PURPOSE AND BACKGROUND
The Village of Elmwood Park has adopted the Elmwood Park Station Area Plan to facilitate re- development opportunities and facility improvements near the Elmwood Park Metra Station. In particular, the Village wants to focus on transit-oriented development that provides a mix of com- mercial, residential, and public uses within a pedestrian-friendly street environment and a short walk to the station. The main purpose of the Station Area Plan is to spur new investment that fosters a mixed-use downtown and increases transit use of the Elmwood Park Metra Station, as well as Pace and CTA bus service.
Using resources from the Regional Transportation Authority (RTA), the Village engaged HNTB Corporation and Goodman Williams Group to provide planning and market services, create im- plementation strategies, and formalize the Station Area Plan. The station area is defined by a convenient walking distance from the station, which is typically measured by a five to ten minute walk, or a one-quarter mile to one-half mile walk. More specifically, the Village wants to focus on improving its commercial district on Grand Avenue and its connections with Conti Parkway.
In the first phase of the planning process, the Inventory and Analysis Memorandum documented the Village’s existing conditions and planning opportunities. The existing conditions analysis in- cluded a review of planning documents and land use and transportation conditions. In addition, a market assessment was completed to document near-term market demand and development opportunities over the next ten years. The Village reviewed and approved these documents in December 2005 as the baseline data to create alternative concepts for the Station Area Plan. Both documents are available under separate cover.
In the second phase, a draft Alternatives and Analysis Memorandum documented two alterna- tive concept plans that were created to highlight redevelopment options based on a moderate reinvestment and a high reinvestment focus. These alternative concept plans were analyzed in comparison to the Village’s overall vision and planning principles, the near-term market demand, a business district survey, and a redevelopment costs overview analysis. After a public presenta- tion and discussion, the Village chose the high reinvestment concept as the Preferred Concept Plan for implementation purposes.
The final phase of the planning process provides the content for the majority of this Station Area Plan. The Village considered and discussed the Preferred Concept Plan in relation to a land use
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VILLAGE OF ELMWOOD PARK, IL Regional Transportation Authority PURPOSE AND BACKGROUND framework plan, a circulation and access plan, design guidelines, and implementation strategies. Ultimately, the Elmwood Park Station Area Plan is meant only as a guide for the Village and provides flexibility to accommodate real development proposals that can help create a vibrant downtown and improved Metra Station area.
Importantly, the Elmwood Park Station Area Plan incorporates the feedback of numerous stake- holders and the public. A Technical Advisory Committee provided oversight of the planning process, and consisted of Village officials and personnel and transportation experts from the Regional Transportation Authority (RTA), Metra, and Pace. Key person interviews were also con- ducted to gain in-depth knowledge and opinions from a range of Elmwood Park residents. In addition, a business survey was conducted for Grand Avenue business owners to determine their opinions about the future of the business district. Finally, three public meetings were held for Village residents to provide input during the process.
Community Background
The Village of Elmwood Park was incorporated in 1914, and has 25,405 residents (2000 Census). The community borders the City of Chicago to the east along Harlem Avenue, and is two square miles in area. Significantly, Elmwood Park has a reputation as a multi-generational community, meaning that grandparents, parents, and children live in close proximity and know their neigh- bors. Grand and Harlem Avenues, which served as a regional downtown for almost 50 years, was accessed by trains, trolleys, buses, and cars, making it a destination for the western suburbs and the City of Chicago. However, as with many downtowns over the last generation, suburban malls drew businesses away from the downtown. For several years, Elmwood Park has focused on re- viving Grand and Harlem Avenues, and seeks to use this Station Area Plan as a “road map” for additional development within the station area to help its revitalization efforts.
The Village of Elmwood Park is one of Chicago’s inner-ring suburbs, located only 10 miles west of the Loop. Figure 1: Vicinity Map, on the following page, highlights important regional features that surround the Village of Elmwood Park. Figure 1 also highlights the boundaries of the station area, which generally encompasses a one-half mile radius surrounding the Elmwood Park Metra Station.
