SECTION 4 --- HISTORIC PRESERVATION

“Why preserve - It is reasonable to ask, "Why preserve?" when faced with the decision of what to do Completed surveys: with an older property. The thought of starting fresh when faced with the problems of an older home or building is attractive in our modern society. The downside of this tendency, however, is that we
Illinois Historic Structures Survey – 1972 (Interim Report 1972) lose part of our history every time we raze an old building. Without older structures that reflect the
Illinois Historic Landmarks Survey – 1974 (Interim Report 1974) design and cultural aspirations of the past, communities take on a different character; neighborhoods
Gifford Park Neighborhood photographic survey (Elgin Historic District) - 1981 lose their identity; we more easily forget those who went before us. When we preserve and restore
Center City Survey - 1991 our historic resources-buildings, sites, structures, objects, and landscapes-we gain a lot: We
Near West Side - 1995 maintain our community's appearance and character, which gives it an identity and a personality all
Laurel-Stella Area - 1995 its own. We give future generations a glimpse of the architecture of their past. We save the artistic
Michigan Triangle - 1995 workmanship so evident in older structures. We "recycle" structures into other uses.”
Spring-Douglas Corridor – 1995 (Spring-Douglas Historic District) Illinois Historic Preservation Agency (IHPA)
Northeast Neighborhood - 1997
Southeast Neighborhood – 1998 (Elgin National Watch Historic District) The creation of the preservation movement in the country was a reaction to the pace and scale of change that
Lord's Park Neighborhood - 2000 has occurred over the past half century. During this period of growth, the single most influential factor that drove
Ryerson Park/Southwest Neighborhood Part 1 – 2002 development was the creation of the continental freeway system that superimposed itself on cities, towns and open spaces. The system of freeways was followed by new suburban development which, in turn, altered Proposed future surveys: patterns of housing and commercial development. Downtowns were torn down in the name of urban renewal, and replaced by oceans of asphalt to accommodate the automobile, and then occupied by remote and
Northwest Neighborhood Part 1 unfamiliar buildings that ignored the context that surrounded them.
Northwest Neighborhood Part 2
Shoe Factory Area It was easily recognized that something more than simply blocking development had to be done in order to
Sunset Park preserve the architectural heritage of cities, towns and villages. The intervention of government was necessary.
Midwest Neighborhood Part 1 However, due to the fact that the need for preserving the buildings of the past stemmed from personal passion
Southwest Neighborhood Part 2 to protect the built environment, public support for historic preservation has flowed from the bottom up, making it
Midwest Neighborhood Part 2 a grassroots movement, not just another Government program.
Wing Park Neighborhood
Highland/Larkin Neighborhood This chapter addresses the current state of historic preservation in Elgin and at the National level, and then talks
Midwest Neighborhood Part 3 about implementation of preservation in Elgin through the Design Review process and alternate means such as
Huff Neighborhood Part 1 conservation areas and easements. Also addressed are financial incentives, building codes, accessibility and
Huff Neighborhood Part 2 teardowns.
Original Eastside Neighborhood Part 1
Original Eastside Neighborhood Part 2 Preservation at the Local Level Elgin’s Historic Districts and Landmark Structures Historic preservation in Elgin has been making advances for over twenty years. Efforts were begun in the early 1980s as a grassroots movement by residents of an eastside neighborhood known as the Gifford Park The City of Elgin is committed to protecting and preserving its historic neighborhoods and structures. The Association (GPA). It was generally recognized that the effects of urban renewal of the 1960s had caused the previously described survey work has helped to identify a number of neighborhood areas and structures that are erosion of downtown Elgin which was slowly making its way into the neighborhoods that surrounded it. One of now protected as local and/or national historic districts and landmarks. These neighborhood areas and the methods that was determined to be effective in controlling this wearing away of downtown and its structures are identified on Figure 4.2 Historic Districts and Landmarks . surrounding neighborhoods was to enable the City to identify and protect architecturally significant properties and neighborhoods through the creation of a local landmark ordinance which enabled individual structures to be The Elgin Historic District (designated 1981) designated as landmarks, and groups of structures to be designated as historic districts. The Elgin Historic District contains part of the original plat of Elgin which was laid out in 1842 by James Gifford. To implement the process of identification of structures that had the potential to be designated as individual Land within the district was completely platted by 1859 with streets laid out in a modified grid pattern. The Elgin landmarks or historic districts, older established neighborhoods were surveyed and an inventory of structures Historic District contains an excellent collection of late-19th and early 20th century residential architecture. produced. The survey provided the City with information to facilitate the process of landmark designation. The Located to the east of the downtown area, lots were platted as early as the 1840s. Construction within this area following is a list of individual property and neighborhood surveys that have been carried out to date, with plans was limited until after the Civil War. Many of the dwellings were erected during the boom years of the 1880s and to continue surveying Elgin’s older established neighborhoods in the future. The locations of the completed and 1890s when Elgin prospered as a result of the growth of the Elgin National Watch Company. Between 1879 and future survey areas are shown on Figure 4.1 Survey & Inventory of Older Established Neighborhoods . 1891, this company grew from 840 to more than 3,000 employees. Many of the company's foremen and managers built large two-story frame dwellings along the streets in the neighborhood. By 1892, more than 400 buildings had been constructed within the present boundaries of the historic district.

