2026 General Election · Tuesday, November 3, 2026

Wayne County Council, District 4

Voted on across Wayne County, in district 4. Open seat: Misty Hollis is not on the ballot.

Who votes on this seat: Only voters who live in District 4 vote in this race. 2026 General Election Candidate List

What this office does

The county council is the county's fiscal body: it sets the county property tax rate, appropriates the money the county spends and fixes the pay and number of county employees [1, 2, 3]. Most councils have seven members, four elected from districts and three elected countywide (at large), though some larger counties elect all members by district [1, 4]. The board of commissioners runs county government day to day, while the council controls the money [5, 6]. Marion County has no separate county council; the 25-member Indianapolis City-County Council serves as the legislative body for the consolidated city-county government [7, 8].

The job in full — the duties the Indiana Code puts in it, the term, what it pays and who sets that, and what to ask a candidate.

Term
4 years, starting January 1 after the election; district seats and at-large seats are filled at alternating general elections [9]
Elected
On the partisan general-election ballot; in most counties four members are elected by district voters and three at large by the whole county, while counties of 400,000–700,000 residents elect seven members by district and opt-in counties of 185,000–300,000 elect nine by district [4, 1]. Every county council race on the 2026 state candidate list is a district seat [10]
At-large races
All three at-large seats are filled at the same election, so voters may choose up to three candidates and the top three vote-getters win; straight-ticket votes do not count in these multi-seat races [4, 11]
Term limit
None stated; the statute that sets the four-year term does not limit how many terms a member may serve [9]
Qualifications
Must have lived in the county at least one year, and in the district (for a district seat) at least six months, before the election, and be registered to vote in the election district; a county employee who is elected must leave that county job on taking office [12, 13]
Pay
Set locally in the council's annual ordinance fixing the compensation of county officers and employees [3, 14]
On the 2026 ballot
368 races; 147 contested [10]
What the law puts in this job (13)
  • Serves as the county fiscal body under the name of the county council [1].
  • Sets the county property tax rate and other countywide rates not fixed by state law [2].
  • Appropriates county money; except as otherwise provided by law, money may leave the county treasury only under an appropriation the council makes [2].
  • Adopts the annual budget at a yearly meeting where the county auditor presents budget estimates; budget ordinances must be read on two separate days, and funding an item above the estimates takes a three-fourths vote [14].
  • Adopts a separate salary ordinance setting the pay of county officers and employees and the number of deputies and employees in each office, after considering the commissioners' recommendations [14, 3].
  • Sets pay schedules and job classifications paid from the county general, highway, park and other funds, except that each local health department board sets pay for its own staff [3].
  • Controls spending and revenue collection in the county, including special spending requests during the year [6].
  • Authorizes by ordinance the bonds that fund county road and bridge projects and can create a county housing authority by resolution [8].
  • Serves as the county legislative body as well as the fiscal body in Lake and St. Joseph counties [8].
  • Declares a commissioner's seat vacant when the commissioner moves out of the county or district, and in certain cases can remove a county commissioner from office [15, 13].
  • Becomes the body that adopts county local income tax rates under the 2025 SEA 1 overhaul, replacing local income tax councils; the change is now scheduled for ordinances adopted starting July 1, 2028 [16, 17].
  • Has its adopted budget, tax rate and levies reviewed by the state Department of Local Government Finance, whose county budget order certifies the approved budget, tax rate and levy for each fund [18].
  • Does not run county departments day to day; the commissioners provide administrative oversight and the council provides fiduciary oversight [5].

Wayne County's numbers for this office

Legal Insights county office research (Oct. 13, 2026): Indiana Gateway budgets 2019-2026 and the indicator sources linked on each line.

