4.13: Archaeological and historical

4.13.1: Existing conditions Archaic – 10,500-4,400 BC consisting of highly Archaeological and historical resources may be mobile small groups subsisting on marine, categorized into 3 major types: shoreline, and terrestrial resources with stone, bone, antler, and perishable technological Archaeological - resources that represent materials illustrated by Olcott points. important evidence of past human behavior, including portable artifacts such as arrowheads Early Pacific – 4,400-1,800 BC consisting of or tin cans; non-portable features such as increased sedentism in seasonal villages cooking hearths, foundations, and privies; or subsisting on shoreline resources, expanded residues such as food remains and charcoal. marine resources harvesting camas and Archaeological remains can be virtually any age, shellfish with an increase in ground stone, bone, from yesterday's trash to prehistoric deposits antler, and perishable technological materials thousands of years old. illustrated by Cascade points.

Ethnographic - sites, areas, and materials Middle Pacific – 1,800 BC - 500 AD consisting of important to Native Americans for religious, winter villages of plank houses and seasonal spiritual, or traditional uses that can encompass camps subsisting on marine and riverine the sacred character of physical locations (e.g., resources with food storage technologies with a mountain peaks, springs, and burial sites) or decrease in stone tools, diversification of tools particular native plants, animals, or minerals of bone, antler, perishable technological that are gathered for use in traditional ritual materials and canoes. activities. Also included are villages, burials, rock art, rock features, and traditional hunting, Late Pacific – 500 – 1775 AD consisting of large gathering, and fishing sites. In some cases, permanent villages and special use camps ethnographic resources may overlap prehistoric subsisting on specialized marine, riverine, and or historic archaeological resources or they may terrestrial resources with extensive food storage be embedded within each other. with very little stone tools .

Historic - resources of the historic built Archaeological sites environment that can include people, places, or There are more than 5,000 Native American uses including houses, barns, stores, post sites on record in the state, of which few have offices, bridges, and community structures that been professionally evaluated. Generally, sites are more than 50 years old. are located at river conjunctions within valleys and along the shoreline of Puget Sound and the Prehistoric setting Columbia River. Tacoma is located within the The arrival of Indian groups in the Pacific Puget Sound or Salish culture defined by: Northwest cannot be dated with great precision. However, archaeological investigations at ƒ Riverine (linear) settlement patterns, Paisley Caves in east Oregon indicate man may ƒ Reliance on a diverse subsistence base of have been in the area at least 13,000 and anadromous fish and extensive game and possibly 15,000 years ago. Investigations at the root resources, Manis mastodon site near Sequim on the ƒ Complex fishing technology similar to that Olympic Peninsula indicate man was in the area seen on the Northwest Coast, as early as 12,000 years ago. Sea level rises ƒ Mutual cross-utilization of subsistence approximately 5,000 years ago, however, may resources among the various groups have inundated even older sites. comprising the populations of the area, ƒ Extension of kinship ties through extensive Known sites have been grouped into the intermarriage throughout the area, following rather broad time periods and cultural ƒ Extension of trade links throughout the area sequences: through institutionalized trading partnerships and regional trade fairs, Paleoindian - approximately 15,000+ BC ƒ Limited political integration, primarily at consisting of highly mobile, small groups that the village and band levels, until adoption subsisted on marine, shoreline, and terrestrial of the horse, and resources with stone, bone, antler, and ƒ Relatively uniform mythology, art staples, perishable technological materials illustrated by and religious beliefs and practices focused Clovis points and Western Stemmed projectiles. on the vision quest, shamanism, life-cycle

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 248

observances, and seasonal celebrations of are presently South 15th Street and Pacific the annual subsistence cycle. Avenue, and another near South 24th Street and Pacific Avenue where a creek entered the bay. Archaeologists and historians have verified tribal village sites throughout Puget Sound and At the time of non-native settlement of the area, within the Commencement Bay and Puyallup dense forests covered the area which became River basin. the Hilltop. The forests and inland areas played an important role in the life of the Puyallup, Indian tribes providing food, raw materials, and likely housing important religious and ceremonial The Indian population before the Europeans sites, such as burial grounds. first came into the Pacific Northwest is estimated to have numbered 75,000 or possibly However, the land clearing and grading twice that number, divided into about 125 tribal associated with the Hilltop's initial development groups. Small pox, tuberculosis epidemics, and eliminated the traces in the Hilltop of any other diseases reduced tribal numbers traditional resource use patterns or sites significantly by the 1850s. associated with the Puyallup before non-native settlement. If MLK subarea improvements may A large number of different Indian tribes and impact any of these resources, the resources bands inhabited Washington State with varied will need to be formally evaluated. life-styles and different languages, dress, ceremonies, and adornments. Tribal Status - the original 1,280 acre Puyallup characteristics are generally distinguished Reservation was established by the Medicine between the coastal tribes of western Creek Treaty of 1854, and later enlarged to Washington and those of the interior. In general, 18,062 acres by executive orders in 1857 and the coastal tribes depended on the rivers and 1873. The Puyallup Tribe currently owns 66.9 tidal waters for staple foods whereas the acres of the original reservation as the lands interior tribes relied more heavily upon plants were subsequently sold and allotted for non- and berries, as well as game and other animals. tribal uses and ownerships.

The Puyallup (S’Puyalupubsh) - a coastal In 1984, the Puyallup Tribe won a major Salishan tribe, lived in villages extending for decision for the loss of their reservation lands about 15 miles east from Commencement Bay and received a $162,000,000 settlement for along the Puyallup River. At certain seasons, the usurpation of an area that extended southeast Puyallup resided at Carr Inlet and southern from Commencement Bay to the limits of the Vashon Island. City of Puyallup. The MLK subarea is not within the land claims settlement area. Settlements in the Tacoma area by the Puyallup peoples historically concentrated along the The Puyallup Tribal Council is the designated shoreline of Commencement Bay, where governing body for a tribe that had 3,800 residents of a village would have convenient members in 2008. The Tribe currently owns and access to the water which was both an operates a diversified business portfolio important source of food and the principal including a commercial marina, health center, means of transportation. Puyallup villages were school, casinos and gaming facilities, and retail typically located near river outlets, or at points stores which is located in the tideflats outside where creeks merged into the river systems. of the MLK subarea.

The Puyallup, a piscatory people, supplemented Tacoma’s early European settlements their diet with berries and, after contact with fur trades, with potatoes. Salmon provided the The earliest European settler in the Tacoma area primary economic basis for these societies who was Nicolas Delin, who constructed a saw mill in were semi-sedentary, moving between different 1852 where the Puyallup River enters the bay. settlements depending upon the season. However, Delin and several other early settlers Archeological resources associated with Native abandoned the area during a conflict with local American settlement include shell middens, tribes in the mid-1850s. camp sites, burial sites, tools, implements or other artifacts or features. European settlers did not return until the mid- 1860s when Job Carr claimed 168 acres in the Known settlements - in the vicinity of the area now referred to as Old Town. Once the present downtown Tacoma and Hilltop settlement had been platted, it was given the neighborhood included a community near what

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 249

name Tacoma City, after the original Salish name for Mount Rainier (Tahoma).

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 250

Railroads - an 1873 decision to terminate the Hilltop (and MLK subarea) development Northern Pacific Railroad’s transcontinental line at Tacoma caused a development boom that The following account of Hilltop development turned the village into a city almost overnight. and nomination of historic resources in The terminus was located away from the Tacoma's Hilltop neighborhood is based on a original Old Town, causing the center of the city 1993 Cultural Resources Inventory of the Hilltop to move south towards what is now downtown Community (which includes the MLK subarea Tacoma. In 1874, railroad service began, the and the directly adjacent residential community incorporated as Tacoma and the neighborhoods) funded by the City of Tacoma Northern Pacific’s Tacoma Land Company began and the State Office of Archaeology and Historic selling lots on newly platted streets. Preservation.

Although the headquarters of the Northern The inventory, conducted by Eysaman and Pacific moved to Seattle after the economic Company, was undertaken in order to update depression of the early 1890s, railroads information collected in a 1981 Cultural continued to be a significant force in Tacoma’s Resources Survey and to evaluate the extent of development well into the 20th Century. A wide alterations to previously identified resources. range of historic resources are associated with railroad activities in Tacoma, from landmark The survey team compared contemporary and buildings like the 1888 Northern Pacific historic maps to identify over 2,000 extant Headquarters and 1911 Union Station, to the buildings thought to have been constructed warehouse buildings now occupied by the prior to 1926. In selecting properties from this University of Washington Tacoma, as well as the large group for more detailed study and rail corridors themselves. documentation, the survey team sought structures representing building types which Maritime activities - large scale maritime were under-represented in the 1981 inventory. activities began in the early 1870s with lumber shipments from Tacoma to California, South The survey resulted in the documentation of America, Australia and other points. Once the over 260 properties from throughout the study Northern Pacific Railroad arrived, the company’s area which reflected the range of property types activities dominated the port area as they found in the community, and the preparation of augmented outgoing lumber and coal shipments a "Survey Project Report" addressing the with incoming cargoes from Asia destined for historical development of the Hilltop the east coast. community and the significance of the various identified property types. The public Port of Tacoma was created in 1918 and the port remains a leading West Coast In 1994, the City of Tacoma Office of Historic gateway, primarily handling cargo bound to or Preservation hired Eysaman and Company to from Asia. Historic resources associated with prepare a multiple property nomination and maritime activities in Tacoma include wharves, associated individual property nominations. warehouses and canals. In many cases, such Working under the direction of Valerie Sivinski, resources are closely associated with both City of Tacoma Historic Preservation Officer, railroad and maritime contexts. Gerald Eysaman, principal, and Cloantha Copass, historic preservation specialist, Streetcars - Tacoma’s first horse-drawn prepared historic contexts which encompass the streetcar line began service in 1888. From 1890, development of the Hilltop from its first electrified streetcar lines radiated out from the settlement to the beginning of the post-World center of the city and significantly impacted the War II era. general pattern of development. By the mid- 1930s, however, the electrified rail system was Property types were categorized to acknowledge dead, to be replaced by automotive transport. and assess the variety of structures which house all activities of community life. The City of A number of historic resources are associated Tacoma Office of Historic Preservation intends with the development of Tacoma’s streetcar that this multiple property documentation form system, from early commercial corridors and will provide a framework for the completion of centers to the historic residential areas that additional individual property nominations for extend south and west beyond downtown. The related resources in the future. concentrations of historic buildings that still line these corridors reflect the locations of these Background early streetcar lines The Hilltop community, the first residential neighborhood to develop in Tacoma outside of

