiative includes an endowed ArtsEverywhere
Fund–as of mid-2006 it had reached $1 million and
was growing–as well as a Web site to provide current
information on the arts, artists, and cultural events.
A quarterly magazine on the arts promotes regional
happenings to residents and visitors.
ArtsEverywhere Web site provides information the local arts scene.
ARTS AND YOUTH
WHY YOUTH EDUCATION IN ARTS IS IMPORTANT
Research has shown that early exposure is often
key to developing life-long involvement in the arts.
That exposure typically comes from arts education,
community-based arts programs, and/or commercial
entertainment. The most promising way to develop
audiences for the arts is to provide well-designed
school-based programs. Community-based arts
programs, if well designed and executed, can also be
an effective way to introduce youth to the arts. A third
way to facilitate early arts involvement is to encourage
young people’s involvement in the commercial arts.
An arts-rich school environment that incorporates the
arts throughout the school curriculum and/or offers
students a range of extracurricular activities in the arts
can be accomplished by:
• Using art as a tool to help students learn• Integrating art into nonarts courses as a means
of teaching nonarts subjects, such as history
and social studies• Direct instruction in the arts, including both arts
appreciation and courses that teach creative skills,
such as choir, orchestra, or painting
Schools with an arts-rich environment offer a variety of
opportunities for students to develop positive attitudes
toward the arts and toward school more generally
through:
• Improved attitudes toward arts and school• New role models, mentors• Growth in self-confidence and self-efficacy
Source: Gifts of the Muse: Reframing the Debate about the Benefits of the Arts
ARTS AND CULTURE 125
Public funds are used to support many arts-related
organizations in the community, including
renovation work for venues such as the Morris
Performing Arts Center. Some other areas where
public funds have been used for arts-related
activities include:• Annual operating support for the Morris
Performing Arts Center, and the Studebaker
National Museum, as well as funding for the
annual Halina Poetry Prize• Concerts at the East Race and Potowatomi Park• Use of an old firehouse for the South Bend
Civic Theater• Support for Fiesta Michiana and Cinco de Mayo
During the planning process, participants expressed
the desire to continue and even expand this funding
and support for the arts. Additional opportunities
for support include the targeting of historic and
other structures for use by artists as work/live spaces
that would serve to increase the critical mass within
the local arts community, bring increased awareness,
and eventually allow for a greater capacity to attract
additional funding opportunities.
Photograph courtesy of the South Bend Symphony Orchestra
The South Bend Symphony Orchestra, conducted by Maestro Tsung Yeh, performs at the Morris Performing Arts Center.
To achieve the community’s Vision . . .
The City should enhance the capacity of local arts and
cultural activities to act as economic generators and
establish downtown South Bend as a destination for arts
and culture within a multi-state region.
Arts and culture outreach to the entire community
should be expanded, and businesses and neighborhood
organizations should be encouraged to work together
using the arts as a neighborhood revitalization and
economic development tool.
The City will need to encourage public art and art-related
events along the St. Joseph River to serve as catalysts in
downtown revitalization efforts. Awareness and support
of public art in the community should be increased, and
support for arts and cultural initiatives fostered.
The City needs to create and support additional
opportunities for youth to participate in
artistic and cultural activities.
126 ARTS AND CULTURE
OBJECTIvES AND POLICIES
Objective AC 1: Increase opportunities for youth
to participate in artistic and cultural activities.
Policies
AC 1.1 Encourage community schools to increase
arts education for grades K-12.
AC 1.2 Support art scholarships for high school
graduates pursuing higher education.
AC 1.3 Support, promote, and create opportunities
and events that engage youth in arts and
cultural activities. (Art Activities, p. 151)
AC 1.4 Support creative arts initiatives for youth,
developed and implemented through
collaborative efforts of K-12 educators and
arts professionals. (Art Activities, p. 151)
AC 1.5 Collaborate with high school art programs
to encourage their involvement in
City-supported events.
Objective AC 2: Enhance the capacity of local
arts and cultural activities to act as
economic generators.
Policies
AC 2.1 Integrate artistic and cultural activities
and events into the City’s economic
development strategies.
(Arts-Related Economic Development, p. 145)
AC 2.2 Encourage arts-oriented neighborhood
revitalization efforts.
(Arts-Related Economic Development, p. 145)
AC 2.3 Provide business assistance to attract
arts- oriented businesses.
(Arts-Related Economic Development, p. 145)
Objective AC 3: Establish downtown South Bend
as a destination for arts and culture within a
multi-state region.
Policies
AC 3.1 Actively pursue downtown revitalization
strategies that incorporate arts and/or
cultural events, activities, or developments.
(Arts-Related Economic Development, p. 145)
AC 3.2 Encourage and support coordinated arts
and cultural events dealing with a single
topic at a variety of venues simultaneously.
(Arts-Related Economic Development, p. 145)
AC 3.3 Support and promote selected downtown
visual and performing arts events.
AC 3.4 Encourage connectivity between arts and
cultural venues in the downtown.
AC 3.5 Encourage street entertainment that
complements downtown urban character.
AC 3.6 Encourage increased advertising and cross-
promotion with other arts and cultural
facilities within St. Joseph County.
Objective AC 4: Enhance arts and culture
outreach to the entire community.
Policies
AC 4.1 Support grassroots collaboration among
artists of different races, genders, and
ethnicities in educational arts and
cultural activities.
AC 4.2 Actively recruit minority artists to
participate in local arts-oriented events.
AC 4.3 Support exhibits that travel to different
locations in the community.
AC 4.4 Encourage neighborhood-based arts,
cultural activities, and festivals.
F. GOAL
Establish a dynamic arts
and cultural environment
that is integrated into
the social and economic
fabric of the city,
promotes broad awareness,
and sustains the downtown
as a regional arts
destination.
126
ARTS AND CULTURE 127
AC 4.5 Encourage institutions of higher education
to promote campus arts and cultural events
to the broader community.
AC 4.6 Encourage collaboration between arts and
cultural organizations and area universities.
AC 4.7 Support initiatives that coordinate and
highlight local arts and cultural events.
AC 4.8 Encourage the City’s partners to promote
local arts and cultural events.
Objective AC 5: Increase support for arts and
cultural initiatives.
Policies
AC 5.1 Facilitate the development of affordable art
studios, lofts, and live/work spaces.
AC 5.2 Utilize national best practice models to
rehabilitate older and historic structures for
arts-related activities.
AC 5.3 Pursue private funding to facilitate the
development of arts and cultural initiatives.
AC 5.4 Require a percentage of local public
incentives provided to businesses be
spent on public art. (Incentives, p. 146)
Objective AC 6: Increase awareness and support
of public art in the community.
Policies
AC 6.1 Promote annual events that highlight
public art in the community. (Public Art, p. 155)
AC 6.2 Implement and maintain a plan for art in
public spaces, including along the
St. Joseph River. (Public Art, p. 155)
AC 6.3 Support a variety of artwork and arts activi-
ties in public places, especially
in the downtown.
AC 6.4 Encourage businesses, civic organizations,
and neighborhood associations to
participate in public art initiatives
in the community. (Public Art, p. 155)
The following excerpt from
the community’s vision for
2025 helped shape the Goal,
Objectives, and Policies
for Education:
Envision South Bend in 2025…
We are a center of learning.
Our excellent schools and
world-class institutions of
higher education, engaged
with the community, prepare
our youth to compete in the
21st century.EDUCATION
EDUCATION 129
Education encompasses teaching and learning
specific skills and the imparting of knowledge and
good judgment. Instruction can take place at home,
in daycare facilities, in public or private elementary
and secondary schools, and in colleges, universities,
and technical schools. There are educational
programs on radio and television, at libraries, and at
museums. The media and the Internet surround us
with opportunities to learn.
It is important that there are plentiful educational
opportunities for people of all ages and walks of
life to ensure that the workforce keeps pace with
change, to assist people as they change careers,
and to help people satisfy their curiosity about the
world. Technology has caused the economic and
cultural environment to change so rapidly that it has
become necessary to be a lifelong learner.
Most local governments have limited influence
over the school systems within their jurisdictions.
Typically, public school systems have their own
taxing authority and their own governing body,
sometimes elected and sometimes appointed.
In addition, some school systems operate under
federal consent decrees intended to create racial
balance within the system. The South Bend
Community School Corporation (SBCSC) entered
into a consent decree with the Department of
Justice in 1981. The SBCSC’s Board of Trustees has
been elected since the community supported a
referendum to change the board from appointed to
elected in November 1986. There are seven trustees:
two at-large and five by district.
Students graduating from a South Bend Community School Corporation high school. Photograph courtesy of the South Bend Tribune
Despite local government’s limited control over the
educational system, City government maintains a
strong interest in the educational system’s success.
A successful school system is vital to a community’s
economic development, business attraction and
retention, and a host of quality-of-life issues.
A. SCHOOLS
Public Schools
Schools significantly influence homebuyers’ choices,
particularly homebuyers with school-age children.
South Bend offers a selection of both public and
private schools. Public school district boundaries
do not match city boundaries and South Bend has
grown to where it now extends into two different
school districts. South Bend Community School
Corporation (SBCSC) extends over all of South Bend
except for a small portion of the city south of the St.
Joseph River, east of Ironwood Road, which is in the
Penn Harris Madison School Corporation (PHM). Any
future growth of the city to the north as far as the
Michigan state line will be within the SBCSC;
some growth to the south may continue into
PHM (see Map 12.1).
In 2006, approximately 22,000 students were
enrolled in the SBCSC and approximately 100 were
enrolled at PHM. As these enrollments indicate, the
SBCSC is the most influential public school district
for South Bend city residents.
130 EDUCATION
Top to bottom: Adam High School; Clay High School, Riley High School; Washington High School.
EDUCATION 131
TABLE 12.1: Achievement Gaps, State of IndianaBased on 2002-2003 ISTEP Data
All Subjects Passing Not Passing
All Students 69% 31%
White/Nonpoor/Nondisabled 83% 17%
Nonpoor, Nondisabled 80% 20%
Nonpoor 80% 20%
Nondisabled 74% 26%
White/Poor/Nondisabled 65% 35%
Poor/Nondisabled 58% 42%
Black/Nonpoor/Nondisabled 54% 46%
Poor 50% 50%
Black/Poor/Nondisabled 40% 60%
Disabled 28% 72%
White/Poor/Disabled 21% 79%
Poor/Disabled 18% 82%
Black/Poor/Disabled 9% 91%
The SBCSC is St. Joseph County’s oldest and largest
school corporation. It is the fourth-largest school
district in Indiana, and in 2006 had a total enrollment
of 22,100 students in grades kindergarten through 12.
The SBCSC serves traditional K-12 students,
special-needs students from preschool through
age 22, and a large number of adult students. The
corporation has 19 primary centers, 10 intermediate
centers, and 4 high schools that serve South Bend
and six surrounding townships.
As noted in the Housing chapter, the SBCSC has
made many positive improvements since the school
system reorganized in December 2001 under Plan Z:
the curriculum has been standardized, the state-of-
the-art classroom technology upgraded, K-8
magnet schools built, high school magnet programs
created, and tens of millions of dollars invested in
capital improvements in all school buildings. Some
of these improvements will take time to produce
measurable results.
Challenges remain for the SBCSC, such as the
effects of concentrated poverty and achievement
gaps. In the 2003–2004 school year, 55 percent of
the system’s 21,871 students were eligible for free
or reduced-price lunches, an indication of the lack
of student families’ financial resources within the
school district.
The SBCSC special education classes include
students who are visually or hearing impaired,
autistic, those with brain damage, and those
with emotional disorders or learning disabilities.
The average percentage of students with these
disabilities in Indiana’s school systems is 17 percent;
the percentage of special education students in the
SBCSC is 24 percent.
Achievement gaps, which exist nationally, are
differences in the levels of learning among different
demographic student subgroups. These gaps
result from complex interrelationships among
poverty, race, ethnicity, family, personal, and social
characteristics and are reflected in standardized test
scores. Listed in Table 12.1 are the 2002-2003 ISTEP
data aggregate passing rates (both language arts
and mathematics) for various student
socio-demographic subgroups in the state of
Indiana. These data suggest the challenges present
for school systems, like the SBCSC, that serve
significant numbers of students who are poor, from
a minority background, or who have disabilities.
