Comprehensive Land Use

INTRODUCTION

In 1974 the Village of Vernon Hills adopted its first Comprehensive Plan. That plan served as a technical resource and policy guide for development during a period of rapid growth in the Village. In 1982, recognizing that substantial changes had occurred since the 1974 plan was adopted, the Village Board authorized the updating of the plan and adopted a revised plan in June of 1983.

In 1987 the Board concluded that the 1983 plan had given effect to the densities and intensities of planned unit developments which were about to expire and which provided for more multiple family development and more intensive commercial development than was deemed desirable for the Village. The Village Board had also approved annexation agreements for land uses which were to some degree at variance with the 1983 plan. It thereafter approved an updated plan on November 8, 1988.

Since 1988, the Village has experienced such update of the Land Use and Transportation Plan element is deemed advisable to further define the ultimate build-out of the Village with even greater attention to the protection of the environment and the development and maintenance of quality land uses.

The Plan was again updated in 1992 to further reflect the substantial growth experienced since the 1988 Plan update. The update help to further define the ultimate build out of the Village in light of the ongoing work with the Cuneo property. The Land Use and Transportation map was further updated in 1995 to more accurately reflect the Gregg’s Landing Land Management Agreement for the Cuneo Property.

This document, which updates the Land Use and Transportation Plan element of the Comprehensive Plan, serves as the basic guidance for future development. The Official Comprehensive Plan is advisory and is intended to provide guidance for future development decisions within the existing boundaries of the Village and within its unincorporated planning area.

COMMUNITY GOALS AND OBJECTIVES

Land Use

The land use pattern has both economic and social overtones. Economically, areas developed in accordance with sound use objectives will function more efficiently, permit a higher degree of development and maintain more lasting values. Social benefits may include pride in community and desirable neighborhood activity, bringing residents together to achieve other objectives. Therefore, the land use goal is to achieve the most effective, desirable and lasting relationship between people and land. The land use pattern should:

1. Arrange the development of land uses to produce an efficient, convenient and harmonious pattern without undue mixtures of incompatible uses.
2. Locate and maintain development in accordance with the usability and adaptability of land to further the goals of the Village.
3. Provide an adequate, but not excessive, amount of land for each urban use.
4. Relate the intensity of land use to the capability of providing adequate service.
5. Recognize the need for a concentration of facilities and activities in strategic locations with access to open space.
6. Encourage the development of new growth areas and redevelopment of existing areas that are energy-efficient, including consideration of methods such as clustered land development, proper building orientation, and provision for pedestrian facilities.
7. Assure to the greatest extent possible that all proposals for the redevelopment of property conform to the policies and recommendations of the Land Use Plan and the standards set forth in the Comprehensive Plan.
8. Assure to the greatest extent possible that all future development or redevelopment enhances the quality of living within the community
9. Discourage the redevelopment of publicly or privately owned open space where such development might detract from the community's character and need for open space.

    

10. Encourage the buffering of potentially incompatible uses with landscaping and berming.
11. Encourage the most intensive development at the Milwaukee Avenue/Route 60 intersection. Encourage less intensive development in the western portions of the village in a manner compatible with the residential development, which characterizes the bulk of existing development in the area.
12. Milwaukee Avenue/Route 60: Encourage high quality retail commercial development surrounding the Milwaukee Avenue/Route 60 intersection.
13. Milwaukee Avenue Corridor: Encourage high quality office and business park development with limited direct access to Milwaukee Avenue.
14. Route 60 Corridor (West): Encourage high quality office uses with landscaped setbacks, which will be compatible with the residential and school properties adjacent to the corridor.
15. Route 45 Corridor: Encourage high quality uses as shown on the Land Use Plan, consistent with the Route 45/21 Corridor Study adopted in 2001.
16. Limit further residential development west of Port Clinton Road and encourage preservation of open space with focus on environmentally sensitive property containing flood plain, wetlands and heavily forested areas. Creation of corridors linking these elements is encouraged.
17. In new future development or redevelopment of office/research properties, encourage technology upgrades that will maintain the attractiveness and competitive advantage of the area as a premier corporate center in Lake County.
18. Non-municipal services to residents are currently provided by numerous and distinct taxing bodies, including multiple elementary and high school districts, fire and library districts. Despite such competing and somewhat contrary interests, care should be taken in planning so as to maintain and emphasize a sense of community.