This office's 2026 budget

$11,575,422

16.3% of the county's adopted 2026 budget · 84% more than 2019, before inflation

2019: $6,275,1362020: $7,146,0622021: $5,396,8472022: $7,472,4442023: $7,812,7592024: $8,204,0082025: $8,255,1422026: $11,575,422
2019 $6,275,1362026 $11,575,422
The year-by-year figures

Adopted budget, all funds, 2019-2026 (not adjusted for inflation)

  • 2019: $6,275,136
  • 2020: $7,146,062
  • 2021: $5,396,847
  • 2022: $7,472,444
  • 2023: $7,812,759
  • 2024: $8,204,008
  • 2025: $8,255,142
  • 2026: $11,575,422

Budget lines counted: 0061 COUNTY COUNCIL

Adopted 2026 county budget (Form 1 line items, Form 4B) and earlier years' budgets

All members combined, 2026 budget lines (presidents are often paid more)

$104,472

From the county budget; verify against the county's 2026 salary ordinance. A line can include longevity pay or a second role.

Also on the record for this office

  • SEA 1 estimated county-unit revenue change in 2028 vs prior law: $-1,464,070 (LSA)
  • MUST taskforce (LIT distribution talks): named reps
  • wheel tax: adopted
  • fiscal consultant named in records: C.L. Coonrod

Measured, for this county

A position compares this county with counties of similar size. It is not a grade: for most measures a higher or lower number is neither good nor bad on its own.

General Fund cash, in days of spending · 2025

120 days

End-of-2025 General Fund cash divided by a year's disbursements, times 365.

How much this is the officeholder's to decide: high (council and commissioners jointly): spending and appropriation decisions

Position 13 of 17 counties with 50,000 to 150,000 residents that have this figure (1 = highest value)

source · source

Share of the 2025 General Fund budget spent · 2025

89.5%

Actual General Fund spending divided by the certified budget.

How much this is the officeholder's to decide: high (council appropriates; commissioners and officers spend)

Position 16 of 17 counties with 50,000 to 150,000 residents that have this figure (1 = highest value)

source · source

County debt per resident · 2025

$0.00

Debt outstanding at the end of 2025 (annual financial report).

How much this is the officeholder's to decide: high (council authorizes borrowing; commissioners initiate many projects)

Position 17 of 17 counties with 50,000 to 150,000 residents that have this figure (1 = highest value)

source · source

Budget growth, 2023 to 2026 · 2023-2026

+45.1%

Adopted budget, all funds, not adjusted for inflation.

How much this is the officeholder's to decide: high (council adopts the budget)

Position 3 of 17 counties with 50,000 to 150,000 residents that have this figure (1 = highest value)

source · source

SEA 1 estimate for 2028 · 2028 (LSA estimate)

-5.9%

Legislative Services Agency estimate of the county government's revenue change under the 2025 property tax law, compared with prior law.

How much this is the officeholder's to decide: low: set by state law (SEA 1-2025); local rate choices from 2028 change the outcome

Position 5 of 17 counties with 50,000 to 150,000 residents that have this figure (1 = highest value)

source

Property tax cap credits · 2026

22.8%

Tax-cap (circuit breaker) credits as a share of the 2026 levy: revenue the county does not collect because of the caps.

How much this is the officeholder's to decide: low: set mainly by the constitutional caps and the combined rates of all units in the county

Position 2 of 17 counties with 50,000 to 150,000 residents that have this figure (1 = highest value)

source · source

Local income tax share of county revenue · 2026

21.8%

How much of the county's revenue comes from local income tax.

How much this is the officeholder's to decide: partial: the council adopts local income tax rates within limits set by state law

Position 17 of 17 counties with 50,000 to 150,000 residents that have this figure (1 = highest value)

source · source

Meeting minutes online · 2026-10

Posted as text

Whether the council's or commissioners' minutes are posted online (the better of the two), checked Oct. 2026.

How much this is the officeholder's to decide: high (commissioners and council decide what they post)

About this race

  • Wayne County (county seat: Richmond) has a seven-member county council. In 2026, District 1 and District 3 are unopposed; District 2 and District 4 are contested [28, 29].
  • Open seat: incumbent Misty Hollis, appointed by caucus in January 2025, is not seeking re-election [22, 24].
  • Primary: Republican Richard K. Tincher and Democrat Tom Pennington were each unopposed in the May 5, 2026 primary [28, 30].
  • Main issues for the council: the 2025 state property-tax law (SEA 1), local income tax decisions due in 2028, the highway user tax passed in 2025 for roads and bridges, and pay raises in the 2027 budget. At its September 29, 2026 budget workshop the council planned to bring employees to the midpoint of their pay range plus a 1% raise [25, 24, 31].
  • Key differences in the candidates' own words: Tincher puts the focus on careful spending, attention to his district, working across parties and better communication with residents. Pennington puts the focus on financial transparency, holding landlords responsible for rental properties, homelessness, and raising money without new taxes through grants and entertainment venues [32, 33].
  • No candidate forums or debates for this race were found in sources reviewed.

