Burnham: Comprehensive Retail Plan by MIT DUSP

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CDC URBAN BUSINESS DISTRICTS PROGRAM

Village of Burnham Comprehensive Retail Plan University of Illinois at Chicago City Design Center Urban Business Districts Program, Volume 3 January 2005 - September 2005 Instructors:

Brent D. Ryan, Co-Director UIC City Design Center, Assistant Professor of Urban Planning and Policy, UIC

Rachel N. Weber, Associate Professor of Urban Planning and Policy, UIC

Research Assistant:

Johanna Nyden

Master Students:

Oscar Aguilera Amanda Eichelkraut Kathleen Gems Claire Gron John Honkala Anna Koch ChaNell Marshall Johanna Nyden Christopher Rickel Sarah Robinson Torsten Schmidt Sarah Wiebenson Michael Zabel

Editors:

Brent D. Ryan Rachel N. Weber T. Abraham Lentner

Design:

Michael Brown

For questions regarding this plan or for more information about the Urban Business Districts Program contact: City Design Center University of Illinois at Chicago 820 West Jackson Boulevard Suite 330 Chicago, IL 60607 phone: 312-996-4717

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BURNHAM COMPREHENSIVE RETAIL PLAN

TABLE OF CONTENTS

Acknowledgements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 Introduction. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5 Project Timeline and Methodology. . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 Existing Conditions Introduction to Burnham. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8 Retail Conditions. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .10 Urban Design Conditions. . . . . . . . . . . . . . . . . . . . . . . . . . . . .13 Transportation. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .17 Fiscal Conditions. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20 Environment. .. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .21 Conclusion. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23 Plan Principles. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24 District Plans and Recommendations Introduction to Districts. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .26 Marina District. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .27 State Street Gateway District . . . . . . . . . . . . . . . . . . . . . . . . . .32 Burnham Historic District. . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37 Implementation Strategies. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42

CDC URBAN BUSINESS DISTRICTS PROGRAM

ACKNOWLEDGMENTS

The City Design Center Burnham Comprehensive Retail Plan Team gratefully acknowledges the contributions of institutional and community partners who participated in the Burnham planning process. We would especially like to recognize the contributions and cooperation of the Village of Burnham, including Robert E. Polk, President; Richard Matuga, Esq. Village Attorney; and Elward B. Verrett, Village Trustee and Former Village President.

We would also like to thank Marcus Arnold, Gina Caruso, Tasneem Chowdhury, Charlie Hoch, Kazuya Kawamura, Judith Kossy, Bridget Lane, and Jim Peters. Mary Clumpfer and Adam Jones of Robinson Engineering deserve our special thanks for their assistance.

VILLAGE OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BU OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BURNHAM BURNHAM VILLAGE OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BURNHAM VIL VILLAGE OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BURNHAM VILLAGE OF BU

BURNHAM COMPREHENSIVE RETAIL PLAN

INTRODUCTION The Village of Burnham is located on Chicago’s southern border

During the spring of 2005, students in a UIC Master’s in Urban Plan-

between the Little Calumet and Grand Calumet Rivers. The community

ning studio class conducted baseline analysis, undertook detailed

has a rich history tied to Al Capone and the prohibition bootleggers of

research in priority areas, and formulated recommendations for Burn-

the 1920s. Burnham possesses a variety of other amenities including

ham. Students worked in teams and examined economic and physi-

the Burnham Woods Golf Course, the Burnham native prairie preserve,

cal factors influencing the community’s retail districts. The class was

and close proximity to the busiest commuter rail station on the South

geared toward advanced Master’s students specializing in physical

Shore Line.

planning and economic development and was assisted in its relations

Burnham is at a critical juncture. The community relies heavily on its

with the Village by a class research assistant.

residential property taxes to support municipal services while many

This plan recommends the redevelopment of Burnham’s waterfronts

commercial areas are vacant and do not contribute much sales tax

into new recreational areas that anchor neighborhood shopping

revenue. Many of the residents’ shopping needs are not met locally.

districts and stimulate new residential development nearby. Other

The Village has had little new construction in the last 40 years and its

important aspects of the plan include integrating the local commuter

retail districts are characterized by a placeless feel.

rail station into the urban fabric and updating and improving the

This plan, commissioned by the Village of Burnham in the fall of 2004, recommends ways for Burnham to improve the physical environment and economic performance of its retail corridors. It is intended as a visionary and action-oriented guide for future planning efforts in the community. This plan comprises the third volume in the City Design Center’s Urban Business Districts Program. The Program was created

appearance of commercial districts. This plan reflects the outcome of a nine-month partnership between the Village of Burnham and the University of Illinois at Chicago. We are confident that with time and continued effort the Village of Burnham can significantly enhance its retail corridors, and that this plan will serve as an effective and clear roadmap toward that goal.

in 2003 to provide planning assistance for disinvested commercial dis-

Prof. Rachel N. Weber

tricts in the Chicago region. The principal product of the program is a

Prof. Brent D. Ryan

comprehensive retail plan. The Program’s planning process creates a revitalization plan that is designed to enhance the livability, appearance,

September, 2005

and economic viability of the retail district. CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER

CDC URBAN BUSINESS DISTRICTS PROGRAM

PROJECT TIMELINE AND METHODOLOGY Over the course of a 15-week semester, UIC graduate students in the

obstacles that would shape the future of development in Burnham. After

UPP 535 Revitalizing Urban Business Districts course researched and

six weeks of research, analysis, and site visits students presented findings

analyzed a variety of data in order to develop retail planning recom-

to the Village on March 1, 2005. This presentation provided an overview of

mendations for Burnham. The process included three phases:

the existing conditions and critical issues. This information is summarized

Phase 1: Baseline Analysis and Critical Issues

in the Existing Conditions Chapter (page 8).

(January – February 2005)

Phase 2: Planning Principles

Students in the course were divided into five functional groups to

(March 2005)

research the existing conditions and critical issues facing the Village’s

The baseline analysis of Burnham’s retail environment allowed the UIC

retail environment. The groups were: (1) retail, (2) design and regula-

students to identify three retail districts in the Village, each with its own dis-

tions, (3) transportation, (4) fiscal conditions, and (5) environment.

tinct challenges. Students worked together in “district” groups to gather

Student research and analysis included:

detailed information about each specific retail district. The groups devel-

•

Existing business inventories

oped guiding principles, presented on page 24, for new development in

•

Shopper preferences surveys

Burnham.

•

Village retail trade area analysis

•

Zoning code reviews pertaining to parking and commercial development and overall land use and building density

•

Review of signage and other defining aesthetic qualities

•

Traffic counts on principal arterials

•

Analysis of public transportation and pedestrian accessibility in the Village’s retail areas

(April – August 2005) Students developed innovative physical planning and economic development recommendations to realize the vision for each retail district. The students presented these plans to the Village on April 21, 2005. Planning recommendations for each district are presented beginning on page 26.

•

Assessments of Village finances

Students then examined the options available to the community and

•

Natural and open space assessment

developed implementation strategies to accomplish the planning goals.

The goal of this research was to identify the important assets and

Phase 3: Plan Recommendations and Plan Production

Implementation strategies, including regulatory, fiscal and organizational

BURNHAM COMPREHENSIVE RETAIL PLAN

PROJECT TIMELINE AND METHODOLOGY reforms, were proposed in phases to match the Village’s resources and needs. These strategies are presented in the final chapter of the plan (page 42). During the summer following the 15-week course, City Design Center Staff incorporated the research, principles, recommendations, and implementation strategies developed by students to create the final comprehensive retail plan document which you hold in your hands.

Figure 0.1 UIC students made many trips to Burnham to assess conditions

CDC URBAN BUSINESS DISTRICTS PROGRAM

EXISTING CONDITIONS This section contains pertinent information about the Village of Burnham and describes the conditions affecting the retail environment. These conditions are described in five categories: (1) current retail conditions, (2) urban design and land use regulations, (3) transportation, (4) Village finances, and (5) environmental conditions. Introduction to Burnham The Village of Burnham is a small Cook County municipality located immediately south of the City of Chicago on the Indiana-Illinois border. The Village shares its western and southern borders with Calumet City, Illinois. It is approximately 20 miles south of Chicago’s central business district and 27 miles from Chicago’s Midway Airport. Burnham is accessible by nearby expressways and arterial roads and is fairly well-served by public transportation. Like other municipalities in the south suburban region of Chicago, Burnham’s character has been defined by its industrial history. When it was founded in 1907, Burnham was a small village of only 500 inhabitants. It grew rapidly in the early twentieth century as workers from factories in the region made their homes in and around Burnham. The Village of Burnham played an important role during the Prohibition era. Its location outside of the City of Chicago and proximity to the Indiana state line made the Village a popular destination for Al Capone and

Figure 1.1 Map of Burnham

his associates. Burnham became notorious for its “Boy Mayor,” John Patton, who profited from the various illicit activities that occurred in the Village.

