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Historic Dis Improve Pro Guidelines Planning Services Department City Hall 50 West 13th Street Dubuque, Iowa 52001-4864 (563) 5894210 office (563) 589-4221 fax (563) 690-6678 roD planning@cityofdubuque.org www.cityofdubuque.qrg '-i% THE CtTY OF ( ~,/ DUED E ~~~ January 25, 2005 Honorable Mayor and City Council Members City of Dubuque City Hall - 50 W_ 13111 Street Dubuque, IA 52001 SUBJECT: Historic District Public Improvement Program - Policy Guidelines Dear Mayor and City Council Members, INTRODUCTION The Historic Preservation Commission has reviewed a request from the Four Mounds Foundation to revise the Historic District Public Improvement Program (HDPIP) Policy Guidelines to include local landmarks or National Register historic districts as eligible properties. BACKGROUND The Historic District Public Improvement Program is funded with $100,000 annually as a Capital Improvement Program in the Planning Services Department. HDPIP is intended to provide incentives for public place and streetscape improvements in each historic district. The program funds streetscape elements such as landscaping, historic lighting, planters and signs. Neighborhood associations and groups compete for the funding. The Historic Preservation Commission serves as an advisory design review body to the City Council for HDPIP applications. The Commission reviews each application, and then provides a recommendation to the City Council. Currently, the HDPIP Policy Guidelines state that funding will be distributed among the five local historic districts: Cathedral, West 11111 Street, Old Main, langworthy, and Jackson Park. Attached are the HDPIP Policy Guidelines, a list of the local landmarks, and a list of National Register historic districts. The Four Mounds Estate is a historic district listed on the National Register of Historic Places; however, it is listed as a local landmark rather than a local historic district. The property is listed as a landmark in part because of the State law that requires a resident of each local historic district to serve on the Historic Preservation Commission. The Historic Preservation Commission was concerned that there would not be a resident of the Four Mounds Estate willing to serve as the district representative. The landmark designation also was selected in part because the Four Mounds Estate has only two owners. DISCUSSION The Historic Preservation Commission discussed the options of making HDPIP applications available for all local and National Register historic districts, or all local historic districts and local landmarks. SeM", People Integrity Responsibility Innovation Teamwork Local historic districts and local landmarks are CIty-designated, and are subject to HPC review of exterior changes under the Historic Preservation Ordinance. National Register historic districts are not subject to any HPC review. The City has locally designated eight landmarks: CIty HaD, County Courthouse, Old County Jail, William M. SJack steamboat, Shot Tower, Mathias Ham House, Julien Dubuque's Monument, and the Four Mounds Estate Historic District. The Commission noted the uniqueness of the Four Mounds Estate Historic District as the only locally designated landmalf< that is also a Jandmark site due to its land area, as defined in the Historic Preservation Ordinance: Landmark Site: Any parcel of land of prehistoric or historic archeological significance, or historic significance due to its substantial value in tracing the prehistoIy or history of Native Americans, or upon lIlIhich an historic event has occurred, and lIlIhlch has been deslgnateclas a lanclmark site under this section, or an improvement parcel, or part thereof, on lIlIhich is situated 8 landmark and any abutting improvement parcel, or part thereof, used as and conatltuting part of the premises on which the Iandmalf< Is situated. The Commission also discussed that the CIty of Dubuque is the principal owner of the Four Mounds Estate Historic District, but that the Four Mounds Foundation, a private non-profit organization, is responsible for the care and upkeep of the property. Finally, the Commission discussed that extending the HDPIP funds to the Four Mounds Estate Historic Dlstlict would require revision of the HDPIP Policy Guidelines relative to eligible applicants, priority, evaluation criteria, and links to other programs or funds. RECOMMENDATION The Historic Preservation Commission recommends that the HDPIP Policy Guidelines be revised to include Iandmalf< sites, lIlIhich at the present includes only the Four Mounds Estate Historic DIstrict. The Commission does not support extending the HDPIP funds to National Register historic districts. The CommiSSion believes It is important that areas competing for HDPIP funds should be locally designated and therefore subject to Commission review under the Historic Preservation Ordinance. The attached HDPIP Policy Guidelines reflect the Commission's recommendation. Sincerely, ~~i@v David Stuart, Chairperson HistoriC Preservation Commission Attachments " City of Dubuque, Iowa Historic District Public Improvement Program Policy Guidelines - HPC recommended revison The Historic District Public Improvement Program (HDPIP) provides 3:1 matching grants on a competitive basis to neighborhood associations and neighborhood groups and non-profit organizations for streetscape improvements in the City's five historic districts and local landmark sites. The program is intended to enhance the public places and streetscapes in the historic districts and local landmark