Creating Communities of Place Office of April 96 State Planning Memo Department of the Treasury Vol. II, No Governor Treasurer . 3 Christine Todd Whitman Brian W. Clymer HISTORIC PRESERVATION

This OSPlanning Memo presents informa- The State Plan includes goals and strate- This OSPlanning Memo was pre- tion to promote historic preservation gies designed to support historic preser- pared by the New Jersey Historic efforts by local officials, citizen and pro- vation. Indeed, one of the eight State Preservation Office with assistance from fessional planners, as well as concerned Plan goals is to “preserve and enhance his- residents and property owners. toric, cultural, open space and recreational the Office of State Planning. Additional lands and structures.” The Plan also information was contributed by the The New Jersey State Development and includes 12 statewide policies for historic, Center for Urban Policy Research at Redevelopment Plan recognizes that the cultural and scenic resources. Rutgers University and the New Jersey preservation of New Jersey’s significant Historic Trust. cultural resources benefits the physical, WHAT IS HISTORIC PRESERVATION? OSPlanning Memo is a monthly pub- environmental, and economic quality of Historic preservation is the identification, lication which highlights strategies, life and ensures the retention of the sense evaluation, and protection of historic and techniques and data of interest to the of place fundamental to all successful archaeological resources so that they con- planning community in New Jersey. I communities. Its vision encompasses the tinue to play an integral, vibrant role in welcome your comments on these memos development of new communities that not their communities. New Jersey’s historic and your suggestions for future topics. only conserve today’s cultural and natural properties and the environment in which resources, but will themselves become the they exist are irreplaceable assets that Herb Simmens, Director subjects of preservation efforts in the contribute to the quality of life that resi- Office of State Planning next century. dents enjoy and expect. 609.292.3155 [email protected] Historic properties are the physical links to our past, providing meaning to the present and continuity with the future. The economic benefits of historic preserva- They are the physical records of the tion are gaining visibility, as illustrated by events and people that shaped the pattern the preliminary findings of a study being of New Jersey’s history. Historic proper- conducted for the New Jersey Historic ties add visual and intellectual spirit to the Trust by the Rutgers University Center physical environment that New Jersey res- for Urban Policy Research. The study, idents experience daily. funded by the National Park Service, shows that every $1 million invested in Historic properties have both economic and rehabilitating historic residential proper- cultural value. They provide a sense of con- ties in New Jersey generates nearly 75 tinuity with the past, attract visitors, create a jobs and $2.5 million in economic activity sense of civic pride and provide opportuni- on the national level. Within the state, ties to enrich the education of our children. the same investment generates 25 jobs and $1.1 million in economic activity. For Historic preservation is more than saving each dollar of in-state funding matched by old structures; it also includes conserving outside dollars, the in-state impacts are scenic views and natural landscapes that are doubled, the study reveals. a part of our daily lives. These are treasures Binghamton Ferryboat, Edgewater, Bergen County we will surely miss if they are significantly Historic preservation is a recognized pub- Binghamton c. 1945 -1953 altered or destroyed. lic policy and activity. Supported and

OSPlanning Memo erties of national importance as National Historic Landmarks.

The National Historic Preservation Act of 1966 established the National Register of Historic Places as the official list of national historic resources worthy of preservation. This act also expanded the National Register to include buildings, structures, sites, objects, and districts significant in state or local, as well as national, history.

