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Indiana tackles penny-rounding policies amid national shortage

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Indiana tackles penny-rounding policies amid national shortage


(INDIANA CAPITAL CHRONICLE) — Indiana lawmakers are crafting statewide penny-rounding policies as Hoosier retailers struggle through a nationwide shortage of the discontinued coin — but admit it needs more work. State revenues could also suffer.

Merchants large and small are rounding to the nearest nickel or down in favor of customers. Some are rounding the total transaction and others the change owed.

“It’s just kind of been all over the board right now,” said Melissa Coxey, leader of the Indiana Retail Council. Her members sell products and services directly to consumers.

“They have to take matters into their own hands, because absent any other direction, I mean, there’s nothing they can do. There just aren’t any pennies,” she said.

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The U.S. Mint struck its final non-ceremonial penny in November, ending a 232-year run. President Donald Trump cited the penny’s high production cost in directing the stoppage.

The U.S. Treasury has estimated 114 billion of the coins remain in circulation, while the Mint has offered a 300 billion estimate — “far exceeding the amount needed for commerce.”

But Indiana retailers are reporting strain.

“Running out of pennies happened faster than anyone anticipated,” Coxey said. “… They’re just gone.”

Bipartisan rounding bills in the U.S. House and Senate have not moved.

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Now, Indiana lawmakers are giving it a shot.

“We have been plagued with coming up with a solution to the penny phase-out and I’m not sure we got it right, just to be quite honest with this committee,” said Sen. Travis Holdman, the author of Senate Bill 243, this month. The wide-ranging tax bill also hosts penny talk.

Making cents

Holdman, R-Markle, amended three penny provisions into the 147-page bill during a Senate committee meeting in January. It later moved to the House on a 47-1 vote.

One, dealing with cash retail transactions, would require merchants to calculate sales tax on unrounded totals, then round the tax amounts down to the nickel. Taxes, fees and fines paid in cash to state and local units of government would also be rounded down.

But for cash payments to business entities — excluding retail transactions — the bill sets up “symmetrical” rounding rules. Totals, rather than taxes alone, would be rounded down when they end in 1, 2, 6 or 7 cents, and up when they end in 3, 4, 8 or 9 cents.

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“We round down on all taxes, fees and fines, and we round to the nearest nickel or dime (otherwise),” Holdman said at last month’s meeting.

But, Coxey said, “It does not solve the problem.”

If the tax alone is rounded down and added to an unrounded subtotal, the final result could still require pennies.

Coxey’s organization and others, including the Indiana Chamber of Commerce, are instead calling for the rounding to occur as the last step.

“When you’re at the grocery they’re typically not asking you if you’re paying with cash or credit card or a different form of payment prior to ringing up the transaction,” said Natalie Goodwin, the chamber’s vice president of government affairs. “So that’s why, again, it’s important to make sure that all of this rounding is happening on a final transaction.”

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“If you were attempting to round at any point before that based on, you know, if someone’s paying part credit, part cash, part gift card … we just think it introduces a lot of uncertainty to handle it that way,” she said.

The Treasury, in December non-binding guidance, has also recommended last-step rounding — as has the National Conference of State Legislatures.

“Taxes should be added to the pre-rounded total and then the final amount should be rounded symmetrically,” a November policy brief reads. “This approach ensures that the exact tax owed is always paid and that, over time, consumers and retailers each ‘win’ roughly half the time. Such balance is critical to maintaining trust and avoiding perceptions of bias or manipulation.”

Indiana groups also seek flexibility on rounding to the nearest nickel or down, rounding the total versus the change returned, and even the option to give exact change when pennies are in stock instead of rounding.

“The language is, hopefully, it should be written in a permissive way, so that if you do not have access to the penny, these are the steps you can take,” Goodwin said. “But if you do have pennies, you can continue to use them.”

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The penny is still legal tender — an acceptable form of payment.

The bill was heard in the House’s Ways and Means panel last week, and is scheduled for amendments and a committee vote today.

“We just keep getting more advice from other groups (about) what we’re going to do,” Holdman told the Capital Chronicle on Thursday. “Monday, we should have arrived at something.”

Other considerations

Further guidance may be needed.

The National Conference of State Legislatures, of which every state lawmaker and legislative staffer are part, additionally recommended giving directions for handling split-tender transactions, what should be reflected on receipts or records, and more.

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The policy brief also emphasized the importance of training for government and retail employees, along with clear state communication to customers.

Utah, for instance, has published a rounding guide for businesses, complete with an illustrated flyer to print and post in stores.

“It’s a concern for everyone, you know, how to communicate this to customers why it’s happening,” Coxey said.

As written, the penny provisions would take effect in 2027.

Businesses say that’s too far out.

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“The sooner we can provide this certainty to the retailers and the business community, and consumers, at large, the better,” Goodwin said.