BURNHAM COMPREHENSIVE RETAIL PLAN

EXISTING CONDITIONS

Today, Burnham has remained a village in terms of its size -- 4,170 inhabitants, with an increase in population of 6.5 percent during the 1990s (1990, 2000 U.S. Census). US Census data indicates that, on average, Burnham is demographically similar to its immediate neighbors but has some differences from the County overall. Burnham has a slightly younger population than the Cook County average with a median age of 35.7 years, compared to 36.6 years for all of suburban Cook County (see Table 1.1). The percentage of African-American Table 1.1 Data from the 2000 US census

residents in Burnham increased from 16.2 percent in 1990 to 54.2 percent in 2000. The Village’s increase in Hispanic residents during the same years was relatively small, increasing from 14.2 percent to 15.2 percent of the population (see Table 1.2). While Burnham and neighboring communities have comparable median household incomes, they were lower on average than the rest of suburban Cook County (see Table 1.1). In 2000, Burnham employment figures were also slightly below the County average. As noted by the 2000 U.S. Census, the workforce participation rate in Burnham was 59 percent

Table 1.2 Racial and ethnic demographics from the 2000 US Census

compared to 64 percent of all Cook County residents and the unemployment rate was 1.3 percentage points higher than the County average of 4.8%. In 2000 the largest portion of employed Burnham residents worked in the education, health, and social services industry (21.1 percent), manufacturing (12.0 percent), and the transportation and warehousing, and utilities information industry.

CDC URBAN BUSINESS DISTRICTS PROGRAM

EXISTING CONDITIONS Retail Conditions Business inventory Burnham has only a few retailers in its commercial areas to serve the

The UIC team found that businesses are concentrated in three main areas

community and the commuters who pass through the Village daily.

of Burnham. The first concentration is located in an older part of the Vil-

In 2005 there were 85 business establishments in Burnham, accord-

lage, near Chicago’s Hegewisch neighborhood along Burnham Avenue.

ing to the business inventory conducted by the UIC students. The

This area shows evidence of neighborhood-oriented retail activity since the

majority (65 percent) of businesses in Burnham are service-oriented,

early twentieth century. Current retail uses in this area include automotive

primarily construction contractors. Twenty-five percent of the busi-

businesses and some mixed-use storefront retail.

nesses in Burnham are retailers, including local restaurants and eateries, and the remaining 10 percent consists primarily of industrial uses.

Figure 1.2 Burnham’s commercial areas

BURNHAM COMPREHENSIVE RETAIL PLAN

EXISTING CONDITIONS

The second retail area is along Torrence Avenue, one of the main

Business and customer surveys

north-south arterials, and on the bank of the nearby Little Calumet

A survey of shoppers and business managers in Burnham was admin-

River. Along the river on Croissant Drive there is one restaurant and

istered by students to gather perceptions and preferences concerning

one bar, bolstered by the nearby marina and waterfront. There is

the retail districts in Burnham. In total, 34 shoppers were surveyed.

also a concentration of automotive businesses on the northern por-

Burnham shoppers indicated that they typically traveled more than

tion of Torrence Avenue, some of which operate as retailers.

five miles to buy groceries. The standard that urban planners con-

The third business concentration is located along the southern

sider reasonable for convenience shopping (e.g. groceries) is two

border of the Village on State Street near the intersection of State

miles. These results indicate that Burnham shoppers and residents

and Torrence Avenue. This location hosts a range of businesses in

are spending more than a reasonable amount of time traveling for

an auto-oriented “strip mall” fashion and has the greatest number of

their everyday shopping needs.

retail establishments of all the commercial districts in the Village.

According to survey results, the most desired business was a dis-

Burnham’s three business concentrations face stiff competition from

count grocery store. The second and third most commonly desired

other business districts in the region. There are major retail areas in

businesses were a video rental or game store, and a sit-down, 24-

Calumet City along Sibley Boulevard and Route 6, near the Bishop

hour restaurant. Other desired businesses included a pharmacy,

Ford Expressway, on Torrence Avenue from River Oaks Mall past

cell phone store, shoe store, clothing store, health club, currency

I-80, and along Calumet Avenue in Hammond, Indiana. Additional

exchange, and a stationer.

competing retail concentrations in Calumet City run south along Torrence and Burnham Avenues. Market analysis and customer surveys indicate that this competition is drawing many shoppers away from Burnham.

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CDC URBAN BUSINESS DISTRICTS PROGRAM

EXISTING CONDITIONS Market analysis In order to determine the economic viability of new stores in Burnham, the UIC students compared consumer spending to the estimated retail sales in and around the Village. These calculations were performed for areas within a five-mile and two-mile radius of Burnham for a variety of retail categories. Differences between consumer spending and retail sales indicated either a surplus or shortage of convenient shopping venues within the trade area. The UIC students’ analysis reveals that the area within five miles of Burnham (138,500 residents) is sufficiently served by businesses providing groceries, videos, games, and restaurants. However, within two miles of Burnham, the market (34,500 residents) is underserved (Figure 1.3). This analysis provides evidence that Burnham residents

Figure 1.3 Market analysis for three types of desired businesses

are traveling long distances to shop and that additional local retailers could satisfy their convenience retail needs. Based on Urban Land Institute (ULI) data, grocery store sales are estimated to be $9,000,000 annually in the market area within two miles of the Village center. However, the potential expenditures by residents of this market area for grocery goods are approximately $37,000,000 annually. This means that only 25 percent of the spending potential for groceries is captured by grocery stores within the two-mile radius and that many Burnham shoppers must travel excessive distances to buy groceries.

BURNHAM COMPREHENSIVE RETAIL PLAN

EXISTING CONDITIONS Analysis of supply and demand for sit-down restaurants reveals that there is an unmet demand in the two-mile market area around Burnham. Based on shopper surveys in Burnham, demand for dining establishments spans a broad range of restaurant types, including Chinese, Mexican, sandwiches, and fine dining. Estimated annual spending on dining by local residents is estimated at $10,000,000. Unfortunately, only about 50 percent is captured by businesses within the market area, indicating that Burnham is underserved by restaurants.

Urban Design Conditions Existing Physical Conditions The design of Burnham’s retail districts is largely the result of the regulations that have guided site planning in the Village over the past several decades. Before World War II, Burnham had an active and vibrant retail district in its northeastern corner, where a dense population supported small, pedestrian-oriented stores, many of whose buildings still exist today. However, most of the contemporary retail environment in the Village is composed of post-war, single story,

While the shopper surveys indicate that video or game stores are

single use buildings, the result of increased automobile use and

among some of the most desired businesses for Burnham, market

low-density construction. These districts contain a mix of industrial,

analysis reveals that most demand for this kind of retail is actually

commercial and residential structures.

being met. Within the two-mile radius around Burnham, video and game stores are capturing $615,000 annually in sales, while demand for this type of store in the area is approximately $795,000 (according to ULI estimates). These figures suggest that 77 percent of the demand is captured within the local market area.

Along State Street and Torrence Avenue retail buildings are of an auto-oriented retail-strip design. Retail buildings are one-story and range from 100 to 150 feet in length and 30 to 50 feet in depth. Retail is concentrated along the busy State Street arterial to capture automobile traffic, but some retail is also located on Torrence Avenue.

In summary, the shopping needs of many Burnham residents are not

These structures are accessed through front parking lots or a five-foot

being met conveniently. Market analysis indicated that only 13 percent

sidewalk along the street. These buildings are architecturally modest

of the potential total annual retail expenditures by Burnham residents,

and have both pole and building mounted signs.

including items beyond groceries, videos and fine dining services, was captured by Burnham retailers, and the other 87 percent (or $28,000,000) was captured elsewhere. CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN 13 CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER

CDC URBAN BUSINESS DISTRICTS PROGRAM

EXISTING CONDITIONS Retail buildings on the east side of the Village are older and appear to have been built between 1910 and 1950. Though they have plain features, their historic character is appealing. Former Mayor John Patton’s home is among the highlights of the east side, and the ornamented, well-maintained façades of this building and others like it blend well with the surrounding older neighborhood. Many of the former retail buildings on the east side are vacant or have been converted away from retail, indicating a diminished demand for this type of retail space in the area.

Figure 1.5 State Street retail building

Figure 1.4 Restaurant near the marina

Figure 1.6 Converted retail structure on Burnham Avenue

BURNHAM COMPREHENSIVE RETAIL PLAN

EXISTING CONDITIONS Zoning Regulations In Burnham, two sets of regulations most directly influence the design

could be developed either for a commercial use, such a grocery, or for

of the built environment: (1) village density and setback regulations,

a residential use like a single-family house or an apartment building.

and (2) parking requirements. Both sets of regulations are included

An industrially zoned parcel gives an owner or developer even more

in the Village zoning ordinance. Currently, Burnham uses a form of

flexibility because that parcel may be developed for industrial, com-

zoning known as “step-down zoning.” This means that Village land

mercial, or residential uses. Residential districts are the only districts

zoned for a particular use can be occupied by that specific use or

where uses are restricted to that specific use. The widespread appli-

by any other less-intensive use. In other words, parcels zoned as

cation of commercial and industrial zoning has permitted mixed uses

industrial are the least restrictive, and residential parcels are the most

throughout the Village. This mix has also shaped the Village’s retail

restrictive. For example, a commercially zoned parcel in Burnham

corridors where housing, non-retail services, and retail all coexist.

