Near South Community Plan

Chicago, IL Near South Community Plan

Final - May 2004 Adopted by the Chicago Plan Commission, March 11, 2004

Table of Contents

Page: Page: Acknowledgements i Appendix: Existing Conditions A1 Introduction iii Existing Ground Floor Land Use, Area 1 A2 Executive Summary v Existing Ground Floor Land Use, Area 2 A4 Section 1: FRAMEWORK PLAN 1 Existing Upper Floor Land Use, Area 1 A6 Land Use System, Area 1 2 Existing Upper Floor Land Use, Area 2 A8 Land Use System, Area 2 4 Historic Properties & Urban Design, Area 1 A10 Traffic Circulation System, Area 1 6 Historic Properties & Urban Design, Area 2 A12 Traffic Circulation System, Area 2 8 Building Heights, Area 1 A14 Parking System, Area 1 10 Building Heights, Area 2 A16 Parking System, Area 2 12 Community Facilities, Area 1 A18 Transit System, Area 1 14 Community Facilities, Area 2 A20 Transit System, Area 2 16 Transportation and Parking Conditions, Area 1 A22 Parks and Open Space System, Area 1 18 Transportation and Parking Conditions, Area 2 A24 Parks and Open Space System, Area 2 20 Recent and Ongoing Projects, Area 1 A26 Pedestrian System, Area 1 22 Recent and Ongoing Projects, Area 2 A28 Pedestrian System, Area 2 24 Proposed Plans and Projects, Area 1 A30 Building Improvement & Development, Area 1 26 Proposed Plans and Projects, Area 2 A32 Building Improvement & Development, Area 2 28 Current Zoning, Area 1 A34 Section 2: DEVELOPMENT DISTRICT PLANS 31 Current Zoning, Area 2 A36 Overview of the Development Districts, Area 1 32 Zoning Analysis, Area 1 A38 Development District Guidelines, Area 1 34 Zoning Analysis, Area 2 A40 Overview of the Development Districts, Area 2 46 Properties Susceptible to Change, Area 1 A42 Development District Guidelines, Area 2 48 Properties Susceptible to Change, Area 2 A44 Section 3: IMPLEMENTATION PLAN 55 Action Responsibilities 55 Zoning 56 Funding Sources and Implementation Mechanisms 61 Priority Projects and Actions 63

Near South Community Plan City of Chicago May 2004 Table of Contents In Memory of John C. Pettigrew

The Near South Community Plan is dedicated to John C. "Jack" Pettigrew (1937-2003), principal of Trkla, Pettigrew, Allen, and Payne, Inc. As the original author of the Near South Com- munity Plan, Jack Pettigrew laid the foundation for the principles contained within this final document.

Jack Pettigrew dedicated his life to the creation of community plans, such as this Plan, and to the use of planning to improve the quality of life for those living and working within the communities. He worked for over 40 years in the public and private sectors of planning, lead- ing large-scale planning and development projects in communities of all sizes, from large urban cities to small rural towns. Jack had a significant impact on these communities by providing them with both the roadmap and the tools to create and enhance great communities.

While Jack Pettigrew completed plans all across the country, he was deeply committed to Chicago and its communities as a professional planner as well as a life-long Chicago resident. He was particularly involved in Downtown, as a member of the Chicago Central Area Commit- tee, president and board member of Friends of Downtown, and as a long-time resident of the Central District. Jack was a pioneer resident in the Dearborn Park II development and was committed professionally as well as personally to the growth, development and success of the Near South.

Jack Pettigrew's significant contribution to the success of the Near South Community Plan is also seen through the method by which he began the creation of the Plan. He worked closely with the community to understand their needs and desires, and to craft creative solutions to address their needs, and help them envision a brighter future.

