Washington Neighborhood Conservation District ExpansionMasterpiece on the Mississippi
TO: The Honorable Mayor and City Council Members
FROM: Michael C. Van Milligen, City Manager
SUBJECT: Expansion of Washington Neighborhood Conservation District
DATE: December 15, 2010
Dubuque
kinitil
Afl Amedcacity
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2007
Planning Services Manager Laura Carstens and Housing and Community Development
Director David Harris are recommending the expansion of the Washington
Neighborhood Conservation District to encompass the entire neighborhood and that this
be referred to the Historic Preservation Commission so they can hold a public hearing
and provide a recommendation to the City Council.
Expansion of this conservation district is an implementation step in the Economic
Development and Housing Strategies sections of the Washington Neighborhood
Strategic Plan. Expansion of the Washington Neighborhood Conservation District also
responds to the Safe Community Task Force recommendations for Management of
Physical Environment.
Conservation districts provide a review process for the issuance of demolition permits
and access to low- interest loans for correcting Demolition by Neglect deficiencies.
The Washington Neighborhood meets the definition of a Conservation District. The
area has a substantial collection of historically and architecturally significant residential
and commercial structures. The neighborhood encompasses one of the oldest, most
established, and most diverse residential areas of Dubuque. Many buildings are eligible
for listing in the National Register of Historic Places. The area offers a walkable, mixed -
use neighborhood with affordable housing.
Dubuque has five historic districts and nine conservation districts. In the historic
districts, the Historic Preservation Commission (HPC) reviews any exterior changes to
property that require a building permit and are visible from the public right -of -way.
These types of exterior changes to property in conservation districts are not reviewed by
the HPC; only demolition requests are reviewed by the HPC in conservation districts.
In both historic districts and conservation districts, the HPC determines if a demolition
permit should be granted for historically and /or architecturally significant structures
according to economic guidelines and review criteria specified by City Code. The HPC
must allow the demolition of buildings it determines lack historic or architectural value.
In both historic districts and conservation districts, Demolition by Neglect is prohibited.
The City has a historic preservation revolving loan fund for correction of Demolition by
Neglect violations in conservation districts. The loan is for up to $25,000 for 10 years at
3% interest. The HPC reviews and approves all loans, subject to underwriting criteria.
This loan program also is available in historic districts for any exterior work. It is not
available citywide.
While the recommendation is being considered by the Historic Preservation
Commission, the City Council can adopt a six month demolition moratorium for this
area.
concur with the recommendation and respectfully request Mayor and City Council
approval.
Michael C. Van Milligen
MCVM:el
Attachment
cc: Barry Lindahl, City Attorney
Cindy Steinhauser, Assistant City Manager
Laura Carstens, Planning Services Manager
David Harris, Housing and Community Development Director
Masterpiece on the Mississippi
TO: Michael Van Milligen, City Manager
DATE: November 23, 2010
DISCUSSION
FROM: Laura Carstens, Planning Services Manager
David Harris, Housing and Community Development Directory `
SUBJECT: Expansion of Washington Neighborhood Conservation District
Dubuque
AI- Amdicaclty
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2007
INTRODUCTION
This memorandum transmits for City Council review and approval, an ordinance for
expansion of the Washington Neighborhood Conservation District to encompass the
entire neighborhood.
Expansion of this conservation district is an implementation step in the Economic
Development and Housing Strategies sections of the Washington Neighborhood
Strategic Plan. Expansion of the Washington Neighborhood Conservation District also
responds to the Safe Community Task Force recommendations for Management of
Physical Environment.
Conservation districts provide a review process for the issuance of demolition permits
and access to low- interest loans for correcting Demolition by Neglect deficiencies.
Alternatively, an ordinance establishing a moratorium on demolition permits in the
Washington Neighborhood is enclosed for the City Council's consideration if the Council
would like further study of the Washington Neighborhood Conservation District;
however, this option has limitations that the conservation district does not.