Figure 1.7 Current zoning map for Burnham CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN 15 CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER

CDC URBAN BUSINESS DISTRICTS PROGRAM

EXISTING CONDITIONS Burnham’s zoning ordinance also defines the bulk and placement of structures built in the Village. The ordinance is permissive and does not favor either pedestrian or auto-oriented retail. However, parking regulations for Burnham commercial buildings are high, requiring one parking space for every 50 to 75 square feet of commercial uses. In contrast, the American Planning Association suggests that for retail areas comparable to Burnham’s shopping districts, five to ten parking spaces should be allotted for 1000 square feet of usable retail space. If applied to Burnham, this standard would require a 10,000 square foot retail building—similar to the size of existing buildings on State Street—to have only between 50 to 100 spaces as opposed to the 133 to 200 spaces currently required. The Village parking code also requires each parking space be 180

Figure 1.8 Residential structures on State Street

square feet, with another 120 square feet provided for maneuvering for a total of 300 square feet per space. In order to accommodate the minimum of 133 parking spaces required for a 10,000 square foot

In sum, Burnham’s zoning and parking requirements have encouraged

development, a 39,900 square foot parking lot would be required.

the development of an auto-oriented, low-density retail district. Burn-

Because parking regulations for commercial uses require a large size

ham’s retail lots are effectively limited to approximately 20 percent lot

and number of parking spaces, they effectively mandate minimal lot

coverage, or 0.2 Floor Area Ratio (FAR), the current standard measure-

coverage and large building setbacks. The zoning envelope in Burn-

ment of development density. This is much lower than the allowable

ham restricts the height of commercial developments to 35 feet, or

FAR of places like Arlington Heights (2.5) or Calumet City (0.8). These

approximately three stories; structures may not occupy more than 90

regulations may therefore be severely limiting development in Burn-

percent of the lot area; and rear yards of not less than 10 percent of

ham’s retail districts.

lot depth or at least 10 feet—whichever is less—are required; as well as at least three feet of yard space on each side.

BURNHAM COMPREHENSIVE RETAIL PLAN

EXISTING CONDITIONS Transportation Reflecting its advantageous location immediately adjacent to Chicago, Burnham has access to multiple modes of transportation. Roadways, passenger and freight rail, and a bikeway provide diverse means of access to and through the community. Burnham benefits from high traffic volumes and busy transportation nodes which could bring many new customers to Burnham businesses. Roadways Burnham is located near the 130th Street East and Dolton Road exits on the Bishop Ford Expressway (I-94). This interstate highway conSouth Shore Line

nects to other major highways such as the Dan Ryan and Chicago Skyway. The Village is also traversed by several major south suburban arteri-

To South Bend Airport

als. The American Association of State Highway and Transportation Officials (AASHTO) defines arterials as regionally important roads that see a significant amount of through-traffic. Major four-lane arterials in the Village include Burnham Avenue, Torrence Avenue, Brainard Avenue, and State Street. Currently these arterials are not used to their fullest capacity. An optimum level of capacity for arterials of this kind is about 24,000 automobiles per day. In 2003, however, the Illinois Department of Transportation recorded approximately 20,000 automobiles traveling along Burnham Avenue, 19,000 automobiles

Figure 1.9 Transportation maps showing arterials and traffic counts (top) and the South Shore Line (bottom) which carries thousands of commuters through the Hegewisch Station daily

traveling along Torrence Avenue, and 18,000 automobiles traveling along State Street daily.

Transit: commuters CITY DESIGN CENTERThousands CITY DESIGN of CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER utilize nearby Hegewisch Station DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY C D CCITYUDESIGN R B CENTER AN B UDESIGN S I NCENTER E S SCITYD I S CENTER T R I CCITY T DESIGN S P CENTER R O GCITY R DESIGN A M CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN to CENTER DESIGN CENTER CITY DESIGN to travel work CITY daily.

17 CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER

EXISTING CONDITIONS All of these roadways experience higher volumes of traffic to the south in Calumet City. The current arterial roadway configuration encourages motorists to drive through Burnham to Calumet City rather than turn toward Burnham’s State Street. Most significantly, the Village’s large viaduct on Burnham Avenue over State Street funnels automobiles directly into Calumet City. Motorists can reach the western portion of Burnham on State Street only by using awkwardly configured off-ramps. Parking analysis Five parking lots along State Street were surveyed on one weekday and one weekend. On the sampled weekday the parking lots exam-

Figure 1.10 The configuration of curbs, sidewalks and parking lots creates confusion for motorists and pedestrians

ined were roughly 20 percent occupied. On the sampled weekend, lots were 31 percent occupied. The UIC team concluded that while parking in Burnham is plentiful, it is unevenly distributed throughout the Village and retail areas. The current physical configuration of the large parking lots in Burnham discourages both pedestrian and car traffic. Most retail buildings lack a clear delineation of sidewalk, street, and parking areas. Parking spaces in retail areas are often not clearly marked which leads to confusion for motorists and inefficient parking arrangements in retail areas. Numerous curb cuts are also common which makes navigating in and out of parking lots more challenging. Figure 1.11 Poor delineation of vehicle and pedestrian space

BURNHAM COMPREHENSIVE RETAIL PLAN

EXISTING CONDITIONS Transit and Passenger Rail Burnham has reasonable levels of access to public transportation services from three transit agencies. The Northern Indiana Commuter Transportation District (NICTD), a northwest Indiana commuter rail system running between South Bend, Indiana to Chicago’s downtown, has its Hegewisch station located just north of Burnham in Chicago. This station has the largest volume of passengers on the South Shore Line, with 1,500 individuals using the station on a daily basis. Pace Bus Routes 355 and 358 also serve the Village. Finally, the Chicago Transit Authority (CTA) offers a single express bus route (X99) between the Ford Supplier Plant in Chicago and the 95th Street Figure 1.12 Inconsistent pedestrian access

El station. This service does not stop in Burnham, but serves the adjacent Hegewisch neighborhood of Chicago. Despite these bus routes, there were no bus stop signs or shelters in Burnham when surveyed by the UIC team. Bikeways Many of Chicagoland’s older railway corridors are being converted to bicycle and pedestrian pathways, and Burnham is benefiting from this movement. Village residents have recently acquired access to a regional bikeway system that runs north and south through central Burnham. When complete, the Burnham Greenway Trail System is envisioned to be part of a comprehensive bike trail that will link Burnham to other south suburban communities.

Figure 1.13 Burnham Greenway bicycle trail CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN 19 CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER

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EXISTING CONDITIONS Fiscal Conditions The number and type of businesses in a community, or “commercial mix,” directly impacts a community’s fiscal health. UIC retail market analysis and customer surveys indicate that Burnham’s current retail mix captures only a portion of resident and commuter spending. This retail leakage results in a loss of potential sales tax revenues and an over-reliance on property taxes. Property and Sales Tax Revenue The 2003 fiscal audit by the State of Illinois lists the only sources of revenue for Burnham as property taxes, sales taxes, licenses and permits, and fines and forfeitures. No revenue was obtained by the municipality for utility taxes, charges for services, or any other taxes.

Figure 1.14 Burnham municipal revenue

Other communities, such as Calumet City and Lansing, rely on more diverse sources of revenue. In fiscal year 2003, the Village received almost three-quarters of its revenues from property taxes. Because of this reliance on property taxes, Burnham property owners pay for a greater share of Village services than property taxpayers in communities that collect a greater portion of total revenues from sales taxes. Property owners in all of the surrounding communities pay less property tax per capita.

BURNHAM COMPREHENSIVE RETAIL PLAN

EXISTING CONDITIONS Environment Business Climate and Tax Jurisdiction

Much like its built environment, Burnham’s natural environment is an

The lower sales tax rates in nearby Indiana may dissuade some

untapped resource. One of Burnham’s greatest natural assets is its

types of businesses from locating in Burnham. This is an important

frontage on the Little Calumet River. This riverfront contains a marina

consideration for businesses that must pay or collect sales taxes for

with access to the Little Calumet River, park space, and a bar and

their merchandise.

restaurant in close proximity to North Torrence Ave. The marina area

Lower sales tax rates in Indiana also mean lower prices for potential customers. Like much of Cook County, Burnham has a sales tax rate of 8.75% on general merchandise and 2% on food and medication. In comparison, Indiana has a flat sales tax rate of 6% on general mer-

currently has a boat launch area and four slips. Low visibility, limited accessibility, and potential environmental contamination currently limit the contributions of Burnham’s environmental assets to its economic vitality.

chandise and food and medicine are exempt from sales tax. Addition-

Burnham has other environmental assets. Powderhorn Lake, located

ally, sales taxes on gasoline, alcohol, and cigarettes are all significantly

on the northern side of Brainard Avenue, provides walking paths

lower in Indiana than in Illinois. Customers are often willing to travel

and natural landscapes that are home to many types of flora as well

further to find a lower price on many goods, and Indiana municipalities

as various forms of wildlife. The lake is a wildlife habitat and envi-

will have a locational advantage over Burnham. However, both per-

ronmental resource as one of the last natural wetlands in the south

sonal and corporate income tax rates are slightly lower in Illinois than

suburbs. Burnham Prairie is a natural, mostly untouched wetland.

in Indiana, which could help to compensate for the disparity between

Unfortunately, the Prairie is largely inaccessible from both the east

sales tax rates in the two states.

and west sides. The Prairie has a legacy of industrial pollution, which will likely impact future development in this part of the Village.