Section 4 -Historic Preservation Page 1 In addition to the homes for the city's middle and upper class residents, the district was also the home to many The district continued to develop in the early 20th century and many fine Colonial Revival and Prairie style of the factory workers and their families. A number of multi-family brick apartment buildings or "flats" were dwellings were built in the years just before and after World War I. Both streets were largely developed by 1930 constructed in the district in the 1880s and 1890s. Most of these were built along East Chicago Street and other and only a few buildings were constructed after this period. The Spring/Douglas Historic District streets in the western section of the district. These brick buildings are illustrative of the rapidly urbanizing continues to contain some of Elgin's finest historic architecture and it remains an attractive residential section of character of Elgin at the turn of the century. the city. The significance of this area was recognized in 2000 when it was listed on the National Register of Historic Places. The west section of the historic district also became the home of several of the city's most prominent churches. At the northwest corner of Gifford and Fulton Street is St. Mary's Church constructed between 1896 and 1899 in The Elgin National Watch Historic District (designated 1997) the Gothic Revival style. When it was built, this was the most costly church constructed in Elgin. Another prominent church in the district is the Universalist Church at the southeast corner of Villa and DuPage Streets. Just south of Elgin's downtown is the section of town most closely associated with the Elgin National Watch This brick church was completed in 1892 and was designed to resemble, from above, a pocket watch enclosed Company. The company, established in 1864, built its factory on a 35 acre site on the east bank of the Fox River in a case. This church was listed on the National Register in 1980. just south of downtown. Housing for watch factory workers was provided through land purchased by the company for the construction of cottages, and through the construction of National House, a boarding house for Gifford Park is the city's first public park and it was laid out by James Gifford in his 1844 addition. The park was single workers. At its peak in 1919, it contained 350 rooms. The structure was unfortunately demolished in 1932. later enlarged in the 1850s. The park has been an amenity in the district since the mid-19th century and it was re-landscaped and equipped in a traditional design in the late 1990s. With the doubling of the company by 1880, many new houses were constructed around the factory by employees of the company. Most of these were simple vernacular house types such as Gable Front cottages, In the early 1850s the dream of building a school became a reality as a board of trustees laid the foundations for Gable Ells, or Upright and Wings. Of the high style buildings found in the district, most were Italianate in style an academy in 1848. This building was completed in 1855-56 and came to be known as "Old Main." The three- with some Greek Revival and Second Empire style buildings present as well. Construction reached its peak story brick building was designed in the Greek Revival style with a large portico on the primary facade and a bell during the prosperous years of the company in 1920, during which time many newer structures were built. tower at the roof line. The building was damaged by fire in 1911 and the upper floor rebuilt. The building was used as a school until 1969 and in 1976 a fund drive to restore the building was initiated. Much of the building's Notable structure within the district were the Watch Company Observatory, which set the time for clocks and original appearance was restored including the original roof form and bell tower. In 1987, the building opened as watches by the stars, the Watch Factory Depot, currently being restored by the City of Elgin, Fire Barn #5, and a museum operated by the Elgin Area Historical Society. the Illinois National Guard Armory.

Although much of the Elgin Historic District was developed by 1900, construction continued well into the early Elgin Landmark Structures 20th century. More modern architectural types such as American Foursquare and Bungalow dwellings were constructed in these years, and by 1930 few vacant lots remained in the area. In recent decades demolition and The City has identified and designated individual landmark structures in addition to the three historic districts for new construction has been limited on most blocks and the district contains a remarkably homogenous collection protection under the ordinance. They are: of 19th and early 20th century dwellings. The significance of this area was recognized in 1983 when it was listed on the National Register of Historic Places. 1. Lord's Park Pavilion - 100 Oakwood Boulevard. (Landmarked 1991) - Dedicated in 1898, this framed pavilion in the park was constructed as a focal point for Lord's Park on the eastern edge of the city. The The Spring-Douglas Historic District (designated 1996) park was a gift from George P. and Mary E. Lord to provide “outdoor enjoyment and recreation” for the residents of Elgin. The building was recently restored and continues to be well maintained by the City of The Spring/Douglas Historic District is located in the north section of Elgin on the east side of the Fox River. The Elgin. district encompasses both sides of Spring Street and Douglas Avenue for a distance of twelve blocks. These two streets run parallel to each other northward from the downtown area. The district terminates north of River 2. Fire Barn No. 5 - 533 St. Charles Street. (Landmarked 1991) - Commissioned in 1904, Elgin's last fire Bluff Road. barn was designed by Smith Hoag in the Classical Revival style. The first floor housed the horses and fire fighting equipment while the second floor housed the firefighters. The building was decommissioned Like much of the city, this historic district developed during Elgin's boom years of the late 19th century. Much of in 1991 and is presently home to the Elgin Fire Museum. this land was platted and subdivided in the 1840s and 1850s and the earliest remaining dwellings in the district date to just before the Civil War. The growth of the city's dairy industry and the establishment of the Elgin 3. Lord Memorial Museum - 225 Grand Boulevard. (Landmarked 1992) - Designed by D. E. Postle in the National Watch Company resulted in a dramatic increase in Elgin's population towards the end of the century. Neo-classical style, the museum was built in 1907. The museum is located in Lord's Park and was the Housing construction moved northward from the downtown area and by 1890 an electric streetcar line ran up final gift of George P. and Mary E. Lord to the people of Elgin. The museum finally had its east wing Douglas Avenue. Dozens of homes were built on these two streets which reflected the popular national completed to match the west wing in 2000. architectural trends of the period including the Queen Anne and related styles. 4. Elgin National Watch Company Observatory - 312 Watch Street. (Landmarked 1992) - Built in 1910, the Douglas Avenue was called "Elgin's Fashionable Avenue" by a local newspaper in 1884 and it was home to observatory's purpose was to record and transmit precise time from the movement of the stars to the many of the city's leading citizens. Numerous large dwellings were also built on Spring Street and this section of Elgin National Watch Factory. the city was one of the preferred residential areas of the turn of the century. In addition to the residential construction, Sherman Hospital was built just east of Spring Street during the 1890s. This hospital complex 5. Fire Barn No. 3 - 820 Dundee Avenue. (Landmarked 1992) - Built for horse-drawn apparatus in 1896, greatly expanded thereafter, and today is an important institutional landmark adjacent to the district. this fire barn was designed by Elgin architect, Smith Hoag. Hoag was the architect for other fire barns in

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7. The Professional Building - 164 Division Street. (Landmarked 1998) - Completed in 1928, this Gothic Preservation at the Regional Level – Kane County Style building was designed as offices for doctors, lawyers, insurance agencies, and dentists. The interior contains a very ornate lobby with arcade designed in the Gothic Revival Style. The eighth floor was originally occupied by the Union League Club, which maintained a luxurious dining facility and huge With the pressures of new development increasing in the County, a preservation program was initiated in 1989 fireplace. to preserve the historic character of the County’s unique communities with the protection of its historic resources. The tools used by the County to achieve its goals for preservation are: 8. The Elgin Tower Building - 100 East Chicago Street. (Landmarked 1998) - Completed in 1929 by the St. 1. the 2030 Land Resource Management Plan Louis Bank Building & Equipment Company, this 15 story 186 foot Art Deco building was designed to 2. Rural Structures Survey house Home National Bank & Home Trust and Savings Bank. Gray granite and Bedford Indiana 3. Preservation Plan and Register of Historic Places limestone are used on the exterior surfaces. 4. the Rustic Road Ordinance

