An Introduction to Historic Preservation...

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3 PLANNING COMMISSIONERS JOURNAL / NUMBER 52 / FALL 2003 PRESERVATION PLANNING An Introduction to Historic Preservation Planning by Amy Facca Across the country there are signs of a renewed interest in our communities’ historic resources. Abandoned, vacant, and underutilized historic buildings are being creatively put to new use. Neglected, but once spectac- ular, theaters are being restored as new performance spaces. Historic residential districts and neighborhoods are being reinvigorated. As these transformations take place, historic preservation is being seen as providing tangible benefits to communities large and small. Many of us have taken time to visit places noted for their historic character, whether larger cities like Savannah, Georgia; San Antonio, Texas; or New Orleans, Louisiana, or smaller communi- ties like Natchez, Mississippi; Virginia City, Nevada; Port Townsend, Washing- ton; and Quincy, Illinois. Virtually every one of us has undoubtedly spent time pleasantly walking through historic Main Street and residential districts. The appeal of these areas is universal. Reflect- ing this, a growing number of communi- ties have been incorporating historic preservation into their comprehensive plans, downtown revitalization strate- gies, neighborhood improvement plans, and zoning ordi- nances. This article is intended to provide a brief introduction to historic preser- vation planning. You will read about some of the benefits of preservation, and find information on how communities are implementing local preservation policies. Resources are also listed for those of you who want to learn more about preservation planning. PRESERVATION IN AMERICA The first interest in preserving his- toric structures can be found in the mid- 19th Century efforts to acquire and restore the homes of famous Americans like George Washington’s Mount Vernon and Thomas Jefferson’s Monticello. Beginning in 1927, the scope of historic preservation expanded dramatically with the start of John D. Rockefeller’s restora- tion of Williamsburg, colonial Virginia’s capital city. The next, and perhaps most important, step in the preservation movement was taken in 1931 when Charleston, South Carolina, established the nation’s first local historic district. Preservation no longer concerned itself just with individual structures, but also took into account the historic value of groups of buildings, districts, and even whole communities. The main waiting room in New York’s Pennsylvania Station, demolished in 1965. continued on next page Elaborate iron gates are common in Charleston, 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 of the Troy Savings Bank, Rensselaer Polytechnic Institute, and the Troy Architectural Program, Inc. The building is now fully occupied and used as a high-tech “incubator.” RUDOLPH SIMON, 1927 MUSEUM OF THE CITY OF NEW YORK LIBRARY OF CONGRESS, PRINTS & PHOTOGRAPHS DIVISION, FSA-OWI COLLECTION But major losses also acted to ener- gize the preservation movement. As planning historian Larry Gerckens has noted, “The demolition of New York City’s Pennsylvania Station in 1965, one of the nation’s most magnificent railroad stations, shocked many New Yorkers, as well as citizens across the country. Out- raged by the fact that there was no legal recourse to stop the demolition (the building was privately owned by the nearly bankrupt Pennsylvania Railroad), New Yorkers responded by enacting later that year a comprehensive landmarks preservation law.” See “H is for Historic Preservation,” in PCJ #46, Spring 2002. AMY FACCA

Transcript of An Introduction to Historic Preservation...

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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 preser-vation planning.You will 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.

continued on next page

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.

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“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 oper-ated by the

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

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]

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

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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.

“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 establisheda revolving loan fund forthe rehabilitation of build-ings in Macon’s historicdistricts and preparedpaperwork allowing prop-erty owners to obtain fed-eral and state tax credits.HMF has also rehabilitatedhousing in historic dis-tricts for low and moderateincome persons, andworked with private devel-opers to purchase, rehabili-

tate, 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.

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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.”

Historic Preservation Planningcontinued from previous page

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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 the

need for producing new construction materi-als. First, energy is not consumed to demolishthe existing building and dispose of the result-ing debris. Second, energy is not used to cre-ate new building materials, transport themand assemble them on site. Finally, the‘embodied’ energy … used to create the origi-nal building and its components, is pre-served.”

– 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