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EXISTING CONDITIONS Historically much of Burnham’s land was used for industrial purposes, and a great deal of contamination occurred throughout the municipality. Over the years there was widespread destruction of natural habitats and waterways due to industrial uses. Contamination includes air emissions, water contamination, and leaking underground storage tanks. Remediation may be necessary to restore some of these parcels, such as those along Torrence Avenue, to a developable state.

Figure 1.16 Marina amenities

Figure 1.15 Scenic Powderhorn Lake

Figure 1.17 Picnicking area along Little Calumet River

BURNHAM COMPREHENSIVE RETAIL PLAN

EXISTING CONDITIONS Existing Conditions Conclusion Despite its close proximity to Chicago and unique history, Burnham,

Burnham’s retail districts have the potential to benefit from close

like many other inner-ring suburban communities, faces some criti-

proximity to Chicago, access to many natural amenities, and a high

cal physical planning and economic development issues. Although

volume of traffic moving along its arterials. However, Burnham’s frag-

Burnham has had a colorful history, much of the Village lacks a

mented retail environment and close proximity to lower taxed goods

distinctive historic appearance. Many Burnham neighborhoods

in Indiana create a challenge to capturing a greater share of shoppers

were developed after World War II according to low-density zoning

and revenue. Burnham’s zoning regulations restrict retail develop-

guidelines. Today the resulting low-density, auto orientation of the

ment by requiring low-rise structures with high parking requirements.

housing and commercial districts provides the Village with neither a

Finally, Burnham does not fully capitalize on its close proximity to

traditional downtown nor a distinctive sense of “place.”

Chicago and the Hegewisch South Shore Line station.

Burnham’s physical environment is also divided by the multiple

The next three sections of this plan offer recommendations and strat-

railways and waterways that traverse the Village. Although they are

egies to address critical issues and unlock new retailing opportunities

integral for the area’s economy, the bridges, viaducts, and at-grade

in the Village. The plan accentuates the historic, natural, infrastruc-

rail lines can make cross-town shopping trips more difficult. The

tural, and economic strengths of the Village of Burnham.

physical and economic underperformance of the Village’s retail districts contribute to a lack of sales tax revenues and an overreliance on property taxes.

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PLANNING PRINCIPLES The UIC team proposes a comprehensive approach to planning in Burnham. This approach is designed to improve the physical environment and retail competitiveness of Burnham. The four principles guiding the recommendations include: 1. Placemaking: The physical design of the retail environment should enhance the appearance and character of the Village’s commercial districts. • Create attractive and distinctive retail districts in Burnham. An aesthetically-pleasing streetscape is critical to attracting and supporting retailers. • Improve the pedestrian environment to allow shoppers to safely and comfortably walk through Burnham and connect to nearby communities.

Figure 2.1 Create a sense of place

• Change land use regulations to allow property to be more efficiently used. 2. Capture New Revenue: Retail development should capture additional revenue and shoppers in order to diversify the tax base and support development. • Capitalize on close proximity to major transit stations. Transitoriented development can take advantage of the purchasing power of the high volume of rail passengers. • Redevelop nonviable retail areas for residential uses. Vacant land that is not viable for retail development should be reused for residential developments.

Figure 2.2 Use the train station to capture more shoppers

• Develop a diverse set of funding mechanisms. A diversification of the tax base will improve the overall financial health of the Village.

BURNHAM COMPREHENSIVE RETAIL PLAN

PLANNING PRINCIPLES • Organize business owners. Retail districts need business leadership that can promote the area to capture a greater amount of local retail expenditures. 3. Attract New Customers: The retail districts should be accessible, convenient and attractive to draw in both resident and non-resident shoppers. • Plan for increased traffic. Successful redevelopment of Burnham should capture an increased number of travelers through the village. • Major arterials should be used to attract regional and national retailers through more auto-oriented development. Figure 2.3 Bring shoppers into Burnham

• Reduce parking areas. Parking requirements should meet, not restrict, retail development needs in Burnham. • Promote transportation choice. Providing equal access to motorists and pedestrians is critical to diversifying the retail market. 4. Enjoy the waterfront: Burnham’s distinctive waterfronts should be developed and made accessible for recreation while respecting their natural features. • Develop recreation along the waterfront. Burnham’s riverfront is an untapped resource for public enjoyment, revenue growth and natural beauty. • Improve access to the marina. Vehicular access is essential for transporting boats and recreational equipment to the riverfront. • Improve visibility of the riverfronts. Newly developed recreation and retail areas should be advertised in and around Burnham.

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DISTRICT PLANS Introduction For planning purposes, the UIC students divided the Village of Burnham into three districts: (1) the Marina District, (2) the State Street Gateway District, and (3) the Burnham Historic District. •

The Marina District includes retail along North Torrence Avenue and the neighborhood between North Torrence Avenue and the Little Calumet River. It is proposed to be an entertainment oriented district that will take advantage of Burnham’s location along the Little Calumet River and provide riverfront retail and recreational activities.

•

The State Street Gateway District includes retail along State Street and the area just north of the Torrence Avenue and State Street intersection and contains strip-mall storefronts. It should become a vibrant retail corridor that will be a major point of entry into Burnham with both neighborhood and regional retailers.

•

The Burnham Historic District includes the neighborhood along Burnham Avenue next to the Burnham Woods Golf Course and immediately south of Chicago’s Hegewisch neighborhood. This area has Burnham’s original street grid and older building stock. This plan recommends a neighborhood convenience retail district that will take advantage of the pedestrian friendly streetscape and proximity to a commuter

Figure 3.1 Redevelopment concept for the Marina District

rail station.

BURNHAM COMPREHENSIVE RETAIL PLAN

DISTRICT PLANS

Development in this area should follow two patterns: (1) neighbor-

Marina District Redevelopment in the Marina District should unite North Torrence Avenue and the riverfront. This plan proposes to transform the riverfront into a thriving recreational and entertainment district; a year-round destination for people of all ages. During the summer this area can be used for outdoor picnicking, recreation, walking, dining, and water-related activities. In the winter this area will provide ice skating, indoor dining, and shopping opportunities.

hood retail and (2) regional retail. Neighborhood retail should serve the existing neighborhood, be easily accessible to pedestrians, connect well with the urban fabric of the neighborhood, and include small retail establishments. Regional retail should serve a wider regional or multiple municipality market, be automobile oriented, and be located along major arterials of the municipality. The retail business development strategy for Torrence Avenue should focus on attracting a larger regional market. The auto-oriented nature

Marina District: Retail

of the district supports regional retail building formats with larger

The commercial establishments in the Marina District should serve three

building footprints or drive-throughs which would be appropriate for

purposes: (1) complement the Marina, (2) capture regional traffic, and

this district. National retail chains should be targeted because exist-

(3) serve the everyday needs of Burnham residents.

ing independent establishments do not appear to have sufficient

This plan calls for the construction of approximately 180,000 square feet of new leasable retail space in the Marina District. This figure includes developments along North Torrence Avenue and the Little Calumet River. The majority of retail establishments should be concentrated on Torrence Avenue to maximize visibility and access, while restaurants and boat-related services should be located along the river.

appeal to capture non-local commuters. Some other proposed uses that could capitalize on Torrence Avenue’s heavy traffic volumes include “convenience retail” uses – a grocery store, a coffee shop like Caribou Coffee, a bank with automatic teller machines, gasoline and convenience stores and fast food establishments. Commuters could quickly grab a coffee or a breakfast sandwich on their way to work in the morning, or do their grocery shopping or stop for dinner on their way home in the evening.

