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CITY OF ROCKFORD

2040

COMPREHENSIVE PLAN

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Acknowledgments

A special thanks to the residents of Rockford, the region as a whole, city employees, and the Comprehensive Plan Steering Committee members, whose thoughtful discussions, insight, and ideas provided the basis for the update to the City of Rockford Comprehensive Plan and the implementation strategies that will ultimately make the 2040 plan successful.

This document was prepared for the City of Rockford with assistance from the following individuals and organizations

Mayor Thomas McNamara

City Council Members First Ward: Dr. Timothy Durkee (R) Second Ward: Jonathan Logemann (D) Third Ward: Chad Tuneberg (R) Fourth Ward: Kevin Frost (R) Fifth Ward: Gabrielle Torina (D) Sixth Ward: Aprel Prunty (D) Seventh Ward: Janessa Wilkins (D) Eight Ward: Karen Hoffman (D) Ninth Ward: Bill Rose (D) Tenth Ward: Franklin Beach (R) Eleventh Ward: Isidro Barrios (D) Twelfth Ward: Gina Meeks (D) Thirteenth Ward: Jeffrey Bailey (D) Fourteenth Ward: Mark Bonne (D)

Steering Committee Members Steve Booth Mark Crosby Pastor Violet Johnicker Marvin Keys Craig Sockwell Jennifer Spencer Sandy Tower Patrick Yarbrough Alderman - Dr. Timothy Durkee Alderwomen - Gina Meeks

Key City of Rockford Staff Todd Cagnoni (AICP) Karl Franzen Scott Capovilla Colin Belle Anna Garrison

Region 1 Planning Council (R1PC)

Adopted by Rockford City Council on October 2nd, 2023

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A Vision Statement for the City of Rockford, Illinois

What is a Vision Statement? Developing a Vision Statement is an essential step in the process of creating or updating a city comprehensive plan. Vision statements focus attention on a community’s values, sense of identity, and aspirations. The vision statement tells a story and paints a picture of an ideal future for the city and our region as a whole. Usually, they’re no longer than 2-3 sentences. The City of Rockford vision statement represents the guiding principles for the community as it faces new challenges and complex choices.

The residents of Rockford envision a future city that celebrates our cultural diversity, has thriving downtown events and art attractions, builds on its strong history of economic opportunities through continued improvements in our education systems, and a mission to deliver outstanding public services to improve the safety and health of the community as a whole. Such planning will take the cooperation and teamwork of both new and seasoned leaders to identify and advance both existing and future opportunities for increased economic growth and transportation improvements that benefit the City of Rockford, making it a more desirable place to live for all.

Table Of Contents

Acknowledgments

A Vision Statement for the City of Rockford, Illinois

INTRODUCTION

What is a Comprehensive Planning Document? .................................................................................... 1 Comprehensive Planning Guidelines in Illinois ........................................................................................ 1

PLAN UPDATE PROCESS

Overview of the Planning Process........................................................................................................... 2 Key Topic Areas ....................................................................................................................................... 3 Public Participation & Community Involvement ...................................................................................... 3 Comprehensive Plan Steering Committee ................................................................................................ 4 Implementation Strategies ......................................................................................................................... 4

COMMUNITY PROFILE

Introduction & Background ...................................................................................................................... 5 Geography & Location ............................................................................................................................. 5 City of Rockford History & Background ................................................................................................. 7 Population, Socio-Demographic Profile & Trends .................................................................................. 8 Growth Projections................................................................................................................................. 13

LAND USE PLANNING

Introduction & Background .................................................................................................................... 15 Zoning and Land-Use Connection......................................................................................................... 15 History of Annexation............................................................................................................................ 16 Boundary Agreements............................................................................................................................. 17 Policy Priorities ...................................................................................................................................... 17 Current Zoning........................................................................................................................................ 21 Current Land-Use................................................................................................................................... 24

Future Land-Use ................................................................................................................................................24 Goals, Objectives, & Implementation Strategies............................................................................................29

TRANSPORTATION & MOBILITY

Introduction & Background ..............................................................................................................................33 Roadway Functional Classification ..................................................................................................................34 Roadway Systems..............................................................................................................................................35 System Capacity & Roadway Design Standards ..............................................................................................36 Current & Projected ADT ................................................................................................................................40 Current & Projected Congestion ......................................................................................................................40 Roadway Safety ................................................................................................................................................40 Public Transportation........................................................................................................................................41 Chicago Rockford International Airport..........................................................................................................45 Passenger & Freight Rail ..................................................................................................................................45 Active Transportation .......................................................................................................................................46 Goals, Objectives, & Implementation Strategies............................................................................................49

ECONOMIC DEVELOPMENT & WORKFORCE

Introduction & Background ..............................................................................................................................53 Workforce Characteristics ................................................................................................................................53 Employment Characteristics..............................................................................................................................54 Population & Employment Projections ..........................................................................................................56 Business & Industry Characteristics ................................................................................................................58 Workforce Development, Talent Attraction, & Retention Efforts ..................................................................58 Economic Development Programs & Incentives..............................................................................................60 Recent Major Development Projects ..............................................................................................................61 Goals, Objectives, & Implementation Strategies............................................................................................62

EDUCATION - PUBLIC & PRIVATE

Introduction & Background ..............................................................................................................................68 History of Rockford Public Schools (K-12)....................................................................................................68 Map of School Districts ....................................................................................................................................70 Private Schools (K-12) ......................................................................................................................................74 Regional Overview ............................................................................................................................................74 Student Diversity & Assessment......................................................................................................................76 Post Secondary Educational Institutions ..........................................................................................................79 Education & Local Workforce Connection ......................................................................................................81

Goals, Objectives, & Implementation Strategies...................................................................................82

HOUSING & LIVABILITY

Introduction & Background ....................................................................................................................85 Historic Preservation...............................................................................................................................86 Housing Analysis & Current Housing Market .......................................................................................91 Housing Needs, Current & Future ..........................................................................................................93 Vacant Housing Efforts ...........................................................................................................................96 Regional Land Bank & Trustee Program ...............................................................................................96 Homelessness Reduction Efforts .............................................................................................................97 Neighborhood Improvement Initiative....................................................................................................98 Goals, Objectives, & Implementation Strategies....................................................................................99

COMMUNITY INFRASTRUCTURE, PUBLIC SAFETY & HEALTH

Introduction & Background .................................................................................................................105 Public Water Supply & Distribution...................................................................................................105 Solid Waste Management & Recycling...............................................................................................107 Electricity & Natural Gas Supply/Demand........................................................................................108 Utility Cost-Saving Programs..............................................................................................................109 Telecommunications Infrastructure......................................................................................................110 Public Safety & Emergency Responders .............................................................................................111 Rockford Police Department ................................................................................................................112 Rockford Fire Department....................................................................................................................115 Public Health .........................................................................................................................................117 Goals, Objectives, & Implementation Strategies..................................................................................121

PARKS, RECREATION, & PUBLIC OPEN SPACE

Introduction & Background .................................................................................................................130 Inventory of Parks & Public Open Space...........................................................................................130 Trail & Bikeway Facility Types ...........................................................................................................132 Greenways ..............................................................................................................................................133 City Markets & Other Open-Air Market Events .................................................................................134 Goals, Objectives, & Implementation Strategies..................................................................................136

ENVIRONMENT & NATURAL RESOURCES

Introduction & Background .................................................................................................................139

Water Resources & Their Importance...................................................................................................... 140 Greenways Planning...................................................................................................................................143 Air Quality ................................................................................................................................................... 145 Brownfields ................................................................................................................................................. 145 Goals, Objectives, & Implementation Strategies..................................................................................... 148

ARTS, CULTURE, & HISTORIC LANDMARKS

Introduction & Background ....................................................................................................................... 152 Arts & Cultural Attractions ....................................................................................................................... 152 Historic Preservation.................................................................................................................................. 156 Important Historical Structures ................................................................................................................ 157 Goals, Objectives, & Implementation Strategies..................................................................................... 160

PUBLIC PARTICIPATION REVIEW, & ANALYSIS OF RESULTS

Public Participation Results....................................................................................................................... 162 Rockford City Market Community Survey............................................................................................... 164 Online Community Survey ........................................................................................................................ 169

COMPREHENSIVE PLAN AMENDMENT PROCESS

What is a Comprehensive Plan Amendment............................................................................................ 175

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INTRODUCTION

What is a Comprehensive Planning Document?

The City of Rockford Comprehensive Plan is the result of a multi-phase, coordinated, comprehensive, and continuous planning process (3 C’s). A comprehensive plan is a vision for the future focusing on policies and strategies to guide physical development that assist both the city and the private sector. Three of the biggest tools that are used to implement the plan are the Zoning Ordinance, Subdivision Ordinance, and our Engineering Design Standards. This plan will be the official long-range planning and policy guide for the City of Rockford over the next 10 years or so.

The comprehensive plan acts as a guide to coordinate and align zoning and land-use, transportation infrastructure, economic development investments, natural resources and open space protection, and the general needs and concerns of community members. It serves as the community’s voice and portrays what the future could look like while serving as the decision-making tool for elected and appointed officials regarding overall development, conservation, and public investment within the City of Rockford’s municipal boundary.

