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Village of Worth Comprehensive Retail Plan
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Village of Worth Comprehensive Retail Plan City Design Center Revitalizing Urban Business Districts Program Project Report, volume I
Project Team: January 2004 - September 2004 Faculty
Masters Students
Research Assistants
Brent D. Ryan
Leslie Brinson
Aaron Eads
Rachel Weber
Aaron Eads
Brody Schopf
Howard Fink Sarah Fleming Joe Iacobucci Kanu Iheukumere Abe Lentner Courtney Owen Rachel Scheu Brody Schopf
For questions regarding this plan or the Revitalizing Urban Business Districts Program contact: Professor Brent D. Ryan and Professor Rachel Weber City Design Center University of Illinois at Chicago 820 W. Jackson Blvd. Suite 330 Chicago, Il 60607 phone 312.996.4953 fax 312.413.2314 1
Village of Worth Comprehensive Retail Plan
Table of Contents
Acknowledgments.................................................... 3 Project Summary ..................................................... 4 Project Organization and Timeline ............................... 5 Existing Conditions .................................................. 6 Retail Conditions ............................................. 8 Retail Analysis ............................................... 10 Transportation ............................................... 12 Physical Design .............................................. 15 Regulatory Environment ................................... 18 Fiscal Conditions ............................................ 20 Planning Principles ................................................. 22 Worth Retail District Plans ........................................ 24 Village Center ............................................... 24 Midtown ...................................................... 29 North End .................................................... 32 South Side .................................................... 33 Implementation ..................................................... 37 Appendix.............................................................. 46
UIC Revitalizing Urban Business Districts Program
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Acknowledgments
The UIC Revitalizing Urban Business Districts Program Project Team gratefully acknowledges the contributions of those that worked with us to complete this project. We would especially like to recognize the contributions and cooperation of the Village of Worth, including President Ed Guzdziol, Clerk Bonnie Price and Lauren Placek. We would also like to thank Bridget Lane, Jim Peters, Gina Caruso, Angela Mesaros, Charlie Hoch, Kazuya Kawamura, Susanne Schnell, Tasneem Chowdhury, and the University of Illinois at Chicago Council for Excellence in Teaching and Learning.
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Village of Worth Comprehensive Retail Plan
Project Summary The “Friendly Village” of Worth is located approximately 13 miles southwest of the Chicago Loop. The Village has a reputable school district, a new municipal golf course, convenient highway access, and two commuter rail stations. It hosts two retail corridors on 111th Street and Harlem Avenue where a variety of convenience products and services can be purchased. The Village is at a critical juncture where it must build on its assets to become a retail destination for residents, visitors, and commuters. Several challenges lie ahead. Although Worth was incorporated in 1915, most of its building stock dates from the middle of the 20th century when automobile-oriented development dominated. Small commercial buildings, most located in non-descript strip malls, sit on large parcels devoted to parking. The Village lacks the historic downtown that other bedroom communities possess. Moreover, the Village has li�le room to grow and develop as it is land-locked by other suburbs. Worth is neither a major retail destination nor a significant employment center and so must rely heavily on residential property taxes for revenue. This plan, commissioned by the Village of Worth in the Fall of 2003, recommends ways for Worth to improve the physical environment and economic performance of its two retail corridors. It is intended as a visionary but action-oriented guide for future planning efforts based on the principles of place, choice, and prosperity. The plan evolved out of conversations between the Village President, Ed Guzdziol, and Professors Rachel Weber and Brent D. Ryan of the Urban Planning and Policy Program at the University of Illinois at Chicago (UIC). In 2003 the UIC City Design Center launched an innovative new program – Revitalizing Urban Business Districts
– with the intention of producing innovative plans for the physical and economic renewal of urban retail and commercial neighborhoods. The program combined graduate coursework with an applied class project to produce a comprehensive retail plan. The Village of Worth applied and was selected to be the first client for this program. During the Spring and Summer of 2004, students in the UIC studio class conducted baseline analyses, undertook detailed research in priority areas, and formulated planning recommendations for the Village, presenting their work at two public meetings for client and stakeholder input. They worked in teams devoted to the two retail districts in Worth and were divided into specialists in the following five areas: 1) zoning and other regulations; 2) design; 3) finance; 4) retail a�raction and retention; and 5) transportation. The class was geared toward advanced master’s students who were specializing in physical planning and economic development and was assisted in its relations with the Village by a class research assistant. The project was organized to fit the tempo of academic life with the Spring 2004 semester devoted to the class research and the Summer 2004 session devoted to refining plan recommendations and dra�ing the plan document (see timeline, page 5). This plan reflects the outcome of a nine-month partnership between the Village of Worth and the University of Illinois at Chicago. We emerged from this process convinced of the immediate and long-term potential of Worth to increase the vitality of its business districts, and we hope that this plan serves as a readable and effective blueprint toward that “worthy” goal. Prof. Rachel Weber Prof. Brent D. Ryan September, 2004 UIC Revitalizing Urban Business Districts Program
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Project Organization and Timeline
19th Preliminary data presentation in class 23rd Customer and business surveys 23rd Parking lot capacity and occupancy assessed
January
February
13th Revitalizing Urban Business Districts course begins 22nd Introductory meeting with Worth officials and other stakeholders 27th Class divided into 5 functional groups: retail, finance, transportation, zoning and design 28th Data collection begins
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Village of Worth Comprehensive Retail Plan
March
5th
Visual preference survey completed
22nd Plan draft written Completion of final plan document
29th Poster boards created
April
4th Existing conditions data presented in class 18th Existing conditions presentation at Village Hall
May
September
4th
Plan recommendations presented at Village Hall
5th
Plan document production begins
Existing Conditions This section contains pertinent demographic information about Worth and describes the current condition of the Village’s two retail districts on 111th Street and Harlem Avenue. We focus on five categories: the retail, transportation, urban design, fiscal, and regulatory environments in Worth. Village of Worth The Village of Worth is located in the southwest portion of Cook County. Its businesses compete for customers in a larger trade area, one that extends beyond the Village’s legal boundaries. Similarly, Village residents shop outside of these boundaries for desired retail goods. While the trade area for convenience goods (e.g., groceries, pharmacy items, and fast food) is likely to be no more than one to two miles in radius, the trade area for comparison goods (e.g., clothing, furniture, and appliances) is larger because shoppers generally travel farther for comparison goods. For the purposes of this analysis, we define the trade area as an eight-mile radius around the Village. Besides Worth, the 11 other municipalities in the comparison trade area include: Palos Hills, Palos Heights, Chicago Ridge, Alsip, Bridgeview, Justice, Orland Park, Oak Lawn, Crestwood, Hickory Hills, and Burbank. In determining the boundaries of Worth’s trade area, we considered physical barriers, commuting pa�erns, and income demographics that would affect shopping travel pa�erns and consumer choices. These 11
municipalities are also Worth’s peer communities. Compared to its trade area, Worth is smaller, younger, and less affluent. In 2000 11,047 residents lived in Worth -- about half the average of the 12-community trade area. Worth’s population has decreased slightly (by approximately 1.4%) since 1990. The Northeast Illinois Planning Commission projects that Worth will add only 89 persons during the next three decades (h�p://www.nipc.cog.il.us).
Justice Bridgeview
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Chicago
Hickory Hills
Oak Lawn Chicago Ridge
Palos Hills
111th St.
WO R T H Palos Park
Palos Heights
Alsip
Crestwood
Harlem Ave. Orland Park
Worth is located in the inner southwestern suburban region of Chicago UIC Revitalizing Urban Business Districts Program
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Existing Conditions Worth’s median age is 36.4, which is slightly lower than the rest of its trade area but higher than Cook County as a whole. Its per capita income of $19,449 is approximately $5,000 below the trade area average. Worth’s median home value is $141,000, less than the trade area’s median home value of $160,000. The Village was 93 percent white in 2000 (a decrease of 7% from 1990, likely due to growing Hispanic and ArabAmerican populations). Per Capita Population Income Municipality (2000) (2004 est.)
Median Age (2000)
Median Home Value (2000)
Worth 11,047 $21,472
36.4
$141,400
15,335 27,902 14,127 19,725 12,193 11,251 13,926 55,245 17,665 51,077 11,260 14,731
36.7 36.9 32.5 34.2 30.9 38.7 36.9 41.5 41.5 41.4 46.8 37.9
$144,600 $137,800 $138,500 $141,200 $143,500 $149,000 $164,200 $157,000 $174,000 $208,300 $219,500 $159,917
Bridgeview Burbank Chicago Ridge Alsip Justice Crestwood Village Hickory Hills Oak Lawn Palos Hills Orland Park Palos Heights Trade Area Median
$20,757 $20,891 $22,387 $22,630 $22,868 $24,282 $26,217 $26,360 $27,965 $33,636 $36,283 $25,479
Demographic characteristics of Worth’s trade area
The UIC team’s assessment of existing conditions in Worth’s retail districts indicates that 111th Street and Harlem Avenue possess many assets, including but not limited to high traffic volumes, public transportation access, and a reputation for lower prices and good service. However, these districts also face many challenges to realize their full potential as successful retail districts. 7
Village of Worth Comprehensive Retail Plan
Primary among these challenges is the fact that Worth’s residents shop outside the Village for most of their retail and service needs. Based on data from the US Bureau of Labor Statistics, Worth residents spend approximately $83.4 million annually on retail goods. The UIC team’s calculations show that Worth businesses only capture approximately 18% of this amount. In other words, close to $70 million is being spent in other communities. Sales taxes suffer because of this retail “leakage.”
Retail Sales Leakage from Worth
Population of Worth (2000) 11,047 Potential annual per capita expenditure $7,552.91 Total potential annual expenditures by Worth residents $83,436,997 Estimated current retail sales in Worth $12,513,168 Estimated sales leakage $70,923,829 82% of the retail expenditures of Worth residents take place outside the Village
However, Worth currently has li�le available land to develop for additional commercial uses. The Village is geographically constrained by its small land area of 2.41 square miles. Therefore, Small businesses (under 1000 square feet) predominate in Worth Worth must focus on improving its existing retail environment, one that is currently considered visually unappealing and even hazardous by potential customers as well as one that is currently inappropriate for larger format, potentially more profitable retail tenants. Worth’s retail strengths and challenges are discussed in detail in the following pages.
Existing Conditions RETAIL CONDITIONS - 111th Street The majority of the 100 businesses in the 111th Street retail corridor occupy leasable spaces of 1000 square feet or less. The small size of most buildings and parcels on 111th Street likely discourages larger, national retailers from renting space in the corridor. However, three large convenience retailers occupy sizable lots in the eastern half of the corridor: Fairplay, Walgreen’s, and Osco Drugs.
Small, independently-owned businesses along 111th Street
111th Street contains a mix of business types. Most are businesses local to the region; under 10 percent are national chains. About 50 percent are services such as banks, law firms, insurance companies, and beauty salons. 20 percent of businesses are comparison retailers, selling everything from costumes to ma�resses to jewelry. Another 20 percent of businesses are restaurants, providing quick meals or takeout food. Only three restaurants are sit-down facilities. The remaining 10 percent of businesses are convenience retail, including a grocery store, two drug stores, a liquor store and several tobacco shops. 111th Street also has a concentration of auto-related businesses at its eastern end. 111th St. Businesses by Sector
Many of the local businesses and institutions on 111th Street were reported to serve a social function. The west end of 111th Street near Harlem Avenue also contains a number of civic buildings that function as community anchors, including the Village Hall, public library, and an elementary school. While these community uses emphasize the civic nature of the street, they occupy land that could be considered a prime location for retail development given the traffic flow, proximity to the Metra station, and proximity to the busy intersection of 111th Street and Harlem Avenue.