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DISTRICT PLANS Commercial uses that complement the Marina would enhance the viability of this area as a recreational destination. A boat storage facility, a boat repair shop, a general store, and a gasoline station would complement the marina. Additional retailers appropriate for northern Torrence Avenue include a small grocery store, fast food and carryout food and drink establishments, and a sporting goods store. Additionally, waterfront restaurants and bars will complement the Marina, allowing patrons to enjoy the scenery while dining and socializing. In addition to regional retail along North Torrence Avenue, the inclusion of facilities in which to store, service, and launch boats within

Figure 3.2 An example of a boat storage facility

close proximity of one another will make the new Marina a popular site for the region’s boat owners. Boat storage facilities should not use valuable waterfront property but should be located further inland. It is also important that new commercial development serve the everyday needs of Burnham residents so that they no longer have to travel considerable distances to do their shopping or to run basic errands. Some viable stores that would serve the everyday needs of Burnham residents could include a grocery store, dry cleaner, hair salon, daycare and nursery, a bank, and gasoline and convenience stores. Figure 3.3 Riverfront dining would add appeal to the Marina

BURNHAM COMPREHENSIVE RETAIL PLAN

DISTRICT PLANS Urban Design After redevelopment, the Little Calumet Riverfront will become a half mile

and a sidewalk system. Roads should be designed to accommodate

stretch of public park and a popular Burnham attraction. A long wooden

automobiles with boat trailers. Sidewalks should be installed to allow

boardwalk shaded by a row of trees will stretch along the riverbank

for extensive pedestrian access to the waterfront. When this district

connecting restaurants at each end to tennis courts, plazas and gardens

is fully developed a bus stop should be created at the waterfront

providing residents, visitors and boaters with a pleasant place to relax

to promote transit access to this district. This infrastructure will

and shop. This new waterfront amenity will anchor and strengthen the

provide the foundation for the development of new riverfront shops,

stores on Torrence Avenue encouraging attractive new development in

restaurants, and parks. All of these measures are ways to improve

Burnham.

access to the river, increase the number of slips, and prevent the

Achieving this vision will require many phases of development. The first

degradation of the river bank.

phase should include a Burnham-owned outdoor/indoor boat storage

Finally, once space is available for development and the infrastructure

facility on the currently vacant land west of Torrence Avenue and south

is in sound shape, new and enhanced waterfront amenities will draw

of 142nd Street. This indoor/outdoor structure would provide revenue

visitors to the Marina District. Two restaurants and a bar with com-

for the Village of Burnham as well as providing a vital service for the

bined outdoor, riverfront seating (30,000 to 40,000 square feet total)

marina. This new facility would free space currently occupied by boat

should be constructed just north of the boat repair and launch space.

storage and provide additional space for waterfront redevelopment.

This should expand current facilities into a state-of-the-art dining

The second phase of development should include infrastructure improvements to the waterfront and surrounding neighborhood following the development of a new boat storage facility. Public access

and drinking establishment. Access to these establishments can be through a wide boardwalk (10 feet or more). This boardwalk should be wheelchair accessible and offer unobstructed views of the river.

to the Little Calumet River is an essential feature for the success of this waterfront development. It will be necessary to reconstruct vital infrastructure such as riverbank erosion abatement, a boat launch, the dock system, a boardwalk along an accessible river bank, paved roads, CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN 29 CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER CITY DESIGN CENTER

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DISTRICT PLANS Improvement of the recreational facilities is an important part of the new vision for the district. A picnicking area in the northernmost area of the riverfront should connect Burnham’s open space assets with new riverfront development. This area, dubbed “the Northern Triangle,” would include a pavilion, a small playground, public grills, and recreational activities such as horseshoes or tables with a chessboard imprinted on the surface. Visitors and residents alike will enjoy the opportunity to sit along the river and have a picnic with the family or play chess with friends. The Village could also rent the park area for special events or hold festivals in this area. Basketball and volleyball courts built near the central plaza of the Marina District should be included in the recreational plan. These

Figure 3.4 Attractive waterfront amenities add additional appeal

courts could be converted into ice skating rinks during the winter and would create year-round activities. Volleyball courts generally are 3,500 square feet. Basketball courts can be as large as 6,200 square feet for full courts while half courts can be as small as 1,600 square feet. Public art and natural landscaping on the hillside opposite the riverbank in Calumet City should be used to enhance the visual appeal of this area. A region wide contest could be held among artists to offer creative solutions to make this former landfill more visually appealing. Antique boats could be used in this endeavor and should be located in the Northern Triangle. Landscaping that uses plant species native

Figure 3.5 Example of proposed trails and boardwalks

BURNHAM COMPREHENSIVE RETAIL PLAN

DISTRICT PLANS The redevelopment of the commercial parcels on Torrence Avenue could be concurrent with the waterfront and park development. The retail areas along North Torrence Avenue should be home to regional and national retailers that occupy larger, one- to two-story buildings with convenient and visible parking. Creating landscaped “buffer” zones that separate automobile traffic on Torrence Avenue from pedestrians and parking areas will make new development accessible for residents and commuters alike. The retail areas and the surrounding sidewalks should encourage pedestrian movement through textured crosswalks, sidewalk “bulbouts” that decrease pedestrian Figure 3.6 Distinctive signs can draw attention to attractions

crossing distance, and longer crossing lights at intersections. The redeveloped marina will become one of Burnham’s prized fea-

to Northeastern Illinois would represent the natural and environmental

tures and an important revenue-generating source. It is critical that

assets near this neighborhood center. Such landscaping has the dual

it is clearly advertised and highly visible to passersby on Torrence

advantage of being both distinctive and requiring less maintenance.

Avenue. Installation of arched signage over 141st Street at North

Storm water management is an important consideration for this development. Run-off from the new marina parking lots can be reduced by using innovative permeable paving materials. While permeable parking

Torrence Avenue will provide a large and highly visible advertisement for the Marina District. Directional signage, where appropriate, should be installed to more clearly mark the area as a distinctive district.

lots are generally more expensive to construct, they will help to protect the natural environment, contribute to a unique district character, and reduce storm water management costs.

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DISTRICT PLANS

State Street Gateway District The Gateway District in Burnham represents the heart of the Village’s retail activity. State Street attracts people of all ages to its take-out eateries and neighborhood-oriented goods and services, making it Burnham’s “main street.” This plan proposes several ways to enhance the district’s main street character. Public investment in the appearance and development of State Street will bring new businesses that serve

the local community. Relocating the Village Hall to State Street will be a signal that this corridor is the center of commerce and social life in the Village. New investment and prosperity will allow the Village to plan for a redevelopment effort in this district that improves the main street character of State Street and the drawing power of southern Torrence Avenue.

Figure 3.7 Proposed development concept for State Street

BURNHAM COMPREHENSIVE RETAIL PLAN

DISTRICT PLANS Retail In order to achieve this vision of State Street, it will be important for business development efforts to encourage retailers to locate in the appropriate place. New retailers coming to State Street should serve the local neighborhood with convenience goods. South Torrence Avenue stores, on the other hand, should provide comparison shopping and dining opportunities to a larger regional market. This division will allow each part of the Gateway District to conform to its surroundings, and together State Street and Torrence Avenue will provide a diversified and balanced retail environment. Figure 3.8 Example of proposed regional retail structures

Business recruitment efforts for State Street should focus on bringing new pedestrian-accessible stores that Burnham residents currently lack, such as convenience grocers and drug stores. While the new retailers should be the emphasis of the recruitment effort, the neighborhood should also have access to services like dry cleaners and salons. Much like northern Torrence Avenue, stores that depend on automobile access should locate on southern Torrence Avenue rather than State Street. The UIC shopper survey indicated that full service restaurants and Chinese take-out restaurants would encourage commuters to shop on Torrence Avenue.

Figure 3.9 Example of neighborhood retail

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DISTRICT PLANS The UIC team compared Burnham’s available retail space with the average size of different types of stores nationwide. The analysis indicated that the Gateway District could and should have larger store spaces to attract new retail. Much of the Gateway District’s 107,000 square feet of retail space needs to be renovated or redeveloped to meet the needs and tastes of today’s shoppers and retailers. Private redevelopment of the Gateway District should be regulated and managed to ensure that developers create the type of environment and character that supports the State Street’s neighborhood businesses. Urban Design This Gateway District has the potential to become an attractive, well-

Figure 3.10 Example of streetscape improvements

designed, densely developed retail center for the Village. Public investment in the infrastructure, streetscape, landscape and new signs will make the area more attractive and pedestrian-oriented. These improvements will create a sense of place and an identity for the Gateway District. Moving the Village Hall to the Gateway District will help catalyze improvements in the appearance and functioning of State Street. The Village Hall should be located here to indicate an institutional commitment to economic opportunity in general and State Street in particular. The move will improve the visibility of Village Hall and could improve the character of the Gateway district. Figure 3.11 Proposed streetscape configuration around Torrence and State