Jack's long-lasting influence will be seen by future generations to come as the City of Chi- cago and the Near South community work together to implement the recommendations of the Near South Community Plan. Implementing the Plan will fulfill Jack's determined belief that good planning can improve people's lives. Acknowledgements

City of Chicago Richard M. Daley, Mayor

Department of Planning and Development Denise M. Casalino, P.E. Commissioner Terri Texley Deputy Commissioner, Central District John L. Swenson Deputy Commissioner, Zoning Division Brian Goeken Deputy Commissioner, Landmarks Division Kristin Groce Project Manager, Central District Benet Haller Project Manager, Central District

Project Consultants: Trkla, Pettigrew, Allen & Payne, Inc. John C. Pettigrew President

URS-TPAP Karen Stonehouse Senior Project Planner, Urban Planning

Fish Transportation Group, Inc. Cindy A. Fish Principal

Participants & Steering Committee Members: Susan Mea Chicago Department of Transportation Luann Hamilton Chicago Department of Transportation Kevin Stanciel Chicago Transit Authority Chris Gent Chicago Park District Giacamo Mancuso Chicago Public Schools Cynthia Young Legislative Assistant to Alderman Haithcock, 2nd Ward Mike Kelly Historic Printers Row Neighbors Dennis McClendon Historic Printers Row Neighbors Bonnie Sanchez-Carlson Near South Planning Board Barbara Lynnne Near South Planning Board Steve Ward Greater South Loop Association Andrea Peterson Greater South Loop Association Tommy Bezanes New South Association

Special Thanks: Madeline L. Haithcock 2nd Ward Alderman Dorothy J. Tillman 3rd Ward Alderman

Near South Community Plan l City of Chicago l URS l TPAP l May 2004 l Acknowledgements The Near South Community

NEAR NORTH

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RIVER NORTH STREETERVILLE

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w LOOP ess

r Madison St. p x E y d e LAKE nn State St. Michigan Ave. e LaSalle St. Wacker Drive

K MIICHIIGAN Lake Shore Drive Congress Parkway Grant Park

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May 2004 URS TPAP City of Chicago Near South Community Plan INTRODUCTION

Chicago's Near South Community The Near South Community, once a The City of Chicago has prepared encompasses the area bounded by commercial/industrial area, is becom- the Near South Community Plan to Congress Parkway to the north, ing increasingly residential in charac- address the many land use, transpor- Lake Michigan to the east, the ter. This change in character com- tation and open space issues con- Stevenson Expressway (I-55) to the menced when abandoned railroad fronting this diverse and dynamic south, and the Chicago River and properties were transformed into new area. Following the Executive Sum- Wentworth Avenue to the west. At residential communities, including mary, the document is divided into two square miles, it is roughly Dearborn Park, River City, and Central four sections: double the geographical size of Station. Framework Plan - Containing the Chicago's Loop. The Near South has also seen the future land use, transportation and The Near South is home to many con-version of former industrial open space plans; of Chicago's outstanding attractions; buildings to residential use, including Development District Plans - indi- including several famous museums; many in Historic Printing House Row. cating how the recommendations of the nation's largest convention cen- In addition, large-scale public the Framework Plan would be ter; four miles of waterfront along improvements have been undertaken applied to smaller subareas or Lake Michigan and the Chicago in recent years, including the "districts" within the community; River; and four Chicago Landmark relocation of Lake Shore Drive in 1997 Implementation Plan - providing Districts: Printing House Row, and the construction of the District 1 information on how specific recom- Motor Row, Prairie Avenue, and Police Headquarters in 1999. mendations of the plan may be Historic Michigan Boulevard. implemented over the next 15 years; and Appendix - providing information on projects that were underway when the plan was completed, existing conditions, and information on larger, approved planned developments within the Near South Com- munity.