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 251

the downtown core, encompasses the upper part designed to maximize views of Mount Rainier, of the slope rising from Tacoma's city center and abundant public parks and promenades. along Commencement Bay, as well as the plateau which extends westward from the crest However, developers considered the irregularly of the slope. shaped lots Olmsted proposed as unmarketable, and rejected the plan as impractical for a The residents of the Hilltop during its initial frontier town which was encouraging real estate phases of development were almost all investment. The local director of the Tacoma immigrants to Tacoma—whether from other Land Company, Charles Wright of Philadelphia, countries around the world or other states in promptly hired lighthouse engineer Isaac the union. Hilltop residents helped build the William Smith to survey the city and lay out the city's businesses and industries and helped rectilinear grid pattern of streets and lots. found the neighborhood's institutions such as churches, schools, and civic organizations. Over Smith's plan gave the original sections of the time, the function of the Hilltop as a residential city, including the Hilltop, a pattern of streets neighborhood providing both housing for creating regular block divisions that would Tacoma's workers and the social and extend west as the city developed. Smith's initial commercial services to support its residents has grid roughly paralleled Commencement Bay's shown remarkable continuity. shoreline and the slope of the hill rising westward from the water. There are three chronological contexts which address events and trends influencing the This alignment was roughly 10 degrees askew formation of the Hilltop neighborhood. from the regular north-south grid. In later developments, located west of the prominent First Expansion: 1875-1900 slope and across the flatter hill top, the street Early settlement in Hilltop resulted from grid turned slightly to run north-south, aligning development spreading up the hill from the itself with the Federal system of land division. waterfront following the Northern Pacific Railroad's decision to locate its terminus on This transition occurred in the vicinity of South Commencement Bay. The Northern Pacific Alaska Street, where a gulch descending toward purchased 2 miles of waterfront and 2,700 acres Center Street provided a logical demarcation of upland property. This tract of land, platted as between the two grid systems. Smith divided the "New Tacoma," quickly became the focus of land into a regular grid of square blocks Tacoma's development activity. composed of two tiers of 25 foot wide and 130 foot deep lots, divided by a central alley. The Northern Pacific Railroad's initial land However, as development moved west and holdings became downtown Tacoma and south away from the downtown, intermediate included the area of first expansion in the streets were often omitted in favor of longer Hilltop. The company's holdings came up from north/south blocks. the shoreline to a western boundary in the Hilltop. The northwest corner of New Tacoma As development on the hill lagged behind lay in the vicinity of South MLK Way and South construction in Tacoma's central business 7th Street, while the southwest corner was near district and lower slopes of the hill, property the intersection of South M Street and South owners in the Hilltop concluded that a cable car 19th Street. line would hasten the pace of Hilltop development. They turned to the city council, The railroad anticipated real estate sales in New which granted a group of men associated with Tacoma would contribute to its profits, and the railroad a franchise for cable railways in the worked to encourage land development. city in 1889. Following a failed initial platting effort by General James Tilton, which resulted in Later that year, the locally based Tacoma scattered clusters of development rather than Railway & Motor Company acquired the the grand urban plan envisioned by the franchise and announced plans for a line which railroad's management, the railroad turned to would climb and descend the hill on South 13th the nationally-prominent New York City Street on a double track, then convert from landscape architect Frederick Law Olmsted to cable to electric operation at MLK Way, and run create a grand plan for the new city. south to 19th Street, where eventually, it would run westward. Construction on a Tacoma Olmsted's plan featured winding avenues Avenue line had started in 1890, and in following the natural contours of the land, lots September 1890, the contract for the cable track

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 252

on South 13th Street was awarded to a San pattern of building sizes. A two-story home on Francisco contractor. two lots might adjoin a modest cottage of only a few rooms. However, property owners along South 11th Street and the blocks of MLK Way north of South Most Hilltop structures in this era were either 13th Street grew concerned that without a mostly unadorned gable roofed boxes or trolley on South 11th Street, their property featured late-Victorian or Italianate details, values would suffer in favor of property along expressed in wood, the ubiquitous building South 13th Street. They successfully petitioned material. Even very modest homes featured the council to alter the terms of the franchise, unique wooden details such as cornice brackets and the trolley company built a single track loop or pattern shingles, reflecting the builder's line up South 11th Street, south on MLK Way, desire to incorporate stylistic details in an and back down to A Street via South 13th Street. otherwise rudimentary structure.

The cable car improved access not only to The open space generated by the scattered building lots, but also to the community development pattern of the community institutions in the Hilltop such as the original provided room for residents to grow fruit and Central School at South 10th and G Streets. In vegetables, and to house chickens and other 1891, School Superintendent Gault arranged livestock. with the trolley company that school children would be able to purchase 40 rides for a dollar-a As alternatives to the single-family homes, a few rate half the usual fare. double houses were built on the Hilltop before 1900, as were two blocks of small wooden The Tacoma cable car, one of only three in the rowhouses, and several "tenements" (apartment United States, was not only a practical means of buildings). In this era, multiple unit dwellings transportation but became a popular tourist were much less prevalent than single dwellings. attraction as well. However, the "single-family" homes were often The principal landholders had platted the shared by unrelated individuals, or occupied by Hilltop's largest additions by 1891. However, extended families. Families typically lived in new buildings did not always appear readily on extended family households, encompassing the newly purchased lots. In general, lots were several generations or related married couples sold to individuals or small contracting outfits who all would contribute to the household rather than large-scale residential developers. economy. Families would take in boarders to Consequently, development leapfrogged up and help defray their own housing costs. across the blocks, as owners or contractors assembled the resources to construct homes on Many boarding houses were run by single their particular lots. The uneven pattern of women-often widows who took in boarders in development was also influenced by the fact order to earn an income. The boarders were that many purchased land solely for speculative often people without family in Tacoma, purposes, and were therefore not inclined to transient workers, or newly immigrated. They make substantial improvements. would live in boarding or lodging houses, or rent rooms in homes, until they could attain In the 1880s, development concentrated around their own "stake." South 9th, South 11th, South 15th, and South 17th Streets, before giving way to woods and The majority of the buildings in the developing squatter settlements again along present day additions tended to follow the regular pattern of MLK Way. Although a few companies the streets, and be spaced at fairly consistent constructed several similar structures on setbacks from the street, with modest front adjacent lots at one time, (seldom more than yards and larger rear yards. Not all half a dozen) it was far more typical to see development, however, followed this pattern. varied, individualized building designs. One variation on the Hilltop, seen in the 600 Single family dwellings were the most common block of South J Street, was the placement of building type on the hill. Small one to two story modest first homes at the rear of the lot, as a wood frame buildings appeared first, and were precursor to larger residences that would sit soon joined by larger, more elaborate homes. closer to the street. Where one house reached The 25 foot lot size, part of I.W. Smith's original almost to the front property line, a subsequent platting scheme, offered a wide range of options builder might place the adjacent house at the to home builders and resulted in a diverse rear of the lot to obtain better light and ventilation in side windows. An example of this

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 253

staggering of setbacks occurs along the eastern classes from school buildings were meeting in side of the 1200 block of South M Street. four rented store buildings.

The Hilltop contained several significant Tacoma's first public school, Central School, variants from the grid ranging from the stood at South G Street and South 11th Streets. formality of a park-centered subdivision to the By 1896, students attended classes in the Bryant informality of squatters' settlements. CP. Ferry, School at South 7th Street and Ainsworth in his 1888 addition, divided South 14th Street Avenue, Irving Public School at South 20th and placed a block-long oval park in the center, Street and Hosmer Street, the Lincoln School at in which he subsequently installed statuary 16th and K Streets, and the University Public acquired on a trip to Europe. He then rotated School at South I and South 21st Street. lots on South 14th Street to face onto the park. Ferry extended the park southward through the Although Tacoma's first college, Washington center of the block from South 14th Street to College, closed by 1896, the private Visitation South 16th Street for the use of its surrounding Academy educated Catholic students at South residents. 18th and South I Street, and the Puget Sound University building contained both classroom Ferry's alterations to the established grid and dormitory spaces at South 9th and South G reflected his desire to give the development a Street, until it was converted for use as more sophisticated urban feel. In contrast to Tacoma's first high school in the late 1890s. Ferry's sense of urban order, squatter developments in the Hilltop emphasized the The City sited public services in the Hilltop to spontaneity and impermanence of many frontier meet the needs of the growing population. For communities. example, the Fire Department's Engine House No. 5 stood in the 1200 block of South I Street, Absentee owners, litigation, and delays in and Engine House No. 2 was located at South marketing the Smith & Fife and Alliance 27th Street and Yakima Avenue. Additions provided opportunities for squatters to establish homes in parts of the By 1896, the municipal water system's iron neighborhood. Often existing just beyond the standpipe rose 120 feet in the air at South J and limits of graded streets, squatters' constructions 20th Streets. This landmark tower was part of an did not conform to the grid, but were sited extensive municipal water system which randomly without regard for property lines or pumped over 4,500,000 gallons daily into street rights-of-way. Tacoma.

Contemporary accounts indicate that the The city's first two hospitals, Fanny Paddock squatters appropriated not only land, but also Memorial Hospital (now Tacoma General) and St. building materials. In the Alliance Addition, Joseph's Hospital, were developed at the north shanty construction materials included second and south edge of the Hilltop, respectively. hand doors, windows, blankets, and oil-cloth These sites offered the hospital an opportunity tablespreads. Although they lived on the edge of to treat patients away from the bustling the developing community, squatters in the waterfront and commercial area in a more Smith & Fife Addition were active in community tranquil setting. affairs. Many were registered voters, and they organized and fought actively against Not all services were public however; many challenges to their occupancy of the land. These social services were considered private sector settlements endured until after the turn of the responsibilities. For example, at a residence at century, when they were removed by the 1214 MLK Jr Way (K Street at the time), property owners to enable formal subdivision described by a census taker as a "Baby House," a and sale of the land. couple and their missionary daughter cared for over 20 abandoned or orphaned children. Numerous small shops and businesses dotted the Hilltop, providing grocery items and needed Another sign of the Hilltop community's services close at hand. Typically located on growing role in the city was the construction of corners, these structures often had living space the city "ball ground," the baseball field in the for the proprietor and proprietor's family above block between South 11th and South 12th the ground floor commercial space. Churches Streets and South L and South M Streets. and civic institutions also took their place Many settlers in the first wave of immigrants to alongside the Hilltop's residential and the northwest came from other parts of the commercial buildings. Schools in the city faced United States, especially the mid-west. The first ever-expanding enrollment. In 1890, overflow foreign immigration to the Northwest consisted

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 254

primarily of Scandinavians, Britons, Germans, coal bunkers, shipyards, and wharves developed and Canadians. The churches founded in the to support the railroad and shipping industries. Hilltop in the late 1890s suggest that settlement in the Hilltop followed this regional pattern. Tacoma participated in an increasingly international market, shipping lumber to By 1900, for example, the Hilltop housed five Australia, wheat to France, and flour to Ireland. Evangelical Lutheran churches—each supported In 1892, the arrival of the first steamship from by a German, Danish, Norwegian, Swedish, or Japan portended the coming importance of English congregation. Members of many other Tacoma as a Pacific Rim shipping center. ethnic and racial groups also built churches Hundred of Tacoma residents greeted the ship, which indicate their presence in the community. which brought Japanese immigrants and a cargo A few of the many religious congregations of tea, silk, rice, firecrackers, and sugar. locating places of worship in the Hilltop during the first expansion were the Temple Beth Israel By 1893, the grid of residential settlement at South 10th and I Streets, the Allen African pushed out to Sprague Avenue and beyond. Methodist Episcopal Church at South 14th and G Development reached several blocks north of Streets, and St. Mary's Roman Catholic Church at Division Avenue toward Old Tacoma and crept South 25th and I Streets. up the hills south of the tide flats. Almost all the land in the Hilltop had been platted and put Chinese immigrants are noticeably absent from on the market. Tacoma's historic ethnic mix—particularly in comparison to other cities in the region. Increasingly, Tacoma could point to symbols of Recruited in the thousands to complete the urban sophistication to fight an image as a Kalama railroad spur from Tacoma to the crude frontier community: Wright Park had been Columbia Gorge, Chinese settlers remained in laid out and elegantly landscaped and the new Tacoma once their work on the railroad was brick municipal building stood at the north end finished. of the city center. A grand Richardsonian Romanesque County Court House stood at South In Tacoma, the Chinese established thriving 11th Street and Tacoma Avenue, its tower a mercantile businesses, particularly in the prominent landmark at the edge of the Hilltop, vicinity of South 17th Street and Broadway. and two streets—including Tacoma Avenue— However, during the region's frequent economic had been "macadamized." downturns, struggling non-Chinese workers resented the presence of this Chinese This first era of the Hilltop's development ended workforce. In 1885, following a period of as the nation-wide depression of 1893-1897 intensified harassment, a mob supported by the slowed development. The crash particularly city government forcibly evicted the Chinese devastated the northwest's wildly speculative from Tacoma, destroying their homes and real estate markets. The once wealthy turned businesses. This violent event garnered negative back to the land to earn a living; real estate publicity for Tacoma nationally, and created a moguls became the janitors in their own climate which led future Chinese immigrants to buildings. Thousands of discouraged fortune avoid Tacoma. seekers pulled up their shallow roots and left Tacoma. By the 1890s, the city had spread noticeably beyond its early borders. Industrial Between 1893 and 1900, Tacoma's population development had leapt out to the tide flats. The fell from 52,000 to 37,000 people, as residents improved rail access spurred Tacoma's returned to the east, moved south to California, development as people flocked to jobs in the or headed north to seek their fortunes in the emerging industries; by 1890, 36,000 people Yukon gold fields. lived in the city. By 1893, Tacoma had become a busy city of 52,000 people. The completion of the Great Northern Railroad's transcontinental rail line to Seattle in Tacoma was a center for the processing and 1893 compounded Tacoma's economic woes by shipment of the region's many natural diminishing the city's importance as Puget resources, including timber from surrounding Sound's primary shipping and rail hub. forests, coal from the valleys near Mt. Rainier, Tacoma's fragile rail link to the eastern states and flour from eastern Washington. Sawmills was shaken as bitter labor disputes and the and flour mills, counted among the nation's bankruptcy proceedings disrupted Northern most productive, sprang up along the shores of Pacific Railroad service and raised questions Commencement Bay, along with warehouses, about the future of the line. In Tacoma, the effects of the Panic of 1893 would linger until