Private Schools
There are several private and parochial schools
in the South Bend area. The attendance at these
schools, K–12, totaled approximately 6,200 in 2006.
These schools provide South Bend residents with
a variety of educational choices for their children,
from Montessori pre-schools to highly rated high
schools. While there are tuition charges at all these
private and parochial schools, most offer financial
assistance to cover some or all tuition costs based on
the family’s financial need.
B. HIGHER EDUCATION
As the skills required by the global, high-technology
economy continue to evolve and expand, more
and more young people will attend an institution
of higher education. The community is fortunate
to have a number of quality institutions of higher
education located in South Bend and the immediate
vicinity, including the University of Notre Dame;
Saint Mary’s College; Indiana University South Bend;
Ivy Tech Community College; Holy Cross College;
and Bethel College.
During the City Plan planning process, participants
expressed the need to strengthen relationships
with colleges and universities in the area. This
would create more economic opportunities for
graduates in the community as well as help enhance
revitalization efforts in the city’s neighborhoods.
Source: Indiana State Teachers Association, http://www.ista-in.org
132 EDUCATION
Top to bottom: DeBartolo Performing Arts Center at the University of Notre Dame; Ivy Tech Community College South Bend Campus; Dorothy & Darwin Wiekamp Hall at Indiana University South Bend.
C. EDUCATIONAL ATTAINMENT
As Table 12.2 shows, the educational attainment
of the people in South Bend aged 25 and older
improved over the 1990s. South Bend saw a
positive increase in the number and percentage
of people who have attended college and those
with advanced degrees. In addition, there was
a significant drop in the number of people with
less than a ninth-grade education. Despite this
significant advance in the community’s educational
attainment since 1990, continued progress is not
assured. Though the SBCSC has shown improvement
in standardized test scores since 1996, the scores
continue to lag behind the two largest neighboring
public school systems. This presents an
ongoing challenge.
These test scores have significance for all members
of the community, even those without children.
Schools significantly influence homebuyers’ choices,
particularly homebuyers with school-age children.
Standardized test scores are imperfect measures
for predicting the performance of any individual
student. However, fair or not, standardized test
scores are frequently used to compare schools,
and this has an indirect but important influence on
South Bend’s housing market. Local government is
concerned both for the future of these students and
for the indirect negative influence these test scores
have on perceptions of the City.
TABLE 12.2: Educational Attainment
for Persons 25 Years and Older
In South Bend, 1990 and 2000
1990 2000
Number % of
Total Number % of
Total
Total Population Age
25+67,916 100% 66,715 100%
Less than ninth grade 6,243 9.2% 4,326 6.5%
Some high school,
no diploma 12,786 18.8% 10,550 15.8%
High school graduate 21,301 31.4% 20,857 31.3%
Some college,
no degree 11,423 16.8% 13,816 20.7%
Associate degree 3,629 5.3% 3,618 5.4%
Bachelor’s degree 7,234 10.7% 7,932 11.9%
Graduate or
professional degree 5,300 7.8% 5,616 8.4%
ISTEP+
INDIANA STATEWIDE TESTING
FOR EDUCATIONAL PROGRESS-PLUS
ISTEP was created by the Indiana General Assembly in
1987 and was administered for the first time in 1988. In
its original form, ISTEP consisted of a multiple-choice
section administered in March and a writing section
administered in December.
ISTEP originally was given in grades 1, 2, 3, 6, 8, 9, and
11. The General Assembly subsequently eliminated the
writing portion of the test and testing in grades 1 and 11.
Minor changes were made in test forms between 1987
and 1995, but the general structure and content of ISTEP
did not change significantly prior to passage of new
legislation in 1995.
The 1995 law that changed ISTEP to ISTEP+ required
a norm-referenced test (NRT) to allow comparisons of
Indiana student achievement with national norms as well
as a criterion-referenced component. The criterion-
referenced component includes a basic skills assessment
with multiple-choice questions and an applied skills
assessment containing short-answer or essay questions
along with the solving of mathematical problems.
The law requires that ISTEP+ provide criterion-referenced
scores based on questions that measure student
achievement relative to the academic standards established
by the State Board of Education. The criterion-referenced
component has always been by far the most important
part of ISTEP+. Today, it is the only component.
Source: U.S. Census Bureau, 1990 and 2000
EDUCATION 133
D. ALTERNATIVE EDUCATION
Alternative education is intended to meet the needs
of at-risk students who are not succeeding in the
traditional setting. With the implementation of
Plan Z in 2001, the SBCSC has established a variety
of programs and schools to provide alternative
educational opportunities for these students
that will increase the likelihood of their success.
These programs address the needs of both adults
and school-age youth. Programs include Adult
Secondary Credit, designed for students who
have dropped out and want to return to school
to study for a General Education Development
certificate (GED). In 2006, there were approximately
80 students in this program. There are also Adult
Education Course Programs for both adults and
school-age youth that provide a variety of options
that can lead to receiving a GED. In addition, the
SBCSC offers traditional GED programs.
Much research has been conducted on why students
drop out of school. Students themselves have stated
they left school because they were unmotivated,
not challenged enough, or overwhelmed by
troubles unrelated to school, such as pregnancy,
a troubled home life, or the need to work. Some
experts believe that students lose interest in class
work due to other reasons, such as a lack of reading
comprehension. Despite the complexity of the issue
and the many direct and indirect causes for a high
dropout rate, it is in the entire community’s interest
to work together to address this issue.
During the planning process, participants
encouraged local government to partner with the
South Bend Community School Corporation to
develop more programs for alternative education.
The success of at-risk students is the
community’s concern.
E. SCHOOL PARTNERSHIPS
During the planning process, participants said
that the public schools needed a higher level
of cooperation and support from the broader
community to address the community’s educational
challenges successfully.
City of South Bend
The City of South Bend has an ongoing relationship
with the SBCSC, including partnering for facility
planning–such as school expansion and/or new
construction–to meet future needs based on
projected growth. Local government currently
(2006) works with the school system in a
variety of ways:
Physical Planning· Assists with land use issues related to
facility planning.· Coordinates improvements in rights-of-way
around new schools.· Shares information/analysis to assist in future
school locations.
Youth-Related Programming· Funds after-school programs in collaboration
with schools and faith-based groups.· Supports Safe Havens for youth as part of the
City-supported Weed & Seed Program.· Provides summer programming for
school-age youth.· Offers a City-supported program encouraging
students to read.· Funds youth agencies and initiatives.· Provides safe places and programming
for school-age youth in City-supported
Neighborhood Partnership Centers.
CORE 40
Core 40 began in 1994 as a recommendation for high
school curriculum throughout the state of Indiana, to
better prepare students for success in college and the
workplace. Starting in 2007, however, all high school
students will have to meet the requirements of the Core
40 curriculum to graduate. Students who do not want to
follow Core 40 requirements will have to receive parental
consent to opt out.
Aligned with Indiana’s Academic Standards, the Core 40
End-of-Course Assessments are final exams measuring
what students know and are able to do upon completion
of targeted Core 40 courses. As part of Indiana’s school
accountability system, the End-of-Course Assessments
are designed to ensure the quality, consistency, and rigor
of Core 40 courses across the state.
The Core 40 curriculum includes: English and Language
Arts, Mathematics, Science, Social Studies, Fine Arts,
Health and Wellness, Physical Education, and World
Languages.
Beginning in 2011, all of Indiana’s four-year public univer-
sities will require completion of the Core 40 curriculum as
a minimum requirement for admission.
134 EDUCATION
Phtograph courtesy of Ivy Tech Community College
Vocational education class at Ivy Tech Community College.
Public Safety· Assigns school resource officers to serve in
each of the schools.· Stations squad cars around elementary schools
during morning and afternoon to discourage
speeding.
Other Institutions
Several community organizations partner with
the SBCSC, as well. Some include the Chamber
of Commerce of St. Joseph County, area colleges,
universities, technical schools, organizations such as
the Parent Teacher Associations and Parent Teacher
Organizations, and many social service agencies and
neighborhood-based organizations.
The cooperation of these community partners
can assist the SBCSC to become more competitive
and help lay a stronger foundation for youth to
acquire higher paying jobs in the information
technology age. Despite the support provided by
local government and other institutions and social
services in the community, more collaboration will
be needed in the coming years to ensure that all
students succeed.
The family is a powerful support network and the
strongest element in shaping the lives of children.
The cycle of learning begins with the family: the
attitudes of parents toward learning help establish
the educational values of the children. Several
residents in the City Plan process identified the
reason for a high dropout rate and a low graduation
rate as the limited support many youth receive from
their families.
F. VOCATIONAL EDUCATION
Vocational education prepares individuals for
careers that are traditionally nonacademic and
directly related to a specific trade, occupation, or
vocation. Vocational education has both theoretical
and practical components but with a greater
influence of the latter compared to other types of
education. It is sometimes referred to as technical
education, as one may specialize in a particular
trade. The U.S. Bureau of Labor Statistics has
reported that demands for skilled workers will only
intensify: 42 percent of U.S. jobs in 2010 will require
technical (vocational) or academic degrees, up from
29 percent in 2000. As labor markets become more
specialized and the demand for skilled professionals
grows, vocational education becomes an
increasingly important form of alternate education
for many youth.
G. CONTINUING EDUCATION
There are numerous programs throughout the
community offering residents and visitors of all
ages opportunities to continue their education.
Community colleges, technical schools, colleges and
universities, neighborhood-based organizations,
and private associations of artists provide courses
for people with a personal interest in a subject–
painting, photography, calligraphy, etc.–as well as
to those changing careers. Continuing education
adds to the community’s quality of life. Continuing
education is central both to personal and economic
development. It is more and more common for
people to change careers two or three times during
their working life, and these transitions require
training and support.
To achieve the community’s Vision . . .
Youth education and achievement will need
to be high priorities. The City will need to
partner with the South Bend Community School
Corporation (SBCSC) to develop more programs
for alternative education.
The positive achievements of the SBCSC will
need to be promoted actively and widely and the
involvement of the broader community in the
education of pre-school through 12th grade youth
will be strongly encouraged.
The City should strengthen relationships with all
educational institutions in the area and work with
them to coordinate the planning and development
of educational facilities.
The City will need to support the expansion of
opportunities throughout the community for adult
learning that enhance life-long education and the
provision of alternative educational options.
EDUCATION 135
OBJECTIVES AND POLICIES
Objective E 1: Ensure that youth in the community
achieve the highest level of academic success.
Policies
E 1.1 Promote strong partnerships between area
businesses and the South Bend Community
School Corporation (SBCSC) to create jobs,
co-ops, and apprenticeships.
(Job Opportunities, p. 151)
E 1.2 Support after-school programs that provide
educational and recreational opportunities
for school-age youth.
E 1.3 Promote the importance of parental
involvement with children, the school
board, and the schools.
(Parental Involvement, p. 159)
E 1.4 Support programs that recognize and
award educators for their work with youth.
E 1.5 Support mentoring programs for the
benefit of K-12 students. (Education, p. 152)
Objective E 2: Promote the positive
achievements of the South Bend Community
School Corporation (SBCSC).
Policies
E 2.1 Support the celebration of successful
students, educators, and volunteers in the
SBCSC. (Student/Teacher Achievement, p. 148)
E 2.2 Partner with the SBCSC to market their
accomplishments to the community, and to
businesses and residents relocating into the
area. (Student/Teacher Achievement, p. 148)
Objective E 3: Provide alternative educational
options in the community.
Policies
E 3.1 Implement alternative educational models
that have been successful across the
country. (Education, p. 152)
E 3.2 Support more learning opportunities for
high school students such as internships
and union apprenticeships. (Education, p. 152)
E 3.3 Encourage the expansion of vocational and
trades training opportunities in the
community. (Job Opportunities, p. 151)
E 3.4 Encourage collaboration between all levels
of academia to continue to develop
alternative educational opportunities for
pre-school through 12th grade.