sites to retain and augment their sense of place. Program Limits The program is limited to the boundaries of the Cathedral, Jackson Park, Langworthy, Old Main, and West 11th Street Historic Districts (see map) and loca/landmark sites (Four Mounds Estate Historic District). Funding will be distributed among the five historic districts and local landmark sites based on the projects selected and completed. The maximum allocation of program funds per year per historic district is $100,000. The minimum grant amount is $3,000. The maximum grant amount is $100,000. Who can Apply? . Neighborhood Association recognized by the City of Dubuque. . Neighborhood Group (definition: all property owners on both sides of a street). . Non-profit organization recognized by the City of Dubuque (Four Mounds Foundation) . Individual property owners are not eligible to apply. Eligible Projects: What is Funded . Purchase and installation of permanent exterior improvements installed in public right-of-way or public places, such as parks, in an historic district or local landmark sites. . Architectural and engineering fees associated with the project. . Streetscape amenities consistent with the City's Streetscape and Landscape Guidelines for Historic Districts, including: decorative paving (such as pavers, stamped and/or colored concrete), historic street lights, ornamental benches, decorative railing or fences, tree grates, planters, signs, and landscaping. Historic District Public Improvement Program Page 2 What is Not Funded . Installation of streetscape elements and amenities on private property. . Costs of work performed prior to signed agreement with the City. Priority Priority will be given to projects developed in coordination with the City's public street improvement program, and similar public improvements in historic districts and local landmark sites. Coordination with the City's project allows the streetscape amenities to be installed concurrent with the street improvement or other public improvement project. Accommodations can be made for installation of amenities subsequent to the street improvement project through the installation of supportive infrastructure, such as conduit for historic street lights. In general, the priority for allocation of funds through this program will be as follows: 1. Street Reconstruction/Improvement Projects 2. Sidewalk Inspection Program 3. Major Infrastructure RepairslMaintenance 4. Neighborhood Association/Neighborhood Group Proposal 5. Non-Profit Organization Proposal 6, Historic Preservation Commission - Neighborhood Pilot Project Evaluation Criteria The Historic Preservation Commission will review the application, and then provide a recommendation to the City Council based on the following criteria: . High visual impact and quality of life improvement for the neighborhood or local landmark site: Does the project encourage people to walk in the neighborhood or site? Visit the neighborhood or site? Enjoy the neighborhood or site? . High community and neighborhood or site visibility of streetscape improvements, . Amount of private leverage: ratio of public funds to private funds. . Continuity with previous/planned public and/or private improvements. . Percentage of neighborhood/property owner support: minimum 25%, with a higher rating given for greater neighborhood match. . Conformance with the City's adopted Streetscape and Landscape Design Guidelines for the Historic Districts, and any special urban design plans or guidelines adopted for the project area. '. Historic District Public Improvement Program Page 3 . Link with Housing Rehabilitation special programs or with Historic Preservation Homeowner Grant or Revolving Loan Programs. . Link with Leisure Serviees or other special City programs or with state, federal or private funding sources. . Previous assistance from the HDPIP (a higher rating will be given to first-time applicants over previous recipients). Publie I Private Mateh The program covers up to 75% of project costs. Neighborhood associations and groups and non-profit organizations are required to provide a 25% match. For example, if applying for a $75,000 grant, the budget must describe at least $100,000 in eligible costs and at least $25,000 in private match. The private match may be obtained from assessments of property owners in the project area; private fund raising; private donations; in-kind services, or private, state or federal grants. The entire 25% private match may be in-kind donations. With the exception of CDBG funds (see description below of CDBG Program), City funds may not be used as matching share. All matching funds must be cash expended or in-kind services donated during the grant period, which begins when the grant agreement is signed by both the applicant and the City of Dubuque. Architectural and engineering fees associated with the project, up to $10,000 or 10% of total project costs, are eligible grant expenses. Assessments for Streetscape Projeets For historic streetscape projects involving assessments, such as a street reconstruction project, the neighborhood association or neighborhood group would be responsible for 25% of the cost of any added assessable cost for streetscape enhancements. Property owners will be assessed for a percentage of the costs of improvements using the formulas applied to the City's public street and sidewalk programs. Non-Assessment Streetscape Projects For some components of the City's public street and sidewalk programs, such as an asphalt resurfacing street project, the City typically does not assess the property