111th St. Retail Stores by Category Variety Store
Restaurant 13%
Other 5%
Auto and Auto Related Services 14% Business/Financial/Medical Services 11%
Convenience Services 15%
Convenience Retail 8% Construction/Landscaping 2% Comparison Services 13%
Sporting Goods
Toys
Apparel
Auto 11%
2% 2% 2% 2% Beauty Services 2% 2%
Restaurant 26%
Cellular Phone Service
Cigarettes 7%
Civic Services 3%
Comparison Retail 16%
Construction/Landscaping 7%
2% Printing Services
2%
Pet Store
4% Music
Total = 100
4% 4%
2% 2%
4%
Jewelry
Total = 48
2% Gas
2%
2%
Food/Beverage
Gifts/Novelties/Souveniers
Home Accessories Government
Drug Store 4%
Electronics/Appliances Florist
One of 111th Street’s few family-style, sit-down restuarants
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Existing Conditions Harlem Avenue Retail along the Harlem Avenue corridor is contained in seven small shopping centers, which average six tenants per center. Gross leasable areas range from 500 to 6000 square feet, but the median floor area is only 1000 square feet. Retail spaces are larger at the north end of the corridor. The corridor has few vacancies and low turnover; over 50 percent of the stores have been in their same locations for more than 5 years. About 40 percent of the businesses are owner-occupied. Several new businesses have recently opened along the corridor, indicating continued commercial demand. These include a 7000-square foot shopping center at 110th Place, a BP Auto at Southwest Highway, and a gas station with a car wash at 115th Street. Harlem Ave. Businesses by Sector Auto and Auto Related Services 7% Restaurant 17%
Business/Financial/Medical Services 6%
Apparel 13%
Restaurant 32%
Auto 6%
3% 3%
Business Services Cellular Phone Service
3% Construction/Landscaping 3%
Comparison Retail 20% Music
Convenience Retail 6% Construction/Landscaping 6%
Comparison Services 16%
Total = 72
Electronics/Appliances
3%
Home Services 9%
3% Hobbies
Total = 32
6%
3%
Food/Beverage 13%
Funeral Home Gifts/Novelties/Souvenirs
Although many other stretches of Harlem Avenue in the southwest suburbs host “big box” stores and national retailers, Worth’s portion of Harlem Avenue does not. This is likely due to the small-sized lots along the street. Approximately two-thirds of the businesses on Worth’s stretch of Harlem Avenue are services, such as accountants, 9
Harlem Avenue contains three loosely organized business clusters. These include goods and services that cater to the area’s ArabAmerican population (including two grocery stores, a dress shop, a music store, two hair salons, a sweets shop, and a restaurant); goods and services for special occasions (including two funeral homes, a flower shop, a dress shop, a catering service, and a photography studio); and auto-related businesses at the intersections of Southwest Highway, 111th Street, and 115th Street.
Harlem Ave. Retail Stores by Category
Civic Services 6%
Convenience Services 16%
beauty salons, and auto services. Almost 20 percent are restaurants, mostly fast food or casual dining. Of the corridor’s 12 restaurants, only one serves liquor. 17 percent of the businesses can be considered comparison retail while eight percent are convenience retail.
Village of Worth Comprehensive Retail Plan
Worth’s retail districts contain loosely organized business clusters, including auto-related businesses (above) and Araboriented businesses (right)
Existing Conditions RETAIL ANALYSIS In order to gain more insight into the assets and challenges of Worth’s two business districts, the UIC team conducted business and customer surveys in March 2004 through face-to-face interviews (survey results are summarized in the Appendix), and a retail market analysis to identify excess supply or unmet demand within specific retail sectors. The surveys asked customers and business owners to assess the appearance, business mix, and safety of Worth’s existing retail environment. The surveys also asked what types of new businesses and improvements to existing businesses were desired. A total of 37 customer interviews at different Worth businesses were conducted, and wri�en surveys from 26 business owners were received. The key findings are that: · Worth businesses enjoy convenient locations, high traffic counts, and a reputation for lower prices and good service. · Customers, especially Worth residents, would like more retail variety. Many felt that several good businesses, including a muchloved bakery, have le� Worth in recent years. Businesses most desired were a family style restaurant, a bakery, a movie theater, national chains and sporting goods. · Most area residents shop at Chicago Ridge and Orland Square malls because comparison items, such as apparel, books, music and electronics, are unavailable in Worth.
As a part of the southwestern suburban region conveniently located along a major commuting route, Worth has a sizable trade area from which it can draw customers, especially with its reputation for lower prices and good service. Customers in the trade area have significant unmet demands for specific products and services. To be�er quantitatively assess retail market needs, the UIC team measured supply and demand of retail space for different retail sectors. Supply here refers to the actual square feet of retail space or gross leasable area that exists in Worth’s trade area. Demand refers to the amount of retail space that could be supported by customers residing in the trade area based on their spending preferences and potential. Demand for a particular product was calculated using average per capita expenditures for different products. In this case, the average per capita expenditure in Cook County was used and adjusted to fit Worth’s 8-mile trade area. Supply was measured by “store type.” Standardized categories using three- and five-digit codes from the North American Industry Classification System (NAICS) were used. A comparison of supply and demand by store type identified gaps where demand exceeds supply.
· A significant number of business owners wanted to keep out big box retailers, tobacco and liquor stores, convenience marts, and new businesses that would compete with their own. · Most businesses owners chose to locate in Worth because of the high traffic volumes along Harlem Avenue and 111th Street and the affordable rents. UIC Revitalizing Urban Business Districts Program
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Existing Conditions The retail market analysis determined that within Worth’s trade area unmet demand existed in the following categories: · Toys and hobbies · Restaurant serving liquor · Automobile parts and accessories · Electronic goods · Sporting goods · Sandwich shop · Video rental · Coffee shop/bakery Planning recommendations in the following chapters build on these findings by suggesting that Worth focus on these areas of unmet demand when considering development choices and retail promotion strategies.
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Village of Worth Comprehensive Retail Plan
In summary, Worth residents make most of their purchases outside the Village boundaries. Worth is home to a variety of small service providers and retailers that are patronized for convenience purposes and because of their reputation for lower prices and good services. The retail businesses tend to be local to the Chicago area, with few national chain stores, and they sell a smaller volume of goods than larger stores in the trade area. Given the small size and convenience orientation of most of Worth’s retail businesses, many of these local businesses do not appear to be drawing customers from other communities. Unlike the Chicago Ridge and Orland Park malls or the nearby Wal-Mart north on Harlem Avenue, Worth’s retail districts are not destinations for enough non-residents. However, there is significant unmet demand within the trade area that can be capitalized on by new development in the Village.
Existing Conditions The Harlem Avenue roadway is 66 feet wide with two vehicle lanes in each direction and a turning lane that runs the length of the corridor. The posted speed limit is 35 mph. Traffic lights are located at the major intersections of Southwest Highway, 111th Street, and 115th Street.
information; B) information from customer and business retail surveys; C) parking lot occupancy surveys; and D) information on pedestrian activity and the use of Pace bus and Metra commuter rail.
Harlem Avenue is designated as Illinois State Highway 43 and is more heavily traveled than 111th Street, carrying 47,000 vehicles per day. Over the past two years, the Southwest Conference of Mayors has established the Illinois 43 Corridor Planning Council to study and suggest improvements for the Harlem Avenue Corridor, including Worth’s portion. However, at this point, no funding has been approved for improvements to Harlem Avenue. If funds do become available, Worth’s retail corridor may use them to implement improvements suggested in this plan.
st
Ridgeland Ave.
we uth So
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Oak Park Ave.
111th St. Harlem Ave.
Traffic Count and Roadway Information 111th Street is an auto-dominated arterial that carries 28,000 vehicles per day (www.dot.state.il.us). The roadbed is 60 feet wide, with two lanes in each direction and a turning lane that runs the length of the corridor. There are three traffic lights along the retail corridor, at Harlem Avenue, Oak Park Avenue, and Ridgeland Avenue. The 12foot wide lanes and widely spaced traffic lights appeared to allow cars to exceed the posted 30-mph speed limit during site visits.
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Depot St.
TRANSPORTATION The UIC team performed a transportation analysis for both 111th Street and Harlem Avenue to examine the role that automobile and other traffic played in the competitiveness of Worth’s retail districts. The components of this analysis were A) traffic count and roadway
115th St.
Worth’s retail districts have few and widely spaced traffic signals, making pedestrian crossing difficult
Survey Data The walking environments in Worth’s retail corridors were uncomfortable to both the retail customers and business owners surveyed. Many customers felt unsafe crossing both Harlem Avenue and 111th Street on foot and expressed a desire for safer pedestrian crossings. Over half of the respondents expressed a desire to be able to walk comfortably in the retail corridors, while 75 percent of the business owners wanted customers to be able to walk to their stores. The survey results indicated that currently less than 10 percent of customers walked for shopping trips, choosing to take their car instead.
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Existing Conditions Parking occupancy surveys along the 111th Street corridor indicated a mismatch between parking need and parking provision. Along the western half of the corridor, parking lots are smaller and tended to be near capacity when surveyed, while lots along the eastern half are larger and were less full (right). Overall, less than half of the corridor’s 1,750 spaces are regularly used. Entrances and exits to parking lots are inconsistently located, with up to eight separate lots per block. In contrast, on-street parallel parking is both less available and be�er-utilized. About 70 spots are located on 111th Street and the adjoining side streets along the western half of the corridor. About 70% of the parallel parking spaces were used when surveyed.
Many parking lots in Worth’s retail districts are little-used (above and below)
Ridgeland Ave.
Nagle Ave.
Natchez Ave. Natchez Ave.
111th St. Nashville Ave.
Natoma Ave.
Oak Park Ave.
Normandy Ave.
New England Ave.
Worth Ave.
Worth Ave.
Depot St.
Harlem Ave.
Village of Worth Comprehensive Retail Plan
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New England Ave.
Me tra SW
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There are 1,100 parking spaces along the Harlem Avenue corridor, located in 63 parking lots. All lots are located in front of or adjacent to buildings. While four large lots account for more than 500 spaces, most have less than 25 spaces. The Harlem Avenue corridor has no on-street parking. As on 111th Street, Harlem 110th St. Avenue’s parking lots contain numerous lot Crandall Ave. entrances and exits that are haphazardly 111th St. placed. This is due to the incremental and unplanned development of small retail strips along the corridor. Diagram of 111th Street, showing parking lots (dark gray) in relation to establishments (white)
Existing Conditions Other Transportation Modes Both 111th Street and Harlem Avenue retail corridors are heavilytraveled, auto-oriented arterials with li�le pedestrian traffic or public transportation usage. In many places it is difficult to walk, with narrow sidewalks adjoined by parking lots and interrupted by numerous curb cuts. Crossing the streets is also difficult because of the heavy auto traffic. Buffers Worth (to Union Sta.) 5:41a 6:40 7:15 7:48 (M-F only) 9:24 3:22p 4:32 7:11 between pedestrians and traffic such
lots are generally empty at those times. There are no bicycle racks or storage facilities at the station, and no riders surveyed reported having biked to the station.