9. The Ora Pelton Residence - 214 South State Street. (Landmarked 1998) - Built in 1889, the house is an The County currently has 30 designated historic landmarks, one rustic road and one historic district. Of these, excellent unaltered representation of high Victorian detailing and form. The residence was designed by two designated historic landmarks lie within the boundaries of the Comprehensive Planning area. They are: renowned architect and builder, Gilbert M. Turnbull. The carriage house in the rear, built in 1890, is also 1. Old St. Peter’s Church Building on Rt. 47 at Plank Road an essentially unaltered significant structure. 2. Hinds Farmstead on Damisch Road at Big Timer Road

10. Lovell House - 600 Margaret Place (Landmarked 2001) - Constructed in 1886 by local builder Henry Kane County facilitates the preservation of landmarks through intergovernmental agreements, technical Jensen, the Stick Style home with Eastlake characteristics was originally owned by Vincent Smith Lovell, assistance in establishing programs in communities without preservation tools and help to strengthen municipal former mayor of Elgin (1887-1889). ordinances.

11. The Charles & Louisa Busche Home – 616 Park Street (Landmarked 2003) - Designed by two of Elgin’s The Kane County Rustic Roads Program was established under the preservation ordinance to designate and notable architects, Gilbert M. Turnbull and David E. Postle, the Queen Anne Free Classic Style home preserve natural character and scenic vistas for future generations. The program encourages the development was constructed in 1892 by local builder Charles Giertz. of a Corridor Management Plan along a designated route which defines and protects the significant scenic, natural and historic features that should be protected and enhanced. The program promotes 12. The Thomas P. & Emma Matters Estate – 636 Park Street (Landmarked 2003) - Constructed in 1903, the Queen Anne Free Classic Style home was originally owned by Thomas P. Matters, the proprietor of Preservation at the National Level the Matters Tubular Well Company. The earliest efforts of the federal government to legitimize and legally recognize historic preservation was 13. The Alexander & Margaret McTavish House – 650 Park Street - (Landmarked 2003) Constructed in through the passage of the National Historic Preservation Act of 1966. With passage of the Act, Congress made 1922, the Colonial Revival Style home was originally owned by Alexander McTavish, a local carpenter the federal government a full partner and a leader in historic preservation. While Congress recognized that and contractor for Steven Smith who built many of the homes in the Lord’s Park Neighborhood. national goals for historic preservation could best be achieved by supporting the drive, enthusiasm, and wishes of local citizens and communities, it understood that the federal government must set an example through The Elgin Heritage Commission enlightened policies and practices. In the words of the Act, the federal government's role would be to "provide leadership" for preservation, "contribute to" and "give maximum encouragement" to preservation, and "foster The authority to identify properties and recommend them for designation is provided to the Elgin Heritage conditions under which our modern society and our prehistoric and historic resources can exist in productive Commission. The Elgin Heritage Commission is a citizens advisory board made up of nine members including harmony." An underlying motivation in passage of the Act was to transform the federal government from an an architect, a historian, a real estate agent, a representative of the local historical society appointed by the city agency of indifference, frequently responsible for needless loss of historic resources, to a facilitator, an agency council, and interested citizens as available. The Commission was created in 1984 with a broad range of duties of thoughtful change, and a responsible steward for future generations. and responsibilities including the "promotion and education of property owners, local government agencies and the public at large regarding the protection, maintenance, and preservation of Elgin's architectural, historic and However, in order to ensure that the preservation ethic extended throughout all federal agencies, two resultant cultural resources..." The Commission has an advisory role in matters pertaining to historic building surveys, institutions of the Act were important to this implementation. nominations to the National Register, and other preservation planning efforts.
An Advisory Council on Historic Preservation, the first and only federal entity created solely to address historic preservation issues, was established as a cabinet-level body of President-appointed citizens, experts in the field, and federal, state, and local government representatives, to ensure that private citizens,

Section 4 - Historic Preservation Page 7 local communities, and other concerned parties would have a means of influencing Federal policy, 9. New additions, exterior alterations, or related new construction shall not destroy historic materials that programs, and decisions as they impacted historic properties and their supporting values. characterize the property. The new work shall be differentiated from the old and shall be compatible with the massing, size, scale, and architectural features to protect the historic integrity of the property and its
Section 106 of the National Historic Preservation Act granted legal status to historic preservation in federal environment. planning, decision making, and project execution. Section 106 required all federal agencies to take into account the effects of their actions on historic properties, and provide the Advisory Council with a 10. New additions and adjacent or related new construction shall be undertaken in such a manner that if reasonable opportunity to comment on those actions and the manner in which federal agencies took historic removed in the future, the essential form and integrity of the historic property and its environment would properties into account in their decisions. be unimpaired.

