071 of 2012 - Adopting the Historic Preservation Plan 0 12-1
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SALT LAKE CITY ORDINANCE
No. 71 of 2012
(Adopting the Salt Lake City Historic Preservation Plan)
An ordinance adopting the Salt Lake City Historic Preservation Plan.
WHEREAS,the Salt Lake City Planning Commission("planning commission")held
public hearings on May 13,2009,May 27,2009,July 8,2009,and September 23,2009 on an
application initiated by the planning commission and recommended by the Salt Lake City
Historic Landmarks Commission(Petition No.PLNPCM2009-00171)to adopt a proposed Salt
Lake City Historic Preservation Plan;and
WHEREAS,at its September 23,2009 meeting,the planning commission voted in favor
of recommending to the Salt Lake City Council("city council")that the city council adopt the
proposed Salt Lake City Historic Preservation Plan pursuant to said application;and
WHEREAS.after holding a public hearing on this matter,the city council has determined
that adopting this ordinance is in the city's best interests.
NOW,THEREFORE,be it ordained by the City Council of Salt Lake City,Utah:
SECTION 1. Adopting the Salt Lake City Historic Preservation Plan. The Salt Lake
City Historic Preservation Plan is hereby adopted to apply within the city's municipal
boundaries,as identified in the Salt Lake City Historic Preservation Plan attached hereto as
Exhibit"A",
SECTION 2. Effective Date. This ordinance shall become effective on the date of its
first publication.
Passed by the City Council of Salt Lake City,Utah,this 23rd day of October ,
2012.
IAIRPERSOl
ATTES D CO TERSIGN:
TY RECORDER
Transmitted to Mayor on October 30, 2012 .
Mayor's Action: 7 Approved. Vetoed.
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CITY RECORDER crT,,'
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f,44 �;f�,P� �(nt�, s APPROVED AS TO FORM
l,r. -+iFj5aa(�r' s Salt Lake City Attorney's Office
(SEAL) `4 np 'v Date:
AA17:� r� By.
Bill No. 71 of 2012. P I C.Ni .S rot-City Attorney
Published: November 5, 2.012.
HB_ATTY-1/93 17-v2-Ordinance_adopti ng_SLC_H istoric_Preservation_Plan.DOC
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Salt Lake City
Community Preservation Plan
Final Draft October, 2012
A citywide guide to guide community preservation efforts in Salt Lake City
Community Preservation Plan Table of Contents
Introduction I-1
What is Historic Preservation? 1-2
What is Community Character Preservation 1-3
Historic Preservation vs. Community Character Preservation 1-3
History of the Historic Preservation Program in Salt Lake City 1-4
How we Practice Historic Preservation in Salt Lake City 1-7
Community Character Preservation 1-8
Objectives of this Plan 1-10
Planning and Outreach 1-10
Regulations and Incentives 1-11
Historic Resource Inventories and Surveys 1-12
Turning a Vision into Actions 1-14
Foster a Unified City Commitment to Preservation II-1
Vision II-1
City-wide Planning 11-3
Interdepartmental Coordination 11-12
A Shared Understanding of Preservation's Benefits II-27
Develop a Comprehensive Preservation Toolbox III-1
Vision III-1
Historic Resource Surveys 111-3
Designation 111-10
Regulations 111-23
Incentives 111-31
Administer a Convenient and Consistent Historic Preservation Program IV-1
Vision IV-1
Development Review IV-1
Program Administration IV-5
Improve Education and Outreach V-1
Vision V-1
Support a Sustainable City VI-1
Vision VI-1
Energy VI-3
Historic Landscapes VI-8
Transportation VI-13
Economic Development VI-15
Housing VI-20
Implementation Action Plan VII-1
How will this plan be implemented VII-1
Implementation Action Plan VII-3
Appendix
A- Historic Districts and Sites Field Analysis A.1
B- City Plans and Policies for Historic Preservation A-38
C-Existing Funding Sources Programs for Historic Preservation-43
D- Definitions A.49
E-The Planning Process A-52
F-Transit and Historic Preservation; An opportunity for
Partnerships A-54
G-Transfer of Development Rights A-57
H- Best Practice Highlight: Chicago Historic Bungalow
Initiative A-59
I- Conservation Districts A-60
J- Protecting Historic Properties of the Recent Past A-62
Introduction
Salt Lake City is a City of neighborhoods. Neighborhood
development spans from the settlements of the early Mormon
Pioneers in the mid 1800s in the Central Community areas close to
Downtown to the more recent neighborhoods of Westpointe
developed in the 1990s in the Northwest Community. The City's
neighborhoods also include important commercial areas,
such as Downtown, which tells the story of the Mormon's to
the north and the "Gentiles" (non-Mormons) to the south
and all of the small commercial centers located throughout
the City. AlIlk."
Strong neighborhoods are essential to the health and well
being of Salt Lake City. The entire City is divided into r
neighborhoods. Each neighborhood has unique qualities �`f •UA
and attributes that, when combined with others, creates a
beautiful and dynamic city.
Today, as the Salt Lake Valleycontinues togrow, the City's
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older neighborhoods face increasing pressures for
redevelopment and infill, presenting both challenges and
opportunities. Many stakeholders have questioned the role
historic preservation should play in a modern, growing city,
which faces challenges like an expanding transit system that
runs through older neighborhoods, and a new emphasis on
green development and sustainability. The State Capitol Building is a major
landmark in the city and is listed in the
The Community Preservation Plan identifies a two track National Register of Historic Places.
direction for preservation in the City: Historic Preservation The successful preservation of the city's
historic resources will require the joint
and Community Character Preservation. Although Historic and ongoing commitment of the City,
Preservation tools can lead to both the preservation of the State Historic Preservation Office,
important historic resources and preservation of the Utah Heritage Foundation, and other
character of an area, in some neighborhoods, the major goal preservation partners.
is not to preserve individual structures and sites but to
stabilize the area. In the past, the historic preservation tools
were the only strong tools the City had for preserving
neighborhood character, however new tools have been identified,
which better fit the needs and are more appropriate in certain
circumstances to meet the goals of the community.
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Community Preservation Plan Final Draft 10.2012
This Community Preservation Plan represents the City's first effort
to think comprehensively about the role historic preservation and
community character preservation policies play throughout all of
Salt Lake City and what other tools may be available to preserve
and stabilize neighborhood character other than historic
preservation. This plan is intended to be used to inform an array
of future decisions, from amendments to master plans, to budget
priorities, to site-specific development decisions. This plan will be
the key strategic document that will guide preservation activity
into the future and determine the appropriate role for historic
preservation and community character preservation policies in Salt
Lake City.
This plan aims to provide vision, policies and actions that will help
preserve those areas of the City that are uniquely historic and tell
the story of the City's historic past through spaces and structures,
while also providing tools to stabilize neighborhoods and areas
within the City that are connected by community character more
than a specific historic uniqueness.
The purpose of the Salt Lake City Community Preservation Plan is
to address the important goals of historic preservation and
community character preservation to ensure the continued
preservation of the City's neighborhoods.
What is Historic Preservation?
Historic Preservation is a process of protecting local history
through identification of unique places that tell "our" story. One
can read this history by observing the historic fabric made up of
specific cultural and archaeological resources, character defining
features expressed in architecture and architectural details,
landscape and significant spaces. This process may include the
survey and evaluation of historical, architectural, archaeological
and cultural resources; development of appropriate measures to
protect these resources; identification of public and private
funding sources; design for the restoration, rehabilitation and /or
adaptive re-use of historic resources and the review of ongoing
maintenance.
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Community Preservation Plan Final Draft 10.2012
What is Community Character Preservation?
Community Character Preservation is the preservation of
important area development characteristics, as identified by the
property owners, in order to maintain the distinctive character of
an area and to ensure ongoing stability of the area.
Historic Preservation vs. Community Character Preservation
The goal of Historic Preservation is to preserve those areas that
uniquely tell the history of the development of Salt Lake City, the
region, state or nation and on the basis of promoting the public
interest, allow for regulation of exterior alterations in an effort to
preserve the historic sites and structures for current and future
generations. Historic resources are tangible evidence of the past,
helping us to know where we have come from and who we are
today. When historic resources are lost or allowed to deteriorate,
a part of our history disappears. Historic preservation provides
opportunities for residents and visitors to experience and learn
about the importance of our past, to live and work in surroundings
that provide a sense of place anchored by collections of older
buildings, residential neighborhoods, commercial areas and
landscapes. This sense of place drives community pride,
encourages neighborhood and commercial reinvestment and
results in a sustainable community with cultural vitality.
The goal of community character preservation, on the other hand,
is to provide some assurance that the important physical
characteristics of a neighborhood, as identified by the current
property owners, will be preserved which in turn can help stabilize
the neighborhood. The goal of preserving community character is
not necessarily to the degree of protecting the overall public
interest as it is with local historic preservation and therefore, the
regulations are less stringent. The purpose is not to preserve the
area based on history, but rather based on current property owner
desire and therefore, assessing support of the regulation, by those
whose properties would be regulated is appropriate prior to the
placement of the regulation.
The strategies for historic preservation focus on preserving historic
architecture and site elements while those for community
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character preservation focus is on conserving the overall character
of an area.
History of the Historic Preservation Program in Salt Lake City
In 1953, the Utah State Legislature passed the Historic District Act
acknowledging the importance of the state's historic heritage. The
Act declares that the counties, cities, and towns of the state
possess the power to identify, preserve, protect, and enhance
historic and prehistoric areas and sites lying within their
jurisdictions (Section 11-18-1, Utah Code Annotated, 1953, as
amended). In addition, these governmental entities are
empowered to expend public funds for the purpose of
identifying, preserving, protecting, and enhancing historic
areas and sites.
Salt Lake City adopted a historic overlay ordinance in 1976 in
response to grass-roots concerns about the loss of the City's
historic buildings and heritage. These concerns were
triggered by a number of demolitions of historic structures •' '
that occurred in the late 1950s-1960s, including the Salt
Lake Theater and several mansions along South Temple
Street, although some neighborhoods such as the Avenues
and Capitol Hill had already begun to enjoy quiet
reinvestment. The ordinance established the Historic I.
Landmark Committee (which became a Commission in
1995), and provided procedures for designating resources N.
and reviewing development applications that affect historic • i)�
properties. Three years later, in 1979, the first city-wide I _ �'
preservation guidelines were adopted. The American
Institute of Architects interdisciplinary Regional\Urban Design
Assistance Team (R/UDAT) report conducted for the City in 1988
led to significant revisions to the zoning ordinance in 1995. Most
notably, the revised ordinance contained stricter anti-demolition
provisions and established the Historic Landmark Commission as
an independent commission (It had previously been a committee
of the Planning Commission). Four years later, the City Council
adopted design guidelines—Design Guidelines for Residential
Historic Districts in Salt Lake City. The revised ordinance and
design guidelines both helped to strengthen the City's historic
preservation efforts.
Though a relatively young city, Salt Lake City has been identifying
and protecting its historic resources much longer than most
communities in the West. The City has established and continually
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Community Preservation Plan Final Draft 10.2012
improves an array of tools and programs aimed at protecting the
buildings and landscapes from its past. These include multiple
surveys of historic resources in Salt Lake City's neighborhoods, the
establishment of seven local historic districts and dozens of
Landmark Sites, adopted design guidelines that direct the
character of building projects in the historic districts, and the
historic overlay ordinance itself.
The residents and officials of Salt Lake City also have cultivated a
strong network of public and private partners focused on
preserving reminders of the City's heritage, including the
community councils and the public, the Utah Heritage Foundation,
and the State Historic Preservation Office, plus an established base
of City support for preservation located in the Planning Division.
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Community Preservation Plan Final Draft 10.2012
PRESERVATION PROGRAM HIGHLIGHTS 1976 - 2009
PROPERTIES CURRENTLY PROTECTED BY THE HISTORIC PRESERVATION PROGRAM
Since the adoption of the preservation ordinance in 1976, the city has established six local historic
districts and designated over 160 sites as local Landmark Sites. The size of the preservation program
and number of designated properties means that city planning staff review a high volume of
applications for certificate of appropriateness (COA) applications each year. Over the past five years,
staff has reviewed an average of 240 COAs each year, totaling over 1,200 applications.
A NATIONALLY RECOGNIZED PRESERVATION PROGRAM litESEp
Salt Lake has a nationally recognized preservation program. In Q
2007,the American Planning Association named South Temple one
of America's "10 Great Streets" and the White House recognized
Salt Lake City as a "Preserve America" community in 2006. AMERICA
Explore and Enjoy Our Heritage
A SAMPLING OF SIGNATURE PROJECTS ; : '•;�
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1016414
City and County Building (1891)
Significance: Richardsonian Romanesque architecture. ,
Intricately linked to numerous events in state history—for more 14`
information visit:
•
www.slcgov.com/info/ccbuilding/ccbuilding.htm#making_arch_ 1.1 I
land
Restored: 1986-1989. Over$31 million in total construction
costs and furnishings to restore the building including exterior
cleaning, seismic retrofitting, and restoration work to the tiling,
marble, painting and other interior details.
Trolley Square (1908) "
Significance: 1900s electric trolley garage. .,
aissivig
Restored: Early 1970s. Remains a nationally noted example of ..
adaptive reuse of historic structures. Trolley Square is in the `.
midst of another renovation aimed at enhancing the l
relationship of the historic structures to the surrounding
Central City Historic District through expanded retail space and
parking.
First Security Bank(1955)
Significance: Utah's first modern building, one of the finest
examples of internationally-influenced architecture in the state.
Restored: 2004. Restoration generated $2.3 million in historic '` _r. .1.
rehabilitation credits and $1.23 million in new market tax _
credits. Received a preservation award from Utah Heritage •,yi„�
Foundation and the National Preservation Honor Award from
the National Trust for Historic Preservation in 2006.
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Community Preservation Plan Final Draft 10.2012
How we Practice Historic Preservation in Salt Lake City.
In November, 2011, the Salt Lake City Council adopted a
Preservation Philosophy to guide the City's Preservation Program.
The Preservation Philosophy is as follows:
Salt Lake City takes pride in its history. The City
Council and the Mayor consider historic
preservation a priority and commit to improving
the array of tools, programs and incentives
available to protect the best examples of the
City's architecture, commercial and residential
development, cultural landscapes and
archeology to preserve our history for future
generations. Historic preservation policies will
be considered when developing an appropriate
course of action when multiple City policies are
involved.
The following are adopted policy directives
identified for Historic Preservation in Salt Lake
City
1. Achieve a successful city-wide historic
preservation program by clearly conveying
historic preservation objectives,
opportunities and benefits while
consistently interpreting and applying the
City's adopted standards and efficiently
administering the process.
2. Support the designation of new National
Register historic districts which provide
property owners a significant financial
incentive for appropriate re-investment
3. Ensure the boundaries of new local historic
districts focus on protecting the best
examples of an element of the City's history,
development patterns and architecture.
Local historic districts should have logical
boundaries based on subdivision plats,
physical and /or cultural features and
significant character defining features where
possible.
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Community Preservation Plan Final Draft 10.2012
4. The Historic Preservation Overlay District
standards are to be used as the basis for
decision making when considering
applications for Certificates of
Appropriateness. Apply standards in a
reasonable manner, taking into
consideration economic and technical
feasibility.
5. Adopted design guidelines are intended to
help decision makers interpret the Historic
Preservation Overlay District standards and
to provide the public with design advice.
6. Respect that change is part of history and
that appropriate additions and alterations
must be considered as part of a natural
evolution of historic properties and districts.
Allow greater flexibility on secondary
facades where alterations are less likely to
negatively affect the significant character-
defining features of the site or historic
district.
7. Allow greater flexibility when considering
alterations to non-contributing buildings
8. Develop and maintain a public outreach
program and continue providing training for
the Historic Landmark Commission and
Planning Staff to ensure that the City's
Historic Preservation Program remains up-
to-date on historic preservation practice and
philosophy to meet the goals of Salt Lake
City.
Community Character Preservation
The need to preserve the unique character of the City's urban
neighborhoods, while allowing for modifications to existing homes
to meet today's current living standards for space and
convenience are important City policies. These policies are aimed
at ensuring the City provides housing choices that continue to
attract residents to live in the Capital City.
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Salt Lake City has been exploring ways to preserve community
character for many years. In addition to various down zoning
projects since the 1980s, the City has analyzed various ways to
implement zoning tools that would help preserve community
character.
The first zoning tool aimed at preserving community character
adopted by the City Council, was the Yalecrest Compatible Infill
(YCI) Overlay Zone in June 2005. The purpose of the tool was to
promote a desirable residential neighborhood by maintaining
aesthetically pleasing environments, safety, privacy and
neighborhood character. This tool established standards for new
construction, additions and alterations of principal and accessory
residential structures to encourage compatibility between new
construction, additions or alterations and the existing character
and scale of the surrounding neighborhood.
After the YCI was adopted, other neighborhoods voiced support of
similar zoning tools to help provide preservation of neighborhood
character. Through a City-wide change to all of the Single-Family
and Two Family zoning districts, the City Council adopted the
Compatible Residential Infill Development zoning regulations in
December 2005 and adopted more targeted regulations in the
Capitol Hill and Avenues Neighborhoods in 2006, which were also
already within local historic districts.
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Community Preservation Plan Final Draft 10.2012
OBJECTIVES OF THIS PLAN
In 2004, the City completed a review of the historic preservation
program and decided to prepare a preservation plan to set a
unified city-wide strategy for preservation activity. (See Appendix
E) The Community Preservation Plan, in addition to providing a
vision and policy direction charting the course for the future, is
also intended to address a variety of issues raised by stakeholders
during interviews conducted at the start of this project. These
issues are summarized below in the following three general topic
areas:
• Planning and Outreach;
• Regulations and Incentives; and
• Historic Resource Inventories and Surveys;
PLANNING AND OUTREACH
ESTABLISH LONG-TERM VISION AND STRATEGY FOR
PRESERVATION PLANNING
Many stakeholders noted the lack of formally established goals
and priorities for historic preservation in Salt Lake City, which they
felt has resulted in a preservation program that, to some
observers, focuses heavily on historic preservation of already-
designated properties and districts and does not adequately
articulate a "big picture" vision for preservation in Salt Lake City.
This plan addresses a two pronged system to preserve the City's
rich traditions. One branch relating to historic preservation and
the other branch relating to community character preservation. In
addition, the plan identifies a variety of ways the preservation
program is implemented in Salt Lake City.
COORDINATION BETWEEN PRESERVATION AND OTHER
CITY PLANS, POLICIES, AND REGULATIONS
The City's planning structure, which emphasizes master planning
at the subarea level, has resulted in individual plans that are
strongly tailored to neighborhood interests. This may be helpful
in the goal of community character preservation. A concern,
however, is that the City's patchwork quilt of master plans does
not necessarily allow for easy coordination between competing
City policy goals, or for the development of uniform policies
across all areas of the City. To some observers, there have been
missed opportunities for collaboration between historic
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preservation and other City interests, and sometimes historic
preservation interests have been pitted unnecessarily against other
worthwhile City goals like economic development and affordable
housing. In addition, historic preservation is implemented in
various ways throughout the City, and not just through the design
review process of the H Historic Preservation Overlay Zoning
District overseen by the Historic Landmark Commission.
This Community Preservation Plan identifies these planning and
policy overlaps and establishes a strategy for resolving
inconsistencies. It also sets priorities for the historic preservation
program so that they can be weighed and balanced against other
goals and objectives of the City (e.g., increased transit ridership,
affordable housing, and redevelopment). The city-wide plan will
ensure that preservation goals can be consistently applied
throughout the City, resulting in better protection and a higher
level of consistency and predictability, as well as identifying the
most appropriate approach for preservation goals to be achieved
for various types of City projects and by various divisions of the
City.
EXPAND EDUCATION AND OUTREACH
The City currently conducts only limited education and outreach as
part of its historic preservation program. This plan identifies
additional education and outreach programs that should be
offered by the City over time to improve understanding of the
importance of historic preservation.
REGULATIONS AND INCENTIVES
ADOPT A WIDER RANGE OF PRESERVATION TOOLS
The City's historic preservation regulations consist primarily of the
historic overlay zoning regulations and the residential district
design guidelines, which apply only to locally designated
Landmark Sites and locally designated historic districts. While
these are working generally well, there is a need for a broader
range of tools to complement the existing regulations and
guidelines. This plan proposes that the City expand the tools
available for preserving history and character in the City. Specific
tools suggested are stricter demolition regulations, more types of
guidelines and more incentives in the form of regulatory, financial
and procedural. In addition, the plan identifies the need for
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additional types of regulatory tools to preserve and stabilize
neighborhood character.
HISTORIC RESOURCE INVENTORIES AND
SURVEYS
DEVELOP A STRATEGY FOR FUTURE HISTORIC RESOURCE
SURVEYS
Historic resource surveys are a vital tool for informing the
community about the types of historic properties that exist
and the extent to which such properties maintain their
historic integrity. City officials have acknowledged that most ' •
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survey work has occurred sporadically and been completed
in a reactionary, rather than proactive and strategic, manner.
In response to the 2004 City Council-led review of the I • i
historic preservation program, the City has undertaken new
re-surveys to update the information for existing districts. im.8;
This community preservation plan builds on this work by I`
providing additional direction about survey and resurvey A resurvey of the Avenues was
priorities for the future. completed in 2008.
IMPROVE THE UNDERSTANDING OF SALT LAKE
CITY'S HISTORIC CONTEXT
The significance of a historic resource today is influenced by the
period in which it was established and the role the resource has
played in the community over time. Understanding the context in
which a particular neighborhood, building, structure, or object was
established helps to define the significance of that resource today.
In Salt Lake City, past surveys and historic nomination documents
have only provided an introductory level of information on the
historic contexts of the resources being preserved.
BROADEN THE FOCUS OF PRESERVATION
Preservation in Salt Lake City traditionally has focused on historic
districts for the preservation of areas developed prior to World
War II as well as various architecturally significant individual
Landmark Sites. This plan calls for the City to broaden this focus
to include thematically related historic resources, preservation of
important resources from the recent past and the preservation of
neighborhood character.
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In addition, the implementation of historic preservation policies in
the City should be expanded to include various methods of
implementation and not just through the design review process of
locally designated historic resources.
In addition to the Introduction Chapter, the plan includes five
chapters that identify the vision for the Community Preservation
Plan as well as one implementation chapter and appendices. The
appendices provide various types of information relating to
historic preservation and community character preservation
including potential areas to survey and best professional practice
information including how other cities handle various types of
preservation topics.
While the City has administered a historic preservation program
since 1976, this Community Preservation Plan presents the first
opportunity to formally define a vision for the program and set
long-term, city-wide goals and objectives to guide specific actions
and decisions.
The vision was developed through an ongoing, collaborative
process in which the Historic Landmark Commission, the Citizen
Advisory Committee for this plan, and City residents all discussed
the role they want preservation to play in the future life of the City.
The vision provides strategic guidance regarding how the City
should maintain, strengthen, and expand its preservation activities • •
in a manner that is consistent with other City objectives, in order ' �; •
to identify and maximize mutual benefits. FIt♦' ✓! , ';' fat:
•
This vision is expressed through five themes which make up the f" -
chapters of the plan and are described within those chapters: " Y
1. Foster a Unified City Commitment to Historic Preservation.
2. Develop a Comprehensive Preservation Toolbox. The City and County Building
3. Administer a Convenient and Consistent Preservation
Program.
4. Improve Education and Outreach about the importance of
historic preservation.
5. Support a Sustainable City through historic preservation
and preservation of neighborhood character
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Community Preservation Plan Final Draft 10.2012
TURNING A VISION INTO ACTIONS
The five themes of the vision as identified in the following
chapters serve as the foundation upon which this plan is built.
Each theme contains policies, and actions that spell out in greater
detail how the City will achieve the theme and ultimately the
broader vision for preservation in the City.
ision Themes Policies Actions
VISION THEMES
The vision is a general statement that describes the desired future
for preservation in the City. In this plan, the vision is divided into
five themes that collectively convey the vision for the preservation
program by describing how different aspects of preservation will
function in the future.
POLICIES
The policies provide guidance for daily decisions to support the
implementation of the plan and its vision. It is ultimately the
decision-makers' responsibility to weigh and balance seemingly
divergent aims of the City to set an appropriate direction.
Actions
Actions are the specific steps that the City and others should take
to implement the vision and policies of the Community
Preservation Plan.
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Foster a Unified City
Commitment to Preservation
VISION
Salt Lake City builds upon its past historic preservation
achievements by continuing to make historic preservation an
important City priority. Historic preservation is recognized as a
key component of the future growth, economy, character, and
appeal of the City and its neighborhoods. Historic preservation
goals are consistent and compatible with larger City land use and
economic development goals. Historic preservation is integrated
into the City's governance culture through a variety of ways
including various funding options, regulations and stewardship by
various Departments within the City. All City departments,
agencies, boards, and commissions collaborate with historic
preservation program staff, communicating their plans and
objectives with the aim of seeking potential mutual benefits from
each project and investment. City officials lead the charge,
fostering a team atmosphere in which each department actively
supports preservation and all staff, administrators, and board
members and commissioners receive the necessary training.
Goals, plans, and policies of the City are aligned, eliminating
potential conflicts and forging a unified direction. Collaboration
extends to community organizations, businesses, residents,
property owners and interest groups, with which the historic
preservation program will enjoy a high degree of trust and
communication.
OVERVIEW
Preservation issues arise every day in the actions and decisions of
a variety of Salt Lake City officials and agencies. Land Use plans for
older neighborhoods include a wide variety of official activities
involving preservation-realted issues in some way, including street
and sidewalk improvements in historic districts, redevelopment
projects involving up-and-coming commercial centers in historic
districts, planning and maintenance of historic parks, transit
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planning along historic commercial corridors, and the renovation
and mainteinance of city-owned historic structures. Yet, the plans,
policies, and regulations that direct official City activity in each of
these areas often are silent regarding preservation, leading to
scores of instances every year where preservation interests must
be balanced with other important City goals without the benefit of
careful advanced planning. All too often, inconsistencies within
City plans and policies set up unnecessary conflicts between
preservation and other worthwhile City objectives. To some
observers, it is unclear how preservation of the past can assist in
building a stronger future or whether the elimination of an historic
resource might be appropriate in order to allow for other
important city policies to move forward.
A unified and supportive City commitment to historic preservation
is necessary to successfully achieve the objectives of this plan now
and in the future. Implementation of this plan will be achieved
through many types of changes, incuding planning, regulations,
funding decisions, and day-to-day policy and other decisions
across the whole City government. A city-wide preservation ethic
can be achieved by conveying a clear and consistent message of
historic preservation's objectives, opportunities, and benefits to all
City officials, departments and agencies. A shared understanding
and treatment of preservation across City departments and
agencies will be needed to pursue the vision to Foster a Unified
City Committement to Preservation.
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CITY-WIDE PLANNING
OVERVIEW
Although the most visible part of the City's historic preservation
program is the day-to-day preservation activity occurring within
the local historic districts, historic preservation implementation
occurs in various ways city-wide. The recognition of this city-wide
scope was a fundamental motivator behind the City's decision to
create a city-wide Community Preservation Plan. An important
function of this plan is to illustrate the best means for city-wide
coordination between the actions and planning activities of the
City's various departments, agencies, and partners as they relate to
historic preservation.
The fact that land use planning in Salt Lake City is performed by
numerous entities and for several geographies (e.g., by
neighborhood, or by functional areas such as transit corridors) has
resulted in some plans and policies that are inconsistent with and
unsupportive of preservation. For example, existing zoning
designations in some cases allow theoretical maximum densities
for an historic site that could only be achieved by replacing the
designated historic resource. This is somewhat attributable to the
fact that, prior to this plan, the City did not have a clear statement
of the goals and objectives for preservation with which other plans
and policies could align. With a preservation plan now in place,
the City will be able to pursue plan updates to identify and rectify
problems, such as inappropriate future land use designations for
contributing historic structures. It will also be necessary to simply
update plans where overlaps with historic preservation exist to
integrate the ideas of this plan.
COMMUNITY MASTER PLANS
Community Master Plans provide great opportunity to ensure that
future Salt Lake planning addresses historic preservation-related
issues on a consistent basis. Master planning in the City has been
conducted in each of eight planning communities, rather than
city-wide. A city-wide vision and consolidated policy document
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Community Preservation Plan Final Draft 10.2012
will help identify and organize city-wide policies including
preservation policies from this document. It will also identify how
the various policies work together to promote the future overall
vision for Salt Lake City.
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Community Preservation Plan Final Draft 10.2012
FIGURE 2: LOCATION OF HISTORIC DISTRICTS BY CITY PLANNING
C kPITOL
IIILL •
•
VI1KItlN\1st AVENUES
• •
• •
• • M
le • • • •
• 7 t • • •
•
• •
•• �• ST•
r •� • •f• 11� BENEACH
• •• • • .•r 1
• •
•
• •• •
il
tikiT CENTRAL•
I \hE d�. 1
the 1 1
•
I. . •
.
sl(.ARIIOI SE
• Histonc Landmark sites • •
ODowntown Planning Boundary
OPlanning Community Boundaries
Haber%Oatnas on Cary and National Registers
Historic Datricts on the National Register Only
RDA Districts e,
Transit Oriented Development District C•J
COMMUNITIES
Source:Salt Lake City Planning Division GIS, 2009
There are at least two key areas in each master plan in which the
City has an opportunity to define more precisely its overall historic
preservation objectives: (1) the setting of goals and priorities for
the planning community, which includes a section on historic
preservation, and (2) the future land use map.
• Preservation Goals: Prior to this planning effort, historic
preservation goals were defined within individual master
plans for the eight planning communities. There is a high
degree of variability in how each of these plans has
addressed historic resources within its boundaries, and
historic preservation issues generally. (See Appendix B)
While this plan now establishes a city-wide vision and
goals for preservation, how these are integrated and
11-5
Community Preservation Plan Final Draft 10.2012
interpreted through the individual master plans remains an
extremely important function for the successful
implementation of this plan.
• Future Land Use Maps:The master plans each include a
future land use map, which is intended to direct changes in
use and intensity over time. These maps therefore have a
huge influence on the City's ability to preserve historic
structures and sites. These maps are a blueprint to
property owners and development entities as to what
development potential to expect for their property in the
future. Future land use maps that accurately reflect and
convey the presence of historic resources in the land use
patterns they establish are critical to the long-term viability
of historic resources.
In the future, the plans should identify what actions will be
taken to help implement city-wide historic preservation
policies and what processes will be followed to find solutions
when adopted preservation policies conflict with other
important City policies.
Other adopted plans should identify policies relating to
historic preservation goals such as adaptive reuse,
rehabilitation of existing housing, redevelopment tools for
preservation and appropriate zoning to balance preservation
goals with other goals such as Transit Oriented Development
etc.
In addition, federal regulations require that projects that use
federal funding must comply with Section 106 standards of the
National Historic Preservation Act if the property is listed or
eligible to be listed in the National Register of Historic Places.
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Community Preservation Plan Final Draft 10.2012
CITY-WIDE ELEMENT PLANS
Part of the overall General Plan for the City includes various stand
alone element plans. These include the City's Community Housing
Plan, Transportation Master Plan, Parks Action and Recovery Plan,
Open Space Plan and possible future plans that may relate to
Economic Development and Sustainability. Each of these plans
provides policy direction on the various aspects of these important
elements to the overall City general planning policies. Although
the Community Housing Plan includes some specific policies that
relate to historic preservation and community character
preservation, the other plans are less specific and should be
updated to include direction on how they interface with historic
preservation and community character preservation policies.
The City's Community Housing Plan includes the following
important policies relating to historic preservation and community
character preservation.