Chicago
8:28a 2:24p 3:41 5:11 5:42 6:12 7:25 9:12
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as parallel parking and street trees are lacking throughout both corridors. On 111th Street, crosswalks are located only at the traffic lights, approximately a half mile apart, and are poorly marked. Likewise, crosswalks on Harlem Avenue are located only at the major intersections of Southwest Highway, 111th Street, and 115th Street. Major street intersections on both corridors are difficult to cross due to the wide turning radii and width of the roadways.
to a 2002 Metra survey, 87 percent of rail commuters drove to the station. Most riders park in Metra lots. When surveyed, about 85% of the 390 Metra parking spots were occupied during weekday business hours. Since there is no Metra service on weekends, the
Orland Park Worth is located on the Southwest Service Metra Line
Public transportation along the 111th Street and Harlem Avenue corridors is limited. Worth currently has one Metra commuter rail station with access to Chicago on the Southwest Service line. About 500 commuters take Metra trains each weekday from the Worth Station on Worth’s Metra station Depot Street. Access to the station is primarily by car: according
Pace bus service on 111th Street is infrequent, with one hour headways between buses. On weekdays, the last bus passes through Worth at 6:39 in the evening. The 12 stops in Worth are unevenly placed, and seven lack waiting shelters. Harlem Avenue is also served by Pace. There are twelve stops along the corridor, but only two have waiting shelters. Service is infrequent with half-hour headways during peak hours and hour headways between buses the rest of the day. Service ends by 8:25 in the evening. Detailed ridership data was unavailable from Pace.
In summary, Worth’s retail corridors are heavilytraveled, carrying large numbers of auto traffic each day. The Metra commuter rail station in Worth a�racts a sizable ridership on weekdays, and the station is primarily accessed by automobile. In both corridors, parking is unevenly distributed and, in some lots, underutilized. Partly because of the traffic volume and because of the risks involved in crossing these busy arteries, the retail corridors host li�le pedestrian activity. UIC Revitalizing Urban Business Districts Program
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Existing Conditions PHYSICAL DESIGN Worth’s business districts are similar to many other postwar retail corridors in the southwest suburbs. The design of Worth’s
111th Street Much of the 111th Street corridor consists of one-story commercial buildings fronted by parking lots. Some establishments stand alone while others are part of multi-tenant strip malls. Building setbacks vary but most structures are fronted with parking lots. On-site parking requirements for each lot lead to multiple auto entrances and exits that cross sidewalks on both Harlem Avenue and 111th Street.
commercial districts has been shaped by the construction of spaceconsuming, auto-oriented retail development that was laid out in small parcels. This infrastructure stymies the Village’s future development potential and presents an inconsistent physical appearance to potential consumers and developers. Most of Worth’s retail buildings were constructed a�er 1950 and lack historic character. Generally buildings are one-story and are set back more than 25 feet from the sidewalk. Lot sizes are generally less than 150 feet deep. However, buildings are generally in good condition and nearly all are occupied.
Worth’s retail built environment is disorderly and unappealing because its existing buildings create neither a sense of street enclosure nor provide a�ractive visual features, such as storefront windows, near sidewalks. The large number of small multiple parking lots, the physical barriers between lots, such as curbs or fences, the lack of comfortable walkways, and the busy streets make it difficult for customers to walk between stores and equally difficult for autos to drive between them.
Ridgeland Ave.
Nagle Ave.
Natchez Ave. Natchez Ave.
Nashville Ave.
Natoma Ave.
111th St. Normandy Ave.
New England Ave.
Worth Ave.
Oak Park Ave.
Worth Ave.
Depot St. Harlem Ave.
111th St.
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Crandall Ave.
New England Ave.
Me tra SW
S
110th St.
“Figure-ground” diagram of the 111th Street retail district. Buildings in black. Note inconsistent and often large building setbacks from the street that allow for front parking lots
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Village of Worth Comprehensive Retail Plan
Existing Conditions The stretch of 111th Street between Depot Street and Worth Avenue
Harlem Ave. 112th St.
112th Pl.
113th St.
113th Pl.
Harlem Avenue Like 111th Street, the Harlem Avenue retail corridor is auto-oriented and lacks pedestrian amenities such as street trees, benches, bus stop shelters, and waste receptacles (right). Narrow sidewalks are fronted by parking lots with one- or two-story buildings or strip malls behind. Parking lots of various sizes are located between the buildings and the street on most of the properties, giving the corridor a disorganized appearance.
The pedestrian environment on Harlem Avenue is unappealing
114th St.
ay hw Hig t s we uth So
114th Pl.
115th St.
Harlem Ave.
Pedestrian-oriented retail on the western half of 111th Street
contains some older buildings and provides a more consistent physical appearance with easier pedestrian access (le�). Most buildings here front the sidewalk, creating a sense of street enclosure. Parallel parking creates a buffer between pedestrians and traffic. This area, however, comprises only a small portion of the 111th Street corridor.
111th St.
The northern end of the corridor, from Southwest Highway to 108th Place, is separated from the rest of the corridor by a residential area. The northern section has larger building lots than the southern area, which runs from 115th Street to 111th Street.
Harlem Ave.
107th St.
115th Pl.
116th St.
Parking lot locations along Harlem Avenue. Parking lots in dark gray, buildings in light gray
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Existing Conditions Visual Preference Survey Visual orientation in Worth’s retail corridors is challenging. The Village borders are poorly marked, making it difficult to know that one has entered Worth. Signage along the corridors tends to be oriented toward drivers—most signs are large, internally-lit, and over 10 feet from the ground. Signs are generally pole-mounted and placed inconsistently. Street trees, which could provide street definition and shade for pedestrians, are mostly absent. Street furniture, such as benches and waste receptacles, is sparse (below). Except for the War Memorial at the intersection of Harlem Avenue and 111th Street, there are no parks or other open spaces that might provide a memorable visual note.
According to customer and business surveys, both groups find the appearance of the retail corridors una�ractive. They would like both streetscape beautification and improvements in the appearance of businesses and signage. Business owners expressed the need for assistance in renovating building exteriors and be�er parking. The UIC team also conducted a visual preference survey, which assessed the types of physical appearances that 14 respondents preferred. Participants were Signage in Worth’s retail districts was shown photos of streetscapes and asked to recommended for beautification by both shoppers and business owners choose the type of physical environment they liked best. Two-thirds preferred photos of a “Main Street”-type district over larger suburban-style shopping centers. Most survey participants expressed a desire for a small-town feel with more retail diversity. Participants also expressed an awareness of the lack of clear visual identity in Worth’s two retail corridors. In summary, Worth’s retail districts do not provide a distinguishing design image or identity to the Village. Despite the relatively small scale of the buildings in the districts, pedestrian orientation is not emphasized. Instead, auto-oriented districts have evolved with architectural and signage conditions that are inconsistent with both pedestrian and auto access.
Pedestrian amenities in Worth’s retail districts are limited
17
Village of Worth Comprehensive Retail Plan
Existing Conditions
Ridgeland Avenue
Nagle Avenue
Natchez Avenue
111th Street Natchez Avenue
Nashville Avenue
Oak Park Avenue
Natoma Avenue
111th Street
Normandy Avenue
111th Street
New England Avenue
Depot Street
Worth Avenue
il Ra
New England Avenue
Harlem Avenue 108th St.
Worth’s retail districts are primarily zoned B-1 and B-2, with limited residential uses
113th Street
114th Street
Harlem Avenue
Oketo Avenue
FAR represents the ratio of a building’s floor area to its lot area. A FAR of 2.0, for example, indicates that the permi�ed building floor area is two times that of its lot area. A 50,000 square foot lot would therefore permit 100,000 square feet of space.
107th St.
4 I-29
The Village’s zoning classifications are relatively straightforward. All retail sales are required to take place within enclosed buildings; the code does not provide for outdoor restaurants. Residential units are permi�ed above the first floor in B-1 and floor area ratio (FAR) is limited from 1.8 in B-1 to 2.0 in B-2, with no restrictions on lot size.
ay hw Hig
Harlem Avenue
the current zoning code encourages small buildings on large lots with much of the lot area devoted to parking spaces.
st we uth So
The Village has seven zoning districts, and commercial uses are permi�ed in three of them: B-1, B-2, and PUD (Planned Unit Development) districts. B-1 permits retail and service establishments. Prohibited B-1 uses include drive-thrus, autorelated businesses (sales and repair, auto parts, car washes, etc.), and such uses as pet shops and veterinary hospitals. All B-1 uses are also permi�ed in areas zoned B-2. However, B-2 also allows for “nuisance” uses such as drive-thru businesses and auto-related businesses. Although parts of the north and south ends of Harlem Avenue and the east end of 111th Street are zoned B-2, most of the
Worth Avenue
REGULATORY ENVIRONMENT Several of the design challenges in Worth’s commercial corridors stem from the Village’s regulation of retail development. In particular,
115th Street
111th Street retail corridor is zoned B-1. The FAR is slightly higher than B-1 at 2.0. PUD allows for more flexible land uses and building bulk than B-1 and B-2, but does not specify prohibited uses. PUD zoning is only granted as a variance, and Village Council permission must be granted for any desired land use. In these districts, developments must be larger than one acre although no maximum size is specified. No PUD districts are located in Worth’s business districts. The only PUD in the Village currently contains the Water’s Edge Golf Course.
116th Street
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Existing Conditions Worth’s B-1 and B-2 zoning regulations require 6.7 parking spaces per 1000 square feet of retail space, up to 1500 square feet and 4 spaces per 1000 square feet therea�er. For example, a 2000 squarefoot business would be required to provide 12 parking spaces. These parking requirements are higher than the American Planning Association’s maximum of 5.5 spaces per 1000 square feet. Front setbacks are required in Worth’s retail districts. Building front setbacks in all commercial districts must be at least 25 feet, with rear setbacks of at least 20 feet. Combined, the setback and parking requirements create an effective limit on both building area and height below that permi�ed by the FAR because the parking spaces or building setbacks restrict building on much of the lot (see diagram at right). Thus, many retail buildings are one-story, with FARs of below 1.0 where current zoning permits up to 2.0.
Preliminary study indicated that nine retail parcels in the two corridors were noncompliant with current zoning. These are primarily businesses with drive-thru windows located in B-1 districts, where they are prohibited by zoning. The record of zoning variances for these parcels was not researched.