owners. For these non-assessment projects, the neighborhood association or neighborhood group must provide a private match of 25% of the project costs. Historic District Public Improvement Program Page 4 COBG Program: Matching Grants Through the Community Development Block Grant (CDBG) Program, the City provides financial assistance to low and moderate income households. The City offers a Neighborhood Infrastructure Program and Neighborhood Grants to neighborhood associations and neighborhood groups in CDBG target areas, where a majority of households are low and moderate income. These programs compliment the Historic District Public Improvement Program, and are coordinated by the Neighborhood Development Specialist. The Neighborhood Infrastructure Program can be used to pay the special assessments for low and moderate income households within the project area. nIEOTY~ ~ DUB E ~~~ MEMORANDUM January 13, 2005 TO: FROM: Historic Preservation Commission Laura Carstens, Planning Services Manager' g1sV SUBJECT: Historic District Public Improvement Program - Policy Guidelines INTRODUCTION This memo is in reference to a requested revision of the Historic District Public Improvement Program (HDPIP) Policy Guidelines to include local landmarks or National Register historic districts as eligible properties. Currently, the HDPIP Policy Guidelines state that funding will be distributed among the five local historic districts: Cathedral, West 11 th Street, Old Main, Langworthy, and Jackson Park. I have attached the HDPIP Policy Guidelines, a list of the local landmarks, and a list of National Register historic districts. DISCUSSION The Planning Services Department has received a HDPIP application from the Four Mounds Foundation, along with the request to revise the HDPIP Policy Guidelines. The HDPIP application will be submitted to the Historic Preservation Commission for review at the February 17 HPC meeting, subject to the Commission's decision on the request to revise the HDPIP Policy Guidelines. The Four Mounds Foundation oversees the care and upkeep of the City-owned Four Mounds Estate Historic District. The Four Mounds Estate is listed nationally as a historic district, but it is listed locally as a local landmark. The Four Mounds Estate Historic District is also a National Register historic district. It is not an eligible property for HDPIP, however, because it is not located in one of the five local historic districts. Historic District Public Improvement Program - Policy Guidelines Page 2 RECOMMENDATION The options for the HPC to consider are: (1) All local and National Register historic districts, or (2) All local historic districts and local landmarks. Local historic districts and local landmarks are City-designated, and are subject to HPC review of exterior changes under the Historic Preservation Ordinance. National Register historic districts are not subject to any HPC review. If the Historic Preservation Commission believes the HDPIP Policy Guidelines should be amended, I recommend the second option. I believe that the second option follows the intent of the HDPIP to be a "carrot" to counteract the "stick" of being locally designated and therefore subject to Commission review under the Historic Preservation Ordinance. REQUESTED ACTION Please review the HDPIP Policy Guidelines and be prepared to discuss at the January 20 HPC meeting if the program should be expanded to included local landmarks or National Register historic districts. Any change in the HDPIP Policy Guidelines recommended by the Historic Preservation Commission will be forwarded to the City Council for approval. Attachments City of Dubuque, Iowa Historic District Public Improvement Program Program Guidelines - 2004 The Historic District Public Improvement Program (HDPIP) provides 3:1 matching grants on a competitive basis to neighborhood associations and neighborhood groups for streetscape improvements in the City's five historic districts. The program is intended to enhance the public places and streetscapes in the historic districts to retain and augment their sense of place. Program Limits The program is limited to the boundaries of the Cathedral, Jackson Park, Langworthy, Old Main, and West 11th Street Historic Districts (see map). Funding will be distributed among the five historic districts based on the projects selected and completed. The maximum allocation of program funds per year per historic district is $100,000. The minimum grant amount is $3,000. The maximum grant amount is $100,000. Who can Apply? . Neighborhood Association recognized by the City of Dubuque. . Neighborhood Group (definition: all property owners on both sides of a street) . . Individual property owners are not eligible to apply. Eligible Projects: What is Funded . Purchase and installation of permanent exterior improvements installed in public right-of-way or public places, such as parks, in an historic district. . Architectural and engineering fees associated with the project. . Streetscape amenities consistent with the City's Streetscape and Landscape Guidelines for Historic Districts, including: decorative paving (such as pavers, stamped and/or colored concrete), historic street lights, ornamental benches, decorative railing or fences, tree grates, planters, signs, and landscaping. What is Not Funded . Installation of streetscape elements and amenities on private property. . Costs of work performed prior to signed agreement with the City. Historic District Public Improvement Program Page 2 Priority Priority will be given to projects developed in coordination with