Housing

The community goal for housing is to create and maintain a superior residential environment which reflects total needs of residents related to location, type, and price of housing, including:

1. Decent, safe and sanitary housing for all inhabitants of the Village.
2. Residential areas, which are conveniently located in relation to employment, cultural and shopping opportunities.
3. A balanced distribution of housing types throughout the community, approximating 50% single family and 50% two family and multiple-family, insuring that a variety of housing is available in the community as a whole.
4. Residential areas with a minimum of intrusion and interference from nonresidential land uses and traffic.
5. Housing environments, which have individuality, character, and are aesthetically pleasing.
6. Maintenance and improvement of existing residential structures and neighborhoods in order to provide a range of choice in housing and living environments.
7. Assure that all housing units conform to minimum standards of maintenance and repair through aggressive enforcement of Village maintenance codes.
8. Encourage future development densities consistent with existing development and the regulations set forth in the zoning ordinance.
9. Encourage the development of new single-family homes on larger lots to complement the existing single-family lots and multiple-family developments.
10. Provide for multiple-family developments only in those areas, which are part of an existing higher density neighborhood.
11. Encourage open space and other neighborhood amenities in multiple-family neighborhoods.
12. Encourage the development of residential amenities, including parks, access to public services, open space and shopping/ entertainment by non-traditional means to help lessen traffic flow problems or conflicts.
13. Discourage further residential development that has direct access to arterial streets such as Route 60 and Milwaukee Avenue.

LAND USE PLAN

The process of updating the Land Use Plan emerged from the development of large acreages of formerly vacant properties within the Village, from the annexation and development of adjacent unincorporated properties, and from the rezoning of other properties within the Village since the 1988 plan was adopted. The intensification of commercial development near the Route 60 and Milwaukee Avenue intersection and the construction of an interchange with the Tollway at Route 60 has also had an impact on the choice of land uses inside the Village.

The Land Use Plan for the Village and planning area (incorporated area and adjacent unincorporated areas) encompasses a land area of approximately 5,056 acres to date. The Plan has successfully provided for a rational long-term development pattern for a balanced community. A variety of residential types and densities are provided along with a wide variety of employment and shopping opportunities. With the continuing development of Gregg’s Landing, it is projected that at the current rate of construction, the majority of the residential portions of the project will be built out within 5 years. Therefore, the focus of this plan will change overtime to one which discusses preservation and/or future reuse and redevelopment of areas. For example, while the balance of the communities housing stock is less than 15 years old, older areas such as Country Club Estates are approaching 40 years old. The Deerpath area is nearing 30 years for some homes. This coupled with the changing demographic patterns that have more people or extended families living in a house, present challenges that the Village must address to maintain the long-term health and viability of these areas. It should be noted that, while housing values have continue to increase in all areas, it is unlikely that Vernon Hills will experience the bulkanization issues, i.e. the tearing down of existing housing stock which is then replaced with larger homes, that many of the north shore communities are experiencing.

The plan is designed to be flexible in order to accommodate changes in use over time. However, based on the lack of significant acreages of additional unincorporated property for annexation and on the limitation in densities for multiple-family development, as well as on the emphasis of larger lot single-family development, we anticipate that continued growth beyond the projected maximum will not likely occur. This fact is clearly evident in Gregg’s Landing where the ultimate build out maybe as much as 20 percent less than what the Land Management Agreement allowed.

Additionally, with the build out of the commercial and office park developments along the western and southern portions of the Milwaukee/Route 60 corridor, non-residential development will consist of new construction on individual lots, primarily in the office parks and large lot development of the northeast corner of Milwaukee Avenue and Route 60, and the remaining acreage in Gregg’s Landing also located along Milwaukee Avenue. It is anticipated that the balance of this new development will be commercial. Existing large business parks have access to Route 45, Milwaukee Avenue and Route 60.