Allowable FAR with current bulk and setback requirements on a typical Worth retail district parcel
Parking requirements restrict buildable floor area to below that permitted by FAR 160'
19,200 square foot lot B2 FAR = 2.0 , allows 38,400 sq ft requires 25 parking spaces
minimum rear yard 20' setback:
building 160' x 33' = 5400 sq ft requires 25 parking spaces
FAR = 0.28 75'
120'
minimum front yard 25' setback:
Typical building resulting from parking requirements superceding bulk requirements. FAR = 0.28
Zoning reform yields more buildable floor area and more efficient parking
5' setback
35' setback
Building “built to street” 160’ x 50’ = 8000 sq ft. x 3 floors = 24,000 sf = FAR of1.25
Worth’s current parking regulations are quite high and lead to the underbuilding of many retail parcels. Zoning reform could both reshape the physical appearance of the districts and enhance the development potential of small parcels
19
Village of Worth Comprehensive Retail Plan
Existing Conditions
Property taxes are the Village’s main revenue source and are growing as a share of total revenues, increasing from 35% of total revenues in 1998 to 41% in 2003. Despite their importance, the Village has relatively low assessed property values (AV) of approximately $11,000 per capita compared to neighboring municipalities. In contrast, Oak Lawn has an AV per capita of $14,750, Orland Park has an AV per capita of $24,750, and Chicago Ridge has an AV per capita of $17,250. One of the reasons Worth’s property taxes are low is because retail rents tend to be on the low end, ranging from $0.75 to $2.00 per square foot. Additionally, Worth has a relatively small share of commercial and industrial properties, which are assessed at a higher rate in Cook County.
Assessed Property Value Per Capita $25,000 $20,000 $15,000 $10,000
While sales taxes have contributed about 18% of the Village’s general fund (excluding golf course revenues), Worth generates very low sales tax revenues compared to its neighboring communities. Even without the home rule sales tax of its neighbors—in 1998 Chicago Ridge received $1.9 million in sales taxes due to its home rule status—Worth ranks lowest with only $70 in yearly sales taxes per capita. By contrast, Oak Lawn and Chicago Ridge generate $170 and $245 per capita, respectively. Sales tax revenues are scarce because residents and non-residents spend their money outside Worth in the larger trade area. Further, over half of the businesses along Worth’s retail corridors are services, which do not contribute sales taxes, and civic buildings, which occupy prime retail locations.
Comparison of Sales Tax Collections: 1995, 1998 & 2002 in 2002 dollars (source: Illinois Department of Revenue) $25 million
Sales Tax Collections
FISCAL CONDITIONS The Village’s three principal revenue sources are property taxes, sales taxes, and intergovernmental transfers (e.g., the state income tax that is disbursed on a per-capita basis). Worth’s retail corridors are an important part of the tax base but are currently not as fiscally productive as other commercial areas in the region.
$20 million
$15 million
Municipal Home Rule Sales Tax
Municipal Sales Tax
$10 million
$5 million
$5,000
Community and Year 1995 1998 2002 1995 1998 2002 1995 1998 2002 1995 1998 2002 1995 1998 2002
Worth
Oak Lawn
Chicago Ridge
Orland Park
Bedford Park
Chicago Ridge
Oak Lawn
Orland Park
Worth
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Existing Conditions Neighboring municipalities have been looking to boost sales and property taxes to compensate for decreased funds from state and federal governments. In Worth, intergovernmental funding has fallen from a high of $1.5 million in 2000 to less than $900,000 in 2003. Moreover, Worth faces future fiscal challenges as the owner of a municipal golf course, which was opened in 1999 and funded through general obligation bonds. The Water’s Edge Golf Course had revenues of just over $2 million in 2003; however, because of growing debt obligations and lower than expected revenues, the Village now subsidizes the golf course at $56,000 per year (which may increase to $100,000 per year by 2009). Seeking out alternative sources of financing will be key to keeping the residential property tax burden low and maintaining high-quality municipal services.
21
Village of Worth Comprehensive Retail Plan
Conclusions Worth benefits from its location in the prosperous southwestern suburban trade area near the Tollway, an active Metra corridor, and several major arterial roads. However, the Village’s retail corridors currently do not fully capitalize on the potential of this location. The relatively constrained lot sizes with their automobile orientation have created retail districts with few shopping destinations and a nondescript physical appearance. Current zoning regulations limit development potential because of high parking requirements, though many of the resulting parking lots are underutilized. Worth’s retail districts fail to capture a proportionate share of the retail spending in the southwestern suburbs. As a result, the Village does not realize its full potential of tax revenues from the districts, making residents shoulder a higher property tax burden. The primary challenge of Worth’s retail districts is to enhance their development potential and reorganize themselves as an a�ractive, distinctive, and desirable shopping destination. The UIC team’s suggested planning principles and measures for achieving this potential are discussed in the following sections.
Planning Principles Planning Principles for the Village of Worth’s Retail Districts The UIC team proposes a comprehensive approach to retail planning for Worth that will improve the physical appearance, diversity, and economic competitiveness of the Village’s retail corridors. Three principles guide this approach: place, choice and prosperity. 1. PLACE: A visually a�ractive and distinctive retail district will create a new “sense of place” in Worth. 2. CHOICE: A wider range of shopping options will improve the retail choices for shoppers in Worth’s retail districts. 3. PROSPERITY: An a�ractive business district and stimulating retail environment will generate more revenue for the Village businesses, government, and residents.
The specific goals of each of the above planning principles are described below. PLACE: • A new mixed-use retail and residential core that is a�ractive and memorable will give Worth an identifiable downtown, add new residents, and enhance the Village’s image in the competitive southwest suburban retail market. • 111th Street should be transformed into a more visually appealing shopping environment with consistent signage, enhanced streetscaping, and renovated storefronts. • Aesthetic improvements will add character, improve access, and distinguish Worth from neighboring suburbs. • The northern portion of the Harlem Avenue retail corridor should be reconfigured for larger parcels and be�er automobile access. • By allowing for more growth in this section of Harlem Avenue, the Village will be able to a�ract some of the large-format retailers that currently are unable to locate appropriate sites in the Village. • The southern portion of Harlem Avenue should be visually enhanced and promoted as a desirable location for smaller, locally-owned businesses. • This area of the Village should continue to provide a home for specialty retailers and small businesses that give Worth its “friendly” character.
UIC Revitalizing Urban Business Districts Program
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Planning Principles CHOICE: • Harlem Avenue and 111th Street should offer a more diverse mix of retail businesses and restaurants. • A wider range of retail choices will broaden the appeal of the Village’s retail districts to greater numbers of shoppers, meeting needs of Village residents and drawing additional shoppers from elsewhere in the southwest suburbs. • Shoppers should have more choices about how to access Village businesses. • Links between businesses on 111th Street and Harlem Avenue should be enhanced so that shoppers may be�er walk from store to store. Residential units above stores in the “Village Center” will also encourage walking and encourage train commuters to live and shop in Worth. • Worth’s regulatory code should facilitate the true potential of Worth’s retail districts. • Worth’s zoning resolution should be reformed to remove conflicts between parking and building guidelines. This will enhance the development potential of Worth’s business districts and provide developers with more design flexibility and a�ractive development choices.
23
Village of Worth Comprehensive Retail Plan
PROSPERITY: • Worth residents and visitors from the wider trade area should increase retail expenditures in the Village’s business districts. • Improving Worth’s retail districts should generate more sales for existing businesses and a�ract new retailers eager to capitalize on this destination, which will reduce sales leakage from the Village. • Worth’s business districts should generate more sales and property tax revenues for the Village. • Many valuable lots in Worth’s business districts are currently underutilized or vacant. By adding additional retail development on these lots, the Village will increase its tax base. • Worth’s zoning should be clear, flexible, and predictable. • By reforming its zoning, Worth will encourage developers to provide additional public benefits at li�le to no public cost. Developers will be given a clear framework that provides for desirable retail outcomes as well as creative design strategies.
Depot St.
S et ra SW
111th St.
Worth Ave.
y. Hw
and more residential and retail options, providing Worth with an a�ractive “Main Street” that it currently lacks.
M
plan emphasizes the unique identity of each district and provides specific planning solutions that will create a stronger overall retail environment in the Village. • The Village Center – a mixeduse residential and commercial North End destination for commuters that includes Main Street-oriented Midtown transportation and design Village Center elements 111th St.
VILLAGE CENTER The UIC team proposes that the Village redevelop the blocks bounded by Harlem Avenue, Worth Avenue, and the railroad tracks as a “Village Center.” This district will offer a unique sense of place
Harlem Ave.
Introduction For planning purposes, the UIC team divided Worth’s two retail corridors into four planning districts. The 111th Street corridor contains the “Village Center” and “Midtown” districts, and the Harlem Avenue corridor contains the “North End” and the “South Side” districts. Each district has a different character with different strengths, challenges, and opportunities for improvement. The
Worth Retail District Plans
• South Side District – a local-serving district of small convenience and specialty retailers with walkways and landscaping connecting the district to the Village Center
The Village Center will advertise the “new Worth” and the positive transformation of Worth’s retail districts. It will be an a�ractive and highly visible addition to the heavily traveled intersection of
et ra Lin e
Natoma Ave.
Oak Park Ave.
M
Depot St.
Harlem Ave.
4 I-29
South Side 115th St.
Worth’s four retail corridor planning districts
Ridgeland Ave.
• North End District – a hub for larger national retailers with convenient automobile access and a�ractive streetscapes
The Village Center will benefit Worth’s retail environment in three ways. First, 112th St. it will provide Proposed boundaries for Worth’s “Village Center” additional space for new retail development. Since Worth has li�le undeveloped land, the Village must increase retail activity within its existing boundaries. Many communities in the Chicago region, such as Arlington Heights, Oak Lawn and Tinley Park, have used underdeveloped land near commuter railroad stations to create vibrant new retail and residential developments in recent years. By redeveloping underutilized land around the Worth Metra station, the Village can expand its retail choices and add new residents within a relatively limited geographical area.
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• Midtown District – a vibrant retail corridor comprised of clusters of mid-sized retailers serving the regional market with improved parking and pedestrian circulation pa�erns
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Worth Retail District Plans Harlem Avenue and 111th Street and to the Metra station. This station is expected to gain significant ridership in coming years. While the station a�racts over 500 commuters each weekday,
in the southwest suburban region, generating an improved retail image for Worth.
increases in service on the Metra line scheduled for 2005 will likely increase this number. Additionally, the Chicago Fire soccer team stadium will open 4 miles north of the district in 2006. This will further increase traffic along Harlem Avenue and to and from the train station on nights and weekends, providing an additional market for retail activity in Worth.
Village Center: Retail Retail in the Village Center will cater to commuters, residents, and shoppers from around the southwestern suburbs. According to a Metra study, businesses such as dry cleaners, florists, coffee shops, bakeries, restaurants with bars, video rental stores, sandwich shops, and day care facilities are patronized by rail commuters. According to the UIC team’s customer survey, many of these businesses— particularly a bakery and a restaurant—are also desired by residents and shoppers in Worth. The Village Center could eventually support around 80,000 square feet of gross leasable retail space. The UIC team proposes that the Village Center contain stores that cater to the convenience needs of commuters and nearby residents, combined with a signature retail space containing uses such as a family-style restaurant. This signature retail will draw visitors from both inside and outside the Village. The Village Center will combine desirable stores with an a�ractive, walkable downtown environment to create a special place of which Worth residents and visitors will be proud.
The urban design concept for the Village Center district is a mix of retail and residential uses modeled on the traditional American “Main Street.” The district will be centered around the corner of 111th Street and Depot Street. This location was once home to a two-story traditional town Main Street containing a general store and other local businesses. Most of these historic buildings were demolished by the 1970s to widen 111th Street and permit additional traffic. The Village Center will return this historic neighborhood feel to Worth.