BURNHAM COMPREHENSIVE RETAIL PLAN

DISTRICT PLANS The Village Hall could be located on State Street, on what is now a vacant parcel to the east of the Citgo gas station. This would be the ideal location for Village Hall because it is visible and accessible from the intersection of State Street and Torrence Avenue, but does not occupy prime retail property. The design of the new Village Hall should reflect the desired character for State Street—a new two- to three-story government center near the sidewalk with rear parking. The architecture of this building should likewise exemplify the pedestrian-friendly “main street” character of the Gateway District. Landscaping can function as a traffic calming measure and can make Figure 3.12 State Street section under proposed configuration

the retail district more attractive overall. Trees, shrubs, landscaping and planters should be introduced as buffers between car, bicycle, and pedestrian zones. Likewise street-side amenities like decorative street lighting, benches, trash receptacles, bus shelters and bike racks can improve the appearance of the street and make the area more welcoming for shoppers. The Village should install high quality signs at the entrances to the Gateway District that will welcome new shoppers and retailers and allow Burnham to advertise itself. Such signs will help the community

Figure 3.13 Example of Gateway signage

make the most of the high traffic counts and considerable pedestrian activity at the heart of this district. The signs that businesses use should also be held to a high standard. Businesses’ signs and awnings should be uniform in appearance, height and materials and

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DISTRICT PLANS should be permitted only above the windows and doors of the busi-

Less parking is generally required in a neighborhood retail area than in

ness. The Village should limit the allowable size of signs so that

a regional parking area. Parallel street parking should line State Street

smaller, less obtrusive signs are used.

to provide convenient parking access to stores, calm traffic and place a

The construction or redevelopment of retail buildings in the Gateway District should conform to development standards that promote the character of the Gateway District. The key to a successful “main street” area on State Street is creating an environment conducive to foot traffic. To accomplish this, the district must appear safe, inviting and convenient from a pedestrian’s perspective. There are certain design elements that can be incorporated into new development as it occurs to promote this type of appearance. Storefront spaces should be built next to the sidewalk to make window-shopping convenient and accessible. The spaces between buildings should be minimal so that a trip from one store to the next does not appear far. Buildings that provide one or two floors of apartments or condominiums above ground level storefronts also create an inviting neighborhood shopping environment. This type of mixed-use development not only creates a built-in customer base

barrier between cars and the sidewalk, creating a more inviting pedestrian environment. Where additional parking is required, it should be unobtrusive and located behind or beside the building. Since State Street will be transformed into a more pedestrian oriented environment, the entrances to parking lots from State Street should be minimized by limiting the number of curb cuts to one per block. A bike lane can be added to State Street to connect the district with the Burnham Greenway Trail System to encourage bicycle use in the Gateway District and create a regional destination for area cyclists. When South Torrence Avenue receives private redevelopment interest it should be built to promote the same type of retail character as Torrence Avenue in the Marina District (see page 31). Allowing larger commercial buildings and sites that accommodate automobile traffic will help the Village to attract well-known regional and national retailers to this part of Burnham.

for new stores, but also promotes a level of activity beneficial to a neighborhood center shopping area. The zoning suggestions for a Neighborhood Retail Zone (see page 44) outline the types of regulations needed to guide the redevelopment of State Street towards a neighborhood-friendly shopping district.

BURNHAM COMPREHENSIVE RETAIL PLAN

DISTRICT PLANS

Burnham Historic District The Burnham Historic District will reflect Burnham’s notorious 1920s Prohibition-era character and use its available space for new shopping, residential and recreational opportunities. New development should remain within the scale of historic residential and commercial structures and reflect the unique historic character of the East Burnham neighborhood. The plan for the Burnham Historic District capitalizes on the neighborhood’s many distinct assets including history, transportation access, the golf course, and the underdeveloped riverfront. Four major changes are proposed in the Burnham Historic District plan: (1) a new retail development near the train station, (2) additional recreational opportunities at the Burnham Woods Golf Course, (3) new entertainment and retail near 143rd Street, and (4) new housing developments along the Grand Calumet River. Together, the redevelopment of these four areas will make the east side of Burnham vibrant and active.

Figure 3.14 Redevelopment concept for the Burnham Historic District

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CDC URBAN BUSINESS DISTRICTS PROGRAM

DISTRICT PLANS Retail Ample train ridership and automobile traffic could support a new retail development near the Hegewisch South Shore Line Station, at the intersection of Burnham and Brainard Avenues. The land just north of Chippewa Avenue should be developed for a 12,000 square foot neighborhood retail structure and a commuter parking lot. Such developments should accommodate commuter traffic and rail passengers as well as the local community with uses such as a convenience store, coffee shop, dry cleaners, and small video store. All-day commuter parking lots built next to the retail development

Figure 3.15 Example of new development near a train station

will encourage commuters to stop and shop in Burnham. A new, accessible and covered pedestrian overpass could connect the train station to the new retail development to provide easy access over the railroad tracks. According to an analysis of local demand and average retail sales figures from the ULI, a fully-leased development like this could generate as much as $21,000 per year in additional sales tax revenue for the Village. The second proposal for the Historic District involves expanding the recreational capacity of the golf course into a year-round recreational attraction. The commercial property near the golf course would

Figure 3.16 Historic objects can add appeal to the Historic District

benefit from the rising attendance to support additional retail activity. Working with the Cook County Forest Preserve District, the Village could help develop a number of additional amenities and expanded services that would increase attendance at the golf course.

BURNHAM COMPREHENSIVE RETAIL PLAN

DISTRICT PLANS

The golf course clubhouse should be expanded to offer new attractions. The clubhouse’s current eatery should be enlarged to better meet local demand. According to the UIC team’s market analysis, only 50% of the consumer restaurant spending in a two mile radius is captured locally. A full-service, all-hours restaurant would help satisfy some of this demand while also catering to the breakfast and lunchtime golf customers. The clubhouse should also feature a historical center with photographs and displays about Burnham’s Prohibition era and the history of the Lake Calumet region. The Figure 3.17 Example of a 1950s themed restaurant

clubhouse should include space for a gift store where visitors can buy historic-themed souvenirs in addition to a pro-shop for golfers. The expanded clubhouse should resemble the historic character of the district including 1920s-slyle lighting and signs to increase visibility from Burnham Avenue. The golf course is envisioned as an all-season family-oriented destination. New indoor and outdoor facilities should be included in the offerings of the golf course. The grounds should include gazebos, picnic areas, a playground and ball fields. A gym or larger recreational facility that includes areas for basketball, racquetball or a health club would provide opportunities for visitors to engage in cold-weather activities and make the golf course a year-round destination. These

Figure 3.18 The Burnham golf course could provide new and improved recreational opportunities

spaces could accommodate community gatherings and make Burnham Woods Golf Course a place for everyone to play.

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CDC URBAN BUSINESS DISTRICTS PROGRAM

DISTRICT PLANS At the corner of 143rd Street and Burnham Avenue, the UIC team

is proposed that this land be used to develop two-story 1,200 square

recommends the development of an 18,000 square foot retail and

foot town homes. It is estimated that approximately 200 units could be

entertainment complex. The development of a 1920s-era themed

constructed on the site. Design guidelines should be established that

mini-golf course could be a centerpiece of the development. The

ensure that new residences complement the historic character of the

put-put golf course obstacles could include elements like 1920s auto-

district. These new townhouses could be marketed as an opportunity

mobiles, zoot-suited bootleggers, or police wagons. Retailers that

to live on the waterfront between a prairie and a golf course with only

complement the family recreational amenities could be included in

a 32 minute train ride to downtown Chicago. A 10-foot wide nature

this development: new seasonal shops like an ice cream parlor with

trail along the riverfront for bicycles and pedestrians would protect the

outdoor seating would provide refreshments for visitors; and sporting

wooded character of the riverbank. The trail could also connect the

goods stores, restaurants and bars would all be good additions to

Burnham Greenway on the south to the Marina District’s bikeway on

this area and complement the recreational attractions. The style and

the north.

design of these retailers should be similar to shops from the early part of the twentieth century, such as a “soda-fountain” design of an

Many of the design interventions recommended for adoption on State

ice-cream parlor. The neighborhood around Burnham Avenue contains mainly homes and only a small number of businesses. Without a sufficient number of commuters coming through the community, the area’s resident population of 657 (in 2000) could not support new neighborhoodoriented retail development alone. Therefore, the fourth element of the Burnham Historic District plan is a set of residential develop-

Urban Design

Street could be beneficially employed in the Burnham Historic District. The recommendations for creating a neighborhood pedestrian-oriented shopping district (see page 36) would also help enhance the character and identity of the Burnham Historic District. However, the signs, streetscaping, architecture and street furniture should all have a “vintage” appearance to reinforce the historic character of the district.

ments along the Grand Calumet River. New residential development

The streetlights, signs, benches, and other public fixtures should incor-

would lift neighborhood property values and support new retail in

porate materials and design elements reminiscent of 1920s Burnham.

this neighborhood. There is approximately 14.5 acres of vacant or

Street lights that emulate early 20th century gas lamps and wrought iron

underutilized developable land along the Grand Calumet River. It

fences, trash cans and benches would promote the historic appear-

BURNHAM COMPREHENSIVE RETAIL PLAN

DISTRICT PLANS ance of the district. The “Welcome to Burnham” signs should be larger and highly visible to motorists and pedestrians and take the form of pillars or iron gates. Historic monuments and markers would be another valuable addition to the district. Monuments to historical personalities, like John Patton or Al Capone, or era-defining objects such as ModelT Fords should be placed along Burnham Avenue. These monuments would serve as eye-catching Historic District attractions in themselves. Landmark signs designating historic places should also be installed throughout the neighborhood. Such streetscaping and historical monuments and markers may also bolster pride in Village history. Figure 3.19 Historic District signs

Current commercial structures should be encouraged to embrace the historic design theme. Buildings in the Burnham Historic District that already have historic design elements can promote the district character and should be preserved and maintained. In addition, new 1920s-style design elements should be incorporated in other façade renovations and new construction to further promote the identity of the district. Art Deco is one such design style of the 1920s that could be used as a model for new developments. The district could also incorporate a simple, classic “Main Street” look in which brick structures of up to three stories are built along the sidewalk with storefronts facing Burnham Avenue. Whatever the combination of styles, the highest priority for such architectural ornamentation is along Burnham Avenue, which is the most visible face of the

Figure 3.20 New and attractive riverfront homes

Burnham Historic District.