• Respect the character and charm of predominantly
residential districts, including those with historic character
and qualities, while also providing opportunities for the
provision of local goods and services easily accessed by
neighborhoods.
• Maintaining the fabric of the neighborhood and
discouraging demolitions is important. Demolition should
be discouraged where there is no authorized re-use plan.
• Require architectural designs that are contextually
compatible with the surrounding structures and overall
fabric of the neighborhood. Especially preserve and
incorporate open space, interface well with public spaces
and incorporate energy efficient technologies and design.
• Ensure better compatibility with existing neighborhoods
for new infill development.
• Provide historic preservation education to developers and
property owners, including information on technical and
financial assistance and incentives.
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Community Preservation Plan Final Draft 10.2012
• Housing stock preservation and rehabilitation is important,
therefore the City should support the reinvestment of
existing urban and inner suburban areas.
• Adequately fund programs that assist home and apartment
owners in rehabilitating and maintaining housing units.
• Develop programs to enhance and preserve the City's
cultural history and character as expressed in the built
environment.
• The City should preserve valued historic structures
designated as significant to the cultural or architectural
heritage of the City based on an up-to-date historic
resource survey.
o Complete a city-wide historic resource survey
o Reevaluate the infill ordinances and revise them
accordingly.
The City's Parks Plan (1988) includes the following important
policies relating to historic preservation.
• Protect significant historical or prominent open space
and/or natural amenities (Liberty Park improvements and
completion of the Jordan River Parkway are listed as
implementation priorities).
• Develop standards for maintenance for parks and open
lands, including master plans for Washington Square and
Parley's Historic Nature Park.
REDEVELOPMENT PLANS
The mission of the Redevelopment Agency is to improve blighted
areas of the City, encourage economic development, encourage
the development of housing for low and moderate income
11-8
Community Preservation Plan Final Draft 10.2012
households and encourage compliance with and implementation
of the City's planning policies. This mission is accomplished
through designating specific "project areas" for redevelopment
strategies. Prior to the designation of these project areas,
redevelopment plans are created which mirror the various
adopted planning policies for the area, including community land
use plans and the various applicable element plans (such as
housing, transportation, etc. ). As a new element plan, the
Community Preservation Plan is included within the planning
policies that the Redevelopment Agency implements to meet its
mission.
CAPITAL IMPROVEMENT PLAN
Salt Lake City's Capital Improvement Plan (CIP) is an orderly plan
for meeting the community's needs for physical infrastructure
facilities such as streets, parks and public buildings. The CIP is a
comprehensive schedule of capital improvements needed within
the City and establishes a program to accomplish those needs
within the City's ability to pay.
Comprehensive capital improvement programming enables a city
to coordinate all proposed projects with each other and with other
long-term community plans with the assurance that projects will
be undertaken in the order of their need. An effective CIP requires
annual review and monitoring of the community by the City to
avoid out-dated emphasis and misdirection of effort. Projects that
are funded through the CIP funds have to be listed on the 10-year
plan. As projects are identified for funding, consideration should
include how the project may affect an historic resource. This not
only includes funding for things like City owned historic structures
and parks, but for projects like street reconstruction which may
uncover historic artifacts or be located within the City's national
and local historic districts.
CITY-WIDE VISION PLANS
The City has two City-wide Vision plans: The Salt Lake City
Strategic Plan (1993) and the Futures Commission Report from
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Community Preservation Plan Final Draft 10.2012
1998. Both documents identify important direction for
implementing a progressive and livable City and include a strong
emphasis on the importance of historic preservation to implement
the vision. The Strategic Plan includes a vision that people will
recognize Salt Lake City for its success in preserving and
adaptively using its significant historic resources and that the City
will maintain a character and charm appropriate to its pioneer
heritage. The Strategic Plan also includes a value of Revitalizing
Our Neighborhoods by promoting neighborhood identity and
preserving their character while offering attractive housing
opportunities for families. The Strategic Plan also includes an
objective that Salt Lake City will be recognized for its efforts to
restore and adaptively reuse its historic resources.
Several of the goals of the Strategic Plan have been realized
including the restoration and successful uses of the Forest Dale
Golf Course Clubhouse, the Chase Home and Chase Mill in Liberty
Park and the Memorial House in Memory Grove. Goals of the
Strategic Plan and Futures Report that relate to historic
preservation and community character preservation including the
following:
• Enforce preservation strategies for buildings and
neighborhoods.
• Rehabilitate historic buildings for cultural uses wherever
possible.
• Our historical heritage, including historic buildings and
neighborhoods, is recognized as a vital component of an
exciting, livable city. Preserve historic structures, streets
and other landmarks in all new development strategies.
• Inventory historic structures, streets and other landmarks.
• Prioritize historic structures that, due their uniqueness, it
would be in the community's interest to reuse for public
purposes.
• Assist property owners with solving the challenges of
adaptive reuse.
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Community Preservation Plan Final Draft 10.2012
• Develop programs to enhance and preserve the City's
cultural history and character as expressed in the built
environment.
• Provide financial incentive and technical support for the
preservation of historically significant commercial and
residential properties.
• Identify endangered historic properties to acquire and
resell with facade easements.
POLICIES AND ACTIONS RELATING TO CITY-
WIDE PLANNING
Policy 2.1.a: Ensure the long-term viability of existing
local historic districts.
The City is committed to safeguarding its local historic districts to
ensure these vibrant neighborhoods remain an asset to the City
for current and future generations.
Policy 2.1b: Ensure consistency between the Community
Preservation Plan and all other adopted City plans.
Policy 2.1c: The various city-wide planning policy
documents should include policies to address historic
preservation and community character preservation as
an important City endeavor.
Action 1: Update Community Master Plans, Element plans and
other adopted policy documents such as the Salt Lake
Community Housing Plan, Transportation Plan, Parks Plan,
II-11
Community Preservation Plan Final Draft 10.2012
Redevelopment plans and Capital Improvement Plan to ensure
consistency of policies between the various adopted plans and
the policies and objectives in the Community Preservation
Plan.
First priority should be given to updating those plans that have
already been identified as having elements that conflict with the
Community Preservation Plan. Plan updates should identify and
address inconsistencies in both the future land use map and also the
text which affect historic preservation goals.
Action 2: Develop a Preservation Issues List for Community
Master Plans
Establish a list of preservation-related issues that all Community
Master Plans should address, if applicable to their area, to provide
guidance and consistency as the plans are updated. This list should
not only address existing and proposed historic resources, but also
how such resources relate to the surrounding physical context, such
as nearby landscapes, parks, commercial areas, and transit lines and
station areas.
INTERDEPARTMENTAL COORDINATION
OVERVIEW
There are numerous overlaps between preservation activities and
the actions and interests of other City departments and agencies.
These exist most notably between preservation and Economic
Development, Housing and Neighborhood Development (HAND),
Public Services, the Salt Lake City Redevelopment Agency (RDA),
and the planning and implementation activities for light rail transit
service. In some cases these overlaps are confined to a specific
geography or project, while in others the overlaps are both
dispersed and perpetual.
Various City department and agencies help to implement the
City's comprehensive preservation program. This includes past
funding for Utah Heritage Foundation rehabilitation programs
with City CDBG monies, housing rehabilitation programs,
expending money for the maintenance and adaptive reuse of city-
11-12
Community Preservation Plan Final Draft 10.2012
owned Landmarks and historic parks, redevelopment strategies to
renovate historic structures in redevelopment target areas and
affording low-interest loans to renovate historic storefront on
Main Street. However, in some instances, especially relating to
various City project activities in local historic districts, including
redevelopment and housing programs, the policy objectives of
preservation and other City-policy can conflict.
In most instances where conflict occurs, the problem is the level of
coordination which has not always been as strong as it could be.
Sometimes, a lack of coordination has resulted in project delays,
loss of good will, and negative public sentiment. The City has
much to gain in aligning its policies and actions to express a
unified mission to its residents and avoid unnecessary financial
costs. The sections below describe the degree of overlap with
each and highlight some of the potential benefits of collaboration.
PLANNING DIVISION
The Planning Division is charged with overseeing the implementation
of the H Historic Preservation Overlay Zone. As such, it is staff to the
Historic Landmark Commission which is the official City decision
making body charged with reviewing and deciding upon all applications
for Certificates of Appropriateness that are not delegated to Staff for
decision. The City's efforts to implement historic preservation goals
through private property regulation, is mainly achieved through this
program.
The Planning Division also is charged as the contact with the State for
the Certified Local Government program for securing grants for various
historic preservation activities, educating the public and advising other
City Staff relating to the importance of historic preservation.
The Planning Division also oversees the development and adoption of
regulatory tools for preserving and stabilizing neighborhood character
through the use of zoning regulations and design guidelines as well as
creating master plans that address historic preservation, neighborhood
character preservation and revitalization policies.
The Planning Division is the main source of expertise in the City in
terms of Historic Preservation and Community Character Conservation.
11-13
Community Preservation Plan Final Draft 10.2012
The Planning Division should be consulted by other departments,
divisions and the Redevelopment Agency on these matters.
ECONOMIC DEVELOPMENT
Economic development and preservation are more often than not
mutually supportive interests. Economic development in Salt Lake City
can be supported by preservation through additional housing and
commercial activity in historic structures,the integration of
neighborhood commercial uses in historic neighborhoods, offering a
downtown that highlights the past as well as the future to create a
unique destination, and through increased tourism to the City. This
overlap is most pronounced Downtown. Rich in historic resources --
including the local historic district Exchange Place, numerous Landmark
Sites (and many not yet designated), and various structures listed in the
National Register as well as historic landscapes --the City's Downtown is
a wonderful opportunity to highlight the City's rich history as the City
builds its own unique downtown fabric. The City's efforts in the
Downtown relating to historic preservation have included the RDA's low
interest loans for renovation of historic facades as well as zoning that
promotes adaptive reuse of many of the warehouse structures in the
Warehouse National Historic District to residential, office and retail uses.
11-14
Community Preservation Plan Final Draft 10.2012
FIGURE 3: LOCATION OF DESIGNATED HISTORIC DISTRICTS IN THE
CENTRAL BUSINESS DISTRICT
r — •- i i 1 3 4.
. •
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IF,
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• Nebr.UnOrvJh fides ' �- 1 1 .j t M'.e ' "
O General Dawbm..n Caonnrrtial Area I - i . .�
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IY.IuE Districts City e Na Registers"". .a
ate ^ . ,. `,
N.lor0 Disttls on the Notional Register Only L-^,——wa.w. - `®,
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II-15
Community Preservation Plan Final Draft 10.2012
HOUSING AND NEIGHBORHOOD DEVELOPMENT
The majority of historic districts in the City, both local and national,
are residential neighborhoods. Those properties in local historic
districts or listed as Landmark Sites are subject to additional
regulations and review through the H Historic Preservation
Overlay Zone for various projects and improvements. Since
historic preservation typically increases property values, the long-
term viability of these neighborhoods will depend on their ability
to achieve a range of size and price in the housing stock to meet a
variety of needs, including those of families, the elderly and single
people. The Housing and Neighborhood Development Division
works in Community Development Block Grant (CDBG)-eligible
areas to address housing needs of the workforce and seniors. As
of 2011, the majority of the City's locally designated historic
districts are located within the CDBG eligible areas which means
property owners may be eligible for financial assistance through
the City's housing rehabilitation program.
Providing safe, affordable, energy efficient housing in local historic
districts or character conservation districts, while following
adopted preservation regulations and guidelines is achievable and
desired in locally and nationally designated areas. Finding ways to
bundle financial assistance through rehabilitation low interest
loans and tax credits, as well as ensuring the administrative rules
for those local programs help property owners to achieve the
financial incentives, will make historic renovation projects and
renovation projects in character conservation districts easier for
property owners to afford, maintain and improve their properties.
CITY-OWNED HISTORIC STRUCTURES
In addition to the Housing programs that HAND oversees, the
Division is also responsible for the appropriate maintenance and
management of various City-owned properties, some of which are
historic and designated on the National or Local registers.
Currently 14 city-owned structures are historically designated.
11-16
Community Preservation Plan Final Draft 10.2012
PUBLIC SERVICES
The Public Services Department is in charge of the development
and maintenance of various aspects of the City's property. The
Department is in charge of maintenance and rehabilitation of
various historic parks and golf courses, the reconstruction of
streets in historic districts and the maintenance of various City
owned historic structures, such as the Forest Dale Golf Course
Club House in the Sugar House community or the Warm Springs
Plunge building in the Capitol Hill community. The efforts of the
Public Services Department has enhanced the City's historic
properties and their continued commitment to adhere to the
adopted standards of the local historic preservation ordinances
will ensure the continued preservation and use of many of the
City's historic resources.
Landscapes, streetscapes, golf courses and parks all contribute
greatly to the aesthetics and human appeal of the City. Man-
made elements such as historic park plazas, as well as natural
features like street trees, can contribute greatly to the character of _e
the surrounding area. In historic parks, major focal points often
include old trees, as well as historic accessory buildings and
features, all of which make these older parks stand apart from ' T
newer parks and public spaces. Maintaining and repairing theselirhistoric landscapes requires a more tailored approach to materials - 4
and design than typically is appropriate in more modern areas.
While some historic landscapes already are protected as Landmark
Sites (like Liberty Park or the City and County building's .-
-
Washington Square), clearer guidance is needed on how to treat Olt
all historic landscapes. An expanded view of which landscapes
should be treated as historic will help streamline the management
of these landscapes. In addition, clarifying the authority of the The Daughters of the American
Public Services Department, especially the Urban Forester, and the Revolution fountain is a protected
Engineering Division, in the review of changes to historically feature of Liberty Park.
designated public landscapes is critical.
Various historic features such as historic markers, memorials and
infrastructure can be found in the historic areas of the City.
Original pavement materials of streets which have been covered
over with asphalt and historic sandstone sidewalk or curbs are
found sporadically in some areas of the City. These things are
11-17
Community Preservation Plan Final Draft 10.2012
usually discovered during City Street reconstruction projects. In
some instances, they are removed to provide better safety or a
more uniform surface. In other instances, they can be preserved
to help tell the story of the City's historic development, especially
when they are adjacent to Landmark Sites. These small artifacts
can create interesting focal points to help educate the citizens of
the area's history and help identify unique aspects of a
neighborhood. Retaining some of these features help retain the
history of the area. Ongoing communication and early
communication with the Engineering Division and Street Repair
staff is important to ensure that the existing historic site features
are preserved where feasible and where possible, take the
opportunity to bring streetscapes and landscapes closer in line to
the original historic features.
When reconstruction projects occur, such as the reconstruction of
streets, remnants of sandstone sidewalks, curb and gutter and
streets may be discovered. It is important to find ways to retain
these important pieces of the past that tell the story of the City's
development history and ensure they are not lost through
repavement or replacement.
REDEVELOPMENT AGENCY
Historic preservation, by definition, occurs in the oldest portions of
the City. These areas are also often viewed as sites for
redevelopment activity. The ability to retain structures is largely
related to both the preservation ethic of the City and the degree
of difficulty associated with developing projects oriented to a
modern business and lifestyle setting in an older structure.
Modern adaptive reuse demands can include the reuse of upper
floors of an historic building Downtown for residences or the
division of a large historic home into apartments. Facilitating
adaptive reuse of structures and providing guidance as to how
best to integrate newer (often higher-density) development with
older buildings regardless of use will help promote more adaptive
reuse. Whether redevelopment activity is located in locally
designated historic districts, it usually is located in areas with older
building stock which may contribute to the character of the area
and may be eligible for historic preservation or neighborhood
character preservation. In an urban area such as Salt Lake City, it is
11-18
Community Preservation Plan Final Draft 10.2012
important that the historic structures as well as neighborhood
character (whether it is a low-density residential neighborhood or
an urban core neighborhood) are preserved where feasible. In
many instances, this may lead to an increase in the desirability of
the place for new residents and businesses which will lead to
higher property values and a higher tax increment to fund
additional redevelopment agency activities.
11-19
Community Preservation Plan Final Draft 10.2012
TRANSPORTATION
The City's Transportation policies include supporting a variety of
circulation options to afford more choices for mobility, decrease
air pollution and traffic congestion and encourage a healthier
lifestyle for individuals.
Mass Transit
Mass Transit can include Light Rail, Commuter Rail, Streetcar and
Buses. The fixed rail, (light rail, commuter rail and streetcar lines)
generally have a positive impact on development but can impact
areas where preservation policies are set (whether historic or
character preservation) by the catalyst that fixed transit can have
on redevelopment.
Light rail transit service in the City connects major destinations in
the City including the University, Downtown and the Airport. In so
doing, the rail line and station areas move near and in some cases
through historic districts, past Landmark Sites, and existing
neighborhoods including some that are within existing
Redevelopment Target Areas.
Existing transit stations in the City are within or along the
boundary of local historic districts (in Central City) near national
register districts (along North Temple) and within established
neighborhoods such as the Sugar House Streetcar line and the 200
West line south of Downtown. A fixed transit station area is the
half mile area around a transit station. While ideal density
numbers vary by community, higher density is generally
encouraged within transit areas, particularly the first quarter mile
from the station to encourage use of the transit system.
Transit-oriented development (TOD) calls for higher levels of
density near transit corridors, and especially surrounding transit
stations, to ensure ridership achieves the intended traffic
reductions to make the project worthwhile. Where additional
density is required in historic districts or near historic structures,
11-20
Community Preservation Plan Final Draft 10.2012
new tools and practices can be employed to facilitate achieving
net density goals while minimizing impacts to historic resources.
Development proposals in transit corridors typically are reviewed
for impacts on cultural resources pursuant to federal law. This
review provides an opportunity to evaluate and mitigate the
impacts on historic properties. While the City will have to make
some tough choices in the 1/2 mile areas around stations, careful
planning for preservation and transit can employ new tools and
practices to find a balance and retain more of the historic and
neighborhood fabric.
FIGURE 5: LOCATION OF LOCAL HISTORIC DISTRICTS RELATIVE TO TRAX
STATION AREAS
Source:Salt Lake City Planning Division GIS, 2009
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I I-21
Community Preservation Plan Final Draft 10.2012
POLICIES, AND ACTIONS RELATING TO
INTERDEPARTMENTAL COORDINATION
Policy 2.2a: At all levels of City government, make
decisions relating to historic resources and preservation
activities that are in accordance with the Community
Preservation Plan.
Action 1: Work with various City Departments to provide
education on tenets of historic preservation and community
character preservation and identify with each department
ways to ensure the various city funded projects meet the
policies of these plans
Examples include working with each City department on the type of
projects they complete such as helping the Engineering Division
understand where the historic districts and community character
districts are and how to preserve important features of the
streetscape in a street reconstruction project.
Policy 2.2b: In order to avoid, minimize or mitigate
adverse effects on historic properties which potentially
may be affected by the undertaking of City development
projects, before expending any City or Redevelopment
Agency funds or approving any understaking, each City
department and the Redevelopment Agency of Salt Lake
City shall
a) Take into account the effect of the undertaking
on any district, site, builidng, structure or object
that is included in the National Register of Historic
Places or the Salt Lake City Register of Cultural
11-22
Community Preservation Plan Final Draft 10.2012
Resources or locally designated historic district;
and
(b) Allow the Planning Director or designee a
reasonable opportunity to comment with regard
to the undertaking or expenditure with an interest
in the effects of the undertaking on historic
properties, commencing at the early stages of
project planning.
Policy 2.2c: Provide adequate resources to City
Departments, Divisions and the Redevelopment Agency
to ensure they can appropriately address historic
preservation policies and regulations in development
projects they oversee or provide funding for.
Action 1: Work with the Housing Division, Economic
Development Division, and Redevelopment Agency to find
appropriate ways to bundle rehabilitation assistance and other
financial assistance for historic preservation and community
character preservation to help property owners and
developers make appropriate investments and improvements
to their properties.
Action 2: Create specific management plans for each city-
owned historic resource such as landmark sites, parks,
cemeteries and golf courses, to ensure appropriate uses,
rehabilitation and maintenance of each resource to ensure the
on-going preservation of important city-owned historic
resources.
11-23
Community Preservation Plan Final Draft 10.2012
Policy 2.2d: Address conflicting policies
The City will use the Community Preservation Plan to guide decision-
making regarding the expansion and maintenance of the historic
preservation program and all historic resources. When conflicts arise
between the Community Preservation Plan and other adopted City
plans, decision-makers should attempt to balance conflicting goals,
giving due consideration to the historic preservation and community
character preservation goals and policies expressed in this plan, in
addition to other City objectives. While all decisions will continue to
be made by City officials on a case-by-case basis, factors affecting
historic resources (e.g., the potential loss of irreplaceable resources)
will be considered.
Action 1: Coordinate regularly with other City departments to
ensure compatibility of strategic goals and objectives and to
pursue implementation of the Community Preservation Plan.
Policy 2.2e: Coordinate with Housing and Neighborhood
Development and Economic Development Divisions to
provide project review relating to City Housing and
Small Business loan applications targeted to historic
resources.
Action 1: Modify review procedures for City Housing and
Small Business loans to include project review relating to
preservation issues, as appropriate, when the property in
question is historic but not locally designated.
Policy 2.2f: Historic Site features such as markers in
road, memorials in medians, and sidewalks should be
maintained.
Action 1: Inventory Historic Details to Be Preserved
11-24
Community Preservation Plan Final Draft 10.2012
Create an inventory of historic markers, memorials, and any other
significant historic site features that should be retained and share
that information with the Engineering Division and Public Services
Department to inform project planning for street reconstruction
projects and other similar projects. As GIS capability expands, these
points can be geocoded into a shapefile with a GPS device to make
locating and identifying resources easy and convenient.
Action 2: Determine Appropriate Preservation Measures for
Historic Landscape Features
Streamline negotiations on preservation of historic site features, such
as street and sidewalk details, by determining appropriate protection
and mitigation measures and thresholds in advance with the
Engineering Division and Public Services department. The
appropriate mitigation measures should be tiered based on the
significance of the resource. Streets and sidewalks in front of
Landmark Sites or ones that serve as view corridors from historic
parks may receive special consideration.
Action 3: Public Services Department Coordination
Foster an ongoing arrangement with the Engineering Division and
Public Services Department, such that these agencies will notify the
planning staff any time repairs are to be made in either a local or a
national historic district or to a Landmark Site that may affect historic
landscape features. This should also include streets and sidewalks
within historic districts that may have been updated in a manner that
did not retain historically compatible characteristics. New work to
streets, sidewalks, medians, etc in these areas should be viewed as an
opportunity to bring the streetscapes and site features closer in line
to the original conditions and the guidance and objectives of this
plan.
Policy 2.2g: Make Historic Preservation an objective in
the use of City Rehabilitation, Economic Development
and Redevelopment types of loans.
Action 1: Amend the loan objectives for housing, economic
development and redevelopment to include historic
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Community Preservation Plan Final Draft 10.2012
preservation as one of the eligible activities in the use of City
financial assistance.
Policy 2.2h: Clarify the authority of the Urban Forester
and Engineering Divisions relating to changes to locally
designated historic landscapes.
Actions: Clarify that the Urban Forester and Engineering
Division oversees and has the authority to make changes
relating to vegetation in designated local districts and
Landmark Sites while the H Historic Preservation Overlay
authority relates to built structures, including walls, fencing,
signage, pavement patterns and buildings as well as the
overall historic patterns of the landscapes in locally
designated historic districts and on Landmark Sites.
Policy 2.2i: Place city-held preservation easements on, or
designate as Landmark Sites, City-owned structures that
meet the criteria for Landmark Site status prior to the
City disposing of these important properties.
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Community Preservation Plan Final Draft 10.2012
A SHARED UNDERSTANDING OF
PRESERVATIONS BENEFITS
OVERVIEW
Historic preservation offers communities numerous economic,
social, and environmental benefits. An important component of
building city-wide support for preservation will be the ability of
City staff and other preservation advocates to be able to clearly
communicate these benefits. In implementing this plan, the City's
Planning Division will work to document and maximize the
understanding of the various benefits of historic preservation to
the City. This will involve, in part, increased outreach from
Planning Staff, and other preservation partners to help convey and
illustrate these benefits. Ideally, preservation will be integrated
with and help support other City efforts including the
development of transit station areas, meeting housing needs,
revitalizing and stabilizing neighborhoods, strengthening the City's
downtown and tourism activity and creating a sustainable and
livable City.
POLICIES AND ACTIONS RELATING TO A
SHARED UNDERSTANDING OF PRESERVATION
BENEFITS
Policy 2.3a: Identify historic preservation as an
important component of the City's sustainability efforts
based on its important economic, environmental and
cultural benefits to the City.
Action 1: Create an Educational Program to Inform and
M at
educate various groups about the importance of Historic _
i�,►.
Preservation.
Create a variety of materials and seminars to educate decision
makers, City employees, applicants and the general public about the The Planning Division is
developing an informational
importance, best practices, regulations and guidelines of historic video to educate the public
preservation, with the objective of increasing awareness and about the importance of
understanding of the role historic preservation plays in the well- preservation.
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Community Preservation Plan Final Draft 10.2012
being and prosperity of the City over the long-term. Tools might
include, for example, workshops, videos, or a series of online or hard-
copy brochures. Where possible, such materials should quantify
specific benefits and offer examples of how investments in historic
preservation have helped catalyze additional change and investment.
The materials should also highlight some examples of win-win
relationships between preservation and other departments and
agencies.
Policy 2.3b: Increase City department coordination and
communication on area-specific projects and objectives.
Action 1: Develop Property Acquisition Process
Develop a thorough process for the acquisition of historic properties
by the City, including up-front planning for future use, resale,
renovation, and designation (if appropriate), in addition to the actual
purchase of the property. In cases where the City will retain
ownership, the purchase process should include a development plan
for the long-term management of the site, coordinated with the
Housing and Neighborhood Development Division and other
applicable City departments and divisions.
Action 2: Planning for City-Owned Properties
Engage the public in discussions about the use of City-owned
historic properties (structures, sites, and landscapes) through
community group meetings or neighborhood charrettes, as
appropriate. Where redevelopment is a potential or desired option,
or if one of the Redevelopment Agency or Housing programs could
be of assistance to the productive and desired future use of the site,
Redevelopment Agency staff and others should be integrated into
the planning discussions to encourage their involvement in the
project.
Action 3: Conduct a detailed study of the economic benefits
of historic preservation to the City that quantifies the value of
historic preservation in the City and identifies opportunities to
increase benefits in the future. Coordinate the scope of the
study with the City's other efforts in economic development
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Community Preservation Plan Final Draft 10.2012
to benefit and inform plans and actions of both interests as
much as possible.
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Community Preservation Plan Final Draft 10.2012
Develop a Comprehensive
Preservation Toolbox
VISION
Salt Lake City has an impressive depth and range of historic ,•u.�•••..•r..•—.•.__.,u
resources. The preservation program develops and pursues a clear .M'-2
strategy for identifying and protecting a wide range of important
resources, including not only older historic districts and Landmark
Sites, but also signature resources from the recent past. Also,
because preservation has as much to do with preserving the
unique character of a place as it does with preserving sites and The Historic Landmark Commission
buildings themselves, the City develops a range of new tools to websiteiscurrentlytheprimaiynon-
staff method of distributing
safeguard the predominant character of established information and applications for
neighborhoods as development and infill take place. historic oreservation.
OVERVIEW
In addition to establishing a unified, city-wide vision for
preservation in Salt Lake City, it will be equally important to ensure
that a broader and more robust range of policy and regulatory
tools is available to effectuate that vision.
Since the beginning of the City's historic preservation efforts, the
community has developed an impressive array of programs and
policies for the identification and protection of historic resources.
The most prominent of these tools is the regulatory design review
program of locally designated structures and districts. This
program includes an ongoing program of historic resource
surveys; a tested set of preservation regulations (consisting
primarily of the historic overlay zone and the design guidelines);
and a Planning Division charged with administering and enforcing
all aspects of the regulatory design review program.
Other less visible historic preservation programs the City
participates in are more incentive based programs such as the
National Register designation of various neighborhoods and
individual structures within the City as: well as low-interest loan
programs for renovation of historic facades, administered by the
Redevelopment Agency. There may be opportunity to expand this
so that small business loans and housing rehabilitation loans can
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Community Preservation Plan Final Draft 10. 2012
be increased for commercial and housing rehabilitation projects
for appropriate historic renovation in the City's locally designated
districts. In addition,the City expends funds for the preservation
of city-owned historic resources such as various Landmark Sites,
including the City&County Building and the 19tb Ward Meeting
House structure in Capitol Hill which is currently leased by the Salt
Lake Acting Company. The City also has several historic parks,
such as Liberty Park and Memory Grove that it owns and
maintains. In addition,the City has partnered with the Utah
Heritage Foundation by contributing funds to the Foundations'
low-interest loan program for appropriate renovation of historic
structures,whether or not within a locally or nationally registered
district within Salt Lake City
The comments received as part of this planning process
consistently noted that the City's preservation"toolbox"is useful
but incomplete. There are opportunities to fine-tune existing
regulatory programs--for example,to address concerns related
to demolition and economic hardship,or to update or create new
design guidelines. Because the local historic preservation
designation requires regulatory provisions on private property on
behalf of the public's interest,it was also noted that the City
should find additional incentives for owners whose properties are
locally designated whether they be financial or process oriented.
Also important is establishing new tools to preserve and stabilize
the character of geographical areas where the property owners
want some regulation to preserve the area's character but do not
want,or where the properties do not meet the criteria for,local
historic designation. Continually working to identify new tools
and incentives is important for the City to diversify means of
achieving its preservation policy goals.
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Community Preservation Plan Final Draft 10.2012
HISTORIC RESOURCE SURVEYS
OVERVIEW
Historic resource surveys are a vital tool for informing the .•
community about the types of historic properties that exist within h• _ `' c`
•
Salt Lake City and the extent to which such properties maintain I
their historic integrity. Historic Integrity means that the important ;
� •
._a
factors that make it significant are still intact. If the structure is
important because it is associated with an historic figure, those
factors may be different than if the structure is associated with a
specific type of architecture or craftsmanship. Surveys provide While geographic surveys may
baseline information for evaluating applications for Certificates of focus on specific areas such as
Appropriateness for modifications to historic properties. They neighborhoods (top), thematic
provide valuable information on the history, architecture, and surveys highlight resources by
condition of specific neighborhoods, buildings, sites, and type such as historic churches
landscapes, and they identify what areas may be qualified for (bottom), parks, or apartment
historic designation. buildings.
A survey involves the visual examination of a select area or group
of properties to determine their historic integrity and significance.
In addition to inventorying historic properties, surveys typically
rank the resources based on their relative historic significance.
Surveys may look for resources from either a geographic or
thematic perspective (such as historic multi-family dwelling f-
buildings), depending on their objectives.
Accurate surveys are vital to a well-functioning historic
•
preservation program in a number of ways. For example, surveys •
help inform development decisions. At the local level, major land
use decisions should be informed by the best available
information about the presence or condition of historic resources.
This applies not only to decisions specifically affecting historic
properties, such as Certificates of Appropriateness; it also includes
rezonings, subdivisions, conditional uses, the creation of character
conservation areas and any other type of land use activity that
might affect a historic building or site. In such situations, it is vital
to have up-to-date survey information to ensure that historic
resources are protected as development activity moves forward.
At the national level, Section 106 of the National Historic
Preservation Act requires all federally funded projects to assess
their impacts on historic resources. On the State level, Section 9-
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Community Preservation Plan Final Draft 10.2012
8-404 requires all state-funded projects to assess their impacts on
historic resources.
Survey work can be performed at two levels that differ in the level
of detail,expertise,time,and resources needed to complete the
work. These two survey methods are Reconnaissance Level
Surveys and Intensive Level Surveys and are described more
thoroughly in Appendix A.
