Unigov
Encyclopedia
Unigov is the name adopted by the city of Indianapolis
to describe its consolidated city–county government. By an act of the Indiana
state legislature, Indianapolis consolidated with the government of Marion County
in 1970. Within Unigov are eleven "included towns", which maintain some of their own municipal services and identity within the consolidated government. Four other municipalities in Marion County are not part of the Indianapolis government, but receive county-level services from Unigov and are represented by the Indianapolis City–County Council and mayor. The area of Marion County not within the included or excluded towns is known as the balance
.
state of Indiana. Given the state of urban planning
in 1821, little thought was given to the growth of the city. Original planners were of the opinion that it would never grow beyond its original square mile (2.6 km²) layout (still known as "the Mile Square"). Contrary to their belief, Marion County
soon was filled with small communities with connections to or with businesses that had formed to take advantage of Indianapolis's location midway between Chicago, Illinois, and both Cincinnati, Ohio
, and Louisville, Kentucky
. City growth happened in fits and starts, and it was possible in some areas to leave and re-enter Indianapolis while traveling in a straight line. The movement of affluent citizens to more fashionable suburbs, especially to the north of the city limits, accelerated into full white flight
in the period after World War II
. While this sprawl was generally within Marion County, it hastened the decay of the city itself.
Unigov was proposed in the late 1960s by then mayor (now Senator
) Richard Lugar to address these problems and a number of other related issues. In order to support Unigov, a compromise was arranged; the cities of Beech Grove
, Lawrence
, Southport
, and Speedway
each maintained limited autonomy, with their own police forces, school systems, and mayors (except Speedway); in addition, fire service and school districts were maintained at their pre-Unigov borders, and some towns otherwise incorporated into the city were permitted to maintain independent police forces. Nevertheless, the excluded cities are also part of Indianapolis-Marion County and are thus represented within Unigov's legislative body, known as the City-County Council
. This is necessary because a number of services and governmental responsibilities are delegated by the state of Indiana to county-level government; these services and responsibilities include road maintenance, natural resource management, civil ordinances (zoning, flood development), etc. In addition to voting for the mayors and councils of their respective cities and towns, residents are also able to vote for the Mayor of Indianapolis, plus a City-County Council member, and the four at-large council members. This arrangement was passed because residents are obligated to pay many county-wide taxes and because the powers of the Mayor of Indianapolis extend to the entire county.
, Lawrence
, and Southport
, and the town of Speedway
are known as "excluded cities," and retain government autonomy in most respects. They elect their own city officials and city councils. They also are represented on the City-County Council and vote for the Mayor of Indianapolis, since these countywide officials have taxing and other powers over the whole county.
, which held the mayor's office from the election of Richard Lugar in 1967 until the election of Democrat
Bart Peterson
in 1999. Democrats gained a one-seat majority on the City-County Council for the first time in citywide elections in 2003.
Facing a budget crisis, Peterson made a proposal to eliminate some remaining duplication, dubbed "Indianapolis Works!". He claimed it would eliminate remaining duplication, while opponents saw it as an effort to further consolidate the power of the Democratic Party in Marion County. The extension of city government was now seen as benefiting the Democrats, who had made many gains (as they did nationally) in the inner-ring suburbs, many more of which are included within the boundaries of the city than in many comparable metropolitan areas.
In December 2005, the City-County Council approved a merger of the Indianapolis Police Department and the Marion County Sheriff's Department, creating the Indianapolis Metropolitan Police Department
, headed by the Marion County Sheriff.
In the 2007 municipal elections, the Republican party, led by Gregory A. Ballard
, recaptured the Mayor's office and also won back a majority of the City-County Council. One of the planks of Ballard's campaign platform was that the police department needed to be under the responsibility of the Mayor, and not the Sheriff. In February, 2008, the new GOP-led council gave the authority over the county-wide Indianapolis Metropolitan Police Department
to the Mayor, leaving Sheriff Frank J. Anderson
with authority over the county jail, protection of City-County buildings and the traditional roles of tax collection and paper serving, but left him as the only Sheriff in Indiana without territory to protect.