The National Park Service (NPS), under the jurisdiction of the Secretary of the Interior, was directed to It is these standards on which the general philosophy of historic preservation is based. They have changed the implement the policy developed as a result of the Act. The agency was selected since it was one with the scope of what the philosophy of preservation is – from protection of the occasional monument, shrine or burial longest and most direct experience in studying, managing, and using historic resources. It was understood that it mound securely protected and out of reach to the lay person, to the preservation of objects of everyday life, would provide funding assistance, basic technical knowledge and tools, and a broad national perspective on including homes, neighborhoods, commercial buildings, landscapes, and other structures accessible to all America's heritage. A set of Standards were created to help preserve the distinctive character of historic people. buildings and their sites, while allowing for reasonable changes to meet new needs. In addition to the involvement of the federal government in creating preservation policy, the states, through State Standards for Rehabilitation Historic Preservation Officers (SHPOs) appointed by the governor of each state, were required to provide matching funds, a designated state office, and a statewide preservation program tailored to state and local The Secretary of the Interior’s “Standards for Rehabilitation,” as they are commonly referred to, apply to historic needs and designed to support and promote state and local historic preservation interests and priorities. buildings of all periods, styles, types, materials, and sizes. They apply to both the exterior and the interior of historic buildings. The Standards also encompass related landscape features and the building's site and The National Register of Historic Places environment as well as attached, adjacent, or related new construction. More importantly, they are applied to projects in a reasonable manner, taking into consideration economic and technical feasibility. The Standards are The method used by the federal government to identify and designate properties as historically significant is as follows: through the National Register of Historic Places. The National Register of Historic Places is the Nation's official list of cultural resources worthy of preservation. Authorized under the National Historic Preservation Act of 1966, 1. A property shall be used for its historic purpose or be placed in a new use that requires minimal change the National Register is part of a national program to coordinate and support public and private efforts to identify, to the defining characteristics of the building and its site and environment. evaluate, and protect the country’s historic and archeological resources. Properties listed in the Register include districts, sites, buildings, structures, and objects that are significant in American history, architecture, 2. The historic character of a property shall be retained and preserved. The removal of historic materials or archeology, engineering, and culture. The program is administered by the National Park Service. alteration of features and spaces that characterize a property shall be avoided. The National Register contains approximately 77,000 listings. These comprise mainly of: 3. Each property shall be recognized as a physical record of its time, place, and use. Changes that create a false sense of historical development, such as adding conjectural features or architectural elements
All historic areas in the National Park System; from other buildings, shall not be undertaken.
Over 2,300 National Historic Landmarks, which have been designated by the Secretary of the Interior because of their importance to all Americans; 4. Most properties change over time; those changes that have acquired historic significance in their own
Properties across the country that have been nominated by governments, organizations, and individuals right shall be retained and preserved. because they are significant to the nation, to a state, or to a community. Elgin has a number of properties listed in the National Register. They are listed below: 5. Distinctive features, finishes, and construction techniques or examples of craftsmanship that characterize a historic property shall be preserved. 1. Elgin Academy, 350 Park Street. (listed Oct 08,1976) 2. Gifford-Davidson House, 363-365 Prairie Street (listed May 31,1980) 6. Deteriorated historic features shall be repaired rather than replaced. Where the severity of deterioration 3. First Universalist Church, 55 Villa/263 DuPage Street (listed Nov 07,1980) requires replacement of a distinctive feature, the new feature shall match the old in design, color, 4. Ora Pelton House, 214 S .State Street (listed Aug 12,1982) texture, and other visual qualities and, where possible, materials. Replacement of missing features shall 5. Elgin Historic District, roughly bounded by Villa, Center, Park, N. Liberty, and S. Channing streets (listed be substantiated by documentary, physical, or pictorial evidence. May 09,1983) 6. Elgin Milk Condensing Company / Illinois Condensing Company, Brook and Water Streets (listed Feb 7. Chemical or physical treatments, such as sandblasting, that cause damage to historic materials shall not 14,1985) (Demolished 1998, De-listed 2002) be used. The surface cleaning of structures, if appropriate, shall be undertaken using the gentlest means 7. Fire Barn #5, 533 St. Charles Street (listed Aug 05,1991) possible. 8. Elgin National Watch Company Observatory, 312 Watch Street (listed Aug 16,1994) 9. Teeple Barn, 1715 North Randall Road (listed Dec 10,1979) 8. Significant archeological resources affected by a project shall be protected and preserved. If such 10. Memorial Washington Reformed Presbyterian Church, West Highland Avenue (listed Nov 19,1980) resources must be disturbed, mitigation measures shall be undertaken. 11. Spring-Douglas Historic District, Roughly bounded by Douglas Ave, Spring Street River Bluff Road and Kimball Avenue (listed April 28, 2000)