Reconnaissance Level Survey
The reconnaissance level survey,commonly known as a
...........................................................................................
"windshield survey,"is an effective way of evaluating large areas to i Priority Local
identify potentially eligible properties for local and/or national Districts for Resurvey
historic designation. This survey type is conducted by the
surveyor briefly looking at each property or resource within a Field research as part of
predefined area or related to a historic theme. An experienced this planning effort
surveyor can determine from this level of survey which resources identifies the following
appear to meet the necessary age and integrity standards and local districts as priority
sites for resurvey and
which do not. In Utah,the State Historic Preservation Office boundary evaluation work.
(SHPO)requires survey documentation to include a brief context •
•
description of the survey area from secondary sources to help • Central City •
frame the history of use and development as well as provide a • Exchange Place •
justification of the survey area boundary. In the field,the surveyor • Bryant •
documents potential resources on a map of the survey area and , • Westside Warehouse
then photographs and makes basic notes on the architecture and ' • University
apparent integrity of a property. Because no research or more
detailed fieldwork is completed on individual resources,the
reconnaissance survey offers the benefit of being relatively
inexpensive and an effective way of identifying areas where
intensive-level survey may be warranted.
Intensive Level Survey
The intensive-level survey builds upon the results of a
reconnaissance level survey by involving detailed documentation
of each site,building,or structure included in a project. Because
of the detailed work and documentation,these are both more
expensive and time-consuming. The intensive-level survey
typically includes additional photography,enhanced field notes,
and archival research to document some history and significance
of each resource. This level of survey results in a substantial
document(a site form)for each property,where the results of the
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Community Preservation Plan Final Draft 10.2012
fieldwork and research are recorded together with a determination
of significance.
Surveys are only as useful as they are current. As time passes,
surveys become less and less accurate representations of
conditions on the ground. The boundaries of historic areas may
expand or shrink, and individual properties may lose or gain their
historic integrity. Current survey information is needed to capture
these changes and allow for the continuing evaluation (and
modification if necessary) of district boundaries and lists of
contributing structures over time. Accurate information on
properties and districts helps ensure that the time and resources
of the historic preservation program are efficiently and
appropriately directed to the correct locations.
Once a survey is completed, it should be updated periodically to
address the ongoing impacts of two dynamic forces: time and
maintenance.
Time: One standard for determining eligibility for historic
designation is age. Therefore, surveys must be updated
periodically to address new properties that may now be
considered contributing due to their age. Further, surveys should
be updated periodically to acknowledge that the resources that
historians and the public perceive as "historic" and worth
preserving may evolve and change over time. Current survey
practice tends to recognize a broad range of socio-economic,
cultural, and architectural influences that may lead to historic
significance, whereas older surveys tended to have a narrower
definition of historic significance. Broadly speaking, the older the
survey, the less likely it presents an accurate and complete picture
of an area's current historic significance.
Maintenance: Over time, property maintenance can impact the
status of an historic property.
• A property owner may defer maintenance of their property
which leads to a deteriorating condition where the structure
no longer qualifies as a historically significant or contributing
structure.
• A property owner may make an inappropriate alteration to a
structure that renders it no longer historically significant or
contributing.
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Community Preservation Plan Final Draft 10.2012
• A property owner may make an alteration that rectifies a past
modification and enables the structure to now qualify as a
historically significant or contributing structure.
• A structure listed in an older survey may have been
demolished.
Salt Lake City has completed 25 historic resource surveys to date,
with all but the most recent resulting in the designation of either a
national or local historic district. A map of the survey areas is
shown in Appendix A.
The nature of historic resource surveys in Salt Lake City has
changed significantly over time. The earliest surveys, completed in
the 1970s and 1980s were relatively simple and focused on the
historic resources with the highest visibility at that time. Since
then, surveying has evolved into more of a sophisticated, City-led
process that, while sporadic, has focused on a broader range of
resources -- from outstanding, high-style individual buildings to
large, predominantly vernacular residential neighborhoods.
City officials have acknowledged that most survey work has been
completed in a reactionary, rather than proactive and strategic,
manner. In response to the 2004 City Council-led review of the
historic preservation program, the City undertook new re-surveys
to update the information for existing local historic districts. This
planning process builds on this work by providing additional
direction about which existing surveys should be updated and
areas of the City where new surveys should be undertaken. Up-to-
date surveys are an essential tool for informing City decision-
makers about the context and relative importance of resources in
the community. It is important that reconnaissance level and
some intensive level survey work that complies with the State
Historic Preservation Office's survey guidelines be completed prior
to the designation of local historic districts and Landmark Sites.
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Community Preservation Plan Final Draft 10.2012
POLICIES AND ACTIONS REGARDING HISTORIC
RESOURCE SURVEYS
Policy 3.1a: Identify historic resources in the City
through the use of surveys that are consistent with the
adopted State Historic Preservation Office survey
criteria.
Policy 3.1b: Reconnaissance and Intensive level surveys
that meet the adopted State Historic Preservation Office
survey criteria, should be well-maintained and accurately
portray the location and integrity of the City's historic
resources.
Action 1: Establish criteria to determine where survey work
should occur
Develop criteria that may be applied on an ongoing basis to
determine where new survey work is necessary. Criteria should
include, but not be limited to:
• Concentration of potential resources;
• New types of resources not yet protected;
• Possible endangerment of the resource/area (including
encroachment from new development); and
• Need of survey to precede and inform potential planning or
development activities (including activities by other
departments);
Policy 3.1c: Evaluate, on an annual basis, priorities for
new survey work pending allocated resources.
Action 1: Identify areas where new surveys are appropriate
Based on the survey criteria called for above, and using the
recommendations in Appendix A as a starting list, develop a list of
areas where new historic resource surveys should be undertaken as
resources for survey work become available. Update the list on at
least an annual basis. Use Geographic Information System (GIS)
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Community Preservation Plan Final Draft 10.2012
technology as one tool to help identify resources that may have
historic value but have not yet been surveyed.
Create a simple and easy-to-maintain system of tracking suggestions
from property owners,preservation partners,the general public and
the Historic Landmark Commission,for areas where surveys are
needed. Tracking individual sites may facilitate the identification of
possible thematic collections to be surveyed or sites to be nominated
individually on the national or local historic registers or for other
types of preservation or conservation efforts. These priorities will
serve as a framework against which the City can weigh and balance
survey suggestions to ensure strategic aims of the preservation
program are represented.
Policy 3.1d: Designated resources should be resurveyed
approximately every 10 years or earlier where necessary.
Action 1: Identify Areas where resurveys are appropriate
Using the recommendations in Appendix A as a starting list,develop
a list of areas where updates or complete revisions to existing
surveys are needed,because of the age of the survey and/or
changed conditions in the locally designated areas.
Policy 3.1e: Ensure that adequate and complete surveys
are used to determine appropriate action relating to
implementing policies of the Community Preservation
Plan.
These types of surveys are required for both the National Register
Nominations and Local Historic Preservation designations.Although
specific survey requirements are not mandated for Character
Conservation Districts,the professional survey information can be
helpful in creating the guidelines for specific Character Conservation
districts.
Policy 3.1f: Ensure that survey and archival information
relating to historic resources within the City are available
electronically for ease of access by the public and other
interested parties.
Action 1: Support Archive Development
Submit survey and archival information relating to historic resources
within Salt Lake City to the State Historic Preservation Office to be
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Community Preservation Plan Final Draft 10.2012
included in its electronic archives. Also develop capabilities to place
City preservation archives online(e.g.,photographs,applications).
Action 2: Promote Electronic Archive Use
Use various methods to make the public aware of how to access
archival information for research and information on historic
resources in Salt Lake City.
Policy 3.1g: Prior to the designation of a local historic
district,a professional reconnaissance level survey
should be conducted to identify the number of
contributing structures and help identify appropriate
district boundaries.
Professional survey work can be completed by either Planning
Division staff qualified to conduct reconnaissance level survey work
or consultants hired by the Planning Division to conduct the work.
Policy 3.1h: Prior to finalizing professional historic
survey work,public review and input should be provided.
Any historic survey work should include an element of public
involvement to provide information about specific properties and
neighborhood history. The public should also have an opportunity
to review the survey and provide feedback to the City to help ensure
accuracy of its findings and classification of properties.
Policy 3.1i: Historic Surveys should be thoroughly
reviewed to ensure accuracy of the classification of
properties. - • -•- •
Prior to the Historic Landmark Commission's adoption of historic
surveys,each survey should be thoroughly reviewed to ensure
accuracy of such work and the classification of properties.
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Community Preservation Plan Final Draft 10.2012
DESIGNATION
OVERVIEW
Once identified,historic resources may be nominated for national
and/or local historic preservation designation or be analyzed for
other types of preservation tools such as character conservation
districts or compatible infill zoning. Local historic designations
typically occur following completion of a survey and a National
Register designation.
NOMINATIONS
Property owners,non-profit organizations,or local elected officials
may pursue individual listing of a property in the National Register
and property owners or local elected officials may pursue listing
on the local levels. These nominations are typically driven by pride
in and awareness of the historical or architectural significance of a
property.This may occur so the owner can access the associated
financial benefits such as tax credits for rehabilitation projects in
the case of National Register historic designation,or Adaptive
Reuse of structures through zoning regulations in the case of local
historic designation.
Property owners and local officials may also prepare thematic or
multiple-property nominations of properties that are connected
through a common history,a consistent architectural style,or a
similar historic context(a historical theme,geographical area,or
chronological period). Nominating a set of related properties can
streamline the documentation process,since most resources share
a common background that can be described once for the whole
group.
A number of thematic and multiple-property National Register
nominations have been pursued which include properties within
Salt Lake City. These encompass a wide array of historic resources,
including commercial and public buildings,transportation
facilities,and religious institutions. They include:
1. Sugar House Business District MPS(Multiple-Property
Survey)
2. SLC Business District MRA(Multiple Resource Area)
3. Wilford Woodruff Family Historic Residences TR(Thematic
Resources)
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Community Preservation Plan Final Draft 10.2012
4. U.S. Post Offices in Utah MPS
5. Electric Power Plants of Utah MPS
6. Perkins Addition Streetcar Suburb TR
7. Jewish Synagogues TR
8. Public Works Buildings TR
9. Historic Resources of SLC MPS (The context name is "Urban
Expansion to the Early 20t" Century. 1890s to 1930s": the
property types is Urban Apartment Buildings.)
10. Mormon Church Buildings in Utah MPS
LOCAL HISTORIC DESIGNATION
Because local historic designation is technically a zoning map
amendment, applications for local designation must meet the
general rezoning standards in the Salt Lake City Zoning Code. In
addition, the application must meet the specific criteria for historic
designation of the ordinance.
• The majority of individual sites listed on the Salt Lake City Register
of Cultural Resources were listed in the 1970s and 1980s. Recent
City practice has tended to favor listing resources in the National
Register before pursuing local designation in part to build support
for preservation by demonstrating the benefits of designation
before subjecting the property to local design regulations.
Following local designation, all new construction and all exterior
changes to designated properties must meet the adopted
standards included in the H Historic Preservation Overlay Zone.
The Historic Landmark Commission may deny demolition of a
locally designated structure or a property within a locally
designated district if it does not meet the standards for demolition
as identified in the adopted regulations. Local designation also
makes a property eligible for the Utah Heritage Foundation
revolving loan.
As of March 2012, the City had 164 individual properties listed on
the local Salt Lake City Register of Cultural Resources, including
buildings such as the Rocky Mountain Bell Telephone building (56
South State Street), the original Salt Lake City library (15 South
State Street), and the Fisher Mansion and Carriage House (1206
West 200 South). Eighty four of these properties are listed on
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Community Preservation Plan Final Draft 10.2012
both the local and the National registers. Examples of properties
that are listed on both include the Salt Lake City&County
Building(451 South State Street),Union Pacific Railroad Depot
(South Temple and 400 South)and the Wasatch Plunge(840 North
300 West).
Local Designation Process and Criteria-
The criteria for designation on the local historic register in Salt
Lake City,should not only follow best practices for preservation,
but should also ensure that local historic designation focuses on
protecting the best examples of an element of the City's history,
development patterns and architecture. In addition,although time
helps to understand historic value and determine whether a
property is sufficiently important in the history of the community,
some structures may be important in telling the story of Salt Lake
City,prior to reaching the national 50 year standard. Local
historic districts should also have logical boundaries based on
subdivision plats,physical and/or cultural features and significant
character defining features where possible.
Even though a property or area may be listed or eligible to be
listed in the National Register,it does not mean that it necessarily
is eligible for designation on the local register. Various historic
preservation programs can be used effectively for implementing
historic preservation policies. However,other preservation
methods may not be as strong or effective in preserving some
important historic resources or areas,and in those instances local
designation should be sought.
Due to their importance in telling the story of the historic
development of the City for existing and future generations,the
overall public interest is weighed more heavily than any one
individual's personal property interests.It is appropriate for the
City to understand the degree of property owner support for
locally designated properties prior to local designation. In
addition,because local designation places additional regulation on
some property owners for the benefit of the public,the City
should provide various incentives that it would not necessarily
afford to other owners whose properties are not similarly
regulated.
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Community Preservation Plan Final Draft 10.2012
LISTING IN THE NATIONAL REGISTER OF HISTORIC
PLACES
Listing in the National Register is honorific. Designation in the
National Register does not impose any regulations or restrictions
on the owner regarding the maintenance of their property,but
does qualify the owner to take advantage of federal and state tax
incentives as well as Utah Heritage Foundation's Revolving Loan
Fund,if qualified. See Appendix A for the list of National Register
Districts and Sites in Salt Lake City as of November 2011. With the
available tax credits,the National Register program provides a
great opportunity to incentivize property owners to reinvest in
their historic homes which results in increased housing
rehabilitation of various eligible neighborhoods and structures
throughout Salt Lake City.
COMMUNITY CHARACTER CONSERVATION
Salt Lake City,founded in 1847 with the arrival of the Mormon
Pioneers,adopted some of the earliest zoning regulations in the
State in 1927 and has subdivisions recorded as far back as the late
1800s. Because of its age,the development patterns in the City
are somewhat unique to other areas of the Valley and the State.
As a city of neighborhoods,Salt Lake generally has very walkable
urban neighborhoods with sidewalks,tree lined streets and
uniform setback of buildings. Many of the subdivisions and
neighborhoods have uniformity of building type as well.
Overtime,as the City has become more desirable for residents
interested in traditional neighborhood settings,the value placed
on retaining the character of these places has increased. At the
same time,the desire for more living space and updates of
structures for modern living conveniences has targeted some of
these valued neighborhoods for change. In some instances,
existing property owners and residents have sought tools to
preserve and stabilize the character of these neighborhoods.
However,for many years the only such tool the City had was the
local historic district regulation.
Various tools are available that the City should adopt to address
the different objectives where neighborhood stabilization is
desired,without requiring local historic designation. These tools
could include Character Conservation Districts,Neighborhood-
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Community Preservation Plan Final Draft 10.2012
based Zoning,Form Based Codes and Base Zoning changes all of
which are approaches to zoning regulations aimed at protecting
specific bulk,scale or development characteristics.
Character Conservation Districts
The purpose of a Character Conservation District is to preserve
community character(the character may or may not have a connection
to the area's history). A Character Conservation District is customized
for a specific area and the regulations focus on preserving specific
character defining features as identified by the property owners of the
district.The community is charged with helping the City create the
design guidelines and standards for the regulation. Review of
demolition may or may not be a component of a Character
Conservation District. If it is included,review of economic hardship
should also be included as an option to a property owner who is denied
the ability to demolish a structure and feels that the denial is in some
way a regulatory taking.
Some cities choose to use this tool as a way to protect districts that
may not meet the criteria for local historic designation or where there is
little support or a finding that it is not in the public's interest for local
designation to occur. However,the tool does not necessarily have to
be related to older neighborhoods. It could be used in a neighborhood
that is relatively new where the property owners desire to ensure the
preservation of certain character defining features of the area.
Neighborhood Based Zoning
The goal of neighborhood-based zoning is to ensure that existing
development patterns are taken into consideration when constructing a
new home or adding onto an existing home.For example,front yard
setbacks for new development are calculated from the average of the
front yard setbacks of the adjacent homes;additional building height
may be obtained if it is consistent with the height of the surrounding
structures;and accessory structures may be built as long as the size and
location are compatible with the neighborhood.
In other words,neighborhood-based zoning is a tool which generally
focuses on dimensional regulations,such as,building setbacks,height,
exterior wall height,size,grade level,and lot coverage.This tool can be
used,not to preserve historic resources or community character but to
maintain consistent development patterns of the neighborhood.
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Community Preservation Plan Final Draft 10.2012
Form Based Codes
Form-based codes use physical form(rather than separation of uses)as
the organizing principle for the regulation.They are regulations that
address the relationship between building facades and the public
property or street frontage,the form and mass of buildings in relation
to one another, and the scale and types of streets and blocks. By
addressing the form and scale of physical development,they address
character of an area rather than just focusing on land uses and lot and
bulk regulations of standards types of zoning.A form based code could
address various aspects of a neighborhood, such as a neighborhood
commercial area,to ensure the important characteristics along the
street frontage are preserved.
Base Zoning
Base zoning represents the general residential zoning created for use
city-wide such as the R-i/5,000 zoning district. This type of zoning is a
generic residential regulation designed for broad application
throughout the City and is the least regulatory and least representative
of specific neighborhood scale and character. A single zoning
designation, such as R-1/5,000 has been used in areas as diverse as
Jordan Meadows and the Yalecrest neighborhoods where the scale,
development pattern and character are very different. Base zoning
relies on maximum and minimum standards for height, lot size, lot
width, setbacks and building coverage to limit development. In many
cases neighborhoods developed over time with a specific character and
pattern that is not represented by the base zoning district. For
example, many neighborhoods developed with a single story character
where the ridge heights might average twenty feet or less, even though
the base zoning district allows a ridge height of thirty feet. As a result
new construction allowed by the base zone may not be compatible with
the size and scale of surrounding homes and additional neighborhood
specific regulations may be necessary for compatible infill
development.
It is important to define the characteristics of each zoning tool and
provide a menu to help neighborhoods determine which particular
approach is best suited to their interests. The following table
represents the menu option available and the characteristics of each
zoning tool in an effort to provide initial guidance on direction. A
neighborhood interested in pursuing new regulatory options for
maintaining the character of the neighborhood could review the
features of each zoning tool and determine the level of protection that
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seems appropriate for its needs. For example, if a neighborhood is
interested in protecting the representative spacing of homes in the area
and height of structures, Neighborhood Based Zoning may be
appropriate. If the property owners are interested in protecting
neighborhood design character such as covered front porches and large
overhanging eaves, a Character Conservation District may be
appropriate. In contrast, if the local history and fabric of the area is
important, including the retention of existing structures,the local
historic district designation may be the appropriate tool.
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Community Preservation Plan Final Draft 10.2012
Zoning Tools Menu
OPTIONAL TYPES OF CHARACTERISTICS
NEIGHBORHOOD
REGULATION
Base Zoning Districts • Typical zoning standards defining where the
structure is located on the property
dimensional,height and,lot coverage.
• Standards not based on specific neighborhood
development patterns
• No design review process
Neighborhood-Based • Zoning standards developed for specific
Zoning neighborhoods-based on the existing
development pattern; e.g.,Yalecrest Compatible
Infill standards
• No design review process or design guidelines
Character Conservation • Preserve Community Character
Districts • Extent generally limited to individual or
multiple subdivision boundaries
• Regulation based on characteristics/needs of
individual districts as defined by owners of
property in the area
• New ordinance needed for each Character
Conservation District
• Design standards in ordinance and potential
development of design guidelines for each
district
• Review could be over-the-counter,
administrative and/or discretionary review
by a Commission-HLC,PC or new review
authority
• It may or may not have demolition restrictions
Local Historic Districts • Preserve Local History/Architecture/Fabric
• Design Review based on Secretary of Interior
standards for all exterior modifications
• Demolition Restrictions
• Extent generally limited to individual or
multiple subdivision boundaries
• State and Federal income tax credits(available
in LHD if also listed in the National Register)
• Potential use of local preservation incentives
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Community Preservation Plan Final Draft 10.2012
POLICIES AND ACTIONS RELATING TO
DESIGNATION
Policy 3.2a: Local designation of historic resources
should occur where the primary purpose is to protect the
historic resources for the public interest and not where
the primary purpose is something other than that such as
to stabilize a neighborhood or preserve neighborhood
character.
Policy 3.2b: The pursuance of new locally designated
historic resources should focus on protecting the best
examples of an element of the City's history,
development patterns and architecture. Local historic
districts should have logical boundaries based on
subdivision plats, physical and / or cultural features and
significant character defining features where possible.
Policy 3.2c: Protect exemplary groupings of historic
properties as local historic districts.
Policy 3.2d: Local designation should only occur after
the City has an understanding of the degree of property
owner and public support for the proposed designation.
Action 1- Rewrite the criteria for local designation to ensure it
will help protect the best examples of an element of the city's
history, development patterns and architecture.
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Community Preservation Plan Final Draft 10.2012
Policy 3.2e: Local designation of historic properties
should only occur,after the City expends resources to
inform property owners of the reasons for the proposed
designation and what regulations will be included and
the Incentives offered for local designation.
Policy 3.2f:The boundaries of local historic districts
should be examined periodically to determine their
appropriateness and identify whether the district
boundaries should be revised.
Action 1: Track Development Activity within and near Local
District Boundaries
Use the City's Geographic Information System resources to track
demolition and other development activity within and near
established local historic districts to determine when and where areas
of conflict are emerging to determine whether it is in the public's
interest to reevaluate the appropriateness of the local historic district
boundaries.
Action 2:Evaluate Possible Local District Boundary
Adjustments
On a periodic basis,the Planning Division should work with
preservation partners,property owners and local residents to identify
and evaluate areas where expansions or changes to the boundaries
of existing districts may be necessary to reflect changed conditions,
or where historic preservation interests must be balanced with other
adopted policies for the geographic area that serve the long-term
health and function of the City. Pursue boundary changes only
where property owner support exists for such changes,and where
boundary changes would be consistent with adopted City policies for
the specific area. Pursue boundary changes only following new
surveys or resurveys of the applicable properties. Use the
recommendations in Appendix A as a guide to define priorities for
resurvey work.
Policy 3.2g:In an effort to implement a variety of city
policies including historic preservation,neighborhood
reinvestment and stabilization,housing rehabilitation
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Community Preservation Plan Final Draft 10.2012
and economic development,encourage sites and areas
that meet the criteria for designation to be nominated
for designation in the National Register to afford
property owners the opportunity for tax incentives for
appropriate renovation and to promote the importance
of and support for historic preservation.
Policy 3.2h: Prior to local designation,national
designation should be pursued to ensure financial
incentives are in place for those historic resources that
are regulated locally.
Policy 3.2i: Professional reconnaissance level survey
work should be completed prior to designating a local
historic district because it identifies the number and type
of historic resources in an area and provides the
information needed when determining the
appropriateness for change to a specific historic
resource.
Action 1: Identify National Districts Appropriate for Local Listing
Determine which National Register districts meet the local
designation criteria,including those areas that showcase the best
examples of an element of the City's history,development patterns
and architecture and whether there is local support by property
owners for designation on the local register. Additional surveys,as
well as staff and stakeholder knowledge,will be used to identify
which national districts would be appropriate to designate on the
local register.
Action 2: Identify Other Candidate Areas for Local Designation
Work with preservation partners,property owners and local residents
to identify significant concentrations of historic properties,either as
multiple-property nominations or districts that meet the criteria for
local designation and should be preserved.
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Community Preservation Plan Final Draft 10.2012
Policy 3.2j: Pursue local listing of significant individual
properties to ensure their continued protection.
Action 1: Identify and Designate Landmark Sites
Work with preservation partners, property owners, local residents
and the Historic Landmark Commission to identify significant
individual historic properties that may meet the criteria for local
historic designation and encourage their nomination.
Action 2: Evaluate Designation Status of Existing Landmark Sites
Analyze all current individual Landmark Sites to ensure that they still
meet the applicable designation criteria. Submit findings and staff
recommendations for updating the Salt Lake City Register of Cultural
Resources to the Historic Landmark Commission, Planning
Commission and the City Council.
Policy 3.2k: Professional Intensive Level Survey work
should be completed prior to designation of a Landmark
Site to the Salt Lake City Register of Cultural Resources,
where feasible.
Policy 3.21: Designate all eligible City-owned historic
properties as Landmark Sites and nominate them to the
National Register of Historic Places.
Action 1: Pursue Local and National Listing of Historic City Properties
Prepare and submit nominations for designation to the National
Register and the Salt Lake City Register of Cultural Resources for
current City-owned eligible sites.
Action 2: Designate eligible City-owned historic properties as
Landmark Sites, as the City takes ownership.
Integrate a determination of eligibility of historic designation
into the property acquisition process of the City so that the
two are done simultaneously.
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Community Preservation Plan Final Draft 10.2012
Policy 3.2m: Community character preservation and
stabilization tools should be in the form of a base zoning
district, rather than an overlay zone,to clarify the
hierarchy of the regulations and simplify administering
the regulations.
Policy 3.2n: Designation of properties in the National
Register does not necessarily imply that the area or site
should also be locally designated since the criteria for
designation are different and the goals of each program
are different.
Policy 3.2o: Explore a variety of tools to determine the
appropriate method for implementing historic
preservation policies of a specific historic resource.
Action 1: When historic properties are identified through
survey work as eligible for National Register designation,
work with property owners to nominate such properties to the
National Register of Historic Places
Action 2: Amend the zoning code by establishing a
community character preservation and stabilization tool to
provide additional flexibility in how property owners protect
local character. The regulation should allow review(typically
administrative)of development proposals that affect key,
character-defining features in designated areas where a local
historic preservation district is not desired or warranted.
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Community Preservation Plan Final Draft 10.2012
REGULATIONS
OVERVIEW
In the past, the City's preservation regulations consisted primarily
of the H Historic Preservation Overlay zoning regulations and the
residential district design guidelines, which apply only to locally
designated Landmark Sites and locally designated historic districts.
The comments received during this planning process indicated
that these regulations are working relatively well (except as
discussed below), but there is a strong interest in developing new,
additional tools like design guidelines for non-residential uses
(e.g., multi-family, open space, commercial, and institutional uses)
as well as tools for neighborhood character preservation for areas
that may lack support and /or may not qualify for local historic
preservation designation, yet still have character worthy of
protection.
In November 2011, the City Council adopted a City Preservation
Philosophy. The purpose of the Preservation Philosophy is to
achieve a successful city-wide historic preservation program by
clearly conveying historic preservation objectives opportunities
and benefits while consistently interpreting and applying the City's
adopted standards and efficiently administering the process.
(H) HISTORIC PRESERVATION OVERLAY DISTRICT
The purpose of the (H) Historic Preservation Overlay District is to
protect locally listed Landmark Sites and historic districts by •
regulating alterations to and demolitions of Landmark Sites and +.
properties within historic districts, and new construction in historic ,
districts. In addition to including eligibility criteria and procedures
for the designation of a local Landmark Site or local historic
district, the regulations also identify the standards and procedures
for issuing a Certificate of Appropriateness for relocation, New house under construction in a
demolition, new construction or alterations in local historic historic district. (Photo courtesy of
districts or on Landmark Sites. Utah State Historic Preservation
Office.)
Some comments received during this planning process suggested
that the current demolition provisions of the ordinance (including
the economic hardship process) are complex and may not be
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Community Preservation Plan Final Draft 10.2012
achieving their intended purposes. Occasionally,economic
hardship arguments have been successfully used to allow
demolition. In some cases,this may be the result of underlying
zoning that allows uses or densities that greatly exceed the value
of the existing structure. Other conditions contributing to
demolition include complications associated with seismic
retrofitting,and"demolition by neglect"whereby the owner allows
a structure to deteriorate until the cost to repair it is high enough
to qualify for demolition.
INTERNATIONAL BUILDING AND FIRE CODES
The adopted building codes used by the City address health and safety
issues. Many of the buildings within the City,especially those within
the local and national historic districts were built prior to the adoption
of the current codes. Some of today's code requirements are vastly
different and can cause a drastic change in the appearance of the
historic structures which can often result in the destruction of the
character of historically significant buildings.The current building '°"Ra"1URALDETAILS
codes have language that grants the City's Building Official the
authority to allow for some reasonable flexible application of present
code,which would allow the preservation of the historical value of
historic buildings while providing reasonable safety from fire,seismic, „ n1
or other hazards for occupants of these buildings.This can be
accomplished by the sensitive,responsive,and flexible application of
present codes,in addition to utilizing those sections allowing for _,„
exemptions and equivalences.
DESIGN GUIDELINES tt .„,"
In addition to the regulatory controls established through the
Zoning Overlay district,local historic districts and Landmark Sites
also use adopted design guidelines for review of projects on
structures that are locally designated.In addition to design
guidance,the design guidelines present a catalog of architectural �^^
styles present in the City that highlights the date range and key
characteristics of each. They also provide a brief overview and key The City's design guidelines
objectives for each local district in which they apply. address renovations,additions,
and new construction affecting
The purpose of the design guidelines is to provide owners, local landmarks and historic
architects,designers and contractors guidance in planning and districts.
designing future projects. They also provide City Staff and the
Historic Landmark Commission guidance for the interpretation of
Zoning Ordinance standards.
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Community Preservation Plan Final Draft 10.2012
POLICIES AND ACTIONS RELATING TO
REGULATIONS
Policy 3.3a: Align preservation-related City regulations
with the goals and policies of this plan.
Policy 3.3b: The Historic Preservation Overlay District
standards are to be used as the basis for decision making
when considering applications and the standards should
be applied in a reasonable manner, taking into
consideration economic and technical feasibility.
Policy 3.3c: The standards for review of projects in local
historic district or regarding Landmark Sites are to be
applied in a way that respects that change is part of
history and that appropriate additions and alterations to
Landmark Sites or structures within local historic districts
must be considered as part of a natural evolution of
historic properties and districts.
Policy 3.3d: Greater flexibility for change is allowed on
secondary facades of structures where alterations are
less likely to negatively affect the significant character-
defining features of the site or historic district.
Policy 3.3e: Greater flexibility is allowed when
considering alterations to non-contributing buildings in
local historic districts.
Action 1: Amend the zoning ordinance relating to standards
for alteration and new construction of locally designated
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Community Preservation Plan Final Draft 10.2012
historic resources to reflect the adopted preservation
philosophy and policies of this plan.
Policy 3.3f: Regulatory or process oriented provisions
which are provided as an incentive for historic
preservation should only be offered for those properties
locally designated to help offset the regulatory
provisions of required design review.
Policy3.3g: Ensure that underlying zoning is supportive
of preservation policies for the area in which historic or
character preservation is proposed.
Action 1: Assess Underlying Zoning
Assess underlying zoning to determine whether the zoning is
consistent with preservation or conservation objectives for an area,
and pursue zoning amendments to eliminate the conflicts with those
long-term preservation or conservation objectives.
Policy3.3h: Support the Building Official in allowing
modifications of strict building code interpretations for
alterations of historic structures where the modification
is generally consistent with health/ safety code
compliance and where the modification would be more
in keeping with the adopted historic preservation
standards and guidelines.
Policy 3.3i: Encourage amendment of the building
development code to clearly enable appropriate historic
renovation and remodels as well as adaptive reuse of
historic structures.
Action 1: Assess Building Code Barriers and Conflicts
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Community Preservation Plan Final Draft 10.2012
Work with an interdisciplinary team including builders, architects,
preservationists, and others to identify barriers to adaptive reuse
projects under current zoning, fire, and building codes, and develop
solutions to those barriers through code amendment where feasible
and allowable interpretations where practical.