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 255

nearly the turn of the century, when national and industrial core of Tacoma more appealing economic upturn aided by the Spanish-American to homeowners. Real estate ads, recognizing War and the discovery of gold in the Yukon street car access as a key selling point, helped restart Tacoma's economic engines. frequently specified the number of blocks from a property to a street car line. Branching Out: 1900-1930 In the early 1900s, the national economy had The Hilltop's frenzied land market had slowed improved, and Tacoma's population began to after 1891; no new additions were placed on the rise again. Between 1900 and 1910, Tacoma's market until 1903. However, in that year and in population jumped from 37,000 to 83,000 subsequent years, developers responded to the people. By 1920, the city had 97,000 residents new century of expansion by platting several and 125,000 residents by 1925. new additions in the Hilltop and resolving old land disputes. Local economic developments such as a major expansion of the St. Paul and Tacoma Lumber In 1903, the Commonwealth Addition was put Company operations in 1901 provided new job on the market. Over 500 lots in the Smith and opportunities. Also, events outside the Fife addition, bounded on the east and west by northwest region such as the 1906 San Francisco South J Street and South Grant Avenue, and on earthquake and fire created a demand for the north and south by South 19th Street and Tacoma's cut lumber, as did the rise of war- South 27th Street, were put back on the market related industries during World War I. in 1904 following the resolution of a 10 year dispute over the property. Across the Hilltop, new homes, apartments, churches, community institutions, and Similarly, streets following the city's grid were businesses sprang up to house, support, and carved through the Alliance Addition, which was serve the new arrivals. Street cars enabled new divided by court order and placed on the market construction to spread even farther from in 1906. In 1907, initial platting of the Hilltop Tacoma's primary business centers. While the was completed as Baker's Second Addition—the Hilltop community became even more final large tract of undeveloped private land- international and multi-ethnic, it maintained a went on the market. Overall, the Hilltop, like tradition as a place where residents of all Tacoma, began to take on a more settled backgrounds mixed together. appearance. Public sewers replaced backyard privies, gas and/or electric lights illuminated After the turn of the century, the city's original both homes and streets, and paved streets and cable car running up 11th and down 13th sidewalks supplanted the often muddy dirt Streets from A to South K Streets was joined by roads and plank walkways of the first an extensive network of trolley lines crossing expansion. the city and affording far flung residential neighborhoods greater accessibility to the The newly-available lots, along with the downtown. undeveloped lots in areas platted before 1900, continued to fill with homes. While a few In the Hilltop, a line ran along South K Street to builders developed multi-home speculative South 23rd Street, where it turned west and ran projects, overall, an eclectic mix of home types to Hosmer Street. Tacoma Avenue and Sprague and styles reflecting the design choices of Avenue carried north/south lines, and Sixth individual builders and owners continued to Avenue, South 9th Street, and South 15th Streets characterize the community. carried lines westward from the Hilltop. Although Hilltop residents came from many The Sprague Avenue line, run by the Pacific diverse backgrounds, their housing reflected a Traction Co., continued on to Steilacoom and range of contemporary styles popularized by Gravelly Lake. In 1902, the city's four main pattern books of the time. Hilltop’s building street car lines were purchased by a Boston- stock did not use construction techniques or based corporation and unified as the Tacoma design elements associated with various ethnic Railway and Power Company of New Jersey. The or regional styles. new owner was able to make badly needed improvements in the lines' infrastructure and As bungalow and craftsman styles became organization, improving the quality of service. popular, the details associated with the styles The street cars continued to have a significant were incorporated into the Hilltop's vernacular impact on the patterns of community wooden structures. For larger homes, the development. The expanded street car network shingle style and American foursquare provided made properties farther from the commercial inspiration. Houses, most with front porches,

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 256

continued to orient to the street and typically pedestrians considered a dangerous speed, responded to established setbacks. many considered them a menace. Although city commissioners attempted to limit the speed and Alleys provided service access to rear yards. control stop locations, they were not successful, Sheds in the rear yards were often converted for and the jitneys continued to carom wildly about, garages to accommodate the arrival of the with passengers crammed in the streets and automobile allowing porches rather than hanging from the running boards. garages to continue to dominate the streetscape. Some individuals even expressed concern that While new homes did infill on some lots the competition from jitney service would between older homes, the leap-frog hinder street car expansion—and the development pattern continued, leaving empty development of outlying areas. Little did they lots between houses which provided open space imagine that the private auto would impel, not for vegetable gardens, fruit orchards, and impede, suburban expansion. children's games. During the second phase of the community's After 1900, apartments became an increasingly growth, people arrived in the Hilltop from popular housing alternative for those who did countries including Turkey, England, Norway, not own or rent homes. The northeastern area of Ireland, Wales, Italy, Denmark, Russia, Bohemia, the Hilltop saw the construction of the greatest Sweden, and Germany, as well as from almost proportion of the community's apartment every other state. buildings. This area, well-served by trolleys and close to the expansive open space of Wright In response to the needs of these new residents, Park, created a transition between the single the Home Missionary Board of the Methodist family neighborhoods and the downtown core. Church founded the Tacoma Community House, a Hilltop-based settlement house in 1907. Many of the new apartments were two-story Programs at the house expanded throughout the wooden structures containing six to eight units. 1910s. Activities included kindergarten, Camp Architectural features—including the hipped Fire Girls, the Younger Brothers' Club, the Junior roofs, wooden siding, windows, and porches- and Senior Boy's Club, the Mother's Club, the resembled those of the surrounding homes, Mothers' English class, the men's English Class, only applied to larger buildings. a junior choir, recreational athletic clubs, and an active home visitation program. Developers also constructed larger three to four story brick (occasionally wooden) apartment In the 1910s, the Community House served a buildings. With flat roofs and decorative wood diverse group of neighborhood residents, or pressed metal cornices, these buildings drew described as "Italians, Jews, Syrian, Hungarian, design elements from commercial buildings and Poles, Austrians, Germans, French, Welsh, Irish, apartments found in urban neighborhoods Scandinavians, and Negroes." throughout the country. These smaller wooden and brick buildings characterized apartment After the turn of the century new waves of development in the 1910s; the 1920s saw a immigrants from Italy and Eastern Europe trend toward larger apartment structures. arrived in the Hilltop. As these peoples settled, Stretching from lot line to lot line, leaving no churches which reflected the religious and setbacks from the street, these large brick and cultural traditions of the newcomers soon concrete structures increased the residential appeared, and therefore serve as an important density and created a more urban streetscape indicator of community development patterns. than that associated with the smaller multi- family structures. Also, existing populations announced prosperity with the construction of new churches. In 1924, After 1910, the influence of the automobile St. Rita's Roman Catholic Church was built just became increasingly felt in the community. west of Ferry Park in an area with a Auto-related businesses, such as gas stations, concentration of Italian residents. In 1925, the garages, and the dealerships emerged in the Greek community constructed St. Nicholas Hilltop. Greek Orthodox church, a substantial brick building just below the crest of the hill on In 1914, "jitneys" became an alternative form of Yakima Avenue at 1529 South Street. One block public transportation. These private mini-buses, north in the 1400 block of South Yakima offering nickel rides, challenged the street car Avenue, the Allen AME Church's new brick as a mode of travel. Because the jitneys were structure rose in 1929. not confined to tracks and traveled at what

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 257

While the neighborhood's various cultural coupled with meeting spaces and large halls groups tended to concentrate themselves in above the street. certain parts of the neighborhood, often near a church which was a spiritual and social center Another community fraternal organization, the in the community, these areas were loosely Improved Benevolent Protective Order of Elks, defined. an African-American fraternal organization, purchased and renovated a hall at 1529 Tacoma A sizable number of Russian or "Volga" Germans Avenue. Other fraternal organizations met in arrived in the Hilltop following increased efforts church facilities. For example, the Hibernians— by the Russian State to revoke privileges an organization of people of Irish descent, met originally granted to these German settlers in in St Leo's parish hall on Yakima Avenue. Russia, the Russian Revolution and the outbreak of World War I. Many Volga Germans settled in Private homes were also an important focus of the southwestern area of the Hilltop. The civic and social activity, particularly for vicinity of South 23rd and MLK Way became women's organizations. Women's clubs, which known as "Little Russia," because of the were important forums in the early twentieth presence of stores operated by and catering to century for addressing issues ranging from these newcomers. social reform to fine arts, often met at private homes. These residents also established three small churches within the area between Cushman For example, in 1908, Dr. Nettie Asberry, an Street and Sprague Avenue and South 21st and influential African-American Hilltop resident, South 23rd Streets. These churches were the organized the Clover Leaf Art Club, which had Evangelical Lutheran (Peace) Church, at 2102 as its goals promoting of friendship among its South Cushman Street, the Evangelical members, developing an interest in needlework Emmanuel Church at 23rd and Cushman, and and handicraft; providing assistance to the less the Congregational Church at 23rd and fortunate, and bringing about the formation of a Cushman. state Federation of Colored Women's Clubs. The club initially met in the member’s homes. The Italian-American community, while interspersed throughout the Hilltop, was Eventually, Dr. Asberry saw her vision realized concentrated in the area between South 14th and a Tacoma chapter of the Federation of Street, South 19th Street, South K Street, and Colored Women's Clubs was formed. In 1956, Sprague Avenue. However, census takers in the chapter opened a clubhouse in the 2500 1910 and 1920 found a mix of Italian, Swedish, block of Yakima Avenue which still stands and Norwegian households in the "Italian" area today. around Ferry Park. Whatever the racial, ethnic, or religious A directory of African-Americans in Tacoma and background of their families, the Hilltop's many Pierce County, published in 1929, provides children came together in the neighborhood's information about families living at addresses public schools. In the 1910s, the community throughout the Hilltop. Residents listed in the was "the most thickly populated school district directory with Hilltop addresses lived, for the in the city," most part, east of Ainsworth Avenue and at addresses dispersed throughout the Hilltop Faced with deteriorated wooden school between Sixth Avenue and South 23rd Street. buildings of Irving, Lincoln, and Bryant Schools, and an ever increasing student population, the Fraternal organizations played an important role school district made substantial investments in in community life, providing social three new public schools in the Hilltop. The opportunities and performing charitable work. ultra-modern Central School in the 800 block of Two fraternal organizations built prominent Tacoma Avenue South [1913] incorporated a social halls on MLK Jr Way. In 1906, the Swedish separate educational facility for tubercular Order of Valhalla built Valhalla Hall, K Street’s students, as well as classroom spaces specially (MLK Jr Way's) largest structure at the time. The designed for vocational training. hall housed offices and a large meeting hall, with commercial businesses on the first floor. Stanley School at South 19th Street and South Wilkinson Avenue, and McCarver Intermediate at Fifteen years later, the Sons of Norway South 21st Street and Yakima Avenue South constructed Normanna Hall a few blocks further [1925] were also built in this era. south on MLK Way. Their large brick hall also featured commercial businesses along K Street

