historic preservation€¦ · governor philip hoff, and gordon gray, chairman of the national trust...

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N E W S & I N F O R M A T I O N F O R C I T I Z E N P L A N N E R S

An Introductionto HistoricPreservationPlanningHow communities arebenefiting from localpreservation policies.

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Historic Preservation isSmart GrowthWhy preservation is oneof the most importanttools in the SmartGrowth movement.

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PreservationOrdinancesFAQ about localpreservation ordinances.

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PreservationTakes Center StageBravo!

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Boosting LocalEconomiesThe positive impacts ofhistoric district zoning.

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P L A N N I N GC O M M I S S I O N E R S

— PLANNING FOR —

Historic Preservation

3 C’s of PreservationContinuity. In our rapidly changing world,

it is vitally important to preserve our links to thepast. Yes, change is inevitable, and it often leadsto improvements in our towns and cities. Butrapid change also carries its costs, threateningour sense of stability, and our feeling that we’reconnected to past generations. Preservation alsovisibly reminds us of how our communities haveevolved over time.

Coherence. Much of what was built in the19th and early 20th century worked well as an“ensemble.” Neighboring buildings comple-mented each other, much better than has usuallybeen the case in recent decades. Just considerthe typical groupings of commercial buildingsthat lined – and still line today – Main Streetsfrom coast-to-coast. They provide a sense ofcoherence to cities and towns, large and small.As historian Richard Francaviglia has observed:“Although our Main Streets may have individualpersonalities and regional characteristics, theyare instantly recognizable as American.”

Creativity. It is not a contradiction to saythat historic preservation values creativity. Infact, there has been much more creativity in theadaptive reuse of historic buildings than in thebland character of many new buildings.

Preservation has evolved far beyond its earlyfocus on the restoration of historic properties offamous Americans. Preservation today isengaged in questions of how to keep our down-towns and older neighborhoods vibrant byrespecting the past, while fostering infill devel-opment to fill in the gaps. Indeed, developersand local officials recognize the enormous eco-nomic benefits that strong local historic preser-vation programs can yield.

So put it all together: continuity, coherence,and creativity. 3 C’s of preservation.

PRESERVATION PLANNING

An Introduction to Historic Preservation Planningby Amy Facca

Planning for historic preservation hasevolved far beyond saving the homes offamous people. As preservation plannerAmy Facca describes, it now involves therevitalization of historic downtowns, aswell as commercial, residential, and evenindustrial districts. As such, preservationhas become an important economic devel-opment tool. A look at the basics of plan-ning for historic preservation.

Historic Preservation is Smart Growthby Donovan D. Rypkema

Why historic preservation is integral to theprinciples of “Smart Growth.”

Historic Preservation Ordinances: Frequently Asked Questionsby Julia H. Miller, Esq.

Perhaps the single most important tool inlocal historic preservation efforts is thepreservation ordinance. Yet these ordi-nances are often controversial and poorlyunderstood. Answers to some of the mostfrequently asked questions about preserva-tion ordinances.

Preservation Takes Center Stageby Wayne Senville

Over the past two decades hundreds ofhistoric theaters have been reborn. Indeed,one of the most dramatic impacts historicpreservation can have is through therestoration of the grand movie palaces andopera houses that still stand in the heart ofmany communities.

Preservation Boosts Local Economiesby Ed McMahon

A look at some of the impacts historic dis-trict zoning has on tourism, job creation,and property values.

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Champlain Planning Press, Inc.

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Editorial Policy

Articles and columns contained in the Journal do not necessarily reflect the views of the Journal. The Journal iscopyright protected by Champlain Planning Press 2003.For permission to reproduce or distribute any portion of theJournal, contact the Editor. This publication is designed to provide accurate and authoritative information on the sub-ject matter covered. It is sold with the understanding thatthe publisher is not engaged in rendering legal, accountingor other professional services. If legal or other expert assis-tance is required, the services of a competent professionalshould be sought.

Editor

Wayne M. Senville

Office Staff

Elizabeth M. KrumholzOffice Manager

Margaret Ellis-GreenKelly Horan

Assistant Editor

Larry PfluegerClearwater, Florida

PCJ Columnists

Elaine Cogan Portland, Oregon

Michael ChandlerBlacksburg, Virginia

C. Gregory Dale, AICP

Cincinnati, Ohio

Cover Illustration

Paul HoffmanGreenfield, Massachusetts

Design

Ned CorbettFerrisburgh, Vermont

Editorial Advisory Board

Larry Frey, AICPBradenton, Florida

Lee A. Krohn, AICPManchester, Vermont

Wayne LemmonSomers, New York

Christopher LeoWinnipeg, Manitoba

King Leonard, AICPLompoc, California

Ross MoldoffSalem, New Hampshire

Christine B. MuellerLawrenceburg, Indiana

Irv SchiffmanChico, California

Bryan Stumpf, AICPIndianapolis, Indiana

Barbara SweetHyde Park, New York

Ilene WatsonKelowna, B.C.

Lindsley WilliamsWashington, D.C.

F R O M T H E E D I T O R P L A N N I N GC O M M I S S I O N E R S

Wayne M. Senville, Editor


Returning in the Winter PCJ:Because of the extended coverage of historic preservation in this issue, we didnot have room for our regular columnists:Elaine Cogan, Mike Chandler, and Greg Dale will return in the Winter issue.

Burlington, Vermont’s historic Flynn Theater is justtwo blocks up Main Street from the PCJ's office.

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P R E S E R VAT I O N P L A N N I N G

An Introduction to Historic Preservation Planningby Amy Facca

Across the country there aresigns of a renewed interest in ourcommunities’ historic resources. Abandoned, vacant, and underutilizedhistoric buildings are being creatively putto new use. Neglected, but once spectac-ular, theaters are being restored as newperformance spaces. Historic residentialdistricts and neighborhoods are beingreinvigorated. As these transformationstake place, historic preservation is beingseen as providing tangible benefits tocommunities large and small.

Many of us have taken time to visitplaces noted for their historic character,whether larger cities like Savannah,Georgia; San Antonio, Texas; or NewOrleans, Louisiana, or smaller communi-ties like Natchez, Mississippi; VirginiaCity, Nevada; Port Townsend, Washing-ton; and Quincy, Illinois. Virtually everyone of us has undoubtedly spent timepleasantly walking through historic MainStreet and residential districts. Theappeal of these areas is universal. Reflect-ing this, a growing number of communi-ties have been incorporating historicpreservation into their comprehensiveplans, downtown revitalization strate-gies, neighborhood improvement plans,

and zoning ordi-nances.

This article isintended to providea brief introductionto historic preserva-tion planning. Youwill read aboutsome of the benefitsof preservation, andfind information onhow communitiesare implementinglocal preservation

policies. Resources are also listed forthose of you who want to learn moreabout preservation planning.

PRESERVATION IN AMERICA

The first interest in preserving his-toric structures can be found in the mid-19th Century efforts to acquire andrestore the homes of famous Americanslike George Washington’s Mount Vernonand Thomas Jefferson’s Monticello.Beginning in 1927, the scope of historicpreservation expanded dramatically withthe start of John D. Rockefeller’s restora-tion of Williamsburg, colonial Virginia’scapital city. The next, and perhaps mostimportant, step in the preservationmovement was taken in 1931 when

Charleston, South Carolina, establishedthe nation’s first local historic district.Preservation no longer concerned itselfjust with individual structures, but alsotook into account the historic value ofgroups of buildings, districts, and evenwhole communities.

The main waiting room in New York’s Pennsylvania Station, demolished in 1965.

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Elaborate iron gatesare common inCharleston, South Carolina’s, historic districts.

View of President Thomas Jefferson’s home, Monticello.

Vacant for many years, the Rice Building in down-town Troy, was redeveloped by a partnership ofthe Troy Savings Bank, Rensselaer PolytechnicInstitute, and the Troy Architectural Program, Inc.The building is now fully occupied and used as ahigh-tech “incubator.”

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But major losses also acted to ener-gize the preservation movement. Asplanning historian Larry Gerckens hasnoted, “The demolition of New YorkCity’s Pennsylvania Station in 1965, oneof the nation’s most magnificent railroadstations, shocked many New Yorkers, aswell as citizens across the country. Out-raged by the fact that there was no legalrecourse to stop the demolition (thebuilding was privately owned by thenearly bankrupt Pennsylvania Railroad),New Yorkers responded by enacting laterthat year a comprehensive landmarkspreservation law.” See “H is for HistoricPreservation,” in PCJ #46, Spring 2002.