(Education, p. 152)
Objective E 4: Encourage the essential
involvement of the broader community in
the education of pre-school through 12th
grade youth.
Policies
E 4.1 Encourage collaborative efforts between
social service agencies and public/private
schools. (Education, p. 152)
E 4.2 Partner with area colleges and universities
to mentor SBCSC youth on the importance
of education and its benefits.
(Education, p. 152)
E 4.3 Encourage youth involvement in public
service. (Involvement in Local Government, p. 152)
E 4.4 Encourage partnerships between
institutions of higher education and the
SBCSC in developing community-based
learning opportunities.
H. GOAL
Enhance South Bend as a
center of life-long educational
opportunities that support
people of all ages to compete
successfully in a global economy.
136 EDUCATION
E 4.5 Encourage collaboration between the
faculties of higher education, public,
private, and vocational trade schools.
Objective E 5: Coordinate the planning and
development of educational facilities.
Policies
E 5.1 Establish and maintain a consistent
planning, review, and development
process with institutions of higher
education, private schools, and the
SBCSC to address existing and future
school facilities.
(Coordination with Educational Institutions, p. 156)
E 5.2 Coordinate the planning of future parks and
recreational facilities with the development
of new schools and facilities.
(Coordination with Educational Institutions, p. 156)
E 5.3 Partner with institutions of higher
education, private schools, and the SBCSC
to ensure wide public involvement in the
development and expansion of
educational facilities.
(Educational Facilities Planning, p. 153)
E 5.4 Encourage the preservation and
rehabilitation of older school structures
when considering future growth.
Objective E 6: Expand opportunities for adult
learning that enhances life-long education
in the community.
Policies
E 6.1 Encourage institutions of higher education
to offer and promote diverse courses on a
wide variety of subjects to area residents.
E 6.2 Support the teaching of English as a Second
Language (ESL) courses to adults at different
locations throughout the community.
E 6.3 Partner with the Chamber of Commerce,
and individual businesses, to develop
opportunities for on-the-job training as a
means for residents to acquire new
work-related skills. (Job Creation, p. 146)
E 6.4 Encourage nonprofit agencies and other
community organizations to develop, offer,
and promote continuing education
programs for adults and youth.
E 6.5 Encourage museums, and other cultural
institutions, to offer courses and/or
programs to area residents to encourage
appreciation and understanding of the
many traditions and forms of American art
and local and regional cultural history.
EDUCATION 137
IMPLEMENTATION
IMPLEMENTATION 139
City Plan represents the community’s long-term
vision for the future. Turning that vision into reality
involves a complex set of actions to be taken over the
course of the next 20 years by the City of South Bend
and its partners. Priorities are set so that resources
can be allocated in an incremental manner to achieve
the vision. The Goals, Objectives, and Policies in
City Plan are intended to provide general guidance
to implement the community’s vision, but more
specific action items will be needed to identify the
steps that the City and its partners will take in order
to pursue a particular policy. These specific steps are
outlined in the Implementation Action Plan.
The City currently utilizes some of the implementation
tools recommended in the specific action items
in this chapter. These may therefore require only
review and modification for consistency with the
Plan. Other recommendations may require the
creation of a new program or administrative process.
A. IMPLEMENTATION TEchNIquEs
Comprehensive plans are implemented using
several techniques. A number of these techniques
include regulatory tools while some are
administrative measures. Here are some techniques
that will assure the implementation of City Plan.
Ordinance review
City Plan contains objectives and policies that will
guide land use and development decisions in the
community. A regulatory tool for implementing
the comprehensive plan is the Zoning Ordinance.
A comprehensive rewrite of the South Bend
Zoning Ordinance was conducted in 2003 after the
completion and adoption of St. Joseph County’s
comprehensive plan. The revised ordinance was
adopted in May 2004. The new ordinance included
new zoning concepts and innovative techniques
that were absent from the previous ordinance.
These development regulations, although
more progressive, do not in themselves ensure
compatibility with City Plan.
The Zoning Map in the new ordinance was used
as a basis for developing the City Plan Future Land
Use Map. This Future Land Use Map was developed
by maintaining the zoning designations for a large
portion of the city as desired future land uses and
proposing changes in land use for only some parts
of the city. As rezoning requests are received by
the Area Plan Commission, the Future Land Use
Map will be used to guide whether to accept the
proposed future use for a property. However, the
City will need to review other aspects of the Zoning
Ordinance to ensure compatibility of development
regulations with the Goals, Objectives, and Policies
of City Plan.
Subdivision ordinances contain the standards and
procedures necessary for new subdivisions to be
developed and may also require change, like the
Zoning Ordinance, to be compatible with
City Plan recommendations.
Project Implementation: A mason laying bricks on a construction site.
140 IMPLEMENTATION
capital Improvement Plan
The City’s multi-year Capital Improvement Plan
(CIP) is another major implementation tool for City
Plan. It identifies projects to upgrade and expand
infrastructure and equipment needs, as well as
programs that address a variety of other community
needs. In addition, the CIP identifies funding and
maintenance needs of the City. The CIP is reviewed
annually to update the City’s capital priorities.
City Plan provides a long-range framework that
assists in the development of the CIP and creates a
rationale for prioritizing projects and programs. City
departments will utilize the Plan to make capital
requests during the CIP budgeting process.
Procedural changes
Many chapters in City Plan contain policies to assist
the City in improving efficiency, citizen participation,
intergovernmental cooperation, and more. These
policies can be implemented through administrative
actions such as formulating intergovernmental
agreements, developing new review procedures,
creating and maintaining new databases, utilizing
technology in disseminating and receiving
information, and improving methods of gathering
public comments. These key procedural changes
can help improve the provision of services, as well as
government efficiency.
New Programs, studies, and Plans
Various City departments are responsible for
administering programs that help enhance the
quality of life in the community. Some current
programs are already helping implement the
policies in City Plan. Some of these programs will
Blueprints guide construction.
need to be modified to implement new policies, or
new programs will need to be created to implement
City Plan. The objectives and policies in City Plan
also recommend new ideas that may require further
study and analysis. Some recommendations in the
Plan may require the creation of new area-specific
plans while some may need to be updated to be
compatible with City Plan.
B. FuNDING
Limited financial resources and growing fiscal
constraints imposed by declining state and federal
budgets will make sources of funding an important
consideration when implementing City Plan. The
City must, where possible, become more efficient,
be creative in seeking alternative funding sources,
and partner with private sector agencies and
organizations whenever appropriate.
c. shORT-TERM sTRATEGIEs
The five-year Implementation Action Plan (IAP)
identifies short-term strategies. Each short-term
strategy is further organized by a series of selected
priority policies. Since all City Plan policies can not
be included as priorities, a series of questions were
generally applied to assist in making the selection.
The questions were:• Does the policy address one of the Top Ten Issues
identified at the June 2005 public meetings?
(See sidebar on “Priority Issues.”)• Is it critical that this policy be implemented in the
first five years?
IMPLEMENTATION 141
• Does this policy require a study be conducted,
a process established, or existing procedures
reviewed before other elements of City Plan can
be implemented?• Would implementing this policy establish a new
direction in the area to which it applies?
The objectives and policies not included in the IAP
remain important and generally can be divided into
two types:
1. Policies as guides to decision making: These
policies will assist in decision making as situations
occur throughout the planning period.
Examples include:• In the Land Use and Growth chapter, one policy
calls for coordination of land uses among
adjacent area specific plane.• In the Housing chapter, one policy calls for the
City to encourage rental housing for all income
levels throughout the city.
ThE cOMMuNITY’s PRIORITY IssuEs
The City conducted community meetings in June 2005 to develop solutions to issues that could prevent the City Plan vision
from being realized. At each meeting, City staff divided meeting participants into groups. Each group worked on two
different City Plan topic areas. Participants first selected three key issues on their assigned topic areas from a list of all the
issues identified in the Current Conditions Report, 2004–2005 and, after further discussion, recorded possible solutions to
those key issues. At the end of each meeting, all groups displayed their proposed solutions around the room. Each participant
was given four blue dots and asked to select their top four priorities across all topic areas. The number of “votes” received
by each of these solutions to key issues was tallied. The table below ranks the key issues by the sum of votes their possible
solutions received. These key issues are those the community believes to be the most important for City Plan to address.
Key Issues Total Votes
The City of South Bend has not developed a comprehensive strategy to draw more market-rate housing and broad commercial development to strengthen its downtown.62
Most of South Bend’s urban form does not encourage walking or biking as a transportation alternative for fulfilling the needs of daily life.59
The crime rate in South Bend, though declining, is significantly higher than comparable cities in Indiana.54
Property tax reassessment has placed disproportionate financial burden on South Bend’s property owners, especially in the older and historic neighborhoods.52
Vacant parcels, surface parking lots, underutilized and poorly maintained structures in the downtown have a negative aesthetic and economic effect on the downtown.41
Substandard housing and properties adversely affect the marketability of our older and historic neighborhoods. 41
South Bend’s park acreage for community, neighborhood, and block parks is below national standards as set by the National Recreation and Park Association.38
South Bend has not fully seized its economic and demographic opportunities to compete successfully in a global economy.38
There is not a fully shared commitment throughout the community to support the efforts of the South Bend Community School Corporation to achieve a higher level of academic excellence.36
The job skills of the current and emerging workforce do not match what will be necessary for the future workforce of South Bend.33
Many in the community have a negative perception of the South Bend Community School Corporation.33
The South Bend community’s capability to address the needs of its children and youth is inadequate.33
There is a high level of distrust between the South Bend Police Department and segments of the local population.28
The performance (graduation rates and ISTEP test scores) of grades K-12 public schools in South Bend dissuades many people from locating in the school district.26
Auto-oriented development over the last 30 years has caused downtown to lose its traditional urban characteristics.26
Neighborhood plans which are used to protect, preserve, and revitalize neighborhoods are not coordinated through a citywide comprehensive plan.26
E. coli, polychlorinated biphenyls (PCBs), and mercury impair the use of the St. Joseph River.26
142 IMPLEMENTATION
representatives of all City departments (currently
referred to as the Neighborhood Strategic Planning
Team–NSPT), will oversee and coordinate citywide
planning efforts.
The role of this interdepartmental committee will be to:• Monitor City Plan progress through benchmarks
and indicators.• Ensure effective implementation of the current
Implementation Action Plan.• Ensure cooperation on citywide
planning initiatives.• Oversee the update of City Plan every five years.
D. MONITORING AND REVIEw
During the 20-year planning period, the Plan
must be flexible enough to adapt to changing
economic, technological, and social changes while
still providing a clear sense of direction toward the
future envisioned by the community.
Measuring and Reporting Progress
Benchmarks and indicators will be established once
implementation of City Plan begins. This will help
monitor the progress being made in implementing
the recommendations in the Plan. City Plan
accomplishments will also be reported annually to
monitor the progress made by every City department.
Key indicators measure the City’s progress in moving
toward City Plan goals. Ongoing monitoring helps
to prioritize public resources and, if the desired
outcome is not achieved, can signal the need to
modify objectives and/or policies. Using indicators,
Role of the city
City government has many roles to play in the
implementation of City Plan. The City will act as a:• Catalyst–Providing the necessary leadership to
make change happen.• Partner–Combining government resources
with others to implement policies and achieve
objectives.• Facilitator–Helping groups resolve conflicts and
achieve consensus to reinforce local cooperation
and collaboration.• Convener–Bringing together the appropriate
groups to address significant issues important to
the entire community.
One, and perhaps several, of these roles will
be necessary for different aspects of policy
implementation.
Internal Implementation strategy
The Department of Community and Economic
Development will be responsible for monitoring
and administering the daily functions of the
implementation process. To implement the
community’s priorities in the short term, some
internal processes will need to be established to
monitor effectively the progress being made. An
internal implementation strategy is therefore
essential to the success of City Plan in the long term.