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 258

Additionally, St. Leo's Roman Catholic High proprietors of shops selling groceries or dry School opened for grammar and high-school goods. aged boys in 1913. Through the 1920s, home ownership continued All these schools, public and private, were large to be an attainable goal for working class people brick structures, indicated the community's in Tacoma. In 1926, 60% of the "laboring class" commitment to education. were homeowners. The Hilltop, with a mix both rental and owner-occupied single family homes, The region's resource-based economy continued reflected that trend. to experience ups and downs, although none was as severe as the crisis of the 1890s. During By 1930, the neighborhood had taken on its World War I the shipyard contributed greatly to basic form: a mix of housing options, and a the city's workforce as it grew to employ 14,500 fairly uninterrupted grid of streets subdivided people. The expansion of Camp Lewis brought by transportation corridors such as MLK Way, even more people to the area. Sixth Avenue, South 19th Street, and South 23rd Street which attracted the bulk of the At the end of World War I, however, the commercial development. shipyards, sawmills, and coal mines in the area scaled back production, and as a result, many Filling In: 1930-1950 jobs were lost. The development of the The Great Depression of the 1930s slowed California oil fields diminished the importance Tacoma's economic expansion. During the of the local coal fields, and therefore the 1930s, the Hilltop saw little development importance of Tacoma as a coal-shipping port. activity other than government-funded projects. The slowdown endured until World War II, when In spite of these fluctuations, growth continued war-related production once again brought new in most resource-based industries. Inexpensive jobs and new workers to the city. In the 1940s, power rates had attracted numerous World War II expanded the numbers of manufacturing concerns, many processing personnel stationed at Fort Lewis and timber. Mills—employing over 10,000 people— reinvigorated Tacoma's shipbuilding and lumber lined the western shore of Commencement Bay, industries. and rail lines criss-crossed the tide flats. By 1925, Tacoma manufactured more forest Consequently, Tacoma's population began to products than any other city in America. grow again. In response to the upswing in Tacoma's port grew in importance, trading with population, new housing and commercial countries throughout the Pacific Rim, as well as properties were added in the Hilltop. Europe and the east of the United States via the Development had already reached all corners of Panama Canal. the Hilltop; new construction during this phase of the Hilltop's evolution both replaced existing In the Hilltop, these developments were buildings and filled in vacant lots. During this reflected in the employment opportunities for phase of the community's development, the community's residents. Industrial growth automobiles rather than the street car began to saw more men employed as riveters in the have the strongest influence on the patterns of shipyard or laborers at the saw mills. The community development. expansion of the city led to jobs for many Hilltop men in the building trades, on city street During the 1930s, the most significant building crews, or as conductors for the street construction in the community was government railways. funded. In 1935, after successful lobbying by the K Street Business Men's Association, the city Population growth increased opportunities for constructed Fire Station 4 on South 12th Street owners of neighborhood service businesses, at Cushman Street. Fire Station 4, one of two such as barber shops. Many of the stations built in the city as work relief projects, neighborhood's single women (who typically was designed not only to house fire service for lived with their parents) and many married the Hilltop, but also to be used as a training women without small children worked outside resource for firefighters from throughout the the home, contributing their wages to support city. the family. Although the traditionally male industrial and building trade jobs were not open In the early 1930s, the city also developed a to women, women from the Hilltop did find pump station at the base of the existing water employment as clerks, sales ladies, book tower on South J Street to augment the water keepers, domestics, dressmakers, and system. These structures, in addition to being two of the few public buildings constructed

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 259

during the 1930s in the Hilltop, are also two of the neighborhood's few examples of Art Deco Many Hilltop businesses weathered the architecture. economic pressures of the depression and the upheaval of World War II. While the smaller Workers streamed into Tacoma to take jobs in businesses experienced turnover in owners, the boom of war-related industries after the overall the commercial area experienced start of World War II. As a result, the housing continued growth, even after busses replaced vacancy rate in the city dropped to less than 2%. the cable car line in 1938. In the Hilltop this intense demand did not appear to generate a significant volume of new The "K Street" commercial center offered Hilltop construction. Instead, existing structures were residents an increasing array of entertainment, divided to house additional people. services, and goods. New businesses appeared following the war, including Hi-Gloss At the close of the war, the community saw Photography, the Play-Mor bowling lanes, increased construction of single-family several taverns, and appliance stores. dwellings, many on the periphery of the neighborhoods. While the single-family homes A sign of the area's growing identity as a remained the most common building type, these commercial center, businesses on K Street post-war homes introduced new architectural increasingly used their location, rather than the motifs—particularly those associated with the owner's name to identify themselves. In 1950, rambler style. the 1100 block of South K Street had the K Street Deli, the K Street Club Beer Hall, the K Street Typically one story, with a low-pitched roof, Barber Shop, and the K Street Theater. In 1940, these homes featured small front stoops instead the Puyallup-based Totem Foods chain of porches, and gave increased prominence to constructed a new building at the corner of S. the recently-introduced front garage. The 11th Street and South K Street. The development expressive wooden details seen on earlier of this large grocery store in the neighborhood homes in the community were no longer reflected a consumer trend away from small incorporated. Reflecting the growing popularity neighborhood stores specializing in produce, of the automobile, garages accessed from the meat, or baked goods, or farmers' markets to street, rather than the alley, became shopping at larger corporate owned increasingly common. Many earlier buildings "supermarkets." A week's worth of groceries were upgraded with concrete foundations to could now go in the trunk of the car, eliminating accommodate basement garages accessed from the need to shop daily for quantities of food the street. which could be carried home.

While some church construction took place in Reflecting the trend toward automobile- this era, the pace of construction was much oriented, single use commercial developments, slower than in the prior era of community several businesses established operations on development. Faith Temple, erected in 1942, South K Street in the 1940s on the edges of the was one of the few buildings to join the commercial district. community's extensive stock of church structures between 1930 and 1950. The Olympic Dairy bottling and distribution facility occupied a full half block at the corner Rather than new church construction, this era of 9th and South K Street. The dairy selected the saw some congregations shifting to more site because it offered good access for its suburban locations and others relocating to delivery drivers to all parts of town. A large buildings originally constructed for other rotating milk bottle mounted on the top of the congregations. Some congregations, while building provided a well-recognized local remaining in their original location, changed landmark. their names from ones clearly associated with a particular ethnic group to names which placed In 1949, long-time Hilltop business Johnson's more significance on religious themes. Candy Company built a new store on South K

For example, the German Baptist Church at 2001 South J Street became Calvary Baptist, and the First Norwegian Evangelical Lutheran Church became the Messiah Lutheran Church. Through all these changes, religion continued to play a significant role in community life-the Hilltop contained over 30 community churches in 1950.

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 260

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 261

Street (where it has been in operation ever Eastern Star. Valhalla Lodge, at 1216 K Street, since). remained the hall for the Swedish Order of Valhalla. These commercial businesses all located in single story buildings, in contrast to the earlier The experience of the Hilltop in the years two-story buildings developed in the "K Street" following the war generally reflected continuity commercial corridor. The one-story buildings with the patterns established since the reflected a trend away from pedestrian-oriented neighborhood's initial development. The Hilltop mixed-use commercial buildings with a first offered a wide range of housing options to the floor business and a shop keeper as resident people whose work built Tacoma's many above toward bigger commercial centers with a industries. regional focus and corporate operation oriented toward shoppers in automobiles. The community also featured a vibrant ethnic mix and a wealth of social and religious While World War II brought increased organizations, including churches, social, and opportunities to some Hilltop residents, others civic clubs. These institutions, along with the experienced extreme upheaval. The Japanese- neighborhood commercial districts and the "K American community, focused in the area Street" corridor, enabled the Hilltop to function around the Japanese language school at 1715 as an independent community—but one with Tacoma Avenue South, was well-represented in close ties to the larger city. the Hilltop's business community before World War II. In 1941, Japanese-Americans owned Historic residential properties seven grocery stores in the eastern part of the Hilltop. After the bombing of Pearl Harbor, The historic residential properties of the Hilltop however, the federal government evicted and include two basic types: single family dwellings, interned these Tacomans, shattering their and multi-family dwellings, which include semi- community and withdrawing their significant attached houses and apartment buildings. contributions to the Hilltop neighborhood. With the war's end, few returned to re-establish Single dwellings - people in the Hilltop businesses in the community. developed a wide range of housing types as a result of the 25 foot x 130 foot basic lot width. When the war ended, new residents continued to Consequently one finds a tremendous diversity settle in the Hilltop. Many who had migrated to in the sizes and style of the single-family the region to work in the war industries, or who houses on the Hilltop. had been at Fort Lewis, McChord, or Camp Murray during the war, decided to stay in the Even on the same block houses might range region. These new residents included many from tiny workman's cottages to larger homes African-Americans who had come west from the situated on two or more lots. Houses were built mid-west and southern states to participate in close to the lot lines and to neighboring homes, the war effort and escape discrimination and or spaced with gardens and orchards on the poverty. adjoining lots.

While, the expanding suburbs, populated with Architecturally, homes range from common car commuters, competed with existing city vernacular incorporating stylistic elements neighborhoods for residents, community popular at the time to larger architect-designed organizations held fast in the Hilltop. In 1950, a homes. Over time, builders used motifs from wide variety of community organizations based numerous popular architectural styles, on shared ethnic history, political interests, or including late-Victorian, bungalow, Queen Anne, labor activism shared Normanna Hall. Not only Craftsman, stick, and American foursquare the Sons and Daughters of Norway, but also the styles. Sons and Sisters of Herman, the Sons and Daughters of Italy, the Knights of Columbus, the Because development on the Hilltop tended to Gasoline Dealers Association, the International leapfrog rather than progress uniformly, one Brotherhood of Pulp and Paper Workers, the often finds homes from different phases of the Tacoma Civil Service League, and the Pierce neighborhood's development sharing the same County Democratic League met at the hall. block. While the Hilltop was developed and settled by people from a wide variety of At 1529 Tacoma Avenue, the Elks' Lodge backgrounds, the residential architecture of the continued to house African-American social and Hilltop reflects adaptation to the local trends benevolent organizations including Elks, the and construction techniques more than it Free and Accepted Masons, and the Order of the

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 262

expresses the heritages of the initial builders Other apartment buildings were three and four and residents. story brick boxes, taking designs from more urban commercial properties. The Mcllvane Architectural styles—or even details which Apartments at 920 South 9th Street, and the might associate with various ethnic groups—are McDonnell Apartments at 621 South Yakima not readily discerned in the buildings. Most Avenue represent this property type. homes featured wood-frame construction with wood siding, shingles, and ornament. Stone While the majority of apartments constructed in foundations are found on some of the earlier the Hilltop after 1900 were smaller infill homes. Many homes' foundations are either cast projects, toward the late 1920s large brick and stone or a concrete or concrete block concrete apartment blocks appeared. These replacement for an earlier foundation. Brick was brick buildings were typically four story walk- rarely used in the Hilltop for residential up blocks with rather simple architectural construction before the 1950s. ornament; advertisements emphasized modern amenities such as built-in radios. The buildings Most of the residential development in the tend to have little or no street setback. Hilltop consisted of individual houses rather than large multiple-home "tract" construction Apartments of this later type include the projects. However, at several locations in the Charlesbee Apartments [1928] at 801 South G neighborhood one can identify a series of Street, the Bolivar Apartments [c.1930] at 821 houses of built by the same developer. Such South Yakima Avenue and the Granada developments include the 1900 block of South G Apartments [1926] at 1224 South Yakima Street, the 700 Block of South J Street, or the Avenue. 2500 block of South Ash Street. Residential properties in the Hilltop are Multiple dwellings - a few multi-unit wood significant for their association with the frame apartment dwellings—known historically development of the Hilltop as a community as tenements—were built in the first phase of housing the workforce that sustained Tacoma's the Hilltop's development. One substantially economic and commercial development and altered property of this type remains at 1301 prominence. South G Street. The residential buildings document the wide Double (semi-attached) houses were another variety of housing options available to housing option. An example of a 1880s double Tacomans, and the architectural styles and house in the Hilltop stands at 1320 South I elements residents and builders selected over Street. Two groups of six row houses, built at time. The structures, both individually and the same time, now substantially altered, frame when considered in relation to each other, the 1300 block of South 7th and South 8th document the patterns of neighborhood Streets. Built around 1890, these homes are the formation. only identified row houses constructed in the Hilltop. Even individual residential structures which have experienced a loss of historic fabric still After the turn of the century, apartment living make significant contributions to the became a more widely accepted form of streetscape and to an understanding of the housing, and a significant number of multi-unit neighborhood's formation. properties appeared in the Hilltop. These buildings were primarily located in the Historic commercial properties northeastern part of the Hilltop, close to downtown Tacoma, and along the Sixth Avenue The historic commercial properties of the street car route. These buildings created a Hilltop community fall into two general transition from the commercial downtown to the categories: thoroughfare commercial and quieter single family residential districts neighborhood commercial. developing to the west and south. Neighborhood commercial - prior to Many of these apartments were two-story wood widespread ownership of refrigerators and frame structures, which took their design motifs automobiles, people bought fresh groceries from single family homes. Extant examples of frequently from local vendors. Small this type of structure include 1305 and 1317 neighborhood groceries, often with an Sixth Avenue, and 1402 South 8th Street. apartment for the grocer's family on the second floor, dotted the Hilltop.

