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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 o 1 1 1 r 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 11111r 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 T 1i Mil 101111• • �4 0 „J Exhibit A i ir.,w- - ...ripw. ■ I II, ,�„ i I I �I pi-- �"� � • -i ce r I A _ q MN min ma. miiii m log _a. ... 11.1-• , r will...„-a_ ma, fte---a or, MN" i, „ w I LORAS BLVD w T a Proposed Boundary Existing Boundary ii i Id i I E tom Er nog 1 OT N 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