That’s despite the work it will take to implement. Point-of-sale systems will require reprogramming to round to the nickel, when applicable.

State losses

The state’s round-down approach, meanwhile, carries a price tag.

Per-transaction losses of 1 cent to 4 cents will add up. Indiana could lose between $1.8 million and $3.5 million in sales tax revenue annually, according to the State Budget Agency.

“It’s the sheer number of transactions that you’re talking about, is what’s going to cause that loss,” Budget Director Chad Ranney said. “Sales tax, you’ve got to remember, is by far one of the largest tax bases we have … It could add up pretty quickly.”

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But the amount is “not super material.”

Indiana earned more than $10 billion off the sales tax in the 2025 fiscal year, which ended last June, according to SBA revenue reporting. Collections are expected to top $11 billion in the 2026 fiscal year, according to an agency revenue forecast.

And any month’s forecast miss would be hard to pin on rounding alone, Ranney said.

SBA also estimates state agencies will lose out on between $60,000 to $120,000 by rounding down on their fees, fines and miscellaneous charges. Mostly dedicated funds would be hit.

Agencies told the Capital Chronicle they’ve got it covered.

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Cash makes up more than 40% of transactions on state park properties: gate fees, firewood sales, boat rentals and so on. But prices are largely tax-inclusive whole-dollar amounts, Department of Natural Resources spokeswoman Holly Lawson said.

At the White River State Park in Indianapolis, the visitor center and concert venue are cashless. The campus also hosts the Indiana State Museum, which accepts cash at the IMAX theater, said park spokeswoman Abigail Billing.

“We are in the process of converting pricing to be tax-inclusive to avoid issues caused by the discontinuation of the penny,” she said.

Museum spokeswoman Carla Knapp said visitors are encourages to use exact change, but if pennies are unavailable, “we will round up change amounts to the nearest nickel.” 

“While the policy is in effect, we have pennies available currently and no transactions have been impacted to this point,” Knapp said.

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Most transactions at the Indiana State Fair are digital. Coin usage is even more “minimal” because of whole-dollar pricing, said Anna Whelchel, chief revenue and marketing officer.

Hoosier Lottery tickets are also generally sold in whole-dollar increments, except for two games that can be purchased in 50-cent increments, according to spokesman Jared Bond. None of the lottery’s products are subject to sales tax, so totals will never require rounding.



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Indianapolis, IN

Find your furry friend at Lucky Tails Adoption Event in Indianapolis, all fees waived

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Find your furry friend at Lucky Tails Adoption Event in Indianapolis, all fees waived


INDIANAPOLIS (WISH) — Feeling lonely and in need of a friend?

Check out Lucky Tails Adoption Event on Saturday, March 14, hosted by Indianapolis Animal Care Services. All fees will be waived and every pet available has been microchipped, spayed or neutered, and is up to date on vaccinations.

To make the transition even easier for you and your new companion, each new parent will receive a goody bag of necessities. There will be adoption counselors at the event to help you with any questions and to help you find a pet that best fits your lifestyle.

Last month, 59 animals found new homes during IACS’ Valentine’s Day Adoption event. The shelter hopes more animals can strike gold and find their forever home at this month’s event. “Our goal is to make as many matches as possible between our animals and the people who are meant to love them,” said IACS Director, Amanda Dehoney-Hinkle.

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The vent will be held at the shelter located at 2600 South Harding Street. IACS also has four upcoming weekend “Pop-Up” adoption events around the city:

  • March 21 from noon to 3 p.m. at PetSmart, 9749 East Washington Street.
  • March 28 from noon to 3 p.m. at PetSmart, 7801 US 31 South.
  • April 11 from noon to 3 p.m. at Puppy Playground, 7224 Rockville Road.
  • April 18 from noon to 3 p.m. at City Dogs Grocery, 1028 Virginia Avenue.

View adoptable pets here.



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Indianapolis, IN

Indianapolis Colts’ Best and Worst Free-Agent Signings of Last Decade

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Indianapolis Colts’ Best and Worst Free-Agent Signings of Last Decade


The Indianapolis Colts under general manager Chris Ballard have generally been extremely cautious in free agency. They rarely bring in outside playmakers, a strategy that hasn’t paid off over the past decade.

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Still, since 2017, Indianapolis has made several impactful outside additions. Some have paid off handsomely, and others have fallen flat. Let’s take a look at Indy’s best and worst signings over the past decade.

Best Signings

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DE Justin Houston

Houston signed with the Colts as a free agent in March 2019 on a two-year, $24 million contract after eight seasons with the Kansas City Chiefs, where he established himself as one of the league’s premier pass rushers.

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Houston is the last Colts pass rusher to record double-digit sacks, doing so in 2019 (11 sacks).