An interdepartmental committee, composed of
2. Policies currently being implemented: There are
many policies included in City Plan that are currently
being implemented to some degree. These policies
serve as a reminder to continue and build upon
successful current practices. Examples include:• In the Environmental Management chapter, a
policy calls for the maintenance of an updated
database of the City’s brownfields. The City has
maintained such a database since 2000.• In the Housing chapter, a policy calls for the
City to encourage local media to highlight the
positive aspects of South Bend’s neighborhoods.
The South Bend Tribune has been publishing an
excellent series on each neighborhood since
2004 titled Our Neighborhoods: Stories About
Michiana Neighborhoods.• In the Economic Development chapter, a policy
calls for creating opportunities for manufacturing
companies to locate in the community. The City
has pursued this practice for quite some time.
The Implementation Action Plan in City Plan has a
five-year duration for three specific reasons:
1. To demonstrate the City’s commitment to the Plan.
2. To ensure that short-term priorities are established.
3. To ensure implementation in a strategic manner.
IMPLEMENTATION 143
residents and decision makers can objectively
review the effectiveness of City policies to suggest
and implement adaptations that will more
effectively address changing realities.
The City of South Bend has an established and
well-respected commitment to performance-
based budgeting. Performance-based budgeting
attempts to hold departments and staff accountable
for achieving citywide goals and objectives by
benchmarking their actual performance and by
budgeting accordingly. This approach to budgeting
has helped both management and employees
become familiar with using benchmarks for
establishing starting points and goals, and indicators
for measuring progress toward those goals. City Plan’s
benchmarks and indicators will be integrated into
this budget process.
Plan update
City Plan will be reviewed every five years to
determine changes needed based on the changing
social and economic environment. Updates could
take approximately 8-12 months. The process will
include community involvement through public
meetings and focus group sessions with
community stakeholders.
A structured process will need to be outlined and
utilized to update City Plan. Some steps may include:
1. Appointing a committee of stakeholders and
leaders to oversee the update process.
2. Recruiting community members to form topic
area committees to help in researching
changes required.
3. Conducting public meetings and focus group
sessions with community stakeholders to get
feedback on current City Plan objectives and
policies.
4. Preparing a list of suggested changes to City Plan
based on committee recommendations.
5. Reporting suggested changes to the Mayor, Area
Plan Commission, and Common Council for
review.
6. Formally approving the updated City Plan.
E. hOw ThE IMPLEMENTATION AcTION
PLAN Is ORGANIZED
The Implementation Action Plan contains eight
strategies which define the broad scope of City Plan
over the next five years. These strategies resulted
by grouping the entire list of short term priorities
selected from the Plan. The eight key strategies are:
Expand Economic Opportunities
Promote City Assets
Enhance City Services
Support Youth Development
Increase Public Participation
Ensure Quality Design and Physical Development
Raise Public Awareness
Conduct Planning and Analysis
IAP Matrix
Each strategy is organized into a matrix with five
columns. The columns, from left to right, are:
Policies: Policies within each strategy that address
similar topics are further grouped under a heading
that captures the key idea of those policies.
Action Steps: Action steps provide guidance on how
to achieve the policies to which they relate. The
action steps in the IAP provide the most specific
guidance contained in City Plan.
Lead Role: The lead role identifies the responsible
body (usually a City department) which will take
the lead on implementing the action steps. It is
important to note that, although not listed, the
Office of the Mayor and the South Bend Common
Council are assumed to be involved in the
implementation of all the priority policies.
Potential Partners: The potential partners are
others in the community possessing skills, resources,
authority, etc., with whom the leading City
department may partner to carry out the action
steps and achieve the intent of the priority policies.
Timeline: The timeline indicates a year by which
significant progress will be achieved on an action
step. The timeline implies relative priority among
action steps.
144 IMPLEMENTATION IMPLEMENTATION AcTION PLANABBREVIATIONsThe following abbreviations are used in the Implementation Action Plan:
A&F: Department of Administration and Finance*
APA: American Planning Association
APc: Area Plan Commission
AsLA: American Society of Landscape Architects
cBD: Central Business District
cED: Department of Community & Economic
Development*
csO: Combined Sewer Overflow
csP: Communications and Special Projects*
DNR: Indiana Department of Natural Resources
DPw: Department of Public Works*
DTsB: Downtown South Bend, Inc.
EITc: Earned Income Tax Credit
EMA: St. Joseph County Emergency
Management Agency
EMs: Emergency Medical Services
EPA: U.S. Environmental Protection Agency
FEMA: Federal Emergency Management Agency
GIs: Geographical Information Systems
hcI: Healthy Communities Initiative
hhw: Household Hazardous Waste
hLFI: Historic Landmarks Foundation of Indiana
hPc: Historic Preservation Commission
IDEM: Indiana Department of
Environmental Management
INDOT: Indiana Department of Transportation
IT: Information Technology
IusB: Indiana University South Bend
LEED: Leadership in Energy and Environmental Design
MAcOG:Michiana Area Council of Governments
NAAcP: National Association for the Advancement
of Colored People
NNN: Near Northwest Neighborhood, Inc.
NPc: Neighborhood Partnership Center
NRc: Neighborhood Resources Corporation
NsPT: Neighborhood Strategic Planning Team
PsA: Public Service Announcement
sBcsc: South Bend Community School Corporation
sBFD: South Bend Fire Department*
sBPD: South Bend Police Department*
sEMA: State Emergency Management Agency
uEA: Urban Enterprise Association
uRc: United Religious Community
uw: United Way of St. Joseph County
wIB: Workforce Investment Board
* A department of the City of South Bend
IMPLEMENTATION 145Significant Progress Made on Action Step Continuing Action Step
STRATEGY 1: EXPAND ECONOMIC OPPORTUNITIES
Policies Action steps Lead Role Potential Partners Timeline
1-2
Yrs
3-4
Yrs
5
Yrs
DOWNTOWN HOUSING
H 6.1 (p. 72) • Inventory available sites/buildings for housing development. Incorporate
into downtown master planning process.• Continue to acquire, hold, or clear sites, and market them for housing
potential.• Develop a plan for housing in the CBD and market to local and regional
developers.
ο Promote downtown housing to downtown employers and employees.• Develop a list of incentives to increase residential density in the CBD.
CED Developers
DTSB
Entrepreneurs
Realtors
Redevelopment Commission
TRANSPO
ARTS-RELATED ECONOMIC DEVELOPMENTAC 2.1 (p. 126) AC 2.2 (p. 126) AC 2.3 (p. 126) AC 3.1 (p. 126) AC 3.2 (p. 126)
• Pursue the creation of an arts district in the downtown.• Create new models of arts-related neighborhood revitalization and encourage city neighborhoods to utilize those models. Utilize media to promote successes of arts-related revitalization efforts.• Modify the focus of the City’s existing business assistance program to include arts-related businesses.
CED Art galleriesChamber of Commerce Community FoundationDTSB Institutions of higher education MediaNeighborhood organizationsProgress ClubSouth Bend Civic TheaterSouth Bend Regional Museum of Art South Bend Symphony
• Promote arts and cultural activities/events to increase tourism.
ο Support the development of themed arts and cultural events
coordinated at several venues.• Integrate arts activities/events into plans for the future of an area.• Continue to support events such as the Arts Café at NNN, River Park Day,
and the Miami Village Fall Festival.
HIGH TECHNOLOGYPF 4.1.1 (p. 59) PF 4.1.4 (p.59) ED 2.2 (p. 83) ED 2.5 (p. 83) ED 2.6 (p. 83) ED 5.1 (p. 84) ED 5.2 (p. 84)
• Promote the availability of high technology infrastructure (such as St. Joseph Valley Metronet, wireless access).• Pursue expansion of wi-fi access throughout the downtown area.
CED Chamber of CommerceDPWInstitutions of higher educationMedical facilitiesProject FutureSt. Joseph Valley Metronet, Inc.State of Indiana Telecommunications providers
• Upgrade infrastructure (roads, public transportation, airport connections,
high technology, public utilities, etc.) to attract businesses.• Encourage public/private partnerships to provide high technology
telecommunications infrastructure.• Establish a research park and promote nationally.
146 IMPLEMENTATION Significant Progress Made on Action Step Continuing Action Step
Policies Action steps Lead Role Potential Partners Timeline
1-2
Yrs
3-4
Yrs
5
Yrs
JOB CREATIONED 3.2 (p. 83)ED 4.3 (p. 83) EM 1.3 (p. 95) E 6.3 (p. 136)
• Encourage the business community to develop a speakers bureau for youth and highlight job opportunities and internship programs.• Work with economic development organizations to pursue State funds to help underwrite costs of employee training.
CED All City departments Chamber of CommerceEducational institutionsProject FutureState of IndianaTrade unionsUEAWIB
• Support the expansion of skilled-trades apprenticeship programs.• Develop vocational education classes to ensure that immediate and future needs of the local economy are addressed.• Utilize the CSO Long Term Plan implementation as a mechanism for creating local jobs.
INCENTIVES
AC 5.4 (p. 127)
LU 6.2 (p. 32)
H 2.1 (p. 71)
H 3.2 (p. 71)
H 6.3 (p. 72)
ED 2.1 (p. 83)
• Provide development incentives at target locations in the city.
ο Target locations based on development potential.
ο Research various incentive methods.• Make benefits to the community a requirement for receiving development
incentives by creating a public/private Community Investment Fund.
ο Research successful examples of communities with similar policies.
ο Develop a management mechanism for the fund.
ο Require businesses receiving local public incentives to contribute a
percentage of the incentive to the Community Investment Fund.
ο Determine appropriate percentages for different uses of the fund such
as housing, arts, parks, etc. • Work with the HPC to determine appropriate incentives/programs for the
repair of historic homes and structures.
CED Architects
Chamber of Commerce
Developers
DTSB
HPC
Legal Department
Neighborhood organizations
Redevelopment Commission
TAX BASEH 7.2 (p. 72) ED 8.1 (p. 84) ED 8.2 (p. 84) ED 8.3 (p. 84)
• Continue efforts to develop light industrial parks and research/technology parks.ο Acquire property, conduct brownfield remediation when necessary, and clear obsolete structures (without historical value).• Create a task force to explore opportunities to combat the problem of undervalued property in the inner city.ο Conduct public forums to brainstorm alternatives.• Research user fees, voluntary payments, or other alternate fees that could be applied as payments in-lieu-of-taxes for nontax paying organizations in the city.• Research methods of revenue sharing used by other jurisdictions.
A&FCED CED Chamber of Commerce County AssessorCounty Auditor Legal DepartmentState of Indiana
IMPLEMENTATION 147Significant Progress Made on Action Step Continuing Action Step
STRATEGY 2: PROMOTE CITY ASSETS
Policies Action steps Lead Role Potential Partners Timeline
1-2
Yrs
3-4
Yrs
5
Yrs
COMMUNITY ASSETS
PF 4.1.3 (p. 59)
H 5.2 (p. 72)
ED 9.1 (p. 84)
ED 9.2 (p. 84)
ED 9.3 (p. 84)
ED 9.4 (p. 84)
CB 7.1 (p. 117)
CB 7.2 (p. 117)
CB 7.3 (p. 117)
• Develop a formal marketing strategy to highlight community assets and
create marketing materials.
ο Include success stories of businesses in South Bend and promote
South Bend as a business-friendly community.
ο Include SBCSC accomplishments and distribute to the media, potential
businesses, and the Board of Realtors.
ο Promote arts-related community assets such as the ArtsEverywhere
initiative.
ο Promote South Bend as a site for local, regional, and national events.
ο Promote cultural and recreational opportunities along the St. Joseph
River.
ο Promote lifelong learning opportunities in the community.• Encourage the Convention and Visitors Bureau to work with the Chamber of
Commerce to distribute existing information on area assets.• Encourage the South Bend Tribune to include city parks as part of their Our
Neighborhoods: Stories About Michiana Neighborhoods series.• Update marketing material at toll road stops highlighting city assets. • Work with colleges and university student associations to highlight
community assets.• Encourage the SBCSC to highlight South Bend assets on their website.
ο Encourage area schools to conduct open houses for the public to
market schools.• Encourage the Historic Preservation Commission to create and market a
publication highlighting local historic landmarks.