Typically, the comprehensive plan is prepared based on 10-20 year projections and the City of Rockford will review this plan about every 5 years. To this same point, the plan may need to be amended in order to reflect current or changing trends over time. The City of Rockford Comprehensive Plan should be revisited and re-written at a minimum of every 10 years.

The plan is used to guide growth and development through smart growth principals with a focus on long term land use, transportation, economic development, and open space. The plan will also cover topics such as housing, public heath, and education, just to name a few.

Comprehensive Planning Guidelines in Illinois

Under the Illinois Municipal Code (65 ILCS 5/11-12-5), every city or village planning commission or planning department is charged with preparing and recommending a comprehensive plan for the present and future development or redevelopment of the municipality. The comprehensive plan covers the entire incorporated area of the municipality, and it can extend to areas up to 1.5 miles beyond the corporate limits of the municipality, as long as that land is not incorporated by another municipality. If this unincorporated territory is within 1.5 miles of two or more corporate authorities, the communities should adopt a boundary agreement to decide which municipality has planning jurisdiction over that territory (65 ILCS 5/11-12-9).

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PLAN UPDATE PROCESS

Overview of the Planning Process

The City of Rockford Comprehensive Plan was last completely updated in 2004 when it was adopted by the members of the Rockford City Council. At the time, the 2020 Comprehensive Plan recommended that there be a 10-year review of the plan. The plan was amended in 2008, 2009, and 2011 based on reviews. These amendments were minor, and mostly included updated maps and boundary information. As recommended by City Council, the 2020 Comprehensive Plan was reviewed by city staff. The main purpose of the review was to evaluate the current planning strategies toward achieving the plans vision. At the end of the review process in 2014, city staff recommended updating the strategies to align better with current conditions in the city and to continue considering other regional planning documents developed or updated since the original plan was adopted in 2004. The 2020 Comprehensive Plan review process concluded in May of 2015 with a City Council approval of the 5-year, 2015-2019 Implementation Plan.

This most recent update to the City of Rockford Comprehensive Plan began in 2020. Initial work focused on the research and review of existing comprehensive plans, regional plans, and other development initiatives by the surrounding communities that have an impact on our city and region as a whole.

The next phase of the planning process involved making decisions on what type of Steering Committee to have, how to organize and implement the required Public Participation strategies, and the development of a draft outline. Ultimately, the draft outline, after refinement, was used to guide the research necessary to gather the data and information necessary to begin writing the chapters.

Extensive data gathering was used to drive the information that will be presented in each chapter. Various local, regional, and national datasets were researched and utilized in order to be able to present the following information.

Additionally, recent photographs of the city were taken to compliment this information and data, and to help capture the essence of what makes Rockford unique and attractive to so many residents and visitors alike.

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Key Topic Areas

A comprehensive plan is usually a regions only public document that describes the community as a whole in terms of its complexities and interrelated systems. The plan should focus on many areas and from as many viewpoints as possible. Reviewing the past and current conditions using a broad perspective for both short-term and long-term community decisions is imperative. The real value of a comprehensive plan is that it provides for the coordinated timing and location of development or redevelopment. This is something that zoning or subdivision regulations by themselves do not do.

Public Participation & Community Involvement

The purpose of focusing on public participation as an important part of a comprehensive plan update is to ensure that the community’s needs are addressed to the furthest extent possible. It’s very important to engage with the public early in the process using an array of techniques and strategies, and to include multiple opportunities for participation in the process by as many people as possible. It’s easy to ask the community for input, but ensuring that participation is productive and equitable may be more difficult given the impact of COVID-19 and the restrictions in place limiting in-person gatherings at the beginning of this process. However, by utilizing digital engagement and outreach strategies, combined with gathering information at more controlled and smaller events, the results from public participation efforts were successful.

By actively engaging the public throughout the duration of the comprehensive plan update, citizens have the chance to influence decisions that are important to them. Public involvement is essential to gather enough information to accurate-

The City of Rockford Comprehensive Plan relies heavily on public input, and engaging the region’s residents. We encourage anyone who lives in, near, or regularly visits the City of Rockford to participate in the process by taking this survey!

CLICK HERE ➔ https://www.surveymonkey.com/r/RockfordPlanning2022

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The City of Rockford Comprehensive Plan will include extensive community outreach, visioning, and public input. It is the official long-range planning and policy guide for the City of Rockford. It acts as a guide to coordinate and align the following over the next 10 years:

• zoning and land-use
• transportation infrastructure
• economic development investments
• natural resources and open space protection
• the general needs and concerns of community members

The plan serves as the community’s voice and portrays what the future of Rockford could look like. It is also a tool for elected and appointed officials to use in making decisions regarding overall development, conservation, and public investment within the City of Rockford’s municipal boundary.

Please direct any questions to: Colin R. Belle Planning & Design Coordinator Tel 779.500.6580 Email: Colin.Belle@rockfordil.gov

ly represent the public. Engaging the public early in the process is important. It’s also important to have a clear, concise, and realistic message that’s consistent throughout the planning process. This will help to garner support and ensure a more equitable and successful plan implementation phase.

The following list represents the public participation and community engagement efforts made by staff throughout the entirety of the planning process:

• Rockford City Market engagement efforts included open discussions and information provided to community members, a visioning board, and community survey was given. With the assistance of the Region 1 Planning Council, city staff was present at two Friday night city markets: once in July and again in August of 2022.

• City Staff attended two local high school career fairs where we had the ability to discuss topics that were important to teenagers living in the region. A half-day was spent at both Boylan Catholic High School and Jefferson High School. Students also had the ability to take a digital survey to assist in identifying areas the city was doing well in, and areas that may need extra attention.

• Staff developed an online community survey with 11 questions that varied from basic demographic information, community rankings, funding alignment, and open-ended comments sections. The survey went live in February 2022, and was left open until the draft plan comment period was over. The results were compiled in May 2022, and at that time there were 930 completed surveys. The detailed results are provided in the Public Participation Review and Analysis Chapter at the end of this plan.

• The City of Rockford Draft Comprehensive Plan was completed internally in the fall of 2022, after which an extensive internal review by city staff was finalized. The draft plan was released to the public for reading and to act as the official public comment period running from April 10th to May 10th, 2023.

Comprehensive Plan Steering Committee

The Steering Committee is comprised of members invited to participate in the planning process from the beginning to end, by the City of Rockford. These members represent local community leaders, neighborhood associations, developers, business leaders, and citizens at large. The role of the Steering Committee is to oversee the successful completion of the comprehensive plan through review of the draft plan, submitting comments and edits, reviewing the various topics, approaches, and policies outlined, assist in planning the public participation process. and help encourage public comment. Additionally, the Steering Committee will aid in the development of chapter goals, objectives, and implementation strategies which will ultimately ensure the plans success.

The committee had the following responsibilities:

• Develop a vision statement for the plan,

• Provide guidance through the entirety of the process,

• To review data, charts, and maps for accuracy and ease of understanding,

• Provide comment and input during all phases of plan development and engagement,

• Identify issues and concerns during plan development and draft review period,

• Relay any public comments or questions that were submitted on your behalf,

• Assist in public participation process and consensus around the plan,

• Represent and portray broad community interests, and

• Act in an advisory capacity to city council or planning committee if necessary.

Implementation Strategies

Comprehensive plans are turned into reality by concerted, coordinated, and consistent attention to implementation after the final plan has been adopted by City Council. This requires that the city administration, managers, departments, and staff at present and in the future, utilize the comprehensive plan as a key reference for decision making and important actions moving forward. Aligning the chapter implementation goals to strategic planning and development initiatives through policies furthers the objectives in the comprehensive plan and helps to ensure a successful implementation phase.

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COMMUNITY PROFILE

Introduction & Background

Having a historical perspective of a city and the surrounding region helps a person to better understand a community and the planning process that goes into making it attractive. The geographic location of Rockford is important for many reasons, as is our location in relationship to other places within the context of the region as a whole. The physical and social characteristics of a city help one to understand how people live, where they work, and how they move from place to place. Understanding Rockford’s characteristics including history, development patterns, geography, and weather provide a holistic overview of what makes our city a unique and desirable place to live, work, and a raise a family in.

This chapter offers an overview of the city and its residents both historically as well as the existing conditions of the region. This information sets the basis for an understanding of the types of communities present in Rockford as well as the overall sense of what type of place Rockford is for both residents and visitors.

Geography & Location

The City of Rockford is located in northern Illinois along the Rock River, about 90 miles northwest of Chicago. Rockford is closely, and nearly equally, distanced from the Cities of Milwaukee and Madison Wisconsin, Dubuque Iowa, and Chicago Illinois. All of which are about 1.5-2 hours drive. Our close proximity to other large cities, and the ease of travel between them all, contributes to Rockford’s competitive market advantage.¹ The city encom-

passing the Rock River was no accident. In fact, the Rock River was a prominent feature in northern Illinois during the early settlement period acting as a travel route, food source, and means of fertile crop production. The weather varies from hot and humid in the summer to cold, snowy, and dry in the winter. In general, the State of Illinois is flat and northern Illinois has very little topography.