Near South Community Plan City of Chicago URS TPAP May 2004 iii

EXECUTIVE SUMMARY The Near South Community Plan pres- The Plan strives to enhance the Near The Plan recognizes the distinctive ents policies and guidelines for improve- South Community as a mixed-use urban qualities of smaller sub-areas that com- ment and redevelopment of the area neighborhood that complements pose the Near South Community with bounded by Congress Parkway on the Chicago’s nearby commercial, office the Development District Plans and north, Grant Park and Lake Shore Drive and institutional developments. strives to link and interconnect these dis- on the east, the Stevenson Expressway The Plan builds upon the existing tricts into a cohesive whole. The Plan on the south, and the Chicago River on qualities of the Near South: its proximity grows from six guiding principles: the west. Roosevelt Road divides the to the Loop; rich street life; mixed use l A Diverse and Exciting Mix of Uses; two study areas (Area1 and Area 2) that character; residential orientation; pedes- l Safe and Convenient Access and Cir- make up the Near South Community. trian scale; historic character; and culation; unique shops, services, and institutions. l Well Designed and Appropriately Located Parking Facilities; l A Rich Variety of Open Spaces and Public Amenities; l A Pedestrian-Friendly Neighborhood CONGRESS PARKWAY Environment; and CCoonnggrreessss PPaarrkkwaayy Ovveerrllaayy l An Attractive and Compatible Mix of T E E

HARRISON STREET R T S Old and New Buildings N R E O U B N R E A V E A

D H S A B

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I PLACE The Development Districts within Area 1 include: T T M

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EV ST . . AI E S L 4. River City District AD ADLAI E. STEVENSON EXPRESSWAY 5. LaSalle Park District 6. Dearborn Park I District The Development Districts within Area 2 include: 7. Printers Row District 1. River Corridor District 8. State Street District 2. Dearborn Park II District 9. Wabash Avenue District 3. Dearborn South District 10. Michigan Avenue District 4. South State Street District 5. Wabash-Michigan District 6. Motor Row District 7. Central Station District 8. Prairie Avenue District 9. McCormick Place District

Near South Community Plan l City of Chicago l URS l TPAP l May 2004 l v Executive Summary (continued) Guiding Principles A Diverse and Exciting Mix of Uses: l l The Near South Community should Public, institutional, and educational North-south traffic should be dis- continue to be improved as a vibrant uses should be permitted throughout the tributed among Clark, State, Wabash, and diverse urban neighborhood serv- Near South Community. In particular, Michigan and the new Wells/Went- ing residents, employees, students, educational facilities should be encour- worth connection so no one road and visitors alike. Various land uses aged in the northeastern portion of Area becomes a highway. and activities should support and com- 1; along State Street, Wabash Avenue, l The need for and feasibility of addi- plement one another, adding to the and Michigan Avenue. tional bridges over the Chicago River overall vitality of Near South Commun- Safe and Convenient Access and Circu- should be studied in more detail, in ity. Recommendations include: lation: The Near South Community coordination with development west l The trend of an increasing residen- should be served by a street system that of the River. Possible bridge locations tial population should be encouraged provides safe and convenient access and include Polk Street, Taylor Street, and and promoted, with a range of hous- circulation, enhances the neighbor- 16th Street. ing types to support the community’s hood’s land development pattern, and Recommendations that apply to Area 1 diverse population. Residential uses unites the Development Districts. include: should be located on the upper floors Recommendations that apply throughout l Polk Street should be upgraded as of buildings throughout the Near the Near South Community include: an east-west route through the heart South Community. Residences are of Area 1. Of special concern is the l Chicago’s traditional grid pattern of appropriate on all floors of many build- segment between Wells and Clark streets and blocks should be extended ings in the southern and western por- Streets, which is characterized by rela- into the LaSalle Park, River City, Franklin tions of Area 1 and the eastern and tively narrow right-of-way, pavement, Point, and River Corridor Districts to western portions of Area 2. and sidewalk widths; an unattractive enhance east-west circulation and l underpass at the Metra tracks; and a Retail, restaurant, entertainment improve connections between adjacent narrow, constrained intersection at and service uses should be located on districts. the ground floors of buildings along Wells Street. l Wells Street should be extended primary shopping streets and pedes- l Traffic operational improvements through Area 1 and Area 2 to create an trian corridors, as described in the should be undertaken along Congress important, continuous, north-south Land Use System and Pedestrian Sys- Parkway to improve traffic circulation street, linking the various riverfront devel- tem recommendations for each Area. and enhance pedestrian safety and opment districts. New east-west streets l convenience along this major Additional ground floor retail and should be built to intersect with Wells “gateway” route. service uses that will meet the day-to- Street. day needs of the growing residential l Traffic operations should also be l The Clark and Roosevelt intersection and academic communities should be improved at other locations, including will be improved to facilitate through encouraged. the intersections of Harrison/State and traffic movements on Clark Street and l Polk/8th Streets. New retail development should Roosevelt Road, improve turning move- be compatible in scale and character ments, and provide better access to l Continue development of an with nearby existing development. future developments in the immediate “intermodal transit center” at LaSalle/ Neither Area 1 nor Area 2 is an appro- vicinity. Congress, including a CTA bus turn- priate location for traditional “big box” around, to provide connections l Transit facilities and operations or strip commercial site designs. between Metra trains at the LaSalle should be expanded throughout the l Street Station and CTA buses. Office uses should be located Near South Community, as the area con- north of Polk Street, near the central tinues to gain residents. The proposed l Consider the feasibility of extend- business area in Area 1, and on the CTA Circle Line, following the route of ing Franklin Street south of Harrison. upper floors of buildings throughout the existing Red Line through Area 1 and Recommendations that apply to Area 2 the Near South Community. Orange Line through Area 2, should be include: l Hotel uses should be located in pursued. l As one of only two river cross- the northern and eastern portions of l East-west connections need to be ings within Area 2, 18th Street should Area 1, particularly along and near enhanced on existing streets and in the be upgraded and connected to the Michigan Avenue, and in Area 2 near planning of new streets. new Wells Street/Wentworth Avenue McCormick Place. extension.