Washington Neighborhood Strategic Plan
On April 20, 2009, the City Council reviewed and accepted the Washington
Neighborhood Strategic Plan. The Plan summarizes the analysis and strategies under
three core issues:
1. Economic Development
2. Families, Youth and Education
3. Housing
Expansion of Washington Neighborhood Conservation District Page 2
The Strategic Plan lists 68 separate recommendations under these categories, covering
a broad range of strategies to directly address identified issues and to plan for an
improved future for the neighborhood. The Plan's Neighborhood Strategies Maps that
highlight the recommended Economic Development and Housing action steps are
attached.
A major focus of the Strategic Plan concerns preservation, conservation, land use
control, and rezoning portions of the Washington Neighborhood. Major strategies in the
Economic Development and Housing categories related to the Unified Development
Code (UDC) are:
• Preserve vacant storefronts to reserve an inventory of available, good quality
space for expansion and new business opportunities.
• Maintain and preserve the existing historic buildings and urban fabric of the
Central Avenue business district as a special part of the neighborhood's brand.
• Expand existing conservation districts to the neighborhood boundaries.
• Consider designating the area as a historic district to market the area and access
federal and state tax incentives and City historic preservation incentives.
• Retract commercial zoning that extends into residential areas, particularly south
of 14 Street.
• Phase out industrial areas in the south end of the neighborhood, particularly in
Tight of the planned redevelopment of the Historic Millwork District.
Like all planning documents, the Washington Strategic Plan will prove useful only to the
extent that a sustained implementation effort is maintained and achieved. Expansion of
the Washington Neighborhood Conservation District is an important action step for
neighborhood stabilization that will in turn foster the other action steps listed above.
Safe Community Task Force
The Safe Community Task Force's recommendations for Management of Physical
Environment include improving Dubuque neighborhoods by:
(a) encouraging home ownership;
(b) encouraging a mixed income approach to neighborhood development; and
(c) creating (or re- creating) a sense of place through good design.
Expansion of the Washington Neighborhood Conservation District responds to the Safe
Community Task Force recommendations by encouraging more homeownership and
mixed -use opportunities, while at the same time preserving the character and sense of
place of the neighborhood.
Expansion of Washington Neighborhood Conservation District Page 3
Conservation Districts
UDC Section 10 -11 defines a Conservation District as an area which:
• Encompasses historically and architecturally significant buildings, sites,
structures, or districts, including potential national or local historic districts; and
• Is important to maintain and preserve for its economic and social value and as a
neighborhood or area of affordable housing.
The Washington Neighborhood meets the definition of a Conservation District. The area
has a substantial collection of historically and architecturally significant residential and
commercial structures. The neighborhood encompasses one of the oldest, most
established, and most diverse residential areas of Dubuque. Many buildings are eligible
for listing in the National Register of Historic Places. The area offers a walkable, mixed -
use neighborhood with affordable housing.
Dubuque has 5 historic districts and 9 conservation districts. In the historic districts, the
Historic Preservation Commission (HPC) reviews any exterior changes to property that
require a building permit and are visible from the public right -of -way. These types of
exterior changes to property in conservation districts are not reviewed by the HPC; only
demolition requests are reviewed by the HPC in conservation districts.
In both historic districts and conservation districts, the HPC determines if a demolition
permit should be granted for historically and /or architecturally significant structures
according to economic guidelines and review criteria specified by City Code. The HPC
must allow the demolition of buildings it determines lack historic or architectural value.
In both historic districts and conservation districts, Demolition by Neglect is prohibited.
The City has a historic preservation revolving loan fund for correction of Demolition by
Neglect violations in conservation districts. The loan is for up to $25,000 for 10 years at
3% interest. The HPC reviews and approves all loans, subject to underwriting criteria.
This loan program also is available in historic districts for any exterior work. It is not
available citywide.
Establishment of a Conservation District
UDC Section 10 -11 of the Unified Development Code describes the process for
expanding a conservation district, which is as follows.
A written request is submitted to the City Clerk. Any person may make a request to the
City Council for creation of a conservation district.
At its next regular meeting following receipt of the request, the City Council may:
approve or deny the request, set the request for consideration at a subsequent meeting,
set the request for a public hearing, or refer the request to the HPC for a
recommendation before voting on the request.