By 2006, Fort Wayne nearly met the threshold for designation as a First Class City as it annexed the populous portions of Aboite Township. However, a pre-emptive legislative change in 2004 raised the population requirements for a First Class City from 250,000 to 600,000, which ensured Indianapolis' status as the only First Class City in Indiana. As a result, any foreseeable city-county consolidation in Indiana will be voluntary rather than automatic.
Indianapolis
Indianapolis is the capital of the U.S. state of Indiana, and the county seat of Marion County, Indiana. As of the 2010 United States Census, the city's population is 839,489. It is by far Indiana's largest city and, as of the 2010 U.S...
to describe its consolidated city–county government. By an act of the Indiana
Indiana
Indiana is a US state, admitted to the United States as the 19th on December 11, 1816. It is located in the Midwestern United States and Great Lakes Region. With 6,483,802 residents, the state is ranked 15th in population and 16th in population density. Indiana is ranked 38th in land area and is...
state legislature, Indianapolis consolidated with the government of Marion County
Marion County, Indiana
Marion County is a county located in the U.S. state of Indiana. Census 2010 recorded a population of 903,393, making it the largest county in the state and 55th most populated county in the country, greater than the population of six states. The county seat is Indianapolis, the state capital and...
in 1970. Within Unigov are eleven "included towns", which maintain some of their own municipal services and identity within the consolidated government. Four other municipalities in Marion County are not part of the Indianapolis government, but receive county-level services from Unigov and are represented by the Indianapolis City–County Council and mayor. The area of Marion County not within the included or excluded towns is known as the balance
Indianapolis (balance)
Indianapolis is a statistical entity defined by the United States Census Bureau to represent the portion of the city of Indianapolis, Indiana that is not within the "included towns". As of the 2000 census the balance had a total population of 781,870.- Geography :According to the United States...
.
Background
Indianapolis was intentionally surveyed and founded as the capital of the USUnited States
The United States of America is a federal constitutional republic comprising fifty states and a federal district...
state of Indiana. Given the state of urban planning
Urban planning
Urban planning incorporates areas such as economics, design, ecology, sociology, geography, law, political science, and statistics to guide and ensure the orderly development of settlements and communities....
in 1821, little thought was given to the growth of the city. Original planners were of the opinion that it would never grow beyond its original square mile (2.6 km²) layout (still known as "the Mile Square"). Contrary to their belief, Marion County
Marion County, Indiana
Marion County is a county located in the U.S. state of Indiana. Census 2010 recorded a population of 903,393, making it the largest county in the state and 55th most populated county in the country, greater than the population of six states. The county seat is Indianapolis, the state capital and...
soon was filled with small communities with connections to or with businesses that had formed to take advantage of Indianapolis's location midway between Chicago, Illinois, and both Cincinnati, Ohio
Cincinnati, Ohio
Cincinnati is a city in the U.S. state of Ohio. Cincinnati is the county seat of Hamilton County. Settled in 1788, the city is located to north of the Ohio River at the Ohio-Kentucky border, near Indiana. The population within city limits is 296,943 according to the 2010 census, making it Ohio's...
, and Louisville, Kentucky
Louisville, Kentucky
Louisville is the largest city in the U.S. state of Kentucky, and the county seat of Jefferson County. Since 2003, the city's borders have been coterminous with those of the county because of a city-county merger. The city's population at the 2010 census was 741,096...
. City growth happened in fits and starts, and it was possible in some areas to leave and re-enter Indianapolis while traveling in a straight line. The movement of affluent citizens to more fashionable suburbs, especially to the north of the city limits, accelerated into full white flight
White flight
White flight has been a term that originated in the United States, starting in the mid-20th century, and applied to the large-scale migration of whites of various European ancestries from racially mixed urban regions to more racially homogeneous suburban or exurban regions. It was first seen as...
in the period after World War II
World War II
World War II, or the Second World War , was a global conflict lasting from 1939 to 1945, involving most of the world's nations—including all of the great powers—eventually forming two opposing military alliances: the Allies and the Axis...