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Historic preservation became federalpolicy with the adoption of the NationalHistoric Preservation Act (NHPA) in1966. This law was enacted followingcompletion of With Heritage So Rich, acomprehensive report undertaken by theU.S. Conference of Mayor’s Special Com-mittee on Historic Preservation inresponse to the substantial loss of his-toric and cultural resources broughtabout by urban renewal and constructionof the interstate highway system.1

Among other things, the NHPAauthorized creation of a National Regis-ter of Historic Places, directing the U.S.Secretary of Interior to maintain a list ofdistricts, sites, buildings, structures, andobjects significant in American history,architecture, archeology, engineering and culture. Indeed, within twenty-fiveyears of its passage there were over 8,000historic districts listed in the NationalRegister.

The NHPA also authorized the estab-lishment of historic preservation officesin each state, and mandated the creationof standards and guidelines for variouspreservation activities, such as how toidentify historic resources. The surveyprocess and criteria for evaluating poten-tial historic resources are important com-ponents of preservation planning

because they help to distinguish what is historic from what is merely old.

Identifying Historic Resources.

In recent years, historic preservationhas continued to expand its focus, withnew interest in preserving and enhancingthe distinctive character of communities,and even regions.

BENEFITS OF HISTORICPRESERVATION

Since the 1970s, mounting evidencehas shown that historic preservation canbe a powerful community and economicdevelopment strategy. Evidence includes

1 This was no ordinary Committee. It was chaired byAlabama’s Albert Rains (who had been an influentialmember of Congress until retiring in 1965), andincluded then U.S. Senator Edmund Muskie; VermontGovernor Philip Hoff, and Gordon Gray, Chairman ofthe National Trust for Historic Preservation, amongothers. A number of distinguished historians andplanners also contributed to the Committee’s report.

The National Historic Preservation Act

Congress, in 1966, enacted theNational Historic Preservation Act inresponse to the widespread demolition ofhistoric structures. Among the findingsset out in the Act:• the spirit and direction of the Nationare founded upon and reflected in its his-toric heritage; • the historical and cultural foundationsof the Nation should be preserved as aliving part of our community life anddevelopment in order to give a sense oforientation to the American people;• historic properties significant to theNation’s heritage are being lost or sub-stantially altered, often inadvertently,

with increasing frequency;• the preservation of this irreplaceableheritage is in the public interest so thatits vital legacy of cultural, educational,aesthetic, inspirational, economic, andenergy benefits will be maintained andenriched for future generations of Ameri-cans.

One of Act’s key provisions – Section106 – established a process for addressingthe adverse impact of federally funded,licensed, permitted, or regulated activi-ties on historic resources. Along with aneven stronger provision applicable to fed-erally funded highway projects (Section4(f) of the Department of TransportationAct of 1966), local preservationists, forthe first time, had a real say in the designand location of many projects affectinghistoric structures and districts.

Identifying His-toric ResourcesHistoric buildings and

neighborhoods often evoke passionatefeelings. The threat of demolition canspark heated community debates aboutwhether a building is historic or not. Asthese discussions take place, some com-munity members may conclude that oth-ers think “everything is historic” andmust be “saved.” In fact, however, preser-vation professionals and commissionsmake determinations about what is or isnot historic based on the National Regis-ter of Historic Places criteria which havebeen tested, used, and periodicallyrevised since their initial development in1966.

The National Register is the officiallist of properties significant in the history,

architecture, archaeology, and culture ofthe United States. These are buildings,districts, sites, objects, and structures thatpossess “integrity of location, design, set-ting, materials, workmanship, feeling,and association,” and that:

• Are associated with historic events;

• Are associated with “the lives of per-sons significant in our past,”

• Embody distinctive architectural orartistic characteristics;

• Have yielded or are likely to yield infor-mation important in history or prehistory.

Ordinarily properties that haveachieved significance within the past 50years are not considered eligible for theNational Register. Representatives of statehistoric preservation offices and organiza-tions can help with determinationsregarding whether a building is historic.

Historic Preservation Planningcontinued from page 3

“Preservation does not mean merelythe setting aside of thousands ofbuildings as museum pieces. It meansretaining the culturally valuablestructures as useful objects: A homein which human beings live, abuilding in the service of somecommercial or community purpose.Such preservation insures structuralintegrity, relates the preserved objectto the life of the people around it,and not least, it makes preservation asource of positive financial gainrather than another expense.”

– Lady Bird Johnson, from Foreword toWith Heritage So Rich (1966).

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statistics compiled from annual surveysconducted by the National Trust for His-toric Preservation and statewide MainStreet programs, state-level tourism andeconomic impact studies, and studiesthat have analyzed the impact of specificactions such as historic designation, taxcredits, and revolving loan funds. Amongthe findings:• Creation of local historic districts stabi-lizes, and often increases residential andcommercial property values.• Increases in property values in historicdistricts are typically greater thanincreases in the community at large.• Historic building rehabilitation, whichis more labor intensive and requiresgreater specialization and higher skillslevels, creates more jobs and results inmore local business than does new con-struction.

• Heritage tourism provides substantialeconomic benefits. Tourists drawn by acommunity’s (or region’s) historic char-acter typically stay longer and spendmore during their visit than othertourists.• Historic rehabilitation encouragesadditional neighborhood investment andproduces a high return for municipaldollars spent.• Use of a city or town’s existing, historicbuilding stock can support growth man-agement policies by increasing the sup-ply of centrally located housing.

PLANNING FOR HISTORICPRESERVATION

Elected and appointed officials oftenface difficult and controversial decisionsthat affect the character of their commu-nities. Many of these decisions relate to

older and historic buildings, neighbor-hoods, and commercial districts. Exam-ples include:• Demolishing an old building or groupof buildings to make way for new devel-opment such as a chain drugstore or “bigbox” retailer.• Constructing a new addition on anexisting building.• Constructing a new building in anolder neighborhood.• Replacing historic building elementssuch as windows, doors, porches, roofs,or original siding materials.

When making these decisions, elect-ed and appointed officials look to theircommunity’s long-range plan, zoningordinances, and related land use regula-tions. In many communities, these docu-ments provide little guidance in terms ofhistoric preservation. While plans orordinances may reference (often in anappendix) those buildings or neighbor-hoods listed in National and State Regis-ters of Historic Places, this information,in and of itself, is of minimal value todecision makers. Without more, simplybeing listed in the National or State Reg-isters only provides limited protectionfrom federal or state actions that mayadversely affect historic resources.2

Preservation planning is key to estab-lishing public policies and strategies thatcan help prevent the loss of historicresources. It provides a forum for discus-sion and education about issues relatedto historic resources and development.This includes important questions suchas when and where it may be appropriate

JEFFERSONVILLE, INDIANA:

A “Main Street” City

Jeffersonville, Indiana (pop. 27,000),like more than 1,600 other cities andtowns across the country, has benefitedfrom the National Trust for HistoricPreservation’s Main Street approach todowntown revitalization. According toJay Ellis, Executive Director of Jefferson-ville Main Street, Inc., “Main Street pro-grams are about community buildingwith a historic preservation ethic.”

As Ellis describes, “downtown Jeffer-sonville has seen dozens of propertiessaved by utilizing historic preservation asan economic development tool. OurMain Street program has been involvedwith the transformation of several dilapi-dated buildings into strong contributorsto the local economy. We’ve been able torecapture dollars that were leaking out ofdowntown.”

Ellis points out that in Jeffersonville,the rehabilitation of historic structureshas been accompanied by sensitivelydesigned infill projects on vacant lots.The results have paid off for the city interms of significantly increased propertyvaluations. “With infill projects we’veseen some properties increase in value

from $10,000 to $500,000 in just 10years,” he said. As Jeffersonville’s MainStreet director succinctly puts it, “reusingland and buildings makes sound financialsense.”

For more information, contact JayEllis at: 812-283-0301; [email protected] about the National Trust’sMain Street Center can be found at:<www.mainstreet.org>.

Old and newblend together indowntown Jeffer-sonville, Indiana.Schimpff’s Confec-tionery in down-town Jeffersonvillehas (left) beenowned and operat-ed by the Schimpff

family for 112 years. The owners live abovethe shop. Nearby is a new infill project housing a florist shop on the groundfloor, and two large apartments above it.

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2 This is not to say that protection from adverse feder-al or state actions is unimportant. For example, whenprojects involving federal funds (e.g., highway con-struction) affect structures or historic districts listedin the National Register, the federal government mustconsider these impacts and, at least, try to addressthem (e.g., by considering alternative approacheswhich might have less harmful impacts). This can beof great value in ensuring the protection of a commu-nity’s historic resources.

Listing in the National Register also providesaccess to public and private sector financial incen-tives. Many communities use the survey and listingprocess as a first step in downtown or neighborhoodrevitalization. Historic districts are also popular desti-nations for tourism activities, and can serve as cata-lysts for commercial development.

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to demolish historic buildings, and whatresources must be protected to maintainthe community’s historic and architectur-al character.