vi l May 2004 l URS l TPAP l City of Chicago l Near South Community Plan Executive Summary (continued) l Traffic operations at the intersec- l Surface parking lots should be well l Grant Park should continue to be tion of Clark Street and Cermak Road maintained and attractively edged with enhanced as a major amenity for the should be improved. landscaping and decorative fencing. The entire Near South Community in l The operations and aesthetics of development of new non-accessory sur- accordance with the recently com- the underpasses at the Stevenson face parking lots should not be permit- pleted Grant Park Framework Plan. Expressway should be reviewed and ted. l Federal Park (at Federal and 24th upgraded. l Signage should be provided to Streets), Teachers Academy Open l The possibility of additional con- direct motorists to parking locations in Space (at 24th and Dearborn Streets), nections to Lake Shore Drive should and near Areas 1 and 2. Signs should be expanded park space along the River be explored. limited as to number and size. north of 18th Street, and a new three- l One or more new transit sta- l Attractively designed parking struc- acre park within the LaSalle Park Dis- tions in Area 2 (particularly in its south- tures and underground parking should trict are to be developed. Several ern portion) should be developed. be promoted to serve new develop- open spaces will be created in the river corridor as part of the Franklin l Continue to explore the developments and to replace existing surface Point, River City, and Riverside Park ment of a new CTA/Metra "intermodal lots. Parking structures should reflect the developments. transit center" north of Cermak on architectural style and character of Wentworth, with a new entry from nearby existing buildings and conform to l New accessible public open Archer Avenue, as part of the develop- design requirements in the City's Stand- spaces should be provided as new ment of the CTA Circle Line. ards for Parking Garages. Garages development occurs, commensurate should have ground floor retail, restau- with the City’s standard of at least two l At least one new point of access rants, and other active uses. Upper acres of public open space per 1,000 for cars should be created west of floors of parking structures should be population. Parks should be created Clark between Roosevelt and 16th. adequately screened with landscaping within a short walk of every Near l Clark Street should be changed or decorative fencing/mesh. South resident. to calm traffic and improve pedestrian l The developers of new buildings l Gateways to the Near South crossings, particularly in light of new should be required to provide new on- Community form the first impression residential, educational, and park site parking to serve their developments of the area for visitors, and should be developments in the vicinity of Clark and, where appropriate, encouraged to enhanced wherever possible. Gate- and 18th Streets. provide replacement parking to serve ways of particular importance are Well Designed and Appropriately the surrounding area. identified in the Framework Plan. Located Parking Facilities: The Improvements could include landscap- A Rich Variety of Open Spaces and Near South Community should be ing, sculpture, lighting, signage, and Public Amenities: The Near South served by attractively designed and architectural treatments. Community should be characterized by appropriately located parking facilities a planned and coordinated system of l Planted medians should be pro- that are compatible with the area’s his- parks, plazas, open spaces, “gateways,” vided along Michigan Avenue from torical scale and pedestrian orienta- and landscaped streets that serves the Roosevelt Road to Cermak Road, and tion. Recommendations include: needs of local residents and employees, considered for Motor Row as part of l The development of public trans- and helps organize and provide focus streetscape work. portation and pedestrian facilities for the neighborhood. Recommenda- l A new field house north of the should continue to reduce the need tions include: existing Ping Tom Park will provide for off street parking in the South l The Chicago River corridor should Near South residents with new indoor Loop neighborhood over time. South be improved as a continuous greenway recreational facilities. Loop's role as parking support for Cen- and public promenade serving pedes- tral Loop should be reduced. trians and bicyclists, with places for both l On-street parking should be pro- recreation and relaxation. Overlooks vided wherever possible for conven- and public access points should be pro- ience of Near South visitors and vided at key locations that are accessible pedestrian comfort. from the remainder of the Study Area.