. While this sprawl was generally within Marion County, it hastened the decay of the city itself.
Unigov was proposed in the late 1960s by then mayor (now Senator
United States Senate
The United States Senate is the upper house of the bicameral legislature of the United States, and together with the United States House of Representatives comprises the United States Congress. The composition and powers of the Senate are established in Article One of the U.S. Constitution. Each...
) Richard Lugar to address these problems and a number of other related issues. In order to support Unigov, a compromise was arranged; the cities of Beech Grove
Beech Grove, Indiana
As of the census of 2000, there were 14,880 people, 6,085 households, and 3,839 families residing in the city. The population density was 3,462.5 people per square mile . There were 6,506 housing units at an average density of 1,513.9 per square mile...
, Lawrence
Lawrence, Indiana
As of the census of 2000, there were 38,915 people, 14,853 households, and 10,337 families residing in the city. The population density was 1,937.8 people per square mile . There were 16,292 housing units at an average density of 811.3 per square mile...
, Southport
Southport, Indiana
Southport is a city in Marion County, Indiana, United States. The population was 1,712 at the 2010 census. It was founded in the 19th century as a place of loading, unloading, embarkation, and debarkation by teamsters driving goods north to Indianapolis, making it a true "port", even though it is...
, and Speedway
Speedway, Indiana
Speedway is a town in Wayne Township, Marion County, Indiana, United States. The population was 12,881 at the 2000 census. Speedway is the home of the Indianapolis Motor Speedway, from which the town derives its name, and is a complete enclave of Indianapolis....
each maintained limited autonomy, with their own police forces, school systems, and mayors (except Speedway); in addition, fire service and school districts were maintained at their pre-Unigov borders, and some towns otherwise incorporated into the city were permitted to maintain independent police forces. Nevertheless, the excluded cities are also part of Indianapolis-Marion County and are thus represented within Unigov's legislative body, known as the City-County Council
Indianapolis City-County Council
The Indianapolis City–County Council is the city legislature of Indianapolis, Indiana and Marion County, known as Unigov. It was formally established in 1970 upon the merger of the city government with the county government. Both the Council and Mayor's office are located within the Indianapolis...
. This is necessary because a number of services and governmental responsibilities are delegated by the state of Indiana to county-level government; these services and responsibilities include road maintenance, natural resource management, civil ordinances (zoning, flood development), etc. In addition to voting for the mayors and councils of their respective cities and towns, residents are also able to vote for the Mayor of Indianapolis, plus a City-County Council member, and the four at-large council members. This arrangement was passed because residents are obligated to pay many county-wide taxes and because the powers of the Mayor of Indianapolis extend to the entire county.
Included towns
Several towns that existed outside the city limits were incorporated into Unigov, but elected to retain some measure of autonomy. Most of these towns hold elections for Town Council and Clerk-Treasurer. The town governments have taxing authority, and several continue to appoint their own police departments, maintain their own streets, and perform various other functions independently of the city of Indianapolis. However, they cannot pass any ordinance that conflicts with, or permits a lesser standard than, any City-County ordinance. The included towns are:- ClermontClermont, IndianaClermont is a town in Pike and Wayne townships of Marion County, Indiana, United States. The population was 1,356 at the 2010 census. It has existed as an "included town" since 1970, when it was incorporated into Indianapolis as part of Unigov. It is legally part of Indianapolis, while retaining a...
- Crows NestCrows Nest, IndianaCrows Nest is an affluent town in Washington Township, Marion County, Indiana, approximately northwest of downtown Indianapolis. The town is adjacent to the neighboring community of North Crows Nest and it is just south off Kessler Boulevard on the private drive Sunset Lane. The town maintains...