Preservation planning usually resultsin the preparation of a formal planningdocument by professional planners, historians, or architects specializing in historic preservation. This can be astand-alone planning document such asa historic preservation plan, or a compo-nent of a long-range planning documentsuch as a master plan, downtown revital-ization plan, or neighborhood improve-ment strategy. Information about acommunity’s historic resources and his-toric preservation efforts can also beincorporated into various sections of

community planning documents, suchas sections relating to housing, commu-nity character, downtown revitalization,and economic development.

Preservation planning, like mostplanning processes, typically includes along-range vision, goals and objectives,and recommended implementing actions(such as adoption of a local preservationordinance). A well-conceived preserva-tion planning process serves to:• Establish a basis of public policy abouthistoric resources;• Educate and inform residents and oth-ers about their community’s heritage andits value;• Identify opportunities for economicgrowth based on the community’s his-toric and architectural character.• Ensure consistency among variouslocal government policies that affect thecommunity’s historic resources;• Lay the groundwork for adopting alocal historic preservation ordinance orstrengthening an existing one;• Eliminate uncertainty or confusionabout the purpose, meaning, and contentof a community’s preservation ordinance;

• Inform existing and potential propertyowners, investors, and developers aboutwhat historic resources the communitywants to protect as it grows;• Create an agenda for future preserva-tion activities; and• Facilitate compliance with federal andstate historic preservation and environ-mental quality laws.

1. Preservation Plans

Preservation plans can build on infor-mation developed through historicresource surveys and lay the groundworkfor the formal designation of individualproperties or districts. As noted, forexample, in the Carbondale, Illinois, His-toric Preservation Plan, preservationplanning “gives focus and direction to acommunity’s efforts to protect andenhance its historic resources. [It] workstoward making preservation decision-making a normal function or element ofland use decisions rather than an excep-tional one, thus making historic preser-vation proactive rather than reactive.”

While there is no prescribed formator structure for a preservation plan, ittypically includes a description of a com-munity’s preservation efforts and sets outgoals, policies, and specific actions relat-ed to the continuing identification, pro-tection, and enhancement of historicresources. It may also include an expla-nation of the legal basis for preservation,and supporting information such asNational and State Register listings,architectural styles, preservation organi-zations, and other information.

Preservation plans serve several pur-poses:• educating elected and appointed offi-cials, municipal staff, property owners,investors, and others about the status ofhistoric resources within the communityand the economic benefits of preserva-tion;• formally documenting existing condi-tions, issues, opportunities, and chal-lenges;• providing information on tax and otherincentives for preservation;• offering discussion and analysis regard-ing preservation of historic resources,

CARBONDALE, ILLINOIS:

PreservationPlanning

In 2001, the City of Carbondale, Illi-nois’ historic preservation commissionbegan preparation of a community-widehistoric preservation plan with assistancefrom a preservation consultant. Prepara-tion of the plan has included a communi-ty workshop with large and small groupsessions. Workshop participants wereinvited to express their concerns anddesires for the city’s historic resourcesand respond to classic planning questionsof what do we have? What do we want?And, how do we get it? Responses fromthe workshop have helped form the basisof the preservation plan’s goals and rec-ommended actions. Among the recom-mendations: designation of additionalNational Register and local historic dis-tricts, and enhancements to the City’szoning ordinance.

According to Tom Redmond, Carbon-dale’s Development Services Director, theDunaway Block downtown (see photo)has recently been added as a local his-toric district. As Redmond notes, this“has brought attention to the historicresources that are present in downtownCarbondale and has resulted in otherproperty owners in the area inquiringabout listing their property on the localregister.”

For more information, contact TomRedmond: [email protected]

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Restored commercial buildings in downtownCarbondale, Illinois.

“As more and more of the existing phys-ical fabric becomes eligible for preserva-tion, the issue of what should be pre-served and the struggle with the forcespressing for change become sharper.”

– Kevin Lynch, Good City Form (MITPress, 1981).


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and establishing a roadmap for futureefforts;• setting out the roles and responsibili-ties of the public, private, and nonprofitsectors with regard to the preservation ofhistoric resources.

Preservation plans also play a criticalrole in providing the supporting ratio-nale and framework for developing alocal historic preservation ordinance.

2. Preservation Ordinances

One of the biggest misconceptionslocal officials may have is the belief thatlisting a structure on the National Regis-ter of Historic Places (or on a comparableState Register) protects the structurefrom demolition or significant change. Infact, it is precisely because listing onlyprovides limited protection from federaland states actions, and does not preventbuilding demolition, that many commu-nities have enacted local preservationordinances.3

A preservation ordinance typicallyincludes a statement of purpose, a permitprocess requiring a certificate of appro-priateness or approval, and rules regard-ing building demolition, maintenance,and economic hardship (not unlike zon-ing variances). Preservation ordinancesalso generally establish a historic preser-vation commission (sometimes called aheritage commission or an architecturalreview board) to review applications.

SAVANNAH, GEORGIA:

Where Growth Means Preservation

One of the most remarkable historicpreservation stories is that of the SavannahCollege of Art & Design (“SCAD”), a pri-vate institution. SCAD has accommodatedan amazing amount of growth – from 71students at its opening in 1979 to 5,800today – through the planned restorationand adaptive reuse of more than fifty his-toric structures. Between 1987 and 2000,SCAD invested some $51.4 million in therestoration of historic properties. Theschool has built only two new facilities.

While the school’s rapid growth hasnot been without some friction, SCAD hasclearly been a major factor in the revitaliza-tion of downtown Savannah and severalnearby neighborhoods.

SCAD’s economic impact on Savannahand Chatham County has been enormous.A 1997 report by the Bureau of BusinessResearch & Economic Development atGeorgia Southern University found thatthe college and its students pumpedbetween $70 and $90 million dollars annu-ally into the County’s economy. And thatwas a conservative estimate, as it didn’tinclude spending from visiting families ofstudents or from the 20,000 prospectivestudents and their families who visit SCAD

each year. As the report further noted,“Clearly, SCAD’s investment in redevelop-ment complements and enhances Savan-nah’s image as a destination for heritagetourism and historic preservation.”

Just as the city has benefited from thecollege, the college has benefited fromSavannah. Students and faculty take advan-tage of the city’s numerous historic squaresas an alternative to the traditional collegegreen. While most of the school’s facilitiesare located within walking distance of eachother, shuttle buses also regularly circulate.

Being historic doesn’t mean being out-of-date. The interior of the rehabbed build-ings provide state-of-the-art classroomsand studio space, while miles of fiber opticcable connect many of the properties.

Just some of the historic properties that make upSCAD. Pepe Hall (above), which houses the arthistory department and slide library, is aMediterranean Revival style building, built in1906. The school’s modern Jen Library (below)is in the former Maas Brothers department store(circa 1925). A former Art Moderne styledowntown theater which closed in 1980 hasbeen reborn as the 1,100 seat Trustees Theater(left), home of the school’s media and perform-ing arts department, and headquarters for theSavannah Film Festival.

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“We do not use bombs and powderkegs to destroy irreplaceablestructures related to the story ofAmerica’s civilization. We use thecorrosion of neglect or the thrust ofbulldozers. … Connections betweensuccessive generations of Americans– concretely linking their ways of life– are broken by demolition. … Whythen are we surprised when surveystell us that many Americans, youngand old, lack even a rudimentaryknowledge of the national past?”

– from Preface to With Heritage So Rich(U.S. Conference of Mayors, 1966).

3 Model historic preservation ordinances are general-ly available from statewide historic preservationoffices and statewide not-for-profit preservation orga-nizations.

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erties or to specific areas (or streets)within the community. The historic over-lay zone regulations might address issuessuch as building materials, colors, facaderequirements, and other items identifiedby the community as important to main-tain the historic nature of the structure orarea. This approach is sometimesreferred to as a ‘mandatory requirement’overlay, indicating that the restrictionsidentified in the overlay are mandatoryprerequisites to development or redevel-opment. Each property within a historicpreservation overlay zone – as with anyoverlay zone – would also be subject tothe requirements of the underlying zon-ing district in which it is located.” From,“Making Use of Overlay Zones,” PCJ#43, Summer 2001.

To be most effective, local preserva-tion laws should include design guide-lines or criteria about appropriate andinappropriate alterations to historicbuildings. These spell out what propertyowners can or cannot do in terms ofalterations to a designated historic struc-ture, and cover questions such as win-dow replacement, additions, new roofs,porch construction, application of syn-thetic siding materials, and relatedissues. So, for example, if property own-ers wanted to add a porch to their house,they would need to review the historicpreservation ordinance and designguidelines. This would enable them todevelop a porch design consistent withthe style of the house or the character ofthe historic district it is located in. Com-munities can also provide advice to prop-erty owners through staff assistance or byway 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


TALLAHASSEE, FLORIDA:

Financial Incentives for Preservation

Financial incentives are a key part ofthe City of Tallahassee’s strategy to pro-mote historic preservation. The City(population, 150,000) provides grantsand low-interest loans to property own-ers – between $150,000 and $250,000annually from the city’s general funds –for repairs and renovations to both resi-dential and commercial properties.These typically supplement fundsinvested by the property owner. A boardof City staff, the Historic PreservationOfficer, and three local banking repre-sentatives review all applications. Theyhave final say on requests of $10,000 orless; more than $10,000 requiresapproval by the City Commission (thegoverning body).