Section 4 - Historic Preservation Page 8 12. Elgin Tower Building, 100 E Chicago Street (listed May 22, 2002) guidelines to property owners, residents, contractors and others, relating to the type of rehabilitation work and new construction that may be approved by the Elgin Heritage Commission's Design Review Subcommittee in Properties listed in the National Register are distinguished by having been documented and evaluated according locally designated historic districts and to locally designated landmark structures. Additionally, the guidelines are to uniform standards. These criteria recognize the accomplishments of individuals and groups who have intended to be used as a reference source for the rehabilitation of older structures not located within a contributed to the history and heritage of the United States and are designed to help state and local designated historic district. governments, Federal agencies, and others identify important historic and archeological properties worthy of preservation and of consideration in planning and development decisions. The guidelines apply only to the exteriors of properties and are intended to protect the overall character of Elgin's locally designated historic districts as well as the architectural integrity of the district's individual buildings Listing in the National Register contributes to preserving historic properties in a number of ways such as and locally designated landmark structures. The guidelines emphasize maintaining architectural styles, details recognition that a property is of significance to the Nation, the state, or the community, consideration in the and streetscape elements which collectively make up the unique character of the districts. For new construction, planning for federal or federally assisted projects, eligibility for federal tax benefits and qualification for federal the guidelines provide information on how to relate new buildings and their landscape elements to the existing assistance for historic preservation, when funds are available. However, listing in the National Register does not context of buildings and their streetscapes. protect a property from demolition, or impose any regulation on a property or district. The Elgin Design Guidelines are based on the Secretary of the Interior's “Standards for Rehabilitation and Historic preservation, in addition to being a public activity, is also largely a private endeavor and is supported Guidelines for rehabilitating historic buildings.” These federal standards provide a framework for the more through the country by individual citizens, organizations, businesses, communities, elected officials, and public detailed guidelines presented in the locally prepared manual. Elgin’s design guidelines for historic properties institutions in various and varied ways. The National Trust for Historic Preservation, a private organization that state the generally appropriate and inappropriate treatments for rehabilitation work and preserving the was chartered by Congress in 1949, supports and nurtures historic preservation in the private realm. However, it architectural styles, details and streetscape elements which collectively make up the character of the designated is at the local grassroots level – the individual homeowner, the neighborhood group, and the community in districts or structures partnership with the local government – where preservation actually happens. The Design Review Process Implementation of Historic Preservation The design review process in Elgin is binding, which means that it is necessary to be followed by law, rather In many communities, including Elgin, preservation is placed on a lower priority that in spite of its growth in the than be followed voluntarily by the individual property owner. The voluntary citizens commission that is past 20 years, continues to remain in a relatively marginal position. However, preservation groups are not losing appointed by the Elgin City Council to implement the process is the Design Review Subcommittee of the Elgin as often, as education and awareness of the issues become more prevalent. But until preservation occupies a Heritage Commission. The Design Review Subcommittee consists of 7 members – four representatives of the more assured position within local government, preservationists will need to accept compromises of one sort or whole Elgin Heritage Commission, and three representatives of each designated historic district. At the another. Recognition and ultimately acceptance in the main stream will make implementation easier as more recommendation of the Subcommittee, a COA is issued by City staff in addition to the regular building permit. preservationists learn to shed some of their rigidity and emotional attachment to the issues and negotiate more effectively. If an application for a COA is denied, a property owner has the opportunity to appeal the decision of the Design Review Subcommittee to the whole Commission. The whole Commission, in this instance, is charged with either The Design Review Process - Certificate of Appropriateness (COA) upholding the decision of the Design Review Subcommittee, or overturning it based on findings obtained at a public hearing. If the decision of the Design Review Subcommittee is upheld by the whole Commission, the The implementation of the preservation ordinance is carried out through a design review process that is property owner has the option of appealing to the Elgin City Council. performed by the Elgin Heritage Commission's Design Review Subcommittee, following which a Certificate of Appropriateness (COA) is issued. The following is information on the number of COAs issued to individually landmarked properties and those within historic districts between 1995 and 2003: A COA is required when construction, alteration, removal or demolition requiring a building permit is proposed to the exterior of any designated landmark or structure within a historic district, or when any of these changes Year Total COAs Approved by Administratively Total COAs COAs denied affect the character of the significant features of these structures. It is a document issued to ensure that the submitted for the Design approved approved exterior work planned for the building is fitting to its visual and aesthetic characteristics. It is similar to a building review Review permit that ensures the structural soundness and safety of the building. The COA needs to be obtained in Subcommittee addition to the regular building permit. Additional documentation may be necessary to facilitate the review 1995 184 44 140 184 0 process. In most cases, COAs are issued administratively by staff for compliance with the guidelines. In certain 1996 191 33 157 190 1 cases, it is necessary to schedule a site visit with the City staff or submit additional documentation like 1997 352 58 287 345 7 photographs and drawings to better illustrate the proposal. 1998 351 92 234 326 25 1999 321 105 202 307 14 Elgin Design Guideline Manual for Landmark Structures and Historic Districts 2000 346 48 272 320 11 2001 427 310 100 410 17 The design guidelines used by the Design Review Subcommittee in determining whether the work proposed on 2002 397 62 324 386 11 the exterior of a property conforms with the ordinance are contained in the Elgin Design Guideline Manual for 2003 506 59 428 487 19 Individual Landmarks and Historic Districts. The purpose of the manual is to present architectural design

Section 4 - Historic Preservation Page 9 Alternative Means of Resource Protection
To foster appropriate use and wider public knowledge and appreciation of such neighborhoods

Conservation Areas It should be noted that all of these methods of designating areas as conservation areas in Elgin, depending upon the amount of review involved, will always be perceived as “regulation in disguise,” if not properly

promoted. Care needs to be taken to make them appear to be less regulatory in nature, and more policy based, Conservation areas provide a community with the means of achieving preservation at a neighborhood level less burdensome or threatening to the average property owner, and more positive and forward-looking for the without some of the perceived burdens of the traditional historic district regulatory approach. In Elgin, the historic community. At the outset, these areas can be created primarily to organize neighborhood planning efforts and district approach, despite its successful implementation in the past 20 years, has, to a certain extent, been coordinate housing rehabilitation programs. Once established, if some sort of regulation were to be introduced, it perceived as a burden on property owners largely due to the added regulation that is placed upon their could focus on new construction considerations such as building height, scale, placement and setback, and properties. As a result of the added regulation, the requirement of a Certificate of Appropriateness (COA) is materials. Review of demolition permits and the treatment of vacant lots could also be included. construed as an additional step necessary to be followed before new construction, alteration or demolition can commence on the property. In many cases, the review of the COA is carried out by the Design Review A natural starting point is to examine the areas developed prior to 1939 and currently zoned RC2 and RC3, Subcommittee of the Elgin Heritage Commission, which imposes a two week time period on the permit review which comprise mainly of Elgin’s older established neighborhoods (Fig 3). These areas would be eligible for process. And on some occasions, it is the diverse personal philosophies of the individual design review board focus by the City to explore the idea of conservation areas, as opposed to historic district regulation. members that can sometimes create an impression that the review process is arbitrary and capricious.