Single Family Residential

Major single-family residential proposals of the plan are directed at continuing the reduction of overall densities in order to achieve a more stable community with more owner-occupied units with an emphasis on the development of single-family homes on larger lots.

With the ongoing development of Gregg’s Landing, and the successful completion of Centennial Crossing, it is not anticipated that the Village will experience any further large-scale single-family development.This is principally due to the lack of developable land either within the Village or adjacent to its corporate limits.The Cuneo site will continue to develop consistently with the Land Management Agreement with the focus of the remaining development to be multiple-family units. If current build out trends remain constant, the maximum approved densities will not be achieved. As previously stated, large scale residential development will cease with the completion of Gregg’s Landing, although scattered site construction will continue, primarily in the large lot custom PODs in Gregg’s Landing.

Multiple Family Residential

Multiple-family areas at densities ranging up to 14.8 units per acre. Multiple family homes are located in five areas 1) in the New Century Town area north of Route 60 adjacent to the Village's open space system, 2) along Route 45 at Sullivan Road, 3) Westmorland Drive, 4) the Carriages and West Pointe and 5) Gregg’s Landing in PODs B&C, D, F, G, H, I.

With the annexations and development approvals since 1995, the Village has attained a significantly better balance of single-family and multiple-family homes which allows a much greater diversity of homes in the Village and provides for more stability in the population. It has also attained a desirable amount of property planned for non-residential development to maximize employment opportunities and to assist the homeowner in the payment for services provided by all taxing districts.

The Village must remain proactive in its enforcement of maintenance codes. Particular attention to overcrowding of units must be paid so as to mitigate or lessen future degradation of individual units or community. The Village is encouraged to work closely with the Homeowner’s Associations to educate current and future owners on these issues. Emphasis on the importance of this issue must be community-wide.

Natural Features and Environment

The significant natural features of the Vernon Hills planning area are surface waters, plains and wooded areas, which should be protected. To accomplish this goal, the Village should:

1. Restrict development in the flood-prone areas and in areas where unstable soil conditions exist, and encourage measures that will reduce the amount of land subject to flooding within areas of urbandevelopment.
2. Enhance quality surface water through measures to eliminate pollution in storm drainage.
3. Conserve tree cover and natural scenic areas for the enhancement of the urban and rural environment.
4. Protect areas where topographic variations create a potential for erosion.
5. Prohibit development, which would create excessive odor, noise, and visual pollution.
6. Encourage preservation of open space along stream corridors in a way appropriate to the character of the stream corridor through coordination of public and private development.
7. To the extent consistent with the existing natural features of the site, encourage the utilization of open space for multiple purposes, including recreation and enhancement of environmental quality.
8. Encourage the landscaping of vacant sites without natural features and the landscaping of redeveloped sites in a manner, which will carry out the beautification goals of the Village.
9. Encourage landscaping of developing sites in a manner, which will be compatible with adjacent sites in order to carry out a Village-wide appearance enhancement.
10. Enhance parkway trees through proactive monitoring and care and through replacement of damaged or diseased tree on an annual basis. Compliance with the basic tenants of the Tree City USA program is encouraged.

Commercial

Retail Commercial areas in the Plan are oriented to the major street and highway system to provide shopping areas for regional markets as well as the local community. The focal point of retail commercial activity is the Westfield Shoppingtown - Hawthorn (formally known as Hawthorn Center), a regional mall located at Routes 60 and Milwaukee Avenue, with existing or future retail centers at each of the three remaining corners. Additional retail centers are located along Route 60 east of the Seavey Ditch. The Village must work with its retail customers to create can environment where each can prosper.

Retail commercial development on the northeast corner of Route 60 and Milwaukee Avenue shall include development of a full service hotel as a strategic part of any future development plan. It is anticipated that a "life-style" type retail center will develop in concert with the hotel.Inclusion of a single "big-box" anchor type department store retailer in this center may be appropriate.The Village considers this site to be the "crown jewel" of the community.