Action 2: Develop Smart Code for Adaptive Reuse
Encourage the building department to work with planning staff in
developing an Alternative Rehabilitation Code applicable to historic
commercial, industrial and office buildings to facilitate their adaptive
reuse. This should specifically address the development code
(including zoning, building, electrical and fire code) barriers and
conflicts to adaptively reusing these structures. Models could
include the California State Historical Building Code and the Boulder,
Colorado historic building code.
Policy 3.3j: Support the modification of existing historic
residential structures to accommodate modern
conveniences in their homes when it does not otherwise
negatively detract from the historic property.
Policy 3.3k: Support modification of existing historic
resources to allow for changes in use that will encourage
the use of the structure for housing or other appropriate
uses in historic districts in an effort to ensure
preservation of the structure.
Policy 3.31: Demolition of locally designated Landmark
Sites should only be allowed where it is found that there
is an economic hardship if the demolition is not allowed
or where the structure is declared by the Building Official
to be a dangerous building.
Action 1: Revise ordinances to address concerns with
demolition and economic hardship.
Analyze the feasibility of adopting regulations that would address the
issues relating to demolition, economic hardship and demolition by
neglect. These should include best practices from other comparable
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Community Preservation Plan Final Draft 10.2012
communities, provisions for incentives as well as regulations and
identification of what staffing resources would be required for
enforcement of the regulations.
Policy 3.3m: Ensure criteria for demolition of
contributing structures are adequate to preserve historic
structures that contribute to the overall historic district
while allowing for consideration of other important
adopted City policies.
Action 1: As part of the revisions to the demolition of
contributing structure criteria, evaluate the appropriateness
of including criteria that allows the consideration of whether
the demolition would allow the advancement of other
important adopted City policies to be part of the analysis.
Consideration of other adopted policies should not be weighed more
heavily than the adopted preservation policies. The level of importance
of the other adopted policies in the demolition analysis should be based
on how relevant the contributing structure is to the overall historic
district and the significance of the location of the contributing structure
to the implementation of the other applicable adopted city policies.
Policy 3.3n: Historic Signs should be retained where
practical.
Action 1. Modify the zoning ordinance to allow historic signs
to be considered legal conforming signs that can be altered
provided the historic character of the sign is not dramatically
altered.
Action 2. Modify the zoning ordinance to allow a business to
both advertise its own presence through the use of a sign
while still retaining the historic sign in place on the building.
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Community Preservation Plan Final Draft 10.2012
Action 3: Identify and preserve existing historic signage
including historic signs no longer associated with the historic
building on which they are installed.
Policy 3.3o: Ensure that new signs are compatible with
the character of and do not diminish the integrity of the
historic area or structure.
Action 1: Amend the zoning ordinance to allow broader use
of signs if historically appropriate and consistent with
adopted plans.
Policy 3.3p: Ensure regulations for signage are clear and
allow flexibility to ensure appropriate signage types and
the preservation of historic signs.
Action 1: Develop Design Guidelines for new signs in local
historic districts and on local Landmark Sites.
The design guidelines should address sign placement and sign
design to ensure that historic signs can be kept without the
building looking cluttered while allowing the current business to
appropriately denote its presence.
Action 2: Create design guidelines to better address
protection of historic signs, such as historic business signage,
within local districts or on Landmark Sites.
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Community Preservation Plan Final Draft 10.2012
Policy 3.3q: Ensure the adopted design guidelines are
clear, complete and adequate to help decision makers
consistently interpret the Historic Preservation Overlay
District standards and provide the public with easy to
understand design advice to address various issues
relating to alterations and new construction in local
historic districts and to Landmark Sites.
Action 1: Refine portions of design guidelines in order to
offer a greater degree of guidance and clarity for how to
achieve compatibility while retaining a degree of flexibility for
the property owner.
Action 2: Develop Design Guidelines for various types of land
uses and Development Types
Develop design guidelines for land uses and development types that
have not yet been addressed including multi-family residential,
institutional, industrial, parks and open space areas relating to both
renovation of existing structures in historic districts or Landmark
Sites. This will guide decisions to be made for alterations and new
construction of various types of buildings.
Policy 3.3r: The guidelines should be updated on a
regular basis to ensure clarity and implementation of
.appropriate best historic preservation practices.
Action 1: Gather Relevant "Best Practice" Educational
Materials
Review best practices for historic preservation on an annual basis,
through on-going coordination with the Utah Heritage Foundation,
the State Historic Preservation Office, the National Trust for Historic
Preservation, the National Park Service, City departments, and others
as appropriate to create a list of preservation-related "best practice"
educational materials for potential inclusion in the regulations and
design guidelines. Updates to the standards and guidelines should
be submitted to the Historic Landmark Commission, Planning
Commission and City Council for their consideration for adoption.
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Community Preservation Plan Final Draft 10.2012
Policy 3.3s: Ensure that the requirements from one set of
general design guidelines to another are compatible.
The general design guidelines include those relating to the general
residential, commercial, multi-family, and other development types
of guidelines. This is especially important where new construction is
not of the same use as the other surrounding uses such as the
addition of a neighborhood commercial area in a historic
neighborhood.This does not necessarily relate to the specific historic
district guidelines in that each historic district has unique character
defining aspects to it.
INCENTIVES
OVERVIEW
Historic Preservation is an important goal of the City's and is conducted
on behalf of the public interest to preserve important aspects of the
City's built heritage. Owners whose properties are governed by the H
Historic Preservation Overlay Zone do have various benefits from
historic preservation regulation such as stabilization or an increase in
property values and an assurance that the properties in the
neighborhood will not have major changes that conflict with the
historic character of the area. However,the additional regulation
associated with historic preservation can also be seen as a burden. To
offset the factors associated with additional regulation,various types of
incentives should be afforded those property owners who work within
the system of local historic preservation regulations. The following are
various types of regulatory,financial and procedural incentives that are
now, or in the future should become, part of Salt Lake City's historic
preservation program. (See Appendix C)
REGULATORY INCENTIVES
FLEXIBILITY IN ZONING REGULATIONS
The base zoning regulations are created to best fit new
construction to accommodate current development policies.
Regulations that affect building placement on a lot, height
regulations and type and amounts of signage may inadvertently
go against compatible development design in historic districts. In
some instances, various types of approval may be required by the
base zone or other applicable regulations such as those relating to
accessory structures, parking, signage and landscaping, to be able
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Community Preservation Plan Final Draft 10.2012
to create a compatible modification to a historic structure.
Because historic preservation is a benefit to current and future
citizens,some flexibility of zoning regulations is appropriate to
help achieve a more compatible historic preservation solution. In
addition,a process that is as streamlined as possible,while still
affording appropriate levels of review is important to encourage
property owners have an easier time of helping the City achieve its I Incentives
•
historic preservation goals.
This plan proposes a wide
range of possible
ADAPTIVE REUSE OF HISTORIC BUILDINGS incentives for preservation,
i including new regulation
The Zoning Ordinance includes a provision to allow for a limited programs and process and
number of non-residential uses to be located in a residentially zoned financial incentives. •
Landmark Site through the conditional use process. The types of uses
have been limited to the following uses: Other incentives the city
might propose in the
• Bed and breakfast establishments future include:
• Density bonuses
• House museums ' • Tax waivers or deferrals
• Offices • Waiver or
• Reception Centers postponement of
While this provision has been utilized in the past,Staff has identified permit fees
•
the need to broaden the types of non-residential uses that could be • Expedited review
allowed,not only to encourage preservation of more Landmark Sites Relief from zoning or
but to also increase a more sustainable/livable City. By allowing some building code
multi-family residential and lower intensive non-residential uses in requirements •
• Allowing conditional
Landmark Sites within neighborhoods it could provide more services uses in historic
easily accessible for residents. In addition,the criteria may be modified properties beyond
so it is easier for Landmark Sites on higher traffic streets such as those generally
arterials or near fixed transit stations,to be used for adaptive reuse. allowed under base
Currently,the regulations are fairly strict and just address those zoning(already in
Landmark Sites that otherwise may have no viable economic use. place in Salt Lake;
Increasing the types of uses should also include some assurance that could be expanded)
the historic interior of the significant structures are also preserved.
The National Trust for
Historic Preservation is a
DENSITY BONUSESI good reference source for s
Transfer of Development Rights frequently updated
•
information regarding
Transfer of development rights(TDR)programs treat development 1 incentives in use around
potential as a commodity that can be transferred(often for a 1 the country.
price)between designated sending and receiving areas. In the
case of preservation,such programs can be used to transfer
density from historic buildings to other properties in the city. The
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Community Preservation Plan Final Draft 10.2012
purchase of the development rights associated with a historic
property preserves the property and compensates the property
owner for the foregone development potential. The purchaser of
the rights is then able to develop their property at a higher density
or intensity than would otherwise have been allowed. The system
is designed to reduce redevelopment pressure on historic
landmarks by allowing unused development potential to be
transferred. The landmark owner may generate additional income
by selling development rights to the owner or developer of the
receiving site. Transfer of Development Rights work best where
the regulation of development height and intensity in surrounding
areas is limited. This creates a "market" for the transferred
development rights. Where the regulations of the surrounding
area development allowance is already high or where allowing
higher and more intensive development in the surrounding area
would not be compatible with the existing development, the
Transfer of Development Rights does not work well because there
is no market or appropriate area to transfer the development
rights to.
Any Transfer of Development Rights (TDR)program should build
in a review period to assess its function and make any necessary
"Tune ups." If any unintended outcomes have occurred, or if the
system becomes too complex, the City should seek to diagnoses
the program structure and components to better direct the use of
the system. Likewise, if market assumptions were incorrect and
the market is either under- or over- performing, adjustments in
the supply and demand side of the credits should be made. (See
Appendix G)
FINANCIAL INCENTIVES
TAX CREDITS
The federal and state government offer tax credits as an incentive for
rehabilitating historic buildings listed in the National Register.The
federal tax credits are available only for major rehabilitation work on
"income-producing"(commercial or residential rental) buildings;
private residences are excluded. A similar tax credit is available from
the State for buildings listed in the National Register which are used as
a private(owner-occupied) residence or residential rental. Any work on
the interior or the exterior of the building which meets the Secretary of
the Interior's Standards for Rehabilitation qualifies for the tax credit.A
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Community Preservation Plan Final Draft 10.2012
building must be kept at least five years in order to avoid any recapture
of the tax credit by the federal government.
For the State program, if an owner expends a minimum of$io,000, and
the work is approved, zo%ofthe rehabilitation costs may be claimed as
a tax credit.Twenty percent of all qualified rehabilitation costs may be
deducted from taxes owed on Utah income taxes. All of the proposed,
ongoing or completed work must meet the Secretary of the Interior's
Standards for Rehabilitation and be approved by the State Historic
Preservation Office (SHPO).The project must be completed within 36
months.
Low Interest Loans
Many cities provide low interest rehabilitation loans for historic
resources.Among them are Ogden and Park City. The terms of these
loans and what requirements are imposed differ from city to city. Salt
Lake City offers some loan programs through the Redevelopment
Agency, Housing and Neighborhood Development Division and
Economic Development Division but these loans are not specifically
directed at historic properties.
The Utah Heritage Foundation is a non-profit organization whose
mission is to preserve, protect, and promote Utah's historic
environment through public awareness,advocacy, and active
preservation. The Foundation fulfills its mission through a wide range
of programs and activities which reach communities throughout the
state.
One of their programs,the Revolving Fund Loan Program, provides
property owners with technical assistance and loans to purchase,
restore, and rehabilitate historically significant properties. Loans may
be considered for buildings on the local or national registers, or eligible
for these registers(whether formally designated or not). In general
terms,this means that a building must be at least 5o years old and
retains its architectural integrity
Loan funds can be used for acquisition, restoration, rehabilitation and
repair, and project-related costs such as engineering services,
architect's fees, and permits.
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Community Preservation Plan Final Draft 10.2012
Low Application Fees
Development fees for a project can represent a substantial cost to an
applicant. Salt Lake City has purposefully kept its application fees for
historic preservation projects very low. Historic Preservation projects
that can be administratively approved do not require an application fee.
Approximately ninety-three percent(93%)of all Certificates of
Appropriateness are administratively approved. In 2011,the
application fees range from approximately$27 for significant
alterations of principal structures,to approximately$23o for new
construction within a local historic district. All new construction
projects of principal structures are required to be considered by the
Historic Landmark Commission during a public hearing. The
application fee for demolition of a contributing structure in 2011 was
relatively low at approximately$450,for the amount of time, analysis
and public input process a demolition request requires. On the other
hand,the fee for a conditional use in Landmark Site application, at
approximately$66o is somewhat high if the City wants to use this
provision as an incentive to encourage adaptive reuse and continued
preservation of Landmark Sites.
PROCESS ORIENTED INCENTIVES
Process oriented incentives may be the easiest to implement and can
reduce the time required for granting approvals. Currently, less than
ao%of Certificate of Appropriateness applications are considered by
the Historic Landmark Commission. The percentage of applications
that require a public hearing before the Historic Landmark Commission
was substantially reduced following amendments to the Historic
Preservation Overlay standards in 1995. Most administrative approvals
can be granted within a week with many being approved at the Permits
Office the same day they are applied for. Any project that must go to
the Historic Landmark Commission for a public hearing generally
requires four to eight weeks of processing time.
In the past,certain sized renovation or restoration projects required
Historic Landmark Commission approval regardless of whether they
appeared to meet the adopted standards for the project. Because the
regulatory process for locally designated structures can be a cost to the
owners of properties,where the renovation or restoration project
appears to meet the standards for approval, regardless of the size of
the project,the approval process should be streamlined. New
construction of principal structures would not fall into this category.
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Community Preservation Plan Final Draft 10.2012
In addition, providing priority processing of building permits(similar to
the City's program for priority processing of potential LEED certified
projects)should be considered.
POLICIES AND ACTIONS RELATING TO
INCENTIVES
Policy 3.4a: Continue to broaden the range of regulatory
tools available to encourage the preservation of historic
properties.
Policy 3.4b: Develop a wide range of incentives to
encourage the protection of historic properties.
Policy 3.4c: Modification to lot, bulk and signage
standards should be allowed in local historic districts and
to Landmark Sites where the modification would allow
for better compliance with the historic preservation
standards than the underlying zoning standard would
allow.
Action 1. Amend the zoning regulations to grant the Historic
Landmark Commission or the Planning Director, where
appropriate, the authority to modify lot, bulk and signage
standards where the modification is necessary to achieve an
appropriate solution to a compatible alteration of a Landmark
Site or contributing structure within a locally designated
historic district.
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Community Preservation Plan Final Draft 10.2012
Policy 3.4d: Adaptive Reuse of Historic Structures should
be allowed for a variety of uses in appropriate locations
where it is found that the negative impacts can be
mitigated and where the uses do not require significant
alterations to the historic integrity of the interior of the
structure.
Action 1: Increase the list of allowable adaptive reuse options
in Landmark Sites.
Action 2. Amend the zoning ordinance to allow shared
parking options for approved Adaptive Reuse of locally
designated Landmark Sites.
Policy 3.4e: Facilitate public awareness to existing
financial incentives through education and technical
assistance and work with preservation partners to
increase available funding to meet the high demand for
assistance.
Action 1. Amend the zoning regulations to allow density
bonuses,in the form of an additional unit,for structures in
the local historic district or a Landmark Site which are zoned
multi-family on lots that would not otherwise allow additional
units due to size.
Action 2: Explore various types of financial incentives that the
City could offer exclusively to those owners whose property is
located within a local historic district or designated as a local
Landmark Site
Policy 3.4f:Encourage the use of City Housing,
Redevelopment and Business Loans for the renovation of
contributing structures within locally designated historic
districts or Landmark Sites.
Action 1:Revise the purpose statements for the City's
Housing,Redevelopment and Business loans to include
historic preservation as an objective of the mission for focus
of various types of assistance including financial.
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Community Preservation Plan Final Draft 10.2012
Policy 3.4g: Retain low review fees for alteration and
construction applications relating to the H Historic
Preservation Overlay Zone.
Action 1: Analyze the feasibility of decreasing the fee for
Adaptive Reuse (Conditional Use in Historic Structure)
applications to make this incentive more accessible to owners
of Landmark Sites.
Policy 3.4h: Ensure fees for demolition of Landmark
Sites or contributing structures in a locally designated
historic district adequately reflect the cost of processing
those types of applications.
Action 1: Analyze the feasibility of increasing the fee for the
demolition of a contributing structure in a locally designated
historic district or Landmark Site to better reflect the time
required to process and analyze these types of applications.
Policy 3.4i: Strongly encourage and support the
continued designation of eligible properties within Salt
Lake City to be placed in the National Register of Historic
Places whether as a district or individually in order to
provide property owners with financial incentives to
appropriately maintain and renovate their historic
properties.
Action 1: Identify various ways to inform property owners
about existing incentives to increase participation in these
programs.
Work with State Historic Preservation Office and the Utah Heritage
Foundation as necessary to clarify the procedures for tax
incentives and low interest loans to make the process more user-
friendly. For more information on tax incentives and low-interest
loans for rehabilitation, see the table in Appendix C.
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Community Preservation Plan Final Draft 10.2012
Policy 3.4j: Streamline the approval process for
renovation or restoration projects that meet the
standards for approval.
Action 1:Amend the zoning ordinance to include an
administrative approval option for renovation or restoration
projects, regardless of size, where the Planning Director
makes findings that the project meets the standards for
approval.
Policy 3.4k: The process for obtaining building permits
for approved projects in local historic districts or for
Landmark Sites should be streamlined.
Action 1: Amend the City ordinance to expedite the building
permit process for approved projects in local historic districts
or on locally designated Landmark Sites.
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Community Preservation Plan Final Draft 10.2012
Administer a Convenient and
Consistent Preservation
Program
VISION
Clear and efficient administrative procedures, convenient
resources and access to staff, and consistent information on, and
application of, the rules are crucial components to a successful
community preservation program. With the continuous support of
the City, and working with other departments where appropriate,
the Planning Division develops the written information resources,
streamlined processes, and staffing to administer the program in a
clear and timely fashion. The policies of the Community
Preservation Plan establish the short-term and long-term goals
and priorities for the program to assist both staff and decision-
makers with their respective roles in achieving this component of
the vision. In addition, the City will consistently enforce
requirements in historic districts and character conservation
districts to reinforce necessary property owner's participation with
the preservation program.
DEVELOPMENT REVIEW
OVERVIEW
LOCAL HISTORIC DISTRICT ADMINISTRATION
Administration of the City's local historic preservation program
owes much to the efforts of the Historic Landmark Commission
and the Planning Division. These two groups assist property
owners with the application process and the design guidelines, as
well as ultimately conducting application review for properties
subject to the Historic Preservation Overlay District regulations
and design guidelines. Together, these two groups manage the
majority of the program's responsibilities.
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Community Preservation Plan Final Draft 10.2012
The Historic Landmark Commission is the official City entity
charged with reviewing and deciding upon all applications for
Certificates of Appropriateness in local historic districts and in
Landmark Sites that are not delegated to staff.
COMMUNITY CHARACTER CONSERVATION
Administration of the City's community character conservation
program is overseen by the Building Services Division, Planning
Division and Planning Commission. The Planning Division and
ultimately the Planning Commission work with the property
owners of the subject area to determine which character
conservation tools, whether they be design guidelines or zoning
regulations, would best meet the desires of the neighborhood in
its efforts to preserve the specific physical character traits of the
community. Once adopted, the Building Services Division will
review projects to ensure compliance with adopted character
conservation district regulations and guidelines.
COMMISSIONER TRAINING
Comments received during this planning process indicated that a
key goal for the City should be to maximize the effectiveness of 0 p p II
the Historic Landmark and Planning commissions by ensuring the
members receive proper training and support. The volunteer
members of both commissions devote a significant amount of - Y
time and effort to learning the nuts and bolts of the City's policies, ! f
regulations and guidelines. The City should work to make citizen
involvement in this important administrative function as easy and
effective as possible. Additional training of the Commission
members, coupled with support of new members to ease
transitions, would help make the overall preservation program In 2008, the Historic Landmark
leadership more unified, consistent, and effective. In particular, Commission and Planning staff
attended a training session
ongoing education of best practices and new techniques would provided by the National
greatly advance the preservation program and enable the Alliance of Preservation
Commission members to stay current in their knowledge. Commissions and funded by the
State Historic Preservation Office
Currently, new Commissioners participate in a brief training and National Trust.
session regarding the City's preservation program, in which they
learn about the policies, regulations, design guidelines, and
Commission roles and responsibilities. Aside from this initial
training and packet of technical and procedural information, there
is little formal training of Commissioners. Consequently, both
Commissioners and the experienced professionals who typically
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Community Preservation Plan Final Draft 10.2012
represent clients before the commissions, report a lag time of
several months where new members are learning on-the-job.
Both sides of the table would like Commission members to receive
more training to enable them to quickly get up to speed, and to
also foster some level of consistency in the application of
regulations.
POLICIES AND ACTIONS RELATING TO
DEVELOPMENT REVIEW
Policy 4.1a: Ensure that ongoing training is provided for
the Historic Landmark Commission, Planning
Commission and City Staff to ensure that the City's
decision makers understand historic preservation and
character conservation practices and philosophy
necessary to meet the goals of Salt Lake City.
Action 1: Increase knowledge and expertise of the Historic
Landmark Commission, Planning Commission and City Staff
through training on at least an annual basis relating to
structure elements, historic and character preservation
policies and regulations as well as best professional practices,
to ensure they all have the information to continuously lead
and improve the preservation program.
Policy 4.1b: The Historic Landmark Commission is a
regulatory body with a role in review and adjudicating
administrative types of matters in Salt Lake City's H
Historic Preservation Overlay zone and therefore, should
not have an active advocacy role in the Salt Lake City
Preservation program.
Action 1: Refine the "Historic Landmark Commission
Membership" section of the zoning ordinance to remove
reference to public advocacy, since that function is already
performed by other preservation stakeholders. Instead,
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Community Preservation Plan Final Draft 10.2012
emphasize the responsibility of the Commission to educate
and regulate.
Policy 4.1c. An architectural review committee
consisting of Historic Landmark Commission members
who are professional architects, contractors or members
with design / construction types of experience should be
established to meet and give applicants and staff advice
on technical solutions to preservation project issues.
Action 1: Revise the zoning regulations to formally establish
an architectural review committee of the Historic Landmark
Commission to provide technical construction guidance to
applicants and staff in an effort to provide advice on how to
resolve technical issues for the participants in the process
Policy 4.1d: The number and types of Certificates of
Appropriateness processed each year should be a factor
in future decisions about how existing and new
components of the preservation program are
administered.
Action 1: Annually review the number and type of
Certificates of Appropriateness submitted through the process
in order to determine timeliness of reviews, the issues that
have surfaced relating to the regulations and guidelines and
determine whether the tools and resources to address the
projects are appropriate or whether adjustments are needed.
Policy 4.1e: In order to streamline the process for
property owners and make the caseload of the Historic
Landmark Commission manageable, as much as possible
decisions relating to all minor projects and major
projects that meet the standards for preservation should
be handled administratively.
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Community Preservation Plan Final Draft 10.2012
Policy 4.1f: Character conservation districts should be
administered in as streamlined a manner as possible.
Once specific regulatory guidelines are developed in a
character conservation district, development projects
should be reviewed and decided on administratively
rather than by a specific design review body.
PROGRAM ADMINISTRATION
OVERVIEW
In addition to the Historic Landmark Commission and Planning Certified Local Government
Commission, the success of the Salt Lake City preservation Program
program depends on the contributions of a variety of individuals The Certified Local Government
and groups, including City officials, property owners and (CLG) program was established as
residents. With historic preservation, the City also has the strong an amendment in 1980 to the
preservation partners such as the State Historic Preservation National Historic Preservation Act
as a way of integrating local
Office (SHPO) and the Utah Heritage Foundation (UHF). This governments as "historic
section discusses the groups involved in the administration of preservation partners"with the
the preservation program, besides the Historic Landmark and national historic preservation
Planning Commissions, along with various other aspects of the program. The 1980 amendments
specify requirements for the
preservation program administration. participation of local communities
in the program. Certification
GROUPS WITH ADMINISTRATIVE RESPONSIBILITIES includes enacting an approved
preservation ordinance and
Salt Lake City Planning Division appointing a historic preservation
commission of at least five people.
The Salt Lake City Planning Division has been charged with Salt Lake City has been a Certified
overseeing the City's preservation program since 1976. The Local Government since August
Planning Division oversees development in local historic districts, 19, 1985 and an active participant
drafting guidelines for character conservation districts and other in the program since 1993. This
program is run by the State
areas and provides professional staff to support the Historic Historic Preservation Office
Landmark and Planning Commissions. (SHPO).
Historic Landmark Commission and Planning Commission
In 1980, the Planning Division hired its first planner to address
historic preservation issues in the City. Since that time, historic
preservation has become a staff-wide program. In 1991, the City
adopted its first Urban Design Element, after the 1988 Regional /
Urban Design Assistance Team (R/UDAT) review. The desire for
review of design and preservation of community character has
continued to gain interest. The Planning Division staff is
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Community Preservation Plan Final Draft 10.2012
responsible for regular planning tasks as well as the numerous
specialized functions of the preservation program including:
• Administrative review of applications for Certificates of
Appropriateness for properties to which the Historic
Preservation Overlay Zoning District applies;
• Drafting design guidelines for both the local historic districts
and character conservation districts;
• Drafting regulations relating to historic preservation and
community character conservation
• Attendance and preparation related to Historic Landmark and
Planning Commission meetings;
• First point of contact for public questions on historic
preservation, including property status, interpretation of the
Historic Preservation Overlay Zoning District regulations and
design guideline requirements;
• Long-range and strategic planning for continued development
of the program;
• Coordination with other preservation partners and City
departments on preservation matters; and
• General education and outreach to the community on historic
preservation and the preservation program.
Because all proposed local historic designations and community
character conservation districts or other similar tools are
technically zoning changes, all of them must go through the public
hearing process with the Planning Commission which, by State
Law, is required to make a recommendation to the City Council
before a final decision is made. The Planning Commission also
makes decisions on conditional uses in historic structures, an
incentive for preservation that allows adaptive reuse in zoning
districts where the use may not otherwise be allowed.
City Council
The City Council reviews applications for the establishment of local
Landmark Sites and historic districts as well as zoning tools for
character conservation districts and makes the final decision,
based upon recommendations from the Historic Landmark
Commission and Planning Commission. The City Council is also
responsible for setting preservation policy; allocating funding for
preservation projects such as surveys, and staffing levels; and
adopting tools to implement the program such as zoning
regulations and design guidelines. In addition, the City Council has
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Community Preservation Plan Final Draft 10.2012
the authority to consent to the appointments made by the Mayor
to the Historic Landmark and Planning Commissions.
HISTORIC LANDMARK COMMISSION PROJECT REVIEW
AND DECISION
A property owner of a local Landmark Site or of a property within
a local historic district who wishes to obtain a certificate of
appropriateness (COA) does so in one of two ways: administrative
review and decision, or review and decision by the Historic
Landmark Commission. The procedural route of the project is
principally determined by the status of the property and the action
requested by the property owner. However, referral of
administrative decisions can shift decision-making to the
Commission.
BUILDING CAPACITY MOVING FORWARD
During the process of developing this plan, several themes
emerged regarding how administration of the preservation
program could be improved.
First, the procedures for review and approval of development
applications involving historic properties are not clear to the
general public. People working to bring a project through the
process have met with delays and confusion. This is in part due to
available planning staff resources. In addition, there are generally,
perceived problems with development review that have led some
individuals and companies to avoid projects that would involve a
local Landmark Site or property within a local historic district. In
addition, some people build without permits, risking enforcement
action if caught. Project approval was also cited as inconsistent
from project to project, though there is variation in whether this is
perceived as a negative or positive of the program. Some see the
inconsistency as frustrating, while others welcome it as an
unofficial loophole through which to inject projects with a greater
level of creativity than would be allowed with a stricter
administration of the regulations. (This tends to be a frequent
user perspective of historic preservation professionals. Individual
property owners and residents find the inconsistencies inefficient
and frustrating.)
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Community Preservation Plan Final Draft 10.2012
Ensuring Adequate Staff Levels
A number of comments were received regarding the City's staffing
levels for the Planning Division, with many comments suggesting
that current levels are too low. To some observers, low staffing
levels mean that staff members must devote the majority of their
time to day-to-day review of applications and assistance to
property owners, leaving little time for addressing more long-
range planning (like overseeing new surveys and nominations or
clarifying regulations and procedures) general education efforts,
and developing resources to improve user-friendliness of the
process.
Education of the Design Review Process
In addition to ensuring appropriate staffing levels, the City should
focus on offering tools and resources that can improve user-
friendliness while also freeing up staff time from dealing with basic
program procedural questions. New tools and resources are
needed to enable people to understand and navigate the
requirements, steps, and timing of the City's procedures as they
relate to their project as well as educating the general public on
the importance of historic preservation.
Enforcement of Regulations and Approvals
Finally, a major function that has not been provided by the City is
code enforcement specifically for historic projects. City code
enforcement officers lack the appropriate staffing and historic
preservation-specific training to enable effective and proactive
enforcement of historic preservation regulations. This has resulted
in a perception that projects can be done illegally outside of the
system with less cost and time commitment, and with no
repercussions.
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Community Preservation Plan Final Draft 10.2012
POLICIES AND ACTIONS RELATING TO
PROGRAM ADMINISTRATION
Policy 4.2a: Ensure staffing levels are appropriate to
ensure timely review of Certificates of Appropriateness
and character conservation applications as well as meet
the needs for education, outreach, and other plan
implementation tasks.
Action 1: Create a metric and workload tracking system to
annually evaluate whether resource levels are appropriate to
effectively and efficiently administer the preservation
program.
Action 2: Provide Education for Staff
Ensure that staff members are provided with educational resources
and training to effectively administer the City's preservation
programs, including but not limited to regulatory tools, design
guidelines, construction and architectural methods, survey work and
best professional practices to ensure the preservation ordinances are
consistently administered and updated when necessary.
Action 3: Provide Training on Preservation Regulations and
Design Guidelines to City Departments as well as other
interest groups
Provide training workshops annually to City Departments, other
interest groups such as architects, contractors and realtors as well as
property owners and the general public on the preservation
regulations and design guidelines to ensure that they understand the
reasoning for the regulations and the regulations are consistently
applied.
Policy 4.2b: Improve user-friendliness of the decision
making process.
The City will work to make participation in the preservation
program as clear, predictable, and easy as possible. This will be
achieved through developing informational resources and making
necessary procedural changes.
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Community Preservation Plan Final Draft 10.2012
Policy 4.2c: Ensure informational resources are available
to assist applicants in knowing the requirements, and
timeframes for each step to help them successfully
navigate the process.
Action 1: Create various informational tools relating to
historic preservation and character conservation projects.
Develop ways of describing the requirements and review process for
approval of projects while also communicating the big-picture
objectives of what preservation, and its additional requirements, are
intended to achieve. This should be accomplished through various
formats electronically, visually and with handouts.
Policy 4.2d: Ensure preservation regulations are
enforced.
Program regulations need to be enforced to ensure applicable
regulations and review process are adhered to and that the City is
sending a clear and consistent message in support of historic
preservation and community character preservation.
Action 1: Provide Training on Historic Preservation and
Character Conservation regulations to Inspectors and
Enforcement Officers
On a regular basis, provide training on historic preservation and
character conservation regulations and principals to building
inspectors and code enforcement officers so they understand the
importance and any nuance of the regulations in order to ensure
approved renovations and new construction are conducted in
accordance with approved specifications and to identify unpermitted
activities. Identify the importance of enforcement of the regulations
to decrease the temptation by some property owners to bypass the
system.