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CDC URBAN BUSINESS DISTRICTS PROGRAM

IMPLEMENTATION STRATEGIES The district plans provide ambitious goals for redevelopment. The

Short-term Strategies (0 to 3 years)

strategies presented here describe measures the community can

There are a number of steps that the Village can take in order to begin

take to implement the planning ideas for the revitalization of the

revitalization in the short term. These short-term strategies include

districts. The implementation strategies are described for both the

reforming the Village’s zoning ordinance, providing municipal support

short and long term. In the short term, inexpensive regulatory and

for planning, and building relationships with the business community

organizational reforms should drive the redevelopment efforts critical

and other stakeholders in Burnham’s redevelopment. These short-

to the revitalization of the State Street Gateway and Burnham Historic

term reforms will encourage the type of business environment called

Districts. More costly and complex strategies that require more study

for in district plans.

and public input are required for redeveloping the Marina District and encouraging new development along all areas of Torrence Avenue and State Street.

Burnham Avenue

Torrence Avenue

Village of Burnham Proposed Zoning Map

New Land Use Zones Neighborhood Retail Regional Retail Riverfront Residential Parks and Recreation New Village Hall

State Street

Figure 4.1 Proposed changes to the zoning map

BURNHAM COMPREHENSIVE RETAIL PLAN

IMPLEMENTATION STRATEGIES District Planning Recommendations Marina District

Existing

State Street Gateway District

1. Build a publicly accessible 1. Make infrastructure improvements waterfront recreation area on riverfront that allow automobiles, with complementary retail boats, and pedestrians to access the establishments area conveniently 2. Redevelop Torrence Avenue to 2. Use TIF to acquire property for accomodate regional retailers redevelopment 3. Induce anchor retailer to locate on Torrence Avenue Proposed 1. Attract retailers appropriate for the district 2. Enhance pedestrian character of the district 3. Eventually redevelop the district with new retail structures

Existing

Burnham Historic District

1. Create a 1920s-themed neighborhood shopping district 2. Encourage new development on available land 3. Enhance opportunities for recreation and entertainment Existing

Priority Implementation Steps

1. Rezone to allow appropriate retail development 2. Form a Chamber of Commerce and hire a city planner to develop a supportive business environment and fill vacancies 3. Use TIF to finance pedestrian improvements and encourage new commercial development 1. Use zoning to promote residential development and retail development with a historic design 2. Work with developers to build space for convenience and commuter retailers near the Hegewich station 3. Partner with the Forest Preserve to develop more retail options near the Golf Course

Proposed

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CDC URBAN BUSINESS DISTRICTS PROGRAM

IMPLEMENTATION STRATEGIES Zoning Reform While it was intended to provide flexibility, Burnham’s step-down

Buildings in the Neighborhood Retail zone should be built close to

zoning classifications do not provide an adequate level of control or

the street and to one another and should have some height in order

guidance for development. In order to promote the type of develop-

to provide the type of shopping environment outlined in district plans.

ment recommended in this plan, three new zoning classifications

Front setbacks should be no greater than five feet from the side-

should be employed in and around the commercial districts: (1)

walk. In keeping with Burnham’s current height limits, new structures

Neighborhood Retail, (2) Regional Retail and (3) Riverfront Resi-

should not be taller than 35 feet. Side setbacks are discouraged but

dential. Likewise, the zoning code should provide regulations for

permitted if they are used for the purpose of creating parking along

the design of new development in the community. The following

only one side of the building. There should be one exception to

sections outline the types of zoning controls that should be used

the designation, specific to Burnham Historic District; side setbacks

in each area, but should not be considered to be text for a zoning

should be maintained at five feet in cases where commercial lots abut

ordinance.

existing single family homes in order to maintain the character of the residential area.

Neighborhood Retail The district plans provide a vision for new development on State

New buildings in this district should be allowed greater lot coverage.

Street and on Burnham Avenue that is pedestrian friendly, densely

Floor Area Ratio (FAR), the standard measurement of development

built, and provides goods and services to the local neighborhood.

density, is calculated by dividing the total square foot floor area of

Lot coverage limits and parking requirements should be revised

new development by the square foot area of the lot. Neighborhood

in order to permit this type of development. Neighborhood Retail

Retail structures should be allowed to build up to a maximum 2.0

should be a mixed-use classification that allows for retail on the

FAR. This would allow, for example, a two story building that covers

ground floor and residential or office space on the second and third

the whole lot, or a three story building that covers two-thirds of the lot.

story. The type of spaces developed in this zone would be appropriate for neighborhood serving-establishments, such as coffee shops, sandwich shops, movie rental stores, and dry cleaners.

BURNHAM COMPREHENSIVE RETAIL PLAN

IMPLEMENTATION STRATEGIES Parking requirements in the Neighborhood Retail zone should be

Parking for Regional Retail zones should be ample, as the majority

reformed to allow the more foot traffic oriented development described

of shoppers will be motorists, but parking should not overwhelm

in the district plans. The zone should require smaller parking ratios and

the buildings or the street. The current parking requirement is too

clearly defined “pedestrian safety areas”. The parking ratio in this zone

high to allow development in this area and should be reduced

should be changed to 2.5 spaces per 1000 square feet and perpendicu-

to four spaces per 1000 square feet of retail, a common parking

lar parking spaces should be 9 feet wide by 18 feet long with an aisle

requirement. Parking should be permitted in front of the build-

width of 22 feet. Parking areas should have a minimum two-foot land-

ing on Torrence Avenue to ensure ease of automobile access and

scaped buffer that delineates automobile uses from pedestrian areas.

open sight lines from the street to retail buildings and signs.

Additionally, parking areas should have sufficient overhead lighting for nighttime safety, security, and visibility while being considerate of adjacent properties. Parking should be located on the side or rear of commercial structures in the Neighborhood Retail zone which will increase access and safety for pedestrians and bicyclists, without hindering automobile access.

The Regional Retail zone should limit building density and allow larger setbacks but should also stipulate the development character outlined in the district plans for Torrence Avenue. Lot coverage should be limited to a maximum 0.75 FAR. Front lot line setbacks should allow one row of parking but should have a 40 feet maximum. Side setbacks of 10 feet should be allowed if parking in

Regional Retail North and South Torrence Avenue should be zoned for “Regional Retail.” This would be a commercial-only designation that would permit one- to two-story developments with larger building footprints. New development in this area should be more conducive to automobile access than in the Neighborhood Retail zone because more of the customers will be visitors from outside the community. This zone should allow front parking access, visibility of buildings from Torrence Avenue

front of the building and 40 feet if parking is on the side. Burnham should encourage developers to construct their buildings so that they create a defined “streetwall,” meaning that retail buildings would have the same setback and should minimize the space between structures where possible. Corner buildings in this zone should be allowed to build up to two stories which would give prominence to the Marina District entrances on Torrence Avenue.

and low-density development.