- HomecroftHomecroft, IndianaHomecroft is a town in Perry Township, Marion County, Indiana. The population was 722 at the 2010 census. It has existed as an "included town" since 1970, when it was incorporated into Indianapolis as part of Unigov...
- Meridian HillsMeridian Hills, IndianaMeridian Hills is an affluent community in Washington Township, Marion County, Indiana, about six and a half miles north of downtown Indianapolis and slightly southwest of the neighboring community of Williams Creek...
- North Crows NestNorth Crows Nest, IndianaNorth Crows Nest is an affluent town in Washington Township, Marion County, Indiana. The town is approximately northwest of downtown Indianapolis. The town is adjacent to the neighboring community of Crows Nest. The population was 42 at the 2000 census. It has existed as an "included town" since...
- Rocky RippleRocky Ripple, IndianaRocky Ripple is a town in Marion County, Indiana. The population was 606 at the 2010 census. It has existed as an "included town" since 1970, when it was incorporated into Indianapolis as part of Unigov...
- Spring HillSpring Hill, IndianaSpring Hill is a town in Marion County, Indiana. The population was 98 at the 2010 census. It has existed as an "included town" since 1970, when it was incorporated into Indianapolis as part of Unigov...
- Warren ParkWarren Park, IndianaWarren Park is a town in Warren Township, Marion County, Indiana. The population was 1,656 at the 2000 census. It has existed as an "included town" since 1970, when it was incorporated into Indianapolis as part of Unigov...
- West NewtonWest Newton, IndianaWest Newton is a neighborhood located on the southwest side of Marion County, Indiana. It is a small Quaker-settled town inside Decatur Township. It has been incorporated into Indianapolis.-External links:***...
- Williams CreekWilliams Creek, IndianaWilliams Creek is an affluent town in Washington Township, Marion County, Indiana. It is located about north of downtown Indianapolis and is slightly northeast of the neighboring Town of Meridian Hills. Williams Creek was originally planned as an exclusive community for the wealthy in 1925, and...
- WynnedaleWynnedale, IndianaWynnedale is a town in Washington Township, Marion County, Indiana. The population was 275 at the 2000 census. It has existed as an "included town" since 1970, when it was incorporated into Indianapolis as part of Unigov...
Excluded cities and town
The cities of Beech GroveBeech Grove, Indiana
As of the census of 2000, there were 14,880 people, 6,085 households, and 3,839 families residing in the city. The population density was 3,462.5 people per square mile . There were 6,506 housing units at an average density of 1,513.9 per square mile...
, Lawrence
Lawrence, Indiana
As of the census of 2000, there were 38,915 people, 14,853 households, and 10,337 families residing in the city. The population density was 1,937.8 people per square mile . There were 16,292 housing units at an average density of 811.3 per square mile...
, and Southport
Southport, Indiana
Southport is a city in Marion County, Indiana, United States. The population was 1,712 at the 2010 census. It was founded in the 19th century as a place of loading, unloading, embarkation, and debarkation by teamsters driving goods north to Indianapolis, making it a true "port", even though it is...
, and the town of Speedway
Speedway, Indiana
Speedway is a town in Wayne Township, Marion County, Indiana, United States. The population was 12,881 at the 2000 census. Speedway is the home of the Indianapolis Motor Speedway, from which the town derives its name, and is a complete enclave of Indianapolis....
are known as "excluded cities," and retain government autonomy in most respects. They elect their own city officials and city councils. They also are represented on the City-County Council and vote for the Mayor of Indianapolis, since these countywide officials have taxing and other powers over the whole county.
Political implications
For many years, the incorporation of the city's suburbs was seen as working to the political benefit of the Republican PartyRepublican Party (United States)
The Republican Party is one of the two major contemporary political parties in the United States, along with the Democratic Party. Founded by anti-slavery expansion activists in 1854, it is often called the GOP . The party's platform generally reflects American conservatism in the U.S...