Action 2: Develop System for New Construction Project
Review
Modify the review procedures for new construction in historic
districts to require review and comment by planning staff on building
permits to assure details and approval conditions are on final permit
plans and also during key phases of the construction, to ensure
conformance with the approved permit.
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Community Preservation Plan Final Draft 10.2012
Policy 4.2e: Ensure the City's technological capacity is
adequate to facilitate program administration.
Several opportunities exist for the City to streamline and facilitate
information sharing and analysis to support preservation program
activities. Geographic Information Systems(GIS)could assist with
analyzing spatial considerations within districts,such as how
current and future transit station areas overlap with historic
districts to identify what policies affect certain geographical areas
so future analysis can be conducted to address conflicting policies
and identify solutions where necessary. It could also facilitate
understanding and sharing information on a specific property with
applicants and other departments,such as how it is zoned,
including any overlay zones,or what future land use is designated
for the property. Ideally,any database capacity the City develops
will be easily integrated with the database of the State Historic
Preservation Office.
Action 1: Build GIS capacity within the preservation program
to assist and inform program activities.
Possible attributes that can be maintained include:survey rating and
survey date,age of structure,condition information,permits granted
and permit dates,enforcement history,owner name and address,
current land use,zoning and any applicable overlays,photographs
and planned land use. Where possible,data on historic properties
should be coordinated with the State Historic Preservation Office's
data management programs to allow for the sharing of data where
appropriate(such as by coordinating parcel identification numbers).
•
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Community Preservation Plan Final Draft 10.2012
Improve Education and
Outreach
VISION
The City clearly and consistently conveys the message that historic
preservation is valued in Salt Lake City. Planning staff works with _
other City department staff, the Historic Landmark Commission, ‘f4
and other historic preservation partners to communicate that `
11.
message. The City and its preservation partners take up the I
important charge of promoting preservation, creating a wide , „.41k , a
range of educational materials to increase community pride and
awareness of the City's history and how that history relates to the
built environment. Residents and visitors are able to easily access
information on the rich history of Salt Lake City through a variety
of interactive means including the internet, printed materials,
interpretive signage, walking tours, videos and other media as
appropriate.
OVERVIEW
There are numerous resources available to help citizens learn
about, support, enjoy, and preserve the historic resources of Salt
Lake City. The City offers some of these resources, most notably
the City's website, which provides useful technical materials
describing the City's historic preservation regulations and
guidelines. Further, the City's historic preservation partners—
particularly the State Historic Preservation Office (SHPO) and Utah
Heritage Foundation (UHF) -- offer numerous additional resources
for education and outreach. These include materials to assist
property owners with researching and documenting their own
structures; information describing tools and incentives that are
available to facilitate preservation, like tax credits, low interest
loans and preservation easements; and educational resources,
tours, and award programs to help children, residents, and visitors
learn about and appreciate the important historic resources of the
City.
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Community Preservation Plan Final Draft 10.2012
The City currently does not perform extensive education and
outreach as part of its historic preservation program. Available
information on historic preservation is limited to functional
descriptions of program components and procedures and is
conveyed largely through the Historic Preservation website. While
this information is useful, it is often seen only by those already
aware of historic preservation. Information that would inform the
community about the City's history, what historic preservation is,
and its benefits to the community would help expand awareness,
support, and participation in historic preservation activities.
Outreach efforts could be conducted online as well as through the
production of printed materials, videos and reports, public J
presentations, and broadcasts on SLCTV.
The lack of a direct education and outreach effort has largely been The Historic Preservation
attributable to limited staffing, but also to the fact that the City website is a major asset in
lacked a clear and consistent message to convey to the public sharing information about
regarding the purpose and long-term objectives of preservation in the City's historic preservation
the City. Now, with the completion o: a city-wide community program.
preservation plan, the City will work to improve public awareness
of the preservation program by providing materials to clearly
express program requirements and benefits and making those
materials readily accessible.
CITY OUTREACH
Community Associations
Salt Lake City recognizes community associations whose purpose
is to provide input and information to City departments, on
various matters, including those relating to historic preservation-
related issues. Community Associations are encouraged to
provide input early in the process to the City on all matters
affecting the City or each organization's particular area of interest
or geographic area. Most of these groups hold regular meetings,
some issue a monthly newsletter, hold street festivals or support
community gatherings and many maintain a listserv. All of these
are good sources of information-sharing and means of garnering
public participation in the City.
City Website
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Community Preservation Plan Final Draft 10.2012
The website of the Historic Preservation program is currently the
principal source for information about the City's historic
preservation program. The City is currently revising its online
materials to further the utility of the website.
STATE HISTORIC PRESERVATION OFFICE OUTREACH
PROGRAMS
In addition to its participation in the nomination process for :._ _
National Register of Historic Places designations, the State Historic -= -Preservation Office (SHPO) is an active preservation partner,
providing technical and financial assistance and researchinformation to to property owners and t'e City.
Technical Assistance: State and Federal Tax Credits The Utah SHPO website is a
- - -- - - - - - rich source of state history
The State Historic Preservation Office oversees Section 106 reviews information and educational
for projects using federal funding and administers the state and resources.
federal tax credits and various other federal grants for
preservation. As such, the SHPO has proved to be the most
valuable source of information on tax credits for owners of historic
properties in the City, particularly those with properties that are
listed in the National Register where the owner desires to take
advantage of the tax credit program. The SHPO's commitment to
assisting property owners and expertise in navigating the forms
and processes of historic tax credits has resulted in many
renovation and adaptive reuse projects that preserved additional
resources outside of the City's regulatory preservation program.
Since all of the existing local historic districts are also nationally
registered, the tax credit program has been a strong financial
incentive for renovation of historic resources in the City.
Property Research Assistance
The SHPO assists property owners with historic research on
individual properties. This ability will be greatly expanded through
an online inventory of Utah historic sites, which is currently under
development, and will be a great resource for City staff, the
Historic Landmark Commission, and residents to research and
track properties.
Other Education and Outreach Activities
The SHPO also offers a variety of other education and outreach
activities, such as:
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Community Preservation Plan Final Draft 10.2012
• An online interactive Utah history game for children
through its website.
• A directory of contractors to help with historic projects.
• Guidelines for photographing a historic property.
• Guidelines for measuring historic building floor plans.
• An on-line course on how to identify historic features.
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Community Preservation Plan Final Draft 10.2012
UTAH HERITAGE FOUNDATION OUTREACH PROGRAMS
Established in 1966, the Utah Heritage Foundation was the first
statewide preservation organization in the western United States.
As a private, membership-based, not-for-profit organization, the
—�--tea-.,.r�•
Foundation helps property owners, preservation professionals,
organizations and government agencies to preserve, protect and - -
promote Utah's built environment through public awareness,
advocacy and active preservation. The Foundation fulfills its
mission through a wide range of programs and activities, including --- -�'
low-interest loans from its Revolving Fund Loan Program, which
reach communities throughout the state.
Utah Heritage Foundation
Educational Tours website highlights a variety of
- - - - - - historic preservation activities in
The Utah Heritage Foundation has several self-guided historic the state, much of which is
tours of the City: taking place in Salt Lake City—
including awards, tours,and
• Historic Buildings of Capitol Hill, preservation methods and
• Historic Downtown Walking Tour, and incentives.
• Historic South Temple Street.
In addition, the Utah Heritage Foundation docents offer tours for
Kindergarten through twelfth (12) grade students as well as the
general public of the following sites in Salt Lake City:
• Kearns (Governor's) Mansion and Keith Mansion,
on South Temple
• Salt Lake City and County Building,
• McCune Mansion on Main Street in the Capitol Hill
neighborhood,
• Meditation Chapel in Memory Grove Park, and
• Marmalade District on Capitol Hill.
State Preservation Conference and Heritage Awards .
In 2007 the Utah Heritage Foundation began hosting the annual
State Historic Preservation Conference which offers various .01
workshops, speakers and other information relating to Historic M 7 ,`
Preservation accomplishments and current best professional
practices. _
As a part of their annual
conference, Utah H .ritage
The Utah Heritage Foundation annouices annual Heritage Awards Foundation offers home tours.
to highlight exemplary preservation projects from the prior year. (Photo courtesy of Utah Heritage
This positive reinforcement of preservation is a valuable tool to Foundation.)
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Community Preservation Plan Final Draft 10.2012
highlight historic sites and the value of preservation activity. While
these awards are statewide, many of the recipients are in the City
due to the fact that most preservation activity in the state takes
place in Salt Lake City.
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Community Preservation Plan Final Draft 10.2012
POLICIES AND ACTIONS RELATING TO
EDUCATION AND OUTREACH
Policy 5.1a: Increase public awareness of the historic
preservation program and its benefits.
Action 1: Ensure owners of properties within historic districts
and Landmark Sites are notified of the designation.
Action 2: Annual Property Owner Newsletter
Create a newsletter that is sent at least annually to owners of historic
properties to remind them of historic property status, maintenance
tips, and available information and assistance.
Action 3: Convey Historic Status as Part of the Sale Process
Partner with realtor organizations to convey the historic status of a
property during the marketing of a property, as well as at the time of
purchase (e.g.,through an additional item on the disclosure form) to
ensure new owners are aware of the designation status. At the same
time, provide potential buyers with information on what that
designation (e.g., local versus national listing) will mean for them as
an owner.
Action 4: Develop Property Maintenance Handouts
Develop a series of informational handouts and videos on property
maintenance topics to help property owners find the information
they need in a clear, consistent, and easy-to-use format. In
developing the series, make use of existing materials already
developed by other entities, such as the State Historic Preservation
Office, the National Park Service and the Utah Heritage Foundation
to avoid duplication efforts and to coordinate distribution efforts.
Policy 5.1b: Improve coordination with preservation
partners to support educational efforts.
The City will partner with the State Historic Preservation Office and
Utah Heritage Foundation to ensure that the City offers a
comprehensive program of education and outreach to owners of
historic properties and the general public. This will include
information on history, formal historic tours, self-guided walking
tours, property research methods, tax credit and financing
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Community Preservation Plan Final Draft 10.2012
information and assistance, adopted best preservation practices,
and other materials on the benefits and importance of historic
preservation.
Action 1: Hold periodic education and outreach meetings
with preservation partners
Set up a formal, semi-annual, round table for discussion of historic
preservation issues with preservation stakeholders such as the Utah
Heritage Foundation, the State Historic Preservation Office and other
entities such as other cities with historic preservation programs,
specifically to coordinate on education and outreach efforts. These
meetings should be geared toward briefing the participants on
individual goals and activities, identifying any strategic partnerships
or complementary efforts that could be pursued, and identifying
needs for additional educational outreach on preservation related
topics. Increased collaboration can help ensure that a full spectrum
of education and outreach is provided to inform and garner
increased public understanding of historic preservation while
avoiding overlaps.
Action 2: Project Financing Workshops
Assist the State Historic Preservation Office with hosting periodic
workshops for the public on tax incentives and project financing. Co-
host workshops with the State Historic Preservation Office and/or the
Utah Heritage Foundation on project financing options for historic
properties, targeting both residential and non-residential property
owners in Salt Lake City.
Policy 5.1c: Ensure information is available to the public
and property owners which highlights education and
outreach opportunities.
Action 1: Create educational and informational resources that
identify the different activities available to educate people
about the importance and various aspects of historic
preservation in Salt Lake City.
This should include information on guided and self-guided historic tours
in the City,workshops and seminars and how-to guides on various
topics. All information should be available in various formats including
electronic,videos and hard copies.
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Community Preservation Plan Final Draft 10.2012
Action 2: Expand Website Content
The City has already begun to expand its use of the website for
preservation and planning activities through restructuring of the
City's website and the addition of a regular Planning Division e-
newsletter with a preservation highlight. The City will continue to
devote the necessary resources to reorganize and expand the
website to include new content and materials, including
informational handouts and videos, to further support the
implementation of this plan. The City also will continue to focus on
improving the site's organization and user-friendliness.
Action 3: Participate in neighborhood events and celebrations
to inform and educate the public about the importance and
benefits of historic preservation as well as the regulations and
opportunities available to property owners.
Action 4: Work with organizations such as the school districts,
scouting organizations, youth city government, and other
similar organizations that provide services to youth to create
educational or activity related programs and curricula to
increase youths' awareness of historic preservation.
Policy 5.ld: Increase public visibility of positive aspects
of historic preservation in Salt Lake City.
The City will work to highlight local preservation projects, locally
and nationally, to draw attention and awareness of historic
preservation activity in the City.
Action 1: Highlight Community Preservation Success Stories
Regularly highlight institutional and renovation successes through a
multi-media approach, including the use of SLC-TV. Publish
highlights in reports, newsletters, newspapers, and the website to
draw attention to successes and help educate the public and
property owners on what are good examples of historic preservation.
Action 2. Create case study highlights of preservation success
stories in the community, including those efforts that involve
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Community Preservation Plan Final Draft 10.2012
collaboration with other City departments or preservation
partners.
Action 3: Pursue Broader Recognition of Salt Lake City Historic
Preservation Activities
Seek State and National recognition of historic projects and
preservation program accomplishments in Salt Lake City in order to
draw attention to positive aspects of Salt Lake City's Historic
Preservation program.
Action 4: Hold local historic preservation awards program to
highlight successful historic preservation projects.
Action 5. Improve or increase the presence of signage
denoting local historic districts and Landmark Sites
throughout the City.
Pursue funding to add or repair historic signs to highlight the
importance of specific sites and districts. Where possible, link the
addition of new signs into other processes including street repair,
City property acquisition, and local designation decisions.
Action 6: Create a Financing and Incentives Brochure
Create a brochure to highlight all financing and incentive options
available to owners of historic properties
Action 7: Offer Periodic Tax-Credit Workshops
Coordinate with the State Historic Preservation Office to schedule
and conduct periodic workshops on the tax credits program to
improve user-friendliness and increase participations in this valuable
program.
Policy 5.1e: Support the Utah Heritage Foundation's
efforts to expand the revolving loan fund that serves the
City.
Action 1: Help Expand UHF Loan Fund
The City should work to support the expansion of the Utah Heritage
Foundation revolving loan fund within the City's boundaries to
expand the use of this highly successful program.
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Community Preservation Plan Final Draft 10.2012
Policy 5.1f: Work with the Utah Heritage Foundation to
increase the use of preservation easements.
Action 1: Promote Preservation Easements
The City should work with the Utah Heritage Foundation to develop
a strategy to promote the increased use and awareness of the
Foundation's preservation easement program. This tool is currently
underutilized. The City could help determine underlying reasons for
low use such as staff referral rates, misinformation or a lack of
information on easements, or real or perceived barriers to use. The
City will then work with the Foundation to address issues and
increase the use of the preservation easement tool.
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Community Preservation Plan Final Draft 10.2012
Support a Sustainable City
VISION
The City practices historic preservation with an eye towards the
future. Preservation is a key tool for achieving the City's goals for
economic, environmental, and community sustainability. Historic
preservation involves the use and reuse of existing structures,
which translates into lower environmental impacts. The City
recognizes these environmental benefits of historic preservation
and commits to educate about how preservation is green as well
as investigate the possibilities of using green building materials,
environmentally-responsible landscaping, energy efficiency, and
renewable energy generation within historic neighborhoods. The
incorporation of green building practices is encouraged whenever
they are compatible with best historic preservation practices.
OVERVIEW
In general, Sustainability is usually thought of as a way to meet
present needs without compromising the ability of future 1".
generations to meet their needs. On that note, the City practices
historic preservation with an eye towards the future so that
important historic resources will bepreserved for future
p 11-tom
generations. Preservation is a key tool for achieving the City's
goals for environmental, economic, and social sustainability, which
in turn sustains quality of life and community livability for all
residents into the future. This new house in the Central
City historic district is considered
One of the key goals of this planning effort is to establish stronger a "green build";however, rehabs
con be green, too.
relationships between historic preservation and other City
programs and policies. In particular, many participants in the
development of this plan stressed the need for a strong link
between historic preservation and sustainability.
Salt Lake City is working to incorporate sustainability principles
into a wide variety of City programs and policies. The creation of
the Division of Sustainability and the Environment and revisions to
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Community Preservation Plan Final Draft 10.2012
City zoning and subdivision regulations are two early and
significant steps towards this goal.
The City has developed the following thematic framework for
aligning its programs and policies with sustainability:
1. Climate Change and Air Quality
2. Water Quality and Conservation
3. Renewable Energy Production and Energy Conservation
4. Mobility and Transportation
5. Urban Forestry
6. Housing Accessibility and Diversity •
7. Community Health and Safety
8. Food Production and Nutrition
9. Recycling and Waste Reduction
10. Open Space, Parks, and Trails
This chapter of the plan illustrates how preservation can support
not just environmental sustainability, but also economic and social
sustainability. Preservation can help the City achieve its goals in
several of the topic areas listed above, particularly energy, urban
forestry, transportation, economic development and housing.
Additional topics may be added to this list in the future.
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Community Preservation Plan Final Draft 10.2012
ENERGY
OVERVIEW
As energy costs increase and resources dwindle, encouraging the
preservation of Salt Lake City's historic buildings and districts is
one of the best opportunities for sustainable development.
Historic preservation is a valuable tool for protecting the _
environmental resources that have already been expended as well
as those not yet used. Reusing sound older buildings is much
more sustainable than abandoning them or demolishing them.
Preserving and revitalizing Salt Lake City's historic buildings is
'recycling" on a grand and community-wide scale.
In addition, historic buildings are often more energy efficient than
ISM
modern construction. Thick, heat-retaining masonry walls such as i -;� j. '
brick and stone with plenty of natural ventilation contribute to
their excellent energy efficiency. Historic buildings can also be •
adapted to benefit from new technology. Solar panels are
expected to become more efficient in the future and can be .. =r- ..: _;.;
installed in a location and manner that is least obtrusive and in a
way that causes the least impact to the historic integrity and Although windows can suffer
frcharacter of a historic building, site and /or district. moreom ennegvironmentally
repair a can be
environmentally
sustainable and often cheaper
in the long run than
replacement.
EMBODIED ENERGY
In the words of Richard Moe, the former president of the National
Trust for Historic Preservation, "The bottom line is that the
greenest building is the one that already exists." In other words,
one of the most environmentally friendly development practices is
the decision to repair and reuse an existing building, rather than
replace it.
The key link between historic preservation and environmental
sustainability lies in the concept of"embodied energy," which
refers to the life-cycle energy that is represented in the existing
structure. This includes the expended energy to harvest, process,
fabricate, and transport the raw materials used during the original
construction.
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Community Preservation Plan Final Draft 10.2012
Demolition of a historic structure for redevelopment has a very
high associated energy cost as well. Not only is the energy
embodied in the structure lost, but significant energy is involved in
the demolition itself, and more energy is used to construct a new
building. Plus, new materials must be consumed to construct the
replacement building. In today's global marketplace, these
materials may come from numerous countries around the world,
meaning that significant energy is involved simply in bringing the
materials to the site. A new, earth-friendly, energy-efficient
building may require 50 to 60 years or more to recover the energy
lost in demolishing an existing building.
Seen in this light, the reuse of a historic structure can often be the
most energy-efficient option and the most sustainable form of
development.
ENERGY EFFICIENCY
Historic construction methods and materials incorporate more
energy-saving features than are typically appreciated. For
example, tests on wood windows in historic homes have shown
them to be as energy efficient as new double-paned vinyl windows
when properly maintained. Maintenance of wood windows offers
short and long-term savings to the property owner. In the short "We envision Salt Lake City as a
term, maintenance—which includes weather-stripping, caulking, prominent sustainable city: the
and/or the addition of storm windows—is typically less expensive international crossroads of
western America, blending family
than replacement. In the long term, wood windows can last over a life styles,vibrant artistic and
hundred years whereas vinyl products typically have a much cultural resources,and a strong
shorter life span before they need to be replaced. Furthermore, sense of environmental
due to the construction methods used, part of a wood window can stewardship with robust economic
activity to create a superb place
be replaced when damaged whereas on a vinyl window typically for people to live,work, grow,
the whole window has to be replaced when damage occurs. invest and visit."
As another example, older development patterns often made
good use of building and tree placement to maximize the Salt Lake City Vision and Strategic
Plan, 1993
potential of passive solar heat. The orientation of the building
allows for maximum sun exposure, while deciduous trees offer
shade to keep the home cool in the warmer months.
Of course, the energy use of a particular building is a complex
issue and requires individual assessment to determine whether the
building is operating as efficiently as possible. Increasingly, there
are many resources available to help to improve the energy-
efficiency of historic buildings.
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Community Preservation Plan Final Draft 10.2012
RENEWABLE ENERGY
Salt Lake City has taken a major step to address climate change by "F
joining the international Cities for Climate Protection (CCP)
Campaign and committing to a goal of reducing its carbon
footprint to 20% below the 2005 level by 2020. The City is also an
active supporter of Utah's involvement in the Western Climate -
Initiative (WCI) which works regionally to reduce greenhouse gas - - -�-
emissions. Clean renewable energy sources will be a key
component of an overall strategy to achieve the carbon goals of
the City and region. Salt Lake City already allows the use of solar
collectors on locally designated historic structures so long as they
do not negatively affect the historic character of the building or
district. The City is committed to ensuring that the current
regulations do not present barriers to expanded use of solar
collectors. Aim
1 I POLICIES AND ACTIONS RELATING TO ENERGY •
Policy 6.1a: Historic Preservation is a primary tool to
implement the sustainable goals of Salt Lake City. (top)Solar panels in a west side
neighborhood. Additional design
guidelines could help minimize
Action 1: Find ways to inform the public, decision makers and the profile of such panels in
other City departments of the role historic preservation plays in historic districts.
achieving a sustainable city.
(bottom)Solar panels on the roof
of the Peter Pan apartments, a
Action 2: Hold a series of educational sessions led by staff and National Register site,can be
guest speakers on how preservation relates to sustainability. seen but are low profile.
Policy 6.1b: The energy benefits, including life-cycle
costs of preserving older buildings, should be
understood by property owners, development
professionals, decision makers, City Staff and the general
public.
Action 1: Create Educational Materials relating to the energy
benefits of preserving older buildings that identify how
preserving older buildings is an important means of
conserving energy.
Organize educational sessions and create informational handouts,
videos and other communication techniques that address the energy
benefits of historic preservation, and also provide specific tips and
recommendations for maintenance and renovation of older
VI-5
Community Preservation Plan Final Draft 10.2012
buildings. The information should compare and contrast the short-
and long-term costs of the purchase of new materials versus the
repair and maintenance of existing features. Specific topics could
include, for example, a discussion of the long-term benefits of
repairing historic windows versus replacing them with new windows.
The information should direct property owners to additional
resources to locate more information. Ensure the information is
updated over time as new information becomes available that
complies with adopted policies, guidelines and regulations relating
to historic preservation in Salt Lake City.
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Community Preservation Plan Final Draft 10.2012
Policy 6.1c: Encourage the use of sustainable building
practices that comply with adopted policy, guidelines
and regulations relating to historic preservation in the
renovation and maintenance of historic structures.
Policy 6.1d: Ensure adopted guidelines and regulations
allow for the appropriate use of green building practices
as they emerge.
Policy 6.1e: The incorporation of green building
practices is encouraged whenever they are compatible
with best historic preservation practices.
Action 1: Research New Green Building Materials,
Technologies and Practices
As technologies and products rapidly evolve to meet a wider array of
design needs,the City will consider which green building practices
comply with adopted policy, guidelines and regulations for
renovations and additions to historic structures. Ongoing review of
industry best practices will help the City's preservation program stay
at the forefront of historic preservation and sustainability.
Action 2: Update Design Guidelines on a Regular Basis
On an annual basis, the planning staff should compile information on
promising new green building materials, technologies, and practices
and prepare recommendations for adoption for any necessary
updates or revisions to the City's design guidelines or regulations.
Policy 6.1f: Encourage architectural salvage efforts to
promote the reuse of historic building materials and to
decrease the need to create new building materials from
raw materials that have to be harvested, manufactured
and transported from far away.
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Community Preservation Plan Final Draft 10.2012
HISTORIC LANDSCAPES
FORMAL CITY OPEN SPACES
Open Space is important for ecological and recreational purposes. The
development and maintenance of open space, including the importance
of trees and water efficient landscapes, help support the sustainable
practices that make Salt Lake City a livable, green City. Salt Lake City has
a number of parks that are designated as Landmark Sites, including
Liberty Park, Memory Grove and Pioneer Park. Other historic landscapes
maintained by the City include neighborhood parks, parkstrips and
landscaped medians, cemeteries, and the landscapes around City-owned
buildings. Maintenance of these properties is the responsibility of the
Public Services Department. There also are a variety of privately owned
green spaces in historic districts and on the grounds of Landmark Sites.
In addition to the current locally designated historic parks, other City
parks are within local historic districts, such as Reservoir Park in the
University Historic District. However, the City has many parks that are
historic in nature and help tell the unique development history of the
City. These include parks such as Fairmont Park in Sugar House built in
the 1930s with Federal assistance during the Great Depression and
Jordan Park in West Salt Lake built in the 1920s. There are also other
important historic landscapes, including the City Cemetery in the
Avenues and Mt. Olivett Cemetery near the University of Utah in addition
to various street medians, such as those on 600 East in the Central City
Historic District or those on 1200 East in the University Historic District.
The City's Urban Forester, in the Public Services Department, oversees the
health and vitality of the City's Urban Forest which includes all trees in
the public right of way and in public parks and open space areas. In
addition, the Parks and Public Lands Division has the authority to oversee
the use and conservation of public open spaces, public parks and
landscaped right of way areas.
Public Open space areas change over time. Whether it is caused by
different types of uses for the public open space (such as a change from
a passive recreation area to an active one),the health of the plant
materials (such as an old tree that becomes brittle and causes safety
concerns), or water conservation practices, these changes may require
alterations to landscape design and planting materials.
Where the historic landscapes are within locally designated historic
districts or Landmark Sites,the criteria for the H Historic Preservation
Overlay Zoning District will require appropriate changes to meet the
standards. Although preservation of the formal setting may be
important, what plant materials and the design of the landscapes may be
VI-8
Community Preservation Plan Final Draft 10.2012
less important from an historic preservation standpoint. Furthermore,
the expertise of the City's Urban Forester and Landscape Architects
should be relied upon to know when landscaping changes are warranted
and appropriate especially relating to the health of the vegetation.
The City will strive for landscaping techniques that are compatible with
historic landscapes, in addition to being water-efficient and _ '
environmentally responsible. If, for example, a tree species was once
commonly planted but is now known to be invasive or susceptible to
certain pests or diseases, current knowledge and best practice by the
City's Urban Forester or Landscape Architects should determine the - . -
selection of replacement species. The focus for historic preservation
should remain on the overall aesthetic to ensure there is consistency in . r''
the landscape and that the replacement provides a similar function and Liberty Park, a Landmark Site,
role as species being replaced. Replacement should still be conducted, includes many historic features
as it is now, when a tree is ill or damaged. such as this stone arbor.
The current standards and design guidelines are geared more toward a
built environment than a natural or landscaped area,which makes it
more difficult to define what types of alterations to landscaping may be
appropriate. Surveys are a necessary prerequisite to the development of
design guidelines, and also to provide a baseline for making decisions
regarding development proposals affecting historic landscapes. The
existing master plans (e.g., the parks master plan) are not always
sufficient to provide a basis for making decisions. Further, not every park
or site has a master plan.Conducting surveys to identify the important
historic elements of a public open space design or landscape feature, will
help with the development of specific regulations and design guidelines
for review of these projects when alteration is necessary or requested.
Design guidelines for historic landscapes are important to ensure the
integrity of these spaces is retained and that they support the structures
they surround. The design guidelines should be balanced against other
city-wide sustainability goals to ensure recommended practices have a
rational relationship to the public need for safety, water conservation and
management of invasive species and pests.
PRIVATE OPEN SPACES AND HISTORIC LANDSCAPES
Historically large mansions and institutional uses tended to have more
formal landscapes that help showcase the building and topography of
the lot. Good examples include the Woodruff-Riter and McCune
mansions on Capitol Hill,various mansions along South Temple,
including the Keith and Kearns mansions, the Masonic Temple, also on
South Temple, and the City and County Building Downtown.
A basic element of a standard residential landscape is the lawn or turf
area. The choice of turf species used can greatly impact its susceptibility
VI-9
Community Preservation Plan Final Draft 10.2012
to drought and overall water consumption needs while retaining the
overall aesthetic look of the lawn.
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Community Preservation Plan Final Draft 10.2012
POLICIES AND ACTIONS RELATING TO HISTORIC
LANDSCAPES
Policy 6.2a: Preserve city-owned historic landscapes
including parks, medians, open space areas, and
cemeteries.
Policy 6.2b: The City will work to ensure that historic
features of all its historic landscapes remain for future
generations through responsible stewardship and careful
maintenance practices.
Action 1: Survey the City's Historic Landscapes and create
historic landscape design guidelines where appropriate
Conduct one or more surveys of historic landscapes in the City,
including parks, cemeteries, open space, and streetscapes. Based on
the survey work, create design guidelines for designated historic
landscapes or those that are within designated local districts to
ensure the integrity of these spaces is retained and that they support
the structures they surround. The design guidelines should be
balanced against other city-wide sustainability goals to ensure
recommended practices have a rational relationship to the public
need for various uses, safety, water conservation and management of
invasive species and pests.
Action 2: Identify and Pursue Listing for Additional Historic
Parks and Historic Landscapes
Identify additional historic parks, landscapes and cemeteries in the
City for survey and, if appropriate, nomination as Landmark Sites or
include within local historic districts.
Policy 6.2c: Ensure consistency between adopted policy
plans and the historic preservation plan relating to open
space policies.
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Community Preservation Plan Final Draft 10.2012
Action 1: Develop Informational Packet for all historic parks
in the City
Create an informational packet on the history of use and landscape
design of the City's historic parks. This summary should include all
older parks in the City, not just those already listed as local Landmark
Sites. This packet should be made available to the public and also
provided to the Historic Landmark Commission, Public Services
Department, and planning staff for their use and reference.
Policy 6.2d: The City will strive for landscaping
techniques that are compatible with historic landscapes,
in addition to being water-efficient and environmentally
responsible.
Policy 6.2e: The design guidelines for public open space
in historic districts or on Landmark Sites should be
balanced against other city-wide sustainability goals to
ensure recommended practices have a rational
relationship to the public need for open space, safety,
water conservation and management of invasive species
and pests.
Policy 6.2f: Encourage the use of historically compatible
materials where possible, while still respecting the City's
sustainability goals.
Action 1: The City Planning Division and other applicable City
Staff, including the Urban Forester, Parks and Public Lands
Division staff, Public Utilities Water Conservation Coordinator
and Landscape Architects, should work collaboratively to
guide future maintenance activities in these landscapes.
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Community Preservation Plan Final Draft 10.2012
Policy 6.2g: Encourage the retention of historic
landscape design on private property through education
of the importance of the design of the landscape in the
history of the property.
Policy 6.2h: The review of landscaping relating to
historic preservation should be focused on site design,
grading and site features and not on the type of
landscape materials.
Action 1: Develop Educational Materials for the Owners of
Private Historic Landscapes
Educate the public about the importance of the preservation of
privately owned historic landscapes.Develop a series of brochures or
other educational materials that may be made available to the
owners of historic landscapes on private property, such as private
landscaping within local districts or on the grounds of Landmark
Sites.
TRANSPORTATION
OVERVIEW
A sustainable transportation system is one that allows for many
types of movement and access throughout the City, with an
emphasis on alternatives to motor vehicle travel. The historic
development pattern of the City grid lends itself to alternate
modes of transportation such as pedestrian, bicycle, and transit.