For example, “The Columns” (seephoto below), built in 1830 as a private

residence and bank, is now home to theTallahassee Area Chamber of Com-merce. The Chamber expended$380,000 for major renovation work,supplemented by a $41,000 city grantand a $34,000 city loan. Incidentally,“The Columns” was long rumored tohave a nickel baked in every brick by itsoriginal owner (and then President ofthe Bank of Florida) William “Money”Williams – spare change presumably notavailable for the renovation work 165years later!

Tallahassee also makes use of aFlorida law which authorizes munici-palities and counties to provide by ordi-nance up to a 50 percent reduction inassessed value for historic propertiesused for commercial and certain non-profit purposes. In 2002, some 36 his-toric properties in Tallahassee received a50 percent reduction in their valuation.

For more information, contactAlyssa McManus, Tallahassee Trust forHistoric Preservation: 850-488-7100.

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“The Columns” in downtown Tallahassee, Florida.

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“Historic district zoning is frequentlycontroversial, but it almost alwayshas a beneficial effect on propertyvalues, commercial revitalization,business investment, and increasedtourism.”

– Edward McMahon, “Preservation BoostsLocal Economies,” p. 20

Often, the ordinance will provide thatdecisions of the preservation commis-sion can be appealed to the local govern-ing body.

Procedures for designating buildingsand districts as historic are also usuallyset out in the ordinance. A number ofcommunities require at least 50 percentof affected property owners to consent tothe establishment of a historic district. It

is also not uncommon for the planningcommission to be responsible for review-ing a historic preservation commission’srecommendation for a historic districtdesignation. Typically, the local govern-ing body has the final say on these deter-minations.

Preservation ordinances will oftenestablish a historic “overlay” district inthe local zoning code. As explained byattorney Elizabeth Garvin: “This overlaywould apply to designated historic prop-

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from making any changes or improve-ments. Again, the goal is to ensure thatproposed changes are in keeping withthe style of the house or character of thedistrict. And, it is worth repeating, localordinances cannot require that privatelyowned properties be open to the public.

While local preservation ordinancesdo restrict owner actions, we shouldkeep in mind that local zoning regula-tions also restrict owner actions. Bothalso typically provide safety valves todeal with legitimate cases of economichardship presented by property owners.

Historic preservation ordinancesshare a common goal with zoning: to sta-bilize and enhance property values in thecommunity. The question is one of bal-ancing community-wide interests withthose of individual property owners.Certainly, this is a legitimate area forpublic discussion and debate, and theline will be drawn differently from com-munity to community.

3. Enhancing Historic Resources

The preservation planning processcan also help communities identify otheractions that will improve their historicareas. These actions may be implement-ed by municipal staff, by the planningcommission, by an existing housing,community, or economic development

organization, or by an organizationestablished specifically for that purpose,such as a local historic preservation orga-nization, Main Street group, or a businessimprovement district.

Improvement strategies typicallyinclude both public and private invest-ments. For example, public investmentsmight include sidewalks, curbs, lighting,signage, information kiosks, and streetfurniture in historic districts. Many com-munities have grant or loan programs tostimulate private investment, oftenaimed at façade improvements or build-ing rehabilitation. Grant and loan fund-ing is also often available from variousfederal or state agencies, as well as fromlocal institutions such as hospitals, uni-versities, and banks.

Because these programs generallyemphasize the importance of gooddesign and high quality materials, theyoften also include some form of designassistance to property owners. Indeed,one of the “selling points” of historicpreservation to property owners (anddevelopers) should be the fact that it canopen the door to financial resources thatwould otherwise be unavailable.

Among the most important incen-tives available for historic building reha-bilitation are federal tax credits.4 Jointlyadministered by the National Park Ser-vice and the Internal Revenue Service,this program provides a 20 percent tax

Financing Historic Preservation

Since there are few dedicated sourcesof funding for historic preservation, com-munities and not-for-profit organizationsseeking to finance their historic preserva-tion efforts need to be creative andresourceful. Sources of funding include:• A community’s capital revenue.• Grants from federal, state, and nonprof-it programs.• Private donations, organizational mem-bership fees, and corporate contributions.

• Income raised through special assess-ment districts such as a businessimprovement district or local “MainStreet” program.• Revolving loan funds (which can becapitalized in many ways).• Tax credits, rebates, and abatements(federal, state and local).• Incentives such as grants, loans, anddesign assistance, for property ownersand businesses.• Special fundraising and promotionalevents or programming.

MACON, GEORGIA:

Affordable HousingGeorgia’s Historic Macon

Foundation (“HMF”) has established astrong track record in combining afford-able housing and historic preservation.Its programs have involved creative part-nerships between HMF, Mercer Universi-ty, the housing authority, several privatefoundations, and the City of Macon’scommunity development department.

Through these partner-ships, HMF has estab-lished a revolving loanfund for the rehabilitationof buildings in Macon’shistoric districts and pre-pared paperwork allowingproperty owners to obtainfederal and state tax cred-its. HMF has also rehabili-tated housing in historicdistricts for low and mod-erate income persons, andworked with private devel-opers to purchase, rehabil-

itate, and resell historic buildings. According to Bette-Lou Brown, HMF’s

Executive Director, HMF rehabs abouteight houses a year. As she puts it, “it isnot huge, but over time it makes a differ-ence.” Brown notes that HMF’s work is in“mixed race, mixed income neighbor-hoods,” adding that “we cannot bring ourcentral cities back without gentrification– but we must have gentrification withjustice.”

For more information, contact Bette-Lou Brown at: 478-742-5048.

★

This modest Queen Anne style cottage is one of 14 rehabbedhomes in the Tatnall Square Heights neighborhood.

continued on page 10

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4 For details on federal tax credits, go to the NationalPark Service’s web page: <www2.cr.nps.gov/tps/tax/>

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credit for the rehabilitation of income-producing buildings that are designatedas National Historic Landmarks; listed inthe National Register of Historic Places;or “contributing” buildings in a NationalRegister-designated historic district. Asmaller 10 percent tax credit is availablefor the rehabilitation of non-historicbuildings built before 1936.

To qualify for the tax credit, propertyowners must complete a three-part appli-cation, with all work formally certifiedby the National Park Service. Park Ser-vice staff determine whether the rehabili-tation work complies with the Secretaryof the Interior’s “Standards for Preserva-tion Planning.” Similar state and local taxincentive programs are increasingly com-mon. Financial Incentives, p. 8. Additionalinformation about tax incentives pro-grams which might be available in yourarea can be obtained from your state historic preservation office. Resources.

4. Educating the Public

The preservation planning processalso plays a critical role in educatingcommunity residents, business owners,and elected officials about the economicvalue of the community’s historicresources, and the benefits of historicpreservation. Indeed, any preservationplan should be designed with this educa-tional purpose in mind. Informationshould also address common misunder-standings, such as the idea that buildingslisted in the National Register must beopened to the public once a year, or thathistoric preservation is only beneficial towealthy residents. Unless potential con-cerns are addressed, and the values ofpreservation clearly articulated, it will bedifficult to generate support for actionslike developing a local preservation ordi-nance. Responding to Questions, p. 15.

5. Sources of Assistance

Many individuals and organizationscan assist planning commissioners andothers interested in learning more abouttheir community’s historic resources,preparation of historic preservationplans, incorporation of historic preser-

vation into other community planningefforts, and economic benefits of preserv-ing historic buildings and neighbor-hoods.

At the local level, sources of assis-tance include local historians, historicpreservation professionals, planners, and

PUEBLO, COLORADO:

A New Parking Lot

It was only this past January that theCity of Pueblo, Colorado (pop. 105,000),adopted its first historic preservationordinance, an ordinance that seemed togenerate little interest among Pueblo resi-dents at the time. The ink was barely dry,however, when Parkview Medical Center,the city’s largest employer, proposed thedemolition of the 101 year old ThatcherHome (used for doctors’ offices). TheThatcher Home, located in a well main-tained residential neighborhood andacross the street from the historic Rose-mount Mansion & Museum, was to bereplaced by a surface parking lot.

The newly established Pueblo His-toric Preservation Commission sought toexplore alternatives to demolition withMedical Center staff. However, since theThatcher Home (built by one of Pueblo’s“founding” families) had not yet beenformally designated as a historic structureunder Pueblo’s new ordinance– and

apparently concerned that the City mightact to designate the building, makingdemolition more difficult – Parkview ter-minated discussions with the Commis-sion and moved to quickly demolish thestructure.

