City of Dubuque Programs that Support Historic Preservation EffortsCity of Dubuque
City Council Meeting
Action Items # 03.
Copyrighted
December 19, 2022
ITEM TITLE: City of Dubuque Programs that Support Historic Preservation Efforts
SUMMARY: City Manager providing information to City Council on the decades of
support a variety of City department programs have provided to ensure
the preservation of our downtown's historic building stock.
Economic Development Director Jill Connors, Planning Services
Manager Wally Wernimont, and Housing and Community Development
Director Alexis Steger will make a presentation.
SUGGESTED Receive and File; Presentation Suggested Disposition:
DISPOSITION:
ATTACHMENTS:
Description Type
Historic Redevelopment City Assistance presentation- City Manager Memo
MVM Memo
Staff Memo Staff Memo
Background Information Supporting Documentation
Presentation Supporting Documentation
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TO: The Honorable Mayor and City Council Members
FROM: Michael C. Van Milligen, City Manager
SUBJECT: City of Dubuque Programs that Support Historic Preservation Efforts
DATE: December 15, 2022
Housing & Community Development Director Alexis Steger, Economic Development
Director Jill Connors, and Planning Services Manager Wally Wernimont are providing
information to City Council on the decades of support a variety of City department
programs have provided to ensure the preservation of our downtown's historic building
stock.
Mic ael C. Van Milligen
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Attachment
CC' Crenna Brumwell, City Attorney
Cori Burbach, Assistant City Manager
Alexis M. Steger, Housing and Community Development Director
Jill Connors, Economic Development Director
Wally Wernimont, Planning Services Manager
THE CITY OF
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TO: Michael C. Van Milligen, City Manager
FROM: Alexis M. Steger, Housing and Community Development Director
Jill Connors, Economic Development Director
Wally Wernimont, Planning Services Manager
SUBJECT: City of Dubuque Programs that Support Historic Preservation Efforts
DATE: December 14, 2022
INTRODUCTION
The purpose of this memorandum is to provide City Council information on the decades
of support a variety of City department programs have provided to ensure the
preservation of our downtown's historic building stock.
DISCUSSION
Housing & Community Development
Since 2015, the Housing and Community Development Department has received
$14,443,934 in grants, which includes local match funding, through the Office of Lead
Hazard Control and Healthy Homes. Lead and Healthy Homes grants focus on the
rehabilitation of homes built prior to 1978, all of which are required to be reviewed by the
State Historic Preservation Office. All National Register Eligible properties, or properties
contributing to a historic district, are required to be rehabbed to the Secretary of the
Interior's Standards for Historic Preservation.
Since early 2020, the city has spent $1.9 million in the rehabilitation of homes with historic
significance. Additionally, Urban Revitalization Areas incentivize private investment in
residential and multi -residential structures. The Dubuque Urban Revitalization Area
coincides with the areas with the oldest housing stock in the city, so investments made in
these areas would improve the maintenance of historic structures. This incentive has
created $5.3 million in improvements to 145 residential structures and $3.5 million in
improvements to 42 multi -residential structures. These investments included
rehabilitation projects such as the Montana House, 197 Main, Fifteenth Street
Apartments, and several projects on Loras Blvd and Locust Street with structures built in
the 1890's.
Economic Development
Since 2004, the Economic Development Department's incentive programs have
supported the preservation of 77 downtown buildings with an investment of $34,925,386.
This City commitment has leveraged $276,361,280 in private investment in our
downtown. These programs maintain our downtown's historic fabric by participating in
the costs to repair and improve historic fagades, as well as providing funds to transform
these buildings, as appropriate, into much needed rental residential units at all price
points and quality office and retail space.
The Economic Development Department utilizes Urban Renewal Area authority to
generate Tax Increment to fund these programs. What this means is that a continuous
cycle is created: downtown rehabilitation generates increment that can be put back into
the grant programs which then are used to support future rehabilitation. The system
perpetuates itself and encourages historic rehabilitation on an ongoing basis.
