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Draft of the Historic Preservation Plan CITY OF ST. AUGUSTINE HISTORIC PRESERVATION MASTER PLAN DRAFT 21 AUGUST 2017 Preservation Design Partnership, llc Table of Contents 1.0 INTRODUCTION 2.0 HISTORICAL DEVELOPMENT (to be provided) 3.0 THE CITY TODAY 4.0 HISTORIC PRESERVATION IN ST. AUGUSTINE 5.0 HISTORIC PRESERVATION STRATEGIES 6.0 IMPLEMENTATION APPENDICES (to be provided) Resources DRAFTS.W.O.T Analysis DRAFT Introduction1 DRAFT Introduction The rich and varied history of St. Augustine has been a key component of its vitality and growth. The development pressures associated with the city’s desirability for residents, businesses and tourists is altering the historic nature and character of St. Augustine at what appears today to be an alarming pace. While development pressure is a man-made threat the city is also facing a natural threat associated with rising sea levels. With the threats affecting St. Augustine’s historic, neighborhood character, there is a rising desire to balance necessary change with preservation in a way that the city’s essential culture and sense of place is protected and maintained. The goal of this Historic Preservation Master Plan (Plan) is to identify goals, strategies and policies to support the continued preservation of the city and its diverse, neighborhood culture for future generations. While the historic character of St. Augustine has been a key element in the city’s economic success, it is also posing or heightening certain challenges: • Tourism: Tourism is the largest economy in St. Augustine, but the demands of tourists are encouraging modifications property to increase their rate of return irrespective of historic impact • Residences: Residential buildings are being converted to commercial use, particularly in tourist areas; smaller homes are being demolished to construct larger homes; and lower income residents are being displaced from neighborhoods • Sea Level Rise: Historic buildings typically do not meet current floodplain requirements, and when substantially modified, their integrity may be compromised Plan Purpose The essential purpose of a preservation plan, and ultimately a historic preservation program, is to provide the framework to protect those historic and cultural resources deemed to be locally significant fur future generations. Therefore, historic preservation plans generally include three components: 1. What is Important? – Identification of locally historically and culturally significant resources in a community 2. How is it Threatened? – Challenges affecting those significant resource DRAFT3. How can it be Improved? – Opportunities to improve those resources 4. How to Meet the Goals? – Development of an achievable, prioritized implementation strategy to address the challenges and take advantage of the opportunities The City of St. Augustine and its Department of Planning and Building engaged the consultant team of Preservation Design Partnership of Philadelphia, Pennsylvania, working with Burt Bender, of Bender & Associates of Key West, Florida, to undertake the development of this Historic Preservation Master Plan (Plan). The primary purpose of the Plan is to create a long-term vision that includes the identification of practical and achievable strategies for improving and expanding the historic preservation and archaeological programs to be more inclusive of the city’s diverse historic and cultural resources. The Plan builds on the success of prior preservation efforts in St. Augustine, including those outlined in the 1986 Historic Preservation Plan Element, as well Figure 1.1: St. Augustine Streetscape efforts of its citizens, organizations and institutions. The Plan also recognizes City of St. Augustine, Florida Preservation Plan DRAFT - 21 August 2017 1.1 that effective implementation will require continued support from a broad constituency and the embrace of a preservation ethic throughout the St. Augustine community at large. By establishing the role and contribution of historic preservation in the city’s economic development future, the citizens and government of St. Augustine can balance their historic past with future development and change. 1986 Historic Preservation Plan Element – Setting the Stage When prepared in 1986, the Historic Preservation Plan Element of the St. Augustine Comprehensive Plan immediately followed the designation of the city as a Certified Local Government, and it represented one of the first such efforts in the State of Florida. At the time of its preparation, there was a strong emphasis on protecting and celebrating the city’s colonial past, with an emphasis on conveying a “sense of place” through both preservation of the Town Plan’s earliest buildings and later reconstructions, as well as ensuring that new construction was compatible within the colonial context. The four articulated goals of the 1986 Historic Preservation Plan Element were to: 1. Preserve St. Augustine’s historic Town Plan 2. Preserve archaeological resources 3. Identify and preserve historic neighborhoods, sites, buildings, structures and objects within the city 4. Assist in the restoration of the Colonial City In the intervening 30-plus years, there were great strides and achievements in meeting the aspirations of the goals, although it must be acknowledged that every objective was not achieved. The success of the 1986 Plan’s implementation can be seen in the desirability of St. Augustine as a place to live, work and visit. Since 1986, preservation projects have occurred across the city, with the greatest concentration in the locally designated historic districts, by individuals, businesses and institutions. Historic Preservation Today Today, the administrative structure of the city’s historic preservation program remainsDRAFT much the same as it did in 1986. The Historic Architectural Review Board (HARB) implements Ordinance 83-10 and is supported by a full-time, historic preservation staff member. Their jurisdiction includes reviews of Certificates of Appropriateness Applications in five designated local historic districts, and Certificate of Demolition Applications for all buildings 50 years of age or older across the city. In addition, a full-time archaeologist is engaged with the city, and an archaeological laboratory has been established to assess finds from excavations. These activities are supported by volunteer citizens, organizations and citizens, who aid in various aspects of historic preservation and archaeological activities. In many ways, St. Augustine is a victim of its own success, with an economy that is largely driven by its heritage. Since 1986, the city has experienced a dramatic increase in tourism and associated commercial development, residential desirability and threats from sea level rise are all impacting the historic character of St. Augustine and its neighborhoods that could not have been anticipated at the time of the preparation of the 1986 Historic Preservation Figure 1.2: Demesa Sanchez House Spanish Inn City of St. Augustine, Florida Preservation Plan 1.2 DRAFT - 21 August 2017 Plan Element. The growth being experienced by the city is often at odds with the preservation of the history and character that makes it desirable. There is a shared sense that things are changing faster than many would prefer, and the unique character and sense of place are being lost. A SWOT (Strengths, Weaknesses, Opportunities, Threats) Analysis was conducted at the commencement of the preparation of this Plan (19 May 2016). The following issues were identified through public participation: • Need to tell the entire story of the City, including areas outside of Downtown, with neighborhood participation • Impact of tourism and parking • Documentation incomplete or outdated, particularly in outlying areas and neighborhoods • Preservation goals deviating from zoning requirements • Erosion of historic fabric – Demolition and inappropriate infill outside of local Historic Preservation districts • Need for additional financial incentives to encourage preservation • Need for additional archaeological program support • Lack of community support for preservation activities This Plan was largely guided by the major recommendations and themes presented in the SWOT analysis. (Refer to the Appendix for full SWOT Analysis comments.) While many of the concerns voiced in the initial public meeting were repeated and reinforced at subsequent meetings and through conversations with city representatives, the one new issue that emerged was the need to address hazard mitigation related to historic properties, particularly in light of the impacts of Tropical Storm Mathew in October, 2016. Development of the Historic Preservation Master Plan This Plan is intended to serve the City of St. Augustine, and thus, relied heavily on the developing an understanding of current issues through observation and interviews, input provided in public meetings and focus groups and invaluable DRAFTfeedback during its preparation. Its development occurred over 15 months, and included: • Significant field work photography to better understand each neighborhood’s character and features • Researching preservation policies and cultural tourism impact and management from different cities • Collecting community input and consulting with community experts, city board members and officials • Preparation of the Plan As part of the public engagement included in the Plan’s preparation, the following public meetings and presentations were included in its preparation: • 5/19/16: Historic Preservation Master Plan Public Forum • 8/18/16: Public
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