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 263

These wooden structures were typically located and the social and historical factors which on a corner. The structures at 901 South I Street explain the structure and texture of the (1889) and 1602 South G Street (circa 1895) community. Extant commercial structures exemplify this type of structure. reflect both neighborhood self-sufficiency and the commercial role of the Hilltop within Small commercial nodes consisting of groups of Tacoma. shops also developed, usually in relation to a transit line. For example, several commercial Historic civic and social properties structures stood at the intersection of South 23rd Street and MLK Way where the trolley Properties associated with the historic civic and turned the corner. Additional commercial nodes social institutions of the Hilltop fall into three were developed at South 23rd Street and broad categories: government and public Hosmer and in the 700 block of Sixth Avenue. services, education, and social and civic Occasionally, these commercial properties drew organizations. Overall, resources of this type on features such as crenelated cornices which represent a range of architectural styles and refer to larger commercial buildings in the city. forms, reflective of their tremendously varied uses. Thoroughfare commercial- commercial properties with a community-wide clientele Public services and infrastructures - developed along the Hilltop's more heavily historically, a number of institutional buildings, trafficked streets. Most of these structures are sites, and structures in the Hilltop have located on MLK Jr Way near 11th Streets, which supported provision of vital public services to was historically an important transportation the community. hub. Major Hilltop trolley and street-car routes joined at the intersection of King Way and South Extant examples of this property sub-type 11th. include the Washington National Guard Armory [1908], the Carnegie Library [1903], Fire Station Early commercial buildings at this crossroads No. 4 [1935], Ferry Park [1888], and the Water were typically two-story brick buildings built Tower and Pump Station [1895/1930]. flush with the sidewalk. Many had office or residential space over ground floor retail space. Educational buildings - three historic schools- Central School [1913], McCarver School [1925], Later structures, such as the Totem Food and St. Leo's Roman Catholic High School Company's grocery, were only one story, with a [1913]—remain to document the history of large facade to give an impression of height. public and private school development in the Hilltop. The Hilltop's few manufacturing/processing concerns also can be considered thoroughfare Social and civic organizations - social and civic commercial structures. Production include the organizations, often organized around a snared Mattei Bakery [1912], and the Olympic Dairy ethnic or racial heritage, played a significant [1940] (both now substantially altered), as well part in the community life of the Hilltop. Some as the Johnson's Candy Company [1949]. groups had the resources to build facilities to provide meeting spaces and offices to support These facilities, all located on streets with their social and activist work. excellent access, relied on the Hilltop's central location in Tacoma to facilitate regional The Sons of Norway's Normanna Hall [1923], the distribution of their products. Other Swedish Order of Valhalla's Valhalla Hall [1906], thoroughfare commercial structures can be and the Federation of Colored Women's Clubs found along through streets such as Sixth Clubhouse [1956] represent this property sub- Avenue. type.

Significance - commercial properties in the Significance - civic and social institutional Hilltop are significant for their association with properties are significant for their association the development of the Hilltop neighborhood with the development of the Hilltop between between 1875 and 1950. The commercial 1875 and 1950. Properties of this type properties document both the change and document the delivery of municipal services in continuity of business patterns in the the Hilltop neighborhood, and the important neighborhood over time. historic role of the Hilltop community as a civic, educational, and social center within the City of These commercial buildings contribute to an Tacoma. understanding of the formation of the Hilltop

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 264

These buildings, structures, and open spaces explain the structure of the community. Some contribute to an understanding of the formation churches may have significant associations with of the Hilltop and the social and historical several religious organizations or ethnic or factors which explain the structure and texture racial groups, since church structures may have of the community. been occupied by a series of different congregations and denominations over time. Historic religious properties In addition to being places of worship, the The historic religious properties of the Hilltop Hilltop's religious structures have significance include examples of both neighborhood-scale as important neighborhood social centers. and larger community based churches. Many of the community's religious properties—no matter Historic Hilltop districts their size—were prominently located on corner lots. Areas in the Hilltop with a concentration of historic structures representing an historic Most of the Hilltop's earlier churches were wood property type or a mix of historic property frame structures with a front corner or center types may by identified as historic districts. steeple. While clearly identified by their scale and form as churches, these properties are often Because the Hilltop historically found not distinguished by their materials from commercial, religious, social and civic surrounding residential properties, and institutions distributed throughout the typically respect adjacent building setbacks. residential district, a district may feature a mix of property types. Also, since areas were The German Lutheran Church [1885] at 1307 continuously developed to meet the South I Street and Shiloh Baptist Church at 1221 community's changing needs, an historic South I Street are examples of pre-1900 wooden district may include properties associated with churches. The early 1900s saw a wave of church one or more of the neighborhood's historic construction, including the Norwegian Free contexts. Lutheran Church [1902], and the Zion Evangelical German Lutheran Church [1908]. Alternatively, a district might emphasize resources associated with the development of a The second phase of Hilltop development also particular addition (subdivision) within the included construction of several larger brick Hilltop and primarily contain properties from churches, including the Swedish Mission the historic context associated with that Tabernacle at 901 South 10th [1909], Trinity addition. United Presbyterian [1922], the Pentecostal Tabernacle [1929] and the St. Nicholas Greek Or, a district may primarily emphasize a sub- Orthodox Church [1925]. type of one of the associated property types, such as commercial structures, single dwellings, The massing and materials used in these or multiple dwellings. The existing South J structures set them apart from the surrounding Street National Register district, which residential structures. The smaller-scale wood recognizes a group of single dwellings, frame neighborhood church nevertheless exemplifies a district featuring a specific persisted as a style into the late 1920s with the property sub-type. construction of buildings such as St. Rita's Roman Catholic Church [1924], and the In delineating historic districts within the Evangelical Lutheran Church [1920]. community, the relationships of the buildings with each other and their role in creating a Significance - the Hilltop's religious buildings continuous streetscape should be noted. are significant for their association with the religious and social traditions of Hilltop's richly Since open space created by undeveloped lots diverse population. The religious structures are has been an historic aspect of the residential prominent markers of the presence of ethnic areas of the community, open lots within and religious groups within the community districts should be evaluated for their historic organized around shared cultural and religious significance in their particularly settings. traditions-groups which organized themselves to build and sustain houses of worship. Significance - districts within the Hilltop gain significance by documenting the development These religious properties contribute greatly to of the neighborhood to house the many diverse an understanding of the formation of the Hilltop working people who contributed to the growth and the social and historical factors which of the city and its businesses and industries.

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 265

uses and activities to various intensities. An Districts can document how land availability, increase in urban development and thereby the corporate real estate development, land overall population will create more activity and speculation, and immigration patterns, changing a demand to retrofit or redevelop existing housing trends, and transportation historical areas and properties. developments affected the patterns of neighborhood development. Additional use could exceed the capability of some of these sites if these lands and buildings Any identified historic districts within the are not properly protected. Potential reuse or Hilltop would emphasize the formation of the redevelopment of some of these areas could community out of the relationship between the alter their historic and aesthetic character, individual structures which together create the possibly destroying community value if not overall effect of neighborhood. properly protected. Potential redevelopment could also obscure aesthetic resources and Registration requirements - to be considered potential visual imagery if not planned and for nomination to the National Register of designed. Historic Places, historic properties and/or districts must generally meet two requirements. Typical project impacts that could disrupt or adversely affect archaeological or historical First, the property or district must be resources may include: significantly associated with the formation of the Hilltop neighborhood between 1875 and ƒ demolition, removal, or substantial 1950, or be associated with a person or group of alteration without consideration of historic people significant in the community's history, and archaeological sites and/or features; or it must be representative of one or more ƒ incompatible massing, size, scale or significant architectural forms, styles, or architectural style of new development on periods found in the Hilltop. adjacent properties; ƒ obstruction or extensive shading of Secondly, the property or district must retain significant views to and from a resource by integrity. "Integrity" for individual properties new development; generally implies retention of the significant ƒ incompatible use of an existing building or elements of the siting, original form or structure; structure, significant facades and materials, and ƒ disruption of integrity of setting; and the basic character of significant interior ƒ long-term loss of access to the property. spaces. "Integrity" for historic districts implies that the district conveys a sense of historic and The level of significance for an impact is architectural cohesiveness, particularly with dependent on the existing integrity and nature regard to the streetscape created by the scale, of contributing elements to a property’s historic siting, and setbacks of individual structures. or cultural significance and the sensitivity of the current or historic use of the resource. A property which is significant primarily for its association qualities, rather than its Under both alternatives, the prevailing Tacoma architectural features, may be considered for Comprehensive Plan, Zoning Map, and Tacoma registration if the dominant and characteristic Development Regulations would remain in features of the property are extant, even if some effect and all MLK area planning and loss of historic fabric has occurred. implementation policies would continue to be coordinated with these documents. Many of the Hilltop churches, commercial buildings, and residential properties have been Such developments could demolish and remove altered to accommodate the changing needs of all existing structures within the high density the religious organizations they house; these residential zoned areas including many older changes should be considered in any evaluation and possibly some historic buildings with process. architectural characteristics common of early Hilltop (MLK) settlement periods. 4.13.2: Impacts 4.13.3: Mitigation measures Both alternatives Both alternatives Both alternatives will allow development and redevelopment in the MLK subarea for urban The State Environmental Policy Act (SEPA)

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 266

requires all major actions sponsored, funded, tourism, encouraging citizen involvement in the permitted, or approved by state and/or local city’s history, and, overall, fostering civic pride. agencies undergo environmental review to ensure environmental considerations such as Action HP-1A impacts on cultural resources are given due Preserve and protect identified archaeological weight in decision-making. resources. Action HP-3A WAC 197-11 and WAC 468-12 require significant Provide tools to encourage cooperation between properties, specifically those listed or eligible advocates for historic preservation and for listing in the National Register of Historic sustainability. Places (NRHP) and the Washington Heritage Action HP-3B Register, be given consideration when state Provide information about the environmental undertakings affect historic and cultural values. benefits of preservation of existing buildings as part of the citywide sustainability program. Under SEPA, the Washington State Department Action HP-4A of Archaeology and Historic Preservation Update preservation design guidelines with (DAHP) is the specified agency with the solutions for the compatible application of technical expertise to consider the effects of a sustainable technologies to historic buildings. proposed action on cultural resources and to Action HP-5A provide formal recommendations to local Tailor energy efficiency standards to fit historic governments and other state agencies for resources. appropriate treatments or actions. DAHP does Action HP-8A not, however, regulate the treatment of Explore alternative tools for heritage properties that are found to be significant conservation that maintain neighborhood although a local governing authority may character. choose to uphold the DAHP recommendation Action HP-12A and may require mitigation of adverse effects Implement a program for public action when a to significant properties. highly valued historic property is threatened.