We have seen projects — both large and small — throughout the downtown thanks to these
programs. This includes several high -profile projects such as the Roshek Building,
several transformative projects in the Historic Millwork District (Caradco, Novelty Iron
Works, Dupaco Voices), as well as Main Street or Central Avenue mixed use building that
add 3-4 apartments per project.
Planning Services
Since 1999, the Historic Preservation Activity has been placed under the guidance of the
Planning Services Department. During that time, the Planning Services Department has
received funding from City Council to conduct In-depth Architectural/Historic
Survey/Evaluations. With this funding used as match for grants, the Planning Department
has been able to survey over 5,653 structures. These surveys have led to the designation
of an additional conservation district, expansion of a conservation district, three (3) local
landmarks, four (4) individual historic properties and five (5) National Register historic
district while also identifying properties that are eligible for listing on the National Register
of Historic Places. These surveys and designations have also laid the groundwork for
many historic tax credit projects by helping to identify historic properties. This helps
assists developers with part one of the historic tax credit application.
Funding from the City Council is not only identifying structures, but also helping to tell the
story of Dubuquers. For example, the Dubuque Black Heritage Survey is an in-depth
investigation of the families, stories, places of interest, history, policy, migration pattern,
struggles and perseverance of African American and Black people who have called
Dubuque their home in the 19t" & 20t" Centuries.
In addition, City Council funding supports the Planning Services Department which staffs
the Historic Preservation Commission, writes grants, conducts federally required Section
106 reviews, tells the story of Dubuque, enforces historic preservation regulations, etc.
There are many more examples, but the City of Dubuque's Commitment to Historic
Preservation is best summarized in the attached document.
CONCLUSION
These incentives identified by the Housing & Community Development, Economic and
Planning Services Departments support and promote the rehabilitation and maintenance
of Dubuque's oldest buildings by decreasing the costs associated with the improvements.
Historic Preservation is one of the most important tools for economic prosperity,
environmental integrity, and social/cultural vibrancy. The greenest building is the one that
is already built. As it does in other cities across the country, for decades historic
preservation in Dubuque has served as a means for community education; downtown
revitalization and neighborhood stabilization; attraction for tourism, job creation, film
industry production; affordable, workforce and luxury housing; walkable neighborhoods
and other contributions to community and economic development.
Dubuque is a tremendous example of "leading edge" preservation efforts that can be
accomplished through leveraging funds and forming partnerships. The City of Dubuque's
array of historic preservation regulations, guidelines and incentives are not found in many
communities. Dubuque's programs can serve as a model for historic preservation
commissions from across the country and are especially relevant for small to medium-
sized cities.
Last, but certainly not least, nobody does it alone... People, Planning and Partnerships.
Dubuque maintains partnerships perhaps better than any other community we know. The
City's commitment to historic preservation through regulations, guidelines, and
incentives, and our active partnerships with local, state, and national preservation
organizations, have created one of the strongest historic preservation programs in Iowa,
the region, and maybe the country.
ACTION
This memo is for informational purposes only.
City of Dubuque: Commitment to Historic Preservation
November 2021
INTRODUCTION
Dubuque, Iowa is a community well known for its natural beauty and its historic architecture that makes
up much of the downtown and surrounding neighborhoods. As Iowa's oldest city, Dubuque's strong
historic preservation ethic goes back decades.
The City of Dubuque is committed to identifying and conserving its cultural resources. We recognize that
the historic, architectural and archeological resources of Dubuque are a key to our economic success
and quality of life. These resources, like the Mississippi River, help form Dubuque's unique identity.
Historic preservation is the poster child of sustainability — with its economic, environmental, and cultural
benefits. Preservation enhances the vibrancy of neighborhoods and cities, instilling pride and value
through increased property values, as well as enhanced quality of life, sense of place and neighborhood
pride. Preservation translates into economic prosperity through creation of new jobs, retention of
existing jobs — especially in construction trades, stimulation of private investment, tourism and business
growth, and financial investment in property improvements in Dubuque.
Dubuque's rise from its renown economic troubles of the 1980s was in part due to its recognition of and
dedication to the notion that what makes us unique can be our source of strength. Instead of mimicking
other communities or trying to reinvent ourselves, we turned to our foundation of our strong building
stock and environmental and culture heritage. We set out to preserve what we have, make it functional
for the 21't Century and enhance the community with sensitive and relevant infill development when
warranted.