The benefits of National Register listing include recognition of significance, eligibility for federal investment tax credits for the rehabilitation of income-producing proper- ties, and consideration in the planning of federal or federally-assisted projects. The National Register does not place restrictions on the actions of private property owners. Old First National Bank (now, First Union Bank) c. 1895, Main Street and West Avenue, Woodstown, The National Historic Preservation Act also Salem County - Photo by: Matthew Gough authorized the creation of a historic preser- implemented at the national, state, and vation program in each state, with a state municipal levels, it is undertaken by individu- historic preservation officer appointed by als, organizations, and government. In New the governor, to administer historic preser- The National Register does not place Jersey, the public commitment to implement vation activities. In New Jersey, the State restrictions on the actions of private historic preservation is defined by three dis- Historic Preservation Officer is the property owners. tinct designation types: the National Register Commissioner of the Department of of Historic Places, the New Jersey Register Environmental Protection (DEP). The DEP of Historic Places, and designation by a Commissioner is also a member of the State municipality pursuant to the authority of the Planning Commission. New Jersey Municipal Land Use Law, the state enabling legislation for planning, zoning The State Historic Preservation Office (HPO) and land development regulation. is located within the DEP’s Division of Parks and Forestry. The HPO processes nomina- In addition, various state, county and munic- tions to the National Register of Historic ipal agencies that promote economic devel- Places, implements state and federal preserva- opment, affordable housing and natural tion programs and provides guidance and resource conservation meet their objectives technical assistance to the public, public For private property owners, listing in by promoting historic preservation. For agencies and private entities. the New Jersey Register of Historic example, the New Jersey Housing and Mortgage Finance Agency’s low-income tax Places does not mean that limitations NEW JERSEY REGISTER OF HISTORIC will be placed on the property by the credit program, the state Green Acres pro- state or federal government. Within gram for open space conservation, and the PLACES the limits of municipal zoning laws, N.J. Department of Transportation’s pro- The New Jersey Register of Historic Places private property owners are free to uti- gram of “Local Aid for Centers” all seek to Act of 1970 (N.J.S.A. 13:1B-15.128 et seq.) lize, renovate, alter, sell or demolish coordinate activities with local historic established the New Jersey Register of their properties. preservation efforts. State Plan policies sup- Historic Places as the state’s official list of port those programs, as well as “Main historic resources. The New Jersey Register Street” programs that aid in protecting his- is modeled after the National Register and toric sites and structures during the revital- uses the same criteria for evaluating the eligi- ization of traditional downtown areas. Scenic bility of resources and the same forms for Byways programs on the State and County nominating properties. Nominations to the levels also promote the objectives of historic New Jersey Register and applications for preservation. authorization of projects affecting properties listed in it are both processed by the HPO. NATIONAL REGISTER OF HISTORIC Listing in the New Jersey Register of Historic PLACES Places provides recognition of a property’s The most effective protection of his- The first national register was established by historic importance and assures protective toric resources is designation and Congress in 1935 with the passage of the review of public projects that might adverse- regulation at the municipal level. Historic Sites Act. This act directed the ly affect the character of the historic proper- Secretary of the Interior to designate prop- ty. All public undertakings affecting regis- 2 HISTORIC PRESERVATION tered properties are subject to review and approval in accordance with the New Jersey Some Distinctive Properties on the National and Register of Historic Places Act and are New Jersey Register of Historic Places implemented through state regulations (N.J.A.C. 7:4 et seq.). Property Municipality County Notes Lucy the Elephant Margate Atlantic National historic landmark For private property owners, listing in the Binghamton Ferryboat Edgewater Bergen Restaurant New Jersey Register of Historic Places does Radburn Fair Lawn Bergen Planned “suburban” community not mean that limitations will be placed on Stone Arch Railroad Bridge Bordentown Burlington First street over RR grade separation the property by the state or federal govern- Penn Station Newark Essex Historic railroad station ment. Within the limits of municipal zoning Holland Tunnel Jersey City Hudson National historic landmark laws, private property owners are free to uti- Green Sergeant’s Covered Bridge Delaware Hunterdon N.J.’s only surviving covered bridge lize, renovate, alter, sell or demolish their Trenton Bath House/Jewish Center Ewing Mercer Louis Kahn design for community properties. Court Street School Freehold Monmouth African-American school Horn Antenna Holmdel Monmouth AT&T Bell Labs radio telescope Delaware & Raritan Canal various various Historic transportation route MUNICIPAL HISTORIC PRESERVATION Oppossum Rd. Stone Arch Bridge Montgomery Somerset Stone bridge nomination The most effective protection of historic Town Center Historic District Newton Sussex Traditional town square resources is designation and regulation at Sterling Hill Mine Ogdensburg Sussex Zinc mining museum the municipal level. As noted, listing on Old Mine Road various Sussex/Warren Historic road either the New Jersey or National Register Great Meadows Railroad Station Independence Warren Former Lehigh & Hudson River RR of Historic Places does not bar a private Courtesy of the New Jersey Historic Preservation Office, NJDEP. property owner from altering or even demolishing a listed property.

The Borough of Haddonfield in Camden nent and element of the master plan County initiated the first municipal designa- on the preservation of historic sites tion of historic properties as early as 1971. In and districts. 1985, municipal regulation of historic If a municipality has an ordinance to resources was challenged in the courts, when The Municipal Land Use Law requires that protect historic places, it must also the New Jersey Supreme Court declared all historic sites and historic districts desig- have a related historic preservation invalid an ordinance designating and regulat- nated in local zoning ordinances be based on element. ing historic sites and districts in Middletown identifications in the historic preservation Township, Monmouth County. This chal- plan element of the Master Plan (c. 40:55D- lenge to the designation of historic 65.1). Thus if a municipality has an ordinance resources led to an amendment to state to protect historic places, it must also have a land-use law to permit the identification and related historic preservation element. designation of historic sites and districts as part of the municipal planning and zoning Some of the most recent municipal Historic process. Preservation elements and ordinances have included photographs and drawings. In cer- Municipal Land Use Law tain instances, these pictures have been Local governments in New Jersey derive incorporated in place of text to provide a their authority to identify, evaluate, desig- vision of preservation efforts in the commu- In the built environment, historic nate and regulate historic resources from nity. The latest technology now enables preservation includes buildings, the state Municipal Land Use Law (MLUL), municipal officials to create three-dimention- structures, objects, sites, and dis- the enabling legislation for historic preserva- al plans and ordinances. tion zoning (N.J.S.A. 40:55D-1 through 136). tricts. The State Plan supports local preservation Successful preservation requires careful plan- efforts by including a policy on municipal ning. The MLUL recognizes this relation- programs that recommends the inclusion of ship between planning and protection by historic surveys and scenic corridors in local including a historic preservation plan ele- master plans. Another policy seeks to ment as an optional element of the municipal coordinate the identification of historic master plan. Article 3, “Master Plan,” areas, historic sites, landscapes, archeolog- (C.40:55D-28 b.10) defines the historic ical sites and scenic corridors for inclu- preservation plan element as: sion in registers and planning documents. A historic preservation plan element: These places may be designated as (a) indicating the location and signifi- “Critical Environmental/Historic Sites” As interest in historic preservation cance of historic sites and historic (CEHS) on local plans and the Resource has grown, the concept of what should districts; (b) identifying the standards Planning and Management Map of the be evaluated and preserved has used to assess worthiness for historic State Plan. broadened. site or district identification; and (c) analyzing the impact of each compo- 3 OSPlanning Memo structure, such as a battlefield, landscape or the ruins of a building or structure.

District: a geographically definable area containing buildings, struc- tures, objects and/or sites that are linked historically or aesthetically by plans or physical development and acknowledged to possess col- lective importance.

As interest in historic preservation has grown, the concept of what should be evaluated and preserved has broadened. This evolution of historic preservation practice has linked the preservation of these five categories of historic resources to the protection of scenic, rural, and cul- tural landscapes, scenic and historic corri- Railroad Underpass, Farnsworth Avenue, Bordentown, Burlington County dors, and “greenways” and “blueways.” This evolving practice is recognized and Identification And Evaluation supported by the policies of the State Plan Identification is a fundamental part of any in establishing regional, publicly accessible comprehensive plan or program designed greenways both to preserve historic corri- to protect historic resources. dors and to provide passive and active Identification is undertaken for the pur- recreational and cultural opportunities. pose of locating historic properties and For example, the Delaware and Raritan Municipalities with historic preserva- integrating them into the overall planning Canal, still functioning as a water supply tion commissions and State Plan cen- process. Field survey, research, and his- canal, linear park, and scenic and recre- ter designation include: Camden, toric and archival analysis are all part of ational corridor, is listed on the New Hopewell Borough, Jersey City, the process of identification. Jersey and National Registers of Historic Newark, Newton, Paterson, Trenton Places. and Woodstown. In the built environment, historic preser- vation includes buildings, structures, The State Plan also encourages the identi- objects, sites, and districts. The National fication, delineation, protection and Register of Historic Places defines these preservation of scenic corridors. The for- terms: mer Central Railroad of New Jersey main line, a historic transportation corridor Building: any structure created to across northern New Jersey now operated shelter human activity; examples by NJ Transit as the Raritan Valley Line, would include, houses, barns, has recently been recognized by the schools, railroad stations, theaters, Keeper of the National Register as a linear factories. historic district eligible for listing. These historic properties illustrate both the con- Structure: any construction other temporary value and the multiple identi- than a building; examples would ties and uses of historic properties. include bridges, lighthouses, water towers, tunnels, and civil engineer- Linked with the identification of historic ing structures such as a canal. resources is the evaluation of significance. Evaluation applies criteria of significance Object: a construction of functional, and integrity to establish the priorities of aesthetic, cultural, historical or scien- registration, designation and protection. tific value, that may be moveable but The National Register of Historic Places is also generally related to a specific Criteria of Eligibility is the most common- setting or environment; examples ly applied standard for evaluating the sig- would include boats, locomotives, nificance and integrity of historic monuments, sculpture. resources.

Site: the location of a significant To be eligible for the New Jersey and event, prehistoric or historic activi- National Registers of Historic Places, a Cape May, Cape May County ty or remnant of a building or building, structure, object, site or district 4

HISTORIC PRESERVATION must be significant in American history, architecture, archaeology, engineering or Number of Municipalities culture at the national, state or local level and possess integrity of location, design, with Historic Preservation Ordinances setting, materials, workmanship, feeling (by year of passage) and association. Significance is evaluated using the four Criteria of Evaluation: 90 Criterion A: Associated with events that have made a significant contri- 70 bution to the broad patterns of our history 50 Criterion B: Associated with the lives of persons significant in our past 30

Criterion C: Embodying the dis- 10 tinctive characteristics of a type, period, or method of construction, or represent- 1970 1972 1980 1988 1974 1976 1978 1982 1984 1986 ing the work of a master or possess high 1990 artistic values, or representing a signifi- cant or distinguishable entity whose com- the municipality pursuant to criteria ponents may lack individual distinction The goal of design guidelines is to identified in the survey report; ensure the appropriate treatment or . Criterion D: Have yielded or sensitive alteration of historic proper- ● making recommendations to the may be likely to yield information impor- ties, the maintenance and retention of tant in prehistory or history. planing board on the historic preser- historically and architecturally signifi- vation plan element of the master cant details, and the visual compatibil- Information regarding the New Jersey and plan and on the implications for ity of new construction in historic dis- National Registers, including the applica- preservation of historic sites of any tricts. tion of the National Register Criteria for other master plan elements; Evaluation and guidelines for assessing sig- nificance, is available from the HPO. ● advising the planning board on the inclusion of historic sites in the rec- In drafting and implementing the State Historic Preservation Commissions ommended capital improvement pro- Plan we have learned that we must Since 1986, amendments to the MLUL gram; identify and protect historic resources have enabled municipalities to designate not only because of their links to our and protect historic sites and districts. ● advising the planning board and past, but also because of their ability Historic preservation designation at the board of adjustment on applications to shape our future. municipal level is a separate action that is for development pursuant to section not connected to listing in either the New 24 of P.L. 1985, c. 516 (C.40:55D-110); Jersey or the National Register of Historic The vision of the State Plan encompass- Places. ● providing written reports pursuant es the development of new communi- to section 25 of P.L. 1985, c. 516 ties that not only conserve today’s cul- More than 140 municipalities have estab- (C.40:55D-111) on the application of tural and natural resources, but will lished local commissions to aid preserva- the zoning ordinance provisions con- themselves become the subjects of tion activities. Municipalities with historic cerning historic preservation; and preservation efforts in the next centu- preservation commissions and State Plan ry. center designation include: Camden, ● carrying out other advisory, educa- Hopewell Borough, Jersey City, Newark, tional and informational functions to Newton, Paterson, Trenton and promote historic preservation in the Woodstown. State Plan center designation municipality. does not require historic preservation designation, but efforts to coordinate Although listing in the New Jersey and both types of planning should be encour- National Registers of Historic Places may aged. give added recognition to historic proper- ties and encourage additional preservation Sections 107 through 112 of the MLUL activity, neither New Jersey nor National define the organization, responsibilities Register listing interferes with a private and powers of historic preservation com- property owner’s right to use, alter or missions established by municipal ordi- dispose of a historic property. Historic nance. The identified responsibilities of preservation efforts affecting private Great Meadows Railroad Station, Independence commissions are: property are therefore limited to actions Township, Warren County ● preparing a survey of historic sites of Photo by: Dennis Bertland 5 OSPlanning Memo the visual compatibility of new construc- tion in historic districts. Design guide- lines are the legally adopted standards used to guide the decisions of historic preservation commissions and to help res- idents and property owners protect and enhance designated historic properties and districts.

The Secretary of the Interior’s Standards for Rehabilitation and Guidelines for Rehabilitating Historic Buildings is one nationally acknowledged resource for preparing design guidelines. The Standards and Guidelines establish a basic historic preservation philosophy of identi- fying, retaining, and preserving the form and details of historic properties. This philosophy is implemented through a hierarchy that emphasizes maintaining and protecting first, repairing second, and replacing only when maintenance or Opossum Road Bridge, Montgomery Township, Somerset County repairs are not feasible or cost-effective. Photo by: Marvin A. Brown The Standards and Guidelines also include enabled by the Municipal Land Use Law. ations, improvements, demolition, his- guidance for replicating or reconstructing toric properties, etc.; missing elements and adding to or alter- Historic Preservation Ordinances ● criteria and procedures for the desig- ing historic properties. Communities may adopt a zoning ordi- nation of historic sites and districts; In preparing design guidelines that satisfy nance that designates and regulates his- ● procedures for the review of alter- the needs of municipal historic designa- toric sites or historic districts and estab- ations, new construction and demoli- tion, the general recommendations from lishes design criteria and guidelines. tion affecting designated historic the Standards and Guidelines are amplified Historic preservation designation is properties; and customized by incorporating histori- described as an “overlay” to zoning ● standards and guidelines for historical- cal data on the physical and spatial devel- because, as Section 65.1 of the MLUL ly appropriate and compatible alter- opment of the community and informa- states, historic designation is “in addition ations and new construction (design tion on the height, size, setbacks, con- to such designation and regulation as the guidelines). struction materials and architectural zoning ordinance may otherwise require.” style(s) of designated historic properties. Design Guidelines Design guidelines often focus on building Historic preservation ordinances vary As with criteria for evaluating historic sig- facades, materials and surface treatments, among municipalities in the degree of nificance and integrity, design guidelines windows, entrances and porches, doors, authority granted to commissions to pro- provide an objective, uniform and consis- and ornamental details such as cornices tect designated historic properties. More tent foundation for making decisions on and trim. Design guidelines for commer- than 90 New Jersey municipalities have alterations, new construction or demoli- cial historic districts would also include historic preservation ordinances. tion affecting historic properties. State recommendations for storefronts and Plan policies recommend that municipali- signs. The strongest ordinances allow the his- ties incorporate into their planning and toric preservation commission to review development review activities design Guidelines for new construction include proposed alterations, new construction, guidelines that protect the character of the details specified above as well as “visu- and demolitions affecting designated his- historic sites, landscapes and structures; al compatibility factors.” These factors toric properties and to make binding deci- promote adaptive re-use; and enable relate to siting (setback and orientation to sions regarding the issuance or denial of development and redevelopment that the street), size and scale, directional municipal permits. An alternative maintain, complement and enhance scenic emphasis (vertical or horizontal) and approach to permit review grants the and cultural values. rhythm (the relationship of solids to voids planning or zoning board the decision- in building facades and the relationship of making authority after the historic preser- Design guidelines are formulated on the built to open spaces). vation commission has issued a recom- basis of the historic and architectural mendation. character of the designated historic prop- erties. The goal of design guidelines is to Ordinances adopted pursuant to the require- ensure the appropriate treatment or sensi- STATE PLAN AND HISTORIC PRESER- ments of the MLUL generally contain: tive alteration of historic properties, the VATION ● a statement of purpose and intent; maintenance and retention of historically With the adoption of the New Jersey ● definitions of terms, such as alter- and architecturally significant details, and State Development and Redevelopment Plan, historic preservation planning has 6 HISTORIC PRESERVATION begun to integrate municipal protection The element also of historic resources with implementation evaluated strate- of the goals and objectives of the State gies and actions Plan at the local level. Two municipalities to protect his- that have begun the process of integrat- toric resources ing historic preservation with the goals and integrate and objectives of the State Plan — and them into Centers with the Centers designation process in — including the particular — are the Town of Newton in use of historic Sussex County and West Milford districts as models Township in Passaic County. for development within Centers Newton, the county seat, in September and the use of 1993 became the first municipality desig- historic preserva- nated a Regional Center by the State tion design guide- Planning Commission. It has maintained a lines for develop- municipal historic preservation ordinance ment in historic and commission since 1987. districts in or next to Centers. In 1994, the HPO awarded Newton a grant to update the historic preservation In integrating the element of its municipal master plan. State Plan and his- Spring Street, Newton, Sussex County Additional grant-funded work the follow- toric preservation, Photo by: Matthew Gough ing year produced site plan and design we find that his- guidelines for one residential and one toric preservation is as much about the Plan we have learned that we must identi- commercial historic preservation target future as it is about the past. The State fy and protect historic resources not only area. Plan defines “Community of Place” as a because of their links to our past, but “dynamic, diverse, compact and efficient also because of their ability to shape our West Milford also received a grant to center that has evolved and been main- future. Historic preservation helps us prepare the historic preservation element tained at a human scale, with an easily identify the enduring and valuable, and of its master plan, which expanded greatly accessible core of commercial and com- provides a model for planners, developers upon the scope of the conventional munity services, residential units and rec- and builders. By identifying the features preservation element. Among the sub- ognizable natural and built landmarks and of the built environment that we collec- jects examined in the West Milford ele- boundaries that provide a sense of place.” tively value, we can use them to upgrade ment were the anticipated patterns and The Community of Place is the contem- the quality of design today and to create location of development and redevelop- porary expression of a historic communi- the historic resources of tomorrow. ment, the delineation of identified or ty or district. planned “Centers” as defined by the State Plan, and the physical relationship between Centers and historic sites and districts. In drafting and implementing the State

TECHNICAL ASSISTANCE Information on historic preservation, the New Jersey and National Registers of Historic Places, municipal historic desig- nation, design guidelines, and the municipal planning studies referenced in this article are all available from the:

Historic Preservation Office New Jersey Department of Environmental Protection CN 404 Trenton, New Jersey 08625

(609) 292-2028

For further information on the State Development and Redevelopment Plan or any of the tools to implement the Plan, such as Center Designation, contact the Office of State Planning.

Lucy the Elephant, Margate, Atlantic County Photo by: Jack E. Boucher

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OFFICE OF STATE PLANNING Tomorrow's New Jersey Department of the Treasury BULK RATE NEW JERSEY 33 West State Street, CN 204 US POSTAGE PAID Trenton, New Jersey 08625 Trenton, NJ Permit No. 21

OFFICE OF Toll Free Meeting Information: 1-800-522-0129 Office of State Planning Phone: (609) 292-7156 State Planning Office of State Planning Fax: (609) 292-3292

STSTAFFAFF Herbert Simmens, Director

State Agency Coordination Research Mary Housel, Executive Secretary to the Director (609) 292-7155 Charles Newcomb, Assistant Director Robert Kull, Assistant Director (609) 633-6912 (609) 292-3096 Kathleen Kelly, Assistant to the Director (609) 633-9648 Wendy McVicker, Secretarial Support James Reilly, Senior Research Planner (609) 633-6927 (609) 292-3589 Carlos Rodrigues, Manager, Special Projects (609) 292-3097 Local Planning Assistance William Bauer, Research Planner (609) 292-3228 David Maski, Unit Manager & Northeast Office Services Area Planning Manager - Bergen, Essex, Nichole Purcell, Research Planner Hudson, Middlesex, Morris, Passaic, (609) 633-9647 Carol Schulz, Chief of Office Services Somerset and Union Counties (609) 292- (609) 633-6929 3732 Steven Karp, GIS & Cartography (609) 292-3160 Diane Chepega, Graphics Coordinator David Hojsak, Delaware River Area Planning (609) 292-3170 Manager - Burlington, Camden, Gloucester, Sheila Bogda, Secretarial Support Hunterdon, Mercer, Sussex and Warren (609) 292-3744 Denise Johnson, MIS (609) 292-3158 Counties (609) 292-5248 Special Assistance Carol Cavallo, Administrative Analyst Bill Purdie, Coastal Area Planning Manager - (609) 633-6942 Atlantic, Cape May, Cumberland, Tom Dallessio, Public Affairs Manager Monmouth, Ocean and Salem Counties (609) 292-3502 Sandy Giambrone, Secretarial Support (609) 292-3730 (609) 292-3156