CSP Board of Realtors
CED
Chamber of Commerce
HPC
Institutions of higher education
Media
SBCSC
South Bend/Mishawaka
Convention and Visitors Bureau
148 IMPLEMENTATION Significant Progress Made on Action Step Continuing Action Step
Policies Action steps Lead Role Potential Partners Timeline
1-2
Yrs
3-4
Yrs
5
Yrs
NEIGHBORHOOD STRENGTHSH 2.2 (p. 71) H 5.1 (p. 72) H 5.3 (p. 72) H 8.1 (p. 72)
• Assess and publicize neighborhoods strengths.ο Utilize the City’s Web site and other publications to highlight style and variety of housing stock.ο Continue working with local media to highlight strengths of the city’s neighborhoods.ο Develop a virtual tour of neighborhoods on the city’s Web site. Include video testimonials from neighborhood residents.• Encourage neighborhood organizations in the city to promote events occurring in other neighborhoods, including on their Web site.• Design programs that offer youth the opportunity to be engaged in learning and promoting neighborhood assets. • Conduct discussions with the Greater South Bend–Mishawaka Board of Realtors and encourage them to fairly promote the strengths of South Bend neighborhoods.• Encourage Common Council members to use a variety of methods to promote their respective districts.• Distribute Historic Preservation Commission marketing material on historic properties and neighborhoods using established City communication methods.• Encourage the Northern Indiana Center for History to expand their promotion of the history of the city’s historic neighborhoods.• Encourage the Chamber of Commerce of St. Joseph County to promote South Bend’s historic neighborhoods on their Web site and through their publications.• Provide the Greater South Bend–Mishawaka Board of Realtors with information packets on the strengths of city neighborhoods, the school system’s accomplishments, and other community assets for distribution to their members.• Encourage large employers to offer employee assistance programs for purchasing/living in housing located in the city.ο Conduct citywide workshops for large employers on the variety of neighborhoods in the city.
A&F (IT)CED Area employersBoard of RealtorsBuilding DepartmentChamber of CommerceCSPHistoric Landmarks FoundationHPCMass MediaNeighborhood organizationsNorthern Indiana Center For HistoryConvention and Visitors Bureau.
STUDENT/TEACHER ACHIEVEMENT
E 2.1 (p. 135)
E 2.2 (p. 135)
• Include stories of successful teachers, students, educators, and school
system volunteers in City publications and Web site.
ο Encourage local schools to look at various techniques, including virtual
tours, to highlight school assets.• Encourage the local media to highlight the achievements of local schools.
ο Highlight the alumni of the SBCSC and their achievements.• Promote current awards programs that highlight successful students in local
schools.• Promote programs of the SBCSC that are dependent on local partnerships
such as “Partner Up.”
A&F (IT)
CSP
CED
Media
Public and private schools
IMPLEMENTATION 149Significant Progress Made on Action Step Continuing Action Step
STRATEGY 3: ENHANCE CITY SERVICES
Policies Action steps Lead Role Potential Partners Timeline
1-2
Yrs
3-4
Yrs
5
Yrs
EMERGENCY PREPARDENESSPF 6.2.2 (p. 60) PF 6.3.2 (p. 60)
• Assess inter-operability of existing communication equipment between county, municipal, and township police departments, fire departments, emergency medical services providers, Public Works, Building Department, and Code Enforcement.ο Convene forum of area representatives to assess inter-operability gaps.ο Determine specifics needed by jurisdiction and generate report.ο Determine funding options to ensure seamless inter-operability in the event of future emergencies.• Develop a strategy to address emergency preparedness and to educate the public on the proper response to emergencies.ο Develop an informational brochure or booklet and distribute to the public.ο Continue partnerships with the media to facilitate reaching residents during emergencies. Use PSA’s to educate the public.ο Conduct emergency preparedness exercises with law enforcement, Fire, and EMS.ο Utilize NPC’s and neighborhood groups in public education process.
St. Joseph County Emergency Management Agency (EMA)
Code EnforcementDPW FEMAHomeland Security Medical servicesNeighborhood organizationsParks and Recreation Public and private schoolsSBCSC SBFDSBPDSEMASheriff’s DepartmentSocial service agencies Township fire departments
RECRUITING A DIVERSE WORKFORCECB 2.5 (p. 116) CB 3.1 (p. 116)
• Promote and highlight the City’s Equal Opportunity policy. • Conduct minority recruitment campaigns.ο Advertise nationally for available positions in the City.ο Utilize electronic job-posting services targeting minorities.ο Print job advertisements in publications that market to minority populations.• Promote and highlight positive aspects of City law enforcement and fire.• Ensure that a public safety representative is present at neighborhood meetings, whenever possible, to pursue recruitment of local talent.• Promote partnerships with higher education criminal justice programs to facilitate search for potential candidates for law enforcement.• Continue programs that help develop positive relationships between area law enforcement and youth.
A&F City departmentsInstitutions of higher educationNeighborhood and community organizations Public and private schoolsSBCSC
150 IMPLEMENTATION Significant Progress Made on Action Step Continuing Action Step
Policies Action steps Lead Role Potential Partners Timeline
1-2
Yrs
3-4
Yrs
5
Yrs
WATER & SEWERPF 3.2.2 (p. 59) PF 3.2.3 (p. 59)
• Obtain EPA approval of the City’s CSO Long Term Control Plan (LTCP).• Implement existing long term sewer overflow plan.ο Conduct public forums with neighborhood residents during CSO implementation to address street improvements and redesign.• Continue informing the public about CSO issues.• Research and pursue alternative technologies such as the embedded sensor network to address CSOs.
DPW CSP
PARKS
PF 5.1.2 (p. 59)
PF 5.1.3 (p. 59)
PF 5.2.2 (p. 59)
• Determine location(s) for new active recreation opportunities, such as
soccer fields and basketball courts.
ο Prioritize needs and begin development.• Strengthen security at city parks.
ο Install more effective lighting and emergency phones. • Encourage cooperative community use of school facilities.• Determine a site to create a dog park in the city and engage the public in its
planning. • Add a map of all city parks with hotlinks to detailed information on the
Parks Department Web site.• Support efforts of neighborhood groups to create and maintain
neighborhood parks and community gardens.• Encourage TRANSPO to expand routes to include all city parks.
Parks and
Recreation
A&F (IT)
CED
DPW
Neighborhood organizations
SBPD
TRANSPO
Youth groups
• Pursue green space connectivity along the St. Joseph River.
IMPLEMENTATION 151Significant Progress Made on Action Step Continuing Action Step
sTRATEGY 4: suPPORT YOuTh DEVELOPMENT
Policies Action steps Lead Role Potential Partners Timeline
1-2
Yrs
3-4
Yrs
5
Yrs
JOB OPPORTUNITIES
ED 3.3 (p. 83)
E 1.1 (p. 135)
E 3.3 (p. 135)
• Work with economic development organizations to develop vocational
education classes to ensure that immediate and future needs of the local
economy are addressed.• Encourage SBCSC to expand vocational training within high schools.
ο Encourage trades unions to develop housing rehabilitation programs.• Formulate a City internship program for high school youth.
ο Offer job shadowing days for youth.• Encourage the branches of local government to mentor youth and offer job
shadowing.
CED Area employers
Chamber of Commerce
Indiana Plan
Institutions of higher education
Project Future
SBCSC
St. Joseph Valley building trades
ART ACTIVITIESAC 1.3 (p. 126)AC 1.4 (p. 126)
• Partner with schools to promote existing community art activities and events to youth.ο Seek donations of musical instruments and distribute to youth in need.ο Encourage the SBCSC to offer greater art display opportunities in schools.• Provide public venues (such as Century Center, County-City Building lobby, etc.) and encourage local businesses (such as restaurants, coffee shops, etc.), churches, and youth agencies to allow rotating displays of youth art.ο Utilize NPCs and neighborhood and community centers as locations for arts-related classes and events.ο Encourage youth art performances and displays at local festivals.• Partner with arts organizations and create a mentoring program between local artists and youth.ο Encourage students in higher education to be mentors for youth.ο Encourage scholarship opportunities for youth art programs in the community.
CSP Art and History museumsArt Beat CED Community FoundationDTSBFaith-based organizationsInstitutions of higher education Juvenile Justice CenterLocal businesses MediaNPCsNeighborhood centersParks and RecreationPerforming art entitiesPublic and private schools South Bend SymphonyYouth agencies
• Include art activities in summer Parks and Recreation youth programs.• Encourage the juvenile corrections system to utilize the arts in their curriculum.
152 IMPLEMENTATION Significant Progress Made on Action Step Continuing Action Step
Policies Action steps Lead Role Potential Partners Timeline
1-2
Yrs
3-4
Yrs
5
Yrs
EDUCATION
E 1.5 (p. 135)
E 3.1 (p.135)
E 3.2 (p. 135)
E 3.4 (p. 135)
E 4.1 (p. 135)
E 4.2 (p. 135)
• Encourage the SBCSC to strengthen its partnerships with pre-schools and
higher education.
ο Encourage educational opportunities at area colleges and universities
for students still in high school.• Encourage major employers in the area to develop formal partnerships with
schools.• Promote the availability of senior citizens as mentors for youth.• Lobby the State to address the issue of drop-out age.• Consider the development of a higher education fund using the Kalamazoo
Promise as a model.
CED
CSP
Chamber of Commerce
Head Start
Institutions of higher education
Legislators
Public and private schools
INVOLVEMENT IN LOCAL GOVERNMENT CB 1.7 (p. 116) E 4.3 (p. 135)
• Educate youth about local government and civic processes.ο Encourage Common Council to reinstate the “Youth Council.”ο Organize a youth Local Government Academy.ο Offer job shadowing days in different City departments and Common Council.• Create a City Speakers Bureau, including elected officials, to give regular talks at local schools.• Encourage civic education as part of the regular curriculum in local schools.• Work with Public Access media to seek ways to improve methods of public broadcast and participation.
CSP Legal Department
City departmentsCommon CouncilIndiana Youth InstitutePublic and private schoolsPublic sector boards and commissions Youth agencies
IMPLEMENTATION 153Significant Progress Made on Action Step Continuing Action Step
STRATEGY 5: INCREASE PUBLIC PARTICIPATION
Policies Action steps Lead Role Potential Partners Timeline
1-2
Yrs
3-4
Yrs
5
Yrs
PUBLIC OUTREACHT 7.1 (p. 44) CB 1.1 (p. 116) CB 1.4 (p. 116) CB 1.5 (p. 116) CB 1.8 (p. 116)
• Assess current City policies, procedures, and requirements for gathering and utilizing public input.ο Expand links to other community Web sites on the City’s Web site.• Develop a comprehensive Public Involvement Plan with standardized procedures for gathering, utilizing, and disseminating public input in the development of plans and major City initiatives. Present the plan to Common Council for approval as a resolution.ο On a regular basis, present relevant information on ongoing major initiatives and their results to community, civic, faith-based, and business groups.• Offer available resources such as neighborhood organization representative contacts, mailing lists, etc., to other institutions to assist them with their solicitation of public involvement.
CED Business groupsCity departments and related boards and commissions Commercial Corridor groups Faith-based organizationsMediaNeighborhood organizations
TRANSPORTATION PLANNINGT 7.2 (p. 44) • Encourage transportation planning agencies to expand public involvement with, and access to, development and expansion plans prior to finalizing the plans.• Partner with TRANSPO to include local farmer’s market as part of downtown trolley route to support downtown housing.
DPW CED Commercial Corridor groups MACOG Neighborhood organizations State of IndianaTRANSPO
VOLUNTEERING
CB 1.3 (p. 116)
CB 1.9 (p. 116)
CB 2.4 (p. 116)
• Use City Web site to promote volunteer opportunities, with links to
organizations that use volunteers.
ο Emphasize volunteering opportunities in local schools.• Develop a youth volunteer base for community activities such as local park
maintenance, assisting the elderly, etc. • Encourage public recognition of volunteering.