Dubuque has been continually in the forefront of historic preservation in Iowa and has received national
recognition. With the City's commitment to education and training, the Planning Services Department
and the Historic Preservation Commission can help identify treatment approaches, potential financial
incentives, and other resources available to assist property owners.
BACKGROUND
The City's commitment to historic preservation began in the mid 1970's as the community reacted to
the wholesale clearance of downtown blocks through urban renewal programs. As a result of the
foresight of early leaders, Dubuque has one of the largest collections of historic building stock in Iowa.
The community's commitment continues today and into the future with our focus on sustainability and
resiliency.
The City of Dubuque has a historic preservation ordinance and a variety of preservation incentives that
protect and enhance our community's historic resources and identity. The City has designated 5 local
historic preservation districts, 9 conservation districts, 11 local landmarks, 19 National Register Historic
Districts and 3 conservation planning areas supported by an active Historic Preservation Commission.
There exists overlap between many of the conservation and historic districts.
Illustrated design guidelines are available for historic districts as well as the Downtown, Historic
Millwork District, and older neighborhoods. The City has documented the historical and architectural
significance of nearly 5,700 properties in Dubuque.
City of Dubuque: Commitment to Historic Preservation
November 2021
Dubuque's historic preservation regulations, historic surveys, and architectural guidelines are a resource
to guide property owners, contractors, and design professionals with preserving and enhancing the
historic characteristics of a building, in turn fostering neighborhood stability and community vitality.
Historic Building Rehabilitation/Preservation was named a Top Priority for 2021-2023 during annual goal
setting by the City Council.
HISTORIC RESOURCES
In 1976, the Dubuque Architectural Survey was completed and conservation districts were established
as precursors to historic districts. The City Council adopted a Historic Preservation Ordinance in 1977,
and then established the Historic Preservation Commission (HPC) in 1979 to assist in the review,
retention and promotion of historically significant properties and districts in the city of Dubuque.
Survey/Evaluation Program
The City Council designated 5 local historic districts, 8 conservation districts, and 8 local landmarks from
1979 to 1984 based on the 1976 Architectural Survey. This inventory was bolstered after Dubuque's
many architectural themes and historic contexts were recorded in the 1999 Comprehensive Survey and
the 2000 Community Assessment funded in part by the State of Iowa. This documentation is the
foundation for phased historical/architectural surveys/ evaluations of our older residential and
commercial neighborhoods. The City has retained consultants to survey and evaluate 5,653 structures
using local, state and federal funds.
Year
Phase
Survey Area
Buildings
Total Cost
Grant
GrantAmount
Source
2000
n/a
Citywide
n/a
$9,575
$4,000
HRDP
2000
1
Couler Valley
993
$20,583
$8,700
CLG
2001
II
Eagle Point
2,092
$28,258
$18,753
HRDP
2003
III
Downtown /
647
$28,000
$18,000
CLG
Old Main
2004
IV
4 Historic
544
$27,830
$18,000
CLG
Districts
2005
V
Conservation
452
$21,975
$14,437
CLG
Districts
2015
VI
North Couler
925
$13,213
$0
n/a
Valley
Since 2000, based on the phased survey/evaluation program, the City Council has locally designated
these additional resources: 1 new conservation district, 1 expanded conservation district, 3 local
landmarks, 4 individual historic properties, and 3 conservation planning areas. In addition, the HPC was
able to use the phased survey/evaluation program results for preparation of five NRHP historic district
nominations that were approved in 2015.
Black Heritage Survey
Dubuque's Black Heritage Survey will launch in 2022 and is an in-depth investigation of the families,
stories, places of interest, history, policy, migration pattern, struggles and perseverance of African
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City of Dubuque: Commitment to Historic Preservation
November 2021
American and Black people who have called Dubuque their home in the 19th & 20th Centuries. Dubuque
is Iowa's oldest city and the Survey will primarily focus from 1830 through 1980. The project is funded in
part through the State Historical Society of Iowa's Historic Resource Development Program (HRDP).