Near South Community Plan l City of Chicago l URS l TPAP l May 2004 l vii Executive Summary (continued) l A new east-west pedestrian connec- improved and upgraded. A Pedestrian-Friendly tion across Clark Street and the Metra l The reuse and rehabilitation of Neighborhood Environment: tracks should be created near 15th underutilized upper floor space Streets and walkways should be safe Street. should be actively promoted, particu- and convenient and should l One or more east-west larly in historic buildings and in those encourage pedestrian activity. pedestrian/bicycle corridors should be areas such as Wabash Avenue, Clark Recommendations for the Near South established along 9th, or Taylor Streets, Street, and Motor Row that have a Community include: or along the St. Charles Air Line near higher percentage of buildings with l Pedestrian connections along east- 16th Street. vacant upper floors. west streets should be significantly l The existing pedestrian under-passes l New developments should be improved in order to better link at Polk, Harrison, and 18th Streets; based on Chicago’s traditional grid development districts and provide Archer Avenue; and Cermak Road pattern of regularly shaped blocks more direct connections between the should be kept clean and attractive, and and parcels. Chicago River, Grant Park, and the made more comfortable and convenient l New developments should relate lakefront. for pedestrians. to and connect with surrounding exist- l Shops, restaurants, and similar l Safe and convenient pedestrian ing developments. Isolated enclaves uses should be encouraged on build- crosswalks should be provided through- and internally-oriented “development ings' ground floors to provide an inter- out Areas 1 and 2. In particular, pedes- islands” should be avoided. esting pedestrian environment. trian crossings should be improved l To promote visual continuity and l Directional signs and kiosks along Congress Parkway and Cermak uninterrupted pedestrian and retail should be installed to help pedestrians Road. environments, buildings should gener- and bicyclists find the riverwalk, the An Attractive and Compatible Mix of ally be built out to the property line. lake, transit stations, and other ameni- Old and New Buildings: Except in residential areas, street level ties and attractions in the Near South setbacks should be discouraged. The Near South Community should be Community. l The heights of new buildings characterized by an attractive mix of old l Wabash Avenue and State Street should reflect the predominant height and new buildings that reflects and com- should be improved as pedestrian of nearby existing buildings. The plements the neighborhood’s estab- routes to the Loop and between heights of new buildings should con- lished development pattern and building Areas 1 and 2. Generous and sider the scale and character of context. Recommendations include: comfortable sidewalks should be nearby districts, pedestrian ways, provided along State Street. l New construction within historic dis- “gateways,” views over rights-of-way tricts, and adjacent to historic buildings, l Primary pedestrian routes should and parks, and other pertinent fea- should be designed to relate to existing include Wells Street, State Street, and tures. buildings and deal sensitively with the the riverwalk, and one or more routes l Encourage environment-friendly district’s historic resources, in terms of within planned developments. New construction and site planning in the scale, proportion, and materials. north-south pedestrian routes should rehabilitation of existing buildings or be developed west of the Metra l Buildings with architectural and his- the construction of new develop- tracks. torical interest, which help give the Near ments with the Near South Commun- South a distinctive image and identity, l Polk Street should be enhanced as ity, particularly the use of green roofs, should be preserved, protected, and the primary east-west pedestrian route drought-tolerant planting areas, enhanced. for Area 1, extending from State Street energy efficient building envelopes to the river. Harrison Street should l The City should continue to promote and on-site storm water management. also be improved for pedestrians. the renovation and adaptive reuse of older existing buildings. In particular, the l Eighteenth Street and Cermak ground floors of commercial buildings, Road should be upgraded as impor- which are highly visible to pedestrians tant east-west routes in Area 2. and passing motorists, should be l Additional pedestrian links to the lakefront should be provided to supplement the recently completed pedestrian bridge at 18th and Cal- umet.