QB Daniel Jones

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Dec 7, 2025; Jacksonville, Florida, USA; Indianapolis Colts quarterback Daniel Jones (17) looks to throw downfield against the Jacksonville Jaguars during the first half at EverBank Stadium. | Travis Register-Imagn Images

Daniel Jones played better football than any Colts quarterback since Philip Rivers in 2020. He certainly was worth his $17 million price tag, and it’s fair to say he was one of the best Colts free agent signings of the Chris Ballard era.

Jones was transition tagged by the Colts earlier this week, becoming the second quarterback in NFL history to be placed under the transition tag.

QB Philip Rivers

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Speaking of Rivers, he deserves a spot on this list. In his 2020 campaign, Rivers threw for 4,169 yards, 24 touchdowns, and 11 interceptions. He led the Colts to their last playoff appearance and nearly upset the Buffalo Bills in the wild-card round of the playoffs.

TE Eric Ebron

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Indianapolis Colts tight end Eric Ebron (85) celebrates and offensive play during the third quarter of their game against the Miami Dolphins at Lucas Oil Stadium in Indianapolis, Sunday, Nov. 10, 2019. Miami won, 16-12.

Miami Dolphins At Indianapolis Colts In Nfl Week 10 At Lucas Oil Stadium In Indianapolis Sunday Nov 10 2019 | Jenna Watson/IndyStar, Indianapolis Star via Imagn Content Services, LLC

Ebron struggled with drops throughout his career, but his one season paired with Andrew Luck was special. In 2018, Ebron hauled in 66 receptions for 750 yards and 13 touchdowns. Each of those numbers was a career high.

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In 2019, Ebron’s production fell off a cliff. He only caught 31 passes for 375 yards and three touchdowns from Jacoby Brissett and Brian Hoyer. Still, Ebron deserves recognition for his one decent year in Indy.

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Worst Signings

CB Xavien Howard

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Howard was brought in weeks before the 2025 season, and after a month in Indy, he abruptly retired. The former All-Pro corner struggled mightily during his brief Colts tenure. According to Pro Football Focus, he allowed a 139.2 passer rating and 16 receptions while earning a 36.1 overall grade.

Once Puka Nacua went for 13 receptions and 170 yards while matched up against Howard, the 10-year veteran knew it was time to hang up the cleats for good.

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K Matt Gay

Jan 5, 2025; Indianapolis, Indiana, USA; Indianapolis Colts place kicker Matt Gay (7) kicks a field goal in overtime during a game against the Jacksonville Jaguars at Lucas Oil Stadium. Mandatory Credit: Christine Tannous/USA TODAY Network via Imagn Images | Christine Tannous/USA TODAY Network via Imagn Images

Ballard rarely gives out money, but in 2023, he thought it would be wise to sign Matt Gay to the largest free-agent kicker contract of all time (four years, $22.5 million). Gay stayed for two seasons before the team cut him last spring.

During his time in Indianapolis, Gay converted 82.1% of his field goal attempts (64 of 78). When kicking from 50 yards and beyond, Gay had a 50% success rate (11 of 22).

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DT Raekwon Davis

The Colts signed Davis as a cheap depth piece at defensive tackle, but he never truly became anything special. He appeared in 17 games in 2024, recording 15 total tackles.

The Colts gave Davis a two-year, $14 million deal only to cut him before his second season in Indy.

WR Devin Funchess

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Sep 8, 2019; Carson, CA, USA; Indianapolis Colts wide receiver Devin Funchess (17) can t hang onto the ball on a pass I the end zone in the closing minute of regulation against the Los Angeles Chargers at Dignity Health Sports Park. Defending on the play is Los Angeles Chargers defensive back Brandon Facyson (28). Mandatory Credit: Robert Hanashiro-Imagn Images | Robert Hanashiro-Imagn Images

Ballard signed Funchess to a one-year deal worth up to $13 million back in 2019, months before Luck retired. Funchess missed most of the season with a broken collarbone that he suffered in Week 1 after hauling in three receptions for 32 yards.

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Funchess’s lack of success in Indy wasn’t his fault, but it was another signing down the drain for Ballard’s front office.



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More than 25% of downtown offices sit empty as north side booms

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More than 25% of downtown offices sit empty as north side booms


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Companies are increasingly looking north for space, a sign that employers still want in-person offices just not in the downtown high-rises that once drew business. The trend means downtown office space remains in high-supply and low-demand — unless, that is, the office space comes flush with amenities, the market shows.

The overall Indianapolis office market sat at 21.2% vacant at the end of 2025, a slight dip from earlier in the year but an improvement over the year before, according to research published in January by Colliers.

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The downtown office market vacancy rate, however, did not budge, remaining at 26%, signaling the challenges landlords face in drawing companies to move to or resign leases in the city’s urban core. Leasing on the north side of the city and Hamilton County largely buoyed the overall health of the Indianapolis metro office market, said Nick Svarczkopf, CBRE senior vice president of office and medical properties.