A related but separate commercial area is located on the west side of Milwaukee Avenue north of the EJ&E railroad tracks at the intersection with Gregg’s Parkway. It is designated as commercial and is suitable for uses such as commercial/retail, hotel or office. Care must be taken with future development of either site due to it being the entrance to Gregg’s Landing and the northern gateway along Milwaukee Avenue.

A secondary commercial center with a sub-regional function related to development is indicated at the intersection of Routes 45 and Milwaukee Avenue. This area is to be redevelopment by the Village as a part of a TIF project, consistent with the Route 45/21 Corridor Plan. More limited retail opportunities are provided for along Route 45 and at two locations on Butterfield Road.

For the purposes of this plan, the Village of Vernon Hills Route 45&21 Corridor Plan is adopted as an addendum of the Comprehensive Plan.

The Village should seek to establish adaptive reuse strategies for commercial/retail locations left vacant by market conditions, changing demographics and/or competition. Examples of suitable locations include older retail center such as Hawthorn Village Commons and Vernon Plaza or large vacant buildings such as the former Super Kmart site are noted on the Comprehensive Land Use Plan map.

Office/Business

Development areas designed exclusively for office and/or business park uses are provided for south of Route 60 on both sides of Route 21, along the north and south sides of Route 60 west of the Seavey Ditch and Lakeview Parkway, at more limited areas along Route 45 where they provide greater compatibility with adjacent residential developments than commercial uses and Center Street east of Lakeview Parkway.

The infrastructure of the major office parks of Continental Executive Park and Corporate Woods are complete. It is estimated that 80 percent of the available land within parks has been developed. Corporate Woods contains the largest amount of scattered sites for single building development. It is anticipated that the 40 acre Darling Farm located west of Milwaukee Avenue and adjacent to Corporate Woods will ultimately be integrated into the office park. This site appears ideally suited for a single user corporate campus type project.

In the future, the extension of Fairway Drive as a north/south collector will allow Continental Executive Park to have access to both Route 60 and Route 45. A future connection from Corporate Woods is also encouraged.  It is also anticipated that Route 45 will be expanded to four lanes and extend to Route 22 in the Village of Lincolnshire, providing overall improved access to the Tollway.

Public/Semi-Public Properties

The Plan shows existing municipal facilities and includes the Lake County Public Works wastewater treatment plant, as well as schools including the Vernon Hills High School, the Hawthorn Junior High and Elementary Schools, the Village Hall and annex building, the municipal golf course, a privately operated public golf course (White Deer Run), fire station, parks, cemeteries, churches, the 70 acre Cuneo Estate Museum, the community center/aquatic park and public safety building.

The Plan also indicates two potential school sites. Both potential sites are generally located on the west and south portions of the Vernon Hills Athletic Complex. It is not anticipated that any additional school sites will be required to serve the community.

Finally, the plan indicates three potential library sites. One site is located east of Lakeview Parkway and south of Museum Boulevard on POD G of Gregg’s Landing. The second site is at the southwest corner of Aspen Drive and Route 60 on the Clavey Property. The final site is one of the commercial properties on Milwaukee Avenue at the intersection with Gregg’s Parkway.

Growth Management

As the Village has evolved from a small residential community, the character of development and quality of public services available has become increasingly important. With limited growth possibilities that have not been accounted for by previous plans in the Village and surrounding areas, concerns about how growth will affect the character of the community and quality of services will continue to affect future planning decisions. The goal of growth management is to accommodate projected development in a balanced and efficient manner so that it produces the maximum benefits for present and future residents of the community. In support of the goal, the Village should:

1. Continue to plan for future growth, based on revised build out projections that will sustain a level of population and development to support the range of services expected in an urban community.
2. Consider annexation to the Village areas, which would contribute to a balanced growth pattern, and would become an integral part of the community.
3. Annex unincorporated properties adjacent to the Village, which meet the above goals and objectives in the short or long term.
4. Continue to emphasize and cultivate a strong positive image and identity based on a high-quality living and working environment, an attractive and convenient physical setting, and responsive Village services and programs.
5. Continue to manage the remaining development in a manner which is consistent with past practices and the Comprehensive Plan.
6. Participate in county and regional discussions or studies relating to land use planning and economic development to maintain our commercial/retail leadership position in the region.