Worth once had a historic downtown area along 111th Street
The Village Center will have buildings of two to four stories, with commercial services or condominiums above first-floor retail. Some first floor space may also be residential. Much like other town centers, the Village Center will have a retail mix that caters to commuters, residents, and visitors. While parking will be provided, the district will be focused on the pedestrian. Worth’s Village Center will be an a�ractive alternative to the malls and strip centers 25
Village of Worth Comprehensive Retail Plan
The Village Center will be a “mixed-use” neighborhood. Mixed use is an essential characteristic of traditional Main Streets. Mixed-use development refers to single buildings that include multiple uses,
New Village-Center type mixed-use development in Mount Prospect, IL
Worth Retail District Plans
Dwelling units above stores provide greater residential choices, especially for residents who do not desire a detached single-family house, like many singles, elderly households or couples without children. Residences above stores activate the district during the day and evening, giving retail districts greater vibrancy.
The UIC team proposes a two-phased development process for the Village Center. The first is a “catalyst” project on land that is owned or easily acquired by the Village, and the second is the development of additional “support” parcels surrounding the catalyst project. The catalyst project is discussed at greater length in the Implementation Strategies chapter.
Worth Ave.
concept also includes the mix of uses within a block, for example, a retail store next to an apartment building that adjoins a restaurant. Mixed-use districts allow residents to live closer to shops and locates shops and services more conveniently. Compact parking arrangements, common in mixed-use districts, allow more land to be used for shops, residences and open space. Office space on second floors frees up street-level space for New downtown housing in Palatine, IL higher-traffic retail stores.
Commuters living in the district also benefit by being able to walk to mass transit stops, reducing parking costs and commuting times. Over 100 new residential units (primarily one- and two-bedroom apartments averaging 1200 square feet) could ultimately be located in the Village Center district.
Catalyst sites Depot St.
for instance, retail shops on the first floor, professional offices on the second floor and apartments on the third and fourth floors. The
Harlem Ave.
111th St.
Village Hall site
Potential on-street parallel parking
112th St. New Main Street-type mixed-use retail and housing has become very popular in nearby suburban communities like Mount Prospect (left) and Tinley Park (right)
Catalyst development sites in the proposed Village Center area UIC Revitalizing Urban Business Districts Program
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Worth Retail District Plans Village Center: Parking The provision of adequate, low-cost parking is very important to the new Village Center. The Village Center district will have a pedestrian focus but will provide sufficient space for automobiles. Many parking options will meet the needs of drivers coming to the area. On-street parallel parking already exists along and adjacent to 111th Street on the western half of the corridor. Currently there are approximately 70 spaces in the Potential on-street parking spaces proposed district. On-street parking in the Village Center district should be expanded to cover more retail store fronts along 111th in the Village Center district. The provision of additional parking adjacent to the development is critical both to slowing traffic and providing the perception of low-cost, available parking. On-street parking should also be made available on Depot Street and nearby residential streets. New parallel parking spaces in the Village Center could create up to 300 spaces, almost equal to the capacity of the existing Metra lots. Therefore, adequate retail parking could be provided without requiring additional off-street parking. Worth’s Metra station, currently isolated at the back of a parking lot, will become a visual focal point in the Village Center. While parking demand is currently high, a new Metra station will soon open at 115th Street, providing over 200 spaces that may reduce parking demand at the 111th Street station. As the Village Center develops, the central parking lot at the Worth station could be eliminated or redistributed to lots farther from the station to release 27
Village of Worth Comprehensive Retail Plan
land for the Village Center development or a new “Village Green.” Additional Village Center parking should be provided by existing Metra lots during off-peak hours. Currently, the four existing Metra lots provide nearly 400 spaces which are mostly unoccupied during weekend and evening hours. Parking for Village Center buildings could also be provided by shared parking facilities. These facilities Example of parking located behind could be owned by either the Village a retail development or by a private developer. Shared lots free individual buildings from the burden of providing parking on the same lot and eliminate confusion for drivers by establishing clearly visible parking locations. Any shared lots should be located within two to three blocks of the Village Center. On-site parking, if provided, must be placed behind buildings to maintain retail store frontage along streets and contribute to the “Main Street” image. Streetscape improvements will enhance the pedestrian experience in the new Village Center. New Village Center buildings will slow traffic and enhance pedestrian safety around the intersection of 111th Street and Harlem Avenue. This need was reinforced by customer and business surveys, where respondents expressed the desire for greater pedestrian safety at this intersection. To make crossing 111th Street safer, stop signs or lights with well-marked crosswalks should be placed at the intersection of Depot Street and 111th Street. These signals will also make it easier for drivers when turning from 111th Street on to Depot Street and crossing 111th Street on Depot Street. Currently narrow, sidewalks should
Worth Retail District Plans 2 y. Hw
7,4
00
New traffic signals (left) could ease the pedestrian experience along 111th St.
47,700
4 I-29
111th St.
22,100
Natoma Ave.
Depot St.
00
Oak Park Ave.
27,900 ,1 110
Harlem Ave.
Ridgeland Ave.
st we uth o S
115th St. Existing
Proposed
Streetscape elements (above) enhance the pedestrian experience
be widened to 12 feet to allow comfortable pedestrian movement and to provide a location for streetscape elements such as trees, benches, dining areas, lamps, trash receptacles, and bus shelters. The pedestrian walkway under the railroad right-of-way should be widened to provide a visual connection to the neighborhoods on the north side of Depot Street and to create easy access to the Village Center. Village Center: Urban Design The Village Center’s appearance should reflect the district’s role as the symbolic center of Worth. To achieve this appearance, careful a�ention should be paid to urban design elements in the district. Key urban design elements in the Village Center are building height and bulk, streetscape elements, and signage.
Buildings in the Village Center district should abut the sidewalk or be near the lot line. This will create a consistent streetwall that creates a sense of enclosure for pedestrians and contributes to the visual harmony of the district. All buildings should be at least two stories tall, with a maximum of four stories. This will contribute to the visual unity of the district and provide upstairs space for additional retail and residential uses. Building entrances should be well-defined and face the street. Where retail occupies the ground floor, facades should have large store windows to provide visual interest for pedestrians and enhance street activity. Parking entrances, if any, should be located on side streets or in rear yards. Streetscape elements will contribute to district identity and pedestrian comfort. Street trees should be planted near the edge of the sidewalk to provide shade. Benches should be placed near stores and face the sidewalk. Benches should also be backed by walls, trees or landscaping. Waste receptacles should be provided near retail locations and at prominent corners. Street lamps should be pedestrian-oriented, with heights less than 16 feet and placed every 30 to 50 feet along the sidewalk. Banners and planters may be hung from lamps to add to visual appeal and to reinforce district identity. Parking lots should be landscaped with a planted buffer and a low wall or wrought iron fence to separate them from pedestrians. Signs in the Town Center district should reflect the district’s pedestrian orientation. Internally-lit signs should be discouraged, and signs should be small and a�ached to buildings. Signs should not be located above the first floor. UIC Revitalizing Urban Business Districts Program
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Worth Retail District Plans MIDTOWN DISTRICT
Worth’s trade area for sporting goods (8,000 square feet), toys, cra�s and hobbies (130,000 square feet), books (70,000 square feet), and
The Midtown District runs along 111th Street from Worth Avenue to Ridgeland Avenue. The UIC team called this area “Midtown” because of its central location in the Village and the area’s envisioned role as a new center of retail activity. Midtown
restaurants (99,000 square feet). Therefore, unbuilt space could be filled by these new retail uses, and the parking space lost would be compensated for by improved parking access, improved parking distribution, and additional on-street parking.
Worth Ave.
I-294 111th St.
Ridgeland Ave.
Oak Park Ave.
is currently visually undistinguished, with few retail destinations to draw in non-residents. The UIC team envisions a district that provides a wider range of shops, a more a�ractive visual environment, enhanced development potential, and improved parking and pedestrian circulation pa�erns. The UIC team’s strategies for an improved retail environment in the Midtown District focus on organizing related businesses into “niches,” a�racting national retailers and other desirable local businesses, providing incentives for transportation and urban design improvements, and creating a stronger visual identity for the district.
Proposed 111th Street “Midtown” district boundaries
Midtown: Retail Midtown has substantial building space for additional development. Underutilized parking lots in Midtown provide opportunities for up to 20,000 square feet of new retail development in this area. The retail market analysis showed unmet demand in 29
Village of Worth Comprehensive Retail Plan
Currently retail uses in Midtown are widely distributed, but there are several concentrations of business types within the district on which the Village could capitalize. The UIC team proposes organizing these “unorganized niches” to raise awareness of existing businesses and a�ract new, related ones. For example, the eastern portion of Midtown contains a concentration of autorelated businesses. Themed banners on light poles could be used to draw customers’ a�ention to the collection of related products and services there. Midtown also has numerous restaurants, most of which are locally-owned and serve ethnic food. However, restaurants in Midtown are currently located intermi�ently along 111th Street. Restaurants tend to thrive when clustered together because customers like to have many options in one place. The Village’s interest in promoting specific kinds of development should be publicized through a Business Development Team (discussed in the following chapter) and the traditional real estate channels. Developers should be encouraged to build spaces that would accommodate these uses in locations near existing concentrations of similar businesses. The development of a visible and diverse niche of restaurants and other niches will draw more residents and visitors to the area.
Worth Retail District Plans Many of the existing businesses in the Midtown area are service providers. Zoning changes that allow for mixed-use development in this district could encourage service providers and new residential uses to locate above retailers.
traffic. The current continuous turning strip in the center of 111th Street should be restricted to select turn lanes at streets with traffic signals.
Currently there is only one stop light and one crosswalk between Ridgeland Avenue and Harlem Avenue on 111th Street at Oak Midtown: Transportation and Urban Design Park Avenue. This makes it difficult for pedestrians to safely 111th Street is characterized by automobile-oriented retail on cross 111th Street. A new traffic light with crosswalks could relatively small lot sizes. The UIC team suggests three strategies for be added at Fairplay, the crosswalks at Oak Park Avenue could increasing the transportation efficiency in the district. The first is to be paved, and crosswalks should increase the capacity of 111th Street to support Before: Numerous lots with curb cuts on-street parking, thereby reducing the parking required on building lots. The second is to enhance pedestrian connections between buildings and to the sidewalk. The third is to improve the current distribution of small parking lots, with their confusing or multiple entrances and exits. Parking requirements are quite high. As a consequence, less than half of the spaces surveyed in the Midtown district are regularly used. These unused spaces take up land that could be occupied by additional retail space. On-street parallel parking should be added throughout the district by creating parking spaces along limited portions of 111th Street and on adjoining streets. On-street parking will also enhance safety by providing a protective buffer between pedestrians and
Osco
be present on all sides of the intersection.
Fairplay
111th St.
After: Consolidated lots with less curb cuts Osco
111th St.