Pedestrian-friendly features include well-maintained sidewalks,
clear and safe crossings, street trees, and compatible design of
bicycle racks and street furniture near commercial development.
(See Appendix F)
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Community Preservation Plan Final Draft 10.2012
MASS TRANSIT SERVICE- ' _.
The City's Transportation policies include supporting a variety of
circulation options to afford more choices for mobility, decrease • ' "
air pollution and traffic congestion and encourage a healthier '
lifestyle for individuals. Mass transit helps in these efforts. Mass 1®I; ,l • Pry.
Transit can include Light Rail, Commuter Rail, Street Car and Buses. -
TRAX connects major
destinations in the city,such as
POLICIES, AND ACTION RELATING TO Temple Square(above)and the
TRANSPORTATION university. Through proactive
planning, the historic character
can help shape unique identities
for transit stations.
Policy 6.3a: Preservation policies should be considered in
the Transit Planning Process
Policy 6.3b: Pedestrian and bicycle amenities within
historic districts or adjacent to Landmark Sites should be
compatible with the historic character of the area.
Policy 6.3c: Pedestrian-friendly design features should be
integrated into the historic district design guidelines.
Action 1: Develop Historic Design Guidelines that Enhance the
Pedestrian Environment
Work with applicable City Departments to plan for improvements
within historic districts and adjacent to Landmark Sites that
simultaneously enhance the pedestrian environment and the historic
streetscape.
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Community Preservation Plan Final Draft 10.2012
Policy 6.3d: The City will continue to support alternate
modes of travel in its historic areas through appropriate
improvements to the overall transportation
infrastructure, which includes highways, major and
minor roads, transit (bus, fixed rail transit), bicycle lanes,
and sidewalks.
Policy 6.3e: The Planning Division should coordinate
with the Utah Transit Authority and City Transportation
Division on fixed rail transit routes and station
improvements planned within historic districts.
Action 1: In the planning stage of new fixed transit
development, the Planning Division staff should work with the
City's Transportation Division and UTA to ensure that
development associated with the fixed transit lines, (such as
the siting of new stations) minimizes negative impacts and
supports actions that will enhance historic preservation.
ECONOMIC DEVELOPMENT
OVERVIEW
In addition to environmental sustainability, historic preservation
supports economic sustainability. A healthy and sustainable City
needs a diverse economy and viable tax base. The ability of any
City to draw and retain residents and businesses is largely based
on the quality of life it can offer. In Salt Lake City, historic
preservation has helped achieve the City's status as an attractive
and distinct City in a number of ways:
■ Downtown/Central Business District: The Exchange
Place historic district and numerous historic structures,
including several National Register Sites that have been
restored using Federal and State tax credits and
Redevelopment Agency's Building Renovation Loans help
define a unique and attractive Downtown.
• Distinctive Neighborhoods: Historic neighborhoods in
the City's core have avoided the deterioration and
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Community Preservation Plan Final Draft 10.2012
disinvestment that can threaten the image and fabric of
the City.
• Architectural and Historic Attractions: Historic
Preservation activity since 1976 has protected numerous
sites with distinct historical and architectural significance
that attract visitors as well as contribute to the visual
interest of the City's built environment.
• Affordability. The rehabilitation of older buildings can
help provide affordable spaces for both residential and
commercial uses, helping to provide a range of housing
and business options and contribute to the development
of mixed-income areas.
While these are secondary economic benefits, preservation also
offers direct benefits to the City's economy through increased
employment. Studies have documented that rehabilitation
projects typically employ more people, and often higher-skilled
labor, than new construction projects.
HERITAGE TOURISM
Across the country, from major urban centers to rural villages and
hamlets, thriving historic areas attract visitors who provide a
significant source of revenue for both local and state economies.
Visiting historic places, or "heritage tourism," has grown
substantially in the past few decades as more and more visitors
seek to combine recreation with meaningful educational
experiences. Heritage tourism is focused on the experience and
preservation of a distinctive place and its stories from the past to
the present. Its resources are diverse and may include historic
landscapes, ethnic festivities, and living traditions such as the
production of local foods and crafts.
Heritage tourists include travelers who incorporate at least one
visit to a historic site or landmark among other activities, and also
the smaller subset of visitors whose primary reason for traveling is
to visit historic places. Heritage tourists tend to have a greater
respect for the places they visit and are less likely to have a
negative impact on heritage resources. Heritage tourism is an
important tool to bring preservation and economic development
together.
Utah enjoys an abundance of beautiful scenery and historic places
that attract all types of visitors. Heritage tourism contributes to
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Community Preservation Plan Final Draft 10.2012
Utah's economy by generating revenue, creating new jobs, and
providing opportunities for small businesses. An example of
heritage tourism may include a visit to Salt Lake City's historic
downtown, which attracts visitors interested in historic settings
such as the unique buildings and landscapes associated with the
Church of Jesus Christ of Latter Day Saints heritage.
According to the nationwide research by the Travel Industry
Association of America (Travelscope survey 2003), heritage and
cultural travelers consistently stay longer and spend more money
than other types of U.S. travelers. For example, in 2003 they
averaged $623 per trip versus $475 per trip for other U.S. travelers.
Heritage travelers also tend to travel longer: 5.2 nights versus 3.4
nights. Most cultural travelers want to enrich their lives with new
travel experiences. The economic impacts of heritage tourists go
beyond their direct expenditures. Each dollar spent at a hotel,
restaurant, or retail shop circulates in the economy as the
establishment buys supplies, contracts for services, and pays
wages to its employees. This re-spending of money can be
calculated through economic multipliers, and can add up to a
significant source of income for the City and State.
PROPERTY VALUES
Over the past decade, many communities throughout the country
have investigated the impact of local historic district designation
on property values. Places as diverse as Colorado, Florida,
Michigan, and Texas have tracked property value trends in locally
designated historic districts. Many of these studies are
summarized in The Economics of Historic Preservation, Randall
Mason, Brookings Institution (2005).
Each of these communities has recognized that measuring
property value impacts is complex and involves multiple variables
that change widely depending on each area studied.
Nevertheless, consistent evidence supports the position that
historic designation at the very least does not decrease property
values, and often designation can be a contributing factor in
raising values at a greater rate than similar, undesignated areas.
This was the case, for example, in a 2005 study for the state of
Colorado that looked at property values in a range of selected
locally designated historic districts (both residential and
commercial) in Denver, Durango, and Fort Collins.
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Community Preservation Plan Final Draft 10.2012
POLICIES AND ACTIONS RELATING TO
ECONOMIC DEVELOPMENT
Policy 6.4a: Support historic tourism in Salt Lake City.
Action 1: Work with preservation partners and economic
development groups to develop a heritage tourism strategy. •
The City should actively support efforts by the Utah Heritage
Foundation and the Convention and Visitor's Bureau to develop a
heritage tourism strategy in collaboration with preservation partners
and economic development groups, including the City's Economic
Development Division, Chamber of Commerce, Downtown Alliance,
State Historic Preservation Office, the Salt Lake City Redevelopment
Agency, and others. The first step should be to identify options to
promote heritage tourism through existing attractions and the
Downtown. The next step should be to identify measures that could
be taken to expand the geographical distribution of the City's
heritage tourism efforts towards other neighborhoods and identify a
broader range of resources.
Key elements for the overall heritage tourism strategy to address
include:
• Products and experiences: The types of heritage
resources that exist for visitors to Salt Lake City—the
"things to see and do."
• Infrastructure:The physical facilities needed to support
heritage tourism (such as lodging, food and beverage,
transportation) and also the information resources
needed to support the tourism industry (e.g., visitor
information databases).
• Marketing and communications: A multi-media
approach for creating awareness of Salt Lake City
heritage tourism opportunities.
• Funding:The funding streams and financial resources,
both public and private, which will support development
and maintenance of heritage tourism resources.
• Organizations:The entities charged with managing
heritage tourism activities in the City (and perhaps state),
including the Chamber of Commerce, Convention and
Visitors Bureau, preservation groups, and City staff and
officials.
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Community Preservation Plan Final Draft 10.2012
Action 2: Pursue funding for heritage tourism in cooperation
with other partners involved in developing the tourism
strategy.
Capitalize on the City's status as a Preserve America Community to
identify and pursue grants to help finance heritage tourism growth in
the City. Possible sources include Preserve America grants and Utah
Cultural Heritage Tourism Grants.
Policy 6.4b: Coordinate Historic Preservation with
Downtown revitalization and economic development
efforts.
The Central Business District contains a variety of historic buildings
in addition to Washington Square, Temple Square, and the
Exchange Place Historic District. Historic Preservation efforts
should be part of collaborative efforts in the revitalization and
enhancement of Downtown.
Action 1: Work with Downtown and preservation
stakeholders to create a Main Street-type program for
Downtown Salt Lake City.
Work with a variety of Downtown and preservation stakeholders,
such as City officials, the Chamber of Commerce, the Salt Lake City
Redevelopment Agency, Downtown Alliance, State Historic
Preservation Office, and the City Economic Development Division, to
develop a community revitalization program for the Downtown,
which relies on historic preservation as a catalyst for downtown
economic development. Build on successful concepts such as those
introduced and tested by the National Trust's Main Street program.
Policy 6.4c: Historic preservation is identified as an
important means of providing employment
opportunities for local crafts persons and skilled workers
which keep money in the local economy.
Action 1: The City should participate in a study that identifies
the effects of historic preservation on the economy and
property values in Utah and specifically in Salt Lake City.
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Community Preservation Plan Final Draft 10.2012
HOUSING
Overview
Another key attribute of a sustainable city is the availability of a y��� ►'I �q
wide variety of convenient, safe, and affordable housing options
for residents of all income levels. The City is committed to
supporting vital urban neighborhoods that accommodate a range
of households with respect to family size, age, and income. The adaptive reuse of the former
Creating and maintaining a supply of affordable housing is a ZCMI General Warehouse
(abchallenge in any city. Historic neighborhoods and buildings can Center
hasfor addedthe pace City
Center added artist
provide a significant range of housing options. With the use of townhouses(below), artist live-
incentive programs, such as grants, low interest loans and work units,gallery space, and an
preservation tax credits, these neighborhoods and buildings have interior garden. Adaptive reuse
the potential to provide even more affordable homes. can be a critical tool in
preserving historic structures and
The supply of housing in the core areas of a city directly impacts providing space for affordable
the mix of age, income, and family sizes that can reside there. In and rental housing options as
well as economic activity.
Salt Lake City, current preservation limitations on home additions
and maintenance requirements were criticized by some r ,
participants in this planning process as resulting in a more '
homogenous resident profile than is desired or sustainable for the111111114
long term. The perceived inability of the central neighborhoods to
accommodate different housing needs impacts the city's overall
development footprint, as core-area residents move elsewhere in _
search of housing options to match their needs. For example, a Photos courtesy of Utah Heritage
growing family that finds it difficult to expand its home because of Foundation.
preservation restrictions may look to a neighborhood in the
suburbs for a new home. This results in increased land and
resource consumption as new homes are constructed. Providing a
variety of housing options close to various means of mobility
helps to decrease the overall cost to an individual to meet their
housing and transportation costs. In other words, having various
types of housing options (from multi-family, mixed use, accessory
dwelling units or single family detached homes), within walking
distance to transit corridors and services helps to promote more
affordable living.
The City's challenge is to pursue its historic preservation objectives
while at the same time ensuring that a prospective homeowner
can find a variety of convenient and affordable household options
within the City. Preservation standards and programs should
support adaptive reuse, renovation of historic apartments, and
VI-20
Community Preservation Plan Final Draft 10.2012
appropriate expansion of single-family homes to allow historic
structures to meet various lifestyle needs.
POLICIES AND ACTIONS RELATING TO HOUSING
Policy 6.5a: Ensure zoning supports the retention and
reuse of existing historic apartment and non-residential
buildings.
Action 1: Ensure Compatible Zoning
Analyze the underlying zoning of existing designated historic
structures and those in designated historic districts, both local and
national, to ensure the zoning supports the preservation of the site.
Policy 6.5b: Support the renovation and use of historic
apartment buildings and the adaptive reuse of historic
non-residential buildings for residential units.
Action 1: Identify and Remove Obstacles to Rehabilitation
and Reuse
Work to identify obstacles to renovation and adaptive reuse projects
including fire and building code requirements and find appropriate
solutions that make renovation projects more viable and easier to
accomplish while still upholding preservation guidelines, policies and
regulations.
Action 2: Create zoning incentives, including the possible
increase in density, for historic structures, especially in higher
intensive zoning districts and /or along arterial roads and
transit corridors near transit stations that would encourage
preservation and maintenance of historic structures while
preventing or discouraging their demolition.
Action 3: Inform Housing and Building Division Personnel on
Code Changes and Available Assistance
Create an ongoing educational program to ensure Planning, Code
Enforcement, Housing Division, Building Services, housing agencies
and other relevant staff are trained in the code changes to ensure
rules and information are applied and distributed in a correct and
VI-21
Community Preservation Plan Final Draft 10.2012
consistent manner. Provide staff contact information from whom
property owners can obtain more information.
Policy 6.5c: Support appropriate changes to existing
historic homes to accommodate the changing needs of
various household types within the City.
Action 1: Support Appropriate Residential Additions
Develop policies for additions to residential properties to ensure that
historic structures can continue to meet the housing needs of both
families and individuals. Determine whether existing design
guidelines are sufficient to implement policies, or whether revisions
are necessary.
Policy 6.5d: Allow appropriate modifications to the front
elevation and front yards of contributing structures and
Landmark Sites to provide accessibility and visitability to
the structure.
Action 1: Develop guidelines to identify means of appropriate
modifications to provide accessibility and visitability
provisions to structures in local historic districts and on
Landmark Sites.
Policy 6.5e: Allow the development of additional
dwelling units as an incentive for preservation of historic
structures.
Action 1: Analyze the appropriateness of amending the
zoning ordinance to allow accessory structures to be
converted to accessory dwelling units where located near
fixed transit stations
Action 2: Consider the appropriateness of density bonuses in
contributing structures on lots that are zoned for two-family
and multi-family development but due to lot size, would not
accommodate the additional dwelling.
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Community Preservation Plan Final Draft 10.2012
Action 3: Analyze the appropriateness of amending the
zoning ordinance to allow accessory dwelling units where
certain criteria are met that would mitigate negative impacts
and where the changes are compatible with the historic
character of the structure.
Policy 6.5f: Encourage the use of various funding
sources, including those for historic preservation, to
develop affordable housing within the City.
Action 1: Affordable Housing Best Practice •
Identify priorities and best practices for affordable housing and
historic preservation to educate the public on how preservation and
affordable housing can best support the objectives of each other.
Action 2: Program Development
Coordinate with other departments and agencies to develop
programs that support affordable housing and jointly pursue funding
to support historic preservation objectives.
Policy 6.5g: Assist homeowners in overcoming
challenges of home maintenance requirements.
The City should explore and support volunteer efforts and
financing options to support homeowners facing challenges in
meeting exterior home maintenance requirements.
Action 1: Create Targeted Maintenance Assistance Programs
Identify and pursue programs to provide targeted assistance in home
maintenance and weatherization where there is need and support for
such programs for elderly, those with disabilities, or low-income
residents. Programs may include public/private or public/non-profit
partnerships, as well as direct collaboration with the Housing and
Neighborhood Development Division. Such programs may already
exist, but perhaps could be better integrated with the City's
preservation programs.
Action 2: Coordinate Outreach to Property Owners
Work with other program partners to develop an outreach campaign
to both encourage participation and help overcome any concerns or
reservations property owners may have about seeking assistance
relating to maintenance of their historic property.
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Community Preservation Plan Final Draft 10.2012
Action 3: Analyze the appropriateness of amending the
zoning ordinance to allow accessory dwelling units where
certain criteria are met that would mitigate negative impacts
and where the changes are compatible with the historic
character of the structure.
Policy 6.5f: Encourage the use of various funding
sources, including those for historic preservation, to
develop affordable housing within the City.
Action 1: Affordable Housing Best Practice
Identify priorities and best practices for affordable housing and
historic preservation to educate the public on how preservation and
affordable housing can best support the objectives of each other.
Action 2: Program Development
Coordinate with other departments and agencies to develop
programs that support affordable housing and jointly pursue funding
to support historic preservation objectives.
Policy 6.5g: Assist homeowners in overcoming
challenges of home maintenance requirements.
The City should explore and support volunteer efforts and
financing options to support homeowners facing challenges in
meeting exterior home maintenance requirements.
Action 1: Create Targeted Maintenance Assistance Programs
Identify and pursue programs to provide targeted assistance in home
maintenance and weatherization where there is need and support for
such programs for elderly, those with disabilities, or low-income
residents. Programs may include public/private or public/non-profit
partnerships, as well as direct collaboration with the Housing and
Neighborhood Development Division. Such programs may already
exist, but perhaps could be better integrated with the City's
preservation programs.
Action 2: Coordinate Outreach to Property Owners
Work with other program partners to develop an outreach campaign
to both encourage participation and help overcome any concerns or
reservations property owners may have about seeking assistance
relating to maintenance of their historic property.
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Community Preservation Plan Final Draft 10.2012
Implementation Action Plan
HOW WILL THE PLAN BE IMPLEMENTED?
Salt Lake City will implement the Historic Preservation Plan
through five basic types of actions:
1. Policy Decisions,
2. Ordinance Revisions,
3. Coordination and Partnerships,
4. Pursuing Funding Mechanisms, and
5. Education and Outreach.
These are described briefly in the sections that follow.
POLICY DECISIONS
The plan identifies a number of actions that will be carried out
during day-to-day decisions by the planning staff, the Historic
Landmark and Planning Commissions, and the City Council. The
Commissions and Council will continually make decisions
regarding development proposals and plan amendments and will
use this plan to guide such policy decisions as they occur. The City
Council's annual funding to support planning and planning staff
activities will directly impact the successful implementation of this
plan.
REGULATORY IMPROVEMENTS
Regulatory improvements to the (H) Historic Preservation Overlay
ordinance, creation of new tools like character conservation
districts, and improvements and additional design guidelines for
historic areas will all be critical components of plan
implementation. Changes will also be necessary to the building
code, sign code, and other regulations to support policies of this
plan and facilitate adaptive reuse projects. By bringing regulations
of the City into alignment with preservation objectives, the City will
help reduce internal conflicts and contradictions and support a
more unified approach to preservation and development.
COORDINATION AND PARTNERSHIPS
The plan identifies two categories of partnerships central to its
successful implementation:
PRESERVATION PARTNERS
The City will work closely with Utah Heritage Foundation, the Utah
State Historic Preservation Office, and other non-profit
preservation advocacy groups to coordinate on many
preservation-related activities, including development of an on-
line database, education and outreach activities, and grants and
loans, among others.
CITY DEPARTMENTS AND AGENCIES
The Planning Division will coordinate with other departments,
particularly the Economic Development, Housing, Engineering,
Public Services, Sustainability, and the Redevelopment Agency of
Salt Lake City.
PURSUING FUNDING MECHANISMS
Throughout this plan, the Action statements make reference to a
number of potential funding sources to assist in implementing
goals of the preservation plan. Many of these are competitive
annual grants that the City will need to pursue independently or in
conjunction with another agency or entity and that require
matches. The pursuit of these funding sources, as well as keeping
current on any additional opportunities that may exist over time,
will need to be integrated as a practice of the Planning Division
and other departments where mutual opportunities or overlaps
exist.
EDUCATION AND OUTREACH
Education and outreach are a critical component to fostering
support and understanding for the preservation program and how
preservation activities relate to other City goals, such as
sustainability. The City will work with other preservation partners
and community/ interest groups to increase public awareness and
create additional educational opportunities and materials.
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Community Preservation Plan Final Draft 10.2012
IMPLEMENTATION ACTION PLAN
The following pages contain the Implementation Action Matrix.
This matrix summarizes each action identified in the plan and
assigns a time frame and one or more responsible partners.
Timing: The matrix expresses the relative priority of the action
within the timing section of the matrix. These columns specify the
timing for each action as: ongoing, within the first year after the
plan is adopted, in the one- to five-year timeframe, or five to ten
years from adoption.
Responsible Parties: The matrix identifies the parties responsible
for implementing the action, including joint actions and
collaborations.
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Community Preservation Plan Final Draft 10.2012
Action Ref Implementation Action Timing Responsible Parties
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Chapter 2. Foster a Unified City Commitment to Preservation
2.1c1 Update Master Plans to ensure City Staff
consistency of policies and objectives
of the Community Preservation Plan
2.1c.2 Develop Preservation Issues List for HLC, City Staff
Community Master Plans
2.2a.1 Work with City Departments to City Staff
provide education and ensure city
funded projects meet policies of the
Community Preservation Plan
— —
2.2c.1 Work with applicable Divisions and City Staff
RDA to find ways to bundle financial
assistance for preservation.
2.2c.2 Create specific management plans for City Officials, City Staff
each city-owned historic resource to
ensure its preservation.
2.2.d.1 Coordinate regularly with other City ✓ City Staff
departments to ensure
implementation of the Community
Preservation Plan
2.2e.1 Modify procedures for City Housing City Staff
and Small Business loans to ensure
preservation issues are addressed.
2.2f.1 Inventory historic details such as City Staff
markers, memorials and other site
features to be preserved _
2.2.f.2 Determine appropriate preservation HLC, City Staff
measures for historic landscape
features _
2.2.f.3 Ensure Public Services Department City Staff
and Engineering Division coordinate
with Planning Division on projects to
address historic resources impacted
by construction projects.
2.2g.1 Amend city loan objectives to include City Officials, City Staff
historic preservation as an eligible
activity.
2.2.h.1 Clarify the authority of the Urban HLC, City Staff
Forester and Engineering Division
relating to landscaping in designated
VII-4
Community Preservation Plan Final Draft 10.2012
Action Ref Implementation Action Timing Responsible Parties
c N
a CV
A- O (/)
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historic resources.
2.3a.1 Create an Educational Program about City Staff
the importance of Historic
Preservation
2.3b.1 Develop a Property Acquisitions City Officials, City Staff
Process
2.3.b.2 Plan for the use and preservation of f City Officials, City Staff
City-Owned Historic Resources _ _
2.3.b.3 Study Economic Benefits of Historic ✓ City Officials, City Staff
Preservation
Chapter 3. Develop a Comprehensive Preservation Toolbox
3.1b.1 Establish criteria to determine where City Staff, HLC
survey work should occur
3.1.c.1 Identify Areas Where New Surveys Are HLC, City Staff
Appropriate
3.1.d.1 Identify Areas Where Resurveys Are HLC, City Staff
Appropriate
3.1.f.1 Support Archive Development HLC, City Staff, SHPO
3.1.f.2 Promote Electronic Archive Use HLC, City Staff, SHPO, UHF
3.2.d.1 Modify the criteria for local ✓ City Officials, HLC, City Staff
designation
3.2.f.1 Track development activity within and City Staff
near local district boundaries
3.2.f.2 Evaluate possible local district City Officials, HLC, City Staff
boundary adjustments
3.2i.1 Identify national districts appropriate City Officials, HLC, City Staff
for local listing
3.2.i.2 Identify other candidate areas for City Officials, HLC, City Staff
local designation
3.2.j.1 Identify and Designate Landmark Sites City Officials, HLC, City Staff
3.212 Evaluate the designation status of City Officials, HLC, City Staff
existing Landmark Sites
3.2.1.1 Pursue national and local listing of City Officials, HLC, City Staff
historic city-owned properties
3.2.1.2 Designate eligible City-owned historic City Officials, HLC, City Staff
properties as Landmark Sites as the
City takes ownership
3.2.0.1 When properties are identified as ✓ City Staff
eligible for National Register
designation, work with property
VII-5
Community Preservation Plan Final Draft 10.2012
Action Ref Implementation Action Timing Responsible Parties
N
O N T O
O 1.1) —
C O) C E Li) >,
owners to nominate such properties
to the National Register
3.2.0.2 Create a conservation district tool. f City Officials, City Staff
3.3.e.1 Incorporate the adopted Preservation f City Officials, HLC, City Staff
Philosophy into the ordinance
standards for alteration and new
construction of locally designated
properties. _
3.3.g.1 Assess Underlying Zoning in historic City Officials, HLC, City Staff
and conservation districts to eliminate
conflicts.
3.3.i.1 Assess Building Code Barriers and City Officials, City Staff
Conflicts
3.3i.2 Develop Smart Code for Adaptive ✓ City Officials, City Staff
Reuse
3.3.1.1 & Revise ordinances to address V City Officials, HLC, City Staff
3.3.m.1 concerns with demolition and
economic hardship
3.3.n.1-3 Modify the ordinance to allow the City Officials, HLC, City Staff
Retention of Historic Signs
3.3.0.1 Amend the ordinance to allow City Officials, HLC, City Staff
broader use of signs where
appropriate
3.3.p.1-2 Develop Design Guidelines for New City Officials, HLC, City Staff
Signs
3.3.q.1 Revise the Guidelines to provide City Officials, HLC, City Staff
clarity and guidance
3.3.q.2 Develop design guidelines for various City Officials, HLC, City Staff
types of land uses and development
types
3.3.r.1 Gather relevant "best practice" City Staff
educational materials and update
standards and guidelines as
appropriate.
3.4.c.1 Amend the ordinance to allow the City Officials, City Staff
HLC authority to modify lot, bulk and
signage standards where appropriate.
3.4.d.1 Increase the list of allowable adaptive City Officials, HLC, City Staff
reuse options in Landmark Sites
3.4.d.2 Amend the ordinance to allow shared City Officials, City Staff
VII-6
Community Preservation Plan Final Draft 10.2012
Action Ref Implementation Action Timing Responsible Parties
c y
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rn oE:
parking options for approved
Adaptive Reuse projects
3.4.e.1 Amend the ordinance to allow an f City Officials, City Staff, HLC, PC
additional unit for properties in the
historic overlay zone that are zoned
for multiple units, but due to lot size
are only allowed one unit
3.4.e.2 Explore various types of financial City Officials, City Staff
incentives for owners whose property
is locally designation for historic
preservation
3.4.f.1 Revise the purpose statements for City Officials, City Staff
City and RDA loans to include historic
preservation as an objective for the
use of the funds.
3.4.g.1 Analyze the feasibility of decreasing City Officials, City Staff
the fee for adaptive reuse of
Landmark Sites
3.4h.1 Analyze the feasibility of increasing City Officials, City Staff
the fee for the demolition of
contributing structures and Landmark
Sites
3.4.i.1 Identify various ways of increasing City Staff, SHPO
participation by property owners in
the financial incentive programs for
preservation
3.4 j.1 Amend the ordinance to streamline City Officials, City Staff
the process for major alterations that
meet the standards
3.4.k.1 Amend the City ordinance to expedite ✓ City Officials, City Staff
• the building permit process for
approved historic preservation
projects
Chapter 4: Administer a Convenient and Consistent Historic Preservation Program •
4.1.a.1 Facilitate Additional Training for Staff City Officials, PC, HLC, City Staff
and Commission members
4.1.b.1 Revise Ordinance Description of HLC City Officials, HLC, City Staff
Role
4.1.c.1 Establish Architectural Review City Officials, HLC
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Community Preservation Plan Final Draft 10.2012
Action Ref Implementation Action Timing Responsible Parties
c y
oar cv T
o LI? r cn
Committee through and ordinance
change.
4.1.d.1 & Annually review the workload of the f City Staff
4.2.a.1 historic preservation program to
determine if resources and processes
are adequate. _
4.2.a.2 Provide Education for Staff City Officials, City Staff
4.2.a.3 Conduct Training on Preservation City Staff
Regulations Design Guidelines
4.2.c.1 Create various informational tools City Staff
relating to historic preservation and
character conservation projects
•
4.2.d.1 Provide Training on Historic City Staff
Preservation and Character
Conservation regulations to
Inspectors and Enforcement Officers
4.2.d.2 Develop system for New Construction City Staff
Project Review
4.2.e.1 Add GIS Capacity _ City Officials, City Staff
Chapter 5: Improve Education and Outreach
5.1.a.1 Ensure owners of properties within City Staff
historic districts and Landmark Sites
are notified of the designation
5.1a.2 Create annual Property Owner City Staff
Newsletter
5.1a.3 Convey Historic Status as Part of the City Officials, City Staff, SHPO
Sale Process
5.1a.4 Develop Property Maintenance City Staff, SHPO, UHF
Handouts
5.1.b.1 Hold periodic Education and Outreach City Staff, SHPO, UHF
Meetings with Preservation Partners
5.1.b.2 Participate in Project Financing City Staff, SHPO, UHF
Workshops
5.1.c.1 Create resources that identify City Staff
activities where people may gain
information about the importance of
and various activities relating to
historic preservation.
5.1.c.2 Expand Website Content City Staff
5.1.c.3 Participate in neighborhood events to City Staff
VII-8
Community Preservation Plan Final Draft 10.2012
Action Ref Implementation Action Timing Responsible Parties
c �
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O LU ' N
n c E lf7 >••
educate the public on the historic
preservation program
5.1.c.4 Work with youth organizations and . City Staff, School District,
the schools to integrate City History Community Organizations,
into their curricula Administrators
5.1.d.1 Highlight Community Preservation f City Staff
Success Stories _
5.1.d.2 Create case study highlights of City Staff
preservation success stories.
5.1.d.3 Pursue Broader Recognition of Salt City Officials, HLC, City Staff
Lake City Preservation Activities
5.1.d.4 Hold local historic preservation City Officials, HLC, City Staff
awards program .
VII-9
Community Preservation Plan Final Draft 10.2012
Action Ref Implementation Action Timing Responsible Parties
c N
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o
5.1.d.5 Improve or increase the presence of City Staff
signage denoting local historic
districts and Landmark Sties
throughout the City
5.1.d.6 Create a Financing and Incentives City Staff, SHPO
Brochure
5.1.d.7 Offer Periodic Tax-Credit Workshops City Staff, SHPO
5.1.e.1 Help Expand UHF Loan Fund City Officials, HLC, City Staff,
UHF
5.1.f.1 Promote Preservation Easements City Staff, SHPO, UHF
Chapter 6: Support a Sustainable City
6.1.a.1 Find ways to inform people on the City Staff
role historic preservation plays in
achieving a sustainable City
6.1.a.2 Hold educational sessions on how City Staff
preservation relates to sustainability
6.1.b.1 Create educational materials that City Staff
identify the energy benefits of historic
preservation
6.1.e.1 Research New Green Building f City Staff
Materials, Technologies, and Practices
6.1.e.2 Update Design Guideline on a Regular HLC, City Staff
Basis
6.2.b.1 Survey the City's Historic Landscapes ` City Officials, HLC, City Staff
and create historic landscape design
guidelines.
6.2.b.2 Identify and Pursue Listing For ✓ City Staff, SHPO
Additional Historic Parks and Historic
Landscapes
6.2.c.1 Develop Informational Packet for All City Staff
Historic Parks in the City
6.2.f.1 Work collaboratively with other City ✓ City Staff
Staff to guide future maintenance
activities in historic landscapes
6.2.h.1 Develop educational materials for HLC, City Staff
owners of private historic landscapes
VII-10
Community Preservation Plan Final Draft 10.2012
Action Ref Implementation Action Timing Responsible Parties
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6.3.c.1 Develop historic design guidelines City Officials, HLC, City Staff
that enhance the pedestrian
environment
6.3.e.1 Represent Preservation Priorities in f City Officials, City Staff
the Transit Planning Process
6.4.a.1 Work with preservation partners and City Staff, SHPO, UHF
economic development groups to
develop a heritage tourism strategy
6.4.a.2 Pursue funding for Heritage Tourism ✓ City Staff, Visitors Bureau,
Downtown Alliance, UHF
6.4.b.1 Work with Downtown and City Officials, HLC, RDA, City
preservation stakeholders to create a Staff
Main Street type program for
Downtown Salt Lake City.