Candidates on the ballot

Tom Pennington

Democratic

Democrat Tom Pennington is a therapist with management experience and a small real estate business. He says he would push for financial transparency, landlord accountability and ways to raise money without new taxes [33].

Pennington's background

  • Listed as Thomas J. Pennington. He reports 28 years in industry and 23 years as a therapist, including work as a manager, supervisor and front-line mental health and addiction provider [33].
  • Says he has run a small real estate business for 30 years; certified ESL teacher [33].
  • Holds an MBA in healthcare administration, a bachelor's degree in psychology and an associate degree in computer information systems [33].
  • Says he has worked as a poll worker three times [33].

Pennington's positions

Transparency

  • Wants county government, especially its finances, to be more transparent. He proposes a moderated online forum and public meetings at times working people can attend [33].

Budget & taxes

  • Wants to find revenue that is not tied to taxes: a grant-writing task force, a review of the downtown revitalization project and bringing entertainment venues to the county [33].

Zoning & land use

  • Wants landlords held responsible for their rental properties and a ban on renting unsafe or unsanitary properties [33].
  • Wants to address the growing homeless population and find ways to include homeless residents in the community [33].

Economic development

  • Sees the county's colleges and park system as draws that could be marketed outside the county; wants to make the area more attractive to new residents [33].

How Pennington would run the office

  • Set up a grant-writing task force and look for non-tax revenue [33].
  • Create a moderated online forum and hold meetings at more convenient times [33].

Pennington on the current officeholder

  • Open seat. Pennington says too many county offices are decided by a small share of voters, "only 20% of the electorate," and wants changes to state voting rules such as ending straight-ticket voting [33].

How Pennington got on the ballot

  • Filed as a Democrat for District 4 and was unopposed in the May 5, 2026 primary [30, 28].
  • Listed on the Wayne County general-election sample ballot [29].

What we could not find about Pennington

  • No campaign website found.
  • No specific positions found on SEA 1, the local income tax decisions, roads or the jail.
  • No endorsements or campaign finance reports were found in sources reviewed.

Sources for Pennington

Richard K Tincher

Republican

Republican Richard K. Tincher is a former Centerville clerk-treasurer with a background in insurance, rental property and retail. He says he would focus on spending tax money carefully and on improving communication with residents [32].

Tincher's background

  • Former general manager and business owner in the insurance industry; has managed residential rental properties and worked in and owned furniture and flooring stores [32].
  • Served as Centerville clerk-treasurer, where he handled the town's budget and funds; he says he left that office in 2024 [32].
  • Connersville High School graduate (1981); insurance trade schools and continuing education, including Indiana government classes [32].

Tincher's positions

Budget & taxes

  • Says the state and federal governments are giving counties more control over funds and that the council has a "duty to spend all tax money wisely" [32].
  • Wants to work with state and local governments to use resources wisely with the future in mind; cites experience turning struggling companies profitable [32].

Transparency

  • Says communication with the public needs to change; calls for "stronger, better communication with citizens" and invites residents to contact him directly [32].

County services & staffing

  • Wants his district to get the resources and attention it deserves [32].

How Tincher would run the office

  • Improve communication with residents about council decisions [32].
  • Work with other governments on use of resources and try to bring the parties together [32].

Tincher on the current officeholder

  • Open seat. Tincher says the council "works very well together" and has "the best interests of the public in mind" [32].

How Tincher got on the ballot

  • Filed as a Republican for District 4 and was unopposed in the May 5, 2026 primary [30, 28].
  • Listed on the Wayne County general-election sample ballot [29].