A recent example of this sentiment was expressed by residents of a neighborhood that voted down efforts to Land Trusts have their neighborhood designated as an historic district largely due to the regulation that accompanied historic designation. During the process, alternative methods of neighborhood revitalization were suggested, one of Historic resources such as buildings, structures, archeological and environmental resources can also be which was the idea of Conservation Areas. protected through land trusts. Non-profit organizations with limited funds can provide long-term stewardship of historic resources by acquiring property or interests in property. Land trusts often work directly with private A conservation area can be defined as one that “possesses form , character, and visual qualities derived from property owners requiring donations of land, development rights and conservation easements. arrangements or combinations of topography, vegetation, space, scenic vistas, architecture, appurtenant features, or places of natural or cultural significance, that create an image of stability, comfort, local identity, and Easements and Restrictive Covenants livable atmosphere. The term “area” is used to make clear that it is not a special kind of zoning or preservation district. Ideally, the designation of a conservation area does not establish any additional regulation over those Individual property owners can chose to protect their significant property through the use of preservation that already exist. It is up to the local government to decide what attributes of the property be reviewed. The easements and covenants. A preservation easement is a legal document by which specific rights held by a types of conservation areas that could potentially be designated are: property owner are donated or sold to a government agency or a non-profit organization. In return, the document provides protection for historically or architecturally significant buildings, parcel of land or natural resources by i. An Architectural Conservation Area can be defined as an area containing any physical features, regulating their alteration and use. The agency holding the easement receives the right to review and comment improvements or both, architecturally and aesthetically significant to the city and cause such an area to on proposals for changes as outlined in the document. The registration of the easement binds subsequent constitute a distinctive section of the city. owners and ensures protection either in perpetuity or for a specified length of time. ii. A Neighborhood Conservation Area is intended to accommodate a unique land use, urban design, and Preservation easements can be designed to provide protection for whatever features of a property are other distinctive characteristic of older established neighborhoods. The concept allows variations in considered important. An exterior or facade easement protects the exterior visible facades of a building and permitted uses and site development regulations that are adapted to the needs of the specific neighborhood. sometimes regulates development on the lot itself. An interior easement, on the other hand, protects valuable interior features. Scenic or open space easements can also be set up to control development of farmland and iii. A Historic (Heritage) Conservation Area is the concept with the most regulatory effect of the three, where archaeological sites. The donation of a preservation easement usually provides the owner with certain tax the designated area requires architectural design review guidelines for the demolition, new construction or advantages, particularly if the property has been listed on the National Register of Historic Places. additions to habitable areas of buildings, structures, and sites. A covenant is simply a binding legal agreement, attached to the property title, which can limit alterations to or In Elgin, the various needs and issues that the designation of a Conservation area would respond to are: use of significant property. A covenant, unlike an easement does not necessarily involve an alteration in property value. A more varied range of regulations on the property can apply, frequently not applicable until a
To protect and stabilize property values within older established neighborhoods. change in ownership occurs. A covenant is very flexible and includes whatever is considered worthy of
To prevent blight caused by insensitive in-fill development protection. Because property value is not affected, no tax advantages are available.
To provide focus for the economic revitalization of the conservation area and its surrounding areas.
To lessen the adverse effects of incompatible uses by preventing new uses that conflict with the existing Financial Incentives for Preservation uses on the block or neighborhood.
To encourage property owners and residents to improve neighborhoods There are a number of financial incentives available in the public sector for property owners contemplating the
To protect desirable and unique physical features of neighborhoods rehabilitation and restoration of historic properties. In most cases, properties are determined to be historic if they
To conserve and protect the beauty and heritage of the older established neighborhoods of the city. are listed in, or eligible for listing in the National Register of Historic Places or designated as local historic
To improve the quality of the city’s environment through the conservation and maintenance of its older landmarks or within historic districts. established neighborhoods which constitute or reflect distinctive features of the architectural, cultural, political, economic, or social history of the city.

Section 4 - Historic Preservation Page 10 Local Incentives It should be noted that these tax relief programs are generally not used statewide. Tax relief is limited to local governmental jurisdictions that have opted to participate in the program. Currently, Elgin has not opted out of The City of Elgin has been fortunate to have the ability to provide financial incentives to owners of residential participating in these programs since the number of properties that have been certified for tax relief is minimal. and commercial properties contemplating the restoration or rehabilitation of their properties. Elgin’s local To date, only 6 properties in Elgin have applied for and have been certified by the Illinois Historic Preservation incentives for property rehabilitation are mostly in the form of capital improvement grants rather than property Agency (IHPA) to participate in the Property Tax Assessment Freeze program. This number is not likely to and income tax relief. The programs that benefit historic properties in Elgin are: increase in the number of years for the reason that the program requires property owners to substantially rehabilitate their homes on the exterior and interior to qualify. However, if the number of participating properties 1. Residential Historic Architectural Rehabilitation Grant Programs - 50/50, 75/25 and Exterior Paint requesting tax relief increases, the City may choose to opt out of the program, due to the potential of a programs . These programs, first initiated in 1995, provide owners of residential property within Elgin’s three considerable loss of revenue. historic districts and individual residential landmarks, grants to complete the exterior restoration of the TEA-21: The Transportation Equity Act for the 21st Century, more commonly referred to as TEA-21, is a federal structures on their properties. These grants are set up to carry out projects that would normally not be financial initiative given to states to apply for all transportation projects. The law authorizes a wide range of financially feasible by a property owner due to the cost and workmanship required on historic properties. The highway, safety, mass transit, and other surface transportation related programs for a period of six years. It programs offer a reimbursement of 50% or 75% of the cost of exterior rehabilitation up to a maximum of followed the same innovative concepts as its predecessor, the “Intermodal Surface Transportation Efficiency Act $10,000 per property, per year. The 75/25 Program is offered only to low to moderate income property (ISTEA) of 1991, at which time Elgin was selected to receive grant to install new historic street lights in the Elgin owners since the benefit is greater. The exterior paint program, a component of the 75/25 Program, offers a Historic District. property owner a $2,500 grant for exterior paint projects, with the remaining being funded at 75%. The program supports transportation spending on a number of transportation-related projects such as bus and Since their inception, the programs have generated an increased interest in restoration of properties within rail lines, bike paths and sidewalks, with a clear emphasis on Intermodal connections and transportation Elgin’s historic districts. To date, approximately 165 properties have participated in these programs. The planning issues. It continues to be an important source of funding for historic preservation projects, since states total participation of the City of Elgin has been around $1.4 million which has generated over $ 2.8 million in are required to set aside 10% of their surface transportation funds for historic preservation, landscaping and private investment in historic districts. scenic beautification. From 1999-2003, approximately $10 million per year had been authorized for research and preservation projects. 2. Commercial Facade Improvement Programs: The Facade Improvement programs, first initiated in 1991, are designed to promote improvements to commercial facades and storefronts in the City’s downtown The third generation of the program known as TEA-3 is currently being debated in Congress for authorization in commercial area. Property owners or business owners within the target area are eligible to apply for grants 2004-2010. Key factors that will determine the implementation of the program are the state of the economy and for work to improve facades of commercial buildings that are visible from a public right-of-way. These grants public support for additional funding. But the original program’s provisions for flexibility, local decision-making, are provided in recognition of the positive impact that individual facade renovations can have on the overall long range planning, fiscally constrained budgeting, and environmental stewardship will continue to be included appearance and quality of their storefronts. Currently there are two programs in place: in the new program to improve the transportation system.