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VILLAGE OF ELMWOOD PARK, IL Regional Transportation Authority Metra North Central Service FIGURE 1
Metra Milwaukee District North Line Vicinity Map 90/ ¨¦§94 Irving Park Road ¨¦§294 Schiller Park Schiller Woods
Metra Milwaukee District West Line Forest Preserve July 2006
Austin Avenue Austin
Oak Park Avenue Park Oak
Harlem Avenue Harlem Belmont Avenue Avenue Cicero Half Mile Study Area City of Chicago River Grove Franklin Park River Grove Diversey Avenue Grand AvenueMetra Station
Elmwood Park Metra Station Fullerton Avenue Mont Clare Metra Station
Mars
Metra Station 25th Avenue 25th
West Street West Galewood Elmwood Park Metra Station
Mannheim Road Mannheim North Avenue
Melrose Park Division Avenue
Lathrop Avenue Lathrop Chicago Avenue
Metra Union Pacific West Line Central Avenue Central River Forest Oak Park
places83x Madison Street Bellwood own6_83 Maywood Forest Park ¨¦§290
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0 0.4 0.8 1.6 Miles ° STATION AREA PLAN
VILLAGE OF ELMWOOD PARK, IL Regional Transportation Authority PURPOSE AND BACKGROUND
A. TRANSIT-ORIENTED DEVELOPMENT PRINCIPLES
The Preferred Concept Plan is based upon the principles of transit-oriented development (TOD), reflecting the Village’s desire to strengthen the connection between the Grand Avenue business district and the existing transit amenities that serve as a key community asset in Elmwood Park. Understanding these TOD principles is especially important in Elmwood Park, because the busi- ness district along Grand Avenue has become auto-oriented, and future development patterns within the station should emphasize a pedestrian environment.
The general principles of TOD can be described succinctly within three broad categories, or the “Three D’s” of transit-oriented development — Design, Diversity and Density. TOD areas are gen- erally considered to be within a ten-minute walk or one-half (1/2) mile of a public transit facility, with most uses concentrated within a five-minute walk or one-quarter (1/4) mile. One-half mile is considered an acceptable walking distance for most people, and therefore encompasses the area in which the physical planning advantages of TOD can be best utilized.
Design ● Inter-modal connections and amenities should be considered and accommodated, to facili- tate the use of all modes of transportation, including walking, biking, driving, and bus transit. Visibility and ease of access to the station are especially important.
● Preference for pedestrians and bicyclists should be considered in the design of roadways, sidewalks, and other pathways throughout a TOD area. While automobile and bus access is important, the comfort and safety of pedestrians is paramount.
● Shared commuter parking facilities (utilized for parking by residents or businesses during off-peak hours) and reduced off-street parking for shoppers and residents should be incorpo- rated. Local residents who commute to work by train typically do not own as many vehicles per household, and commuters can provide additional support for retailers.
Diversity ● Mixed uses and varied housing types are important aspects of a TOD area. Integrating retail, commercial, office and residential uses in close proximity to transit and one another pro- vides a “synergy” between uses, reduces vehicle trips generated within the area, and allows for compact development. Mixed uses can occur within individual buildings and within the
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VILLAGE OF ELMWOOD PARK, IL Regional Transportation Authority PURPOSE AND BACKGROUND
overall area.
● Public facilities and spaces should be integrated into the TOD area, so that it is truly a com- munity-wide activity center, expanding beyond retail and commercial service functions.
● Market-driven development is a key consideration within the TOD area, so as to serve and at- tract more than just commuters. Local resident needs are also important. Commuters alone will not sustain the desired retail and commercial services in the area.
Density ● Higher density uses are appropriate closest to transit facilities, where their impact on sin- gle family residential neighborhoods can be minimized and their reduced off-street parking needs can be effectively incorporated into site design.
● Balance higher densities with open spaces and/or plazas within the TOD area, to provide areas of respite and visual variety, and offer open space amenities to residents of higher density residential areas.
● Residents within the TOD area provide valuable support to local businesses, but cannot alone sustain retail and commercial service uses desired by the community at large.
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VILLAGE OF ELMWOOD PARK, IL Regional Transportation Authority PURPOSE AND BACKGROUND
B. PLANNING BACKGROUND
The planning context for the Station Area Plan included previous plans, existing land use condi- tions and regulations, existing transportation conditions, and a detailed market assessment. Us- ing the planning context as baseline data, the Station Area Plan responds to existing issues and opportunities, while fulfilling community aspirations to the greatest extent feasible.
Official Comprehensive Plan
The Village adopted its Official Comprehensive Plan in June 1995. The most relevant land use is- sues documented in the Comprehensive Plan include: protection of existing single-family neigh- borhoods; creating a balance between single and multiple family units; limitation of higher densi- ties with multiple family areas with inappropriate facilities; and, improving the future tax base by adding commercial businesses along Grand Avenue.
Zoning Ordinance
The Village adopted its current zoning ordinance on June 26, 1972, and has amended the ordi- nance fourteen times through August 31, 2004. Fundamentally, zoning helps to prevent conflict- ing land uses and promotes orderly development. The station area encompasses seven zoning districts, including four residential districts, two business districts, and a mixed-use district. The location of zoning districts is depicted in Figure 2: Existing Zoning. Future zoning amendments in this area should be guided by the recommendations of the Station Area Plan.