The Black Heritage Survey project has three products under its umbrella. The first is a National Park
Service Multiple Property Document Form (MPDF) - an in-depth research report along with
investigations of property and places in Dubuque related to our Black history. The second is a Genealogy
Outreach Component (GOC) - different than survey projects undertaken in Dubuque to date —to find
family histories, scrapbooks, stories, objects, documents and places that will help trace us through our
Community's heritage. The third product is a Heritage Database (Database) of documents and objects,
allowing us to prepare for future projects by creating a professional archive of what we find. These three
components work together to weave a practical and rich tapestry that is our Black Heritage Survey.
Historical Resources Inventory
The National Register of Historic Places (NRHP) is a program led by the National Park Service to
designate, coordinate and support public and private effort to identify, evaluate, and protect our
country's historic and archeological resources. Many of Dubuque County's nationally recognized cultural
resources are found in the City of Dubuque, including: 3 National Historic Landmarks, 1
of 5 archeological districts, 19 of 21 historic districts, and 48 of 61 structures individually listed in the
NHRP.
Approximately 2,500 National Historic Landmarks are designated by the National Park Service as
exceptional places of national significance. There are 25 in Iowa. The National Historic Landmarks are
the Old Dubuque County Jail and William M. Black steamboat. The third, the Mines of Spain (Julien
Dubuque's Mines) are partially located in Dubuque, and mostly in Dubuque County. The City of Dubuque
partners with the Dubuque County Conservation Board and the Iowa Department of Natural Resources
through ownership, conservation and management.
The City Council has preserved 696 structures in 5 local historic districts: Cathedral, Jackson Park,
Langworthy, West 11t" Street, and Old Main. In 2005, all 5 local historic districts were listed in the
National Register and designated as Urban Revitalization Areas for tax abatement.
The City Council has designated 11 local landmarks and landmark sites: City Hall, Dubuque County
Courthouse, Old Dubuque County Jail, William M. Black steamboat, Shot Tower, Mathias Ham House,
Julien Dubuque Monument, Four Mounds Estate, Eagle Point Park, Carnegie -Stout Public Library and
Dubuque-Dunlieth Bridge. All 11 local landmarks also are listed in the National Register.
The City Council has designated 4 individual historic properties. These properties are not of a landmark
status or located within a historic district, but they do have prehistoric, historic, architectural,
archeological and/or cultural significance. Two are also listed in the NRHP.
The HPC reviews demolition requests in the 9 conservation districts designated by the City Council that
protect 1,204 structures in the downtown and surrounding older neighborhoods outside of locally
designated historic districts.
Design Review
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City of Dubuque: Commitment to Historic Preservation
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In the locally -designated historic districts, landmarks, and individual historic properties, the HPC has
design review authority for exterior alterations that require a building permit, are visible from the public
right-of-way, and represent a material change in appearance. The HPC also reviews demolition requests
for these sites. For exterior alterations that are not a material change or clearly conform with the
established Architectural Guidelines, Planning Services staff can sign -off on the permit. These sites also
are eligible for historic preservation funding.
Properties in a conservation district are subject to HPC review of demolition requests only and may be
eligible for this funding. The Housing and Community Development Department reviews potential
housing loss with demolition requests in the historic and conservation districts.
RESPONDING TO CHALLENGES
In the 1990's, historic preservation faced many challenges in Dubuque. Residents in two historic districts
petitioned the City Council to be removed from these areas. The Historic Preservation Commission was
overturned on appeal to the City Council for the demolition of two downtown commercial structures
anchoring prominent corners in two other historic districts. Historic district property owners appealed to
the City Council on the Commission's prohibition to install vinyl siding to abate lead -based paint.
As a result of this series of events, the City Council determined that a renewed focus on historic
preservation was needed and re -assigned the program to the Planning Services Department. In April
1999, the City Council directed the HPC to review and update the Historic Preservation Ordinance, and
to identify solutions to the problems and deficiencies that caused the conflicts.