What we could not find about Tincher

  • No campaign website found.
  • No specific positions found on roads, the jail, data centers, solar or SEA 1.
  • No endorsements or campaign finance reports were found in sources reviewed.

Sources for Tincher

Key points

  • Open seat: incumbent Misty Hollis, appointed by caucus in January 2025, is not seeking re-election. (Western Wayne News)
  • Wayne County government adopted a $71.0 million budget for 2026, about $1,074 per resident; that is +45.1% compared with 2023. (Indiana Gateway for Government Units)
  • Legislative Services Agency estimate: the 2025 property tax law (SEA 1) changes the county government's net property tax levy by -5.9% versus prior law once fully in effect (2028, since delayed to 2029 by HEA 1210). (Indiana Legislative Services Agency)

Sources

Researched Sunday, October 11, 2026

  1. Indiana Code 36-2-3-2: County council as fiscal body; size (FindLaw (Indiana Code, current as of 2026-01-01))
  2. Indiana Code 36-2-5-2: Tax rates and appropriations (FindLaw (Indiana Code, current as of 2026-01-01))
  3. Indiana Code 36-2-5-3: Compensation of officers and employees (FindLaw (Indiana Code, current as of 2026-01-01))
  4. Indiana Code 36-2-3-4: Council districts and at-large members (FindLaw (Indiana Code, current as of 2026-01-01))
  5. Commissioners Responsibilities (Boone County, Indiana)
  6. About the County Council (Hancock County, Indiana)
  7. Indiana Code 36-2-3-1: Application of chapter (FindLaw (Indiana Code, current as of 2026-01-01))
  8. County Government Overview: Indiana (National Association of Counties (NACo))
  9. Indiana Code 36-2-3-3: Election and term of fiscal body (FindLaw (Indiana Code, current as of 2026-01-01))
  10. 2026 General Election Candidate List (Indiana Election Division)
  11. Monroe County voters put three incumbent Democrats back on county council (The B Square Bulletin (Dave Askins))
  12. Indiana Code 3-8-1-22: Candidates for county council (FindLaw (Indiana Code, current as of 2026-01-01))
  13. 2026 Indiana Candidate Guide (Indiana Election Division)
  14. Indiana Code 36-2-5-11: Annual budget, tax rate and salary ordinances (FindLaw (Indiana Code, current as of 2026-01-01))
  15. Indiana Code 36-2-2-5: Qualifications and residency of members; district or countywide election (FindLaw (Indiana Code, current as of 2026-01-01))
  16. Major Changes to Expenditure Rate of LIT in SEA 1 (2025) (Barnes & Thornburg LLP)
  17. Legislation Affecting Local Income Taxes (memorandum on HEA 1210-2026) (Indiana Department of Local Government Finance)
  18. County Specific Information (Indiana Department of Local Government Finance)
  19. Councilor braces for state changes (Western Wayne News)
  20. County budget already 'on the right track' (Western Wayne News)
  21. Wayne County Council minutes, August 25, 2025 (Wayne County, Indiana)
  22. 2026 Primary Election results: Moore, Retter win (Western Wayne News)
  23. 2026 General Election Sample Ballots (Wayne County Clerk)
  24. Final Republicans, Democrats file for office (Western Wayne News)
  25. Wayne County Council budget workshop minutes, September 29, 2026 (Wayne County, Indiana)
  26. Candidate Q&A: Richard Tincher (Western Wayne News)
  27. Candidate Q&A: Tom Pennington (Western Wayne News)
What's included
the U.S. House, statewide offices, every Indiana House and Senate district on the ballot, Indiana's statewide public questions and judicial retention questions, and county, township, city, town and school board races from the Indiana Election Division's candidate list.
Everything else
Local races (county, city, school board, judges) and anything else on your ballot are on your official sample ballot: IndianaVoters.in.gov.
Candidate lists
As of Sunday, October 18, 2026.
At the polls
Indiana law lets you bring a list of candidates and public questions into the polling place, including one stored on your phone, as long as you don't electioneer. IC 3-11-8-18.5

This is not an official ballot. Confirm your registration, polling place and ballot with your election office through vote.gov.