Perhaps the most surprising thingabout what happened next, according toPueblo Director of Land Use Administra-tion Glynis Jordan, is that city residentsand members of the City Councilexpressed shock and anger about thedemolition. Jordan notes that Pueblo haslong been a community that has placedgreat weight on private property rights.But the refusal of Parkview to engage ingood-faith negotiations has now awak-ened interest in historic preservation.While too late to save the ThatcherHome, Jordan believes this new aware-ness bodes well for the city’s future, andits past.

★

The Thatcher Home in Pueblo just before andduring its demolition this July.

“Don’t it always seem to go That youdon’t know what you’ve got Till it’sgone. They paved paradise And putup a parking lot.”

– from Joni Mitchell’s song, “Big YellowTaxi.”


11


architects. Many communities have his-torical societies, local nonprofit preserva-tion organizations, or arts organizationswhose mission includes historic preser-vation. Smaller communities can alsooften draw on the services of regionalpreservation organizations.

Sources of assistance at the state levelinclude the state historic preservationoffice (SHPO) and, in many states, astatewide nonprofit historic preservationorganization. SHPOs are authorizedunder the National Historic PreservationAct to implement historic preservationprograms at the state level. They also pre-pare statewide historic preservationplans. These plans provide valuableinformation about historic resources andstatewide efforts to protect, enhance, andpromote those resources.

SHPOs can provide useful technicalassistance to communities, and help withlocal preservation planning efforts,including public education. Statewidepreservation organizations complementthe work of the SHPOs and perform animportant advocacy role.

Most SHPOs, and some statewidepreservation organizations, offer grantprograms for preservation projects. One example is the Certified Local Government program, through whichlocal governments that adopt a historic

preservation ordinance meeting federalstandards are eligible for grants to assistwith preservation planning and relatedproject implementation. The SHPOs andstatewide preservation organizationsusually hold conferences, maintain websites, publish newsletters, and offer avariety of training opportunities. Mosthave staff that travel to communities toprovide assistance.

At the national level, the two main

sources of assistance are the NationalTrust for Historic Preservation (NTHP)and the National Park Service. Bothmaintain extensive web sites with awealth of information and numerouspublications available to order or down-load. Resources.

SUMMING UP:

Across the nation cities and towns ofall sizes are recognizing the benefitspreservation can bring. Historic build-ings, commercial districts, and neighbor-hoods help give communities theirdistinctive character. Their loss damagesthe fabric of a community. Their preserva-tion is more than just an aesthetic issue, itis a matter of sound economic policy. ◆

Amy Facca is a consultant specializing inpreservation planning and research. For the pastten years she was a principal planner with RiverStreet Planning & Development in Troy, New York.Facca has worked on a broad range of historicpreservation, waterfront, and downtown revital-ization projects. She holds a Master’s degree inArchitectural History and Historic Preservationfrom the University of Virginia. You can reach herat: [email protected].

Our thanks to the following individuals forreviewing drafts of this article: Susan HenryRenaud, Ilene Watson, Patricia Pitzer, Lee A.Krohn, Sharon Wason, Christine Mueller, KingLeonard, Mark Hiester, Wendy Grey, Glynis Jor-dan, Barbara Sweet, and Amy Munro.

Resources:Useful sources of infor-

mation on preservation planning include:

Preparing a Historic Preservation Plan, byRichard Roddewig and Bradford White(APA Planning Advisory Service; 312-786-6344);

Maintaining Community Character: Howto Establish a Local Historic District, byPratt Cassity (National Trust for HistoricPreservation; 202-673-4286).

New Life for White Elephants: AdaptingHistoric Buildings for New Uses, by NinaBerkovitz (also from the National Trust).

Two excellent books on preservation:Changing Places: Rebuilding Community inthe Age of Sprawl, by Richard Moe andCarter Wilkie (Henry Holt & Co. 1997),

provides insights into preservation issuesfacing communities. Historic Preservationfor a Living City, by Robert R. Weyeneth,offers a detailed account of preservationefforts in Charleston, South Carolina.

The National Alliance for PreservationCommissions provides training workshops and publications for localpreservation commissions: <www.arches.uga.edu/~napc>; 706-542-4731.

Information about the role of State His-toric Preservation Officers can be foundat: <www.ncshpo.org>.

The web sites of the National Trust forHistoric Preservation: <www.nthp.org>and the National Park Service:<www2.cr.nps.gov/pad/> provide muchhelpful information.

Energy Conservation“Preserving a historic structure… saves energy and reduces theneed for producing new con-

struction materials. First, energy is not con-sumed to demolish the existing building anddispose of the resulting debris. Second, energyis not used to create new building materials,transport them and assemble them on site.Finally, the ‘embodied’ energy … used to cre-ate the original building and its components,is preserved.”

– From “Design Guidelines for the Old TownOverlay District in Wichita, Kansas.”

“Reuse was one of the priorities in therenovation of the S.T. Dana Building, whichhouses the School of Natural Resources andEnvironment at the University of Michigan inAnn Arbor. Built in 1903, the masonry struc-ture was recently renovated … in terms ofembodied energy, the building’s bricks alone

represent about 135 gasoline tanker trucks ofenergy.”

– From Green Clips Newsletter, July 16, 2003.

“The most sustainable thing to do withour stock of existing buildings … is to but-tress plans for continuing their use. In an agethat now religiously re-cycles aluminum cansand is beginning to confront the limits of ournatural resources it is incumbent upon us tostrive to conserve the resources and energiesthat are embodied in the built environment.”

– From “Why Preserve?” Daniel Bluestone,Director, University ofVirginia HistoricPreservation Program.

Wall detail of the historic Ethan AllenFirehouse (now usedas an arts center) in downtownBurlington, Vermont

vation, in and of itself, is one of the mostimportant tools in the entire SmartGrowth movement. Allow me to provideyou with twenty reasons why HistoricPreservation is Smart Growth.

Reason One: Public infrastructure.Almost without exception historic build-ings are where public infrastructurealready exists. No new water lines, sewerlines, streets, curbs, or gutters required.That’s Smart Growth.

Reason Two: Municipalities needfinancial resources if they are going togrow smart. Vacant, unused, and under-used historic buildings brought back tolife are also brought back as tax generat-ing assets for a community. That’s SmartGrowth.

Reason Three: New activities – resi-dential, retail, office, manufacturing – inexisting historic buildings inherentlyreinforces the viability of public trans-portation. That’s Smart Growth.

Reason Four: If we are to expect citi-zens to use their cars less, and use theirfeet more, then the physical environmentwithin which they live, work, shop andplay needs to have a pedestrian ratherthan a vehicular orientation. One of themost predominant characteristics of his-toric areas – residential or commercial –is their pedestrian orientation. That’sSmart Growth.

Reason Five: Another element in thedrive to encourage human movement bymeans other than the automobile is the

12



Historic Preservation is Smart Growthby Donovan D. Rypkema

The following is a slightly modified versionof a talk given by Donovan Rypkema at theNational Audubon Society of New York’s1999 Conference on Smart Growth. We aregrateful to Mr. Rypkema for granting uspermission to publish his remarks, sincethey provide an excellent summary of howhistoric preservation is integral to the prin-ciples of “Smart Growth.”

I suspect for many of you “his-toric preservation” is the localgroup of retired librarians writingletters to the editor and struggling toraise funds to save the mansion of thelocal rich, dead white guy. Well thankgod for those activists, those letters to theeditor, those fund raising events, andeven for those rich, dead, white guys,because the properties that have beensaved are an important component ofunderstanding ourselves as a people andconstitute an irreplaceable collection ofthe art of architecture and landscapearchitecture that has been created in ourcountry’s relatively short history.

But that part of historic preservation– saving old mansions – represents aninsignificant percentage of preservationactivities today. In fact, in the last twodecades, historic preservation has movedfrom an activity whose goal was an endin itself – save old buildings in order tosave old buildings – to a broad based,multifaceted group of activities that usesour built heritage not as an end in itselfbut as a means to broader and, franklymore important ends. Across the country,that has meant historic preservation as ameans for downtown revitalization,neighborhood stabilization, attraction fortourism, job creation, film industry pro-duction, small town revitalization,affordable housing, luxury housing, edu-cation, transportation, and many otherpurposes.

I want to suggest that historic preser-

interconnection of uses. Based on thefoolishness of post World War II plan-ning and development patterns, useshave been sharply separated. Historicneighborhoods were built from thebeginning with a mix of uses in closeproximity. Cities with the foresight toreadjust their zoning ordinances toencourage integration of uses are seeingthat interconnectivity reemerging in his-toric areas. That’s Smart Growth.