The HPC and Planning Services staff worked with historic district property owners, contractors, and
representatives from the Dubuque Area Board of Realtors, Dubuque County Historical Society, and
Dubuque Main Street. Based on the HPC's recommendations, the City Council adopted numerous
measures in 2001 to encourage preservation over demolition -- using a "carrot and stick" approach of
expanded incentives and stronger regulations.
Expanded Historic Preservation Incentives:
• Established Architectural and Streetscape/Landscape Design Guidelines.
• Created a Historic Preservation Homeowner Grant Program for low to moderate income
households.
• Created a Historic Preservation Revolving Loan Fund for exterior improvements for property
owners at any income level in the 5 historic districts.
• Expanded the Urban Revitalization Program, a 10-year city property tax exemption for qualified
improvements to residential properties, to all 5 historic districts.
• Created the Historic District Public Improvement Program to provide matching grants for
streetscape improvements in the 5 local historic districts and at landmarks.
Stronger Historic Preservation Regulations:
• Added a Preservation Alternatives step to the design review process, which requires a property
owner to attempt to obtain financial incentives and restoration alternatives sufficient for the
owner to earn a reasonable economic return.
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City of Dubuque: Commitment to Historic Preservation
November 2021
Prohibited Demolition by Neglect, to require owners of historic property to keep their real
estate in good repair, to stop a small problem before it becomes a large problem, and to offer
information and assistance on preventative maintenance with historically appropriate methods
and materials.
• Initiated the Boarded -Up Windows and Doors Ordinance which prohibits boarded -up windows
and doors on any building facade facing the street side of a property. The ordinance requires
windows be maintained on street sides of buildings to combat the blighting influence boarded -
up windows and doors have on buildings and neighborhoods.
Since these Historic Preservation Ordinance amendments and historic preservation incentives were
implemented, the HPC has not been challenged by appeals to the City Council to waive standards for
exterior alterations. Using this "carrot and stick" approach of expanded incentives and stronger
regulations has helped create a positive image for historic preservation efforts and spurred other local
initiatives in support of historic preservation in Dubuque and elsewhere.
PRESERVATION -RELATED PLANNING
The City of Dubuque takes pride in our success through "People, Planning, and Partnerships". Historic
preservation is a key component of these initiatives.
➢ The City Council set long-range goals and objectives for historic preservation in the City's 1995
Comprehensive Plan, reaffirming them in the 2002, 2008, 2012 and 2017 updates of the Plan.
➢ In 2002, the City Council adopted the Port of Dubuque Master Plan. The Port is home to several
National Register properties and the America's River project. The Master Plan provides for a
dense urban development pattern reflective of Downtown Dubuque and supports a riverfront
revitalization effort that includes cultural and heritage tourism as well as design standards that
reflect Dubuque's historic downtown architecture.
➢ The City Council recognized the importance of the historic, architectural and cultural resources
of downtown and surrounding neighborhoods with the adoption of the Downtown Dubuque
Master Plan in 2004. The Plan evaluates current conditions, catalyst opportunities, and barriers
to investment for Downtown's historic features. It also describes priority actions for protecting
and encouraging redevelopment of historic resources in Downtown.
➢ In 2009, the City Council adopted the Washington Neighborhood Strategic Plan to directly
address identified issues and to plan for an improved future for the neighborhood through a
broad range of strategies. The Plan includes strategies for preservation and conservation of
historic resources in Dubuque's oldest neighborhood.
➢ The Historic Millwork District Master Plan adopted by the City Council in 2009 is intended to
foster opportunities to retain, recruit and expand businesses, transforming over one million
square feet of vacant and/or underutilized space into a "live, work, and play" community. The
growing mix of office, commercial, entertainment, and residential uses is supported by the
Plan's unique melding of market opportunities, sustainable and architectural design, historic
preservation, and sound planning principles.
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City of Dubuque: Commitment to Historic Preservation
November 2021
DESIGN GUIDELINES
Design guidelines are in place for Dubuque's historic districts, downtown, and older neighborhoods to
protect and enhance their historic, cultural and aesthetic resources.
Architectural Guidelines
In 2001, the City Council adopted Streetscape/Landscape and Architectural Design Guidelines for the 5
local historic districts. In 2009, the City Council adopted a Downtown Design Guidelines Manual for both
exterior architectural design and streetscape/landscape design.