CSP City departments
Chamber of Commerce
Civic organizations
Commercial Corridor groups
Faith-based organizations
Neighborhood organizations
United Way of St. Joseph County
YOUTH INVOLVEMENTPF 5.1.4 (p. 59)
• Conduct special outreach meetings for youth when planning for future parks and recreational facilities or improving existing parks.• Work with institutions of higher education and the SBCSC to develop creative opportunities to engage students in public service.
Parks and Recreation CEDInstitutions of higher educationPublic and private schools
EDUCATIONAL FACILITIES PLANNING
E 5.3 (p. 136) • Discuss with educational institutions the benefits of using the City’s Public
Involvement Plan in developing the format of public meetings.• Encourage institutions to share development and expansion plans with the
public prior to finalizing the plans.• Offer available resources such as neighborhood organization
representative contacts, mailing lists, etc., to assist institutions with public
involvement.
CED
DPW
Institutions of higher education
Private schools
SBCSC
154 IMPLEMENTATION Significant Progress Made on Action Step Continuing Action Step
STRATEGY 6: ENSURE QUALITY DESIGN AND PHYSICAL DEVELOPMENT
Policies Action steps Lead Role Potential Partners Timeline
1-2
Yrs
3-4
Yrs
5
Yrs
DEVELOPMENT PROCESSLU 6.3 (p. 32) ED 6.1 (p. 84) ED 6.2 (p. 84) UD 2.4 (p. 105)
• Identify strengths and weaknesses of the existing administrative process for reviewing development proposals.ο Research successful examples of nationally recognized development processes.ο Analyze past and current practice regarding incentive packages and evaluate and integrate improvements into the development process.• Standardize practice into a formal development process.ο Develop printed material that helps the public understand the steps in development, from obtaining building permits to the types of funds available.• Establish process and criteria for evaluating whether to preserve or demolish structures, including a feasibility study.
Building DepartmentCED
APCChamber of CommerceCSPEnvironmental organizationsLegal DepartmentParks and RecreationProject Future Realtors Redevelopment CommissionState of Indiana
MUNICIPAL CODELU 4.1 (p. 31)LU 8.3 (p. 32)PF 4.1.2 (p. 59)H 1.1 (p. 71)H 4.3 (p. 72)EM 4.1 (p. 95)UD 3.2 (p. 106)UD 3.3 (p. 106)
• Analyze and update City ordinances, such as zoning and subdivision ordinances, to ensure compatibility with City Plan policies.ο Determine appropriate percentage of open space to include in various types of new development.ο Research communities with effective ordinances or plans that encourage a mix of housing types, densities, etc. ο Encourage the installation of high technology infrastructure in new developments.ο Require the preservation of existing vistas and visual connections in new developments. Require the creation of new ones wherever possible.ο Review the Zoning Ordinance for disincentives to building on parking lots and modify the ordinance to remove barriers.ο Research case studies for recommended standards for bicycle and pedestrian safety along roadways and at intersections. Modify the Municipal Code to include safety considerations.ο Require sidewalks on both sides of the street everywhere in the city.ο Define household hazardous waste in the Municipal Code and add appropriate language in the code to address its proper disposal. ο Research other communities to determine alternative storm water drainage techniques and incorporate into development requirements.
CEDLegal Department
APCArchitectsBuilding DepartmentDevelopersDTSBDPWHistoric Landmarks FoundationHPCLandscape architects Neighborhood organizations
IMPLEMENTATION 155Significant Progress Made on Action Step Continuing Action Step
Policies Action steps Lead Role Potential Partners Timeline
1-2
Yrs
3-4
Yrs
5
Yrs
NEIGHBORHOOD AND URBAN CHARACTER
UD 1.1 (p. 105)
UD 1.3 (p. 105)
UD 1.6 (p. 105)
UD 1.8 (p. 105)
UD 3.1 (p. 106)
UD 3.4 (p. 106)
UD 4.1 (p. 106)
• Review existing design guidelines and revise as necessary. Develop design
guidelines for areas that currently do not have any.
Establish design standards for infill housing.• Use design guidelines as part of the evaluation of development proposals
to ensure developments respect the scale, design, and aesthetics of the
area.• Update area-specific plans and ensure inclusion of design guidelines using
input from residents, businesses, and other stakeholders in the area.
ο Submit area-specific plans to APC and Common Council for adoption.• Expand and highlight the role of existing urban plazas in the downtown
area.• Expand the St. Joseph River’s role in enhancing downtown character by
offering more cultural and recreational opportunities.
Building
Department
CED
APC
Architects
Building Department
City departments
Commercial Corridor groups
DTSB
HLF
HPC
Neighborhood organization
Parks and Recreation
PUBLIC ARTAC 6.1 (p. 127)AC 6.2 (p. 127) AC 6.4 (p. 127)
• Partner with various art-related and community organizations to create annual competitions for the design of public art.ο Determine sources of funding to commission public art.ο Encourage communitywide involvement.ο Determine best location and install public art.
CED CSP Artists and arts-related organizations DTSBLegal DepartmentRedevelopment Commission
REDEVELOPMENTED 1.2 (p. 83) ED 1.4 (p. 83)EM 3.1 (p. 95) EM 3.3 (p. 95)
UNDERUTILIZED LAND• Encourage development on surface parking lots.ο Promote the benefits of shared parking lots.• Promote availability of existing downtown parking and encourage parking in downtown parking structures.• Promote green buildings and public art in downtown redevelopment.
CED Chamber of CommerceDTSBDPWFederal governmentLegal DepartmentRedevelopment CommissionState of Indiana
BROWNFIELDS• Utilize City’s inventory of available brownfield properties to prioritize sites for future development.ο Pursue financial resources (state, federal, and private) to conduct environmental testing, remediation, and/or clearance of sites or properties with development potential.ο Facilitate redevelopment of prioritized sites through tax credits and demolition and clean-up assistance.
COMPATIBILITY WITH COUNTYLU 4.3 (p. 31) • Ensure compatibility of City and County subdivision ordinances.• Convene a committee of City and County officials to review subdivision ordinances to identify strengths and weaknesses.
APC Building Department
City departmentsCounty departments
156 IMPLEMENTATION Significant Progress Made on Action Step Continuing Action Step
Policies Action steps Lead Role Potential Partners Timeline
1-2
Yrs
3-4
Yrs
5
Yrs
PEDESTRIAN-ORIENTED DEVELOPMENTLU 3.2 (p. 31)T 1.4 (p. 43)T 3.1 (p. 43)PF 2.2.2 (p. 58)PF 5.2.1 (p. 59)
• Utilize the updated Zoning Ordinance to structure incentives for pedestrian-oriented development in the downtown.• Create an inventory of the existing recreational circulation system for bicyclists and pedestrians.ο Identify gaps in the path system and develop a plan to address gaps.ο Develop a phased strategy to fund the development of a certain number of miles of bicycle paths, trails, etc., and begin striping bike lanes.• Incorporate and require trails and greenways in developments where appropriate.
CED DPW APCBuilding DepartmentChamber of CommerceCycling groups DTSBDPWEnvironmental organizationsNeighborhood organizations Parks and Recreation
COORDINATION WITH EDUCATIONAL INSTITUTIONSE 5.1 (p. 136) E 5.2 (p. 136)
• Develop a planning, review, and development process with institutions of higher education and the SBCSC to coordinate planning for future facilities.• Inform the SBCSC when planning new residential areas that could include significant numbers of youth.• Continue regular communication with institutions of higher education and the SBCSC as to their future needs.
CED DPW Institutions of higher educationPublic and private schoolsRedevelopment Commission
IMPLEMENTATION 157Significant Progress Made on Action Step Continuing Action Step
STRATEGY 7: RAISE PUBLIC AWARENESS
Policies Action steps Lead Role Potential Partners Timeline
1-2
Yrs
3-4
Yrs
5
Yrs
PROPERTY MAINTENANCE
H 2.10 (p. 71) • Use existing communication methods—City and neighborhood
newsletters, Web site, presentations, etc.—to educate property owners on
Municipal Code requirements in user-friendly ways.• Translate into Spanish the Code requirements that are frequently violated.
Conduct targeted educational meetings in Spanish.• Conduct regular informational meetings throughout the city on frequently
violated sections of the Code.• Assist the Historic Landmarks Foundation of Indiana and the Historic
Preservation Commission in conducting educational workshops on
maintenance needs of older homes and other special events that highlight
the city’s historic neighborhoods.• Research and implement ideas that will help encourage property owners to
maintain their properties, such as:
ο Offer an awards program for property maintenance.
ο Provide tax abatements for homeowners to rehabilitate homes.
ο Partner with home-improvement stores and offer classes in
neighborhoods on property maintenance.• Work with landlord associations, the Police Department, social service
agencies, neighborhood organizations, and others to develop curriculum
for tenant and landlord education classes.
ο Support regular tenant and landlord education classes by providing
locations and assistance with marketing.
Building
Department
Code
Enforement
Business organizations
CED
CSP
Hispanic organizations
HLFI
HPC
Neighborhood organizations
158 IMPLEMENTATION Significant Progress Made on Action Step Continuing Action Step
Policies Action steps Lead Role Potential Partners Timeline
1-2
Yrs
3-4
Yrs
5
Yrs
IMPACT ON NATURAL ENVIRONMENT
T 4.3 (p. 43)
PF 3.1.5 (p. 59)
EM 1.1 (p. 95)
EM 1.2 (p. 95)
EM 2.2 (p. 95)
EM 2.3 (p. 95)
EM 2.6 (p. 95)
EM 8.1 (p. 96)
EM 9.1 (p. 96)
GENERAL AWARENESS• Develop public awareness campaigns on important environmental issues
to educate and raise public awareness.• Partner with other groups and agencies to organize periodic
communitywide lectures by prominent environmentalists.• Develop a pollution hotline as a source of information and to register
complaints.• Keep current on air and water quality issues.
CSP APA
ASLA
Building Department
Code Enforcement
County Health Department
DPW
Environmental organizations
IDEM
St. Joseph County Waste
Management District
SBCSC
TRANSPO
ST. JOSEPH RIVER ECO-SYSTEM• Encourage developers to be environmentally conscious and utilize
municipal water and sewer systems whenever possible to protect the
ground water supply and aquifer.• Include information about preserving the river eco-system in the City’s Web
site, newsletter, and other City publications.• Work with schools to educate schoolchildren about the river eco-system.
Assist with field trips to the St. Joseph River.• Monitor vegetation along the river and publish results in an annual report.
ο Partner with area colleges and universities to monitor vegetation and
pollution.
DPW
Parks and
Recreation
APC
DNR
CED
CSP
Institutions of higher education
Public and private schools
U.S. Corp of Engineers
U.S. EPA
ALTERNATIVE FUELS• Promote the use of alternative fuels. Set example by strategically
converting existing City fleet into alternatively fueled vehicles.
ο Install one City E85 pump for City vehicle refueling.
DPW City departments
State of Indiana
GREEN BUILDING• Promote the of utilization of LEED construction to the business community and developers.• Pursue the use of green building techniques in new City facilities.
CED Building DepartmentCSPDPWParks and Recreation
IMPLEMENTATION 159Significant Progress Made on Action Step Continuing Action Step
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3-4
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5
Yrs
ALTERNATIVE MODES OF TRANSPORTATION
T 2.2 (p. 43)
T 4.1 (p. 43)
EM 9.2 (p. 96)
• Promote the environmental benefits of mass transit and alternative modes
of transportation.• Assist TRANSPO in promoting the use of buses and trolleys.
ο Distribute information about TRANSPO routes through neighborhood
associations, Neighborhood Partnership Centers, medical facilities,
etc. Expand outreach and increase promotion to youth and seniors.
ο Encourage TRANSPO to expand service for special events.
ο Encourage TRANSPO to provide adequate signage and information on
routes at bus stops.• Actively participate in “Bike to Work” week.• Provide monthly bus passes to City employees who use mass transit to get
to work.