viii l May 2004 l URS l TPAP l City of Chicago l Near South Community Plan Executive Summary (continued) Implementation Plan Project Financing: Three primary strategies underpin l Many of the projects and actions the Implementation Plan for the Near called for in the Near South Community South Community: a) leadership and Plan can be implemented through policy partnerships; b) zoning; and c) project and administrative decisions and/or financing. funded through existing municipal programs. Leadership and Partnerships: l The City has established five TIF dis- l The City must assume the leader- tricts within the planning area: the Near ship role in implementing the Plan South TIF District, the River South TIF through public projects as well as District, the Michigan and Cermak TIF financial and technical assistance to a District, the Calumet/Cermak TIF Dis- variety of partners including other pub- trict, and the 24th and Michigan TIF Dis- lic agencies, local businesses, com- trict. Each of these districts provide munity organizations, property potential funding sources for actions owners, and developers. such as roadway and intersection l In addition to City leadership, improvements; streetscape improve- active support, participation, and ments; construction of gateway design implementation of Plan initiatives and features; pedestrian crosswalk and under- projects are required by a variety of pass improvements; land assembly; river- Plan partners including: the Park Dis- walk construction, neighborhood park trict, the Board of Education, the Chi- and plaza facilities, and the rehabilitation cago Transit Authority (CTA), Metra, of older, deteriorating buildings (espe- schools, churches, institutions, busi- cially those with architectural or histori- nesses, community groups, residents, cal significance). The Implementation property owners, and developers. section of this Plan provides details as to Zoning: how each TIF district can be best utilized for improvements in the various Develop- l Zoning for the Near South should: ment Districts it overlaps. a) help ensure that the intensity of l The City has various other new development is consistent with programs that may benefit the Near existing and proposed neighborhood South Community; these are described scale and character; b) preclude the in the Implementation section. They establishment of incompatible land may be tailored to the specific needs of uses; c) foster design and character the Near South area as opportunities recommendations; and d) help to con- arise. serve historic buildings and areas that are not protected by landmark status. l The designation of new Planned Developments or the review of construction plans within existing Planned Developments should consider the use, design and improvement recommendations of the Plan. In some cases, existing Planned Developments should be amended to incorporate land use and design recommendations of the Plan.

Near South Community Plan l City of Chicago l URS l TPAP l May 2004 l ix