Buildings Sidewalks Curb cuts
Fairplay
Better auto circulation Pedestrian pathways
Auto Circulation Pedestrian Paths
Existing small, unorganized parking lots on 111th Street could be redesigned to enhance vehicular and pedestrian access
Many existing retail structures along 111th Street have limited pedestrian connections to the street. This inhibits shopping at these establishments by customers who do not happen to be parked directly in front of the store. The UIC team proposes enhancing “window shopping” in Midtown by encouraging pedestrian walkways from the sidewalk to building entrances. These walkways should be paved in a different texture and color than parking lots and should provide a direct path that is separate from roadways. UIC Revitalizing Urban Business Districts Program
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Worth Retail District Plans A strategy to make more efficient use of parking areas is to consolidate lots or use shared municipal lots. If several businesses share a parking lot, fewer curb cuts are needed for drivers to access the lot. Additional pedestrian walkways could link businesses to these lots, allowing drivers to walk between shopping destinations. Another effective way to eliminate curb cuts is to locate lot entrances on side streets. Several urban design strategies should be used to improve the appearance of the buildings, parking lots, and streetscape elements in Midtown. First, the signage and facades of existing buildings should be improved. Second, new development should be encouraged to link to other retail uses and to encourage pedestrian access. Third, parking lots in front of buildings should be minimized to encourage additional pedestrian access and to enhance the appearance of Midtown. Fourth, improvements should be made to the public areas of the street to encourage additional use and access.
row of parking plus circulation at the front of the lot. Distinctive paving should be used on sidewalks. Signs should be placed lower to be more visible by pedestrians. Facades should feature more windows and have added details and colors. Benches should be placed at prominent points, facing pedestrian traffic. Street trees should be placed along the sidewalk. Pedestrian-oriented street lamps should be evenly placed every 30 to 50 feet. Planters and banners could be placed on the lamps to promote the district’s identity. All of these design ideas can be accomplished through a combination of Fences and plantings buffer parking facing sidewalks zoning reform and the actions of new organizations, both of which will be discussed in the next chapter.
The east entrance to Worth on 111th Street is visually undistinguished, providing a bland gateway to the Village and making it difficult for visitors to know when they New developments in this district should enhance Pedestrian enhancements have entered the Village. The UIC team suggests boldly the pedestrian realm and encourage shoppers to announcing Worth’s retail area by adding colors and lights to the walk the district and shop more. Numerous streetscape elements expressway overpass. The blank concrete walls of the expressway can create a be�er pedestrian realm. New buildings should be underpass could be painted with murals. This bridge will be located closer to the sidewalk, and landscaping should be provided in the area between the building and the street. New buildings should either abut the sidewalk or be set back to allow for one 31
Village of Worth Comprehensive Retail Plan
transformed from a visual obstacle to an exciting announcement of the Midtown district.
Worth Retail District Plans too small for many “big box” retailers—which surveys indicated were
while other parking should be placed behind buildings. When parcels are redeveloped, large parking lots should be shi�ed to areas behind buildings or shared with adjacent parcels. Parking lots that front the sidewalk should be separated from pedestrians by plantings, low walls, or fences. As supply and demand conditions in Worth and the surrounding trade area improve, new retail development will be a�racted to Midtown. This new development should contribute visually to the identity of the Midtown district and should have convenient and a�ractive pedestrian access to neighboring stores. NORTH END DISTRICT The “North End” district of Worth runs along Harlem Avenue from the Village’s northern boundary of Southwest Highway to 108th Place. The North End is separated from the rest of the Harlem retail corridor by several blocks of residential development. However, the district’s larger lots and good auto access make it an a�ractive location for the larger national retailers, some of whom have already opened branches in neighboring municipalities along the same arterial.
SW
y. w H
Harlem Ave.
Large parking lots are barriers between retailers and the street. They diminish the streetscape’s physical appearance. Therefore, small parking lots of no more than 35 feet deep should be permi�ed,
108th St. Proposed Harlem Avenue “North End” district boundaries
Unmet demand (sf) in trade area
not necessarily desired by shoppers—smaller, category-specific national chains and specialty stores could be located in this district. The market analysis indicated that within the regional market there is unmet demand for the following types of stores:
Average sales/ sf
Average Gross Leasable Area
189,282
$90.00
25,000
Consumer electronics 122,427
$206.00
3000
Automotive parts
18,255
$135.00
4500
Specialty sporting goods
10,698
$145.00
3000
Department Store
*Assumptions about GLA and sales/sf based on Urban Land Institute, Dollars and Cents of Shopping Centers (1998)
North End: Retail Customer surveys demonstrated that many Worth residents desire comparison retail stores such as clothing, electronics, and sporting goods stores. While existing parcels in the North End are
The district’s prominent location and high traffic volumes could a�ract national retailers such as T.J Maxx, Best Buy, and the Sports Authority, drawing customers from the region and reducing Worth’s sales leakage. UIC Revitalizing Urban Business Districts Program
32
Worth Retail District Plans To a�ract larger, national retailers, some of the smaller parcels in the North End may need to be combined for redevelopment (below). The UIC team suggests incentivizing private developers to undertake this parcel assembly through a combination of zoning reform, which will permit more effective realization of development potential, and a business a�raction strategy. North End: Transportation and Urban Design The UIC surveys showed that both customers and business owners would prefer Harlem Avenue to be more walkable. Currently, separate lots make it difficult to walk between stores, forcing most shoppers to drive short distances and make dangerous le� turns into parking lots. Pedestrian walkways should be placed between stores and through parking lots that front buildings in the manner described for Midtown. Parking lots can also be combined when parcels are redeveloped.
the North End will likely remain in front of many buildings, lots that abut the sidewalk should have low brick walls, wrought iron fencing, and landscaping. This will make walking between stores more comfortable and give the district a be�er appearance.
Auto-oriented retail districts can be visually enhanced, making them more attractive to shoppers (left and above)
In addition to walkways, the urban design focus of this area should be on more a�ractive signage, plantings that enhance the Parcels in the North End which are too small to accommodate big-box stores could be combined through redevelopment to accommodate larger buildings (below) streetscape, and an architectural consistency that can create a sense of Worth’s identity on Harlem Avenue Old parcel configuration (typical) New parcel configuration (typical) despite the presence of national chain stores. Signs should be more coordinated in size and location on buildings and facades should be improved with more colors, windows or architectural details. Although parking lots in
33
Village of Worth Comprehensive Retail Plan
Worth Retail District Plans
enclosure, especially in an area with large retail stores and lots of off-street parking. Benches should be strategically placed along pedestrian paths, facing pedestrian traffic. Benches could also be placed behind stores at walkways connecting to rear parking lots. Waste receptacles should be located at key points. Bus shelters can be located on the street and should be more efficiently spaced along this portion of Harlem Avenue. SOUTH SIDE DISTRICT The “South Side” district extends from 110th Place to 115th Street along Harlem Avenue. The UIC team suggests that this district be comprised of smaller, local-serving businesses and serve as another community center. The district should be well-connected to the Village Center so that shoppers and residents can easily walk or drive between the two areas.
112th St.
Harlem Ave.
Street trees should be planted every 30-40 feet between the sidewalk and the street to protect pedestrians and to create a sense of
sporting goods stores; 1,000-2,000 square feet of coffee shops; and/or 2,000-4,000 square feet of family-style restaurants. Possible candidates that would enhance the district and meet the needs indicated by the retail analysis include a smaller, specialty food store, a small hardware store such as Ace Hardware, a bookstore, a family-style restaurant, a coffee shop, or a shoe store. Although customers surveyed desired a grocery, the UIC team did not find sufficient demand to support an additional full-scale grocery store. In addition to the Fairplay on 111th Street, a Jewel and a Dominick’s are both within a mile radius. However, a smaller food store (2000 square feet) that would not compete directly with grocery stores but would offer similar products could be supported here.
South Side: Retail Unlike the regional focus of the North End, the South Side district should have retail stores that primarily serve residents of Worth and its neighboring communities. Since retail parcels are limited, stores will remain small--between 1000 and 6000 square feet. However, because of underutilized parking lots, approximately 15,000 square feet of additional retail space could be developed in the district. The UIC market analysis suggests that a mix of the following retail uses would be appropriate in the district: up to 2,000 square feet
Like Midtown, there are several unorganized niches on the South Side: in particular, businesses serving the region’s Arab-American population and those providing goods and services for special occasions. Clustering facilitates internal trips and shared parking.
of convenience retail; 1,000-3,000 square feet of shoe stores; 2,0003,000 square feet of bookstores; 1,000-2,000 square feet of specialty
Themed signage and collectively-financed advertisements could be used to identify and promote these clusters.
115th St. Proposed Harlem Avenue “South Side” retail district
UIC Revitalizing Urban Business Districts Program
34
Worth Retail District Plans South Side: Transportation and Urban Design The South Side’s smaller lots and automobile-oriented retail informed the development of the UIC team’s two primary strategies for this district. The first is to improve pedestrian access, especially in areas between buildings and sidewalks. The second is to combine or eliminate current small parking lots to provide for a more orderly, a�ractive district. To make the South Side pedestrian-friendly, pathways similar to those suggested for Midtown should connect businesses and provide be�er access across parking lots. Sidewalks should be widened to at least 6 feet and should be set back at least 6 feet from Harlem Avenue. Crosswalks at 115th Street and 111th Street should be paved or painted to be more visible. The numerous small parking lots that front businesses in the South Side district are underutilized and make it difficult to walk between stores. Moreover, several business expressed concerns that their stores were not big enough, yet they had no room to expand. Parking requirements should be reduced, and lots should be combined and shared by multiple businesses. On-street parallel spaces can be built on side streets within one block of Harlem Avenue. On-street parking on Harlem Avenue will be unlikely because of the busy nature of the street and its status as a state highway. Any new development in the area should have reduced parking and shi� some of this parking behind stores.
35
Village of Worth Comprehensive Retail Plan
Design strategies for improving the South Side include enhancing building facades and signs and adding streetscape elements. Facades should add ornamental details and colors to produce a more positive image. New buildings should either abut the sidewalk or be set back at least 35 feet to allow for one row of parking plus circulation at the front of the lot. Signs should be lower, and landscaping should be provided in the area between the building and the street. To make the district a more comfortable place for pedestrians, streetscape elements should be carefully integrated. Street trees should be planted in the buffer area between the street and the sidewalk, evenly spaced every 25 feet. Lamps that are pedestrianscaled (less than 16 feet tall) should be spaced every 30 to 50 feet in the buffer area. Benches should be placed in prominent locations and face pedestrian traffic. Parking lots that front a sidewalk should be landscaped and separated by a low brick wall, plantings, or a low fence. Finally, Harlem Avenue in Worth should have a separate visual identity from the rest of the Avenue. An easily-identifiable, memorable gateway could mark the railroad overpass north of 111th Street.
Worth Retail District Plans Conclusion Fostering commercial growth and physical improvements in the
Worth The Friendly Village
Municipal Boat Launch
four districts will mean adapting and changing the organization, scale, and use of spaces, buildings, and infrastructure within each area. Some of the current buildings may be modified to make room for future commercial ventures, but the small size, age, and configuration of others precludes such modification. In some places existing buildings may need to be replaced with new ones that provide for improved retailing performance. In some spaces buildings and parking lots may need to be joined or reconfigured to provide space for new buildings to a�ractively house both additional businesses and new residents. Most of these improvements will occur project-by-project over the long-term. We provide suggestions for initiating and coordinating this plan in the short- and long-term in the following chapter.