In 2014, the City Council adopted Architectural Guidelines that updated and combined these earlier
Design Guidelines for Historic Districts and the Downtown into one user-friendly manual. This manual
was expanded to include sustainability and accessibility guidelines. It also regulates exterior alteration of
historic structures community -wide when using public funds.
The 2014 Architectural Guidelines seek to balance objectivity with flexibility; i.e., to manage change so
the traditional character of the area is respected while accommodating compatible improvements. They
reflect our sustainability-oriented goals to promote economic development, enhance the image of the
area, and reuse historic resources.
Old Town Neighborhood Site Design Guide
Adopted in 2009 as part of the Unified Development Code, these design guidelines for development in
Dubuque's older neighborhoods provide form -based site design guidelines where strict application of
"suburban -style" site design standards for new commercial, industrial and residential development are
difficult to apply due to the dense development patterns of these older urban areas. They are intended
to encourage new development that is compatible with historic districts, downtown, and older
neighborhoods in conservation planning areas.
HISTORIC PRESERVATION INCENTIVES
Due to the commitment to historic preservation by the City Council, HPC, City staff, and neighborhood
associations, Dubuque has one of Iowa's best preservation programs, with many financial tools available
to help finance rehabilitation and adaptive reuse of historic structures.
Financial Toolbox
The City's Financial Toolbox is extensive, with federal, state, and local incentives available for qualifying
projects providing new jobs and investment in Dubuque. New and existing businesses are eligible for
these economic development programs, which provide assistance to areas that include all or part of the
City's 5 historic districts and 9 conservation districts. The City also has created several financial
incentives geared specifically to locally -designated historic properties.
The Historic Preservation Revolving Loan Fund provides 3% loans for 10 years for HPC-approved exterior
changes in the historic districts and individually -designated historic properties, and to correct demolition
by neglect violations in conservation districts. The program provides loans up to $25,000 to property
owners at any income level on a competitive and qualifying basis. Priority is given to projects that save,
restore or reconstruct original building elements.
The Fagade Grant Program is available for qualified facade renovations in the Greater Downtown Urban
Renewal District. The grants are used to eliminate inappropriate additions or alterations, to repair
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City of Dubuque: Commitment to Historic Preservation
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facades to their historic appearance, to rehabilitate the fagade to improve the overall appearance, and
to install signage that meets the Architectural Guidelines.
The Historic Property Tax Rebate Program encourage property owners to preserve, rehabilitate, restore,
and reconstruct historic properties in the Greater Downtown Urban Renewal District with rebates on
new taxable valuation for eight years.
The City of Dubuque joined its local partners to support the retention of Historic Tax Credits on the state
and federal levels, knowing the importance of these two tools to help local citizens and developers take
on tough projects, restoring and revitalizing Dubuque's built environment.
BUILDING CODE OPTIONS
The City Council has adopted the Uniform Code for Building Conservation, the International Building
Code, and the Dubuque Historic Building Code, created in 2003. The adoption of three building codes
gives owners, contractors, architects and the Building Services staff alternatives when working with
existing buildings. It also reduces the barrier (real and/or perceived) of codes when property owners are
contemplating renovation of their downtown buildings.
PRESERVATION PARTNERSHIPS
The City of Dubuque prides itself on our community partnerships, and historic preservation is no
exception. The HPC has found good community support and a strong funding commitment from the City
Council and other partners at the local, regional and state levels for growing list of preservation tools
and incentives.
The City of Dubuque participates in the Certified Local Government (CLG) program of the State Historic
Preservation Office. The main benefit of being a CLG is that the City is able to conduct federally -
mandated Section 106 reviews locally, as opposed to sending each project to the State. If projects had to
be sent to the State, the amount of paperwork would increase significantly, as would the review time.
As a CLG, the City also is eligible for grants to conduct a variety of historic preservation activities. These
have included development of design guidelines and the phased survey/evaluation program. The 2015
CLG grant partly funded an archeological survey/evaluation and NRHP nomination for Eagle Point Park,
matched with an in -kind donation of professional services by a local preservation consultant. Generally,
the City utilizes local support coupled with CLG Grants annually to support surveys, preservation plans
and preservation education, like the example of co -hosting the Preserve Iowa Summit in 2020.