6.4.c.1 Participate in study that identifies the City Staff, SHPO, UHF
positive economic impacts of historic
preservation on property values.
6.5.a.1 Ensure Compatible Zoning ✓ City Officials, HLC, PC, City Staff
6.5.b.1 Identify and Remove Obstacles to City Officials, HLC, City Staff
Rehabilitation and Reuse
6.5.b.2 Create zoning incentives for historic f City Officials, HLC, PC, City Staff
structures. _
6.5.b.3 Inform Housing and Building Division City Staff
Personnel on Code Changes and
Available Assistance _
6.5.c.1 Support Appropriate Residential City Staff, HLC
Additions
6.S.d.1 Develop guidelines to promote City Officials, City Staff, HLC
appropriate means for visitability and
accessibility in local historic structures
6.5.e.1 Analyze the appropriateness of ADUs `'/ City Officials, HLC, PC, City Staff
on locally designated properties near
fixed transit stations
6.5.e.2 Amend the ordinance to allow a City Officials, City Staff, HLC, PC
density bonus for properties in the
historic overlay zone that are zoned
for multiple units, but due to lot size
are only allowed one unit
6.5.e.3 Analyze the appropriateness of f City Officials, City Staff, HLC, PC
allowing ADUs for local Landmark
VII-11
Community Preservation Plan Final Draft 10.2012
Action Ref Implementation Action Timing Responsible Parties
c �
N T c'
N- O Ir
r i E
1.2)
Sites or Historic Districts where
specific criteria are met.
6.5.f.1 Identify affordable housing best City Staff
practices through historic
preservation
6.5.f.2 Coordinate with other divisions and City Staff
agencies on programs that support
affordable housing and historic
preservation.
6.5.g.1 Create targeted maintenance City Staff
assistance programs
6.5.g.2 Coordinate outreach to property City Staff, SHPO, UHF
owner
VII-12
Community Preservation Plan Final Draft 10.2012
Appendix A: Historic Districts
and Sites Field Anal sis
Prepared by Tatanka Historical Associates
OVERVIEW
As part of the planning process, all local and national historic
districts were visited during 2007 and 2008 to gain an idea of their
current characteristics. Recommendations were made for each
area as to whether district status should be reviewed, if additional
survey work was warranted, or if the area did not warrant further
consideration. These recommendations are summarized in Table
A-1 below.
TABLE A-1: HISTORIC DISTRICT RECOMMENDATIONS
Historic District Survey Survey Objective Priority
District Boundary Status Recommend Level
ed?
Local Districts
(also NR)
South Temple Stable Inventory post WWII Low
resources
The Avenues Stable Possible boundary revision, Low
southwest corner
Exchange Place Stable Evaluate boundaries to Moderate
reflect existing conditions
Capitol Hill Stable Reevaluate 200 West Area Moderate
Central City Compromised Reevaluate historic district High
status; consider as possible
conservation district
University Compromised Evaluate boundaries to
reflect existing conditions
National
Districts _
The Avenues Stable
Extension
City Creek Stable
Canyon
Westside Stable Consider local district
Warehouse nomination
Gilmer Park Stable Consider local district Moderate
nomination
Historic District Survey Survey Objective Priority
District Boundary Status Recommend Level
ed?
Bennion- Stable Consider local district
Douglas nomination
Bryant Compromised Reevaluate historic district Moderate
status; consider as possible
conservation district
Highland Park Stable Reevaluate boundary Low
rationale
Northwest ,Compromised Reevaluate boundary, Moderate
especially eastern portions
Appendix pg-2
Community Preservation Plan Final Draft 10.2012
Historic District Survey Survey Objective Priority
District Boundary Status Recommend Level
ed?
Capitol Hill Compromised Reevaluate historic district High
Extension status; consider as possible •
conservation district
Yalecrest Compromised Consider stronger High
protections to control
demolitions and teardowns
In addition, visits and observations were made regarding
additional areas or resources that were identified by preservation
stakeholders as potential areas or resources for future survey
consideration. These were reviewed and preliminary
recommendations made regarding the merit of future survey
activity. These recommendations are summarized in Table A-2,
below.
TABLE A-2: POTENTIAL HISTORIC AREA
RECOMMENDATIONS
Area Survey Explanation Priority
Recommended? Level
Desoto-Cortez Consider alternatives to historic Low
Neighborhood designation, such as
conservation district •
Federal Heights ✓ Local and national candidate High
Neighborhood
City Cemetery ✓ Local and national candidate High
Neighborhood North of the ✓ Moderate
Avenues Extension Historic
District
Gentile Core Inventory for structures; High
thematic nomination candidate
West Liberty Neighborhood Consider alternatives to historic Low
designation, such as
conservation district
West Temple Neighborhood Inventory for structures; district Low
potential not likely
Westminster Avenue Notable structures to inventory Low
Neighborhood in survey; district potential
unclear _
Sugarhouse Neighborhood ✓ Consider alternatives to historic Moderate
designation, such as
Appendix pg-3
Community Preservation Plan Final Draft 10.2012
Area Survey Explanation Priority
Recommended? Level
conservation district
900 West Neighborhood Low
Euclid Neighborhood Low
Rose Park Neighborhood ✓ Reconnaissance level only Low
Lower Ensign Downs Notable variety and quality of Moderate
Neighborhood modern resources
Industrial-Warehouse Area Notable structures to inventory High
in survey; district potential
unclear
PROJECT BACKGROUND
Salt Lake City has been engaged in efforts to protect its historic
resources since the mid-1970s, when it adopted a preservation
ordinance, created a Historic Landmark Commission, and
established its first historic district. To address an ongoing loss of
historic buildings in the City's historic core during the decades
following World War II, the City began to designate individual sites
and to establish historic districts. While many of these were
designated to the Salt Lake City Register of Cultural Resources,
others have been listed in the National Register of Historic Places.
This process continues today, as the City is completing ongoing
surveys and contemplating the establishment of additional historic
districts.
By the early 2000s, the City began to see a need for a
comprehensive preservation plan to address refinements to its
policies, regulations, permit review and local designation
processes. Clarion Associates was engaged to study the City and
its preservation efforts, and to complete a preservation plan. Ron
Sladek of Tatanka Historical Associates Inc. was brought onto the
project to focus upon analysis of the City's designated and
potential historic sites and districts. During the period from
September 2007 through July 2008, Ron Sladek visited Salt Lake
City several times and spent a total of several weeks touring the
City in detail. The goal of this fieldwork was to visit all of the
existing historic districts, a number of the City's historic areas of
interest, and many of the individually designated properties. This
level of field analysis was necessary to gain an understanding of
the City's layout, historic resources, completed surveys, designated
Appendix pg-4
Community Preservation Plan Final Draft 10.2012
properties and districts, and preservation efforts. This study
presents our analysis of existing conditions and how the City's
survey and designation efforts might be improved in the future.
SURVEYS
Prior to the nomination of an area or site as an historically
designated resource, professional historic resource surveys are
undertaken. There are two types of surveys used to identify
historic resources as noted below.
Reconnaissance Survey
The reconnaissance survey, commonly known as a "windshield
survey," is an effective way of evaluating large areas to identify
potentially eligible properties for local and/or national
designation. This survey is conducted by the surveyor briefly
looking at each property or resource within a predefined area or
related to a historic theme. An experienced surveyor can
determine from this level of survey which resources appear to
meet the necessary age and integrity standards and which do not.
In Utah, the State Historic Preservation Office (SHPO) requires
survey documentation to include a brief context description of the
survey area from secondary sources to help frame the history of
use and development as well as provide a justification of the
survey area boundary. In the field, the surveyor documents
potential resources on a map of the survey area and then
photographs and makes basic notes on the architecture and
apparent integrity of a property. Because no research or more
detailed fieldwork is completed on individual resources, the
reconnaissance survey offers the benefit of being relatively
inexpensive and an effective way of identifying areas where
intensive-level survey may be warranted.
Intensive Survey
The intensive-level survey builds upon the results of a
reconnaissance survey by involving detailed documentation of
each site, building, or structure included in a project. Because of
the detailed work and documentation, these are both more
expensive and time-consuming. The intensive-level survey
typically includes additional photography, enhanced field notes,
and archival research to document some history and significance
of each resource. This level of survey results in a substantial
document (a site form) for each property, where the results of the
Appendix pg-5
Community Preservation Plan Final Draft 10.2012
fieldwork and research are recorded together with a determination
of significance.
Surveys are only as useful as they are current. As time passes,
surveys become less and less accurate representations of
conditions on the ground. The boundaries of historic areas may
expand or shrink, and individual properties may lose or gain their
historic integrity. Current survey information is needed to capture
these changes and allow for the continuing evaluation (and
modification if necessary) of district boundaries and lists of
contributing structures over time. Accurate information on
properties and districts helps ensure that the time and resources
of the historic preservation program are efficiently and
appropriately directed to the correct locations.
Once a survey is completed, it should be updated periodically to
address the ongoing impacts of two dynamic forces: time and
maintenance.
FIGURE 6:SALT LAKE CITY HISTORIC DISTRICT SURVEYS
T l Y _
�' 'IIII"- '` �. Salt Lake City Historic District Surveys
n
�-t , '� `F„ es11 i I 'cr its i
• '�1— I IIIIi1G a`tir
tmucus
- nrM..11 -w■C 1t'�'?l --da=i si a.we•i_�� .T
wur ■■ ■r■� ;�
• y �� sll'i■�■a■1■u■■pmf irj NI
■iI%■■3._■IiM 7
C��MItC ;■OM ■■■■C■1■ �' 11�IL \ill
tL'��7�i.1I �■■Lt: ■�■� ■■■ ■■I IMI
■- , 1 n•tm■t�s■■11■■■1 uuutns
1 �� 95 • iIac��-a!Li=
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Fs AuW!GL ,r..
0II21. . k
n■mI,
.,... .�, o...._�... o..r... • tog,
og, inn=ni1'AINOVI iin ,d-
pa....,,.,...n..e..+•xv.po, ..,....,.w mow...,,..,+.a.e.m:.m
iram
�,Lae .a.
Source: Salt Lake City Planning Division GIS, 2007.
Appendix pg-6
Community Preservation Plan Final Draft 10.2012
LOCAL DISTRICTS
SOUTH TEMPLE
The South Temple Historic District was established as a National
Register district and was the first to be designated a local historic
district in Salt Lake City in 1976. This long rectangular district
stretches along South Temple Street from Virginia
Street/University Street on the east to 300 East/A Street on the
west. From north to south it is just one block wide. The district is
occupied by many of the City's most elegant historic mansions
and apartment buildings dating from the late 1800s and early
1900s. The Governor's mansion is among these. In addition, the
street is lined with prominent offices, churches and other buildings
used by various community non-profit organizations, all of which
front onto tree-lined South Temple Street. Historic street lighting
adds to the district's sense of place.
Many important historic buildings and excellent examples of high-
style architecture are located throughout the South Temple
Historic District. However, it has also been compromised by a
good number of office buildings and apartment buildings that
date to the period from the 1960s to the 1990s. Most of these are
located in the western 2/3 of the district in the stretch between A
Street and N Street. Although the district has clearly experienced
a number of changes since it was established, many of the post-
1960 buildings that have been constructed there are excellent
examples of modern architecture.
RECOMMENDATION
Given the character and importance of South Temple Street
historically in the development of the City, the district was
resurveyed in 2006 and a new nomination is currently being
created. While the National Register designation might be left as
it is, changes to the local district could address its broad range of
Appendix pg-7
Community Preservation Plan Final Draft 10.2012
both historic and modern architecture. This could also highlight
the area's architectural variety and bring some of its more
significant modern architecture within regulatory controls that are
needed to ensure that the district's integrity does not continue to
erode. Amending the national nomination may include an update
to the boundaries that presently run through the middle of
buildings and properties and removal of certain properties and
overlaps with adjacent districts.
THE AVENUES
The Avenues Historic District was established as a National
Register district and designated a local historic district in 1978.
Containing around 2,700 properties, it is the City's largest historic
district. Developed between 1880 and 1930, the Avenues is
primarily occupied by residences built along sloping streets that
drop in elevation from north to south. Historic apartment
buildings are also located there, primarily in the district's western
area. In addition, the district contains a small number of churches,
schools, and neighborhood-scale commercial uses such as
restaurants and retail shops. Only some of these buildings are
historic.
The Avenues Historic District is filled with numerous examples of
historic middle-class residences in a variety of architectural styles.
Many of the blocks throughout the district have a single intrusion
of a non-historic building dating from the period after 1960.
However, these are primarily small homes and apartment buildings
that were constructed prior to the 1970s. Because they are far
outnumbered by the many hundreds of historically intact
residences, these non-historic buildings do not appear to have
negatively impacted the district's overall integrity. Two non-
historic schools are found in the district, and one entire block
contains a modern commercial building.
Few changes appear to have taken place in the district in the past
couple of decades. The southwestern corner of the district,
bordered by State Street, Canyon Road, 4"Avenue, A Street, and
South Temple Street, holds a collection of large apartment and
condominium buildings. While some of these are historic, a good
number are non-historic and have compromised the integrity of
this area of the district. In addition, this area is located adjacent to
Appendix pg-8
Community Preservation Plan Final Draft 10.2012
Temple Square and holds non-historic parking lots and garages
used by the LDS church.
RECOMMENDATION
The southwestern area of the district should be examined through
a more intensive survey. Future refinements to The Avenues
Historic District may involve removing this area from the district.
EXCHANGE PLACE
The Exchange Place Historic District was established as a National
Register district and was designated a local district in 1978. It is
the City's only entirely commercial historic district and is based
upon a collection of early 20th century buildings that were
developed to create an alternative non-Mormon business center
at the south end of Main Street. The district also includes the 1905
Federal Courthouse Building and Post Office, as well as the City's
first skyscrapers, the twin Boston and Newhouse Buildings.
Exchange Place still contains a concentration of historic
commercial buildings with excellent integrity. In addition to those
mentioned, it also holds the 1909 Stock & Mining Exchange, 1909
Commercial Club, 1910 New Grand Hotel, 1910 Felt Building, and
the Judge Building. The district is small and isolated, surrounded
by non-historic buildings and parking lots. Its boundaries currently
extend to the southwest across 400 South to include a vacant
parking lot where a historic building once stood.
RECOMMENDATION
Essentially, the district boundaries need to be redrawn to reflect
existing conditions in and around the district. Several historic
buildings of the same general vintage are located nearby that
should be considered for incorporation into the district's
boundaries. These include the Hotel Plandome, Commercial
Exchange Plaza, New York Building, Odd Fellows Hall, and the Clift
Building. Re-survey of this district and its boundaries is
recommended to eliminate non-historic vacant space and to add
several of the area's surviving historic buildings that were not
included in the district when it was established, although this
might require broadening the statement of significance.
Historic pavers are found along Exchange Place and can be seen
where the asphalt has worn away. The City might want to consider
exposing and restoring streets such as this where pavers are still
Appendix pg-9
Community Preservation Plan Final Draft 10.2012
found, even if such efforts are restricted to a limited number of
locations. Although Exchange Place is lightly traveled, the
restoration of brick or stone pavers contributes to the feeling and
appearance of a historic district. This might be a good location to
try out a restoration project like this to see how it goes and how it
is received by the City's residents.
CAPITOL HILL
The Capitol Hill Historic District was established as a National
Register district in 1982 and was designated as a local district in
1984. This district is known for its steep narrow streets, irregular
lots, and for holding some of the oldest surviving residences in the
City. It encompasses the predominantly residential blocks that are
found to the south, southwest, west, and northwest of the State
Capitol complex. The Capitol Building is not included within the
district, but is listed in the National Register as an individual
Historic Site. In this district are portions of the West Capitol Hill,
Kimball, and Marmalade neighborhoods. Although the district had
become derelict by the 1960s, it has experienced a revival through
historic preservation in recent decades.
The blocks directly south of the Capitol Building are steeply sloped
and contain a number of large residences exhibiting some of the
finest high style architecture in Salt Lake City. The White Chapel
and Council Hall, both important historic community buildings
from the City's earlier decades, face onto 300 North across from
the Capitol (though are not in their original locations). Southwest
• of the Capitol and north of the LDS Convention Center, the blocks
within the district are occupied by some historic residences but
also contain a number of modern high rise apartment and
condominium buildings dating from the 1970s and 1980s. These
dominate Main Street, Vine Street, Almond Street, and West
Temple Street, resulting in a diminished degree of integrity in this
area. West and northwest of the Capitol, between Main
Street/Columbus Street/Darwin Street and 200 West, the blocks
are filled with the Pioneer Museum, three LDS ward churches,
numerous historic homes, and the modern Washington School.
This area has particularly narrow, steep streets and exhibits a good
degree of integrity, with just a few modern intrusions aside from
the school.
Appendix pg-10
Community Preservation Plan Final Draft 10.2012
RECOMMENDATION
Much of 200 West is a parkway. The area west of this, bordered by
200 West and 300 West, and by 300 North and Wall Street/800
North, contains modest historic cottages, vacant land, and a
number of non-historic intrusions of circa 1960s apartments and
small industrial shop buildings. The houses in this area are of
diminished quality in style, construction, and integrity compared
to those located to the east of 200 West. The City should consider
redrawing the western boundary of the district due to integrity
problems west of 200 West, but the west side of 200 West should
remain within the boundary.
The 1996 survey also recommended survey and expansion of the
district boundaries to include the Kimball and DeSoto-Cortez
neighborhoods; an intensive-level survey of Capitol Hill; and the
implementation of action items from the Capitol Hill Community
Master Plan.
CENTRAL CITY
The Central City Historic District was designated as a local historic
district in 1991. Two blocks wide and nine blocks long, the district
is occupied by one of the City's oldest residential neighborhoods.
While the northern edge of the district close to South Temple
Street is occupied by larger homes and more upscale apartment
buildings, the remainder holds modest brick cottages and
bungalows that for many decades attracted working-class
occupants. On its south end, the district abuts Liberty Park.
Both 500 East and 700 East are major north-south thoroughfares
lined with both houses and commercial enterprises. A residential
parkway is located along 600 East. Bisecting the district is 400
South, a primary east-west commercial and transportation
corridor. Trolley Square, formerly the trolley barn for the Utah
Electric & Railway Corporation, occupies an entire square block
along 700 East. This facility has been converted into an indoor
shopping center. While the district still contains numerous historic
homes, it has experienced significant attrition of its historic
building stock, particularly along its perimeters and major
thoroughfares. The majority of these changes have taken place in
the area between the north edge of the district and 500 South. The
four square blocks between 300 South and 500 South have been
so heavily impacted in recent decades by teardowns and modern
commercial infill that they contain very little in the way of historic
Appendix pg-11
Community Preservation Plan Final Draft 10.2012
resources. Because of its central location in the City and its
placement along several major transportation corridors, the
district has been subjected to a substantial amount of historically
insensitive commercial development in recent decades, resulting in
negative impact to its integrity. This has resulted in a historic
district that has effectively been split in two, with a substantial loss
of integrity to the northern blocks and greater integrity to the
south (particularly south of 600 South).
RECOMMENDATION
The status of this district is now questionable and further attrition
may merit its removal from historic district standing. Some may
argue that it has already reached this point and that other controls
are needed to protect the diminishing number of historic
resources that remain there. One possible approach might be to
consider boundary realignments that divide the district and create
two new districts: Central City North and Central City South
Historic Districts.
UNIVERSITY
The University Historic District was established as a National
Register district and was designated as a local historic district in
1991. It is located on the east bench of the valley west of the
University of Utah, with panoramic views extending over the City
toward the west. The district consists almost entirely of residences
constructed between 1900 and 1920, many of them built and
occupied for decades by faculty and staff from the University. It is
bordered by South Temple Street on the north, 500 South on the
south, University Street on the east, and by 1100 East on the west.
Since the World War II era, the district has also been partially
occupied by student apartments. The construction of apartment
buildings in the neighborhood led to its district designation as
owners of single family homes sought to reduce the impact of
multi-family buildings that were resulting in higher densities.
Today the district contains many medium to large historic homes
and apartment buildings exhibiting a variety of architectural styles.
Commercial buildings geared to the student population are
located around the intersection of 200 South and 1300 East near
the University. Some of these are historic and others are modern.
The northeast corner of the district is occupied by a small historic
park with tennis courts and an art barn. In and close to the
Appendix pg-12
Community Preservation Plan Final Draft 10.2012
southeast corner of the district are a couple of high-rise apartment
buildings. Most of the non-historic intrusions in the district consist
of small apartment buildings dating from the 1960s and 1970s.
These are primarily found in the north half of the district. The
University Ward LDS Chapel across from the campus is a
particularly notable building, serving as one of the City's excellent
examples of the Art Deco style of architecture.
RECOMMENDATION
In general, the University Historic District appears to exhibit a
good level of integrity. However, stakeholders have noted
pressures for teardowns and infill in the area, and recommend that
a new survey be prepared to provide better documentation of the
district's historic resources and to evaluate possible expansion of
the district boundaries.
WESTMORELAND NEIGHBORHOOD
The Westmoreland Historic District was established as a local
historic district in 2010 and placed in the National Register in •
2011.This neighborhood is located directly south of the Yalecrest '111110r
Historic District. Its main entry, complete with stone pillars, is set •
on a diagonal at the southeast corner of the intersection of 1300 -
South and 1500 East. Westmoreland is occupied by a fine -
collection of bungalows, large cottages, and miscellaneous
architectural styles dating from the 1920s to the 1950s. The quality
•
of design and craftsmanship in this area is above average, and the 4 R ,�
neighborhood is ornamented with tree-lined streets. This area is • •S
part of the Wasatch Hollow neighborhood, which preservation z, 1 i 11"�ii
advocates note is highly vulnerable. • y -
- ---
, - -
NATIONAL DISTRICTS
National Register Designation
A property owner, organization, or government may nominate a
property or district for listing in the National Register of Historic
Places by completing the appropriate nomination form and
supplying the required documentation. This nomination is
Appendix pg-13
Community Preservation Plan Final Draft 10.2012
submitted to the City's Historic Landmark Commission for
recommendation before being forwarded on to the State Historic
Preservation Office, which reviews the nomination and notifies the
property owner and local jurisdiction of the nomination to allow
for public comment. If there is no objection from the owner, or
majority of owners in the case of a district, and the property meets
the appropriate criteria, the SHPO will forward the nomination to
the National Park Service for consideration.
Criteria for Listing in the National Register
"The quality of significance in American history, architecture,
archeology, engineering, and culture is present in districts, sites,
buildings, structures, and objects that possess integrity of location,
design, setting, materials, workmanship, feeling, and association,
and:
• That are associated with events that have made a significant
contribution to the broad patterns of our history; or
• That are associated with the lives of persons significant in our
past; or
• That embody the distinctive characteristics of a type, period, or
method of construction, or that represent the work of a master,
or that possess high artistic values, or that represent a
significant and distinguishable entity whose components may
lack individual distinction; or
• That have yielded or may be likely to yield, information
important in prehistory or history."
Listing in the National Register is honorific. It does not impose
any regulations or restrictions on the owner regarding the
maintenance of their property, but does qualify the owner to take
advantage of federal and state tax incentives as well as Utah
Heritage Foundation's Revolving Loan Fund, if qualified.
The City has 185 individual properties listed in the National
Register of Historic Places, including the Utah State Capitol
Building, Utah State Fairgrounds, and Temple Square.
The City has 22 National Register districts, including seven also
listed as local historic districts. Three of the districts consist of
State-owned properties: Fort Douglas, University of Utah
President's Circle and the Utah State Fairgrounds. The designation
of the other 12 districts only listed as national historic districts is
Appendix pg-14
Community Preservation Plan Final Draft 10.2012
purely honorific and the properties within those districts are not
protected under the City's historic preservation zoning and design
guidelines like the locally-listed districts(but they do qualify the
owners for tax benefits and also trigger Section 106 review for
federal projects). The 12 districts only listed in the National
Register include:
1. The Avenues Extension(1980)
2. City Creek Canyon(1980)
3. Westside Warehouse(1982)
4. Gilmer Park(1996)
5. Eastside(Bryant 2001&Bennion-Douglas 2002)
6. Highland Park(1998)
7. Northwest(2001)
8. Capitol Hill Extension(2002)
9. Yalecrest(2007)
10. Forest Dale(2009)
11.Wells(2010)
12.Wells extension(2012)
THE AVENUES EXTENSION
The Avenues Extension was established in 1980 to incorporate
additional residential properties into the National Register district
created in 1978.It is a long,narrow district that runs from A Street
on the west to N Street on the east,and primarily extends one
block north of the original Avenues Historic District.This district is
occupied by numerous houses,most of them middle-class
cottages and bungalows that are very similar to those found in the
adjacent Avenues Historic District.Because of the rise in elevation,
the residences all have panoramic views of the City toward the
south.Most of this district is intact,with just a few non-historic
intrusions that do not impact its integrity.
RECOMMENDATION
No changes or recommendations are made regarding the Avenues
Extension. Expansion of the local district has been considered and
would offer additional protections to those properties.
Appendix pg-15
Community Preservation Plan Final Draft 10.2012
CITY CREEK CANYON
The City Creek Canyon Historic District was established as a
National Register district in 1980.This district is a long narrow site
that includes Memory Grove,the City's collection of war and
veterans monuments,and the Memorial House.It is located to the
east and northeast of the State Capitol building along Canyon
Road.City Creek Canyon is notable for its natural landscape
combined with historic landscape architecture dating back to the
years after World War I,along with its monuments of varying sizes,
styles and periods.A creek runs through the middle of the park,
with small falls and ponds along the way.Pedestrian bridges cross
the creek at various points,and the park's road,sidewalks and
trails serve as a popular location for hikes within the City and
adjacent to downtown.Mature landscaping occupies the valley
floor,with rolling hillsides rising steeply above.
RECOMMENDATION
This district is intact,with no significant intrusions that might have
diminished its integrity.It serves as one of Salt Lake City's most
important historic landscapes and its most significant memorial
location.No changes are recommended here,and the memorial
park should continue to be open to the installation of new
monuments approved by the City with care that the historic ones
are maintained and preserved. As noted earlier in this plan,
historic landscapes such as Memory Grove need design guidelines
to control future development.
WESTSIDE WAREHOUSE
The Westside Warehouse Historic District was established as a
National Register district in 1982.About one block square,it was
created to include sixteen commercial and industrial-warehouse
buildings dating from the 1880s through the early 1920s,many of
them designed by leading Salt Lake City architects of the period.
The district is bordered by approximately 200 South on the north,
300 South on the south,300 West on the east,and by 400 West
on the west. In recent years,most of the two-to five-story
warehouse buildings have been converted to art studios,galleries,
and residential lofts.Pierpont Avenue is lined along its south side
by a long stretch of adjoining former two-story warehouse spaces
that have been remodeled to hold small offices and shops.The
district is small and somewhat isolated,surrounded by parking lots
Appendix pg-16
Community Preservation Plan Final Draft 10.2012
and non-historic buildings in almost every direction. Exceptions to
this are historic apartments to the northeast, the Holy Trinity
Cathedral to the southeast, Pioneer Park to the south, and the
Ford Building to the southwest. Several parking lots and a couple
of non-historic buildings are also present within the district,
although these do not appear to have diminished its integrity.
RECOMMENDATION
Local designation for the current National Register district might
be considered in the future. As a historic warehouse district, it
would not be logical to expand its boundaries to include the
adjacent or nearby historic buildings mentioned above because
these are not related to the district in architecture or history of
use.
GILMER PARK
The Gilmer Park Historic District was established as a National
Register district in 1996. A small district of 244 properties, it is o
significant in part due to its curvilinear street pattern, which differs r•
from the compass grid pattern found throughout much of the rest ( � •>,
of the historic City. In addition, this area holds the historic
residences of a number of prominent and influential persons,
11111
among them professionals, business owners, and politicians who
have been involved in the City's life and development over many
decades. Finally, the district is occupied by high-end homes
exhibiting a variety of architectural styles. Included among these
are Classic Cottages, Bungalows, Prairie Style, Tudor, Foursquares,
Craftsman, Colonial Revival, Mission Revival, and a small number
of excellent examples of architecture from the 1950s to the 1970s.
The majority of the residences in the district date from the 1920s
through the 1950s, and include landscaping that is extensive and
manicured. The only non-residential use is the Garden Park Ward
LDS Church, which occupies a substantial landscaped property
between Yale Avenue and Harvard Avenue. Gilmer Park has very
few modern intrusions and exhibits a high level of integrity.
RECOMMENDATION
The district has experienced some teardowns that have led to
significant community discussion. This neighborhood might be a
candidate for local district status.
Appendix pg-17
Community Preservation Plan Final Draft 10.2012
The 2008 survey for this area recommended additional survey for
approximately 50 properties;establishment of a local historic
district;an update of the national nomination to expand the
period of significance;and a verification of eligibility status for tax
credit purposes.
BENNION-DOUGLAS
The Bennion-Douglas Historic District,designated to the National
Register in 2002, is essentially an eastward extension of the
Central City Historic District,with a distinct rise in elevation from
west to east.It was established due to its association with the early
1900s expansion of Salt Lake City into adjacent farmland.The
district is filled with residential cottages and bungalows.Its
original demographic appears to have ranged from working class
to upper middle class.In addition to homes,the district holds a
number of non-Mormon churches and institutional buildings,
suggesting that it was largely occupied by the Gentile community
at a time when the City's population was more heavily dominated
by the LDS church.Prominent among these buildings are the
Unitarian Church,McGillis School(formerly Douglas Elementary
Public School),Sarah Dart Retirement Home,First Baptist Church,
and the Judge Memorial Catholic High School.
Bennion-Douglas includes a number of small to medium sized
apartment buildings dating from the 1950s to 1960s.Two large
high-rise apartment buildings are also present along the district's
northern perimeter.These appear to date from the 1960s and
1970s.Commercial property uses are found along 400 South,900
South,and 700 East.Some of these buildings are historic(such as
the Salt Lake City Brewing Company)and others are modern.The
greatest amount of change has taken place along the district's
northern edge,where the 400 South commercial and
transportation corridor has resulted in teardowns and modern
infill.
RECOMMENDATION
Although some modern intrusions are found in the district(which
were present when the district was listed),it is largely intact and
just needs to be protected against future attrition of its historic
resources(either as a local historic district or as a conservation
district).
Appendix pg-18
Community Preservation Plan Final Draft 10.2012
BRYANT
The Bryant Historic District is, like Bennion-Douglas, an eastward
extension of the Central City Historic District and was designated a
National Historic District in 2001. Bryant was similarly established
due to its association with the early 1900s expansion of Salt Lake
City into adjacent farmland. The district is filled with residences of
varying styles, including Bungalows, English Cottages, Edwardians,
Foursquares and others. Its original demographic appears to have
ranged from middle class to upper middle class. Residential
parkways remain in place along 200 South and 800 East. In
addition to homes, the district holds a number of small to
medium-sized apartment buildings dating from the early 1900s
through the 1960s. Two high-rise apartment buildings are present
on the district's east and west margins.
Bryant includes a number of modern intrusions— most of which
were present when the district was listed -- among them
numerous small medical clinics. These are concentrated in this
area due to the presence of two large medical centers. The first is
the Salt Lake Regional Medical Center along 100 South between
1000 East and 1100 East. This facility includes a historic chapel
surrounded by modern hospital buildings. The other is the Salt
Lake Clinic, located along 400 South between 900 East and 1000
East. These complexes each take up most of a square block. The
potential for greater negative impact to the district is in place, if
expansions to the institutions occur. One of the district's most
notable individual historic resources is the 1927 St. Paul's
Episcopal Church, a masterpiece of Tudor Revival architecture.