, which held the mayor's office from the election of Richard Lugar in 1967 until the election of Democrat
Democratic Party (United States)
The Democratic Party is one of two major contemporary political parties in the United States, along with the Republican Party. The party's socially liberal and progressive platform is largely considered center-left in the U.S. political spectrum. The party has the lengthiest record of continuous...
Bart Peterson
Bart Peterson
Barton "Bart" R. Peterson is the former mayor of the U.S city of Indianapolis, Indiana. A Democrat first elected in 1999, he was defeated in 2007 in a bid for a third term in what was widely viewed as a huge upset.A lifelong Indianapolis resident, Peterson graduated from North Central High School...
in 1999. Democrats gained a one-seat majority on the City-County Council for the first time in citywide elections in 2003.
Facing a budget crisis, Peterson made a proposal to eliminate some remaining duplication, dubbed "Indianapolis Works!". He claimed it would eliminate remaining duplication, while opponents saw it as an effort to further consolidate the power of the Democratic Party in Marion County. The extension of city government was now seen as benefiting the Democrats, who had made many gains (as they did nationally) in the inner-ring suburbs, many more of which are included within the boundaries of the city than in many comparable metropolitan areas.
In December 2005, the City-County Council approved a merger of the Indianapolis Police Department and the Marion County Sheriff's Department, creating the Indianapolis Metropolitan Police Department
Indianapolis Metropolitan Police Department
The Indianapolis Metropolitan Police Department is the law enforcement agency for the city of Indianapolis, Indiana, in the United States. Its operational jurisdiction covers all of the consolidated city of Indianapolis and Marion County except for the Airport Authority and three of the four...
, headed by the Marion County Sheriff.
In the 2007 municipal elections, the Republican party, led by Gregory A. Ballard
Gregory A. Ballard
Gregory A. Ballard is the Republican mayor of Indianapolis, Indiana, United States. On Tuesday, November 6, 2007, he defeated two-term incumbent Democratic Mayor Bart Peterson by 51% to 47%. It was described as one of the biggest upsets in the political history of Indiana.-Background:Ballard was...
, recaptured the Mayor's office and also won back a majority of the City-County Council. One of the planks of Ballard's campaign platform was that the police department needed to be under the responsibility of the Mayor, and not the Sheriff. In February, 2008, the new GOP-led council gave the authority over the county-wide Indianapolis Metropolitan Police Department
Indianapolis Metropolitan Police Department
The Indianapolis Metropolitan Police Department is the law enforcement agency for the city of Indianapolis, Indiana, in the United States. Its operational jurisdiction covers all of the consolidated city of Indianapolis and Marion County except for the Airport Authority and three of the four...
to the Mayor, leaving Sheriff Frank J. Anderson
Frank J. Anderson
Frank Anderson served as Sheriff of Marion County, Indiana from 2003 until 2011 when he was succeeded by Sheriff John R. Layton, and is the first black individual to serve in that post. He is the second black Sheriff in Indiana after Oatess E. Archey.-Early life and career:Frank Anderson grew up...
with authority over the county jail, protection of City-County buildings and the traditional roles of tax collection and paper serving, but left him as the only Sheriff in Indiana without territory to protect.
Other city–county consolidations
Under the Unigov provision of Indiana Law, city-county consolidation is automatic when a city's population exceeds the threshold for qualification as a so-called First Class City. When the Unigov provision was enacted, the First Class City population threshold was 250,000; which Indianapolis easily met in 1970. The next most populous city was Fort Wayne with a population of 174,000; so Indianapolis was the only city affected by the legislation.By 2006, Fort Wayne nearly met the threshold for designation as a First Class City as it annexed the populous portions of Aboite Township. However, a pre-emptive legislative change in 2004 raised the population requirements for a First Class City from 250,000 to 600,000, which ensured Indianapolis' status as the only First Class City in Indiana. As a result, any foreseeable city-county consolidation in Indiana will be voluntary rather than automatic.