Worth Public Library
New signage could mark the entry to Worth’s retail districts
UIC Revitalizing Urban Business Districts Program
36
Implementation Introduction Implementation turns plans into action. In the following chapter, suggestions are offered for converting the planning ideas into actionable strategies for enhancing the Village of Worth’s retail districts. These include some important tools that the Village of Worth already has on hand as well as some new public and marketbased interventions. They are organized around four key themes: zoning reform to encourage new development and a more a�ractive
and small, pedestrian-oriented parcels) from occurring, preventing more effective uses of available land. The four planning districts created by the UIC team can be thought of as either “large-scale retail” (North End and portions of Midtown) or “small-scale retail” (Village Center, Midtown, and South Side). The UIC team’s regulatory recommendations, however, are preliminary and should not be considered official zoning text.
retail environment; organizational and marketing strategies to retain and a�ract businesses; a catalyst project to jumpstart new development; and fiscal strategies to finance needed improvements.
Reforms should be made to the zoning regulations to encourage more a�ractive, accessible, and viable retail development. Zoning reform costs the Village very li�le and offers significant potential for enhancing the development capacity of Worth’s retail districts. The most important reform is to remove the inhibiting effect that Worth’s high parking requirements have on realizing the full buildout of parcels. First, parking requirements should be lowered to 3 spaces per 1000 square feet of retail area in Midtown on 111th Street and in the South Side of Harlem Avenue. Requirements should be lowered to 4 spaces per 1000 square feet of retail on the North End of Harlem Avenue. The Village Center will have no retail parking requirement because of its pedestrian nature. However, up to 2 parking spaces per 1000 square feet of retail may be provided onsite. Residential development in the Village Center should have a maximum of 1 parking space per housing unit and no minimum parking requirement.
The plan recommendations can be implemented over two phases, the short term (0-3 years) and the long term (3-plus years). Short term projects are generally easier or less expensive to accomplish and are vital to jumpstarting the redevelopment process. Long-term strategies will require more resources as well as careful study and informed public debate. Both short- and long-term strategies will require strong support from local public officials. SHORT-TERM STRATEGIES (0-3 years) Zoning Reform Retail practices have changed since the Village’s business districts were first developed. Auto accessible stores require larger lots and floor areas than the current parcels and building footprints allow, while many of Worth’s retail parcels were originally developed for pedestrian access. Worth’s zoning code, created in 1968, discourages either of these outcomes (large, auto-oriented parcels 37
Village of Worth Comprehensive Retail Plan
Second, building setback requirements should be altered so that new buildings in the small-scale retail districts are encouraged to abut the sidewalk. New buildings should be required to abut the sidewalk in the Village Center. Maximum setbacks in Midtown and the South Side should be 35 feet to permit one row of front parking
Implementation plus automobile circulation. In these districts, when a building is set back from the street, pedestrian walkways that meet design standards must be built from the sidewalk to the building. Any parking located in front of buildings must allow for internal traffic circulation, with curb cuts being located on side streets whenever possible. Third, zoning in the small-scale retail districts should allow for mixed residential and commercial uses and permit service uses to locate on the second floor. Worth’s current zoning code makes it difficult to mix uses and create walkable retail environments. Mixed uses create greater retail and residential concentration, bringing more shoppers and residents closer to stores and community gathering places. Mixed-use environments generate more street activity, reduce the demand for parking, and are o�en more a�ractive and distinctive. The Village should designate the Village Center as a Planned Unit Development (PUD) to permit pedestrianscaled mixed-use development. The PUD zoning will govern building bulk and use and should also allow for sidewalk dining, which the current zoning regulations appear to prohibit. Fourth, limited design guidelines should be included in the reformed zoning regulations. While improved physical appearance is a priority for Worth’s retail districts, encouraging design enhancements should not impose a heavy regulatory burden on the Village. This process can be simplified by adding limited design guidelines to the PUD for the Village Center. Design guidelines in the Village Center PUD are intended to foster more pedestrian-friendly development and will therefore be somewhat more stringent than in other districts.
Design guidelines should apply to new development in the following areas: Village Center PUD: Signs • Pole and roof signs prohibited • Window signs should be no larger than 20% of total window area • Wall-mounted signs should be no larger than 50% of wall area; projecting signs no higher than first floor of building Sidewalk width and paving • Sidewalks must be at least 10 feet wide • Distinctively paved crosswalks should be located at traffic signals and stop signs Streetscaping • Street trees should be planted at 25-foot intervals along sidewalks • Street lamps should be not exceed a height of 16 feet and should be spaced every 30 to 50 feet along sidewalks. Cobra-head streetlamps should not be permi�ed • Benches should be placed in prominent locations and should face pedestrian traffic; benches should be backed by planters or walls where possible Facades and building heights • Street level façades must be at least 50% glass or transparent material along retail frontages • New buildings must be at least two stories and no more than four stories • New buildings shall not exceed 45 feet in height Parking Lots • Three-feet wide buffers consisting of plantings, wrought iron fencing, or brick walls must be placed between all front parking lots and sidewalks UIC Revitalizing Urban Business Districts Program
38
Implementation Midtown, North End, and South Side districts: Signs • Pole signs shall not exceed a height of 14 feet or a width of 8 feet • Mounted signs shall not exceed a height of 12 feet or a width of 8 feet Sidewalk width and paving • Sidewalks and pedestrian walkways must be at least 8 feet wide • Pedestrian crosswalks must be distinctively paved Streetscaping • Street trees should be planted at 25-foot intervals along the sidewalk • Street lamps should be not exceed a height of 16 feet and should be spaced every 30 to 50 feet along sidewalks Facades and building heights • Buildings shall not exceed four stories or 45 feet in height Parking lots and pedestrian connections • Three-foot high buffers consisting of plantings, fencing, or walls must be placed between parking lots and sidewalks • If set back more than ten feet from the front lot line, buildings must have six-foot-wide pedestrian walkways • Pedestrian connections to the street must be six feet wide and paved in a different material than the parking lot. They must be placed either along a lot centerline or edge, or where parcels are large, once every 150 feet of street frontage where buildings do not abut the sidewalk. They must connect to pedestrian sidewalks at the front of buildings.
39
Village of Worth Comprehensive Retail Plan
Business Development Team Business improvement strategies should be used to enhance the appearance of the retail districts, market existing businesses, and provide incentives for new retail development in the Village. A first step in this direction would be to establish a Business Development Team (BDT) to coordinate and execute strategies aimed at business improvement and development. The BDT should have 5 to 7 members, including the Village President, the head of the Chamber of Commerce, local business owners, real estate professionals, property owners, and bankers. Through the BDT, the Village and local businesses organizations would cooperate to raise consumer awareness of the goods and services offered in the Village and use revitalization strategies to fund beautification of the retail corridors. Specifically, the BDT could accomplish the following: • Recruit new businesses. The BDT should inventory and market available land or properties to desired businesses. The BDT should develop promotional materials about Worth and its trade area demographics for prospective retailers. • Assist related or complimentary businesses to organize and market themselves together. Auto-related businesses, special occasion retailers, and ethnic restaurants are three niches that could be marketed collectively to the region. • Provide financial assistance to new businesses. To encourage new businesses to locate and expand in the Village, the BDT can develop incentive programs, such as a sales tax rebate for façade renovation, new signs or facility improvements, which would be available to qualified businesses.
Implementation •Organize a marketing campaign to advertise the Village’s retail and recreational opportunities. The Village should adopt a logo and
An SSA is funded by an additional tax on properties within its boundaries. With the support of local business leadership, Worth may institute an SSA by ordinance. The BDT could be the lead agency responsible for governing the SSA and overseeing the allocation of funds.
slogan to be placed on banners, brochures and signs throughout Worth. Information could be provided in businesses as well as at Village events such as Worth Days or the auto show. Special Service Area The Business Development Team would be critical in operating a Special Service Area (SSA) along 111th Street. SSAs provide funds for business district improvements, including the installation and maintenance of planters, banners, streetscapes, and facades, and business promotion programs such as business development seminars or tourism and event planning. In the UIC survey, business owners and shoppers alike cited the poor appearance of the retail district as a major concern, and the SSA could do much to improve it.
The additional tax levy would not be a burden on local business and yet would provide much-needed revenue for public improvements. In 2003, the commercial properties along 111th Street had an assessed value of roughly $6.7 million. If the SSA were to set an annual budget of $150,000, the levy amount would be only 0.87% (see table). This taxing rate would be well within the range of nearby SSAs, including Bridgeview (SSA #3, levy of 0.66%), Evergreen Park (SSA #1, levy of 1.32%), and Alsip (SSA #14, levy of 1.56%).
Ridgeland Avenue
Nagle Avenue
Natchez Avenue
111th Street Natchez Avenue
Nashville Avenue
Natoma Avenue
New England Avenue
Worth Avenue
Normandy Avenue
Oak Park Avenue
Worth Avenue
Depot Street
Harlem Avenue
111th Street
4 I-29
New England Avenue
Total Assessed Value of Properties in 111th Retail District (2003) Expected Value by 2005 (@ 3% increase) Equalization Factor (2003)
Equalized Assessed Value (2005) Proposed Special Service Area along 111th Street
SSA Taxing Levy Total Annual SSA Levy
$6,753,528 $6,956,134
2.4689
$17,173,999 0.87% $150,000
UIC Revitalizing Urban Business Districts Program
40
Implementation The additional revenues could be used to accomplish the following plan goals: streetscape improvements, façade program, signage improvements, plantings, and gateway markers. The BDT could also work with the Illinois Department of Transportation and other local agencies to improve crosswalks at major intersections. As a first priority, new traffic lights and crosswalks should be installed at 111th Street and Depot and at the popular Fairplay Foods. Since much of Worth’s retail districts may not be redeveloped in the shortterm, the SSA is necessary to implement the physical improvements suggested in the zoning reform for existing buildings. While an SSA can fund minor aesthetic improvements, it cannot finance the large projects that are needed for the Village Center PUD. These can be assisted with the designation of a Tax Increment Financing (TIF) district, which we will discuss in the following section. LONG-TERM STRATEGIES (3+ years) Catalyst Project A catalyst project is generally a “landmark” building that establishes a sense of place and spurs further development in the area. As detailed in the plan, Worth’s landmark building should be an a�ractive, prominent structure of two to four stories with a signature retail establishment on the first floor and residences or professional services above. The catalyst project could contain anywhere from 6,000 to 10,000 square feet of retail and restaurant uses, especially those catering to commuters, residents and visitors.