Reason Six: As a strong proponent ofeconomic development I am certainlyglad the phrase is Smart Growth asopposed to no growth. Smart Growthsuggests that growth has positive bene-fits, and I would argue that is true. At thesame time we cannot say we are havingsmart growth – regardless of how well itis physically planned – if at the sametime we are abandoning existing assets.The encouraged reinvestment in historicareas in and of itself revitalizes and re-values the nearby existing investment ofboth the public and private sector. That’sSmart Growth.

Reason Seven: Across America peopleare indeed moving “back to the city.” Butalmost nowhere is it back to the city ingeneral. In nearly every instance it isback to the historic neighborhoods andhistoric buildings within the city. We doneed to pay attention to market patterns,and if it is back to historic neighbor-hoods to which people are moving, weneed to keep those neighborhoods viablefor that to happen. That’s Smart Growth.

Reason Eight: Smart Growth ought toimply not just physical growth but eco-nomic growth. And economic growthmeans new jobs. But who is creating thenet new jobs in America? Not GeneralMotors, or IBM, or Kodak. 85% of all netnew jobs in America are created by smallbusinesses. And for most small business-es there are few costs that are control-lable, but there is one – occupancy.

OLDER AND HISTORICBUILDINGS OFTEN

PROVIDE THE AFFORDABLERENT THAT ALLOWS

SMALL BUSINESSES TOGET STARTED.

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Older and historic buildings often pro-vide the affordable rent that allows smallbusinesses to get started. That’s SmartGrowth.

Reason Nine: Business districts aresustainably successful when there is adiversity of businesses. And that diversebusiness mix requires a diverse range ofrental rates. Only in downtowns andolder commercial neighborhoods is theresuch diversity. Try finding any rental ratediversity in the regional shopping centeror the so called office park. You won’t.Older business districts with theirdiverse rents are Smart Growth.

Reason Ten: Smart Growth also oughtto be about jobs. Let me distinguish newconstruction from rehabilitation in termsof creating jobs. As a general rule newconstruction is 50 percent labor and 50percent materials. Rehabilitation, on theother hand, is 60 to 70 percent labor.While we buy an HVAC system fromOhio, sheetrock from Texas and timberfrom Oregon, we buy the services of thecarpenter and plumber, painter and elec-trician from across the street. They sub-sequently spend that paycheck for ahaircut, membership in the local Y and anew car, resulting in a significantlygreater local economic impact dollar fordollar than new construction. The reha-bilitation of older structures is SmartGrowth.

Reason Eleven: Solid waste landfill isincreasingly expensive in both dollarsand environmental quality. Twenty fourpercent of most landfill sites is made upof construction debris. And much of thatwaste comes from the razing of existingstructures. Preserving instead of demol-ishing our inventory of historic buildingsreduces that construction waste. Preserv-ing instead of demolishing our inventoryof historic buildings is Smart Growth.

Reason Twelve: Its critics have pointedout that the so called New Urbanism isneither new nor urban. I would arguethat New Urbanism reflects good urbandesign principles. But those principleshave already been at work for a centuryor more in our historic neighborhoods.The sensitive renewal of those neighbor-hoods is Smart Growth.

So are youstarting to get thepicture? Let me bebriefer with therest of the list.

Reason Thirteen:Smart Growth ad-vocates a densityof use. Historicresidential andc o m - m e r c i a lneighborhoods arebuilt to be dense.

Reason Fourteen:Historic buildingsthemselves are notliabilities as oftenseen by public andprivate sector demo-lition advocates,but are assets notyet returned to pro-ductive use.

Reason Fifteen:The rehabilitation of older and historicneighborhoods is putting jobs where theworkers already are.

Reason Sixteen: Around the countryhistoric preservation is the one form ofeconomic development that is simulta-neously community development.

Reason Seventeen: Reinvigorating his-toric neighborhoods reinforces existingschools and allows them to recapturetheir important educational, social, andcultural role on a neighborhood level.

Reason Eighteen: No new land is con-sumed when rehabilitating a historicbuilding.

Reason Nineteen: The diversity ofhousing sizes, qualities, styles, and char-acteristics of historic neighborhoodsstands in sharp contrast to the monolith-ic character of current subdivisions. Thediversity of housing options means adiversity of human beings who can livein historic neighborhoods.

Reason Twenty: Historic preservationconstitutes a demand side approach toSmart Growth. The conversion of a his-toric warehouse into 40 residential unitsreduces the demand for ten acres of farmland. The economic revitalization ofMain Street reduces the demand for

another strip center. The restoration ofthe empty 1920s skyscraper reduces thedemand for another glass and chromebuilding at the office park.

Historic Preservation is SmartGrowth. In fact, I would suggest that aSmart Growth approach that does notinclude historic preservation high on theagenda is not only missing a valuablestrategy, but, like the historic buildingsthemselves, an irreplaceable one. ◆

Donovan D. Rypkema is the author of numer-ous articles and publications, including The Eco-nomics of Historic Preservation: A CommunityLeader’s Guide (National Trust for Historic Preser-vation). Rypkema is Principal of Place Economics,a Washington, DC-based consulting firm specializ-ing in the economic revitalization of downtownsand the redevelopment of historic properties.

Strong preservationefforts are fundamentalto Brattleboro, Vermont’s(pop.8,300) vibrantdowntown. Recent suc-cesses include therestored historic LatchisHotel and Theatre.

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Historic Preservation Ordinances: Frequently Asked Questionsby Julia H. Miller, Esq.

The historic preservation ordi-nance is the primary method bywhich towns, cities, and counties can protect historic structures and dis-tricts. Most ordinances establish a historicpreservation commission and a processfor consideration of proposals to alter ordemolish historic properties or propertieslocated within designated historic dis-tricts.

According to a 1998 report preparedby the National Alliance of PreservationCommissions, the number of historiccommissions (or comparable bodies)grew from 578 in 1978 to 2,368 in 1998.1

While authority to enact local preser-vation ordinances exists in all states, indi-vidual differences necessitate legaloversight. Planners and local officialsshould obtain legal advice in developing apreservation ordinance.

What is a “Historic PreservationCommission”?

A historic preservation commission orreview board is a local body usually estab-lished under a historic preservation ordi-nance. Appointments are typically madeby the Mayor or the local governing body.The commission’s members often haveexpertise in related fields such as architec-tural history, history, architecture, archae-ology, real estate, and so forth. Historicpreservation commissions are primarilyresponsible for: (1) identifying historicproperties and districts for designationand, (2) reviewing and acting upon appli-cations to alter or demolish propertiesprotected by the historic preservationordinance.

How are historic properties identified?

Historic properties are generally iden-tified through a survey process, conductedby the historic preservation commission.

In many cases, the National Register ofHistoric Places or a state register providesa useful starting point for identifying his-toric structures. But national and stateregister listings should not substitute forlocal survey work.

and are no longer consistent with theoverall character of the historic district; orvacant parcels. Proposed changes to con-tributing properties are likely to receivecloser review under a local preservationordinance than changes to non-contribut-ing properties.

What criteria are used to designatehistoric properties?

The criteria (and process) for designa-tion are set out in the preservation ordi-nance. A preservation ordinance, forexample, may seek to protect districts,sites, buildings, structures, and objectsthat are associated with historic events,“that embody the distinctive characteris-tics of a type, period, or method of con-struction,” or “that represent the work ofa master.”

Who designates historic landmarksand districts?

Once a preservation commission hasdetermined that a specific property or dis-trict meets the criteria for designation, itmay recommend or nominate that proper-ty or district for designation. Individualproperties or districts are most often des-ignated as historic resources by the localgoverning body, after holding a publichearing. In the case of districts, some ordi-nances require that a petition supportingthe designation be signed by a certain per-centage of affected property owners.

Many preservation ordinances provideinterim protection for historic resourceswhile applications for designation arepending. This prevents a property ownerfrom demolishing the structure before thepreservation commission or local govern-ing body has had time to act on the appli-cation.

How are historic districts andlandmarks protected under apreservation ordinance?

Most often, owners of property subjectto a preservation ordinance must submitan application to the preservation com-

HISTORIC DISTRICTS AREGEOGRAPHICALLY DEFINEDAREAS OFTEN COMPRISED

OF SIGNIFICANTCONCENTRATIONS OF

HISTORIC STRUCTURES ORSITES THAT SHARE COMMON

HISTORIC EVENTS,ARCHITECTURAL FEATURES,

OR PHYSICALDEVELOPMENT.

While variations exist from jurisdic-tion to jurisdiction, applications for desig-nation are typically initiated by theproperty owner or the preservation com-mission, upon completion of an architec-tural survey. Designated properties shouldbe listed in the local ordinance.

What are “historic districts” and“landmarks”?

Most jurisdictions designate historicdistricts and individual landmarks. His-toric districts are geographically definedareas often comprised of significant con-centrations of historic structures or sitesthat share common historic events, archi-tectural features, or physical develop-ment. Landmarks are typically individualproperties or sites of historic value.

Properties located in historic districtsare generally labeled as either contribut-ing or non-contributing. Contributingproperties typically have a character thatis consistent with the architectural style ofthe district. Non-contributing propertiesare either: newer structures; older struc-tures that have been substantially altered

1 The United States Preservation Commission Identi-fication Project (1998). For information, contact theNational Alliance of Preservation Commissions at:706-542-4731; [email protected]

15


mission for permission to alter, move, orconstruct additions or new buildings.These applications are evaluated basedupon standards for review set forth in theordinance. The commission will issue aformal decision, making specific findingsof fact and conclusions of law. Permissionis typically granted in the form of whatmay be called a historic area permit or cer-tificate of appropriateness.

Despite the wide range of actionswhich are subject to historic commissionreview, the vast majority of applicationsfor certificates of appropriateness are ulti-mately approved.

How do local governments protecthistoric properties from beingdemolished?

Most localities having preservationordinances allow for the demolition ofhistoric properties only in cases where:(1) retention of the structure will cause anextreme burden on the property ownerand the structure cannot be rehabilitatedor sold, or (2) the property poses a safetythreat due to damage from a fire or someother type of natural disaster. This is thebest way to ensure that historic resourcesare protected.

Some communities, however, permitproperty owners to demolish historicproperties after a specific waiting period,during which time the local government,along with private preservation groups,can explore alternative actions to save thebuilding. Some localities also conditionthe issuance of a demolition permit upona showing that a new building will be con-structed on the site and that this buildingwill be compatible with other historicproperties in the area.

What standards of review are used toguide commissions in acting uponproperty owners’ requests?

Many preservation commissions uti-lize the U.S. Secretary of the Interior’sStandards for Rehabilitation to guide thereview of permit applications. Because ofthe national applicability of these stan-dards, they are somewhat general innature. For example, the Secretary’s stan-dards provide that “deteriorated archi-tectural features shall be repaired, wherever possible,” and “in the event that

replacement is necessary, the new materialshould match the material being replacedin composition, design, color, texture, andother visual qualities.”

Localities considering adoption of theSecretary’s standards should be careful toensure that the standards correspond tolocal needs and, if necessary, make addi-tions or modifications.

In addition to legal standards ofreview, which must be set forth in thepreservation ordinance, many communi-ties also adopt advisory design guidelines.These are used not only to guide the com-mission, but also to assist property ownersin understanding what types of actionsmay or may not be appropriate. A numberof communities have also establishedinformal processes to encourage propertyowners to consult with the preservationcommission or its staff before embarkingon a major project.

Do historic preservation ordinancesimpose maintenance requirements onproperty owners?

Routine maintenance work (such asreplacing tiles on a slate roof) is generally

excluded from commission review. How-ever, many ordinances require that desig-nated property be kept structurally sound,and empower the local government tomake repairs and seek reimbursement ininstances where a property is essentiallybeing “demolished by neglect.”

How should a community addressspecial situations such as unduehardship?

Many ordinances provide for the con-sideration of “economic hardship” claims.Economic hardship provisions typicallyauthorize a “variance” in situations whereproperty owners demonstrate they wouldotherwise be denied “all reasonable orbeneficial use of their property.” Such pro-visions provide assurance that relief isavailable if the impact of a particularaction proves to be exceptionally harsh. ◆

Julia A. Miller, Esq., is Editor of the Preserva-tion Law Reporter, published by the National Trustfor Historic Preservation. Assistance in establish-ing or amending historic preservation ordinancesis often available from state historic preservationoffices, state-wide historic preservation organiza-tions, and local preservation organizations. See theResources sidebar on page 11 of this issue.

EDITOR’S NOTE:

Responding to Questions

As with so many things in planning, oneof the keys to avoiding problems is toclearly and candidly explain how pro-grams and policies work. This is especial-ly important when there is an impact onproperty owners, as through zoning(including historic district zoning).

One effective approach is to providehandouts which respond to the basicquestions many property owners willhave. These can be made available at thePlanning Department office or online.Here are the kind of questions that mightbe addressed:

• Will historic district zoning hurt myproperty’s value?

• Will I still be able to sell or rent myhouse to whoever I please?

• Will I need permission to repaint myhouse, or add a porch?

• Can I demolish my house if I decide to?

• Am I required to restore my property tosome earlier era?

• Do I need approval for any interiorchanges?

• Will my property taxes increase?

• Do I ever have to open my house to thepublic?

• Are there any benefits to me from thiszoning?

For two good examples of questions &answers (available online) go to: Round Rock, TX, Planning Dept: <www.ci.round-rock.tx.us/planning /hispres/overlay.htm>Rocky Mount, NC, Planning & Development Dept: <www.ci.rocky-mount.nc.us/preservation/faqs.html>

Of course, questions and answers willvary from community to community. Butthe point is to avoid confusion and mis-information by openly addressing ques-tions property owners will likely have.

York’s Broadway. They also lit up down-town main streets across America – per-haps nowhere as dramatically as inDenver. All of the theaters shown in thephoto of Denver’s Curtis Street weredemolished in the era of “urban renewal.”While Denver built a brand new perform-ing arts center in the mid-1970s, as Col-orado historian Thomas J. Noel notes, it isjust “an echo of Denver’s old Curtis Street‘Great White Way.’”1

Fortunately, as the benefits of preser-vation have been increasingly recognized,the pace of demolition has abated –though it is still a real threat in far toomany communities.

job in educating the public about the ben-efits of preservation. There’s nothing likesitting in a beautifully restored theater,and enjoying a concert, dance, or movie,to gain a first-hand view of what preserva-tion can offer.

Over the past two decades hundredsof historic theaters have been reborn. Butfirst, just a reminder of what we’ve lost.The bright lights didn’t just shine on New


Preservation Takes Center Stageby Wayne Senville, Editor

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“Perfection!”Built by Vermont-born andMaine-bred silver mining mag-nate Horace Tabor, the TaborGrand Opera House opened to acrowd of thousands on Septem-ber 5th, 1881. According toauthor Duane Smith: “Called tothe stage amid ‘vociferousapplause,’ … Horace called Den-ver, with a bit of understandablechauvinism, the ‘finest city onthe American continent’: ‘I saidif Denver is to have an operahouse it should be worthy of thecity. Here is the opera house, Ishall leave it to your judgment ifI have done my duty in thisrespect.’ … ‘PERFECTION!’headlined one Rocky MountainNews article.’”2

The opulent Opera House,demolished in 1964, lives on inDouglas Moore’s 1956 opera TheBallad of Baby Doe. The operarecounts the life of HoraceTabor and his affair with Eliza-beth McCourt “Baby” Doe. TheBallad of Baby Doe’s final scenetakes place on the stage of theOpera House, with the chorussinging the words that adornedthe theater’s massive curtain: “Sofleet the works of man / Back tothe earth again / Ancient andholy things / Fade like a dream.”

The Tabor Grand Opera House was perhaps Denver’smost magnificent theater.

One of the most dramaticimpacts historic preservation canhave is through the restoration of the grand movie palaces and opera housesthat still stand in the heart of many communities.

First, and most obviously, theatersbring people (and dollars) to downtown.Second, and perhaps not as often men-tioned, historic theaters do a tremendous

1 Thomas Noel, “The Mile High City,” available at:<www.denvergov.org/AboutDenver/history_narrative_9.asp>.

2 Duane Smith, The Ballad of Baby Doe: “I Shall WalkBeside My Love” (Univ. of Colorado Press, 2002). His-torian Tom Noel’s fascinating description of the mag-nificent Tabor Grand Opera House can be found at:<www.denvergov.org/AboutDenver/history_narrative_2.asp>. Noel has also written about Denver andits history in Denver: The City Beautiful & It Architects(Historic Denver, Inc.).

continued on page 18

“Theater Row”along CurtisStreet in down-town Denver,1920.

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A Demolition Derby“During the post-World War II

boom, Denver experienced a demoli-tion derby like the 19th-centurybuilding boom. In addition to privatedevelopers razing sites, a publicagency, the Denver Urban RenewalAuthority, systematically leveledmuch of the urban core. Block afterblock of downtown disappearedunder a rising sea of black asphaltparking lots. …

Some found downtown’s disap-pearance distressing. Old-timersgrew confused and alienated with theloss of familiar landmarks and desti-nations. For longtime residents, itsometimes seemed that a trip down-town was like a trip to a foreign city.”

– Thomas J. Noel (historian), “The MileHigh City.”

Crowds in front of Denver’s now demolished Orpheum theater, 1950.

Curtis Street, 1973

Since the 1980s, Denver has made an about-face andembraced historic preservation. Ironically, one of thestrongest proponents of preservation is the DenverUrban Renewal Authority.

View of the demolition of Denver’s BroadwayTheater in 1955.