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CDC URBAN BUSINESS DISTRICTS PROGRAM

IMPLEMENTATION STRATEGIES Riverfront Residential Zone “Riverfront Residential Zone” should be the designation of resi-

private developer would retain ownership of the land in the easement

dential land bordering the riverfront in Burnham. The Riverfront

and could receive tax credits. The conservation easement would allow

Residential designation applies to land east of the Grand Calumet

for the development of a nature trail along the Grand Calumet River in

River to the nearest parallel street. New development in this district

this zone.

should allow multi-family structures in order to attract new households to support planned vibrant commercial and recreational

Design Reform

areas. New development in this district should feature required

Burnham’s zoning code should include design regulations, especially

waterfront access and pedestrian and bike trails.

for features in the public realm. Requiring certain design features will

Bulk and density requirements should permit a maximum three story residential development with a FAR of 2.0 with consistent setbacks. A minimum 20 foot setback should be maintained, except where planned unit development occupies an entire block and is consistently designed so that every unit has front steps five feet deep that border the sidewalk. Current parking requirements for residential zoning are sufficient for this zone.

help to develop the distinctive appearance described in the district plans. Appropriate design regulations include sign standards, sidewalk buffers, landscaping requirements, and parking lot design. Codifying the design recommendations suggested in the district plans can ensure that new developments conform to the vision outlined for each district. Building Capacity within the Community

The Village of Burnham should use a conservation easement to

The Village of Burnham should recruit local leaders and expand its staff

preserve public access to the waterfront in this zone. A conserva-

to oversee and manage proposed revitalization efforts. This expansion

tion easement is a legal agreement between a land owner and a

of planning and implementation capacity is required to ensure that the

municipal agency or land trust that limits private development in

districts attain the type of business mix and support the type of active

a critical area. In exchange for agreeing to limit development, the

business environment outlined in the district plans. The Village should

BURNHAM COMPREHENSIVE RETAIL PLAN

IMPLEMENTATION STRATEGIES retain the services of an economic development planner who can also

ness development. The Chamber of Commerce should also create

spearhead efforts to build partnerships within the business community

marketing and promotion programs to brand the district and pro-

and other redevelopment stakeholders. An investment in planning

mote special events. An event such as a “Taste of State Street”

capacity will benefit the community as a whole and lay the groundwork

would be a way to showcase the many food establishments along

for the more complex and costly redevelopment strategies.

the western portion of State Street. Regular festivities, events, celebrations, and exhibitions should be organized as entertainment

Planning Staff Adding the services of experienced planning staff would allow the Village to manage the redevelopment effort to ensure that it meets the community’s vision for the retail districts. This planning staffer should: •

Maintain an inventory of available commercial space

•

Steer developers and businesses to the most appropriate

location for their needs

attractions. The Village Hall can provide space for the Chamber’s regular meetings to lend support to the Chamber. Inter-agency cooperation Burnham should share efforts with its neighbors and regional planning authorities to build the best possible development team. Multi-lateral development partnerships with the Cook County Forest Preserve are particularly important to making the Burnham Historic

•

Retain businesses and attract new retailers to Burnham

•

Promote the Village and apply for development grants

•

Oversee the creation and management of a TIF district

It will be important for the Village to seek out public partners in

•

Coordinate the creation of a Chamber of Commerce

the redevelopment areas because redevelopment plans call for

Burnham Chamber of Commerce The Village’s development approach needs the support from the main stakeholders in the local retail economy – business owners. The founding of a Burnham Chamber of Commerce would bring these business owners together to strengthen the retail market and encourage busi-

District a viable commercial area.

improvements to interstate waterways, state roads and natural areas. Local, state, and federal agencies will have requirements and resources that may affect the course of redevelopment in Burnham. Burnham must work with the NICTD and Metra Rail transit agencies to ensure that new development in the Burnham Historic

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CDC URBAN BUSINESS DISTRICTS PROGRAM

IMPLEMENTATION STRATEGIES District has access to the heavily used Hegewisch commuter train

that will be displaced by the waterfront development. Although this

station. Pace also has several stops in the Village and efforts

facility could be owned by the Village of Burnham, an independent

should be made to maintain these stops and create appropriate

and experienced vendor should receive the concession for its opera-

signage.

tion and maintenance. The Village should also provide two parking lots along the Little Calumet that will be free to the public so that

Long-term Strategies (more than 3 years)

private parking is not required along the riverfront. Later in the rede-

Public Investment in Waterfront Redevelopment

velopment process, the Village will need to finance the construction of

The UIC team identified the redevelopment of Burnham’s water-

park amenities including paths, landscaping, a central square for the

front area as vital to the success of its retail districts. The water-

marina, tennis and volleyball courts, a pavilion, benches, picnicking

front should become a recreational and tourist destination with its

tables and additional parking. A bike trail connecting the marina to

marina, boardwalk and restaurants. This redevelopment effort is a

the rest of the Village should also be included. The Village may need

significant and costly investment for the community, but it is likely

to provide the land for new restaurants at a minimal cost to subsidize

to catalyze development efforts in the community overall. Nonethe-

the development because restaurants will have little private parking

less, additional analysis and public input should be sought before

and will not be located on a busy street. All of this public investment

proceeding.

will create a critical mass of activity that will support the Marina District

The Village of Burnham should consider purchasing waterfront properties from their private owners. The riverbank will require

businesses and transform the Burnham waterfront into the regional destination that it has always had the potential to be.

stabilization before other improvements to the waterfront can be completed. The Village should also construct a new indoor boat storage facility along Torrence Avenue to accommodate the boats

BURNHAM COMPREHENSIVE RETAIL PLAN

Boundaries of Proposed TIF District

IMPLEMENTATION STRATEGIES Development Financing Tools A great deal of public investment is required to redevelop the Little Calumet waterfront for the Marina District and transform the State Street Gateway District into a neighborhood oriented shopping area. A Tax Increment Financing (TIF) District would allow Burn-

Torrence Avenue

ham the funding and flexibility to implement these district plans. This highly popular economic development tool has the potential to TIF District Area

stimulate an increase in the assessed value of the property within a specific geographic area. The increase in property tax revenue is captured by the TIF District, a separate taxing overlay jurisdiction, which can then be invested in further development within the district. The UIC team believes that Burnham would meet the criteria set out by the State of Illinois for establishing a TIF District based ties.

Burnham Avenue

on an assessment of existing TIF Districts in surrounding communi-

In addition to financing the Village’s investment in the Little Calumet waterfront, the TIF District would encourage private development along State Street and Torrence Avenue. Different ownership of adjacent parcels on these streets may make it difficult for a private developer to acquire enough land to build financially feaState Street

Figure 4.2 Proposed tax increment financing district boundaries

sible retail space. In addition to providing funding, the TIF District makes parcel assembly easier because taking a property in the

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CDC URBAN BUSINESS DISTRICTS PROGRAM

IMPLEMENTATION STRATEGIES

district through eminent domain is presumed to serve a public purpose. The TIF could also provide funding for improvements to the streetscape, sidewalks, roads and recreational areas that are critical to creating the distinct district characters outlined in the State Street Gateway and Marina District plans. The boundaries of the Torrence-State TIF District should include Torrence Avenue, from State Street north to the northern overpass, businesses to the west of Torrence Avenue to Croissant Drive, and

Table 4.1 Projected TIF revenue and increment in select years

State Street commercial properties (Figure 4.2). TIF projects can be financed in two different ways. The first method involves floating bonds for the total amount of the redevelopment and dedicating the expected tax increments to pay the debt service. The second method is referred to as “pay-as-you-go” in which private developers finance the costs of the improvements and the municipality then reimburses the developer annually as it receives the property tax increments. It may be necessary to issue bonds to cover the redevelopment because there is a great deal of public investment in infrastructure in the Marina District. A TIF District could help the tax contributions of these districts grow substantially. Properties in the area recommended for the TIF District currently have an equalized assessed value (EAV) of $3.5 Figure 4.3 Projection of revenue growth in TIF district

BURNHAM COMPREHENSIVE RETAIL PLAN

IMPLEMENTATION STRATEGIES Conclusion million. With an overall tax rate of 11.98%, this area currently gener-

The Village of Burnham has some strong and unusual assets that

ates approximately $416,000 in property taxes. Assuming that the TIF

can form the basis of a successful retail district revitalization effort. In

properties will experience a 4% annual increase in assessed value,

order to take advantage of its waterfront, history and daily commut-

preliminary calculations estimate that the TIF will cumulatively gener-

ers, there are a few important steps the Village should take. The chart

ate over its 23-year lifetime approximately $63.5 million. Discounted

on page 43 summarizes the priority implementation strategies for

to today’s dollars this amounts to $32.7 million (Table 4.1). The gross

establishing the vision for each district presented in this plan.

increment is the ceiling that Burnham will be able to borrow against to make improvements within the Village.

The Village zoning code can be revised to be more conducive to successful retail developments. The zoning ordinance is a tool with

For the purposes of this projection it is assumed that new private

which the Village can spell out the type of development that the

development, with a total EAV of $13.7 million, will occur in three

community prefers. Therefore, it is critical that the Village write the

equal phases, each lasting 24 months, in years one, four, and seven.

ordinance so that it more closely matches the vision for Burnham’s

In order for the project to be feasible, the project needs to be com-

shopping areas.

pleted in the least amount of time in order to generate the highest potential returns. The life of a TIF in Illinois is 23 years, after which all the tax revenue reverts to the original taxing jurisdictions. Throughout the 23 years, the Village needs to manage project finances and evaluate the TIF District’s progress. This responsibility could be assumed by the new economic development planner hired by the Village.

By assuming a leading role in the redevelopment effort, the Village can directly shape the future of its retail districts. A staff member dedicated to the planning needs of the Village will be of great value in allowing the Village to exercise its leadership in the retail districts. In the short and long term, professional planning expertise can identify the priorities, partners, resources and possibilities for making the Village’s redevelopment efforts as effective as they possibly can be.

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