the City's public street improvement program, and similar public improvements in historic districts. Coordination with the City's project allows the streetscape amenities to be installed concurrent with the street improvement or other public improvement project. Accommodations can be made for installation of amenities subsequent to the street improvement project through the installation of supportive infrastructure, such as conduit for historic street lights. In general, the priority for allocation of funds through this program will be as follows: 1. Street Reconstructionllmprovement Projects 2. Sidewalk Inspection Program 3. Major Infrastructure Repairs/Maintenance 4. Neighborhood AssociationlNeighborhood Group Proposal 5. Historic Preservation Commission - Neighborhood Pilot Project Evaluation Criteria The Historic Preservation Commission will review the application, and then provide a recommendation to the City Council based on the following criteria: . High visual impact and quality of life improvement for the neighborhood: Does the project encourage people to walk in the neighborhood? Visit the neighborhood? Enjoy the neighborhood? . High community and neighborhood visibility of streetscape improvements. . Amount of private leverage: ratio of public funds to private funds. . Continuity with previous/planned public and/or private improvements. · Percentage of neighborhood/property owner support: minimum 25%, with a higher rating given for greater neighborllood match. . Conformance with the City's adopted Streetscape and Landscape Design Guidelines for the historic districts, and any special urban design plans or guidelines adopted for the project area. . Link with Housing Rehabilitation special programs or with Historic Preservation Homeowner Grant or Revolving Loan Programs. . Previous assistance from the HDPIP (a higher rating will be given to first-time applicants over previous recipients). Public / Private Match The program covers up to 75% of project costs. Neighborhood associations and groups are required to provide a 25% match. For example, if applying for a $75,000 grant, the budget must describe at least $100,000 in eligible costs and at least $25,000 in private match. Historic District Public Improvement Program Page 3 The private match may be obtained from assessments of property owners in the project area; private fundraising; private donations; in-kind services, or private, state or federal grants. The entire 25% private match may be in-kind donations. With the exception of CDBG funds (see description below of CDBG Program), City funds may not be used as matching share. All matching funds must be cash expended or in-kind services donated during the grant period, which begins when the grant agreement is signed by both the applicant and the City of Dubuque. Architectural and engineering fees associated with the project, up to $10,000 or 10% of total project costs, are eligible grant expenses. Assessments for Streetscape Projects For historic streetscape projects involving assessments, such as a street reconstruction project, the neighborhood association or neighborhood group would be responsible for 25% of the cost of any added assessable cost for streetscape enhancements. Property owners will be assessed for a percentage of the costs of improvements using the formulas applied to the City's public street and sidewalk programs. Non-Assessment Streetscape Projects For some components of the City's public street and sidewalk programs, such as an asphalt resurfacing street project, the City typically does not assess the property owners. For these non-assessment projects, the neighborhood association or neighborhood group must provide a private match of 25% of the project costs. CDBG Program: Matching Grants Through the Community Development Block Grant (CDBG) Program, the City provides financial assistance to low and moderate income households. The City offers a Neighborhood Infrastructure Program and Neighborhood Grants to neighborhood associations and neighborhood groups in CDBG target areas, where a majority of households are low and moderate income. These programs compliment the Historic District Public Improvement Program, and are coordinated by the Neighborhood Development Specialist. The Neighborhood Infrastructure Program can be used to pay the special assessments for low and moderate income households within the project area. City Designated Landmarks Dubuque city Han 50 W. 13th Street 09/14/1972 Dubuque County Courthouse 720 Central Ave. 0612311971 Dubuque County Jail 36 E. 8th Street 06127/1972 Four Mounds Estate Historic District 4900 Peru Road 01/24/2002 George W. Rogers Company Shot Commercial SI. and River Front 0512212003 Tower Ham Mathias House 2241 Lincoln Ave. 07119/1976 Julien Monument Confluence of Mississippi River and Catfish 11/21/1988 Creek in Mines of Spain Slale Recreation Area WilHam M. Black (dredge) E. 2nd Street 04112/1982 National Register Historic Districts Cathedral Historic Districl Roughly bounded by a bluffline running W. of Blufl Street W. 7th Locust and Jones Sts. 09/25/1985 Four Mounds Eslale Historic District 4900 Peru Road 01/2412002 Jackson Park Historic Districl Rou9hly bounded by Seventeenth Iowa T enlh and Ninth and Bluff and Montrose Sts. 07/31/1986 Langworthy Historic Districl Langworthy, West Third, Melrose Terrace, between Hill and West 5th, Alpine and Walnut between Solon and West 5th 0811212004 Old Main Historic Districl Main Street between 1st and 4th Sts. 01/12/1983 West 11th Street Historic District boundry description not available 08/1212004