Expansion of Washington Neighborhood Conservation District Page 4
In previous requests for alteration of conservation districts, the City Council has
approved the request at the initial meeting at which it was considered.
If the City Council decides to consider the request at a public hearing, a notice of the
hearing must be published in the local newspaper. The City Council may also direct the
City Clerk to mail a notice of the City Council meeting to the district property owners.
If the City Council refers the request to the HPC, the City Council may also direct the
HPC to mail a notice of the HPC meeting to the district property owners.
If a referral is made, the HPC reviews the request, and makes a recommendation to the
City Council to approve or deny the request. The HPC may table the request for
additional information for up to 60 days. At its next regular meeting following receipt of
the HPC's recommendation by the City Clerk, the City Council must act to approve or
deny the request.
Demolition Permit Review in Conservation Districts
UDC Section 10 -11 B describes the process for HPC review of demolition permits in a
conservation district. The process may take approximately 30 -90 days from the date a
complete application is filed with the Planning Services Department.
The HPC must make a determination as to: whether the building proposed for
demolition has historic or architectural significance to the community; and 2) whether
denial of the proposed demolition permit would prevent the property owner from earning
a reasonable economic return on the property.
If the HPC finds the building does not have historic or architectural significance, or that
denial would prevent a reasonable economic return, the HPC must recommend
approval. If the HPC finds the building has historic or architectural significance, or that
denial would not prevent a reasonable economic return, the HPC must deny the
application.
If the property has one or more dwelling units, the Housing and Community
Development Department may comment on the request and suggest strategies for
earning an economic return on the property.
Appeals of HPC decisions are made to the City Council. If the applicant is the State of
Iowa or local government, the City Council also will make a determination on approval
or denial of an application.
RECOMMENDATION
The Washington Neighborhood meets the definition of a Conservation District. The
neighborhood has many historically and architecturally significant buildings. Its mix of
commercial and residential structures creates a traditional, walkable, and affordable
neighborhood.
Expansion of Washington Neighborhood Conservation District Page 5
Expansion of the Washington Neighborhood Conservation District responds to the Safe
Community Task Force recommendations and is an implementation step for the
Washington Neighborhood Strategic Plan.
Conservation districts provide a review process for the issuance of demolition permits
and access to low- interest loans for correcting Demolition by Neglect deficiencies. In
doing so, conservation districts stabilize neighborhoods and improve property values,
retain their historic and architectural character and sense of place, and foster civic pride.
Option 1: Establish Conservation District
The City Council can adopt the attached ordinance expanding the Washington
Neighborhood Conservation District at the December 6, 2010 meeting.
Option 2: Establish Demolition Moratorium
If the City Council decides to consider the request at a public hearing or refers the
request to the HPC, then the City Council can adopt the attached ordinance establishing
a six -month moratorium on the issuance of demolition permits in the Washington
Neighborhood at the December 6, 2010 meeting.
Option 1, the conservation district, allows for the review and approval of small -scale
demolitions associated with rehabilitation work, such as the removal and replacement of
inappropriate porches with historically appropriate porches. This flexibility is not
provided by option 2, the demolition moratorium. A moratorium allows for City staff to
study the neighborhood and report back. It is staff's opinion, however, that further study
of the expansion of the Washington Neighborhood Conservation District is unnecessary.
Therefore, City staff recommends expansion of the Washington Neighborhood
Conservation District to provide important stability for the neighborhood while allowing
flexibility for rehabilitation projects after the Historic Preservation Commission holds a
public hearing and provides a recommendation.
Both attached ordinances include a provision that exempt properties being acquired and
demolished for the Bee Branch Creek Restoration Project, because these demolitions
are part of a Section 106 Mitigation Plan reviewed and approved by the HPC and the
State Historic Preservation Office.
REQUESTED ACTION
The requested action is to refer the recommendation to the Historic Preservation
Commission for a public hearing and a recommendation back to the City Council. While
the recommendation is being considered by the Historic Preservation Commission, the
City Council can adopt a six -month demolition moratorium for the area.