Existing Land Use Conditions
Understanding existing land use conditions is a necessary first step in planning for future condi- tions. A land use inventory of the station area was completed in August 2005, and is depicted in Figure 3: Existing Land Use. The majority of the station area consists of well-maintained single- family residential uses. Various multi-family residential uses are in scattered locations and in a concentrated area between Grand and Fullerton Avenues. A mix of commercial retail, service, and restaurant uses, office uses, industrial uses, and multi-family uses are located along Grand and Harlem Avenues and Conti Parkway, which also includes several institutional uses.
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VILLAGE OF ELMWOOD PARK, IL Regional Transportation Authority FIGURE 2 1/2 Mile Radius Existing Zoning
Diversey Avenue
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Schubert Avenue Chicago of City
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73rd Avenue 73rd
74th Court 74th
75th Court 75th 74th Avenue 74th
Belden Avenue Avenue 75th 76th Avenue 76th 76th Court 76th R1 R-2:R3R2B1 TwoR2 Family/ Three Family R2Residence R4R3B2 R3 R-3R3 General Residence B1R4C1 R4 R-1B R-4:R4 General Residence B2B1MU1 B1 Palmer Street B-1:B1 Neighborhood Business C1B2COS B2 B-2:B2 General Business MUC1 1 C1 C-1:C1 General Commercial COMUS1 MU1 MU-1:MU1 Mixed Use COS COS 0250 500 1,000 Dickens Avenue ° COS:COS Conservation and Open R-1A R-1B Feet Space 0250 500 1,000 °N 02500 25 5000 500 1,00Fe01,et000 ° 0250 500 1,00Fe0et Feet° STATION AREA PLAN Feet °
VILLAGE OF ELMWOOD PARK, IL Regional Transportation Authority FIGURE 3 1/2 Mile Radius Existing Land Use
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Existing Transportation Conditions
The Village’s existing transportation conditions are illustrated in Figure 4: Transit, Access and Circulation. The most significant transportation resources include the Elmwood Park Metra Sta- tion, Pace and CTA bus service, two major arterial roadways, and pedestrian-friendly streets.
Elmwood Park is served by Metra commuter rail on its Milwaukee District West Line providing service between Chicago Union Station and Elgin Big Timber Road Station. The Elmwood Park Metra Station is located near Grand Avenue at the 75th Court intersection. On weekdays, 21 inbound trains to Chicago arrive at Elmwood Park Metra Station and 23 outbound trains arrive from Chicago. According to Metra’s fall 2002 Boarding/Alighting Counts, 345 riders boarded inbound trains to Chicago and 374 riders alighted outbound trains from Chicago on a typical weekday. Significantly, 43% of Elmwood Park commuters drove alone and 40% walked to the station, while Metra’s system-wide average was 54% for driving alone and 21% for walking (Fall 2002 Metra Origin-Destination Survey).
Bus service to the Village is provided by Pace and the Chicago Transit Authority (CTA). Two Pace bus routes, Routes 307 and 319, pass through the Village providing service to its Metra station from the surrounding neighborhoods. Besides the fixed route services, Pace also operates para- transit services for the elderly and the disabled during its regular service hours. The CTA also operates two bus routes in the vicinity of the station area, Routes 90 and Route 65.
Two major arterial roadways, Grand and Harlem Avenues, pass through the Village carrying large volumes of regional traffic. Harlem Avenue, also designated as Illinois Route 43, is a north-south arterial carrying an average daily traffic of 22,400 vehicles north of Grand Avenue (IDOT 2003 traffic counts). Grand Avenue traverses through the Village carrying an average daily traffic of 26,300 vehicles (IDOT 2003). Grand and Harlem Avenues both carry significant volumes of re- gional and local traffic.
The Elmwood Park Metra Station is easily accessible by both automobile and pedestrian traffic from south of the railroad. However, access from the north is more difficult due to heavy traffic on Grand Avenue and limited signalized intersections. Most residential streets within the station area are pedestrian-friendly with well maintained sidewalks and street trees. Grand Avenue is not pedestrian-friendly due to the presence of auto-oriented retailers, multiple curb cuts and the lack of pedestrian amenities.