CSP A&F
Bicycle clubs
City departments
Neighborhood organizations
NRC
SBCSC
Senior centers
TRANSPO
ETHNIC / RACIAL DIVERSITYCB 2.2 (p. 116) CB 2.3 (p. 116)
• Organize workshops and small group discussions for youth and adults to promote the understanding of cultural and racial diversity.ο Encourage other organizations and businesses to conduct workshops and discussions on ethnic/racial diversity.• Develop opportunities to celebrate the diversity of the city and its neighborhoods.ο Promote the ethnic history of South Bend’s neighborhoods.• Encourage the SBCSC to teach students the history of the community.
Human Rights Commission Chamber of CommerceFaith-based organizationsURCPublic and private schools
OPPORTUNITIES FOR LOW INCOME RESIDENTS
H 8.3 (p. 72)
CB 4.2 (p. 117)
• Pursue a multi-media marketing campaign targeted to low income
residents to raise awareness of the Earned Income Tax Credit (EITC).• Partner with organizations to provide free tax preparation for income
eligible South Bend residents.• Work with local agencies, financial institutions, and schools to engage
youth in financial planning curriculum. Research programs such as Bridges
out of Poverty and pursue if applicable.
CED Accounting firms
Financial institutions
Neighborhood organizations
NRC
Public libraries
PARENTAL INVOLVEMENT
E 1.3 (p. 135) • Work with the SBCSC, social service organizations, and the media to explore
methods to involve parents in the school system.• Research model programs that successfully encourage youth and their
parents to participate together in educational and recreational activities.
CSP CED
Faith-based organizations
Institutions of higher education
La Casa De Amistad
NAACP
Social service organizations
SBCSC
Urban League
160 IMPLEMENTATION Significant Progress Made on Action Step Continuing Action Step
STRATEGY 8: CONDUCT ANALYSIS AND PLANNING
Policies Action steps Lead Role Potential Partners Timeline
1-2
Yrs
3-4
Yrs
5
Yrs
PLAN MONITORING (p. 142)• Develop and implement benchmarks and indicators to measure progress toward achieving City Plan goals.• Report City Plan progress annually.
CED City departments
VACANT AND ABANDONED PROPERTIES
H 2.6 (p. 71)
H 2.7 (p. 71)
H 2.11 (p. 71)
H 5.6 (p. 72)
H 8.4 (p. 72)
• Maintain an updated GIS database of all vacant and abandoned housing
throughout the city.• Identify key issues that result in vacancy.• Create a comprehensive strategy on how best to address the problem of
vacant properties.
ο Work with County government to implement a process for rapid
intergovernmental transfer of property.
ο Pursue increased code fees for dilapidated properties.
ο Work with various groups in the community to develop and
implement initiatives similar to:
ο New York’s “Third Party Transfer Initiative” to enable a
responsible third party to rehabilitate homes for resale.
ο A Targeted Chronic Offender Initiative to include vigorous
enforcement supported by State legislation, such as the 2006
House Bill 1102.• Lobby State Government to pass legislation strengthening the City’s legal
authority to take possession of housing with extensive code violations.
CED
Code
Enforcement
Legal
Department
Builders
Building Department
CED
Code Enforcement
Developers
Faith-based organizations
Financial institutions
Landlord associations
Neighborhood organizations
Realtors
SBPD
Social service agencies
HOUSEHOLD HAZARDOUS WASTEEM 5.1 (p. 96)EM 5.2 (p. 96)
• Work with the St. Joseph County Waste Management District and local environmental agencies and organizations to create household hazardous waste disposal options and promote to the general public.ο Pursue a drop-off location in the western portion of St. Joseph County for household hazardous waste and increase marketing of the existing facility.
DPW CSPCounty government Environmental agenciesSt. Joseph County Waste Management District
IMPLEMENTATION 161Significant Progress Made on Action Step Continuing Action Step
Policies Action steps Lead Role Potential Partners Timeline
1-2
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3-4
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5
Yrs
COMMUNITY PLANNINGLU 1.1 (p. 31)LU 1.2 (p. 31)T 6.3 (p. 44)PF 3.3.1 (p. 59)H 6.2 (p. 72) UD 2.5 (p. 105)
SECTOR PLANNING• Develop a process to organize the city into planning sectors.• Identify areas within each sector that require attention, lack plans, and require various forms of government assistance.• Prioritize those areas and initiate planning.
CED City departments Business organizationsDPWDTSBMACOGNeighborhood organizations
CREATING NEW AND UPDATING EXISTING PLANS• Utilize City Plan Objectives and Policies when developing and updating area-specific plans.• Revise plans for water, sanitary, and storm water extensions into one unified service area. Coordinate service area with City Plan service area.• Create a downtown master plan utilizing City Plan objectives and policies.• Require all transportation and land-use projects on the city’s fringe to include coordination with surrounding jurisdictions.
ANTI-POVERTY PROGRAM ASSESSMENTCB 4.9 (p. 117)• Identify City-supported programs that address poverty-related issues.ο Analyze program goals and measurement tools. Evaluate for effectiveness relative to City Plan Goals, Objectives, and Policies, and use results to direct funding.• Utilize higher education resources for ideas on new concepts and policies being used to address poverty.
A&F CED CSPInstitutions of higher educationSocial service organizations
GLOSSARY
GLOSSARY 163
Adaptive Reuse: The process for adapting buildings for
new uses while retaining their historic features.
Alternative Fuel Vehicle: Any dedicated, flexible-fueled,
or dual-fueled vehicle designed to operate on at least one
alternative fuel.
Annexation: A process used by the City to extend
municipal boundaries. State statute establishes the
criteria for annexations. South Bend’s Annexation Policy
and Plan explains the City’s goals for annexations.
Aquifer: An underground, water-bearing layer of soil,
sand, gravel, or rock that yields usable quantities of water
to a well or spring. The U.S. Environmental Protection
Agency (EPA) defines a sole- or principal-source aquifer
as one which supplies at least 50 percent of the drinking
water consumed in the area overlying the aquifer. These
areas have no alternative drinking water source which
could physically, legally, or economically supply those
who depend upon it for drinking water. South Bend’s
water supply comes from a sole source aquifer.
Arterial Street: A class of streets serving major traffic
(high-speed, high-volume) traveling between major points.
Auto-Oriented Land Uses: Functional activities of two
types: (1) those which are auto related (such as gas
stations and auto repair shops); and (2) those which by
their design attract primarily customers and employees
arriving by automobile (such as drive-in restaurants).
Bike Lane: A portion of a roadway which has been
designated by striping, signing, and pavement markings
for the preferential or exclusive use of bicycles.
Bike Path: A bikeway physically separated from
motorized traffic by an open space or barrier, either within
the highway right-of-way or within an independent
right-of-way.
Bike Route: A segment of a system of bikeways
designated by the jurisdiction having authority with
appropriate directional and informational markers, with
or without a specific bicycle route number.
Bike Trail: A designated off-street bicycle path that
travels through parks or other designated public
rights-of-way. Bike trails are usually shared with
pedestrians and joggers.
Biodiversity: The variety of life on our planet, measurable
as the variety within species, between species, and the
variety of ecosystems.
Bioengineering: A broad-based engineering discipline
that deals with biomolecular and molecular processes,
product design, sustainability, and analysis of
biological systems.
Brownfield Redevelopment: Brownfields are defined
by the U.S. EPA as “abandoned, idled, or underutilized
properties where expansion or redevelopment is
complicated by real or perceived environmental
consequences.” Redeveloping brownfields typically
involves clarifying liability issues with the potential
buyer/developer, testing the site for contamination,
and removing hazardous substances according to
federal requirements.
Central Business District: A zoning classification of the
area that is the traditional, compact urban core of the city,
typically containing an intense concentration of office and
specialty retail activities.
Charter School: A public school that is nonsectarian
and nonreligious and operates under a charter. Under
Indiana Code, charter schools are established to serve
the different learning styles and needs of public school
students, to offer public school students appropriate
and innovative choices, to afford varied opportunities for
professional educators, to allow freedom and flexibility
in exchange for exceptional levels of accountability,
and to provide parents, students, community members,
and local entities with an expanded opportunity for
involvement in the public school system.
Cluster Development: Buildings concentrated
together in specific areas to minimize infrastructure and
development costs while achieving the allowable density.
Allows for the preservation of natural open space for
recreation, common open space, and environmentally
sensitive features.
Collector Street: Streets that collect traffic from local,
neighborhood streets for distribution to the arterial streets.
Combined Sewer Overflows: A system of waste removal
where storm runoff from streets empties into the same
pipes as domestic and industrial wastes. In periods of
high rain, the wastewater treatment plant cannot handle
the increased volume and the wastewater empties
through the combined sewer overflows into adjacent
waterways without being treated.
Commercial Corridor: Started in 1998, the Commercial
Corridor program was initiated by Mayor Stephen J.
Luecke. The corridor project is an effort to improve
South Bend’s key entryways into the city. The following
corridors are recognized as commercial corridors by the
City of South Bend: Western Avenue, Portage Avenue,
South Gateway or Michigan Street, Lincoln Way West, and
Miami Street. Each corridor is awarded an allotment of
money to spend appropriately, according to its needs.
Corridor: An arterial street and its surrounding land uses.
Dark Fiber: An optical fiber infrastructure (cabling and
repeaters) that is currently in place but is not being used.
Optical fiber conveys information in the form of light
pulses so the “dark” means no light pulses are being sent.
Design Guidelines: Regulations that govern the
appearance of a development. Guidelines are typically
used to create distinctive attractive places, and ensure
that present and future developments are compatible
to their surroundings. Design guidelines seek to add
value to a community’s built environment by ensuring
well-designed buildings, attractive and useful signage,
appealing façades, and street orientation that is
distinctive to the community.
E.coli: Escherichia coli (usually abbreviated to E. coli) is
one of the main species of bacteria that live in the lower
intestines of warm-blooded animals (including birds and
mammals) and are necessary for the proper digestion of
food. Its presence in groundwater is a common indicator
of fecal contamination.
164 GLOSSARY
Fiber Optics: The technology in which communication
signals in the form of modulated light beams are
transmitted over a glass or plastic fiber transmission
medium. Fiber optic cables have more bandwidth than
metal cables and can transmit data digitally, have small
space needs, and offer protection from electromagnetic
interference, eavesdropping, and radioactivity.
Gateway: A special entry point into a defined area.
Greenfield: A parcel of land not previously developed
beyond that of agriculture or forestry use; virgin land.
Greenway: A linear open space; a corridor composed
of natural vegetation. Greenways can be used to
create connected networks of open space that include
traditional parks and natural areas.
Historic Preservation: The theory and practice of
creatively maintaining the historic built environment and
controlling the landscape component of which it is an
integral part. The movement began in the 1960s in the
United States to protect landmarks and to
unify neighborhoods.
Historic Property: In federal law, a district, site, building,
structure, or object that is significant in American history,
architecture, engineering, archaeology, or culture at the
national, state or local level, and that meets the National
Register criteria.
Household: The person or persons who occupy a
housing unit. The occupants may be a single family, one
person living alone, two or more families living together,
or any other group of related or unrelated persons who
share living arrangements.
Impervious Surfaces: Hard surfaces (rooftops, sidewalks,
driveways, streets, parking lots, etc.) that do not allow
rainwater to infiltrate into the ground.
Incentive: A motivational offer intended to persuade an
economic development prospect to choose one location
over another. Incentives are most often associated
with taxes. An incentive offer is usually made under
the assumption that a competition for an enterprise
development project cannot be won without it.
Industrial Park: An area specifically developed to provide
lots for industrial activities.
Infill Development: A type of development that occurs
mostly in older and established areas of the city. Infill can
occur on long-time vacant lots or on pieces of land with
dilapidated buildings, or can involve changing the land
use of a property from a less to a more intensive one.
Infrastructure: The basic framework within an area which
enables development projects to occur, i.e., streets, water
supply, storm drainage, sanitary sewers, electricity, transit
and transportation facilities, and oil and gas pipelines and
associated facilities.
Landmark: Any structure that is easily recognizable
and becomes a point of reference because of its height,
distinctive design, or character. Examples may include
statues, monuments, churches, and other important civic
buildings such as town halls and courthouses.