41
Village of Worth Comprehensive Retail Plan
Retail demand for the following small businesses currently outpaces the supply of retailers in Worth’s trade area: Type of Business
Trade Area
Average sales/ sf
Gross Leasable Area Range(sf)
Coffee Shop / Bakery
Unmet Demand (sf)
Convenience
3,700
$480.89
450 – 2,000
Video Rental
Convenience
2,300
$86.66
1,200 – 6,000
2500
Sandwich Shop
Convenience
19,000
$207.24
824 – 2,300
1300
Restaurant w/ Liquor
Comparison
99,000
$271.60
2,000 – 8,000
3400
Bookstore
Comparison
83,000
$127.29
2,000 – 10,000
3300
Toys and Hobbies
Comparison
136,000
$121.33 137.24
1500 - 10000
1500
Average Gross Leasable Area
1500
*Assumptions about GLA and sales/sf based on Urban Land Institute, Dollars and Cents of Shopping Centers (1998)
A combination of these retail tenants in the catalyst project would a�ract a sufficient market of local and non-local consumers and spur additional retail development nearby. The landmark building could have visible amenities such as sidewalk dining areas and a courtyard or plaza. We propose that this catalyst project be located in the vicinity of 111th Street and Depot Street, on the site that is currently vacant or on the site that the Village Hall currently occupies. The vacant site is approximately 15,000 square feet. The Village Hall is located at the most prominent intersection in Worth, one that holds substantial market appeal due to its excellent access, visibility, and proximity to the Metra station. The Village Hall and the fire station could be relocated to open land at the Lucas Berg Pit several blocks
Implementation west of Harlem Avenue on 111th Street. Currently, the site is owned by the Metropolitan Water Reclamation District (MWRD) and is intended to serve as a dumping site for dredged silt from the CalSag Channel. Because the Cal-Sag Channel is a navigable waterway, the Army Corps of Engineers administers operations at the Pit. While there have been no dredging deposits made on the site, the southernmost pond has been lined with clay and is available for deposits. However, the northern portion of the site contains several acres of land that are currently unused. If the MWRD were to obtain permission from the Army Corps of Engineers to allow the Village to develop the property, the Village could relocate its civic center to a parcel on the northeast corner of the property at 111th Street and Oketo Avenue. Moving civic uses that occupy prime retail space would free up approximately 60,000 additional square feet of street-level retail space in the Village Center at a highly visible location. The relocation may also spur additional development at the Lucas Berg Pit site. Spurring private development in these areas would contribute sales and property tax revenues to the Village because they are currently fiscally unproductive as public property. New development in the Village Center could also increase the pedestrian traffic in the area and spur additional development activity in the Midtown and South Side districts. Another potential site for the catalyst project is the southeast corner of Harlem Avenue and 111th Street, with commercial or residential uses over first-floor retail. These sites are currently occupied by parking lots and service businesses. Together development of
these sites with Main Street-type buildings will create a unique and memorable sense of place in the new heart of the Village of Worth. Given the shortage of vacant land, steady appreciation of housing prices, and the a�ractiveness of Worth as an easily accessible suburb, it is likely that the market will take care of the proposed residential development in the Village Center without much public financial assistance. With interest rates at historic lows and property values relatively high, returns are likely to be sufficient to a�ract developers for the new mixed-use development. However, the Village could assist with the retail development process by engaging in some parcel assembly and/or providing some of the suggested infrastructure and improvements itself. Tax Increment Financing In order to pay for select infrastructure improvements and parcel assembly, Worth could pursue several long-term funding strategies commonly used by non-home rule municipalities. These strategies include issuing municipal bonds, increasing the municipal sales tax by 0.5%, and instituting cost-saving measures such as sharing police or fire-fighting services with neighboring municipalities. If the residents were supportive, the Village could also establish home rule status to generate additional sales tax revenue and lower the cost of government borrowing. However, raising taxes is o�en unpopular with local property owners. This is why many Illinois municipalities have used Tax Increment Financing (TIF) to fund more expensive development such as land assembly, parking garages, road improvements, and major streetscape enhancements. A TIF can protect taxpayers from UIC Revitalizing Urban Business Districts Program
42
Implementation the burden of front funding those projects that will benefit them in the future. A TIF district is a new jurisdiction that receives the proceeds from any increases in property tax revenues within its boundaries over a set period of time (typically 23 years). TIF is not a new tax: property owners pay their normal bill. However, tax revenues are redirected from other overlapping districts (e.g., schools, parks) to the area within the TIF boundaries for the duration of the district’s lifetime.
assistance from the US DOT’s Congestion Mitigation and Air Quality (CMAQ) Improvement Program. Since the new structure would need to contain over 400 spaces, and parking structures can be estimated to cost as much as $10,000 per space, as much as $4 million would be needed to build the garage. We conservatively estimate that the present value of the tax increments generated over the 10 years a�er the initial build-out would equal more than $6 million. Total Assessed Value in Village Center District (2004)
$1,873,107
Residential Assessed Value (@ 100 for-sale units)
$2,400,000
Retail Assessed Value (@ 80,000 gross leasable area and $14 AV/sf)
$1,120,000
Equalization Rate
2.46
Village of Worth Tax Rate
8.10 percent
Estimated Increment in First Year of Build-Out
$700,529
Annualized Appreciation Rate
3 percent (new dev) 2 percent (existing dev)
Estimated Total Increment over 10 Years (@ 5% discount rate)
$6,190,485
Harlem Ave.
111th St.
112th St. 43
Village of Worth Comprehensive Retail Plan
Worth Ave.
Depot St.
M
et ra SW
S
The UIC team recommends a TIF district in the Village Center PUD to pay for improvements necessary to a�ract a master developer to the ambitious mixed-use project. These improvements could include construction of new parallel parking spots, assembly and development of shared parking lots and the construction of pedestrian walkways, repaving Depot Street and widening sidewalks in the Village Center to at least 10 feet. If necessary, a portion of the TIF could be used for the construction of a municipal
parking garage adjacent to the Metra Station. Metra has invested in many parking structures in the past, and has received development
Tax increment financing for the proposed Village Center would be effective within the boundaries of the TIF district
Implementation If the Village designates a TIF district to develop the Village Center, several steps should be taken to limit negative impacts on other
Conclusion: A New Vision for Worth’s Retail Districts
institutions, particularly school districts.
The impacts of the comprehensive retail plan will realize the three guiding principles of place, choice and prosperity.
1. The TIF district should only cover the Village Center district. 2. The TIF district should be dissolved as soon as the development goals have been accomplished, potentially 10 years. 3. To optimize the performance of the TIF district, the Village should follow the pay-as-you-go model rather than issuing bonds. Additionally, the state government offers assistance to school districts that have lost revenue as a result of a TIF. Recent changes in the legislation allow TIF districts to contribute funds to school districts that are financially impacted by the new development. Neighboring communities such as Alsip, Chicago Ridge, Palos Heights, Palos Hills, La Grange, Oak Lawn, and Bridgeview all have experience with TIF districts from which Worth can learn.
1. PLACE: A visually a�ractive and distinctive retail district will create a new “sense of place” in Worth. Improvements in streetscaping, storefront appearance and traffic circulation will make Worth’s retail districts a�ractive and unique places. The identity of the Village and each district will be enhanced, creating a destination for regional shoppers. The Village Center will have a “Main Street” feel, with increased residential and retail uses, that will be a desirable alternative to area malls and big box stores. Parking choices will be expanded, and downtown Worth will become an enjoyable place for pedestrians and commuters. Buildings of two to four stories will line the sidewalk. Residential units or services will be located above small retail stores, full-service restaurants, coffee shops and sandwich that line the streets. New crosswalks and traffic lights will make it safer for pedestrians to cross 111th Street and decrease auto accidents in all the districts. Improvements in Midtown including be�er parking, increased walkability, storefront improvements and be�er traffic circulation will the district more appealing to shoppers. The North End and South Side will also have be�er parking and improved storefronts, giving the districts a more a�ractive appearance.
UIC Revitalizing Urban Business Districts Program
44
Implementation 2. CHOICE: A wider range of shopping options will improve the retail choices for Worth and its surrounding communities. Worth will become known as a regional shopping destination. There will be more choices for shoppers, including restaurants, national retailers, convenience retail and niche markets. The Village Center will provide residential options that the Village currently lacks. Smaller retailers in the district will cater to the community, commuters, and visitors. Spaces will be designed to be flexible, allowing for changes from residential to retail uses over time. More commuters will walk to the Metra station with increased residential development. Improvements in service will lead to more riders. Larger national establishments will be located in Midtown and North End districts, with more convenience and niche retailers in the South Side. Vehicle and pedestrian access will be enhanced, allowing customers to walk between stores. Synergies between developments in the Village Center, Midtown and South Side districts will create a “critical mass” to make Worth a destination.
45
Village of Worth Comprehensive Retail Plan
3. PROSPERITY: An improved business district and retail climate will generate more revenue for Village businesses and the Village government. Zoning reforms will make it easier to build additional a�ractive retail buildings with more efficient parking. New and existing businesses should see increases in sales, generating greater sales tax revenues for the Village. Property values will increase due to more intense land use. Business a�raction strategies will draw desired retailers into the Village and reduce the high sales leakage in Worth. Businesses should organize themselves into niches to increase customer awareness and increase sales. Service uses will be located above retail to yield more retail space on valuable ground-floor locations.
Appendix Summary of findings from business and customer surveys
What Worth Customers Like about Worth Convenience
Worth Business Owners Want...
30
Good Prices
25
Customer survey respondents = 37 Business survey respondents = 26
On the way Hours of to/from work Operation Access by walking Attractiveness of area Variety Access by public of products transportation
15
10
5
Business Owners say their customers currently arrive by...
0
Bicycle 0% Other Walking 4% 7%
Limited variety of goods
12
Lack Traffic of too slow Traffic parking too fast Lack of parking on Harlem
Number of Respondents
10
Driving 88%
Customers say they would like to shop by... Bicycling to and between stores
8
4
I would support a new retail promotions event.
I like everything on 111th
The existing business mix in Worth helps my business.
10 8
By taking public transit = 0
8
10 12 14 16 18
My building façade draws customers into this business. The Harlem Avenue Corridor is an attractive place to shop.
None
2
Satisfaction of Worth Shoppers With...
6
The look and feel of downtown Worth helps my business.
6 4
4
The signage in downtown Worth helps my business.
Better More appearance national More of businesses chain locally owned stores Safer businesses street Bigger crossings More stores Better accessibility Parking via public transit
12
2
Statements with which Worth Businesses Somewhat Strongly or Strongly Disagree
More trees,benches,flowers 14
0
Businesses
Low I don't feel quality/ safe service rude
What Worth Shoppers Want...
37%
43%
I always direct customers to other businesses in Worth.
I like everything
2
Driving to the business district and driving between stores
5%
It is important to me that customers can walk to my business.
Inconvenient store hours Better prices elsewhere
6
0
15%
Driving to the business district and walking between stores
Statements with which Worth Businesses Strongly Agree
What Worth Customers Dislike about Worth
Public Transit 1%
Walking to and between stores
21% 21% 18% 18% 14% 7%
Street improvements Economic assistance More parking spaces Improvements to building exterior Improved signage Easier building and zoning permitting
Good Service
20
0
0
2
4
6
8
Businesses
Retail, Entertainment and Restaurant Offerings The Appearance of Worth's Business Districts
Pedestrian and Personal Safety
100%
Strongly Agree
90% 80% 70%
60%
43%
50%
52%
55%
53%
51% 82%
Slightly Agree
60% 50% 40%
Neutral
30%
40%
20% 10% 0%
20%
30% Strongly Disagree
I am happy with Worth’s entertainment options.
There are a lot of products and services available in Worth.
36%
Slightly Disagree
Worth is an attractive place to shop.
I am happy with Worth’s restaurant options.
20%
37%
I feel safe crossing Harlem Avenue on foot.
I like the look and feel of Worth’s business districts.
26% Worth is a safe place to shop.
I feel safe crossing 111th Street on foot. UIC Revitalizing Urban Business Districts Program
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