The City of Dubuque is a long-standing, award -winning Main Street Community working in partnership
with the Iowa Main Street Office and Dubuque Main Street. In 1985 Dubuque was chosen by the
National Trust for Historic Preservation, founder of the Main Street Program, to be one of the pilot cities
for the new Urban Demonstration Program. Dubuque was one of the first five communities in the nation
to receive the "Great American Main Street" award.
Dubuque Main Street is dedicated to the development and ongoing support of a vibrant downtown and
serves seven downtown districts. Public/private partnerships and City investments have been key in the
redevelopment of downtown. In recent years Dubuque has seen record amounts invested in building
rehabilitation and fagade improvements through our Main Street program, creating thousands of full
time jobs and enabling hundreds of new business starts and expansions. The HPC partners with
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City of Dubuque: Commitment to Historic Preservation
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Dubuque Main Street during "Architecture Days" with presentation of the annual Ken Kringle Historic
Preservations Awards.
In 2004, Dubuque was one of 8 cities with a Cultural and Entertainment District designated by the State
of Iowa. The Cultural and Entertainment District has fast tracked downtown revitalization projects that
used State tax credits.
Preservation Iowa was organized in 1991 as the statewide preservation organization to build
partnerships that enhance our economic and cultural future through preservation of Iowa's historic
resources. The City of Dubuque is an active member.
The National Alliance of Preservation Commissions (NAPC) is the only organization devoted solely to
representing the nation's preservation design review commissions. NAPC provides technical support and
manages an information network to help local commissions accomplish their preservation objectives.
The City of Dubuque is an active member and hosted NAPC regional training workshops in 2008 and
2010.
In 2004, Dubuque was designated as Iowa's first Preserve America Community. Preserve America is a
White House initiative in cooperation with the Advisory Council on Historic Preservation, the U.S.
Department of the Interior, and the U.S. Department of Commerce. Designation recognizes
communities that: protect and celebrate their heritage; use their historic assets for economic
development and community revitalization; and encourage people to experience and appreciate local
historic resources through education and heritage tourism.
In 2005, Dubuque was named as one of America's Dozen Distinctive Destinations by the National Trust
for Historic Preservation, the country's largest private, nonprofit preservation organization. This is an
annual list of unique and lovingly preserved communities. Dubuque was selected from nearly 80
destinations in 44 states. In 2018, the National Trust featured Dubuque as the cover story in
Preservation Magazine, entitled Finding Dubuque.
The HEART (Housing Education and Rehabilitation Training) Program is a public/private partnership
that provides at -risk students with vocational construction training and education through the complete
rehabilitation of blighted properties in Dubuque. HEART helps revitalize older neighborhoods, creating
quality, affordable, historic homes for families that follow architectural guidelines for historic
preservation.
Heritage Works, a preservation non-profit founded in 2015, facilitates collaboration for catalytic
preservation and restoration projects; provides advocacy for historic preservation; and educates about
Dubuque's rich historic and architectural heritage.
FACILITATORS FOR SUCCESS
For many years, the Planning Services Department has served as a facilitator more than a regulator by
striving to reach a win -win -win for the property owner/developer, the neighborhood, and the
community for historic preservation and development services.
Since 1990, Planning Services staff has coordinated and facilitated the Development Review Team with
staff representing the Fire, Water, Engineering and Building Services Departments. These staff meet
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City of Dubuque: Commitment to Historic Preservation
November 2021
weekly with developers to discuss projects. Getting everyone in the same place (one stop shop) and
engaged in open dialogue is extremely beneficial. This is the formula for Dubuque's redevelopment
success, which in large part involves the adaptive reuse of Downtown buildings and sites.
In 2009, the City adopted the Unified Development Code (UDC) that updates and merges zoning,
subdivision, historic preservation, and sign regulations into a user-friendly format that recognizes the
diverse physical characteristics of Dubuque's neighborhoods, encourages planned and managed growth,
reduces obstacles, and incorporates sustainable design and best management practices. The flexible
parking standards help preserve the built environment and also help facilitate adaptive reuse projects.