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VILLAGE OF ELMWOOD PARK, IL Regional Transportation Authority FIGURE 4 1/2 Mile Radius Transit, Access and Circulation Diversey Avenue
Sunset Drive 90-Harlem July 2006 Schubert Avenue
Westwood Drive Park Metra Milwaukee District West Line ti w Chicago of City k n a o y C Grand Avenue
319-Grand
Marwood Avenue k
Altgeld Street 307-Harlem
E. Brook Road Brook E. k W. Brook Road Brook W. k Metra_StationGrand Avenue Elmwood Park
Metra Station Avenue Harlem R1
R2
78th Avenue 78th 78th Court 78th 79th Avenue 79th R3 Signalized Intersection Fullerton Avenue R4 k MeElmwoodtra_Sta tiParkon Metra Station B1 Village of River Grove River of Village Study Area Boundary R1 Metra_Station
B2 k 77th Avenue 77th 77th Court 77th R2
C1 VillageR1 Boundary
72nd Court 72nd
73rd Court 73rd
73rd Avenue 73rd
74th Court 74th
75th Court 75th
74th Avenue 74th 75th Avenue 75th Belden Avenue Avenue 76th R3 76th Court 76th MU1 RailroadR2 R4 COS R3 B1Arterial Roadways Oak Park R4 B2 Country Club CollectorB1 Roadways Palmer Street C1 PaceB2 Bus Routes 0250 500 1,000 MU1 Feet ° C1 COCTAS Bus Routes MU1 OneCO WayS Street Dickens Avenue Commuter Parking (139 spaces, including 5 accessible) 0250 500 1,000 N Feet ° 0250 500 1,000 Feet ° STATION AREA PLAN
VILLAGE OF ELMWOOD PARK, IL Regional Transportation Authority PURPOSE AND BACKGROUND
C. MARKET ASSESSMENT
The following development program summarizes the key market assessment findings for the Elmwood Park Station Area. The complete results may be found in a separate report prepared by Goodman Williams Group — Station Area Market Assessment, Village of Elmwood Park (De- cember 2005). The Preferred Concept Plan directly responds to this market-based development program.
Transit-Oriented Retail
Over the next ten years, there is potential demand for roughly 30,000 square feet of net ad- ditional retail along Grand Avenue. Demand would most likely be expressed as neighborhood convenience uses such as coffee shops, bakeries, sandwich shops, specialty food stores, and gift shops near the train station. Besides retail businesses, personal services such as dry cleaners, salons, and shoe repair could add another 5,000 to 10,000 square feet of net new commercial space along Grand Avenue. Table 1 provides examples of the types of neighborhood-serving re- tailers that would be appropriate in Elmwood Park, as well as typical building space requirements. Ideally, the businesses would represent a mix of chains and independent businesses.
Table 1: Examples of Neighborhood-Serving Retailers Square Feet Category Retailer Examples Minimum Maximum Sandwich Shops Quizno’s 1,400 1,600 Coffee Shops Starbuck’s 1,000 2,000 Specialty Food Bakery 1,000 2,000 Shipping UPS Store 800 1,800 Video Blockbuster 2,500 4,000 Electronics Radio Shack 1,000 5,000 Hair / Nail Salons Local 1,000 2,000 Cosmetics/Body Care Fragrance Local 1,000 2,000 Apparel / Accessories Local 1,500 2,000 Dry Cleaner Local 500 1,500 Shoe Repair Local 500 1,500
Source: Goodman Williams Group
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VILLAGE OF ELMWOOD PARK, IL Regional Transportation Authority PURPOSE AND BACKGROUND
Grand and Harlem Avenue Retail
Large-format retail opportunities, such as Circuit City, are limited near the Grand and Harlem Avenue intersection. The proximity of national retailers at The Brickyard (about one mile east) and the Harlem Irving Plaza (two miles north) will make it difficult to attract new anchor tenants at Grand and Harlem Avenues.
Elmwood Park should consider the potential to relocate an existing large-format business, Super Low Foods. This food market is located on a small site, and its owners have expressed interest in expansion. Another potential for Grand and Harlem sites could be a mixed-use development with ground-floor retail and upper-story residential.
Redevelopment constraints due to small parcels and multiple ownership at the Grand and Harlem Avenue intersection will require additional efforts by the Village in order to attract new develop- ment. A tax increment finance (TIF) district was adopted for this area in 1983, which allowed the Village to assemble parcels and attract Circuit City. Since then, the private market has not reacted by proposing any additional redevelopment projects. Although parcel assembly is a challenging process, the Village may need to undertake this effort for the south side of Grand Avenue, between Harlem and 73rd Avenues, to facilitate private sector interest. Further, unless an extension is sought through the state legislature, the Grand and Harlem Avenues TIF district designation will expire on January 1, 2013.
Residential Development
Due to a strong demand for new housing, additional residential development could be accom- modated along Grand Avenue. Depending on the location and site characteristics, residential development could take the form of condominium buildings, condominiums above retail, or town- houses. Over the next 10 years, the market demand is likely to support an annual average of 10-12 units per year, for a total of 100-120 new units.
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VILLAGE OF ELMWOOD PARK, IL Regional Transportation Authority