Center City Facade Improvement Program - for commercial properties within Elgin’s center city. The Federal Incentives program offers an incentive of 35 percent of the total cost of improving building facades, up to a maximum of $100,000, with an additional $50,000 provided to high-impact projects. The Federal Rehabilitation Investment Tax Credit: The rehabilitation tax credit offers property owners a


The State & National Street Facade Improvement Program – for commercial properties located on State dollar for dollar credit on their federal income taxes. The credit is based on 20% of rehabilitation expenses. The and National Street. The program offers an incentive of 50 percent of the total cost of improving building building, in addition to being certified as an historic structure, must be commercial or income producing, and the facades, to a maximum of $50,000, with an additional $50,000 provided to high-impact projects. building must be substantially rehabilitated and certified by the National Park Service as conforming to the Secretary of the Interior’s “Standards for Rehabilitation.” The Facade Improvement Programs have been very successful in generating interest in restoring and rehabilitating downtown Elgin’s commercial facades. Since the inception of the program in 1991, 49 properties The 10% Tax Credit: The 10% credit is available for owners of commercial properties that are fifty years or have participated in the program. The total participation of the City has been $1.4 million, generating $3.9 million older, but not listed in the National Register of Historic Places, or identified as significant enough to be listed. in total private investment in commercial properties. The 10% credit does not require the review of the scope of the rehabilitation, and property owners are generally required to obtain their credit directly from the Internal revenue Service (IRS). State Incentives Charitable Donations: The federal government encourages donations of historic properties or parts such as State financial incentives are usually provided in the form of property and/or income tax relief. In Illinois, tax facades to be protected as historic resources, and in turn obtain a tax benefit. Some of the ways in which a relief programs are administered by the Illinois Historic Preservation Agency (IHPA), and provided in one of the property owner can obtain federal tax deductions from taxable income or taxable estates and gifts are: following ways:
Donating historic property to a preservation organization. The National Trust for Historic Preservation
Property Tax Assessment Freeze – where the assessed value of rehabilitated property is frozen at the pre- (NTHP) is one such organization that acquires historic properties throughout the country with the intention of rehabilitation value for a set number of years. preserving them either as museums, or for sale with restrictions that protect the buildings in perpetuity.
Property Tax Abatement – where the tax owed on historic property is “abated” or reduced for a period of
Donating historic property to a non-preservation organization with preservation restrictions already in place. time.
Making a “charitable remainder” gift of historic property to an organization, allowing for the retention of a “life
Property Tax Exemption – where historic property may be completely or partially exempt from taxation, and estate” to allow the immediate family to reside in the house until the death of the donor. is based on the difference between the property’s assessed value before and after rehabilitation.

Section 4 - Historic Preservation Page 11
Donating partial interests in the property known as a preservation or conservation easements. Easements Teardowns are partial restrictions on land for purposes which are very specific to preserving the entire or part of the property such as its significant façade. The Internal Revenue Code offers owners of these properties tax Elgin is currently fortunate to not to be experiencing this phenomenon that is currently affecting other more deductions for donation of a conservation easement to a qualified charitable/non-profit organization. In affluent communities in the region such has Highland Park, Hinsdale, Glen Ellen and Elmhurst. The trend is Illinois, the Landmarks Preservation Council of Illinois (LPCI) serves as the organization that is authorized to wiping out historic neighborhoods one house at a time. As older more modest homes are demolished and receive preservation easements from property owners wishing to protect their properties. The receiving replaced with dramatically larger, out-of-scale new structures, the charm and character of the existing organization is responsible for monitoring and enforcing the requirements of the easement agreement. In neighborhoods is lost. return, the owner must agree, in the form of a recordable deed, to relinquish his or her rights to demolish, alter, or develop the property in perpetuity to the qualified receiving organization. The value of the easement As the concept of historic building rehabilitation and neighborhood revitalization become more popular in Elgin, it is the difference between the property’s fair market value before donation of the easement and its fair is inevitable that the property values will rise to an extent where the value of the land will far exceed that of market value after donation. In many cases, an additional financial benefit is provided by compensating the structures upon it. There is also the imminent potential of downtown Elgin’s revitalization enhancing its donating property owner with the difference in the fair market value of the property. immediately surrounding neighborhoods causing their property values to rise significantly. However, these neighborhoods are comprised of structures that are small and will be unable to sustain the needs of an affluent Accessibility and Historic Preservation demographic that would desire the largest home that money can buy. As a result of this, trees will be removed, backyards eliminated, and sunlight blocked by larger and taller new structures built up to the property lines. The Americans with Disabilities Act (ADA) of 1990 was designed to prevent discrimination against individuals with disabilities in a wide range of circumstances including private sector employment, public services, The challenge is to manage new investment so that it respects the character and distinctiveness that made transportation, telecommunications, and most significantly for historic resources, places of public these neighborhoods so desirable in the first place. accommodation. Even though it is not a historic preservation statute, it has already had a far-reaching effect on Solutions to the problem of teardowns will involve a number of measures taken by the community. historic properties because it requires that historic buildings that are places of public accommodation conform to certain standards of accessibility. This may involve physical alterations to a property, and such alterations may The community or neighborhood would need to decide where and how to accommodate growth and change. affect the building’s historic or architectural character. However, in the process of achieving compliance, if the Some of tools already mentioned in this section such as designating historic districts, establishing conservation historic resource would be threatened or destroyed, alternate measures of compliance may be pursued. districts, and negotiating voluntary easements can ensure that the architectural character is permanently protected. The level of compliance under ADA depends upon the classification of the facility. For example, with Modifying zoning regulations to set floor-area ratios and lot-coverage requirements that keep the scale of new government buildings and “places of accommodation” such as hotels and restaurants, and “commercial construction compatible with older homes, and revising development standards for building heights and widths, facilities,” including office buildings and warehouses, are required to be “readily accessible” to the disabled. front and side setbacks, and other building features to make new houses and additions fit in within the More specifically, it requires the removal of existing architectural or communication barriers when their removal surrounding architecture. is “readily achievable.” Owners, lessees or operators of historic buildings, structures or sites, need to comply Education and historic real estate programs can be a way to inform realtors and new residents about the history with the ADA to the maximum extent feasible. of older neighborhoods and provide guidance in rehabilitating historic houses and building compatible additions. Financial incentives and technical assistance, such as tax abatements and low-interest loans and referrals to The City of Elgin continues to make concerted efforts to ensure that all commercial buildings are ADA compliant. qualified contractors, help residents acquire and rehabilitate historic houses. Property owners of downtown commercial buildings that were built prior to enactment of the law are encouraged, as part of their façade renovations and interior remodeling to make their buildings compliant to the Goals, Objectives, and Policies greatest extent possible, with funds being directed towards making the building accessible in some cases.