Attachments
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Exhibit A
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Proposed Boundary
Existing Boundary
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COMPOSITE MAP - Neighborhood Strategies Plan
PRESCOTT \ /
SCHOOL &
COMMUNITY,
,RESOURCE , .-
CENTER
Focus initial neighborhood
conservation and in fill
efforts in area east o
White Si; south of 2 ° St.
north of 18"' S; and west
of Elm St and the Five
Points commercial district
PACK SITE
U085 GENERATOR)
Establish safe and attrac-
dye pedestrian connection
between Pack Site and the
Washington Neighborhood
Provide gateway feature
along the I 6 ° St corridor
to mark the entry into the
Washington Neighborhood
Enhance connectivity to
the Historic Millwork Dis-
trict along Washington St
Provide focal point within
Jackson Park to mark the
western terminus of the
I e St corridor
Explore potential to
establish the Washington
Neighborhood Welcom-
ing Center within a highly
visited area, such as along
the Central Ave corridor
Enhance the streetscape
along the I6° St corridor
to create an attractive
pedestrian -oriented link
between Central Ave and
the adajcent Pack Site
N M Comm Districts
Neighborhood commercial dis-
tricts are defined in two areas:
(I) Along Central Ave, including
existing. and opportu-
nities for entrepreneurship and
business incubator spaces.
(2)Within the Five Points area,
including existing businesses
and opportunities for additional
neighborhood -oriented businesses
and linkages to future commercial
development on the Pack Site.
Washington Neighborhood - Dubuque IA
Pedestrian - Oriented
Commerdal Corridor
Pedestrian- oriented commercial
corridor along Central Ave from
13° St to 18Th St to provide a
unique neighborhood commercial
district focusing on facade im-
provements, streetscape enhance-
ments, and "green "initiatives
(e.g. special recycling and trash
receptacles, bike racks, green al-
ley program, water recycling, etc).
Page 10
Neighborhood
Conservation & Infil
Neighborhood conservation to
support housing in fill and re-
habilitation as well as stabilize
community -oriented businesses
and services, particularly build-
ing upon the success of Project Concern and the Crescent Com-
munity Health Center anchoring
the adaptive reuse of the former
Dubuque Casket Factory building.
Residential
■ • ■ Redevelopment Area
✓ te- :err
Residential redevelopment to
follow plans established for the
adjacent Historic Millwork District
to the south.
March 2009
Neighbathood residents.
Estabish safe and attrac-
tive pedestrian connection
between Pork Site and the
Washington Neighborhood
Define a neighborhood
commercial districts along
Central Ave, including
vestal( businesses and
oppormiths for entre-
prenweshi t and business
incubator spaces
, Strategies Map:
Economic Development
S,i See Work Pnn;rum v
commercial l i
neighborhood
Define
rmrPd ght
b t ood
the Fite Paints area
n ines existing busi-
fn-od a neighbor-
oorie businesses
cod Co 1p op
commercial development
the Po o < Site
ee
i lom
on the Pck te
partnerships. Foster tedeveinixnett aid deveioprnent op-
portunities through publidwieue
❑ Expand types of public incentives offered to
business owners and developers to locate in the
Washington Neighborhood
❑ Improve physical conditions to make neighbor-
hood attractive for investment
❑ Develop program to encourage the filling clean-
ing, and management of vacant commercial
spaces to preserve against further decline
❑ Consider offering financial incentives to maxi-
mize the Pock site's tenant potential
❑ Consider acquisition of available properties at
five Points business district to maximize potential
Seippart and erimeseape the expansion of
❑ Provide assistance to local businesses to improve
their quality and market appeal
❑ Preserve vacant storefronts to reserve art inven-
tory of available, good quality space for new or
expanded businesses
❑ Consider expanding the Main Street Program or
creating new entity specific to the neighborhood
❑ Partner with local business school programs to
provide small business assistance and identify
funding sources for economic development
❑ Partner with local banks to create low interest
loan programs for businesses to implement
storefront and interior space upgrades
❑ Create a local merchants association
❑ Create business profs of successful stores to
market them to customers and investors
❑ Create a "shop locally program
❑ Work with local news agency to publish articles
highlighting the neighborhood's positive elements