Dubuque also has a historic building code that offers flexibility from modern building codes.
The UDC incorporates by reference architectural and site design guidelines for development in older
walkable neighborhoods where strict application of "suburban -style" site design standards for new
development are difficult to apply due to the dense development patterns of these older urban areas.
We want to encourage new development that is compatible with the "True Urbanism" of these
neighborhoods.
The success of the City's historic preservation program, however, lies more in our people than the codes
or guidelines. In general, our approach is not to simply inform, but to facilitate and be a part of the
project. Planning Services staff works hard to connect people to resources and incentives. We help
facilitate federally -mandated Section 106 reviews for potential impacts to historic properties for City
projects. Staff works closely and efficiently with property owners and developers and we invest a
tremendous effort in our historic preservation program. We prioritize our survey and registration
program which helps connect developers to historic tax credits.
FROM REGULATOR TO EDUCATOR
In 2010, the HPC recognized the importance of re -introducing an education and outreach component to
their regulatory duties. At that time, it was understood by all that public outreach through education,
promotion, and awareness was desperately needed to reconnect preservation with the public and
advance the City's preservation program.
Shortly thereafter, the HPC formed an Education Task Force. By 2013, the Task Force successfully
created a promotional brochure, worked with the City Assessor to label historic district buildings on
their website, and hosted educational events on researching property history and available financial
resources. The Task Force leveraged private and state grants to convert historic city directories to digital
format in 2013 and helped sponsor a series of historic wood windows workshops in 2014, led by non-
profit partners.
In 2014, the City Council adopted new demolition regulations recommended by the HPC that have a
two-part test: 1) Is the structure significant or not; and 2) If yes, is there a reasonable economic return
based on uniform demolition review criteria. Decisions are made by the HPC.
In 2014, the City Council also adopted new Architectural Guidelines that offer a combination of
preferred approach and acceptable approach. The "stoplight" format is intended to facilitate the
planning, review and approval process:
o Green Light — the appropriate or preferred approach
9
City of Dubuque: Commitment to Historic Preservation
November 2021
o Yellow Light — may be an acceptable or alternative approach; however, further research and
consultation with Planning Services Staff is needed
o Red Light - an inappropriate approach that can detract from a structure's architectural integrity
or may cause damage to a building or architectural feature.
HPC Work Plan
In 2014, the HPC voted in favor of transitioning the Commission from a role focused on design review to
a role focused on education and outreach. The role is more reflective of all the duties and
responsibilities of the HPC set forth in the Historic Preservation Ordinance. The transition also provides
for design review at the Staff level which in turn better serves our residents.
To organize this new direction, the HPC developed a work plan for addressing issues and opportunities
that strengthen the community's preservation program. Each goal has 1 to 2 Commissioners as
Champions, with Planning Services Staff assisting in implementation.
The workplan identifies projects and goals under two broad categories: Outreach & Education and
Survey & Registration Projects.
CONCLUSION
Historic Preservation is one of the most important tools for economic prosperity, environmental
integrity, and social/cultural vibrancy. The greenest building is the one that is already built. As it does in
other cities across the country, for decades historic preservation in Dubuque has served as a means for
community education; downtown revitalization and neighborhood stabilization; attraction for tourism,
job creation, film industry production; affordable, workforce and luxury housing; walkable
neighborhoods and other contributions to community and economic development.
Dubuque is a tremendous example of "leading edge" preservation efforts that can be accomplished
through leveraging funds and forming partnerships. The City of Dubuque's array of historic preservation
regulations, guidelines and incentives are not found in many communities. Dubuque's programs can
serve as a model for historic preservation commissions from across the country and are especially
relevant for small to medium-sized cities.
Last, but certainly not least, nobody does it alone... People, Planning and Partnerships. Dubuque does
partnerships perhaps better than any other community we know. The City's commitment to historic
preservation through regulations, guidelines, and incentives, and our active partnerships with local,
state, and national preservation organizations, has created one of the strongest historic preservation
programs in Iowa, the region, and maybe the country.
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