LEED: The LEED (Leadership in Energy and Environmental
Design) Green Building Rating System® is a voluntary,
consensus-based national standard for building high-
performance, sustainable buildings. LEED was developed
by the U.S. Green Building Council (USGBC), the leading
organization promoting the green building industry.
Level of Service (LOS): A mechanism used by traffic
engineers and planners to determine if a road is operating
at ideal, average, or poor efficiency. LOS is measured
with grades A to F, with F indicating roads with major
traffic issues.
Local Street: A street with a low amount of traffic and
a high level of access to the properties along them. An
example is a residential street in a neighborhood.
Low and Moderate Income/Poverty: According to the
federal Department of Housing and Urban Development,
low and moderate income is: a household or individual,
whose income does not exceed 80 percent of the median
income for the area. Area is usually defined as a census
block group.
Magnet School: In the U.S. system of education, a magnet
school is a public school that draws students interested in
specific subjects, such as academics or the arts, from the
surrounding region (typically a school district or a county).
South Bend has seven magnet programs.
Market Rate: A standard used to determine the present
value of an asset in a given location. For example, the
market rate of a house is the value that the owner would
receive if he or she were to sell the house today. Market
rates vary depending on how strong the real estate
market is in a given location.
Master Plan: A document that describes, in narrative
and with maps, an overall development concept
including both present property uses as well as future
land development plans. Master plans are generally area
specific or site specific.
Median Sale Price: The sale price of the middle property
when all sales in a selected area are arranged in price
order from lowest to highest. Where there is an even
number of sales, the median is the average of the two
middle sales.
Metropolitan Planning Organization: A regional
transportation planning body that is required to
approve transportation improvement plans for major
infrastructure projects to ensure that they are consistent
with federal environmental legislation and that they are
fiscally sound.
Mixed-Use Structure: A structure that combines two
or more types of development: residential, commercial,
office, industrial, or institutional.
GLOSSARY 165
Neighborhood: An often self-defined district or area with
distinctive characteristics, such as race and ethnicity; age
and type of buildings; land use; and people who live near
one another or in a particular district or area.
Neighborhood Partnership Center: A physical
facility that operates to encourage neighborhood
communication, outreach, and neighborhood-based
service provision in connection with a small-area physical
revitalization component.
Neighborhood Plan: A guide for decision making
regarding physical development and other activities in
an area of a city. These plans are typically adopted by the
legislative body of a city.
New Urbanism: A planning and urban design movement
that began in the late 1980s and the early 1990s. It aims to
reform the design of the built environment by promoting
the creation and restoration of diverse, walkable, transit-
oriented, vibrant, compact, and mixed-use communities.
Nonpoint Source Pollution: Pollution that occurs when
water runs over land or through the ground, picks up
pollutants, and deposits them in surface waters (lakes,
rivers, estuaries, coastal waters) or introduces them
into groundwater.
Nuisance Property: Any site maintained in a condition
that has a harmful effect on surrounding parcels or the
neighborhood; buildings that are structurally unsafe or
a hazard to public safety, places that are used for illegal
activities, or lots that contain high grass, weeds, trash,
inoperable vehicles, or the like.
Open Space: Predominately undeveloped land and/or
water area that is devoted to active or passive recreation,
scenic enjoyment, or the preservation of natural
resources; usually includes parks, forests, and rural areas.
Ozone: Gas composed of three oxygen atoms; a harmful
air pollutant in the earth’s lower atmosphere created
from the reaction of nitrogen oxides and volatile, organic
compounds emanating from motor vehicle exhaust,
industrial emissions, gasoline vapors, chemical solvents, and
natural sources; is a major agent in the formation of smog.
Pathway: A continuous route designated for pedestrian
or bicycle use and usually separated from a street.
Pedestrian Oriented: A development scaled for optimal
use by people on foot, rather than in automobiles; such
development is often characterized by wide sidewalks
and street amenities, short blocks, relatively narrow and
easily crossed streets, mixed-use buildings with limited
setbacks, small-scale signage, and small landscaped
parking lots.
Planned Unit Development (PUD): Development that
allows land to be developed in a manner that does not
fit all the use, bulk, and open space requirements of any
of the standard zoning districts. The PUD allows greater
flexibility and innovation than conventional zoning
standards because a planned unit is regulated as one unit
instead of each lot being regulated separately.
PLAN Z: The organizational and redistricting plan
for the South Bend Community School Corporation,
implemented in 2003. It changed the grade configuration
pattern from K-6 (elementary), 7-8 (middle school), and
9-12 (high school) to K-4 (primary), 5-8 (intermediate), and
9-12 (high school). LaSalle High School was converted to
LaSalle Intermediate Academy. Two additional magnet
schools were added, Kennedy Primary Academy and
Tarkington Traditional School.
Predatory Lending: Practice of unscrupulous lenders
who use sales tactics to get consumers to accept real
estate financing with costs significantly higher than they
might have otherwise obtained. The resulting loans,
which usually feature high interest rates, points, and
other fees, are targeted at unsophisticated or vulnerable
borrowers who may be unaware of the implications of the
deal, and often lead to the stripping of a home’s equity as
well as foreclosures.
Quality of Life: The condition in which one lives; the
level is often determined by the presence of desired
characteristics, amenities, or services; such characteristics
may include entertainment and leisure activity,
access to natural areas, low crime, availability of arts,
high quality of educational institutions, and
well-maintained infrastructure.
Rail-to-Trails: The conversion of abandoned or unused
railroad corridors into public trails, especially for
recreational use.
Redevelopment: New development that occurs
on already developed, partially developed, or
under-utilized parcels.
Redevelopment Commission: The Redevelopment
Commission in South Bend is responsible for stimulating
development in designated areas of the city. This is
achieved primarily through acquisition, clearance,
and disposition of land; public improvements, design
review, and marketing in designated redevelopment
and economic development areas. There are five
Redevelopment Commission members, appointed
annually. Three are appointed by the Mayor, two by
the Common Council.
Region: A broad, geographical area distinguished
by similar features.
Renewable Energy: Energy obtained from sources that
are essentially inexhaustible. Examples include solar,
geothermal, wind, and biomass energy.
Right-of-Way: A strip of land occupied or intended to
be occupied by certain transportation and public use
facilities, such as roadways, railroads, and utility lines.
Riparian Areas: Vegetated ecosystems along a water
body through which energy, materials, and water pass.
Riparian areas characteristically have a high water table
and are subject to periodic flooding.
Safe Haven: A multi-service center often housed in a
school or community center, where many youth- and
adult-oriented services are delivered. Safe Havens are an
integral component of the U.S. Department of Justice’s
“Weed and Seed” strategy.
Social Capital: The feeling of trust and reciprocity
that binds people to one another and is produced by
formal and informal relationships or networks. A
neighborhood-based organization is one example of a
formal social network.
166 GLOSSARY
South Bend Metropolitan Statistical Area (MSA): The
area consisting of St. Joseph County in north central
Indiana and Cass County in Michigan.
Streetscape: The visual character of a street as
determined by elements such as structures, access,
greenery, open space, view, etc. The scene as may be
observed along a public street composed of natural and
built components, including buildings, paving, planting,
street hardware, and miscellaneous structures.
Sub-Prime Lending: A type of lending that relies on
risk-based pricing to serve borrowers who cannot obtain
credit in the prime market, where higher degrees of risk
for borrowers carry higher costs for loans.
Suburban Development: A pattern of building that
is generally characterized by low-density, segregated,
single-use development with wide streets that are
designed primarily to accommodate the automobile.
These areas are almost totally dependent on the
automobile due to large distances between housing,
work, shopping, and recreation and to the lack of other
transportation options. This reliance on automobiles
results in large parking lots for each building.
Swales: Vegetated areas used in place of curbs or paved
gutters to transport storm water runoff. They also can
temporarily hold small quantities of runoff and allow it to
infiltrate into the soil.
Tax Increment Financing (TIF): An economic
development financing tool used to capture property tax
revenue attributable to increases in assessed value.
Telecommunications: The transmission, emission or
reception of signs, signals, images, sound, or intelligence
of any nature by wire, radio optical system, or other
technical system.
Telecommunications infrastructure: The underlying
structure or framework of the telecommunications system
(i.e., cable, switching equipment, amplifiers, etc.) which
allows for the transmission of voice, video, and data.
Temporary/Emergency Housing: Any facility the primary
purpose of which is to provide temporary shelter for
the homeless in general or for specific populations
of the homeless.
Terminating Vista: A building or monument that
stands at the end or in the middle of a path, such that a
view is created of that path terminating at the building
or monument. Terminating vistas are considered an
important method of adding aesthetic appeal to a city,
and to emphasize important structures or monuments.
Common terminating vistas include government
buildings, war memorials, courthouses, and other
important structures.
Traditional Neighborhood Development: A
development pattern that reflects the characteristics
of small, older communities of the late 19th and early
20th centuries. The focus of the community shifts from
the automobile to the pedestrian. Traditional urban
characteristics include mixed land uses, grid street
patterns, pedestrian circulation, intensively used open
spaces, architectural character, and a sense of community.
Traditional Urban Characteristics: A pattern of city
building characterized by narrow streets, densely
clustered buildings on small lots, on-street parking, and
amenities such as grocery stores and public parks within
walking distance.
Traffic Calming: Roadway design strategies to reduce
vehicle speeds and volumes, aimed at improving traffic
safety and neighborhood livability. Traffic calming
measures include, but are not limited to, traffic-slowing
devices, curb extensions, and medians.
Transitional Housing: Temporary accommodations for
homeless individuals and families as a step to permanent
housing. Those in transitional housing are usually offered
various social services–job training, money management,
addictions counseling, etc.–to address the causes of their
homelessness.
Transit-Oriented Land Uses: Activities that by their
design attract, or have the potential to attract, a
significant proportion of customers and employees by
means of transit, bicycle, or pedestrian modes. Such land
uses have a lower demand for parking than auto-oriented
land uses.
Tree City USA: A program sponsored by the National
Arbor Day Foundation in cooperation with the USDA
Forest Service and the National Association of State
Foresters. It provides direction, technical assistance,
public attention, and national recognition for urban
and community forestry programs in thousands of
towns and cities.
Urban Fabric: A collection of buildings, infrastructure,
and natural and built features, that, when woven together,
create an identifiable pattern and define a city.
Urban Sprawl: Current development patterns where
rural land is converted to urban uses more quickly
than needed to house new residents and support new
businesses and in which people become more dependent
on automobiles. Sprawl defines patterns of urban growth
that include large acreage of low-density residential
development, rigid separation between residential
and commercial uses, residential and commercial
development in rural areas away from urban centers,
minimal support for non-motorized transportation
methods, and a lack of integrated transportation and land
use planning.
Vista: A distant view or prospect, especially one seen
through an opening, as between rows of buildings or trees.
Wealth Building: The word “wealth” has many meanings.
The word is used in City Plan to refer to capital of various
kinds, such as social (life skills), human capital (education,
technical knowledge), investments (a saving account), etc.,
which can provide a livelihood that will grow over time.
GLOSSARY 167
Weed & Seed Program: A U.S. Department of Justice
initiative aimed at revitalizing neighborhoods suffering
from high rates of crime. The goal is to “weed out”
violent crime, drug trafficking, and gang activity and
work to prevent crime from recurring by “seeding” those
neighborhoods with a variety of social services.
Wetlands: Lands that are seasonally or permanently
covered by shallow water, as well as lands where the water
table is close to or at the surface. These areas often host
plants and animals specially adapted to life in very wet
conditions. Types of wetlands include swamps, marshes,
and bogs.
Zoning: A set of local government regulations and
requirements that govern the use, placement, spacing,
and size of buildings and lots (as well as land uses) within
specific areas designated as zones that are primarily
dedicated to certain land use types or patterns.
Zoning Ordinance: A law used to implement zoning in
a community. A zoning ordinance is usually compatible
with the objectives outlined in the comprehensive plan:
that existing land uses are protected from incompatible
activity; that development is adequately served by
infrastructure; and that development is directed away
from sensitive environmental areas. Regulated items
include permitted uses of land and buildings; the density
of those uses; and the size of buildings. It usually includes
a map of districts and definitions.