❑ Create a neighborhood business promotional
display to promote local businesses at City events
❑ Revisit past attempts at offering microertterprise
development services support by the City to
detemtine potential for new program
IM Develop St ale, alternative bedding and
attdd h the matt
❑ Partner with City to promote and implement
development of alternative energy sources such
as geothermal energy and biomass
❑ Create "green technology businesses to provide
job opportunities
❑ Partner with City to implement the development
of energy and green technologies
❑ Encourage dean energy management strategies
by using renewable and dean energy
ECONOMIC DEVELOPMENT - NEIGHBORHOOD STRATEGIES PLAN
Work with local private and public agencies to
provide employment assistance
Provide neighborhood -based local educational
opportunities
Identify training options, including creating a
new employment center and implementing techni-
cal assistance programs
❑ Provide job shadowing opportunities with local
businesses
Define a pedestrian -
oriented commercial
corridor dong Central
Ao roride a uniqu
neighbo t � c on e loci d e
i
opr h eat h , n ve hcoe
mpraeme c m and
ane
enhancements. ,
green' khidarhes
hwide focal point within
Jackson Pork to nark the
western terminus of the
I6° St corridor
Explore potential to
establish the Washington
Neighborhood Wekom-
iht Center within a hghly
anted area such as aFir
the Central Ave corridor
Edhonce the streetscape
dung the 16 St corridor
to create an attmcwe
pedestrksn- oriented ink
between Central Ave and
the addcent Pad, Site
❑ Secure employment opportunities as the Pack site
and Historic Millwork District redevelop
❑ Improve access to jobs in other ports of Dubuque
❑ Consider incentive programs to encourage low
skilled people to participate in education and
training programs
❑ Identify goals and provide incentives for local busi-
nesses to hire locally
Develop a mairting and branding plan dial
Panes an the strength afdire kcal
businesses, unique histrry, old thwarter.
❑ Establish programs to attract niche businesses
❑ Attract businesses that meet residents'specific needs
❑ Maintain and preserve historic buildings and urban
fabric of the CentralAve business district
❑ Provide low-cost incubator space for early -stage
entrepreneurs and niche businesses
❑ Develop a neighborhood logo for promotion
Enhance prarkh aureate to n� bus iness
remanent and aatenrers
❑ Improve neighborhood safety and visual
appeal through streetscape and facade
improvements and property maintenance
❑ Establish accessible pedestrian and
vehicular connections to the Pack site
❑ Consider City- sponsored program for
cosmetic enhancements to businesses
in the Washington Neighborhood
ta it V his Irbi
�i
111F tie a welcoming
atmosphere to encourage
community fosoy communization.
and project a new blase
as a hip neighborhood
HOUSING - NEIGHBORHOOD STRATEGIES PLAN
o Provide housing resources through a Washington
Neighborhood Welcoming Center
❑ Market area to prospective new homebuyers
❑ Establish a marketing program and design
public improvements to project area as a "cool"
and welcoming neighborhood
❑ Connect neighborhood to adjacent districts
❑ Consider Historic District designation
H -2
H -3
Aro+otinhz
hoeowmer
❑ Expand partnership with Dubuque
Bank & Trust to acquire vacant buid
ings and provide low interest loans
❑ Expand homeownership lending �
ng p
gram for rental conversions
❑ Provide a targeted forgivable loan pro-
gram for seniors for home repairs
o Create partnership with businesses to
offer ErnployerAssited Housing
u riT7
❑ Organize a Renters Association
❑ Provide targeted education for lordiards
❑ Expand rental database
❑ Enforce city codes
CAB \� �\
Provide focal point within
Jackson Park to mark the
western terminus of the
16° St corridor
Explore potential to
establish the Washington
Neighborhood Welcom-
ing Center within a highly
visited area, such as along
the Central Ave corridor
Enhance the streetscape
along the 16ih St corridor
to create an attractive
pedestrian-oriented link
between Central Ale and
the adajcent Pack Site
— IV '7�—/
f i s . 1 have resulted in the loss of the historic charac
01. m and � : Consider applying the City's conservation district Strategies Map:
standards to properties that are currently zoned
.� R -2A to address concern over inappropriate convey- Housing
sions and replacement of single -family homes that t must be addressed. This will encourage more ho-
t� meownershi opportunities as well as preserve the
G" character of the neighborhood.