On Urban Renewal:“Congress launched the federal urban redevel-opment program in Title I of the Housing Actof 1949, and during the next two decades,planners, mayors, journalists, and the publicdreamed of grand schemes to revitalize thenation’s cities. Artists’ renderings of slick glassand steel skyscrapers set in sunny plazas

appeared in metropolitan newspapers and cityplanning reports, and nurtured hopes of a gold-en future. With the aid of Uncle Sam, citieswere supposedly to be cleansed of their uglypast and reclothed in the latest modern attire.”

– Jon C. Teaford (historian), “Urban Renewal andIts Aftermath,” in Housing Policy Debate, Volume11, Issue 2 (2000).

“Our cities lie destroyed all around us, and …the terrible thing in American society and poli-tics is that the communities of the center of thecity were destroyed with them.”

– Vincent Scully (architectural historian), “TheCivilizing Force of Architecture,” Humanities 16,no. 3 (May-June 1995).

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From coast to coast (and in between)historic downtown theaters are comingback. The 1,200 seat Elsinore Theaterhas helped anchor Salem, Oregon’sdowntown revitalization. Originally avaudeville house, then a first run moviepalace, the gothic-style Elsinore had fall-en on hard times. But that changed withits reopening in 1993. Since then renova-tions and other improvements have con-tinued. According to theater directorGail Ryder, the Elsinore is in the midst ofa $3 million “return to grandeur” project,and has received substantial financial

support from both the city and MarionCounty. Besides having an active perfor-mance calendar, the Elsinore, Ryder

notes, is a popular loca-tion for receptions,meetings, and even mar-riage ceremonies!

You really ought togive Iowa a try, especial-ly if you’re interested invisiting grand, restoredtheaters. Shawna Lode

Preservation takes Center Stagecontinued from page 16

Exterior and interior viewsof Salem, Oregon’s ElsinoreTheater.

Poster of OrpheumCircuit and for MarkTwain’s Puddn’HeadWilson.Opening night at the restored Orpheum in Sioux City, Iowa.

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of the Iowa Department of EconomicDevelopment reports that many down-town theaters are opening their doorsagain, sporting complete makeovers andstate-of-the art technology. One of themost recent examples is the $13 millionrestoration of Sioux City’s 2,500 seatOrpheum Theater (part of Vaudeville’sfamous Word War I-era “Orpheum Cir-cuit”). As Lode notes, the magnificentlyrefurbished theater includes “gold leafedand stenciled ornamentation, severalcrystal fixtures, over 20 magnificentchandeliers, and a hand painted pat-terned dome.”

Other reborn Iowa theaters: the 1880Keokuk Grand Opera House; the 1910Regent Theater in Cedar Falls (now theOster Regent); Davenport’s 1926Orpheum (reborn as the RiverCenterAdler Theatre); the 1889 Grand OperaHouse in Dubuque; and Iowa Falls’ 1899Metropolitan Opera House.

But you don’t have to be in a big cityin Iowa to enjoy a historic theater. The1916 Art Deco style Hardacre Theatre, inthe small town of Tipton (pop. 3,000),was renovated in 1991. Today it is anactive movie theater, and even hosts anannual film festival. And there’s more tocome, as restoration of Iowa City’s his-toric Englert Theater is underway.

On the East Coast, the City of Nor-folk, Virginia, has seen its downtowncome back to life, in large measure due toactivity generated by restored theaters. Inthe heart of downtown, the 1926 Loew’sTheater was purchased by Tidewater

Community College. The Collegerestored this former vaudeville houseand movie palace to its original opu-lence. Renamed the Roper PerformingArts Center, it offers a sumptuous set-ting, with gilded box seats, glass chande-liers, and hand painted architecturaldetails. Since reopening in 2001, it hashosted a wide range of performances,including local theater and dance compa-nies, and the Virginia Symphony.

The NorVa, also in downtown Nor-folk, opened in 1922 as a movie palace.After extensive renovations, it hasreopened as a concert hall. Also con-tributing to Norfolk’s active downtowntheater scene is the restored New WellsTheatre (built in 1913). ◆

An excellent resource for information about therestoration of historic movie theaters is the Cine-ma Treasures web site, with its online database ofover 1,000 theaters: <www.cinematreasures.org>

Wayne Senville is Editor of the Planning Com-missioners Journal. He regularly enjoys perfor-mances at the beautifully restored Flynn Theaterin downtown Burlington, Vermont.

Theater marquees are once again lit in downtownNorfolk, as they were in this 1949 view.

Interior of the restored Loew’s Theater (now theRoper Center) in Norfolk.

Still a familiar sight in many cities and towns: adowntown theater waiting to be restored (here,Proctor’s in Troy, New York).

The restored Oster-Regent Theater in Cedar Falls, Iowa (above and right).

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within the context of historic preserva-tion – netted more than 1,100 new busi-nesses, spurred the rehabilitation of1,622 historic buildings and resulted in anet gain of 2,170 new jobs. In just onesmall town, Bedford, $3.4 million wasinvested, 234 buildings rehabilitated,and 52 new businesses employing 116people created.

As for property values, the studyfound that property values appreciatedmore in historic districts than in otherareas of the cities. These results are simi-lar to those of a separate independentstudy conducted by the GovernmentFinance Officers Association’s researchcenter. This study found that propertyvalues in the historic districts in Galve-ston, Texas and Fredericksburg, Virginiagrew 1.5 to 5 times faster than compara-ble areas not in historic districts.

The marketplace increasingly recog-nizes both the short and long term eco-nomic value of historic properties. Justcompare almost any neighborhood orcommercial area that has embraced his-toric preservation with those that havenot. Historic preservation and economicdevelopment represent an effective part-nership – as a growing number of com-munities and businesses have come torealize. ◆

Edward McMahon isVice President of The Con-servation Fund and a notedspeaker on land use topics.The above is excerptedfrom, “Historic Districtsand Property Values,” inPCJ #23 (Summer 1996).The studies cited byMcMahon: Virginia’s Economy and HistoricPreservation: The Impact on Jobs, Businesses, andCommunity; and The Economic Benefits of Pre-serving Community Character, Case Studies:Galveston, Texas and Fredericksburg, Virginia, areavailable from the National Trust for HistoricPreservation, <www.preservationbooks.org>.


Preservation Boosts Local Economiesby Edward T. McMahon

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Historic district zoning is fre-quently controversial, but italmost always has a beneficial effect on property values, commercialrevitalization, business investment, andincreased tourism. This was the findingof a wide ranging 1995 study by thePreservation Alliance of Virginia.According to David J. Brown, ExecutiveDirector of the Alliance, “Historic preser-vation is economic growth and the reali-ty is that preservation means dollars inthe pockets of Virginians.”

The Virginia study addressed fouraspects of preservation’s economicimpact: tourism, job creation, propertyvalues, and downtown revitalization. Ontourism, the study found that historicpreservation visitors are a major portionof the state’s $9 billion a year tourismindustry. Seven out of ten first time visi-tors come to the state to visit historicsites, museums, and battlefields. Thestudy also found that history minded vis-itors stay longer and spend more: two-and-a-half times more money than theamount spent by other visitors to thestate.

The second issue the study examinedwas job creation that resulted from therehabilitation of some 900 historic build-ings in Virginia pursuant to the federalHistoric Rehabilitation Tax Credit. Thisprogram created over 6,600 jobs in theconstruction trades and over 6,000 inspin off areas. Construction related his-toric preservation activity resulted in atotal of $275 million in householdincome in Virginia: $153 million for con-struction workers, and $122 million foremployees in other fields.

The study also examined the impactof Virginia’s Main Street Program.Between 1985 and 1995, the 20 smallcommunities in the Main Street Program– whose goal is downtown revitalization

The “Bottleworks”in Athens, Georgia,built in 1927 for useas part of a Coca-Cola bottling plant,has been convertedto a mix of resi-dential, office, andretail space

Many other studies have also docu-mented the property value impacts ofhistoric preservation. For example, inAthens-Clarke County, Georgia, “Prop-erty assessment values show that desig-nated districts, especially locallydesignated, have increased in valuefaster than their non-designated com-parison areas. Downtown Athens hasshown especially strong results.” CaseStudy on Economic Benefits of HistoricPreservation, Athens-Clarke CountyPlanning Department (1997). For moreinformation contact Evelyn Reece, [email protected].

Similarly, studies in Colorado havefound that: “Historic designation doesnot decrease property values. Propertyvalues in the designated areas experi-enced value increases that were eitherhigher than, or the same as, nearbyundesignated areas,” and also that“Rehabilitation projects from 1981 to2000 have accounted for $4.0 millionin total business income taxes, $10.8million in total personal income taxes,and $27.4 million in total Coloradosales taxes. Economic Benefits of Historic Preservation in Colorado,<www.coloradohistory-oahp.org/publications/1620.htm>.

—WMS

historic preservation€¦ · governor philip hoff, and gordon gray, chairman of the national trust...

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