The degree to which an alternative adversely Goal: A Sustainable Community Supported by affects districts, sites, buildings, structures, and Preservation Efforts - Tacoma’s preservation objects listed or eligible for listing in the NRHP program should be at the forefront of the is the primary criterion for determining sustainability movement. Preserving and re- significant impacts under SEPA. Secondary using historic buildings is the equivalent of criteria include whether an alternative has the large-scale recycling. It conserves land, potential to affect districts, sites, buildings, maintains the energy invested in original structures, and objects listed in or eligible for construction and reduces demolition waste. listing in the Washington Heritage Register or Preserving historic structures has these the Tacoma Register of Historic Landmarks. environmental benefits:

Tacoma Comprehensive Plan Element 11: ƒ Embodied Energy and Building Materials - Historic Preservation Plan a historic structure carries the energy that went Historic preservation is an integral part of into the manufacture and transport of its planning for Tacoma’s future. The overall goals, materials, original construction and ongoing policies and actions are described in Tacoma’s maintenance. This embodied energy typically Historic Preservation Plan in element 11 of the represents between 15 and 30 times the annual Comprehensive Plan. Following is a summary of energy consumption of a property. While some actions that correspond to MLK subarea context building materials may be recycled, the and potentials. demolition of a historic building represents a loss of embodied energy and produces a Goal: A Livable Community with a Strong significant amount of landfill waste. Sense of History - the history of the Tacoma area and its residents serves as the foundation ƒ Building Materials - historic buildings were of the City’s identity into the 21st century. often designed for energy efficiency through Innovative Historic Preservation and Cultural use of local materials with long life cycles and Resource Management policies and procedures operable systems for passive heating, cooling, should build upon this identity by protecting ventilation and lighting. cultural resources, contributing to the long range planning process, providing economic ƒ Efficient Transportation - historic development opportunities, promoting heritage buildings are often part of traditional

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 267

development patterns where human-scaled The city should promote public action and development encourages walking, biking and potential acquisition of threatened historic mass transit use. Efficient transportation, resources as well as maintenance and provision especially the use of mass transit, also support of public access to city-owned resources. cultural and social sustainability. Management Tools Component - a diverse Goal: An Economically Vibrant Community assortment of preservation tools should serve Supported by Preservation - in Tacoma, Tacoma’s needs. These tools should be based on preservation contributes significantly to a national standards and best practices, and at the vibrant local economy. It supports economic same time should be tailored to Tacoma. development opportunities, retains local businesses and facilitates tourism development. Action HP-21A Historic buildings represent millions of dollars Consider expanding a demolition review and of infrastructure investment made by previous consideration period to non-designated generations. properties that may be historically significant. Action HP-22C Funds spent renovating these structures have a Establish an emergency preservation fund. greater multiplier effect in the local economy Action HP-24A than new construction. A higher percentage of Expand minimum maintenance code each dollar spent goes to labor in preservation requirements. projects which results in more jobs for the Action HP-25A community and more dollars re-circulated in the Clarify and clean up the existing preservation local economy. ordinance. Action HP-26B Policy HP-6 Explore context-sensitive zoning. Encourage active use of historic resources. Action HP-27A Policy HP-7 Identify a team leader to coordinate project Leverage the economic development review. opportunities provided by Tacoma’s historic Action HP-28A resources. Revise the City’s existing conservation district tool. Goal: Preservation is Integrated with Action HP-30A Community Goals and Policies - historic Provide user-friendly preservation design preservation should be integral to city planning guidelines that apply citywide. programs and balanced with other community development objectives. Preservation goals Goal: Resource designation categories help should be included throughout the city’s indicated priorities for conservation of comprehensive plan elements to ensure that resources - different types of designation historic preservation efforts are not isolated categories should be used to reflect degrees of from other city initiatives. significance, alternative approaches for protection and different management Policy HP-10 objectives. Having a range of program tools Integrate historic preservation policies into allows each one to better fit the intent of their citywide planning efforts. use. It also provides options for program Policy HP-11 flexibility. Capitalize on and promote historic resources in Policy HP-28 community planning efforts. Where historic Establish clear categories for resource resources are present, they should help guide designation. Identify levels of historic redevelopment of established areas, including designation for individual resources and the city’s designated Mixed-Use Centers. districts. The expanded set of designation levels should facilitate the strategic management of Goal: Historic Resources are Integral Features historic resources. Levels should reflect degrees of the Public Realm - the City should be a of significance, the intent of the designation leader in preservation by demonstrating best and the desired degree of protection of the practices in the management of its own historic resource. facilities, including buildings, parks and sites. Goal: The desired character of traditional Policy HP-12 areas of the city are maintained - preservation Promote best practices in the City of Tacoma’s and conservation efforts should be guided by stewardship of historic resources. standards and criteria that are tailored to

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 268

Tacoma. These should focus on retaining key regulations apply to both historic and non- features of traditional building while historic properties. accommodating compatible changes and new investment that respect the established context. The zoning code includes base zone districts and overlay districts. Base zone districts Policy HP-30 provide the regulations that apply to all Provide design guidelines that promote properties throughout the city while overlays compatible development. Clear, well-illustrated provide additional context-specific regulations design guidelines specific to Tacoma’s in certain areas. The code includes base zone resources should guide historic rehabilitation, districts for residential, commercial, industrial infrastructure maintenance and new and other uses at varying densities and scales. construction in historic or conservation districts. Citywide design guidelines should Special districts such as downtown districts and address the general treatment of historic Mixed-Use Center Districts apply to specific resources while more specific guidelines areas. The code also includes overlay districts address the unique character of individual such as the View-Sensitive Overlay, which historic districts. All design guidelines should enables special height regulations in view- be easily accessible and provide flexibility for sensitive areas. Additional design overlay property owners with differing financial districts may be developed to implement resources. neighborhood-specific zoning standards as part of an overall heritage conservation system. Ordinances bundled into the Tacoma Municipal Code establish the basic rules for construction Although Mixed-Use Centers often allow for related to historic resources and set forth the increased development opportunities, they also process for establishing protections for them. In provide incentives for historic preservation addition to the International Existing Buildings including waiver of parking requirements for Code (IEBC), several chapters of the Municipal existing buildings and height bonuses for Code relate to historic preservation. They are: voluntary historic designation, rehabilitation of adjacent historic buildings or preservation of ƒ Landmarks and Historic Special Review historic facades. Districts Code (Chapter 13.07) ƒ Zoning (Chapter 13.06) In some cases, the requirements of existing zoning districts may conflict with goals and Landmarks and Historic Special Review objectives for historic preservation because Districts Code - as a part of the municipal code, they allow for development that is out of the Landmarks and Historic Special Review character with the historic pattern. For example, Districts section is the primary mechanism for if maintaining low scale is a goal, zoning protecting historic resources. regulations that allow significant height increases could be incompatible. In other cases, This ordinance states the purpose of the zoning regulations may be incompatible with Tacoma’s goals and responsibilities to promote, preservation goals because they are too preserve, enhance awareness and protect the restrictive. finite resources that define the community. It establishes criteria for the designation of For example, if a goal is to preserve the buildings and districts, as well as policies and character of a neighborhood where houses were review procedures for their treatment. typically built very close together, zoning regulations that require a significant setback The code loosely follows the format of between properties could be incompatible. Washington State’s model historic preservation code, with the addition of sections adopting Building Code – requirements for fire safety, historic special review districts and their emergency exiting, seismic mitigation and other associated guidelines. construction-related issues are part of the building code. Tacoma uses the International Zoning Code - the basic regulations that shape Existing Building Code (IEBC) for projects development throughout Tacoma are part of the involving historic structures. City staff can city’s zoning code, which is provided in chapter assist applicants with flexible design solutions 13.06 of the Tacoma Municipal Code. The that promote preservation objectives and meet zoning code defines permitted uses and code requirements. densities as well as dimensional limits such as setbacks and building heights. These

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 269

Goal: The desired character of traditional Property tax incentives and federal income tax areas of the city is maintained - preservation credit programs are highly effective and their and conservation efforts should be guided by continued use should be a priority. Other standards and criteria that are tailored to programs complement these incentives and Tacoma. These should focus on retaining key should be featured as well. features of traditional building while Action HP-32A - Promote continuing use of accommodating compatible changes and new the Washington State Special Valuation program. investment that respect the established context. Action HP-32B - Promote continuing use of the Federal Income Tax Credit for certified Policy HP-30 rehabilitation of historic buildings. Provide design guidelines that promote Action HP-32C - Continue to seek ways to compatible development. Clear, well-illustrated apply the Current Use Assessment program to design guidelines specific to Tacoma’s cultural and historic resources. resources should guide historic rehabilitation, Action HP-32D - Promote use of the City’s infrastructure maintenance and new multifamily tax incentive in projects with construction in historic or conservation historic buildings. districts. Citywide design guidelines should Action HP-32E - Extend the use of grant and address the general treatment of historic loan programs. resources while more specific guidelines Action HP-32F - Consider a potential local address the unique character of individual sales tax rebate incentive, to apply to materials historic districts. All design guidelines should purchased in the city and used in an appropriate be easily accessible and provide flexibility for rehabilitation. property owners with differing financial Policy HP-33 resources. Enhance regulatory incentives to encourage Action HP-30A preservation and conservation. Focus on Provide user-friendly preservation design avoiding unintentional obstacles to preservation guidelines that apply citywide. Well-illustrated in other city regulations, and also provide design guidelines should be developed to added flexibility in other regulations as they address historic resources citywide, including apply to historic resources and conservation rehabilitation of buildings, sites and historic areas. infrastructure (such as brick streets). Action HP-33A - Promote appropriate use of Action HP-30B flexibility provided in the building code. Provide design guidelines tailored to individual Promote the International Existing Buildings historic and conservation districts. Code that facilitates the rehabilitation of older District-specific design guidelines should work buildings and trains code officials in their in concert with general, citywide guidelines and constructive use. Case studies should also be address features in the public and private published to address specific code issues that realms. Where district design guidelines already frequently arise and to demonstrate successful exist, an update should be scheduled. solutions. District design guidelines should: Action HP-33B - Promote the use of Mixed- ƒ Clearly illustrate the character of the Use Center and Downtown zoning incentives for districts preservation projects. Promote zoning ƒ Include a description of specific goals for incentives such as height bonuses for the area preservation projects in Mixed-Use Centers and parking waivers for existing buildings Goal: A coordinated system of incentives and Downtown and in Mixed-Use Centers. benefits stimulates preservation and Action HP-33C - Extend the range of zoning conservation in Tacoma. -Incentives should incentives for historic resources and support appropriate rehabilitation and conservation areas. continued use of historic resources. Incentives Policy HP-34 should also support owners seeking local Expand technical assistance programs to designation of eligible historic resources and promote preservation and conservation. conservation areas. Technical assistance is especially valuable to homeowners and to small commercial Policy HP-31 properties, but also may be strongly appreciated Offer incentives and benefits to cover a range of by institutional property owners. conditions. Action HP-34A - Explore a design assistance Policy HP-32 program (small assistance grants; voluntary Promote financial incentives that stimulate program). investment in historic properties. Action HP-34B - Explore the potential to