Transportation

The goal for the transportation system is to provide adequate means for the movement of people and products within the Village and between the Village and other areas,including:

1. Cooperative provision of an integrated local street and highway network, balanced to the relative needs of local transportation, and the external transportation demands generated by development in the Village.
2. Location of thoroughfares and major routes so as to reduce conflicts between external traffic and local traffic, but at the same time do not disrupt or divide the logical pattern of development in the community.
3. Provision of reasonably direct street connections between various sections of the Village for local traffic.
4. Development of all streets and highways in scale with intended use.
5. Reservation of adequate rights-of-way to meet future needs.
6. Cooperation with other agencies in the metropolitan area to plan for convenient public transportation in a balanced system, which will meet the particular needs of Village residents and businesses.
7. Development of a system of pathways and supporting facilities to connect major activity centers as an alternate to automobile transportation for local travel.
8. Improvement of intersections and traffic control devices and measures to reduce traffic conflicts and maintain the capacity of the major street and highway system.
9. Provision for the construction of local roads, including Phillip Drive, to allow residents access to all neighborhoods of the Village without using high volume state highways.
10. Creation of attractively landscaped streetscapes for all major thoroughfares and the development of new roadways and reconstructed roadways with parkway treatments.
11. Evaluate and establish a community streetscape program for infrastructure and lighting programs to create pedestrian friendly environments along all local and collector roads.
12. Monitor conditions to establish the need for signalization along Route 83 and other streets where residential traffic has difficulty gaining access to the street network.
13. Add one southbound lane to Milwaukee Ave from North of Gregg’s Parkway to Ring Rd, to facilitate traffic flow into Hawthorn Center and in avoidance of the Milwaukee Ave./Town Line Road intersection.
14. Consistent with the Route 45/21 TIF Redevelopment project, extend Port Clinton Road north across US Route 45 to intersect with Milwaukee Ave. at a controlled three-way intersection south of Georgetown Parkway.
15. Extend Fairway Drive south to connect to Prairie Road, creating a north south corridor beginning at Gregg’s Parkway and extending south into Cook County.
16. Add a northbound right turn lane on Milwaukee Avenue onto eastbound Town Line Road.
17. Add a frontage road along the east side of Milwaukee Ave between US Route 45 and IL Route 60 where possible to minimize trips on this SRA and permit access at controlled intersections only.
18. Consideration should be given to the possible extension of Phillip Road westerly to Aspen Drive.
19. Expand US Route 45 from Milwaukee Avenue to IL Route 83 from two lanes to four with additional turning lanes at specific intersections.
20. Add control devices (traffic signals) at Georgetown Way and Milwaukee Avenue to facilitate safe egress from Georgetown Square.The Village should review a possible secondary access point out of the development if a signal is not warranted.
21. Coordinated bike path / pedestrian walkway plan for the entire village in conjunction with other regional efforts.
22. Review of possible Pace bus service within the Village to facilitate a reduction of "in town" automobile trips.
23. IL Route 53 extension through Lake County.
24. Widen IL Route 60 to a continuous 6 lane road from US Route 41 to IL Route 83.
25. Widen the Route 60 bridge over I-94 Tollway to increase capacity and access to the tollway.
26. Widening of Lake County key arterial streets;

For the purposes of this plan, the following road type designations are listed below:

Strategic Regional Arterials

Arterial Roads

Collector Roads

Park/Open Space/Forest Preserve and Water

The Plan recommends the continuation of the preservation and enhancement of two inter-related open space corridors: the Des Plaines River Corridor at the Village's eastern boundary, and the central greenbelt corridor which includes Lake Charles, Big Bear Lake, and Little Bear Lake in the north, the Seavey Ditch in the central portion of the Village, and Indian Creek on the south. These corridors are expected to be connected at two locations in the north, through the pedestrian system incorporated into the Continental Executive Park property in the central area and through the Vernon Hills Athletic Complex toward the south. Open spaces adjacent to bodies of water are delineated based on the location of thefloodplains and wetland areas, which should be protected during the development process.