01 40
r i 1
•
encourage neighborhood conservation to support hous-
ing infrll and rehabilitation as well as stabilize communi-
ty- oriented businesses and services, particularly building
upon the success of Project Concern and the Crescent
Community Health Center anchoring the adaptive
reuse of the former Dubuque Casket Factory
rrrr�sr,.�...'h�✓� a1ar���
1
a
See Work Program Grid for
more information
Focus initial neighborhood
conservation and infill
efforts in area east of
White St, south of 2 l n St,
north of 18 St and west
of Elm St and the Five
Points commercial district
Establish safe and attrac-
tive pedestrian connection
between Pack Site and the
Washington Neighborhood
I
Provide gateway feature
along the 16° St corridor
to mark the entry into the
Washington Neighborhood
sV±
Encourage residential
redevelopment to fol-
low plans established for
the adjacent Warehouse
District to the south
I��
Enhance connectivity to
the Historic Millwork Dis-
trict along Washington St
Encourage pubic and private Fnestments to
Improve the appearance of the neighborhood
to attract r kwestr lent
e
❑ Improve public streetscapes as an incentive for prop-
erty owners to invest in their properties
❑ Provide a matching fund for facade improvements
and porch rehabs or additions
Page
❑ Educate community of roles and responsibilities
of property owners, homeowners, and renters
❑ Provide visits to new residents to welcome them
to the neighborhood
❑ Estabbsh a Washtington Neighborhood Housing
Resources website for information and resourc-
es for homeowners and renters
Enhance the quaity and energy efficiency y of
housing Wa green iJtlodves.
❑ Conduct greening and lighting pilot programs
for alleys
❑ Establish energy-efficient incentives for rentals
❑ Provide new residents with informaoonol m ate
rids about maintaining energy efficient homes
Prepared by: Laura Carstens, City Planner Address: City Hall, 50 W. 13th St, Dubuque, IA 52001 Telephone: 589 -4210
Return to: Jeanne Schneider, City Clerk Address: City Hall, 50 W. 13th St, Dubuque, IA 52001 Telephone: 589 -4121
ORDINANCE NO. 64 -10
AN ORDINANCE ESTABLISHING A MORATORIUM ON THE ISSUANCE OF DEMOLITION
PERMITS IN THE WASHINGTON STREET NEIGHBORHOOD CONSERVATION DISTRICT
Whereas, the City has adopted the Washington Neighborhood Strategic Plan; and
Whereas, expansion of the Washington Street Neighborhood Conservation District is an
implementation step of the Washington Neighborhood Strategic Plan; and
Whereas, the City Council plans to study the proposed expansion of the district.
NOW, THEREFORE, BE IT ORDAINED BY THE CITY COUNCIL OF THE CITY OF
DUBUQUE, IOWA:
Section 1. Title 14 of the City of Dubuque Code of Ordinances, Building and Development,
Chapter 2, Section 14 -2 -4 is hereby amended as follows:
D. Washington Street Neighborhood Conservation District: The city manager shall not
issue any permit for demolition, in the proposed expansion of the Washington Street
Neighborhood Conservation District, with the exception properties being acquired
and demolished for the Bee Branch Creek Restoration Project, as shown on the map
on file in the office of the city clerk, 50 W. 13th Street, Dubuque, Iowa, during the
period from the effective date of this ordinance through June 22, 2011, except where a
vested right to the issuance of such permit accrued prior to December 23, 2010.
Section 2. This ordinance shall take effect immediately upon publication, as provided by law.
Passed, approved and adopted this 20 day of December, 2010.
1
Roy D. Bu , Mayor
Attest:
Jeanne F. Schneider, City Clerk
F: \USERS \LCARSTEN \WP \Washington Neighborhood \Washington Nbhd Moratorium Ord.doc