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 270

apply the Main Street program to neighborhood commercial centers. The NRHP recognizes properties that are Action HP-34C - Assist with tax credit significant at the national, state, and local certification. levels. According to NRHP guidelines, the Action HP-34D - Provide technical “how to” quality of significance in American history, information to property owners. architecture, archaeology, engineering, and culture is present in districts, sites, buildings, Goal: The public appreciates Tacoma’s diverse structures, and objects that possess integrity of history and its historical resources - promote location, design, setting, materials, the understanding of diverse historical workmanship, feeling, and association, and: perspectives and embrace Tacoma’s rich cultural history. ƒ that are associated with events that have made a significant contribution to the broad Policy HP-35 patterns of national history; or Provide tools to educate the public regarding ƒ that are associated with the lives of persons Tacoma’s history and resources. significant in the nation’s past; or Action HP-35A - Prepare educational ƒ that embody the distinctive characteristics publications on the City’s history and the of a type, period, or method of construction, benefits of historic preservation. or that represent the work of a master, or that possess high artistic values, or that Goal: Community organizations are strong represent a significant and distinguishable advocates for historic preservation - entity whose components may lack community organizations should be the primary individual distinction; or advocates for historic preservation in Tacoma. ƒ that have yielded, or may be likely to yield, Historic Tacoma, the Tacoma Historical Society, information important in prehistory or Pierce County Heritage League, and other history. interest groups are well equipped to play advocacy roles, with the City providing support. Ordinarily, birthplaces, cemeteries, or graves Leveraging the capabilities of these of historical figures; properties owned by organizations supports broad community religious institutions or used for religious involvement and facilitates efficient use of City purposes; structures that have been moved resources in other elements of the preservation from their original locations; reconstructed program. historic buildings; properties primarily commemorative in nature; and properties that Policy HP-39 have achieved significance within the past 50 Support existing partnerships for historic years are not considered eligible for the NRHP, preservation. unless they satisfy certain conditions. Policy HP-40 Foster new partnerships in historic The evaluation of integrity according to the preservation. NRHP is grounded in an understanding of a Action HP-40E - Work with affordable property’s physical features and how these housing organizations to use historic resources features relate to its historic significance. It is in their work. Collaborate with affordable through the retention of original character- housing partners, including the Tacoma Housing defining features that the significance of a Authority, to promote the benefits of historic resource is conveyed. The NRHP recognizes preservation. Most older neighborhoods have a seven aspects or qualities that, in various diversity of housing types and costs that are combinations, define the integrity of a difficult to replicate because of the substantial property, including: cost of new construction. ƒ Location - the place where the historic National Register of Historic Places property was constructed or the place where the First authorized by the Historic Sites Act of historic event occurred. 1935, the National Register of Historic Places ƒ Design - the combination of elements that (NHRP) was established by the National Historic create the form, plan, space, structure, and style Preservation Act of 1966 as “an authoritative of a property. guide to be used by federal, state, and local ƒ Setting - the physical environment of a governments; private groups; and citizens to historic property. identify the nation’s cultural resources and to ƒ Materials - the physical elements that were indicate what properties should be considered combined or deposited during a particular for protection from destruction or impairment.” period of time and in a particular pattern or

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 271

configuration to form a historic property. Tacoma Register of Historic Landmarks ƒ Workmanship - the physical evidence of the The Tacoma Register of Historic Landmarks is crafts of a particular culture or people during the local community’s formal mechanism for any given period in history or prehistory. recognizing those properties that are significant ƒ Feeling - a property's expression of the to the heritage of Tacoma. The Tacoma Register aesthetic or historic sense of a particular period is administered by the Tacoma Landmarks of time. Preservation Commission (LPC) established in ƒ Association - the direct link between an Tacoma Municipal Code Section 1.42. important historic event or person and a historic property. The Commission reviews and approves applications for changes to registered National Register historical listings landmarks and buildings within local historic Building Address Built districts, reviews nominations and advises City Schultz Apartments 1002-1004 Council regarding additions to the Landmarks Earnest S Brazill Register, and participates in the planning South J Street west side of South process. Historic District J Street between 7th-8th The Commission consists of 11 members, 8 of McIlvaine 920 South 9th whom must be Tacoma residents with Apartments Street professional experience in the fields of Wright Park and Division Ave to architecture, history, planning, construction, Seymour 6th Avenue, G-I engineering, real estate, the arts and art history, Conservatory Streets in addition to 3 at large members. Burkee-Francois 2326 South L 1904 House Street Any building, district, object, site, or structure Source: Tacoma Landmarks Preservation Commission that is more than 50 years old may be designated for inclusion in the Tacoma Register. Washington Heritage Register Properties must be significantly associated with The Washington Heritage Register is an official the history, architecture, archaeology, listing of historically significant sites and engineering, or cultural heritage of the properties found throughout the state that is community, and must also possess sufficient maintained by DAHP and includes districts, physical integrity. sites, buildings, structures, and objects that have been identified and documented as being Tacoma historic listings significant in local or state history, architecture, Building Address Built archaeology, engineering or culture. To qualify First Swedish Baptist 1201 South J Church Street for placement on the Washington Heritage Swedish Mission 901 South 10th Register, the resource must meet the following Church Street criteria. McCarver Elementary 2141 South I

School Street ƒ A building, site, structure or object must be Charles Madsen 1419 South at least 50 years old and if newer, the House Sheridan Avenue resource should have documented Source: Tacoma Landmarks Preservation exceptional significance. Commission ƒ The resource should have a high to medium level of integrity (i.e., it should retain Tacoma’s – Certified Local Government (CLG) important character defining features from Tacoma is a Certified Local Government (CLG) its historic period of construction). meaning the city has been certified by the State ƒ The resource should have documented Historic Preservation Officer as having historical significance at the local, state, or established its own historic preservation federal level. commission and a program meeting federal and state standards. Sites listed on the NRHP are automatically added to the Washington Heritage Chapter 13.07 of the Tacoma Municipal Code Register. (KMC) provides for the identification, evaluation, and protection of historic resources within the city and to preserve and rehabilitate eligible historic properties through special

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 272

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 273

valuation in accord with RCW 84.26 and to: ƒ It is, or may be, archaeologically important. ƒ safeguard the heritage of the city as ƒ It is a building or structure, which although represented by those buildings, objects, removed from its original location, has sites, and structures which reflect significant architectural value or is the only significant elements of the city's history; surviving structure significantly associated ƒ foster civic and neighborhood pride in the with an historical figure or event. beauty and accomplishments of the past, ƒ It is the birthplace or grave of an historical and a sense of identity based on the city's figure and is the only surviving structure or history; site associated with him. ƒ stabilize or improve the aesthetic and ƒ It is a cemetery, which is significant because economic vitality and values of such sites, of age, distinctive design, association with improvements, and objects; historic events, or culture. ƒ assist, encourage and provide incentives to ƒ It is a reconstructed building that has been private owners for preservation, restoration, executed in a historically accurate manner redevelopment and use of outstanding on an original site. historic buildings, objects, sites, and ƒ It is a creative and unique example of folk structures; architecture and design. ƒ promote and facilitate the early identification and resolution of conflicts Process for designating properties to the between preservation of historic resources register and alternative land uses; and, Any person may nominate a building, structure, ƒ conserve valuable material and energy site, or object for inclusion in the Register of resources by ongoing use and maintenance Historic Places. The Landmark Preservation of the existing built environment Commission (LPC) considers the Historic Inventory and Tacoma’s Comprehensive Plan. The city established the Tacoma Landmark Preservation Commission (LPC) for the purpose In the case of individual properties, the of inventorying and identifying significant designation includes the UTM reference and all historical features, sites, places, and buildings features interior, exterior, and outbuildings - important to the city’s historical development which contribute to it. and that qualify to be listed on Tacoma’s Register of Historic Places. The Landmark Preservation Commission (LPC) considers the merits of the nomination Tacoma’s Register of Historic Places - criteria according to the historic designating criteria Any building, structure, site, or object may be and according to the nomination review included in the Tacoma Register of Historic standards established in its rules, at a public Places if it is significantly associated with the meeting. Adequate notice is given to the public, history, architecture, archaeology, engineering, the owners and the authors of the nomination, if or cultural heritage of the city; if it has different, and lessees, if any, of the property integrity; is at least 50 years old, or is of lesser prior to the public meeting according to age and has exceptional importance; and if it standards for public meetings established in falls in at least one of the following categories: rules and in compliance with RCW 42.30, Open Public Meetings Act. Such notice includes ƒ It is associated with events that have made a publication in the city's newspaper of general significant contribution to national, state, or circulation, and posting of the property. local history. ƒ It embodies the distinctive architectural If the Landmark Preservation Commission (LPC) characteristics of a type, period, style, or finds that the building, structure, site or object method of design or construction, or meets the criteria for inclusion in the Register of represents a significant and distinguishable Historic Places, and the owner has consented, it entity whose components may lack designates the property historic property and individual distinction. places it upon the register. ƒ It is an outstanding work of a designer, builder, or architect who has made a Historic designation listing substantial contribution to his art. Properties listed on the Tacoma Register of ƒ It exemplifies or reflects the city's Historic Places are recorded on official planning architectural, cultural, social, economic, records with an HR (Historic Register) political, aesthetic, or engineering history. designation that does not change or modify the ƒ It is associated with the lives of persons underlying zone classification. Listing on the significant in national, state, or local Tacoma Register of Historic Places is an history. honorary designation denoting significant

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 274

association with the historic, archaeological, historical development of the Hilltop engineering, or cultural heritage of the city. community and the significance of the various identified property types. Prior to the commencement of any work on a Register property, excluding ordinary repair and In 1994, the City of Tacoma Office of Historic maintenance and emergency repair, the owner Preservation hired Eysaman and Company to must request and receive a Certificate of prepare a multiple property nomination and Appropriateness from the Landmark associated individual property nominations. Preservation Commission (LPC) for the proposed Working under the direction of Valerie Sivinski, work. Violation of the rule is grounds for the City of Tacoma Historic Preservation Officer, Landmark Preservation Commission to review Gerald Eysaman, principal, and Cloantha the property for removal from the Register. Copass, historic preservation specialist, prepared historic contexts which encompass the Prior to whole or partial demolition of a Register development of the Hilltop from its first property, the owner must request and receive a settlement to the beginning of the post-World waiver of a Certificate of Appropriateness. War II era.

Upon certification as a Certified Local Property types were categorized to acknowledge Government (CLG), properties listed on the and assess the variety of structures which house Register of Historic Places may be eligible for a all activities of community life. The City of special tax valuation on their rehabilitation. Tacoma Office of Historic Preservation intends that this multiple property documentation form In the event that any property is no longer will provide a framework for the completion of deemed appropriate for designation to the additional individual property nominations for Register of Historic Places, the Landmark related resources in the future. Preservation Commission (LPC), property owner, or purchaser may initiate removal from such Some of the buildings inventoried retained their designation by the same procedure as provided integrity of location, design, setting, for in establishing the designation. A property workmanship, materials, feeling and may be removed from the register without the association. However, some of the buildings do consent of the owner. not possess architectural or aesthetic qualities in a sufficient concentration or to have Hilltop (MLK subarea) historic inventory historically been a part of a plan of The development and nomination of historic development to qualify them for inclusion in resources in Tacoma's Hilltop neighborhood the National Register of Historic Places (NRHP) (MLK subarea and directly adjacent residential as a Historic District. neighborhoods) is based on a 1993 Cultural Resources Inventory of the Hilltop Community A number of the properties, however, displayed funded by the City of Tacoma and the State integrity sufficient to qualify them for inclusion Office of Archaeology and Historic Preservation. in a potential local Historic District or for listing in Tacoma’s Historic Register. The inventory, conducted by Eysaman and Company, was undertaken in order to update Some of these buildings experienced extensive information collected in a 1981 Cultural changes to their storefronts although it is Resources Survey and to evaluate the extent of possible that these properties could be restored alterations to previously identified resources. to their historic appearance if original fabrications and claddings are removed restored The survey team compared contemporary and with historic fabrics in kind. historic maps to identify over 2,000 extant buildings thought to have been constructed Financial incentives for historic prior to 1926. In selecting properties from this preservation large group for more detailed study and Federal and state historic tax credits (HTC) documentation, the survey team sought provide developers of historic properties with a structures representing building types which dollar-for-dollar reduction in taxes giving them were under-represented in the 1981 inventory. a strong incentive to take on historic rehab projects that would otherwise not be financially The survey resulted in the documentation of feasible. Such projects transform vacant over 260 properties from throughout the study properties, revitalize downtowns, and area which reflected the range of property types collectively, create an economic multiplier found in the community, and the preparation of effect. a "Survey Project Report" addressing the