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Community Profile | 6

City of Rockford History & Background

Native American History & Pre-Settlement Before the 1700's, northern Illinois was predominantly populated by the Illinois and Miami Native American tribes. As Europeans pushed further inland, many tribes were forced to relocate and the density of the regions inhabitants gradually increased. What we now commonly refer to as northern Illinois became home to a variety of tribes including the Winnebago (Ho-Chunk), Sauk, Shawnee, Potawatomi, Fox, Kickapoo, and Dakota Sioux. While each tribe had its own culture, values, languages and religion, we know that the tribes of this region flourished due to the climate, natural resources, and the ability to travel easily due to the geography and network of navigable river ways. Northern Illinois also provided inhabitants with plenty of opportunities for both farming and hunting due to the prairies and woodland areas. These same areas also provided them with various plants, trees and animals, which they used for clothing, food, shelter, medicine, and ceremonial purposes. Northern Illinois' many rivers, creeks, and lakes provided an abundance of fish and water fowl, and aided in easier travel and trade in the region.ii

The Early Years of Settlement Settlement of the region began in 1834 as two different groups developed both the east and west sides of the Rock River. On the west bank, Germanicus Kent and Thatcher Blake, with his slave Lewis Lemon, founded Kentville. On the east bank of the river, Daniel Shaw Haight made his settlement known as Haightville. With the location of these settlements equidistance between Lake Michigan and the Mississippi River, the combined settlement became known as “Midway.” In 1836, Winnebago County was formed by taking a portion of the then Jo Davies and LaSalle Counties and combining them. Midway was named as the Winnebago County seat at that time.iii

In 1837, the area was renamed Rockford. The City of Rockford got its name from a combination of the major river that runs through the city's center, the Rock River, and a shallow spot that the original settlers of this area used to cross the river, a ford. Additionally, a post office was established in 1837 with Daniel Shaw Haight as the first postmaster. In 1839, the settlement was incorporated as a village. In 1840, the first weekly newspaper began circulation and by 1877, Rockford had a successful daily newspaper.iv

Continued Growth, Settlers & Origins The settlement really began to grow by the 1850's. In 1851, the Rockford Water Power Company was organized and shortly after, a dam was constructed across the Rock River in order to produce a lot of cheap power. The Rockford dam would lead to the region becoming one of the largest manufacturing centers in the United States while being surrounded by agricultural fields and natural areas for miles. Large numbers of Irish-born immigrants arrived in the 1850's, and a few Swedish immigrants had made Rockford their home by 1852. After the Civil War, Swedish immigrants began to come in large numbers and quickly became the largest ethnic group in the city. They settled primarily on the east side, and in areas along 7th Street and Kishwaukee Avenue. At that time, the Swedish Language was as common as English in Rockford right up until the late 1920's. Other significant ethnic groups that had a presence in early Rockford were the Italians (after 1880), Poles and Lithuanians (after 1900), Laotians, Vietnamese, and Hispanics (after 1970). While one of the founders of the city, Lewis Lemon, was an African American, this population of the city was very small until after the first World War, after which people from the South, particularly Arkansas and Mississippi, arrived in the city.v

Rockford University The Rockford Female Seminary was chartered in 1847, converted to Rockford College in 1892, and became fully coeducational in 1958. On July 1st, 2013 the college was renamed a final time to Rockford University, the name we are familiar with today. One of Rockford College's most notable graduates was Jane Adams (1881), who was the founder of Chicago's Hull House and recipient of the Nobel Peace Prize in 1930.vi

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Industry, Manufacturing, & the Early Economy The Rock River not only offered a convenient and safe place to cross near today's downtown Rockford, but also allowed for the construction of the Rockford Dam. This

development provided electricity from the water-power supplied by the dam that was constructed in the mid-19th century. This ultimately led to the development of Rockford as a manufacturing and industrial epicenter located in the middle of an agricultural area. The region's farming machinery manufacturing business began in the 1850's when John H. Manny developed a combined reaper and mower. The furniture and carpentry industry in Rockford was a result of the influx of Swedish carpenters who arrived with the extension of the Galena and Chicago Union Railroad to the Rock River in 1852. Rockford's early economy was based on manufacturing, as it is today, including machining, tools, screws and fasteners, hardware, and automotive parts, to name a few. In fact, the city's early nickname was Screw City, for the amount of fasteners the city produced that were used world-wide.vii

By the 1880's, Rockford had established itself as a major furniture industry. By utilizing the talents of Swedish craftsman that had moved to the area, Rockford became the second largest furniture manufacturing center in the United States in the early to middle part of the 20th century. Rockford was a bit, unique, however in that the furniture companies here were co-operatives. This was a different approach to business which put a significant portion of control, and also creativity, into the hands of the laborers and craftsman. The city's agricultural industry was already in a decline by the first World War, and the furniture industry was severely affected by the Great Depression and the second World War. Due to these events, by the end of the 1960's both the furniture and farm implement industries had been wiped out.viii

Population, Socio-Demographic Profile & Trends

The demographic characteristics of the city's population have continued to change since 1990, some in ways that were anticipated and others that were not. The following pages outline some of the changes that have occurred.

Population Growth

Rockford's total population generally aligned with expectations of the projections in the 2020 Comprehensive Plan. However, while the previous plan anticipated a population increase from 152,871 in 2010 to 163,730 in 2020, actual numbers showed a slightly smaller increase in population from 1990 to 2010, followed by a slight decline by 2020, according to the U.S. Census. The 2020 U.S. Census population for Rockford was 148,655. Recent estimates show a slight but continued increase.

Census data for the past 30 years, shows overall population growth in both the urbanized and rural areas in Winnebago County. However, Rockford's population as a percentage of the county total has been slowly declining. While this drop has not been significant, decreasing from 55 percent in 1990 to 52 percent in 2020, the City of Loves Park, in contrast, has seen a three-percent increase in population over the last 30 years. The Village of Machesney Park and the remainder of Winnebago County has seen a smaller population increase of one percent. However, the City of Rockford has more capacity for new growth due to its size, location, and amenities.

1990 Census of Population: Social and Economic Characteristics. Illinois: 1990, Part 1 DP-1. Profiles of General Demographic Characteristics. Illinois: 2000 U.S. Census 2010. DEC SF1 Summary File P8 RACE U.S. Census. 2020 Redistricting Data (PL 94-171) (P1 Race)

Racial and Ethnic Composition

Rockford's minority population increased by nearly 170 percent between 1990 and 2020, growing from an estimated 26,408 in 1990 to 70,986 in 2020. In 1990 the minority population was just under 19 percent and grew to just over 48 percent by 2020. The majority of residents (52 percent) in the city were White in 2020. The second largest racial group in the city is Black or African American alone, comprising 23 percent of the population. The remainder of the city's population is comprised of: 10.5 percent Two or More Races, 3.5 percent Asian, 10 percent Some Other Race, 0.4 percent American Indian or Alaska

Native, and 0.02 percent Native Hawaiian or other Pacific Islander.

From 1990 to 2020, the Hispanic or Latino population grew from 5,210, or about 4 percent of the total population to 29,583, or 20 percent of the total population in 2020. This equates to over a 450% increase in this population alone within the City of Rockford, according to the U.S. Census estimates.

1990 Census of Population: Social and Economic Characteristics. Illinois: 1990, Part 1 DP-1. Profiles of General Demographic Characteristics. Illinois: 2000 U.S. Census 2010. DEC SF1 Summary File P8 RACE U.S. Census. 2020 Redistricting Data (PL 94-171) (P1 Race)

Age Distribution

The median age of Rockford’s population has also increased over the last 20 years. The median age in 2010 was 35.8 and in 2020 it was 37.8. During the same time period the population under the age of 15 has decreased slightly from 21.6 percent in 2010 to 20.5 percent in 2020. In 2020, those under 5-years-old made up 6.7 percent of the population. Those between 25 and 34 years old made up the largest age groups in the city at 13.4 percent of the total population. These two age groups also made up the largest portions of the population in 2010. The 65 to 74 year old age group saw the largest population increase from 2010 to 2020 from 9,596 (6.2 percent), to 13,931 (9.4 percent).

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U.S. Census 2010 and 2020 ACS 5-year Demographic Estimates. DP05

Households

While Rockford’s population has increased by 5.5 percent between 2000 and 2019, the number of households has stayed relatively stable. The number of households grew from roughly 59,158 in 2000 to 59,551 in 2019, an increase of 0.7 percent. Household size also stayed stable from 1990 to 2019, with a median household size of 2.5 people in 1990 and 2010, and 2.4 in 2019. In 2019, 64.4 percent of all Rockford households contained only one or two persons, while 22.0 percent of households contained four or more persons. According to new data from the U.S. Census Bureau's ACS 5-years estimate (2016-2020), the total number of households has increased to 62,011.

Note: The 2000 U.S. Census ONLY included the number of female single-parent families

The City of Rockford’s single-parent households made up 9.8 percent of total households in 2000, 13.9 percent of total households in 2010, and then dropped to 10.9 percent of total households in 2019. For the most part, these households are located throughout the city without any noticeable concentrations.

While the number of households in Rockford has been stable over the last 20 years, the City of Loves Park and Village of Machesney Park have seen substantial increases in the number of households (19.6 percent and 15.6 percent, respectively) over the last 20 years. Similar to Rockford, the number of households in other areas of Winnebago County has remained stable over the last 20 years.

Educational Attainment

While gains have been made in the disparity of educational attainment across the community, more work remains to be done to continue to close the gap. Overall, the educational attainment of Rockford’s population has increased in the last few decades. In 2000, 78 percent of the population over the age of 25 was a high school graduate or higher (including equivalency). Over the years this number has steadily increased from a low of 75 percent in 1990 up to 84 percent in 2019. While the percent of the population with a high school diploma has increased pretty significantly, the number of college graduates has increased at a much slower pace. Increasing by 1 percent every 10 years starting at 19 percent in 1990, and reaching 22 percent by 2019.

Despite these gains, Rockford still lags behind Illinois and the nation in the number of high school and college graduates in recent years. When looking at the 2020 U.S. Census ACS 5-year average, Illinois has just under 90 percent of the 25+ population with a high school degree or higher, and 35.5 percent of Illinois has a bachelor’s degree or higher when looking at the

population 25 years and older. At the national level, just over 90 percent of the population 25 years and older has at least a high school education while those 25 and older with at least a bachelor’s degree rose to just under 38 percent.

1990 Census of Population: Social and Economic Characteristics. Illinois: 1990, Part 1 U.S. Decennial Census 2000 DP1, DP3 & SF1. Profiles of General Demographic Characteristics. Illinois U.S. Census 2010. DEC SF1 Summary File P8 RACE U.S. Census. 2019 ACS 5-year Estimates, DP02

Economic Characteristics

According to the U.S. Census, Rockford’s employment rate has stayed relatively stable since 1990. While there have been events to cause larger increases or decreases over the years, the rate always seems to stabilize back out over time. Unemployment rates were 6.1 percent in 1990, 4.7 percent in 2000, 7.3 percent in 2010, and 6.6 percent in 2019.

In 2019, median unemployment rates by census tract ranged from a low 0.0 percent (geography with very few households) to a high of 35.8 percent, with a median unemployment rate of 7.0 percent for the entire city. Generally regions around the perimeter of the city have higher unemployment rates, especially in the west and southwest portions of the city.

Median household income increased by just under 15 percent between 2010 ($38,573) and 2019 ($44,252). While these gains appear to be a positive factor, the fact remains that Rockford did not increase at the same rate as Illinois and national figures. In 2010, Rockford’s median household income was only 69.2 percent of the state median household income ($55,735) and 74.3 percent of the national level ($51,914). By 2019, these figures had dropped to 67.2 percent ($65,886) and 70.4 percent ($62,843), respectively. Generally, people earning below the median income are concentrated in downtown and southwest Rockford. Households earning above the median income are located outside downtown Rockford, particularly in the northern and southern portions of Rockford.

1990 Census of Population: Social and Economic Characteristics. Illinois: 1990, Part 1 U.S. Decennial Census 2000 DP1, DP3 & SF1. Profiles of General Demographic Characteristics. Illinois U.S. Census 2010. DEC SF1 Summary File P8 RACE U.S. Census. 2019 ACS 5-year Estimates, DP02

In 2010, manufacturing accounted for 20.4 percent of jobs in Rockford and by 2019 had only increased slightly to 21.9 percent. The local economy is still heavily dependent on manufacturing compared to the nation where only 10.1 percent of the workforce is in manufacturing. The Rockford Public School District (RPS205), UW Health, Mercy Health, OSF Healthcare, and Collins Aerospace are some of the top manufacturing companies in our city that employ Rockford residents.

2019 ACS 5-year Estimate S2407 Industry by Class of Worker for Civilian Population

Housing

Renter-occupied units have increased from 39.5 percent in 2010 to 45.8 percent in 2019. In contrast, owner-occupied units have decreased from 60.5 percent in 2010 to 54.2 percent in 2019. The number of vacant housing units has also decreased from 13 percent to 10.4 percent between 2010 and 2019.

The homeowner vacancy rate has increased from 1.3 percent in 2010 to 1.9 percent in 2019. The rental vacancy rate has also seen an increase from 4.2 percent in 2010 to 7.0 percent in 2019. Causes for higher vacancy could be attributed to Rockford’s substantially large supply of older housing, areas of higher poverty and unemployment, and the movement of people out of the city or to other cities and states. Whatever the root causes, these numbers point to a trend the city would like to better understand in order to improve the issue.

| | 2010 | 2019 | | :--- | :---: | :---: | :---: | :---: | | Housing Occupancy | Number | Percent | Number | Percent | | Occupied housing units | 59,827 | 87% | 59,551 | 90% | | Vacant housing units | 8,930 | 13% | 6,918 | 10% | | Total housing units | 68,757 | - | 66,469 | - |

Summary

• Rockford’s total population was similar in 2000 and 2010, then decreased by about 4,200 between 2010 and 2019.
• At the same time, the city’s minority population increased substantially, with growing diversity among all minorities.
• The population is aging, with the median age increasing from 35.8 years in 2010 to 37.8 years in 2020.
• While the population has changed in the last 10 years, the number of households has remained relatively stable.
• Rockford has seen a decrease in single-parent families from 59,827 in 2010 to 59,551 in 2019.
• The population 25 years and older with high school diplomas increased from 80 percent in 2010 to 84 percent in 2019, while the percentage of those with a bachelor’s degree or higher, went from 21 percent in 2010 to 22 percent by 2019.
• Rockford’s percentage of households who earned $50,000 to $99,999 remained at around 40 percent in both 2010 and 2019.
• Owner-occupied units have decreased from 60.5 percent in 2010 to 54.2 percent in 2019.
• The number of vacant housing units has decreased from 13 percent in 2010 to 10.4 percent in 2019. For a more detailed discussion of current housing conditions, please refer to the Housing Chapter.

While the City of Rockford may be growing its municipal boundary, it is not keeping pace with growth in areas such a population and housing units as compared to other areas of Winnebago County. When population and household totals are viewed in light of Rockford’s substantial increase in geographic area, the city’s population has become less dense overall.

is somewhat expected, though, as the city grows outward it incorporates areas that are less dense being that they’re more rural. The City of Rockford’s population density was 3,485 people per square mile in 1980, 2,680 people per square mile in 2000, 2,502 people per square mile in 2010, and the people per square mile was 2,250 in 2020. As the density of a city decreases you generally see implications in terms of the increase in cost of city services, environmental expenses, response time of emergency personal, and overall increases in maintenance fees.

Growth Projections

Scenario Overview Population projections are ways to estimate what the population could look like at a future date based on past and expected trends. Population projections were generated from 2019 out to the year 2040 to estimate what the population could be in Winnebago County annually. The three projections used were a baseline of no additional growth from current trends, a one percent annual increase in population from current trends, and a one percent annual decrease in population from current trends. The baseline projection uses the current population estimates for 2019 to determine the growth over the time-frame of 2019 to 2040. The positive growth scenario took the baseline population and increased it by one percent to show what a quickly growing region could look like. Using the negative growth scenario the baseline population was decreased by one percent annually to determine what the population growth would look like if it grew at a very slow rate. When looking at population projections, Winnebago County is only projected to grow by approximately 10,000 to 11,000 people over the next 20 years based on current and projected trends.

Baseline Scenario If Winnebago County continued to grow at its current rate, the population would initially dip during 2019 and 2024, then steadily increase from 2024 to 2040. The population would grow from 283,003 in 2019 to 293,820 (an increase of 10,817) by 2040.

Positive Growth Scenario If Winnebago County’s population increased by one percent (+1%) per year, population would increase initially during 2019 to 2022, then dip down during 2022 to 2027, followed by a steady increase from 2027 to 2040. The population would grow from 283,003 in 2019 to 295,703 (an increase of 12,700) in 2040.

Negative Growth Scenario If Winnebago County saw a one percent (-1%) decrease in population growth annually, the growth rate would slow down very quickly and be represented by a population decrease for a few years followed by fluctuating population levels until about year 2026/2027. The population rate would then start to turn positive after 2027, then steadily increase from 2027 to 2040. The population would grow from 283,003 in 2019 to 289,847 (an increase of 6,844) in 2040.

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Chapter Endnotes

i https://www.britannica.com/place/Rockford

ii https://tinkercottagemuseum.wordpress.com/2017/11/30/native-american-tribes-of-the-rockford-area/

iii http://genealogytrails.com/ill/winnebago/rockfordtoday.html

iv https://www.britannica.com/place/Rockford

v https://www.gorockford.com/about/history/

vi https://www.gorockford.com/about/history/

vii https://www.britannica.com/place/Rockford

viii https://www.gorockford.com/about/history/

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LAND USE PLANNING

Introduction & Background

Land use planning is the process of regulating the use of land by a governmental entity in an effort to promote more desirable social, environmental, and economic outcomes. The desired outcome results in a more efficient use of land resources. Land use planning aims to put similar land uses near one another to improve the overall continuity, efficiency, and safety of users. By grouping comparable land uses near each other, there are less conflicts of interests and the type of land use activity can be planned for accordingly.¹ Land use planning is an important function of a city’s ability to grow in an equitable manner. With proper planning, prioritization and forward thinking, future development for both residential, commercial, and industrial services can occur in concert with one another. This results in compatible land uses working in unison with one another while causing the least disruption to different nearby land uses and land users.

Zoning and Land-Use Connection

Land use and zoning involves the regulation of the use, development of land, and the built structures or buildings that are present. The most common form of land use regulation is zoning. Zoning regulations are used by municipalities to control and direct the development of property within their borders or jurisdictions. Land use is the characterization of land based on what can be built on it or what the land is best suited for. Land use dictates what type of structures or uses are allowed on a given parcel of land. Ultimately, growth is regulated through zoning reg-

ulations that define, and limit the allowable land use for every parcel within incorporated Rockford.

Land use and zoning are a function of one another in that zoning defines in more detail what the function of that particular land use is. Zoning has two major functions: administration and enforcement of the zoning ordinance. Zoning administration includes the zoning application process for zoning map amendments, special use permits and variances requested by property owners or developers, and with providing background information and recommendations to the Zoning Board of Appeals on all requests for zoning changes. Zoning also includes review of all building permits for compliance with the zoning ordinance, and enforcement of the ordinance by responding to complaints and following up on previous zoning cases. Zoning also provides zoning clearances for building permits, permanent sign permits, fence permits, and parking lot permits. It also issues permits for home occupations, dumpster enclosures, temporary banners, and inflatable signs among other things. Zoning also verifies the municipal boundary for new water meter requests.

The following elements also play a crucial role in land-use planning:

Land Use Plan Map – Provides a generalized map of the region showing where broad types of uses should be allowed and not allowed based on the type of use. It establishes land uses along corridors, right-of-ways, and unin-

corporated areas for development of future streets, roads, and all other development. Additionally, there is a Future Land Use Map that outlines areas for future development and expansion of city services.

Subdivision Ordinance – Governs the division of land and establishes minimum requirements for improvements such as streets, sidewalks, public utilities, and stormwater drainage. The current ordinance was adopted in 2007 and amended in 2015. It is generally used for review of developments up to 1½ miles beyond the city limits.¹

Zoning Ordinance – Governs the site-specific designation of allowed uses on individual parcels of land, as well as parking and landscaping requirements, location of buildings, location and size of signs, traffic circulation, and access. The current ordinance was adopted in 2008, was amended in 2021, and is updated regularly as per state statute requirements. The ordinance is based on the concept of performance zoning, which allows maximum flexibility for the developer while at the same time resulting in the most specific designation of what is allowed on a particular parcel. In addition, incorporating performance requirements into the overall mix of zoning requirements can make seemingly incompatible uses compatible.²

Building Code – Governs construction and/or renovation of structures; the city adopts the most recent editions of ICC and NFPA codes governing commercial construction, one and two-family dwelling units, electrical, mechanical, and property maintenance with local amendments along with the Illinois Plumbing Code and the Illinois Accessibility Code. Code adoption is implemented on a five-year cycle.

History of Annexation

Annexation is the process by which a municipality brings property into the city limits that previously was unincorporated. It’s one of the primary means by which a city is able to grow in size. Cities annex territory to provide areas with municipal services like city water, sanitary sewer/wastewater treatment, rubbish removal, recycling, composting services and public safety, especially fire protection services. Generally, unincorporated residential properties are on well water and have a septic system with a leach field which are often incompatible with urbanized areas due to the risks involved with contamination. Annexation is also a means of ensuring that current and future residents and businesses outside a city’s corporate limits who benefits from access to the city’s facilities and services share the tax burden associated with constructing and maintaining those facilities and services. For example businesses and commercial/industrial developments require access to adequate water supplies, wastewater, electricity and the city’s transportation network, which may not otherwise be provided to unincorporated areas. In fact it’s common to annex property with the sole purpose of a specific development or planned project that is dependent on these city services to commit to investing in a new building site.

The city’s planning division is responsible for implementing the annexation policies that are in place. The policies were first adopted in 1984, revised in 1993, and are currently being updated/revised. They are designed to promote the orderly growth and development of the city rather than inconsistent and irregular boundaries. Staff processes petitions for annexation for voluntary annexations, and water agreements for property owners connecting to the city water system. Staff is also responsible for working with developers and property owners who wish to annex large areas into the city. In these cases, staff must often address zoning questions; street layout on the property; land use issues where proposals differ from what is shown on the city’s adopted plan map; access to and from the property; and availability of public utilities, i.e., sanitary sewer and city water. If these negotiations are successful, an annexation agreement between the city and the property owner is developed and approved by the city council, if the city is not currently contiguous to the property.

While these annexations are obviously important in terms of the tax dollars they generate, they are important for other reasons such as continuity and order as well.

Delivery of Secondary Titles

A major motivating factor in the annexation program is to create some degree of logic to the corporate limits of the city. Difficulties arise from both irregular outer boundaries and from islands of unincorporated land inside the city. These irregularities lead to confusion in determining who should respond to emergency calls; to duplication of services by both the city and Winnebago County in patrolling fringe areas and islands; and to gaps in what should ideally be continuous services, such as street maintenance, snow removal and garbage pickup. The cleaner we can make our boundaries, and the fewer internal holes there are (islands), the more efficient both Rockford and Winnebago County can be in terms of ability to provide fast and efficient service to their citizens.

Planning Public Improvements It's not only important to determine who receives city services at the present time but to also account for and plan for those areas that will most likely need services in 5, 10, or 15 years from now. For example, knowing our ultimate planning boundary enables us to plan where and how many fire stations we will need in the foreseeable future, where we will get the most return from investments in infrastructure such as roads and water mains, and where to invest public tax dollars in order to create economic growth, new jobs, and opportunities for all.

In pursuing its annexation policies during the late 1980’s and 1990’s, the city succeeded in bringing four islands into the city, including: the Ken-Rock area (with added help from the Superfund money spent to connect homes in the area to the Rockford water system), simplifying the boundary with Loves Park along Forest Hills Road and East Riverside Boulevard, bringing the Greater Rockford Airport into Rockford, and extending the corporate limits eastward to the Boone County line.

Boundary Agreements

In some ways, potentially the most important element of the annexation program is the agreements worked out between Rockford and five of its municipal neighbors including Cherry Valley, Loves Park, Machesney Park, Rockton, and Davis Junction. The city currently does not have boundary agreements with the City of Belvidere, Winnebago, and New Milford. By having long-term agreements defining a municipality's ability to annex, we can each concentrate on providing services within a specified area instead of spending vast sums of money to entice income-generating developments into our municipality. By working together as a region rather than against one another, we're all stronger and more resilient.

Unfortunately, while this has been the goal, the reality in practice has been that the city continues to heavily subsidize and offer incentives to greenfield development even after these boundary agreements have been put in place. This has been done primarily to entice specific retail sales tax generators to choose a Rockford site rather than one in another community. The end result has been that capital investment dollars that could be targeted for the rehabilitation or replacement of existing infrastructure is diverted to greenfield development. This is particularly true for water main, sanitary sewer, and transportation investment.

Over the past 20 years, the city annexed areas that are now occupied by Lowes Distribution Center, Walmart (East State), Sandy Hollow Quarry, Bell School/Spring Creek/I-90, and the Mercyhealth Hospital on East Riverside Boulevard. Housing developments occurred as a result of the annexation of the Hope VI Housing Area (west side), Kelly Meadows (southwest side), Wesley Willows, Redington Chase, and Stevens Ridge (all on the northwest side). Also, the southwest corner of Bypass 20 and South Main Street and the area south of the airport at Edson Road-South Bend Road were annexed for future industrial development. The city also succeeded in bringing in five islands including Bradley Heights (Spring Creek & Bradley), Glenny View (City View & Rockton), Meadows of Spring Brook (Spring Brook & Springwheat), Country Oaks (Lyford & Cloverdale), and Larwinn (Bell School/Meander & Lyford/Conehill).

Policy Priorities

As previously stated, the city is currently in the process of updating its annexation policies. Focus should be working toward the following objectives:

• Establish priority annexation areas with a high priority on the elimination of unincorporated islands

• Bring in existing properties with pre-annexation agreements especially those that are sales tax producing properties

• Eliminating the Rock River Fire District through strategic annexations

• Financial incentives will only be provided to assist with development in the priority areas

• Evaluate the priority annexation areas and ultimate annexation boundary every 10 years

The city is working to pursue an aggressive annexation program along West State Street. Incentives should be considered to entice businesses on well water to hook-up to city water. The city should consider a mix of commercial and industrial development to help grow jobs and increase the tax base. Balanced growth and economic development is key to revitalizing this corridor as well as controlling the land use.

Continuing to work on priority areas listed in the annexation policies that are largely developed and where annexation will occur in small pieces. This includes the northeast islands, Charles Street, the southeast islands along 20th Street, and the unincorporated areas on the west and

southwest. Primary emphasis should be on areas where uneven boundaries act as barriers to balanced growth and areas where there is a lack of economic development activity.

Continue to work with the Four Rivers Sanitation Authority to create joint agreements for any new sewer projects in which the city participates in.

Develop an annexation agreement boundaries with the Villages of Winnebago and New Milford, and the City of Belvidere.

Prevent new development on private well and septic systems within the Ultimate Annexation Boundary.

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Founders Landing - Building Demolition for Redesign and Makeover of Davis Park

Annexation History for the City of Rockford

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Legend

Rockford Annexations

AnnexYear

• Prior to 1925
• 1925-1929
• 1930-1939
• 1940-1949
• 1950-1959
• 1960-1969
• 1970-1979
• 1980-1989
• 1990-1999
• 2000- 2009
• 2010-2019
• 2020- 2022

Map Prepared By: City of Rockford Construction and Development Services Community Development Department Darius Morrow Last Update: May 2022

THE CITY OF ROCKFORD ILLINOIS, USA

Land Use Planning | 19

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THE DATA PROVIDED IN THIS MAP IS FOR INFORMATIONAL PURPOSES ONLY AND THE CITY OF ROCKFORD, ITS PARTNERS, AND AFFILIATES (COR) ASSUMES NO LEGAL RESPONSIBILITY FOR THE INFORMATION CONTAINED IN THIS DATA. THE BURDEN FOR DETERMINING FITNESS FOR THE USE OF THIS INFORMATION RESTS SOLELY UPON THE USER. COR ASSUMES NO LIABILITY FOR THE ACCURACY OF THE DATA OR RESPONSIBILITY FOR DIRECT, INDIRECT, SPECIAL, CONSEQUENTIAL, EXEMPLARY OR OTHER DAMAGES.

THE CITY OF ROCKFORD ILLINOIS USA

City of Rockford Ultimate Planning Boundary 2022

Map Produced: March 2022

Land Use Planning | 20

Current Zoning

Map Designations The current zoning map provides several categories for residential, commercial, and industrial areas for a total of 12 zoning districts. To aid in the proper use and interpretation of the map, the following definitions for each district are provided.

Residential Districts Rockford’s residential “R” zoning districts are intended to create, maintain, and promote a variety of housing opportunities for individual households. It has been established to maintain the desired physical character of existing neighborhoods and develop areas consistent with the city’s official comprehensive plan. These regulations are intended to ensure that permitted and special uses are compatible within each district. Additionally, these zones are intended to maintain and protect residential property values and promote peace, quiet, and enjoyment in the city’s residential areas by requiring setbacks and open spaces on the same lot as the residential development.

While these districts primarily accommodate residential use types, some non-residential uses may be allowed within residentially designated zones. For instance you may find small home businesses such as daycare, small engine repair and services, and tax professionals. However, these uses must not disrupt a neighborhood with excess traffic, noise or smell, and must apply for and acquire the special use permit for operation of a non-housing use in order to operate within a residential zone.

• R-E Rural Estate
• R-1 Single-Family
• R-2 Two-Family
• R-3 Multifamily Residential
• R-4 Multifamily Residential

⬚ figure Single-Family Residential Home

⬚ figure Two-Family Residential Home

⬚ figure Multi-family Residential Home

Commercial Districts Commercial (C) districts are intended to accommodate retail, service, and commercial uses and to ensure that business and commercially zoned areas are compatible with the character of existing neighborhoods.

• (C-1) - Limited Office District: The Limited Office (C-1) district is intended to accommodate low-intensity office development in close proximity to residential uses and to serve as a buffer between established commercial uses and residential neighborhoods. The C-1 district is also intended to allow the conversion of structures built for residential purposes to be converted to limited office use as a means to preserve these structures as well as permits limited business service uses in addition to offices provided, such services are low traffic generators. The C-1 district does not permit outdoor storage, outdoor sales, or outdoor displays.

• (C-2) - Limited Commercial: The purpose of the Limited Commercial (C-2) district is to provide a wide range of development options for the retail sale of goods and for professional and commercial services. This district limits certain commercial uses that may cause undue traffic congestion or uses that may have detrimental impacts on neighboring properties. Like C-1, the C-2 district does

not permit outdoor storage and outdoor sales. Displays are allowed but limited to private sidewalks that abut the principal structure and areas adjacent to the main customer entrance.

• (C-3) - General Commercial: The primary purpose of the General Commercial (C-3) district is to accommodate a very broad range of business, service, and commercial uses. In terms of allowed uses, C-3 represents the highest intensity business or commercial zoning district. It allows nearly any type of business, service, or commercial use, including those involving outdoor operations and storage. Like the C-2 district, the C-3 district, development will generally be destination-oriented; a very large percentage of customers will arrive by automobile. The C-3 district is distinguished from C-2 district by the range of use types allowed, such as permitting more intensive, more auto-oriented commercial use types than does C-2. The C-3 district is intended to be applied to large sites that have primary access to major thoroughfares.

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Commercial Redevelopment

• (C-4) - Urban Mixed-Use District: The primary purpose of the Urban Mixed Use (C-4) district is to maintain and promote a compact, pedestrian-oriented, mixed-use district with a diverse mix of residential, office, business, government, cultural, and entertainment uses; promote a walkable environment by protecting those streets with “intact” street walls; encourage residential living environments that provide a broad range of housing types such as lofts, town homes, and condominiums; promote these districts as viable and vital residential areas by permitting residential uses in a wide variety of densities and locations; and promote the continued use and/or redevelopment of historically significant buildings and older buildings that contribute to the character of these districts. In terms of allowed uses, C-4 allows nearly any type of business, service, or commercial use, including those involving outdoor operations and storage.

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Downtown Central Business District - E. State Street

Industrial Districts

Industrial districts (I) are intended to accommodate manufacturing, shipping and warehousing, distribution, wholesale, and other industrial uses within the City of Rockford. The district regulations are intended to: promote the economic viability of manufacturing and industrial uses, encourage employment growth, promote the development of high-technology centers, and encourage the expansion of shipping, handling, and air cargo facilities in the vicinity of the Rockford Airport.

• (I-1) - Light Industrial: The primary purpose of the Light Industrial/Business Park (I-1) district is to accommodate low impact manufacturing, wholesaling, warehousing, and distribution activities that occur within enclosed buildings. The district is intended to promote new industrial development within a “park like” environment.

• (I-2) - General Industrial: The primary purpose of the General Industrial (I-2) district is to accommodate moderate-impact manufacturing, wholesaling, warehousing and distribution uses, including storage and work-related activities that occur outside of enclosed buildings. The I-2 district is intended to accommodate more land-intensive industrial activities than the I-1 district.

• (I-3) - Airport Industrial: The primary purpose of the Airport Industrial (I-3) district is to accommodate businesses and industry that benefit from locations in close proximity to the Chicago/Rockford International Airport (RFD). This includes shipping and distribution facilities, warehousing, cargo handling facilities, and car and truck rental businesses.

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Zoning Map - Rockford, Illinois

Legend

Map Prepared By: City of Rockford Community and Economic Development Dept. Construction and Development Services Darius Morrow Last Update: March 2022

THE CITY OF ROCKFORD ILLINOIS, USA

Land Use Planning | 23

Current Land-Use

While it is difficult to estimate exact trends in land use development, it is expected that a slightly larger percentage of industrial land will be needed to provide the industrial sites of the future, many of which are land consumptive. Historically, prior to the dominance of the automobile for personal transportation, industrial land was probably a higher percentage than it is today, and public/quasi-public a much lower percentage.

Currently Rockford’s land use is made up of primarily residential, industrial, and commercial uses. Residential land use makes up the largest percentage of land (47 percent), ranging from single-family to multi-family residential units. Industrial and commercial uses follow behind residential in percent of total land, as shown below. Historically, residential and commercial uses were more likely mixed, ultimately consuming less land. Today, new residential developments are often built with more spacing between them, and on larger lots. While commercial areas are surrounded by extensive parking areas that are now necessary due the dependence on automobiles to travel for day-to-day activities. Mixed-use land use accounts for just 1 percent of total land. The current zoning map has 12 categories that have been combined into four general land use categories. As current trends in redevelopment occur, we expect to see the percentage of mixed-use development increase, especially in downtown Rockford and along other main corridors into the city.

City of Rockford - GIS Analysis

Future Land-Use

While it is difficult to estimate exact trends in land use, Rockford is expected to see an increase in industrial, commercial and mixed-use land uses, and a decrease in residential-only land uses. As there is an increase in industrial parks in the area, the need for more industrial land uses will increase due to the fact that industrial sites are often land consumptive. In the future, some existing industrial land will either be adapted to new uses or remain vacant, while new industrial developments involved in transportation, distribution, packaging and other related industries will be attracted to the area by the Chicago Rockford Internation Airport, UPS, Amazon Prime, and other similar facilities. The opportunity for brownfield redevelopment becomes more attractive as this occurs.

As Rockford continues to grow in size and land is developed, there will also be a shift towards mixed-use developments to meet future needs of the area. Once cities have built out horizontally, they shift to building vertically to create the best use of the land while also maximizing the tax-base. For example, there may be developments that have ground-floor commercial with residential above, allowing the parcel to reach its maximum potential. Additionally, as older buildings continue to be rehabbed and returned to the market opportunities to recapture abandoned buildings diminishes.

Map Designations

The 2020 Plan map provides for a full spectrum of land uses and of transportation facilities with a total of 43 categories. To aid in proper use and interpretation of these maps, the following definitions for each category are provided.

Residential Categories In addition to strictly residential uses, there are other non-residential uses that are customarily found in neighborhoods and which are allowed in these areas as permitted uses or with a special use permit in Rockford’s Zoning Ordinance. Examples of these could include day care facilities and public schools.

• (RL) - Low-Density Residential: A range of 2-7 dwelling units per acre; could include single-family homes, townhouses, duplexes or any combination of these.

• (RL-C) - Light Residential/Retail
• (RL-CO/O) - Light Residential/Office Overlay

• (RM) - Medium-Density Residential: A range of 5-15 dwelling units per acre; could include single-family homes, duplexes, townhouses, apartments, or any combination of these.

• (RM-CO) - Medium Residential/Office
• (RM-CO/O) - Medium Residential/Office Overlay
• (RM-C) - Medium Residential/Retail

• (RH) - High-Density Residential: More than 15 dwell-

ing units per acre; could include townhouses, garden apartments, multistory apartments, or any combination of these.

• Heavy Residential/Office

Commercial Categories

Commercial land use categories are intended to accommodate retail, office, mixed-use, and other commercial uses.

• (C) - Commercial: Stores selling merchandise; no outside storage. Example: Clothing store.

• (CO/O) - Office Overlay: Office development in existing buildings, including those built as single-family homes, where those buildings have historic value. Office use would only be allowed if placed in the existing building.

• (C-CO) - Commercial/Office

• (C-CR) - Commercial/Recreation-Office-Tourism

• (CR) - Recreation/Entertainment/Tourist: Establishments catering to tourist, convention, and local markets. Examples: Motels and restaurants.

• (CO) - Office: Concentrations of office space. Examples: real estate office, medical office.

• (CO-CR) - Office/Recreation-Entertainment-Tourism

• (CH) - Heavy Commercial: Activities requiring a large land area but with low traffic volume; may include substantial outdoor storage. Examples: car dealer, lumber yard.

• (CH-IL) - Heavy Commercial/Light Industry

• (CH-RL) Heavy Commercial/Light Residential

• (CD) - Commercial Mixed Use: Allows a mixture of retail and office commercial with residential uses; roughly equivalent to the C-4 District in the Zoning Ordinance. Example: Mixed use buildings on Broadway and on 7th Street.

• (CBD) - Central Business District: Rockford’s downtown, also known as the River District; includes a broad range of commercial and residential uses.

Industrial Categories

Industrial land use categories are intended to accommodate various degrees of industrial uses ranging from light to heavy as well as technology-based employment centers.

• (IL) - Light Industry: Office/research parks; small, clean manufacturing plants; and other industrial-type uses that would not negatively impact adjacent residential areas.

• (IL-CO) - Light Industry/Office

• (IL-C) - Light Industry/Retail

• (T-C-IL) - Tech Industry/Retail/Light Industry

• (T) - Tech Industry: Technology-based employment centers; environmentally clean operations; no outdoor storage.

• (T-IL) - Tech Industry/Light Industry

• (T-CO) - Tech Industry/Office

• (T-C-CO) Tech Industry/Retail/Office

• (IG) - General Industry: Most manufacturing and processing operations, including large plants and warehouses; and uses generating large amounts of truck, rail, or auto traffic.

• (IG-C) - General Industry/Retail

• (IG-CD) - General Industry/Mixed-Use

• (IH) - Heavy Industry: Potentially hazardous or noxious uses that should be kept separate from nonindustrial activities.

Public/Quasi-Public Categories

Public/Quasi-Public land use categories are used to accommodate existing and future public spaces as well as areas that are not suitable for development at this time.

• (PE) - Existing (Quasi) Public Facility: All existing parks, forest preserves, public schools, colleges, country clubs, public buildings, and country clubs; other properties open to the public, such as churches, that are on large lots (minimum of 5 acres).
• (PE-CD) - Existing Public Facility Overlay Mixed Use

Other Land-Use Categories

• (CD) – Mixed Use: The primary purpose of the Urban Mixed Use district is to maintain and promote a compact, pedestrian-oriented, mixed-use district with a diverse mix of residential, office, business, government, cultural, and entertainment uses; promote a walkable environment by protecting those streets with “intact” street walls; encourage residential living environments that provide a broad range of housing types such as lofts, town homes, and condominiums; promote these districts as viable and vital residential areas by permitting residential uses in a wide variety of densities and locations; and promote the continued use and/or redevelopment of historically significant buildings and older buildings that contribute to the character of these districts.

• (IG-CD) - General Industry/Mixed-Use

• (CR) - Recreation-Entertainment-Tourism

• (PA) - Priority Park Acquisition Area: Sites suitable for parks or public open space which have a high priority for acquisition by the year 2020 by the Rockford Park District or the Winnebago County Forest Preserve District; environmental elements such as existing tree lines in rural or undeveloped areas that should be protected when development does occur.

• (U) - Area Not Suitable for Development: Major wetlands, floodways and/or forested areas generally not suitable for development but may be suitable for long-term open space use or agriculture.

• (U-PA) Unsuitable Area/Priority Park Acquisition

• (FUD) - Future Urban Development: Areas that are unlikely to have access to sanitary sewer by 2020, but would be suitable for urban development at some point in the future, are designated as Future Urban Development areas. The intent is to not allow non-urban development, i.e., development on private wells and/or septic systems, to occur before sewers can be installed.

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2020 Comprehensive Plan - Rockford, Illinois

Legend

City Overview

Map Prepared By: Community & Economic Development Department

THE CITY OF ROCKFORD ILLINOIS, USA

Land Use Planning | 27

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2020 Comprehensive Plan - Land-Use (SIMPLIFIED)

Rockford, Illinois

Land Use Planning | 28

Goals Objectives and Implementation Strategies

LAND USE PLANNING

Reduce surplus of city-owned parcels and structures and return publicly owned vacant parcels to taxable status

Promote targeted infill development

Preserve and enhance natural and environmentally sensitive areas

Identify high risk areas for mitigation

Support regulations to improve on site stormwater management and reduce flooding damage

Municipal boundary expansion and annexation agreements

Find new tools for development of Residential, Commercial, and Industrial properties

Chapter Endnotes

i        https://en.wikipedia.org/wiki/Land-use_planning

ii       https://rockfordil.gov/wp-content/uploads/2016/11/Subdivision-Ordinance-2016.pdf

iii      https://rockfordil.gov/wp-content/uploads/2021/03/Zoning-Ordinance-Amendments-Approved-03312021.pdf

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TRANSPORTATION & MOBILITY

Introduction & Background

The city's leaders realize the importance of constructing efficient, equitable, safe, and multi-modal transportation networks that minimize impacts to the natural environment, while reinforcing the livability principals of each neighborhood. Transportation networks are meant to guide future growth through the development of the regions roads, corridors, and highways for both motorized and non-motorized transportation options that include public transit, personal vehicles, bicycles, and pedestrian networks to name a few. Forward-thinking investment in our transportation systems now will improve overall accessibility, equity, and sustainability for future growth priorities. These investments improve a business' ability to provide its goods and services to our region's residents and visitors through improved market access, and reduced costs to enter the marketplace. Additionally, transportation investments improve people's access to education, employment, healthcare, and other needed services while reducing the costs associated with driving, including travel time, vehicle operating costs, and road and parking facility costs. How we invest in the region's transportation system now will have a deep and long-term effect on our community's health and success moving forward.

Capital Improvement Plan (CIP)

The Capital Improvements Program (CIP) is the comprehensive program of infrastructure investment operated by the city. The program's mission continues to be the advancement of enhancing public safety, maintaining and improving the movement of commerce and economic activity throughout the city, and promoting a sense of well-being for the community as a whole. Areas of emphasis that are apparent in this program include the programming of regular maintenance activities to economically prolong the life of our infrastructure, targeted repairs to our highway structure, improvements to our stormwater system, continued investment into neighborhood and arterial street programs, and the enhancement of our city-wide pedestrian and bicycle accommodations.

The CIP is the city's primary planning document that guides how the city spends revenue from a one-cent city infrastructure sales tax and from motor fuel taxes while leveraging state and federal investment in city transportation and infrastructure. in February 2021, voters agreed to extend the infrastructure sales tax another five years. Since 2008, it has been utilized to eliminate borrowing, resulting in saving millions in interest while paying for road and infrastructure repairs and improvements.¹

The CIP should be viewed as a financial blueprint that helps prioritize needs to achieve implementation of the public improvements identified in the comprehensive plan. The level of funding in the CIP defines the financial capacity to reach the desired goals set forth.

Local Governments should make capital project investment decisions that are aligned with the Comprehensive Plan and any other relevant adopted planning documents. A list of potential projects for inclusion in the CIP come from a variety of sources but generally include department requests, plans for facility construction requests,

citizen requests, long-term capital replacement programs, neighborhood plans and projects for which grants may be available, and at the request of elected officials as well.¹ The City of Rockford CIP is voted on and adopted by City Council. In November 2021, Rockford City Council approved the city’s largest capital improvement plan in its history. The five year (2022-2026) CIP calls for a $248 million dollar investment in the regions roads, active transportation facilities, storm sewer and drainage facilities, and bridge and water system repairs and improvements. It paid for 200 blocks of neighborhood streets to be paved in 2022 alone and invested more than $4 million into the replacement of lead water service lines. Additionally, all remaining bridges with weight restrictions will be repaired or removed.

Roadway Functional Classification

For planning and design purposes, roadways are often delineated by the role they play in the overall network. This delineation, known as functional classification, serves as a significant determination in terms of roadway design, including speed, capacity, and relationship to other roadway classes, and existing and future land use development. Additionally, a roadways functional classification can determine its eligibility for funding under the Federal-Aid Program. Federal-Aid eligible roadways include Interstate, Arterials, and Collectors.² Roadways are classified according to two main functions: mobility and access. These two functions lie at opposite ends of the spectrum; most roads are a combination of both. Higher speeds and fewer intersections are preferred for mobility, while lower speeds and more frequent intersections support access to business, homes, etc.

The functional classification hierarchy below is listed in order from largest roadway capacity, and highest operating speeds to lowest capacity, speed, and increased access. Larger roadways provide the highest level of mobility, local roads provide very high levels of land access, and collectors have a balanced combination of both.

<u>Descriptions and examples of classifications are provided below:</u>

<u>Interstates:</u> the highest classification of arterial highways. These roadways are designed and constructed with mobility, long-distance travel, higher-speeds, and high volumes in mind. Interstates access is limited to on- and off-ramps. Rockford is served by two interstates: I-90 and I-39.

Freeways & Expressways: look very similar to interstates, with directional travel lanes, usually separated by some type of physical barrier, and their access is limited to on- and off-ramp locations or a very limited number of at-grade intersections. They can be fully or partially access controlled, have high traffic volumes and usually serve longer regional and intra-urban trips, such as US-20.

Other Principal Arterial: generally serve major centers of metropolitan areas while providing a high degree of mobility. They may also provide mobility through rural areas. Other principal arterials can range from limited access highways to semi-limited roadways that carry high volumes of traffic and are typically used for long trips within the region, as well as connect into statewide or nationwide networks. Access along these types of roadways usually consists of at-grade intersections and a limited number of options to directly access properties along them. Examples of other principal arterials in the city include State Street, Alpine Road, and Perryville Road.

Minor Arterial: provide for high-speed or high-volume traffic, but are typically under local jurisdiction. Minor arterials often form boundaries around recognized “neighborhoods” and collect traffic from collector streets. Minor arterials provide more land access than principal arterials without penetrating identifiable neighborhoods. Some of Rockford’s minor arterials include Guilford Road, Auburn Street, and North Rockton Avenue.

Major & Minor Collectors Collectors gather traffic from local roads and funnel it to the arterial network. Collectors serve primarily intra-county travel and typical travel distances are shorter than on arterial routes. Collectors are broken down into two categories:

Major Collectors: serve both land access and traffic circulation in higher density residential and commercial/industrial areas, such as Harlem Boulevard and Rural Street. Major collectors are generally longer in length, have lower driveway densities, have higher speed limits, cross streets spaced at greater intervals, have higher traffic volumes, and may have more travel lanes then their minor collector counterparts.

Minor collectors: serve both land access and traffic circulation in lower density residential, commercial and industrial areas, such as Mulberry or Summit Street.

Local Roads: or streets, are those not classified above. Local roads and streets account for the largest percentage

of all roadways in terms of mileage. They allow direct access to homes, businesses, and adjacent lands. However, through-traffic is generally discouraged from using these streets, although such traffic does occur when arterials or collectors become congested or blocked. Traffic control devices, such as stop signs, are sometimes used to discourage through traffic and help maintain slower speeds. Local streets may be able to accommodate traffic volumes close to that of collectors but volumes in excess of 400 vehicles per hour can be disruptive, especially in residential areas.¹

Roadway Systems

In addition to classifying roadways based on the function, many highways and roadways have been designated as part of a larger highway system to highlight the importance at a regional, state or national level, and to provide the proper funding mechanisms to maintain and reconstruct them. This is essential to support the transportation needs of our economy through the movement of goods.

National Highway System

The National Highway System (NHS) is a network of strategic roadways important to the nation’s economy, defense, and mobility. The NHS was developed by the U.S. Department of Transportation in coordination with the states, local officials, and Metropolitan Planning Organizations (MPO).² The NHS includes the following subsystems of roadways:

Interstate: The Eisenhower Interstate system of highways retains it separate identity within the NHS;

Other Principal Arterials: These highways provide access between an arterial and a major port, airport, public transportation facility, or other inter-modal transportation facility;

Strategic Highway Network (STRAHNET): This is a network of highways which are important to the United States’ strategic defense policy and which provide defense access, continuity, and emergency capabilities for defense purposes. These highways provide access between major military installations and highways which are part of the Strategic Highway Network; and

Inter-modal Connectors: These highways provide access between major inter-modal facilities and the other four subsystems making up the NHS.

Within the city limits, there is approximately 90.8 center-line miles of roadways designated as a part of the NHS.

As a part of the NHS, these roadways must follow federal guidance on design elements, state and federal oversight procedures, and national performance measures. However, these roadway segments are also eligible for a variety of federal and state funding opportunities due to their importance.

Jurisdictional Roadway Authority

Jurisdiction is the authority and obligation to administer, control, construct, maintain, and operate a highway, according to the Illinois Highway Code. Jurisdictional responsibility within the city falls under five agencies: Illinois Department of Transportation (IDOT); Illinois State Toll Highway Authority (ISTHA), also known as the Illinois Tollway; Winnebago County Highway Department, the City of Rockford, or Township. As shown in the figure below, the majority of roadways within the city fall under the jurisdiction of IDOT or the city.

⬚ figure

State Highway System

The Illinois State highway system consists of all highways under the jurisdiction of IDOT, including all interstates, other marked state and U.S. Routes, and some unmarked routes. Within the city, there are approximately 21.5 centerline miles of marked state routes and 21 miles of interstates and freeways.

Municipal Street System

The City of Rockford is responsible for over 734 miles of roadways, ranging from other principal arterials to neighborhood level local streets. The city installs and maintains approximately 260 traffic signals, and 131 bridges and box culverts. Essentially, the municipal street system consists of existing and future streets within the municipal limits that are not a part of the state or county highway systems.[^p43-vi] The streets and alleys, including bridges and other structures, which are or will become part of this municipal street system may be laid out, established, construct-

ed, reconstructed, altered, widened, relocated, improved, maintained, repaired, and vacated by the City of Rockford through various processes.

System Capacity & Roadway Design Standards

Street projects often times do not exist as standalone projects. Sometimes, the scope of work includes various or multiple components that are not always related. For example, coupling a roadway resurfacing project with a water main replacement could happen. They have the potential for significant impacts, good and bad, on adjacent land uses. This has led to the use of what has been termed context-sensitive solutions (CSS) in some areas. CSS involves taking into consideration the land use and environment next to a roadway that is being planned or designed. Designers make decisions based on the impact of the roadway on the community, not just on geometrics and other engineering considerations. The ultimate goal of this approach is to find ways to meet the needs of motorists while at the same time addressing the concerns of the community that the road passes through.

System Capacity

New roadways and major roadway capacity improvements are a result of one of three reasons: to reduce or contain existing traffic congestion, to accommodate new development in order to avoid creating congestion, or to complete a missing link in an existing street or highway network. Capacity is the maximum sustainable hourly flow rate at which vehicles can reasonably be expected to travel a section of roadway during a given time period. Volume on the other hand is the total number of vehicles or other roadway users that pass over a given point, section, or roadway during a given time.

The need for capacity improvements can be identified through the following roadway performance measures defined below:

Level of Service (LOS): This measure characterizes the operating conditions on a roadway in terms of performance measures related to speed and travel time, freedom to maneuver, traffic interruptions, and comfort and convenience.¹ The higher the level of service, the more ease at which traffic is able to flow.

Volume-to-Capacity (V/C): To determine the efficiency of a road, the volume of the road can be used in conjunction with the design and engineering characteristics of a road (capacity) in order to determine how efficiently vehicular traffic flows.²

Operating Speeds: Operating speeds are the speeds at which vehicles are observed operating during normal conditions, and are usually reported as an average.³

Roadway Design Standards

All streets are not designed the same on purpose, of course. Streets may vary by type and intensity of the adjacent land use, number of travel lanes, width of existing right-of-way, posted speed limits, traffic volumes, and characteristics such as topography and soil types. The city recognizes that streets and roads need to be viewed within the context of their surroundings when being designed. The design solutions for transportation networks need to be flexible and innovative, while balancing the needs of public roadway users with those of freight logistics and business users. The City of Rockford follows the latest accepted or adopted design standards available including but not limited to:

• Rockford Engineering Design Criteria Manual;
• Illinois Department of Transportation (IDOT);
• Institute of Transportation Engineers (ITE);
• Federal Highway Administration (FHWA);
• American Association of State Highways and Transportation Officials (AASHTO);
• National Association of City Transportation Officials (NACTO);
• American Planning Association (APA);
• American with Disabilities Act (ADA);
• Public Right-of-Way Accessibility Guidelines (PROW AG); and
• Active Transportation Alliance.

Complete Streets Policy

Knowing the importance of context and the needs of all roadway users, the city adopted a Complete Streets Policy in 2017. According to this policy, complete streets are “streets that are designed and operated to enable access for all users, in that motorists, freight providers, pedestrians, bicyclists, users of public transportation, users of all ages and abilities (including children, the elderly and the disabled), emergency responders and adjacent land users are accommodated and are able to safely move along and across a street.” This policy highlights the city’s need to develop a safe, efficient, accessible, and integrated multi-modal transportation network that balances the need and desire for access, mobility, economic development and aesthetics, while providing for the health and well-being for people of all ages and abilities.

Under the Complete Streets Policy, the city will approach every transportation project, and transportation-relat-