The reason is relatively simple, tenant representatives say: Companies downsized as employees work more hybrid hours and those who still want office space lean toward shared, untraditional layouts. Most downtown office space, especially in the largest office buildings, tends to be older, more old-fashioned workspaces dotted with cubicles and individual office walls.

The rare exception is Bottleworks, a development off the main strip of Mass Ave. The Hendricks Commercial Properties space is completely filled, with a fully pre-leased building in the pipeline.

In June, law firm Ice Miller signed an 85,000-square-foot lease in the Bottleworks Phase III under development off Mass Ave set to open in 2028. The contract became the largest downtown lease since 2019 and made the firm the largest tenant at the state-of-the-art Bottleworks campus.

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Bottleworks offers many of the features workplace real estate experts say employees in 2026 value most: fitness centers, walkable areas and close dining spots to grab lunch. Employers have taken note, paying premium rent to move into office space that has access to these more experiential options, said Rich Forslund, executive vice president at Colliers’ Indianapolis office.

“Downtown has some but the suburbs have quite a bit,” Forslund said. “So people are moving to those spots in order to try to draw folks back to the office.”

Companies put employee experience first

A stroll through the Indiana Members Credit Union’s new headquarters at 835 N. College Ave., part of Bottleworks, reveals all of those aforementioned amenities — plus an employee-only outdoor patio, a custom soda and sparkling water machine and a state-of-the-art golf simulator, saving the company time-consuming and costly bonding outings to Top Golf.

For IMCU employees, the new office represents a drastic change from their old headquarters on the south side that cobbled together several strip mall-like buildings and a surface parking lot into a corporate campus. Roughly 120 of the company’s 467 employees work at the Bottleworks office, where they are required to come at least four days a week. The remaining employees work at customer branches around the city.

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President and CEO John Newett said the credit union ran out of space at its south-side location, prompting the need for the company’s move at the start of the new year. To ensure that doesn’t happen again soon, IMCU built in space for additional workers in the new office and hopes the spot just off Mass. Ave. will attract younger employees looking for an up-and-coming place to work as well as draw new employees from other suburbs to the north and west.

Part of that strategy included finding as many “wow factors” in the new space as possible, Newett said.

“It’s a little more fun than the traditional office,” Newett said.

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Indy lags behind other major downtowns

Across the country, office vacancy is hovering around 20.5% as the U.S. market shows signs of stabilizing after years of growing vacancies following the pandemic. Yet statistics from cities across the nation show that Indianapolis is relatively unique with suburban areas outpacing dense downtown neighborhoods.

While Indianapolis’ downtown real estate market still struggles, other cities are leaning on downtown office space for new leases. Nationwide, downtown districts accounted for 42% of leasing activity in the final three months of the year, despite comprising just 35% of overall supply, CBRE reported. Leasing rose 8% year-over-year in 2025, while suburban activity fell 7% over the same period.

In Indianapolis, those numbers are much lower: Just 17% of leases during the same timeframe were located downtown.

The stats are not too worrisome to experts, as Indianapolis typically lags behind the bigger coastal markets, Forslund said. But Indianapolis will need to decide where it wants to go in the future, whether that means upgrading older buildings or converting more empty space to apartments and hotels.

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“I refer to it as we are still in our teenage years, trying to figure out what we want to be,” Forslund said.

Indy employers will have to get more creative, or less picky, in the near future as supply dries up on the booming north side market. For instance, Midtown Carmel sits virtually full. And just one commercial office building for rent is under construction in Hamilton County, the Union at Fishers District, a mixed-use development with luxury office space set to open in early 2027 next to IKEA.

Elsewhere around the area, companies are constructing build-to-own properties but those won’t be available to other companies looking for open space and workstations for their employees. Those projects include Republic Airways’ corporate headquarters expansion in Carmel, a Merchants Bank project in Carmel and Elanco’s new headquarters, which opened in October on the west side of Indianapolis.

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As building new office space has become more and more expensive, more landlords are choosing to reinvest in and upgrade their existing offices in a bid to make them more attractive, Svarczkopf said.

“Based on the way the market is right now, they have to upgrade in order to compete,” Svarczkopf said. “The ones that have been successful have gone through the process of reinvesting in the property.”

Even with upgrades, the competition will be hot. At Indiana Members Credit Union, employees have responded well to the new office, executives said. Many amenities, like indoor parking that is patrolled, are not available elsewhere downtown.

“It just answered a lot of the questions we had and the amenities we wanted to provide for our team,” Newett said.

Alysa Guffey writes business and development stories for IndyStar. Have a story tip? Contact her at amguffey@usatodayco.com.

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