Building Codes and Historic Preservation Goal HP-1 Encourage the continued protection and enhancement of architectural, cultural, and historic resources that are important to the heritage of Elgin. The rehabilitation of older historic buildings is often delayed by the application of modern building codes and standards. These codes specify how buildings must be constructed and used to protect the public’s health, safety and general welfare. But because they primarily set standards for new construction, particular problems Objective HP-1.1 Identify, preserve and enhance the historic resources of the Elgin area. arise when these standards are applied to historic buildings. A common example in Elgin is the requirement for porch railing on historic residences to be 36 inches high, when originally they would be been constructed at a Policy HP-1.1a Continue to implement Elgin’s Historic Preservation Program to promote the restoration height no greater that 30 inches or less. In other cases, particularly during the rehabilitation of historic and preservation of existing historic districts and landmark structures. commercial buildings, codes may mandate the removal or alteration of historic materials and spaces to meet fire and other safety requirements. Policy HP-1.1b Continue survey efforts to identify and designate additional historic districts and landmarks for the restoration and preservation of areas, buildings, and sites in Elgin that are Elgin uses the 2000 International Building Code, where Section 3406 exemptions to the code are provided to of historic, cultural, and/or architectural significance. historic buildings “where such buildings are judged by the building official to not constitute a distinct life safety hazard.” It is important that the exemption of the codes continue to be applied to historic buildings in order to Policy HP-1.1c Support the identification and listing of cultural resources including buildings, objects, continue to maintain their architectural character and integrity as they contribute to the overall significance of structures and landscapes in the National Register of Historic Places. areas designated as historic districts.

Section 4 - Historic Preservation Page 12 Policy HP-1.1d Provide preservation priority to those buildings, structures, objects and open space areas Real Estate Continuing Education credits as a means to encourage attendance at these identified as having historic, cultural, or architectural significance that are in imminent danger programs. of decay or demolition. Policy HP-1.3b Develop a program to educate residents and property owners of the city on the benefits of Policy HP-1.1e Support legislation to provide incentives for maintaining and enhancing structural stability the removal of non-original substitute building materials to restore original materials. and aesthetic value of significant structures. Policy HP-1.3c Support and encourage local groups’ and individuals’ projects, workshops and seminars. Policy HP-1.1f Encourage local citizens to cooperate in a campaign to identify and publicize the significance of historic sites and buildings. Policy HP-1.3d Add audio-visual media, technical restoration information and other materials--including the information on designated local landmarks and structures with Heritage plaques--to the Policy HP-1.1g Review all building or demolition permits for buildings either designated historic or within preservation archives at the public library and the Elgin Area Historical Society and publicize historic districts to ensure, where feasible, the preservation of these historic facilities. the availability of these resources.

Policy HP-1.1h Protect and enhance the integrity of the traditional environment by supporting the restoration, Policy HP-1.3e Establish a Restoration Library that can be used as a reference by local property owners to renovation, and adaptive reuse of historic buildings. research tips and techniques for the restoration of their homes.

Policy HP-1.1i Promote the adaptive use of historic buildings and structures for both public and private Policy HP-1.3f Work with the State Archives to microfilm all available historic printed material and uses. documentation such as newspapers, records, drawings and photographs.

Objective HP-1.2 Encourage the use of financial incentives for the preservation of historic resources of the Policy HP-1.3g Continue to update a list of historic preservation oriented network sites available on the Elgin area. Internet.

Policy HP-1.2a Encourage federal, state and local government agencies as well as financial institutions and Policy HP-1.3h Continue to sponsor guided tours of Elgin and investigate the potential of creating self-guided private citizens to provide financial incentives for rehabilitating historic buildings and restoring audio taped tours of the historic districts. Partner with special events organizations to artifacts and memorabilia. promote Elgin’s heritage. Create a selection of audio tours that can be available for either walking or driving tours. Policy HP-1.2b Encourage the use of the federal rehabilitation investment tax credit for the rehabilitation of commercial buildings listed in the National Register of Historic Places. Policy HP-1.3i Develop comprehensive brochures that promote the existing historic districts and local individual landmark structures. Policy HP-1.2c Encourage the use of the 10% tax credit for the rehabilitation of commercial buildings that are 50 years or older but not designated as historic. Policy HP-1.3j Produce a newsletter sponsored by the Elgin Heritage Commission to disseminate education information on historic preservation issues affecting Elgin to property owners and residents Policy HP-1.2d Encourage the use of the State’s property tax assessment freeze program for the of individual landmarks and historic districts. rehabilitation of commercial and residential buildings listed in the National Register of Historic Places, or locally designated as landmarks or within local historic districts. Policy HP-1.3k Maintain photographic documentation of all buildings, structures, objects and open spaces identified as having historical, cultural, and architectural significance. Policy HP-1.2e Increase the use of local incentives such as the 50/50 and 75/25 Historic Architectural Rehabilitation Grant Programs for residential and non-residential properties within historic Objective HP-1.4 Continue to provide technical assistance on building issues related to historic properties. districts, architectural conservation areas, and properties not included within these areas, but determined to be historically or architecturally significant, as well as the Facade Improvement Policy HP-1.4a Encourage maintaining the architectural significance of historic properties while keeping Program for downtown commercial buildings. them in compliance of all building codes.

Policy HP-1.2f Encourage the use of alternative financial incentives such as charitable donations, such as Policy HP-1.4b Encourage the rehabilitation of properties to make them accessible and in compliance with donating properties or parts thereof to preservation or non-preservation organizations to the American with Disabilities Act (ADA) to the greatest extent possible without continue to preserve the historic resource to perpetuity. compromising the historic fabric and integrity of the property.

Objective HP-1.3 Educate local government agencies, property owners and the public at large on the need and Policy HP-1.4c Continue to assist property owners with obtaining the necessary Certificate of means of preserving and promoting Elgin's heritage. Appropriateness (COA) for alterations to the exterior of their properties.

Policy HP-1.3a Educate through different means property owners, architects, contractors, real estate agents, and any interested parties on Elgin’s Design Guidelines, Elgin’s Building Plaque program, landmark designation and other specific preservation issues. Introduce a method to provide

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