The park sites principally serve as an active recreation function; the open space corridors and greenways are multi-functional, serving conservation and linkage functions as well as providing certain active recreational opportunities.

The Village is working cooperatively with the local school districts to develop the Vernon Hills Athletic Complex as an active regional recreational facility. Included in the project is the athletic field and track for Vernon Hills High School, various practice fields for soccer and football, competition tennis courts, baseball and softball fields, ancillary parking lots, concession and restroom buildings. The project will be developed in phases.

Railroad Right-of-Way and Potential Commuter Facility

The Village’s primary commuter rail station at Ranney Boulevard and Route 45 will be expanded in anticipation of the double tracking of the Wisconsin Central tracks, which is to be completed on 2005. The Village and METRA should closely monitor ridership numbers so as to minimize the amount of required parking to be constructed on the station site. The design of the expansion should be consistent with the landscaping and design standards applied to the commercial properties in the Village.

The EJ&E Railroad, which extends from Waukegan to Joliet is currently being studied by METRA for commuter rail service. The portion of the EJ&E line, south of the Village of Barrington has also been suggested for passenger use, but no passenger use of the portion going through Vernon Hills is expected in the foreseeable future. The Village should continue as an active participant in the study.

Village Entry Treatments

Village entry treatments are shown for major entryways into the Village, specifically at Route 45 and Milwaukee Avenue, at Route 60 and Butterfield, and at Route 60 west of the Des Plaines River. These entry treatments should include a common Village identification sign placed in a landscaped location. The amount of landscaping depends on the amount of land available.

Demographics

The first census of Vernon Hills taken in 1960 identified 123 residents. By 1970 the population had grown to 1,056 persons, in 1973 the population was estimated to be 2,200, in 1980 the population was 9,827, and the 1990 population was 15,319. In 1990, within the incorporated Village limits, there were 2,213 single family detached homes (36.9% of the total), 1,293 attached single family homes (21.6%), and 2,490 multiple family units (41.5% of the total.) The total number of homes was 5,996 units.

The 2000 Census identified that the population had grown to 20,120, which is a 31.1% increase from 1990.  Within the Village limits, there were 3606 single-family detached homes (45.4% of the total), 1742 attached single-family homes (21.9%), and 2603 multiple-family units (32.7% of the total.)he total number of housing units in 2000 was 7,951, which was an increase of 32.6% over 1990.

Based on the revised projections from Gregg’s Landing, the proposed build-out of the Village has been revised downward to approximately 8,800 total units; 3,916 (45.5%) single-family homes, 1,892 (21.5%) attached single-family homes and 2904 (33%) multiple-family homes.

Based on the number of each type of unit proposed above and the population ratios for each type of unit as revealed in the 2000 census of 2.53 persons per housing unit the estimated ultimate population of the Village is 22,264. It is recommended that the Village revisit this estimate due to the timing of the data collection for the 2000 census, the continued build out in Gregg’s Landing and larger number of families with children that are moving into the development.

Ordinance 2003-14
Approved and Adopted by the Village Board
February 18, 2003

Addendum 1 to the Comprehensive Land Use Plan

Bicycle and Pedestrian Path Plan

INTRODUCTION
The Village of Vernon Hills recognizes the importance of providing an adequate system for pedestrians and bicyclists to move throughout the Village while also being able to connect to the region wide pathway system established by the Lake County Forest Preserve District and Lake County DOT. The Village is fortunate to have large parks and to be strategically located to the significant Lake County Forest Preserve open space parcels. The Village recognizes the need to encourage bicycle and pedestrian travel for both transportation and recreation as both conserve energy, contribute to cleaner air, reduce traffic, reduce the need for automobile parking and improve personal fitness.

Unfortunately, significant barriers exist which divide the community and cause pedestrians and bicyclists to abandon their attempts to travel to schools, recreation, major shopping or entertainment areas. These barriers include lack of facilities for bikes and major multi–lane roads (Routes 60 and 21) that either lack safe pedestrian crossings locations or interconnections to other trails or pathways. In addition, the Village lacks a unified system to sign or identify path systems in and around the community.

The purposes of this plan are as follows: