PLANNING COMMISSIONERS An Introduction to Historic Preservation Planning How communities are benefiting from local preservation policies. 3
Historic N EWS & I NFORMATION FOR C ITIZEN P LANNERS Preservation is Smart Growth LANNING FOR Why preservation is one — P — of the most important tools in the Smart Growth movement. Historic Preservation 12
Preservation Ordinances FAQ about local preservation ordinances. 14
Preservation Takes Center Stage Bravo! 16
Boosting Local Economies The positive impacts of historic district zoning. 20
PLANNING COMMISSIONERS JOURNAL / NUMBER 52 / FALL 2003 www.plannersweb.com FROM THE EDITOR PRESERVATION PLANNING PLANNING COMMISSIONERS
3 C’s of Preservation 3 An Introduction to Historic Preservation Planning Continuity. In our rapidly changing world, by Amy Facca it is vitally important to preserve our links to the past. Yes, change is inevitable, and it often leads Planning for historic preservation has Champlain Planning Press, Inc. to improvements in our towns and cities. But evolved far beyond saving the homes of P.O. Box 4295, Burlington, VT 05406 rapid change also carries its costs, threatening famous people. As preservation planner Tel: 802-864-9083 • Fax: 802-862-1882 our sense of stability, and our feeling that we’re Amy Facca describes, it now involves the E-mail: [email protected] connected to past generations. Preservation also revitalization of historic downtowns, as plannersweb.com visibly reminds us of how our communities have well as commercial, residential, and even evolved over time. industrial districts. As such, preservation Editor Editorial Coherence. Much of what was built in the has become an important economic devel- Wayne M. Senville Advisory Board 19th and early 20th century worked well as an opment tool. A look at the basics of plan- Larry Frey, AICP “ensemble.” Neighboring buildings comple- ning for historic preservation. Office Staff Bradenton, Florida mented each other, much better than has usually Elizabeth M. Krumholz Lee A. Krohn, AICP been the case in recent decades. Just consider 12 Historic Preservation is Smart Growth Office Manager Manchester, Vermont the typical groupings of commercial buildings by Donovan D. Rypkema that lined – and still line today – Main Streets Margaret Ellis-Green Wayne Lemmon from coast-to-coast. They provide a sense of Why historic preservation is integral to the Kelly Horan Somers, New York coherence to cities and towns, large and small. principles of “Smart Growth.” Assistant Editor Christopher Leo As historian Richard Francaviglia has observed: Winnipeg, Manitoba “Although our Main Streets may have individual 14 Historic Preservation Ordinances: Larry Pflueger Frequently Asked Questions Clearwater, Florida King Leonard, AICP personalities and regional characteristics, they Lompoc, California are instantly recognizable as American.” by Julia H. Miller, Esq. PCJ Columnists Ross Moldoff Creativity. It is not a contradiction to say Perhaps the single most important tool in Salem, New Hampshire that historic preservation values creativity. In local historic preservation efforts is the Elaine Cogan Portland, Oregon fact, there has been much more creativity in the preservation ordinance. Yet these ordi- Christine B. Mueller adaptive reuse of historic buildings than in the nances are often controversial and poorly Michael Chandler Lawrenceburg, Indiana bland character of many new buildings. understood. Answers to some of the most Blacksburg, Virginia Irv Schiffman Preservation has evolved far beyond its early frequently asked questions about preserva- C. Gregory Dale, AICP Chico, California focus on the restoration of historic properties of Cincinnati, Ohio tion ordinances. Bryan Stumpf, AICP famous Americans. Preservation today is Indianapolis, Indiana engaged in questions of how to keep our down- Cover Illustration 16 Preservation Takes Center Stage towns and older neighborhoods vibrant by Paul Hoffman Barbara Sweet by Wayne Senville Hyde Park, New York respecting the past, while fostering infill devel- Greenfield, Massachusetts opment to fill in the gaps. Indeed, developers Over the past two decades hundreds of Ilene Watson and local officials recognize the enormous eco- historic theaters have been reborn. Indeed, Design Kelowna, B.C. nomic benefits that strong local historic preser- one of the most dramatic impacts historic Ned Corbett Lindsley Williams vation programs can yield. preservation can have is through the Ferrisburgh, Vermont Washington, D.C. So put it all together: continuity, coherence, restoration of the grand movie palaces and and creativity. 3 C’s of preservation. opera houses that still stand in the heart of many communities. Subscription Information 20 Preservation Boosts Local Economies Published 4 times/year. Standard Rate: $55/year. Addition- by Ed McMahon al subscriptions mailed to the same address: $10 each/year. ISSN 1058-5605. Postmaster and Subscribers: Send A look at some of the impacts historic dis- address changes to Planning Commissioners Journal, P.O. trict zoning has on tourism, job creation, Box 4295, Burlington, VT 05406. and property values. Editorial Policy Articles and columns contained in the Journal do not necessarily reflect the views of the Journal. The Journal is copyright protected by Champlain Planning Press 2003. Returning in the Winter PCJ: For permission to reproduce or distribute any portion of the Burlington, Vermont’s historic Flynn Theater is just Because of the extended coverage of Journal, contact the Editor. This publication is designed to two blocks up Main Street from the PCJ's office. historic preservation in this issue, we did provide accurate and authoritative information on the sub- not have room for our regular columnists: ject matter covered. It is sold with the understanding that the publisher is not engaged in rendering legal, accounting Elaine Cogan, Mike Chandler, and or other professional services. If legal or other expert assis- Greg Dale will return in the Winter issue. tance is required, the services of a competent professional Wayne M. Senville, Editor should be sought.
PLANNING COMMISSIONERS JOURNAL / NUMBER 52 / FALL 2003
2 PRESERVATION PLANNING An Introduction to Historic Preservation Planning by Amy Facca Across the country there are Charleston, South Carolina, established signs of a renewed interest in our the nation’s first local historic district. communities’ historic resources. Preservation no longer concerned itself Abandoned, vacant, and underutilized just with individual structures, but also historic buildings are being creatively put took into account the historic value of to new use. Neglected, but once spectac- groups of buildings, districts, and even ular, theaters are being restored as new whole communities. performance spaces. Historic residential districts and neighborhoods are being View of President Thomas Jefferson’s home, reinvigorated. As these transformations Monticello. take place, historic preservation is being PRESERVATION IN AMERICA seen as providing tangible benefits to LIBRARY OF CONGRESS, PRINTS & PHOTOGRAPHS DIVISION, FSA-OWI COLLECTION communities large and small. The first interest in preserving his- Many of us have taken time to visit toric structures can be found in the mid- places noted for their historic character, 19th Century efforts to acquire and whether larger cities like Savannah, restore the homes of famous Americans Georgia; San Antonio, Texas; or New like George Washington’s Mount Vernon Orleans, Louisiana, or smaller communi- and Thomas Jefferson’s Monticello. ties like Natchez, Mississippi; Virginia Beginning in 1927, the scope of historic City, Nevada; Port Townsend, Washing- preservation expanded dramatically with ton; and Quincy, Illinois. Virtually every the start of John D. Rockefeller’s restora- one of us has undoubtedly spent time tion of Williamsburg, colonial Virginia’s pleasantly walking through historic Main capital city. The next, and perhaps most Street and residential districts. The important, step in the preservation appeal of these areas is universal. Reflect- movement was taken in 1931 when ing this, a growing number of communi- ties have been incorporating historic preservation into their comprehensive RUDOLPH SIMON, 1927 MUSEUM OF THE CITY NEW YORK plans, downtown revitalization strate- The main waiting room in New York’s Pennsylvania Station, demolished in 1965. gies, neighborhood improvement plans, and zoning ordi- But major losses also acted to ener- nances. gize the preservation movement. As This article is planning historian Larry Gerckens has intended to provide noted, “The demolition of New York a brief introduction City’s Pennsylvania Station in 1965, one to historic preserva- of the nation’s most magnificent railroad tion planning. You stations, shocked many New Yorkers, as will read about well as citizens across the country. Out- some of the benefits raged by the fact that there was no legal Elaborate iron gates of preservation, and recourse to stop the demolition (the are common in find information on building was privately owned by the
Charleston, South how communities AMY FACCA nearly bankrupt Pennsylvania Railroad), Carolina’s, historic are implementing Vacant for many years, the Rice Building in down- New Yorkers responded by enacting later districts. local preservation town Troy, was redeveloped by a partnership of that year a comprehensive landmarks the Troy Savings Bank, Rensselaer Polytechnic preservation law.” See “H is for Historic policies. Resources are also listed for Institute, and the Troy Architectural Program, Inc. Preservation,” in PCJ #46, Spring 2002. those of you who want to learn more The building is now fully occupied and used as a about preservation planning. high-tech “incubator.” continued on page 4
PLANNING COMMISSIONERS JOURNAL / NUMBER 52 / FALL 2003
3 The National with increasing frequency; “Preservation does not mean merely • the preservation of this irreplaceable the setting aside of thousands of Historic buildings as museum pieces. It means heritage is in the public interest so that Preservation Act retaining the culturally valuable its vital legacy of cultural, educational, structures as useful objects: A home Congress, in 1966, enacted the aesthetic, inspirational, economic, and in which human beings live, a National Historic Preservation Act in energy benefits will be maintained and building in the service of some response to the widespread demolition of enriched for future generations of Ameri- commercial or community purpose. historic structures. Among the findings cans. Such preservation insures structural set out in the Act: One of Act’s key provisions – Section integrity, relates the preserved object to the life of the people around it, • the spirit and direction of the Nation 106 – established a process for addressing and not least, it makes preservation a are founded upon and reflected in its his- the adverse impact of federally funded, source of positive financial gain toric heritage; licensed, permitted, or regulated activi- rather than another expense.” • the historical and cultural foundations ties on historic resources. Along with an of the Nation should be preserved as a even stronger provision applicable to fed- – Lady Bird Johnson, from Foreword to living part of our community life and erally funded highway projects (Section With Heritage So Rich (1966). development in order to give a sense of 4(f) of the Department of Transportation orientation to the American people; Act of 1966), local preservationists, for because they help to distinguish what • historic properties significant to the the first time, had a real say in the design is historic from what is merely old. Nation’s heritage are being lost or sub- and location of many projects affecting Identifying Historic Resources. stantially altered, often inadvertently, historic structures and districts. In recent years, historic preservation has continued to expand its focus, with new interest in preserving and enhancing Historic Preservation Planning The NHPA also authorized the estab- the distinctive character of communities, continued from page 3 lishment of historic preservation offices and even regions. Historic preservation became federal in each state, and mandated the creation policy with the adoption of the National of standards and guidelines for various BENEFITS OF HISTORIC PRESERVATION Historic Preservation Act (NHPA) in preservation activities, such as how to 1966. This law was enacted following identify historic resources. The survey Since the 1970s, mounting evidence completion of With Heritage So Rich, a process and criteria for evaluating poten- has shown that historic preservation can comprehensive report undertaken by the tial historic resources are important com- be a powerful community and economic U.S. Conference of Mayor’s Special Com- ponents of preservation planning development strategy. Evidence includes mittee on Historic Preservation in response to the substantial loss of his- Identifying His- architecture, archaeology, and culture of toric and cultural resources brought toric Resources the United States. These are buildings, about by urban renewal and construction districts, sites, objects, and structures that 1 of the interstate highway system. Historic buildings and possess “integrity of location, design, set- Among other things, the NHPA neighborhoods often evoke passionate ting, materials, workmanship, feeling, authorized creation of a National Regis- feelings. The threat of demolition can and association,” and that: spark heated community debates about ter of Historic Places, directing the U.S. • Are associated with historic events; whether a building is historic or not. As Secretary of Interior to maintain a list of • Are associated with “the lives of per- these discussions take place, some com- districts, sites, buildings, structures, and sons significant in our past,” objects significant in American history, munity members may conclude that oth- • Embody distinctive architectural or architecture, archeology, engineering ers think “everything is historic” and artistic characteristics; and culture. Indeed, within twenty-five must be “saved.” In fact, however, preser- • Have yielded or are likely to yield infor- years of its passage there were over 8,000 vation professionals and commissions mation important in history or prehistory. historic districts listed in the National make determinations about what is or is Ordinarily properties that have Register. not historic based on the National Regis- ter of Historic Places criteria which have achieved significance within the past 50 1 This was no ordinary Committee. It was chaired by been tested, used, and periodically years are not considered eligible for the Alabama’s Albert Rains (who had been an influential revised since their initial development in National Register. Representatives of state member of Congress until retiring in 1965), and included then U.S. Senator Edmund Muskie; Vermont 1966. historic preservation offices and organiza- Governor Philip Hoff, and Gordon Gray, Chairman of The National Register is the official tions can help with determinations the National Trust for Historic Preservation, among list of properties significant in the history, regarding whether a building is historic. others. A number of distinguished historians and planners also contributed to the Committee’s report.
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4 statistics compiled from annual surveys • Heritage tourism provides substantial older and historic buildings, neighbor- conducted by the National Trust for His- economic benefits. Tourists drawn by a hoods, and commercial districts. Exam- toric Preservation and statewide Main community’s (or region’s) historic char- ples include: Street programs, state-level tourism and acter typically stay longer and spend • Demolishing an old building or group economic impact studies, and studies more during their visit than other of buildings to make way for new devel- that have analyzed the impact of specific tourists. opment such as a chain drugstore or “big actions such as historic designation, tax • Historic rehabilitation encourages box” retailer. credits, and revolving loan funds. Among additional neighborhood investment and • Constructing a new addition on an the findings: produces a high return for municipal existing building. • Creation of local historic districts stabi- dollars spent. • Constructing a new building in an lizes, and often increases residential and • Use of a city or town’s existing, historic older neighborhood. commercial property values. building stock can support growth man- • Replacing historic building elements • Increases in property values in historic agement policies by increasing the sup- such as windows, doors, porches, roofs, districts are typically greater than ply of centrally located housing. or original siding materials. increases in the community at large. When making these decisions, elect- • Historic building rehabilitation, which PLANNING FOR HISTORIC PRESERVATION ed and appointed officials look to their is more labor intensive and requires community’s long-range plan, zoning Elected and appointed officials often greater specialization and higher skills ordinances, and related land use regula- levels, creates more jobs and results in face difficult and controversial decisions tions. In many communities, these docu- more local business than does new con- that affect the character of their commu- ments provide little guidance in terms of struction. nities. Many of these decisions relate to historic preservation. While plans or ordinances may reference (often in an JEFFERSONVILLE, INDIANA: from $10,000 to $500,000 in just 10 appendix) those buildings or neighbor- years,” he said. As Jeffersonville’s Main ★ A “Main hoods listed in National and State Regis- Street director succinctly puts it, “reusing ters of Historic Places, this information, Street” City land and buildings makes sound financial in and of itself, is of minimal value to Jeffersonville, Indiana (pop. 27,000), sense.” decision makers. Without more, simply like more than 1,600 other cities and For more information, contact Jay being listed in the National or State Reg- towns across the country, has benefited Ellis at: 812-283-0301; [email protected]. isters only provides limited protection from the National Trust for Historic Information about the National Trust’s from federal or state actions that may Main Street Center can be found at: Preservation’s Main Street approach to adversely affect historic resources.2
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5 Historic Preservation Planning community planning documents, such • Inform existing and potential property continued from page 5 as sections relating to housing, commu- owners, investors, and developers about to demolish historic buildings, and what nity character, downtown revitalization, what historic resources the community resources must be protected to maintain and economic development. wants to protect as it grows; the community’s historic and architectur- Preservation planning, like most • Create an agenda for future preserva- al character. planning processes, typically includes a tion activities; and Preservation planning usually results long-range vision, goals and objectives, • Facilitate compliance with federal and in the preparation of a formal planning and recommended implementing actions state historic preservation and environ- document by professional planners, (such as adoption of a local preservation mental quality laws. historians, or architects specializing ordinance). A well-conceived preserva- 1. Preservation Plans in historic preservation. This can be a tion planning process serves to: Preservation plans can build on infor- stand-alone planning document such as • Establish a basis of public policy about mation developed through historic a historic preservation plan, or a compo- historic resources; resource surveys and lay the groundwork nent of a long-range planning document • Educate and inform residents and oth- for the formal designation of individual such as a master plan, downtown revital- ers about their community’s heritage and properties or districts. As noted, for ization plan, or neighborhood improve- its value; example, in the Carbondale, Illinois, His- ment strategy. Information about a • Identify opportunities for economic community’s historic resources and his- growth based on the community’s his- toric Preservation Plan, preservation toric preservation efforts can also be toric and architectural character. planning “gives focus and direction to a incorporated into various sections of • Ensure consistency among various community’s efforts to protect and local government policies that affect the enhance its historic resources. [It] works “As more and more of the existing phys- community’s historic resources; toward making preservation decision- ical fabric becomes eligible for preserva- • Lay the groundwork for adopting a making a normal function or element of tion, the issue of what should be pre- local historic preservation ordinance or land use decisions rather than an excep- served and the struggle with the forces tional one, thus making historic preser- pressing for change become sharper.” strengthening an existing one; – Kevin Lynch, Good City Form (MIT • Eliminate uncertainty or confusion vation proactive rather than reactive.” Press, 1981). about the purpose, meaning, and content While there is no prescribed format of a community’s preservation ordinance; or structure for a preservation plan, it typically includes a description of a com- munity’s preservation efforts and sets out CARBONDALE, ILLINOIS: goals, policies, and specific actions relat- ★ Preservation ed to the continuing identification, pro- Planning tection, and enhancement of historic resources. It may also include an expla- In 2001, the City of Carbondale, Illi- nation of the legal basis for preservation, nois’ historic preservation commission and supporting information such as began preparation of a community-wide National and State Register listings, historic preservation plan with assistance architectural styles, preservation organi- from a preservation consultant. Prepara- zations, and other information. tion of the plan has included a communi- Restored commercial buildings in downtown Carbondale, Illinois. Preservation plans serve several pur- ty workshop with large and small group poses: sessions. Workshop participants were According to Tom Redmond, Carbon- • educating elected and appointed offi- invited to express their concerns and dale’s Development Services Director, the desires for the city’s historic resources Dunaway Block downtown (see photo) cials, municipal staff, property owners, and respond to classic planning questions has recently been added as a local his- investors, and others about the status of of what do we have? What do we want? toric district. As Redmond notes, this historic resources within the community And, how do we get it? Responses from “has brought attention to the historic and the economic benefits of preserva- the workshop have helped form the basis resources that are present in downtown tion; of the preservation plan’s goals and rec- Carbondale and has resulted in other • formally documenting existing condi- ommended actions. Among the recom- property owners in the area inquiring tions, issues, opportunities, and chal- mendations: designation of additional about listing their property on the local lenges; National Register and local historic dis- register.” • providing information on tax and other tricts, and enhancements to the City’s For more information, contact Tom incentives for preservation; zoning ordinance. Redmond: [email protected] • offering discussion and analysis regard- ing preservation of historic resources,
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6 and establishing a roadmap for future SAVANNAH, GEORGIA: efforts; Where Growth • setting out the roles and responsibili- ★ ties of the public, private, and nonprofit Means Preservation sectors with regard to the preservation of One of the most remarkable historic historic resources. preservation stories is that of the Savannah Preservation plans also play a critical College of Art & Design (“SCAD”), a pri- role in providing the supporting ratio- vate institution. SCAD has accommodated nale and framework for developing a an amazing amount of growth – from 71 local historic preservation ordinance. students at its opening in 1979 to 5,800 today – through the planned restoration 2. Preservation Ordinances and adaptive reuse of more than fifty his- One of the biggest misconceptions toric structures. Between 1987 and 2000, local officials may have is the belief that SCAD invested some $51.4 million in the listing a structure on the National Regis- restoration of historic properties. The ter of Historic Places (or on a comparable school has built only two new facilities. State Register) protects the structure While the school’s rapid growth has from demolition or significant change. In not been without some friction, SCAD has fact, it is precisely because listing only clearly been a major factor in the revitaliza- provides limited protection from federal tion of downtown Savannah and several each year. As the report further noted, and states actions, and does not prevent nearby neighborhoods. “Clearly, SCAD’s investment in redevelop- building demolition, that many commu- SCAD’s economic impact on Savannah ment complements and enhances Savan- nities have enacted local preservation and Chatham County has been enormous. nah’s image as a destination for heritage ordinances.3 A 1997 report by the Bureau of Business tourism and historic preservation.” A preservation ordinance typically Research & Economic Development at Just as the city has benefited from the includes a statement of purpose, a permit Georgia Southern University found that college, the college has benefited from process requiring a certificate of appro- the college and its students pumped Savannah. Students and faculty take advan- priateness or approval, and rules regard- between $70 and $90 million dollars annu- tage of the city’s numerous historic squares ing building demolition, maintenance, ally into the County’s economy. And that as an alternative to the traditional college and economic hardship (not unlike zon- was a conservative estimate, as it didn’t green. While most of the school’s facilities include spending from visiting families of ing variances). Preservation ordinances are located within walking distance of each students or from the 20,000 prospective also generally establish a historic preser- other, shuttle buses also regularly circulate. students and their families who visit SCAD vation commission (sometimes called a Being historic doesn’t mean being out- heritage commission or an architectural of-date. The interior of the rehabbed build- ings provide state-of-the-art classrooms review board) to review applications. and studio space, while miles of fiber optic continued on page 8 cable connect many of the properties. 3 Model historic preservation ordinances are general- Just some of the historic properties that make up ly available from statewide historic preservation SCAD. Pepe Hall (above), which houses the art offices and statewide not-for-profit preservation orga- history department and slide library, is a nizations. Mediterranean Revival style building, built in 1906. The school’s modern Jen Library (below) “We do not use bombs and powder is in the former Maas Brothers department store kegs to destroy irreplaceable (circa 1925). A former Art Moderne style structures related to the story of downtown theater which closed in 1980 has America’s civilization. We use the been reborn as the 1,100 seat Trustees Theater corrosion of neglect or the thrust of (left), home of the school’s media and perform- bulldozers. … Connections between ing arts department, and headquarters for the successive generations of Americans Savannah Film Festival. – concretely linking their ways of life – are broken by demolition. … Why then are we surprised when surveys tell us that many Americans, young and old, lack even a rudimentary knowledge of the national past?” – from Preface to With Heritage So Rich (U.S. Conference of Mayors, 1966).
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7 Historic Preservation Planning is also not uncommon for the planning erties or to specific areas (or streets) continued from page 7 commission to be responsible for review- within the community. The historic over- Often, the ordinance will provide that ing a historic preservation commission’s lay zone regulations might address issues decisions of the preservation commis- recommendation for a historic district such as building materials, colors, facade sion can be appealed to the local govern- designation. Typically, the local govern- requirements, and other items identified ing body. ing body has the final say on these deter- by the community as important to main- Procedures for designating buildings minations. tain the historic nature of the structure or and districts as historic are also usually Preservation ordinances will often area. This approach is sometimes set out in the ordinance. A number of establish a historic “overlay” district in referred to as a ‘mandatory requirement’ communities require at least 50 percent the local zoning code. As explained by overlay, indicating that the restrictions of affected property owners to consent to attorney Elizabeth Garvin: “This overlay identified in the overlay are mandatory the establishment of a historic district. It would apply to designated historic prop- prerequisites to development or redevel- opment. Each property within a historic preservation overlay zone – as with any TALLAHASSEE, FLORIDA: residence and bank, is now home to the overlay zone – would also be subject to Tallahassee Area Chamber of Com- the requirements of the underlying zon- Financial merce. The Chamber expended ing district in which it is located.” From, Incentives $380,000 for major renovation work, ★ “Making Use of Overlay Zones,” PCJ for Preservation supplemented by a $41,000 city grant #43, Summer 2001. and a $34,000 city loan. Incidentally, Financial incentives are a key part of To be most effective, local preserva- “The Columns” was long rumored to the City of Tallahassee’s strategy to pro- tion laws should include design guide- have a nickel baked in every brick by its mote historic preservation. The City lines or criteria about appropriate and original owner (and then President of (population, 150,000) provides grants inappropriate alterations to historic and low-interest loans to property own- the Bank of Florida) William “Money” buildings. These spell out what property ers – between $150,000 and $250,000 Williams – spare change presumably not owners can or cannot do in terms of annually from the city’s general funds – available for the renovation work 165 alterations to a designated historic struc- for repairs and renovations to both resi- years later! dential and commercial properties. Tallahassee also makes use of a ture, and cover questions such as win- These typically supplement funds Florida law which authorizes munici- dow replacement, additions, new roofs, invested by the property owner. A board palities and counties to provide by ordi- porch construction, application of syn- of City staff, the Historic Preservation nance up to a 50 percent reduction in thetic siding materials, and related Officer, and three local banking repre- assessed value for historic properties issues. So, for example, if property own- sentatives review all applications. They used for commercial and certain non- ers wanted to add a porch to their house, have final say on requests of $10,000 or profit purposes. In 2002, some 36 his- they would need to review the historic less; more than $10,000 requires toric properties in Tallahassee received a preservation ordinance and design approval by the City Commission (the 50 percent reduction in their valuation. guidelines. This would enable them to governing body). For more information, contact develop a porch design consistent with For example, “The Columns” (see Alyssa McManus, Tallahassee Trust for the style of the house or the character of photo below), built in 1830 as a private Historic Preservation: 850-488-7100. the historic district it is located in. Com- munities can also provide advice to prop- erty owners through staff assistance or by way of informational brochures. Responding to Questions, p. 15 It is important to stress that preserva- tion ordinances are not intended to “embalm” properties and prevent owners
“Historic district zoning is frequently controversial, but it almost always has a beneficial effect on property values, commercial revitalization, business investment, and increased tourism.”
LIBRARY OF CONGRESS, HISTORIC AMERICAN BUILDINGS SURVEY – Edward McMahon, “Preservation Boosts “The Columns” in downtown Tallahassee, Florida. Local Economies,” p. 20
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8 from making any changes or improve- ments. Again, the goal is to ensure that Financing • Income raised through special assess- proposed changes are in keeping with Historic ment districts such as a business improvement district or local “Main the style of the house or character of the Preservation district. And, it is worth repeating, local Street” program. Since there are few dedicated sources • Revolving loan funds (which can be ordinances cannot require that privately of funding for historic preservation, com- capitalized in many ways). owned properties be open to the public. munities and not-for-profit organizations • Tax credits, rebates, and abatements While local preservation ordinances seeking to finance their historic preserva- (federal, state and local). do restrict owner actions, we should tion efforts need to be creative and • Incentives such as grants, loans, and keep in mind that local zoning regula- resourceful. Sources of funding include: design assistance, for property owners tions also restrict owner actions. Both • A community’s capital revenue. and businesses. also typically provide safety valves to • Grants from federal, state, and nonprof- • Special fundraising and promotional deal with legitimate cases of economic it programs. events or programming. hardship presented by property owners. • Private donations, organizational mem- Historic preservation ordinances bership fees, and corporate contributions. share a common goal with zoning: to sta- bilize and enhance property values in the 3. Enhancing Historic Resources organization, or by an organization community. The question is one of bal- The preservation planning process established specifically for that purpose, ancing community-wide interests with can also help communities identify other such as a local historic preservation orga- those of individual property owners. actions that will improve their historic nization, Main Street group, or a business Certainly, this is a legitimate area for areas. These actions may be implement- improvement district. public discussion and debate, and the ed by municipal staff, by the planning Improvement strategies typically line will be drawn differently from com- commission, by an existing housing, include both public and private invest- munity to community. community, or economic development ments. For example, public investments might include sidewalks, curbs, lighting, signage, information kiosks, and street MACON, GEORGIA: itate, and resell historic buildings. furniture in historic districts. Many com- According to Bette-Lou Brown, HMF’s munities have grant or loan programs to Affordable Executive Director, HMF rehabs about Housing stimulate private investment, often ★ eight houses a year. As she puts it, “it is aimed at façade improvements or build- Georgia’s Historic Macon not huge, but over time it makes a differ- ing rehabilitation. Grant and loan fund- ence.” Brown notes that HMF’s work is in Foundation (“HMF”) has established a ing is also often available from various “mixed race, mixed income neighbor- strong track record in combining afford- federal or state agencies, as well as from hoods,” adding that “we cannot bring our able housing and historic preservation. local institutions such as hospitals, uni- Its programs have involved creative part- central cities back without gentrification versities, and banks. nerships between HMF, Mercer Universi- – but we must have gentrification with Because these programs generally ty, the housing authority, several private justice.” emphasize the importance of good foundations, and the City of Macon’s For more information, contact Bette- design and high quality materials, they community development department. Lou Brown at: 478-742-5048. often also include some form of design Through these partner- ships, HMF has estab- assistance to property owners. Indeed, lished a revolving loan one of the “selling points” of historic fund for the rehabilitation preservation to property owners (and of buildings in Macon’s developers) should be the fact that it can historic districts and pre- open the door to financial resources that pared paperwork allowing would otherwise be unavailable. property owners to obtain Among the most important incen- federal and state tax cred- tives available for historic building reha- its. HMF has also rehabili- bilitation are federal tax credits.4 Jointly tated housing in historic administered by the National Park Ser- districts for low and mod- vice and the Internal Revenue Service, erate income persons, and this program provides a 20 percent tax HISTORIC MACON FOUNDATION worked with private devel- This modest Queen Anne style cottage is one of 14 rehabbed continued on page 10 opers to purchase, rehabil- homes in the Tatnall Square Heights neighborhood. 4 For details on federal tax credits, go to the National Park Service’s web page:
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9 Historic Preservation Planning continued from page 9 PUEBLO, COLORADO: apparently concerned that the City might act to designate the building, making credit for the rehabilitation of income- ★ A New producing buildings that are designated demolition more difficult – Parkview ter- as National Historic Landmarks; listed in Parking Lot minated discussions with the Commis- the National Register of Historic Places; It was only this past January that the sion and moved to quickly demolish the or “contributing” buildings in a National City of Pueblo, Colorado (pop. 105,000), structure. Register-designated historic district. A adopted its first historic preservation Perhaps the most surprising thing smaller 10 percent tax credit is available ordinance, an ordinance that seemed to about what happened next, according to Pueblo Director of Land Use Administra- for the rehabilitation of non-historic generate little interest among Pueblo resi- tion Glynis Jordan, is that city residents buildings built before 1936. dents at the time. The ink was barely dry, and members of the City Council To qualify for the tax credit, property however, when Parkview Medical Center, the city’s largest employer, proposed the expressed shock and anger about the owners must complete a three-part appli- demolition of the 101 year old Thatcher demolition. Jordan notes that Pueblo has cation, with all work formally certified Home (used for doctors’ offices). The long been a community that has placed by the National Park Service. Park Ser- Thatcher Home, located in a well main- great weight on private property rights. vice staff determine whether the rehabili- tained residential neighborhood and But the refusal of Parkview to engage in tation work complies with the Secretary across the street from the historic Rose- good-faith negotiations has now awak- of the Interior’s “Standards for Preserva- mount Mansion & Museum, was to be ened interest in historic preservation. tion Planning.” Similar state and local tax replaced by a surface parking lot. While too late to save the Thatcher incentive programs are increasingly com- The newly established Pueblo His- Home, Jordan believes this new aware- mon. Financial Incentives, p. 8. Additional toric Preservation Commission sought to ness bodes well for the city’s future, and information about tax incentives pro- explore alternatives to demolition with its past. grams which might be available in your Medical Center staff. However, since the area can be obtained from your state Thatcher Home (built by one of Pueblo’s historic preservation office. Resources. “founding” families) had not yet been 4. Educating the Public formally designated as a historic structure under Pueblo’s new ordinance– and The preservation planning process also plays a critical role in educating The Thatcher Home in Pueblo just before and community residents, business owners, during its demolition this July. and elected officials about the economic value of the community’s historic resources, and the benefits of historic preservation. Indeed, any preservation plan should be designed with this educa- tional purpose in mind. Information should also address common misunder- standings, such as the idea that buildings listed in the National Register must be opened to the public once a year, or that historic preservation is only beneficial to wealthy residents. Unless potential con- cerns are addressed, and the values of preservation clearly articulated, it will be difficult to generate support for actions like developing a local preservation ordi- nance. Responding to Questions, p. 15. 5. Sources of Assistance vation into other community planning “Don’t it always seem to go That you Many individuals and organizations efforts, and economic benefits of preserv- don’t know what you’ve got Till it’s can assist planning commissioners and ing historic buildings and neighbor- gone. They paved paradise And put others interested in learning more about hoods. up a parking lot.” their community’s historic resources, At the local level, sources of assis- – from Joni Mitchell’s song, “Big Yellow preparation of historic preservation tance include local historians, historic Ta x i . ” plans, incorporation of historic preser- preservation professionals, planners, and
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10 sources of assistance are the National Energy Conservation represent about 135 gasoline tanker trucks of Trust for Historic Preservation (NTHP) energy.” “Preserving a historic structure and the National Park Service. Both … saves energy and reduces the – From Green Clips Newsletter, July 16, 2003. maintain extensive web sites with a need for producing new con- “The most sustainable thing to do with wealth of information and numerous struction materials. First, energy is not con- our stock of existing buildings … is to but- publications available to order or down- sumed to demolish the existing building and tress plans for continuing their use. In an age load. Resources. dispose of the resulting debris. Second, energy that now religiously re-cycles aluminum cans is not used to create new building materials, and is beginning to confront the limits of our SUMMING UP: transport them and assemble them on site. natural resources it is incumbent upon us to Finally, the ‘embodied’ energy … used to cre- strive to conserve the resources and energies Across the nation cities and towns of ate the original building and its components, that are embodied in the built environment.” all sizes are recognizing the benefits is preserved.” – From “Why Preserve?” Daniel Bluestone, preservation can bring. Historic build- – From “Design Guidelines for the Old Town Director, University of ings, commercial districts, and neighbor- Overlay District in Wichita, Kansas.” Virginia Historic hoods help give communities their “Reuse was one of the priorities in the Preservation Program. distinctive character. Their loss damages renovation of the S.T. Dana Building, which Wall detail of the the fabric of a community. Their preserva- houses the School of Natural Resources and historic Ethan Allen tion is more than just an aesthetic issue, it Environment at the University of Michigan in Firehouse (now used is a matter of sound economic policy. ◆ Ann Arbor. Built in 1903, the masonry struc- as an arts center) ture was recently renovated … in terms of in downtown Amy Facca is a consultant specializing in embodied energy, the building’s bricks alone Burlington, Vermont preservation planning and research. For the past ten years she was a principal planner with River Street Planning & Development in Troy, New York. architects. Many communities have his- preservation ordinance meeting federal Facca has worked on a broad range of historic torical societies, local nonprofit preserva- standards are eligible for grants to assist preservation, waterfront, and downtown revital- tion organizations, or arts organizations with preservation planning and related ization projects. She holds a Master’s degree in Architectural History and Historic Preservation whose mission includes historic preser- project implementation. The SHPOs and from the University of Virginia. You can reach her vation. Smaller communities can also statewide preservation organizations at: [email protected]. often draw on the services of regional usually hold conferences, maintain web preservation organizations. sites, publish newsletters, and offer a Our thanks to the following individuals for reviewing drafts of this article: Susan Henry Sources of assistance at the state level variety of training opportunities. Most Renaud, Ilene Watson, Patricia Pitzer, Lee A. include the state historic preservation have staff that travel to communities to Krohn, Sharon Wason, Christine Mueller, King office (SHPO) and, in many states, a provide assistance. Leonard, Mark Hiester, Wendy Grey, Glynis Jor- statewide nonprofit historic preservation At the national level, the two main dan, Barbara Sweet, and Amy Munro. organization. SHPOs are authorized under the National Historic Preservation provides insights into preservation issues Act to implement historic preservation Resources: facing communities. Historic Preservation programs at the state level. They also pre- Useful sources of infor- for a Living City, by Robert R. Weyeneth, pare statewide historic preservation mation on preservation offers a detailed account of preservation plans. These plans provide valuable planning include: efforts in Charleston, South Carolina. information about historic resources and Preparing a Historic Preservation Plan, by The National Alliance for Preservation statewide efforts to protect, enhance, and Richard Roddewig and Bradford White Commissions provides training promote those resources. (APA Planning Advisory Service; 312- workshops and publications for local SHPOs can provide useful technical 786-6344); preservation commissions: assistance to communities, and help with Maintaining Community Character: How
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11 PRESERVATION PLANNING Historic Preservation is Smart Growth by Donovan D. Rypkema
The following is a slightly modified version vation, in and of itself, is one of the most interconnection of uses. Based on the of a talk given by Donovan Rypkema at the important tools in the entire Smart foolishness of post World War II plan- National Audubon Society of New York’s Growth movement. Allow me to provide ning and development patterns, uses 1999 Conference on Smart Growth. We are you with twenty reasons why Historic have been sharply separated. Historic grateful to Mr. Rypkema for granting us Preservation is Smart Growth. neighborhoods were built from the permission to publish his remarks, since beginning with a mix of uses in close they provide an excellent summary of how proximity. Cities with the foresight to historic preservation is integral to the prin- OLDER AND HISTORIC readjust their zoning ordinances to ciples of “Smart Growth.” BUILDINGS OFTEN encourage integration of uses are seeing PROVIDE THE AFFORDABLE that interconnectivity reemerging in his- suspect for many of you “his- I RENT THAT ALLOWS toric areas. That’s Smart Growth. toric preservation” is the local SMALL BUSINESSES TO Reason Six: As a strong proponent of group of retired librarians writing GET STARTED. economic development I am certainly letters to the editor and struggling to glad the phrase is Smart Growth as raise funds to save the mansion of the opposed to no growth. Smart Growth local rich, dead white guy. Well thank suggests that growth has positive bene- god for those activists, those letters to the Reason One: Public infrastructure. fits, and I would argue that is true. At the editor, those fund raising events, and Almost without exception historic build- same time we cannot say we are having even for those rich, dead, white guys, ings are where public infrastructure smart growth – regardless of how well it because the properties that have been already exists. No new water lines, sewer is physically planned – if at the same saved are an important component of lines, streets, curbs, or gutters required. time we are abandoning existing assets. understanding ourselves as a people and That’s Smart Growth. The encouraged reinvestment in historic constitute an irreplaceable collection of Reason Two: Municipalities need areas in and of itself revitalizes and re- the art of architecture and landscape financial resources if they are going to values the nearby existing investment of architecture that has been created in our grow smart. Vacant, unused, and under- both the public and private sector. That’s country’s relatively short history. used historic buildings brought back to Smart Growth. But that part of historic preservation life are also brought back as tax generat- Reason Seven: Across America people – saving old mansions – represents an ing assets for a community. That’s Smart are indeed moving “back to the city.” But insignificant percentage of preservation Growth. almost nowhere is it back to the city in activities today. In fact, in the last two Reason Three: New activities – resi- general. In nearly every instance it is decades, historic preservation has moved dential, retail, office, manufacturing – in back to the historic neighborhoods and from an activity whose goal was an end existing historic buildings inherently historic buildings within the city. We do in itself – save old buildings in order to reinforces the viability of public trans- need to pay attention to market patterns, save old buildings – to a broad based, portation. That’s Smart Growth. and if it is back to historic neighbor- multifaceted group of activities that uses Reason Four: If we are to expect citi- hoods to which people are moving, we our built heritage not as an end in itself zens to use their cars less, and use their need to keep those neighborhoods viable but as a means to broader and, frankly feet more, then the physical environment for that to happen. That’s Smart Growth. more important ends. Across the country, within which they live, work, shop and Reason Eight: Smart Growth ought to that has meant historic preservation as a play needs to have a pedestrian rather imply not just physical growth but eco- means for downtown revitalization, than a vehicular orientation. One of the nomic growth. And economic growth neighborhood stabilization, attraction for most predominant characteristics of his- means new jobs. But who is creating the tourism, job creation, film industry pro- toric areas – residential or commercial – net new jobs in America? Not General duction, small town revitalization, is their pedestrian orientation. That’s Motors, or IBM, or Kodak. 85% of all net affordable housing, luxury housing, edu- Smart Growth. new jobs in America are created by small cation, transportation, and many other Reason Five: Another element in the businesses. And for most small business- purposes. drive to encourage human movement by es there are few costs that are control- I want to suggest that historic preser- means other than the automobile is the lable, but there is one – occupancy.
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12 Older and historic buildings often pro- So are you vide the affordable rent that allows small starting to get the businesses to get started. That’s Smart picture? Let me be Growth. briefer with the Reason Nine: Business districts are rest of the list. sustainably successful when there is a Reason Thirteen: diversity of businesses. And that diverse Smart Growth ad- business mix requires a diverse range of vocates a density rental rates. Only in downtowns and of use. Historic older commercial neighborhoods is there residential and such diversity. Try finding any rental rate com-mercial diversity in the regional shopping center neighborhoods are or the so called office park. You won’t. built to be dense. Older business districts with their Reason Fourteen: diverse rents are Smart Growth. Historic buildings Reason Ten: Smart Growth also ought themselves are not to be about jobs. Let me distinguish new liabilities as often Strong preservation construction from rehabilitation in terms seen by public and efforts are fundamental of creating jobs. As a general rule new private sector demo- to Brattleboro, Vermont’s construction is 50 percent labor and 50 lition advocates, (pop.8,300) vibrant downtown. Recent suc- percent materials. Rehabilitation, on the but are assets not cesses include the other hand, is 60 to 70 percent labor. yet returned to pro- restored historic Latchis While we buy an HVAC system from ductive use. Hotel and Theatre. Ohio, sheetrock from Texas and timber Reason Fifteen: from Oregon, we buy the services of the The rehabilitation of older and historic carpenter and plumber, painter and elec- neighborhoods is putting jobs where the trician from across the street. They sub- workers already are. sequently spend that paycheck for a Reason Sixteen: Around the country haircut, membership in the local Y and a historic preservation is the one form of new car, resulting in a significantly economic development that is simulta- greater local economic impact dollar for neously community development. dollar than new construction. The reha- Reason Seventeen: Reinvigorating his- bilitation of older structures is Smart toric neighborhoods reinforces existing Growth. schools and allows them to recapture Reason Eleven: Solid waste landfill is their important educational, social, and W. SENVILLE increasingly expensive in both dollars cultural role on a neighborhood level. another strip center. The restoration of and environmental quality. Twenty four Reason Eighteen: No new land is con- the empty 1920s skyscraper reduces the percent of most landfill sites is made up sumed when rehabilitating a historic demand for another glass and chrome of construction debris. And much of that building. building at the office park. waste comes from the razing of existing Reason Nineteen: The diversity of Historic Preservation is Smart structures. Preserving instead of demol- housing sizes, qualities, styles, and char- Growth. In fact, I would suggest that a ishing our inventory of historic buildings acteristics of historic neighborhoods Smart Growth approach that does not reduces that construction waste. Preserv- stands in sharp contrast to the monolith- include historic preservation high on the ing instead of demolishing our inventory ic character of current subdivisions. The agenda is not only missing a valuable of historic buildings is Smart Growth. diversity of housing options means a strategy, but, like the historic buildings Reason Twelve: Its critics have pointed diversity of human beings who can live themselves, an irreplaceable one. ◆ out that the so called New Urbanism is in historic neighborhoods. Donovan D. Rypkema is the author of numer- neither new nor urban. I would argue Reason Twenty: Historic preservation ous articles and publications, including The Eco- that New Urbanism reflects good urban constitutes a demand side approach to nomics of Historic Preservation: A Community design principles. But those principles Smart Growth. The conversion of a his- Leader’s Guide (National Trust for Historic Preser- have already been at work for a century toric warehouse into 40 residential units vation). Rypkema is Principal of Place Economics, or more in our historic neighborhoods. reduces the demand for ten acres of farm a Washington, DC-based consulting firm specializ- The sensitive renewal of those neighbor- land. The economic revitalization of ing in the economic revitalization of downtowns hoods is Smart Growth. Main Street reduces the demand for and the redevelopment of historic properties.
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13 PRESERVATION PLANNING
Historic Preservation Ordinances: Frequently Asked Questions by Julia H. Miller, Esq. The historic preservation ordi- In many cases, the National Register of and are no longer consistent with the nance is the primary method by Historic Places or a state register provides overall character of the historic district; or which towns, cities, and counties a useful starting point for identifying his- vacant parcels. Proposed changes to con- toric structures. But national and state tributing properties are likely to receive can protect historic structures and dis- register listings should not substitute for closer review under a local preservation tricts. Most ordinances establish a historic local survey work. ordinance than changes to non-contribut- preservation commission and a process ing properties. for consideration of proposals to alter or demolish historic properties or properties HISTORIC DISTRICTS ARE What criteria are used to designate located within designated historic dis- GEOGRAPHICALLY DEFINED historic properties? tricts. AREAS OFTEN COMPRISED The criteria (and process) for designa- tion are set out in the preservation ordi- According to a 1998 report prepared OF SIGNIFICANT nance. A preservation ordinance, for by the National Alliance of Preservation CONCENTRATIONS OF Commissions, the number of historic example, may seek to protect districts, HISTORIC STRUCTURES OR commissions (or comparable bodies) sites, buildings, structures, and objects grew from 578 in 1978 to 2,368 in 1998.1 SITES THAT SHARE COMMON that are associated with historic events, While authority to enact local preser- HISTORIC EVENTS, “that embody the distinctive characteris- vation ordinances exists in all states, indi- ARCHITECTURAL FEATURES, tics of a type, period, or method of con- vidual differences necessitate legal OR PHYSICAL struction,” or “that represent the work of oversight. Planners and local officials DEVELOPMENT. a master.” should obtain legal advice in developing a Who designates historic landmarks preservation ordinance. and districts? What is a “Historic Preservation While variations exist from jurisdic- Once a preservation commission has Commission”? tion to jurisdiction, applications for desig- determined that a specific property or dis- A historic preservation commission or nation are typically initiated by the trict meets the criteria for designation, it review board is a local body usually estab- property owner or the preservation com- may recommend or nominate that proper- lished under a historic preservation ordi- mission, upon completion of an architec- ty or district for designation. Individual nance. Appointments are typically made tural survey. Designated properties should properties or districts are most often des- by the Mayor or the local governing body. be listed in the local ordinance. ignated as historic resources by the local The commission’s members often have What are “historic districts” and governing body, after holding a public expertise in related fields such as architec- “landmarks”? hearing. In the case of districts, some ordi- nances require that a petition supporting tural history, history, architecture, archae- Most jurisdictions designate historic the designation be signed by a certain per- ology, real estate, and so forth. Historic districts and individual landmarks. His- centage of affected property owners. preservation commissions are primarily toric districts are geographically defined Many preservation ordinances provide responsible for: (1) identifying historic areas often comprised of significant con- interim protection for historic resources properties and districts for designation centrations of historic structures or sites while applications for designation are and, (2) reviewing and acting upon appli- that share common historic events, archi- pending. This prevents a property owner cations to alter or demolish properties tectural features, or physical develop- from demolishing the structure before the protected by the historic preservation ment. Landmarks are typically individual preservation commission or local govern- ordinance. properties or sites of historic value. ing body has had time to act on the appli- How are historic properties identified? Properties located in historic districts cation. Historic properties are generally iden- are generally labeled as either contribut- tified through a survey process, conducted ing or non-contributing. Contributing How are historic districts and by the historic preservation commission. properties typically have a character that landmarks protected under a is consistent with the architectural style of preservation ordinance? 1 The United States Preservation Commission Identi- the district. Non-contributing properties Most often, owners of property subject fication Project (1998). For information, contact the National Alliance of Preservation Commissions at: are either: newer structures; older struc- to a preservation ordinance must submit 706-542-4731; [email protected] tures that have been substantially altered an application to the preservation com-
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14 mission for permission to alter, move, or replacement is necessary, the new material excluded from commission review. How- construct additions or new buildings. should match the material being replaced ever, many ordinances require that desig- These applications are evaluated based in composition, design, color, texture, and nated property be kept structurally sound, upon standards for review set forth in the other visual qualities.” and empower the local government to ordinance. The commission will issue a Localities considering adoption of the make repairs and seek reimbursement in formal decision, making specific findings Secretary’s standards should be careful to instances where a property is essentially of fact and conclusions of law. Permission ensure that the standards correspond to being “demolished by neglect.” is typically granted in the form of what local needs and, if necessary, make addi- How should a community address may be called a historic area permit or cer- tions or modifications. special situations such as undue tificate of appropriateness. In addition to legal standards of hardship? Despite the wide range of actions review, which must be set forth in the Many ordinances provide for the con- which are subject to historic commission preservation ordinance, many communi- sideration of “economic hardship” claims. review, the vast majority of applications ties also adopt advisory design guidelines. Economic hardship provisions typically for certificates of appropriateness are ulti- These are used not only to guide the com- authorize a “variance” in situations where mately approved. mission, but also to assist property owners property owners demonstrate they would How do local governments protect in understanding what types of actions otherwise be denied “all reasonable or historic properties from being may or may not be appropriate. A number beneficial use of their property.” Such pro- demolished? of communities have also established visions provide assurance that relief is available if the impact of a particular Most localities having preservation informal processes to encourage property action proves to be exceptionally harsh. ◆ ordinances allow for the demolition of owners to consult with the preservation historic properties only in cases where: commission or its staff before embarking Julia A. Miller, Esq., is Editor of the Preserva- (1) retention of the structure will cause an on a major project. tion Law Reporter, published by the National Trust for Historic Preservation. Assistance in establish- extreme burden on the property owner Do historic preservation ordinances and the structure cannot be rehabilitated ing or amending historic preservation ordinances impose maintenance requirements on is often available from state historic preservation or sold, or (2) the property poses a safety property owners? offices, state-wide historic preservation organiza- threat due to damage from a fire or some Routine maintenance work (such as tions, and local preservation organizations. See the other type of natural disaster. This is the replacing tiles on a slate roof) is generally Resources sidebar on page 11 of this issue. best way to ensure that historic resources are protected. Some communities, however, permit EDITOR’S NOTE: • Can I demolish my house if I decide to? property owners to demolish historic Responding • Am I required to restore my property to properties after a specific waiting period, to Questions some earlier era? during which time the local government, • Do I need approval for any interior along with private preservation groups, As with so many things in planning, one changes? can explore alternative actions to save the of the keys to avoiding problems is to • Will my property taxes increase? building. Some localities also condition clearly and candidly explain how pro- • Do I ever have to open my house to the the issuance of a demolition permit upon grams and policies work. This is especial- public? a showing that a new building will be con- ly important when there is an impact on • Are there any benefits to me from this structed on the site and that this building property owners, as through zoning zoning? will be compatible with other historic (including historic district zoning). For two good examples of questions & properties in the area. One effective approach is to provide answers (available online) go to: What standards of review are used to handouts which respond to the basic Round Rock, TX, Planning Dept: guide commissions in acting upon questions many property owners will
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15 PRESERVATION PLANNING Preservation Takes Center Stage by Wayne Senville, Editor One of the most dramatic job in educating the public about the ben- York’s Broadway. They also lit up down- impacts historic preservation can efits of preservation. There’s nothing like town main streets across America – per- have is through the restoration of sitting in a beautifully restored theater, haps nowhere as dramatically as in the grand movie palaces and opera houses and enjoying a concert, dance, or movie, Denver. All of the theaters shown in the that still stand in the heart of many to gain a first-hand view of what preserva- photo of Denver’s Curtis Street were communities. tion can offer. demolished in the era of “urban renewal.” First, and most obviously, theaters Over the past two decades hundreds While Denver built a brand new perform- bring people (and dollars) to downtown. of historic theaters have been reborn. But ing arts center in the mid-1970s, as Col- Second, and perhaps not as often men- first, just a reminder of what we’ve lost. orado historian Thomas J. Noel notes, it is tioned, historic theaters do a tremendous The bright lights didn’t just shine on New just “an echo of Denver’s old Curtis Street ‘Great White Way.’”1 Fortunately, as the benefits of preser- “Perfection!” vation have been increasingly recognized, Built by Vermont-born and the pace of demolition has abated – Maine-bred silver mining mag- though it is still a real threat in far too nate Horace Tabor, the Tabor many communities. Grand Opera House opened to a continued on page 18 crowd of thousands on Septem- ber 5th, 1881. According to “Theater Row” author Duane Smith: “Called to along Curtis the stage amid ‘vociferous Street in down- town Denver, applause,’ … Horace called Den- 1920. ver, with a bit of understandable chauvinism, the ‘finest city on the American continent’: ‘I said if Denver is to have an opera house it should be worthy of the city. Here is the opera house, I shall leave it to your judgment if I have done my duty in this respect.’ … ‘PERFECTION!’ headlined one Rocky Mountain News article.’”2 The opulent Opera House, demolished in 1964, lives on in Douglas Moore’s 1956 opera The Ballad of Baby Doe. The opera recounts the life of Horace Tabor and his affair with Eliza- beth McCourt “Baby” Doe. The 1 Thomas Noel, “The Mile High City,” available at: Ballad of Baby Doe’s final scene
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16 A Demolition Derby “During the post-World War II boom, Denver experienced a demoli- tion derby like the 19th-century building boom. In addition to private developers razing sites, a public agency, the Denver Urban Renewal Authority, systematically leveled much of the urban core. Block after block of downtown disappeared under a rising sea of black asphalt parking lots. … Some found downtown’s disap- pearance distressing. Old-timers grew confused and alienated with the loss of familiar landmarks and desti- nations. For longtime residents, it sometimes seemed that a trip down- DENVER PUBLIC LIBRARY town was like a trip to a foreign city.” Crowds in front of Denver’s now demolished Orpheum DENVER PUBLIC LIBRARY theater, 1950. – Thomas J. Noel (historian), “The Mile View of the demolition of Denver’s Broadway High City.” Theater in 1955. Since the 1980s, Denver has made an about-face and embraced historic preservation. Ironically, one of the strongest proponents of preservation is the Denver Urban Renewal Authority.
REPRINTED WITH PERMISSION OF THE DENVER PUBLIC LIBRARY Curtis Street, 1973
On Urban Renewal: appeared in metropolitan newspapers and city “Our cities lie destroyed all around us, and … planning reports, and nurtured hopes of a gold- the terrible thing in American society and poli- “Congress launched the federal urban redevel- en future. With the aid of Uncle Sam, cities tics is that the communities of the center of the opment program in Title I of the Housing Act were supposedly to be cleansed of their ugly city were destroyed with them.” of 1949, and during the next two decades, past and reclothed in the latest modern attire.” planners, mayors, journalists, and the public – Vincent Scully (architectural historian), “The Civilizing Force of Architecture,” Humanities 16, dreamed of grand schemes to revitalize the – Jon C. Teaford (historian), “Urban Renewal and no. 3 (May-June 1995). nation’s cities. Artists’ renderings of slick glass Its Aftermath,” in Housing Policy Debate, Volume and steel skyscrapers set in sunny plazas 11, Issue 2 (2000).
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17 Preservation takes Center Stage continued from page 16 From coast to coast (and in between) historic downtown theaters are coming back. The 1,200 seat Elsinore Theater has helped anchor Salem, Oregon’s downtown revitalization. Originally a vaudeville house, then a first run movie palace, the gothic-style Elsinore had fall- en on hard times. But that changed with its reopening in 1993. Since then renova- tions and other improvements have con- tinued. According to theater director Gail Ryder, the Elsinore is in the midst of a $3 million “return to grandeur” project, and has received substantial financial Exterior and interior views support from both the city and Marion of Salem, Oregon’s Elsinore County. Besides having an active perfor- Theater. mance calendar, the Elsinore, Ryder notes, is a popular loca- tion for receptions, meetings, and even mar- riage ceremonies! You really ought to give Iowa a try, especial- ly if you’re interested in visiting grand, restored theaters. Shawna Lode
Poster of Orpheum Circuit and for Mark
GR LINDBLADE AND COMPANY, SIOUX CITY Twain’s Puddn’Head Opening night at the restored Orpheum in Sioux City, Iowa. Wilson.
PLANNING COMMISSIONERS JOURNAL / NUMBER 52 / FALL 2003
18 of the Iowa Department of Economic Development reports that many down- town theaters are opening their doors again, sporting complete makeovers and state-of-the art technology. One of the most recent examples is the $13 million restoration of Sioux City’s 2,500 seat Orpheum Theater (part of Vaudeville’s
famous Word War I-era “Orpheum Cir- JOHN WADSWORTH cuit”). As Lode notes, the magnificently Theater marquees are once again lit in downtown Interior of the restored Loew’s Theater (now the refurbished theater includes “gold leafed Norfolk, as they were in this 1949 view. Roper Center) in Norfolk. and stenciled ornamentation, several crystal fixtures, over 20 magnificent Community College. The College chandeliers, and a hand painted pat- restored this former vaudeville house terned dome.” and movie palace to its original opu- Other reborn Iowa theaters: the 1880 lence. Renamed the Roper Performing Keokuk Grand Opera House; the 1910 Arts Center, it offers a sumptuous set- Regent Theater in Cedar Falls (now the ting, with gilded box seats, glass chande- Oster Regent); Davenport’s 1926 liers, and hand painted architectural Orpheum (reborn as the RiverCenter details. Since reopening in 2001, it has Adler Theatre); the 1889 Grand Opera hosted a wide range of performances, House in Dubuque; and Iowa Falls’ 1899 including local theater and dance compa- Metropolitan Opera House. nies, and the Virginia Symphony. But you don’t have to be in a big city The NorVa, also in downtown Nor- in Iowa to enjoy a historic theater. The folk, opened in 1922 as a movie palace. 1916 Art Deco style Hardacre Theatre, in After extensive renovations, it has the small town of Tipton (pop. 3,000), reopened as a concert hall. Also con- was renovated in 1991. Today it is an tributing to Norfolk’s active downtown active movie theater, and even hosts an theater scene is the restored New Wells annual film festival. And there’s more to Theatre (built in 1913). ◆ come, as restoration of Iowa City’s his- An excellent resource for information about the toric Englert Theater is underway. restoration of historic movie theaters is the Cine- On the East Coast, the City of Nor- ma Treasures web site, with its online database of folk, Virginia, has seen its downtown over 1,000 theaters:
PLANNING COMMISSIONERS JOURNAL / NUMBER 52 / FALL 2003
19 PRESERVATION PLANNING Preservation Boosts Local Economies by Edward T. McMahon Historic district zoning is fre- within the context of historic preserva- tion – netted more than 1,100 new busi- The “Bottleworks” quently controversial, but it in Athens, Georgia, almost always has a beneficial nesses, spurred the rehabilitation of built in 1927 for use effect on property values, commercial 1,622 historic buildings and resulted in a as part of a Coca- net gain of 2,170 new jobs. In just one Cola bottling plant, revitalization, business investment, and small town, Bedford, $3.4 million was has been converted increased tourism. This was the finding invested, 234 buildings rehabilitated, to a mix of resi- of a wide ranging 1995 study by the dential, office, and and 52 new businesses employing 116 Preservation Alliance of Virginia. retail space people created. According to David J. Brown, Executive As for property values, the study Director of the Alliance, “Historic preser- found that property values appreciated Many other studies have also docu- vation is economic growth and the reali- more in historic districts than in other mented the property value impacts of ty is that preservation means dollars in areas of the cities. These results are simi- historic preservation. For example, in the pockets of Virginians.” Athens-Clarke County, Georgia, “Prop- lar to those of a separate independent The Virginia study addressed four erty assessment values show that desig- study conducted by the Government nated districts, especially locally aspects of preservation’s economic Finance Officers Association’s research designated, have increased in value impact: tourism, job creation, property center. This study found that property faster than their non-designated com- values, and downtown revitalization. On values in the historic districts in Galve- tourism, the study found that historic parison areas. Downtown Athens has ston, Texas and Fredericksburg, Virginia shown especially strong results.” Case preservation visitors are a major portion grew 1.5 to 5 times faster than compara- of the state’s $9 billion a year tourism Study on Economic Benefits of Historic ble areas not in historic districts. Preservation, Athens-Clarke County industry. Seven out of ten first time visi- The marketplace increasingly recog- Planning Department (1997). For more tors come to the state to visit historic nizes both the short and long term eco- information contact Evelyn Reece, sites, museums, and battlefields. The nomic value of historic properties. Just [email protected]. study also found that history minded vis- compare almost any neighborhood or Similarly, studies in Colorado have itors stay longer and spend more: two- commercial area that has embraced his- found that: “Historic designation does and-a-half times more money than the toric preservation with those that have not decrease property values. Property amount spent by other visitors to the not. Historic preservation and economic values in the designated areas experi- state. development represent an effective part- enced value increases that were either The second issue the study examined nership – as a growing number of com- higher than, or the same as, nearby was job creation that resulted from the munities and businesses have come to undesignated areas,” and also that rehabilitation of some 900 historic build- realize. ◆ “Rehabilitation projects from 1981 to ings in Virginia pursuant to the federal 2000 have accounted for $4.0 million Edward McMahon is in total business income taxes, $10.8 Historic Rehabilitation Tax Credit. This Vice President of The Con- million in total personal income taxes, program created over 6,600 jobs in the servation Fund and a noted and $27.4 million in total Colorado construction trades and over 6,000 in speaker on land use topics. sales taxes. Economic Benefits of spin off areas. Construction related his- The above is excerpted Historic Preservation in Colorado, toric preservation activity resulted in a from, “Historic Districts
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