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 275

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 276

Rutgers University, with support from the building’s adjusted tax basis (acquisition Historic Tax Credit Coalition, analyzed the 30- cost plus cost of improvements minus value year history of the HTC program and of land minus depreciation taken) whichever determined the program created 1,800,000 jobs, is greater. attracted $85,000,000,000 in new private ƒ The HTC is 20% of the eligible rehab and investment, and stimulated the local economy rehab-related “soft costs” including to a far greater extent than new construction. construction loan interest, appraisals, construction lender points, architectural The initial versions of the HTC required and engineering fees, and environmental developers to file for the tax credit after an evaluations. historic rehab project was complete. However, ƒ The exterior and interior rehab must meet many historic property developers and property the Secretary of the Interior’s Standards as owners have insufficient tax liability; earn too interpreted by the Station Historic much income ($250,000 or more); or are limited Preservation Office (SHPO) and the National in their ability to use the credits per the pass Park Service (NPS). loss limitations of the IRS. ƒ The credit may only be claimed by building owners after the property is place in service Others are subject to the Alternate Minimum (generally a certificate of occupancy); and Tax (AMT), a tax paid by individuals and investor may claim the credit only if they corporations that would otherwise have enough have admitted to the partnership before the credits and deductions to zero out their federal building is placed in service. tax liability. Until recently, the AMT could not ƒ The tax credit is applied against tax liability be reduced by the HTC. Furthermore, most and can be divided up and carried back 1 developers need the cash the HTC represents year and forward 20 years. (Individuals who during the project rather than on completion. earn more than $200,000 cannot claim the full value of the credit, and individuals who Developers can sell the HTC to a corporate earn more than $250,000 cannot use the investor in exchange for cash invested in the credit at all.) project. However, the legal and accounting fees ƒ Transfer of ownership or adverse change to involved are relatively high so if the credit value a character-defining feature of the building is low there is little incentive for a corporate during the 5-eyar compliance period triggers buyer. recapture of the credits (20% recapture for every year left in the compliance period). Housing & Economic Recovery Act (HERA) of ƒ The credit may be taken by the owner or be 2008 - authorizes individuals (real estate transferred to an investor. professionals – REPs) to acquire and apply the tax credit to lower their Alternative Minimum 10% Federal Historic Tax Credit (HTC) Tax (AMT) free of the passive loss limitations of ƒ The HTC is for nonresidential properties the IRS thereby expanding the market to include built before 1936 – a mixed-use project can individual local investors in tax credits as well take the 10% credit on the commercial as corporate investors. portion only. ƒ The building must be a non-certified 20% Federal Historic Tax Credit (HTC) historic structure, i.e., neither listed in the ƒ The HTC is a dollar-for-dollar reduction of National Register of Historic Places nor a federal tax liability for 20% of eligible costs contributing structure in the National to rehabilitate a certified historic structure. Register historic district. ƒ The property must be listed in or eligible for ƒ There is no review and there are no federal listing in the National Register of Historic design standards. Places or a contributing building in a ƒ The rehab must retain 50% of the original National Register historic district. exterior walls, and 75% of the original ƒ The building has to be an income producing exterior walls must remain either as exterior building –rental housing is eligible for the or interior walls. 20% credit. ƒ The rehab must keep 75% of the internal ƒ The application consists of Parts 1, 2, and 3 structural framework in place. and must be submitted to the State Historic Preservation Office, which makes Note - a National Register District: recommendations and submits the ƒ Does not restrict the use or disposition of application to the National Park Service property or obligate private property (NPS) for final approval. owners in any way. ƒ The rehab over a 24-month period must be ƒ Does not require conformance to design “substantial”, defined as $5,000 or the guidelines or preservation standards when

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 277

property is rehabilitated unless specific If the agreements are violated, the property preservation incentives (tax credits, grants) owner must pay back taxes which would are involved. otherwise have been owed, interest on back ƒ Does not affect state and local government taxes, and a penalty equal to 12% of back taxes activities. and interest. ƒ Does not prevent the demolition of historic buildings and structures within designated Alternative 2: MLK Subarea Plan areas. Note - a Local Register District: In addition to the measures listed under both ƒ Does not qualify property owners for alternatives, the following measures have been federal or state grants for preservation incorporated into Alternative 2: MLK Subarea purposes. Plan to mitigate possible adverse impacts: ƒ Does not restrict the use to which property is put in the district or require property 21: Design – redefine the MLK (and Hilltop) owners to make improvements to their brand to include arts and historical based property. themes and install artworks, gateways, way- ƒ Does not affect federal, state, or local finding signage, walking tours, maps, and government activities. streetscape at the entrances into and of significant landmarks in MLK. Washington State Tax Incentive Program - in 1985 the Legislature passed a law that allows for 24: Art and history walking tours – sign and a “special valuation” for certain historic create audio and phone apps for walking tours properties in the state. The law specifies that of MLK historical sites, buildings, and other following a rehabilitation project, property taxes visually interesting and significant landmarks will not reflect substantial improvements made for local recognitions as well as for historical to the property for a period of 10 years. To be tourist attractions. eligible for special valuation, a property must: 49: Design standards – create and adopt a ƒ Be listed in the National Register of Historic design overlay for the district that utilizes a Places, individually, or certified as hybrid “form-based” approach that illustrates contributing to the significance of a building and street-level design objectives using National Register Historic District as examples to better address historic character, certified by their local government or the pedestrian vibrancy, compatibility and design Washington State Department of quality issues within a flexible administrative Archaeology & Historic Preservation (DAHP). procedure that recognizes innovation. ƒ OR, be listed in the Local Register of Historic Places established by a Certified Local 52: Browne’s Star Grill/Pochert Building – Government (CLG). subject to feasibility assessments, retain as ƒ AND, be of a class of properties approved by much of the Browne’s Star Grill and Pochert the local government. historical buildings as possible and redevelop the remaining city property for mixed use The work must have been completed within 2 including ground floor retail, upper floor office years prior to application and must be equal in and/or mixed income housing. cost to at least 25% of the assessed value of the structure prior to rehabilitation. 54: MLK Housing Development Association (MLKHDA) – subject to feasibility assessments, Property owners must sign an agreement with support the redevelopment of the vacant the local review board that guarantees they will properties on MLK Jr. Way and J Street at 11th meet the following standards during the 10-year Avenue for mixed use with ground floor retail, tax exemption period: street level artist live/work housing, an educational center, and/or upper floor office ƒ The property must be maintained in good and mixed income housing activities and the condition. possible retention and incorporation of the ƒ The owner must obtain approval from the Tally Ho Tavern building. local review board prior to making further improvements. 55: Allen Renaissance Center – support the ƒ The property must be visible from a public restoration of the former Valhalla Hall for right-of-way, or otherwise be made available ground floor coffee shop and restaurant, and for public viewing once every year. upper floor performing arts, science and computer lab, and other outreach educational activities.

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 278

(TDR) for historic properties. The recently 56: Other private development opportunities – adopted TDR program for historic properties promote the redevelopment of underutilized may be utilized for the Browne’s Star Grill and surface parking lots, vacant lands, or underused Pochert Buildings if they can be certified by the buildings for new development projects, that Landmarks Preservation Commission as help to create a dense mix of uses throughout historically significant. the district, including retail, restaurants, office, personal services, medical facilities, and mixed- The following measures could be income housing, such as those illustrated for incorporated into implementation ordinances the Save-a-Lot and Safeway sites in the catalytic and programs to mitigate possible adverse project envelope studies. impacts:

Note – the catalytic projects assume TDR can be Alternative 2: MLK Subarea Plan includes a used to transfer historic building credits Planned Action Ordinance that will exempt between properties in the MLK subarea. The projects that are consistent with the projects envelope studies conducted for these sites also and parameters analyzed in this Draft EIS. assumed the projects could use the following Although SEPA will not apply, the mitigation height bonus provisions in the Level 1 Palette: measures identified in this Draft EIS will be applied to project permits that qualify as Retention, renovation and incorporation of a Planned Action projects and could include: designated or listed City Landmark adjacent to new construction. Renovation must qualify as a Archaeological testing - it is possible that “substantial rehabilitation” as defined in RCW intact buried deposits remain in areas not yet 84.26.020(2). Incorporation and renovation shall tested. Archaeological testing must be be coordinated with the City’s Historic completed for proposed projects that involve Preservation Officer and approved by the significant excavation or any changes made to Landmarks Preservation Commission. the vegetation and landforms near original Voluntary placement of any significant, historic settlements in the MLK subarea. Archaeological building in the same Mixed-Use Center on the project monitoring may be required for Tacoma Register of Historic Places. Notice of subsurface excavation and construction in these intent to utilize incentive required in writing high probability areas. prior to submittal of Landmark Nomination. Listing is subject to the approval of the Archaeological impact mitigation - in the event Landmarks Preservation Commission and City a development project is proposed on or Council. immediately surrounding a site containing an Retention and incorporation of an existing archaeological resource, the potential impacts façade that is 50 or more years in age. The on the archaeological resource must be project shall retain 100% of the original front considered and, if needed, a study conducted by wall surface, window and door configurations, a qualified archaeologist to determine whether cornice line, parapet and any original the proposed development project would architectural ornamentation. New construction materially impact the archaeological resource. exceeding the height of the original façade must be setback behind the street-side plane of the If the project would disturb an archaeological original façade. Subject to the approval of the resource, the city will impose any and all Historic Preservation Officer. measures to avoid or substantially lessen the impact. If avoidance of the archaeological The densities cited in the catalytic projects resource is not possible, an appropriate depend on whether the developer can conform research design must be developed and to the 10-foot height bonus provision implemented with full data recovery of the requirements outlined in Tacoma’s Title 13 archaeological resource prior to the Development Regulations as well as acquire and development project. The avoidance of use historic TDR allowances for historic archaeological resources through selection of preservation from the Browne’s Star Grill and project alternatives and changes in design of Pochert Buildings to the others. project features in the specific area of the affected resource(s) would eliminate the need A transfer of development rights (TDR) program for measuring or mitigating impacts. was recently adopted for historic rights by the City Council in accordance with Tacoma’s Structure relocations – when and where it Historic Preservation Plan Action HP-23A that proves impractical or undesirable to preserve an will allow a transfer of development rights identified and eligible structure, particularly older single family structures, the city, Tacoma

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 279

Landmark Preservation Commission (LPC), and impacts on archaeological and historical the developer could seek to relocate the resources, reducing them to less-than- structure to another site in order to preserve significant levels. and protect the structure, and provide a suitable location where the structure may be displayed and appreciated by the community at large.

Any such relocation would be accomplished in accordance with Tacoma’s Historic Preservation Plan Action HP-22E criteria: ƒ The structure is threatened by further deterioration or loss in its present location. ƒ All alternatives to relocation have been reasonably considered. ƒ The original building and site will be accurately recorded before removing the structure. ƒ Moving procedures are sufficiently planned to protect the key features of the structure. ƒ The relocation site provides an appropriate context similar to that of the original. ƒ A commitment is in place to complete the relocation and subsequent rehabilitation of the building. ƒ There is adequate protection to assure continued preservation of the building at its relocated site.

Public acquisitions - where private owners may desire and where practical, Tacoma could joint venture project developments to include the acquisition or preservation, development, and operation of unique archaeological or historical features, places or structures that would otherwise not be provided a means of being protected, showcased, or accessed by local residents.

Non-site-specific mitigation - could involve finding other opportunities in the community for mitigation measures that are not specific to the affected site(s). Some options for non-site- specific mitigation include developing an educational program, interpretive displays, design guidelines that focus on compatible materials, and professional publications.

4.13.4: Unavoidable adverse impacts

Under both alternatives, the undeveloped and underdeveloped lands in the MLK subarea will be redeveloped for higher intensity uses that will demolish buildings, excavate and grade earth, and develop new roads, buildings, and other improvements that could impact archaeological and historical assets that have not been identified to date.

Mitigation measures described under both alternatives, however, could address potential

Draft Planned Action Environmental Impact Statement (DEIS) MLK Subarea Plan Page 280