Commercial property uses in the district are concentrated along
400 South and 700 East. Most of these are modern buildings that
have worn away the edges of the district. A few are significant
examples of modern architecture. Prominent among these are the
Mt. Tabor Lutheran Church at the northeast corner of 200 South
and 700 East, and the Zions Bank on the northeast corner of 400
South and 700 East. The 9th Ward LDS Church on 100 South
between 900 East and 1000 East is also of note. In sum, the Bryant
Historic District has experienced a substantial amount of attrition
of its historic resources. This has occurred not only along its
commercial margins, but also interior to the district.
Appendix pg-19
Community Preservation Plan Final Draft 10.2012
RECOMMENDATION
While much remains intact,the district is becoming diminished by
the loss of historic buildings. The area might be a candidate for a
conservation district.
HIGHLAND PARK
The Highland Park Historic District was established in 1998 when it
was listed in the National Register.With just over 600 buildings,
the district is significant because of its history as an early planned
trolley-car suburb.Highland Drive bisects the district,with
commercial property uses located just north of 2700 South.The
district is almost entirely occupied by modest cottages and
bungalows that appear to date from the 1920s to 1950s.Almost
no non-historic intrusions are found there and its integrity has
remained intact.
The district was designed to include the Highland Park
Subdivision. Future district expansions might be considered to
include the additional homes of the same quality,styles,and time
period that are located to the north,east and south.This district
does not necessarily need to be expanded.However,any physical
demarcation between the established district and the adjacent
blocks is non-existent.This simply raises a question regarding the
rationale behind how the district boundaries were drawn.
RECOMMENDATION
While the Highland Park Historic District does not appear to be
experiencing any imminent threats to its integrity,discussions with
local preservation advocates indicate that threats to integrity here
are incremental(such as siding and individual window
replacement).
NORTHWEST
The Northwest Historic District was established in 2001 when it
was listed in the National Register.Within the district are the
Guadalupe and Jackson neighborhoods,which include almost
1,500 buildings.This area of the City is significant as a historic
working class neighborhood and for the cultural diversity it
represents.Many of its residents have historically been of African
American and Hispanic heritage.The district straddles and is
Appendix pg-20
Community Preservation Plan Final Draft 10 2012
bisected by the north-south route of Interstate 15.A residential
parkway is found along 800 West and North Temple Street is
heavily commercial.Numerous modest residences are found
throughout the district.The area east of the interstate holds older
housing stock dating from the late 1800s to the early 1900s.West
of the interstate,the houses are mostly cottages and ranches
dating from the 1920s to the 1950s.The homes exhibit varying
degrees of integrity and are generally in poor to good condition.
Some newer residences are found there as well.A small number of
more substantial homes and a couple of old commercial buildings
are located along 400 North.The neighborhood was impacted
decades ago when a number of buildings were removed to
accommodate construction of the interstate.
Along 500 West,a series of industrial-warehouse buildings and
yards occupy most of the blocks that form the eastern edge of the
district.These buildings all appear to be non-historic.To the east
of 500 West,the district is separated from the core of the City by a
wide rail corridor that remains active today.Additional non-
historic residences are found throughout the east side of the
district.The presence of so many non-historic buildings east of
Interstate-15 compromises this area's integrity as part of the
district.Most of the non-historic buildings in the western area of
the district are found along the North Temple Street commercial
corridor.One historic property of interest in this area is Scotty's
Motor Court.
RECOMMENDATION
This district appears to be threatened mostly by the presence of
numerous non-historic industrial-warehouse buildings in its
eastern area,the construction of modern housing projects there,
and the completion of historically insensitive remodeling projects.
I-15 effectively cut the neighborhood in two and eliminated many
historic buildings,isolating the small eastern portion of the district
with its many non-historic intrusions. As much as 40%of the
eastern area contains non-historic buildings that diminish the
district's overall integrity. The City should consider redrawing the
district's eastern and southern boundaries to eliminate many of
the non-historic buildings from the district.
Appendix pg-21
Community Preservation Plan Final Draft 10.2012
CAPITOL HILL EXTENSION
The Capitol Hill Historic District Extension was established in 2002
to incorporate additional properties into the Salt Lake City
Register district created in 1984. It is located in a Salt Lake City
Redevelopment Agency (RDA) target area, allowing property
owners to take advantage of both preservation tax credits and
RDA funding. This is a five-block-long, one-block-wide district with
over 350 buildings, essentially extending the Capitol Hill Historic
District by one block toward the west.
The area holds a diversity of housing stock, indicating that it was
originally occupied by working class and middle class households.
Today the residences vary from poor to good condition with a
similar range of integrity. Better conditions are found among the
buildings south of 600 North. In this area, the homes along the
inner court known as Pugsley Street are of particular note. The two
blocks north of 600 North are largely occupied by non-historic
properties and this area does not contribute much to the district.
Similarly, the southern edge of the district, along 300 North, also
contains a series of non-historic properties. The core area of the
district with the greatest integrity extends from just north of 300
North (about mid-block) to 600 North.
RECOMMENDATION
This district is threatened by the presence of a good number of
non-historic buildings within its boundaries, which have
diminished its overall integrity. A conservation district designation
may be the most effective tool in an area like this to define
parameters for appropriate infill development (keeping the current
national district boundaries intact).
YALECREST
The Yalecrest neighborhood was listed as a National Register
district in 2007. This area consists of well over 1,300 contributing
buildings, most of them residences exhibiting a variety of period
revival styles dating to the first few decades of the 20th century.
The housing stock, with its architect-designed homes and
manicured landscaping, provides evidence of middle class to
upper class ownership from the first half of the 1900s.
Several characteristics of note are found in Yalecrest. Bonneville
Glen, a deep wooded ravine that is open to the public for hiking,
Appendix pg-22
Community Preservation Plan Final Draft 10.2012
bisects the neighborhood from northeast to southwest.Shaped by
the rolling topography around the ravine,the northwestern half of
the district contains curvilinear streets(this is similar to the
adjacent Gilmer Park Historic District to the west).Overlooking the e..
ravine is the Bonneville LDS Church and another LDS church is Ni l . .
found along Gilmer Drive.Cornell Circle,near the southeastern j
corner of the district,is lined with an arc of historic cottages.The �. ltr}
finest homes in the district are the high-style examples of various , ; ,1 '
architectural styles located along Harvard,Yale and Princeton
Avenues between 1300 East and 1500 East.A small neighborhood
commercial node is located at the intersection of 1300 South and
1700 East.
RECOMMENDATION
While the Yalecrest Historic District generally continues to exhibit
a good level of physical integrity relative to many other
neighborhoods in the City,numerous comments received during
this planning process expressed concern about teardowns and
inappropriate infill. The Yalecrest neighborhood residents are
committed to adopting stronger local controls to prevent
demolitions of historic resources and to ensure that additions and
alterations are sensitive to the local historic character. Active
discussions are underway at the time of this planning process to
determine the most effective tool.
FOREST DALE (NIBLEY PARK) NEIGHBORHOOD
The Forest Dale neighborhood was established as a National
Register Historic District in 2009. This compact neighborhood is
located in the southern area of the City,to the west of Fairmont
Park.It primarily runs from 2100 South to Ashton Street and from
700 East to 900 East.The neighborhood is occupied by a collection
of cottages and bungalows that date from the 1890s to the 1920s.
An abandoned Denver&Rio Grande Railroad corridor,running
from east to west,bisects the neighborhood and is the corridor for
the Sugar House Street Car line.Forest Dale has experienced
modest intrusion of modern apartment buildings dating from the
1960s to the 1970s.In addition,the northern area of the district
along 2100 South is occupied by non-historic industrial facilities.In
the southwest corner of the neighborhood are a large historic LDS
Appendix pg-23
Community Preservation Plan Final Draft 10.2012
church and the Cannon House,which has been individually
designated on the City and national levels.
LIBERTY WELLS NEIGHBORHOOD
The Wells historic district was listed in the National Register in
2010. This large neighborhood is located to the south and
southwest of Liberty Park.It includes the area from 1300 South to
2100 South and from State Street to 700 East.The neighborhood
is occupied by a collection of modest cottages and bungalows that
appear to exhibit a good level of integrity.
WEST LIBERTY NEIGHBORHOOD
This neighborhood is located directly west of Liberty Park and is
mostly occupied by hundreds of small cottages and bungalows
dating from the 1890s to the 1950s.The area was designated to
the National Register in 2012 as part of the Wells Neighborhood
extension. While the interior of the neighborhood exhibits a good
level of integrity,its margins have been subjected to attrition,
particularly along its north and west edges.Historic buildings
along 900 South are few and the heavily commercial length of
State Street includes very little that is historic.The old auto
dealership on the southeast corner of State Street and 900 South
appears to be the only building along these thoroughfares worthy
of attention.
RECOMMENDATION
Conservation district status may be more appropriate than a local
historic district. In addition,it is recommended that the western
boundary be set along 200 East rather than extending it to State
Street and including numerous non-historic properties.
Appendix pg-24
Community Preservation Plan Final Draft 10.2012
Salt Lake City Local & National
Historic Districts
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! ' w .AA E
n:F ° . W `W a£....pi
— +•-,.'• °Northwest t Capi fir — ,`
Me `- 4 '�Fairgrourrs n. - 1 1r' Sw^'�"• �SJ7 �s Iir�j�T Bryant �� 't-� � Fo
' Warehouse
Excha Piece
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.- �i� c.`# s a s- 4 f
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tir f ! i t ) .,,j a s j j ;, x,�f , t j j _.I ■ —,/ 1—
- f �� :.- 1 -..,i I ..1 I»I " YaleccestI ,.
I =`f~ ° as ..i! I _1 — , i — / _ 1
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Liberty Wells `.--"�
on. in-
t e' t - 1; ' I _
a w .,. .. `....
Local Historic Districts;a ..., Parr, Y _
_' R 1*1 Highland f t _
O National Historic D.stricB: SS
�i ...r+ i Park -'{j ON .,..
FIGURE 7: HISTORIC DISTRICTS IN SALT LAKE CITY
Source:Salt Lake City Planning Division GIS, 2012
Appendix pg-25
Community Preservation Plan Final Draft 10.2012
ADDITIONAL AREAS OF HISTORIC INTEREST
A number of additional non-designated but historic areas of the
City were brought forward during the course of this project as
worthy of attention. Many of these were recommended by City
staff, members of committees and commissions, preservation
professionals, and members of the public who were interested in
the topic. In addition, other areas were noted during the course of
the fieldwork and are included for discussion, including the
Industrial-Warehouse district and several individual utility
buildings. As many of these as possible were visited within the
cost and time parameters of the project. Some thoughts on these
areas are presented here.
DESOTO-CORTEZ NEIGHBORHOOD
Located directly north of the State Capitol complex, this small :�= . ...'
neighborhood is a compact pocket of residences dating from the
1920s to the 1990s. Its most notable characteristic is the view that � �. _
each home has over the Capitol Building and the City below. Many -1 '" f • I p.,,A
alterations and modern intrusions are found in the area. The most ,, • , I
intact historic features are the homes along Desoto Street, which is
tree-lined with homes that are almost all from the 1920s. Cortez
Street mostly contains houses from the 1950s to the 1990s.
Columbus Street has a few 1920s cottages, but non-historic homes
and two- and four-plex apartments dating from the 1960s occupy
much of the remainder of its length.
RECOMMENDATION
This neighborhood does not appear to exhibit an adequate degree
of integrity for a historic district. A survey will be needed to
confirm whether this area is a good district candidate or whether
alternative tools, such as conservation district designation, would
be more appropriate to preserve character.
FEDERAL HEIGHTS NEIGHBORHOOD
Located directly north of the University of Utah, this neighborhood ,_ ,
holds an impressive collection of residences dating from the 1920s o
to the 1950s. Federal Heights is characterized by its rolling _ _ . . --
topography, curvilinear streets, manicured landscaping, and high ` '�'
w.r//'. -.- • - ' ,..
Appendix pg-26 'Community Preservation Plan Final Draft 10.2012
•
end homes exhibiting a variety of architect-designed high styles of
architecture.This area is certainly one of the City's most important
neighborhoods in the area of historic architecture.Located
adjacent to the University,Federal Heights has served as the home
of both faculty and administrative leaders,and prominent
members of the Salt Lake City community,for many decades.Few
alterations or modern intrusions are found in the area,although it •
extends into more modern upscale housing toward the northeast
and determining boundaries may be challenging. 1 Raw
RECOMMENDATION 1`
This neighborhood exhibits a high degree of integrity and appears
to be an excellent candidate for a future historic district on both
the local and national levels. Staff notes that they have received
several requests for local designation because of teardowns.
CITY CEMETERY
Located directly north of the eastern length of the Avenues
District,the City Cemetery is a large site(around 250 acres)with
rolling topography and mature landscaping.The main entrance is
located at its southwest corner at the intersection of 4th Avenue
and N Street.This location holds a formal gateway.Inside the
gateway is a large 1906 Tudor Style building that looks like a
mansion but actually houses the cemetery's offices.City Cemetery
holds more than 119,000 graves containing the remains of Salt
Lake City's pioneers and residents from the late 1840s through the
present time.The first burial took place there in 1847,although
the cemetery was not officially organized as part of the newly
incorporated City until 1851.An irrigation system was installed in
1900,allowing the cemetery to develop and maintain the
extensive landscaping that remains there today.
Common to all cemeteries,the City Cemetery holds the final ,Osr^H.IBIkt wax
resting places of the City's historic residents and is an invaluable I "'
source of genealogical information.In addition,this cemetery
holds a remarkable collection of graves from the Mormon church's
early history,along with most(if not all)of the church's past
presidents through the present time.Many of the early Mormon
graves include multiple wives buried near their husbands,and
extensive multi-generational families congregated in the same
areas.The graves throughout the cemetery provide excellent
examples of a variety of types of funerary art.These are found in a
Appendix pg-27
Community Preservation Plan Final Draft 10.2012
diversity of sizes, materials and designs, showing how the art form
changed over the decades. In addition, the site is a planned
landscape with significance for its design. Extensive rock walls and
gateways are found throughout the property. Those extending
along Wasatch Drive are notable for their completion as a
Depression-era WPA project that lasted from 1938 to 1941.
In addition to the cemetery's expansive main section, sub-areas
are also present. The Catholic Cemetery occupies the entire
southeast corner. Two Jewish sections are found along the south-
central edge of the cemetery and a third is located north of
Wasatch Drive. Also north of Wasatch Drive are the Japanese
Veterans Cemetery and the burial ground of members of the Royal
Canadian Legion. The cemetery also holds separate sections for
Civil War veterans, Spanish-American War veterans, World War II
veterans, and a pauper's field. A Stranger's Plat holds the graves of
migrants who died while on the way to the California gold fields.
The Chinese Association has its own section, and another is
reserved for infants. In addition to prominent pioneers and leaders
of the LDS Church, the cemetery contains other notable individual
graves. Among these are a recipient of the Congressional Medal of
Honor, the Sundance Kid, and Franklin Wire, the inventor of the
traffic light. All of the City's past mayors are buried here, except for
Brigham Young who was buried on First Avenue.
RECOMMENDATION
The City Cemetery is in excellent condition and exhibits a high
level of integrity. It is cared for by a full-time staff and does not
appear to be subjected to any significant threats. The cemetery
would make an excellent candidate for listing in the National
Register of Historic Places as well as a local Landmark Site.
NEIGHBORHOOD NORTH OF THE AVENUES
Piz
HISTORIC DISTRICT EXTENSION ;, I
This residential neighborhood extends about five blocks north of A. ir
the Avenues Historic District Extension and is about eleven blocks
wide from east to west. It is steeply sloped upward from south to
north, with terracing that allows each home to enjoy a view of the
City. Many of the houses include south-facing second story
balconies. The neighborhood is occupied by hundreds of homes
that are similar in architectural style to those found in the Avenues
Historic District Extension. The primary exception to this is the
Appendix pg-28
Community Preservation Plan Final Draft 10.2012
numerous homes dating from the 1950s and 1960s along those
streets at higher elevations. Clearly the entire area north of South
04
Temple Street (including the Avenues and Avenues Extension) '� :
expan
ed
rd as it developed over time,
th the older h
homesdbelowrandanewer homes athigher elevations. The historic �'fl -iounm�� M
Veterans Administration Hospital is located at the high end of E
Street above 121h Avenue. •
RECOMMENDATION
This area appears to exhibit a high level of integrity and would
probably make a good candidate for district designation. A
determination regarding its eligibility, along with which level of
designation is appropriate, should be made following the
completion of a neighborhood survey.
GENTILE CORE
This mixed residential and commercial neighborhood is located
directly west of the Central City Historic District, from
approximately South Temple Street to 900 South and from 500
East to State Street. Located in this area are numerous houses,
apartment buildings, commercial buildings, and public facilities
such as the City & County building and former downtown library.
The houses are predominantly small working class cottages dating
from the 1890s to the 1920s. Many of these are in poor to fair
condition. Historic Landmark Sites are scattered throughout the
area. Included among these are the Oquirrh School, Second Ward
Chapel, Trinity A.M.E. Church, and the B'nai Israel Temple. The area
is broken up by the presence of numerous modern buildings,
along with commercial and transit corridors along 400 South and
500 South. While several downtown Landmark Sites are located
along State Street, the rest of the historic buildings to the south
along this major thoroughfare are sporadic and a number are in
poor condition. Many of the area's individually eligible buildings
have been designated, although some have yet to be recognized.
One example of this is the building occupied by Anthony's Fine Art
on the northeast corner of 300 South and 400 East.
RECOMMENDATION
The historic resources in this area of the City are not contiguous
but could be good candidates for a thematic nomination. The lack
of cohesiveness suggests that it is not a strong candidate for
district designation. A survey will be needed to confirm as well as
Appendix pg-29
Community Preservation Plan Final Draft 10.2012
to identify candidates for listing in the national register individually
or as a thematic multiple-property nomination. The City may wish
to couple alternate conservation tools with continued designation
of individual historic buildings.
WEST TEMPLE NEIGHBORHOOD
This neighborhood is located directly west and southwest of West
Liberty. It runs from 900 South to 2100 South, and from State
Street to 300 West. The neighborhood is mostly occupied by
modest cottages and bungalows that are concentrated in the
interior of the area. Many of these homes suffer from fair to
moderate quality of original design and construction, and from
non-historic alterations. The area's major thoroughfares (900
South, 2100 South, State Street, 300 West & Main Street) are all
heavily commercial and include few historic buildings. Main Street
does include a few historic houses south of 1700 South and West
Temple is a residential street. One pocket of interest in the
neighborhood is Boulevard Gardens, with its brick cottages facing
toward one another across a central shared parkway.
RECOMMENDATION
The West Temple Neighborhood may be a fair candidate for
survey, but does not appear to be a good candidate for district
designation. This is due to the many non-historic intrusions and
alterations noted there, along with a lack of historic resources
along its margins and major thoroughfares. If future survey and
analysis is contemplated there, it should focus upon the portion of
the neighborhood located south of Franklin Covey Field.
WESTMINSTER AVENUE NEIGHBORHOOD
This neighborhood is centered along Westminster Avenue
between 1300 East and 1500 East. This two-block stretch is ,r
occupied by an excellent collection of Craftsman cottages and `'
bungalows. A number of the homes have incorporated the use of
stone walls and piers into their design, making them relatively '� '
Ask
unique in the City. ---
RECOMMENDATION
The neighborhood merits the completion of a survey to determine
whether it is district eligible or if individual buildings might be
Appendix pg-30
Community Preservation Plan Final Draft 10.2012
Landmark Sites.Two of the homes along Westminster Ave.have
already been listed in the National Register and others may also
be eligible for designation.
SUGAR HOUSE NEIGHBORHOOD
This extensive neighborhood,in the southern area of the City
north of Interstate 80,is centered around a commercial core at
Highland Drive and 2100 South.The commercial district is
surrounded by residential neighborhoods filled with a variety of
middle class homes dating from the early to mid-1900s.While . oa
"downtown"Sugar House holds a number of historic buildings,it `
has also been transformed in recent decades by the construction -.
of numerous modern buildings.Because of this,the commercial I _ _ •
core no longer appears to be predominantly historic.Some of the t� `q'
remaining older commercial buildings are in good condition. - __ j
• r
Others have been heavily altered through insensitive remodeling �c
projects that appear to date from the period between the 1960s
and 1980s.However,some of these have the potential to be
restored and to add to the historic character of the neighborhood. ,
A good example of this is the large two story historic brick �+t ''�•. !.:
commercial building on the northeast corner of Highland Dr.and . - '+. ,
2100 South.This building is in dire need of an effort to remove , ■
inappropriate cladding and restore its street elevations to their I
original appearance.Sugar House's commercial core also holds
4,
the historic Sprague Library and an adaptively reused post office —
building along Highland Drive and the prominent 1930 Sugar
House Monument west of the intersection with 2100 South.Next
to the monument is a plaque describing the historic Jordan&Salt
Lake City Canal,which runs through a long culvert underneath this
area.
RECOMMENDATION
Sugar House has an interesting historic past but its historic ,
resources and integrity have been compromised by insensitive - __ .
alterations and the construction of numerous modern buildings in . '
its commercial core.While the area certainly merits survey and the a nr:, -
designation of individual buildings,it may be a better candidate
i II
I l ,
Appendix pg-31 , _ '.
Community Preservation Plan Final Draft 10.2012
for protection through a conservation district or other regulatory
mechanisms,rather than as a local historic district.
900 WEST NEIGHBORHOOD
This neighborhood is located in the southwest area of the City,
west of Interstate 15.It is bisected by 900 West and runs from
1300 South to 1700 South.The neighborhood is primarily
occupied by a collection of modest working-class cottages and
bungalows that exhibit a generally poor level of integrity.In
addition,the properties along the east side of 900 West have
experienced an overwhelming amount of modern construction.
Many of the neighborhood's historic homes have experienced
insensitive exterior remodeling efforts or are in deteriorated
condition.A few larger historic homes are located there,but not
enough to make up a district.
RECOMMENDATION
While the neighborhood merits the completion of a survey,it is
not apparent whether it is worthy of district designation.
Comments from the State Historic Preservation Office indicate that
the areas with the greatest potential are between Indiana Street
(900s)and California Street(1300s).
EUCLID NEIGHBORHOOD
This compact neighborhood is located in the western area of the
City,directly south of the Northwest Historic District.It
encompasses the area from North Temple Street to Interstate 80,
and from Interstate 15 to Jordan River.An active rail corridor that
runs along South Temple Street bisects the area.The
neighborhood is filled with a collection of small working-class
cottages,many of which are either in poor condition or have
experienced insensitive alterations.
RECOMMENDATION
Due to a lack of historic integrity,this area is a lower priority for
survey. However,this area will be impacted by the lightrail
extension to the airport.
Appendix pg-32
Community Preservation Plan Final Draft 10.2012
ROSE PARK NEIGHBORHOOD
This large neighborhood is located in the northwestern area of the
City near the Northwest Historic District. It is filled with a collection
of small working-class cottages and ranch homes that appear to
date from the 1950s and 1960s.
RECOMMENDATION
While most are in good condition, this area needs to be studied
more closely (perhaps through a reconnaissance survey initially) to
determine whether it is a good candidate for some form of
designation and to establish possible boundaries. At this time, a
determination of whether it might be worthy of district
consideration cannot be made.
LOWER ENSIGN DOWNS NEIGHBORHOOD
This neighborhood is located on a high bench north of and
significantly above the State Capitol building. Each home has a
clear view of the City below. The houses are all architect-designed
masterpieces and represent some of the finest architecture in the
City dating from the second half of the 1900s.
RECOMMENDATION
The neighborhood merits the completion of a survey to determine
whether it will be district eligible in the coming years for its variety
and quality of modern architecture.
INDUSTRIAL-WAREHOUSE AREA
This area is located in the blocks surrounding the intersection of
800 South and 400 West. It is occupied by a number of significant
and apparently overlooked industrial-warehouse buildings that
date from the late 1800s and early 1900s. The buildings along 400
West are situated along an early rail corridor that is no longer
active but is being considered as a future streetcar line corridor.
Those facing onto this street, especially between 600 South and
800 South, are of great historic interest and appear to exhibit a
good degree of integrity. These include the Utah Pickle Co.,
Bissinger & Co. Hides, the factory building at 380 West 800 South, 6 —
n•dP‘)r
and several additional nearby brick buildings. A short distance to s
the west along 800 South (at 600 West) is the Mountain Cement
tiA
Company plant, complete with massive silos and hoppers. Other
historic industrial buildings are found in this area. -
11
Y _
Appendix pg-33
Community Preservation Plan Final Draft 10.2012
RECOMMENDATION
While it may or may not form a cohesive historic district,some of
these facilities are likely to be individually eligible for designation.
This entire area is an excellent candidate for survey and should be
considered a priority.
SALT LAKE CITY'S INDIVIDUALLY LISTED
SITES
Numerous individual properties have been listed in the National
Register of Historic Places and the Salt Lake City Register of
Cultural Resources since the 1970s.Among these are major,well
known Landmark Sites such as the Salt Lake City&County
Building,Denver&Rio Grande Railroad Station,Wasatch Plunge,
Trolley Square,and the Salt Lake Stock&Mining Exchange.Scores
of less well-known properties have been listed as well.A good
number of these resources were visited during the course of this
project.While the City has done an excellent job of ensuring that
many of its most important historic sites are recognized and
preserved,it was also surprising to see that others were
overlooked.Presumably these have not been designated for a
variety of reasons.Included among those non-listed sites that are
likely to be eligible for designation are many of the City's historic
school buildings,the City Cemetery,the architecturally unique LDS
Ward Chapels,St.Paul's Episcopal Church,several historic
powerhouses,and a number of early industrial buildings.Ongoing
efforts are needed to prioritize these unique sites so they can be
documented and designated in the coming years.
COMMENTS REGARDING SURVEY&
DESIGNATION
Two types of field survey have been employed in Salt Lake City
since the 1970s:reconnaissance and intensive-level.Each of these
has focused upon a specific geographic area of the City,and it
appears that few if any thematic surveys have been completed.
Many of these areas are quite sizable because of the expansive
historic street layout in Salt Lake City and the surveys have
consequently included unusually large numbers of properties.
Because intensive-level surveys require an in-depth level of
documentation,and consequently are labor and cost intensive,the
Appendix pg-34
Community Preservation Plan Final Draft 10.2012
City frequently employed the use of reconnaissance surveys to
complete a good number of its district documentation projects.
Every one of these reconnaissance surveys appears to have
resulted directly in the establishment of a historic district.
Reconnaissance level surveys are very useful tools. However, they
are not typically employed as an end in themselves. Instead they
were conceived of to help communities determine whether
additional in-depth survey is merited within a specific area, and to
establish geographic boundaries for such projects. In Salt Lake
City, reconnaissance surveys were typically used as the basis for
the establishment of historic districts, with no intensive-level
survey involved. This approach resulted in the creation of many
designated historic districts based upon a thin level of
documentation, primarily determinations of architectural integrity
based upon a cursory field evaluation of each building.
While this method was effective in helping the City to establish
historic districts, reliance upon the reconnaissance level of survey
alone appears to have resulted in the establishment of a couple of
historic districts that may not have merited this status. In one case
(the Capitol Hill Historic District Extension), it appears that the
historic district route was taken simply to deal with redevelopment
concerns that should have been countered through other means.
Clearly the City needs other tools, in addition to the establishment
of districts, to deal with change in its core areas. In addition, the
lack of information about each property has left City planning staff
with little to work with when permit requests come up for review.
This then requires a slow property-by-property determination of
historic and architectural significance at a point when the time and
means may not be available and when redevelopment pressures
are bearing down on decision-makers. Fortunately, it appears that
the City has recently come around to understanding the benefits
of intensive-level surveys and they are being employed more
often.
Over the past three decades, large areas of the City have been
surveyed and designated as official historic districts, either on the
Salt Lake City or National Register level. Most of these districts
abut one another. If this approach continues into the future, the
propensity to turn every surveyed area into a district will
eventually result in the entire City being listed, with no non-
historic areas in-between. In the long run, this is not good for
preservation efforts because it raises important questions about
Appendix pg-35
Community Preservation Plan Final Draft 10.2012
what is truly historic and significant. This muddles public
perceptions about what should be preserved. It appears that little
distinction has been made in Salt Lake City between what is
worthy of district status and what is not. So far, the underlying
message coming from the City through its survey and designation
process is that every area of the City over fifty years old will be
surveyed and designated a historic district. This may not in fact
match the City's true goals, but it is the perception that has been
created.
Salt Lake City's preservation leadership needs to be engaging in
pointed dialogue focused around one question: If everything old is
potentially significant and eligible, then what makes each
established or potential district in the City special or unique,
particularly when compared to other neighborhoods that exhibit
the same type of building stock from the same general time
period and with the same level of integrity? In other words, how
many bungalows and cottages (especially those of poor design
and construction and integrity) need to be locally designated
before the statement that they are significant becomes
meaningless? Designation of historic properties, on any level, must
discriminate between those resources that are important and
eligible and exhibit characteristics of integrity, and those resources
that may be old but do not merit this type of status. If these
distinctions are not made, designation eventually loses all
meaning and support for historic preservation begins to waver.
Then it simply becomes an annoying impediment to property
owners wanting to tear buildings down, redevelop sites, or make
alterations to their homes.
The same type of careful discussion and planning must occur
when establishing or defining district boundaries. Each district
must have justifiable, defensible boundaries that match what is
found on the ground, not just lines on a map that conveniently
follow the courses of major streets. Many of Salt Lake City's
established districts were observed to have boundary issues that
need to be resolved. In some cases, such as the Bryant Historic
District, these involve perimeters (and interior areas) that have
experienced attrition of historic resources. Others, such as the
Northwest Historic District, include numerous non-historic
resources such as commercial and industrial-warehouse buildings
that should not be part of the district. The Central City Historic
District, possibly a worst-case scenario, has effectively been split in
Appendix pg-36
Community Preservation Plan Final Draft 10.2012
two by extensive redevelopment along the 400 South commercial
and transportation corridor. If not drawn carefully, and periodically
refined, questionable boundaries can result in questioning of a
district's integrity. While some of Salt Lake City's historic district
boundary issues were the result of ineffective surveys or poorly
conceived perimeters, other boundaries have become problematic
over time because of redevelopment and change. This situation
places City staff in the position of having to administratively deal
with numerous non-historic properties located within indefensible
historic districts. Sometimes that is a preferred scenario when a
community is trying to control redevelopment. In other cases, it
bogs the planning office and permit review process down in
unnecessary and time-wasting situations. To address this issue, it
is recommended that the City engage in efforts to refine the
boundaries of each of the established districts. This will require
what is essentially a reconnaissance level survey of each district,
with the specific goal of bringing the boundaries into compliance
with what exists in reality. In addition, the drafting of boundaries
for future districts established in the City should be given careful
attention.
Overall, Salt Lake City has made great strides in the area of historic
preservation and in its work to preserve the City's numerous and
important historic resources. What is needed at this juncture is
simply a refinement or re-tooling of methods to ensure that the
City's survey and designation work is effectively pursued into the
future.
Appendix pg-37
Community Preservation Plan Final Draft 10.2012
Appendix B: City Plans and
Policies for Historic
Preservation
Because the City has never had a Historic Preservation Plan,
official historic preservation policy has been set sporadically
based upon incremental approaches related to each department SALT LAKE CITY
and planning area. The following sections review existing policy COMMUNEI ANOUSING
directions currently established in numerous City plans. For
reasons of space and legibility,this summary conveys the broad
/113
directions established in each document;this summary should
ra
not be interpreted as a complete listing of the full policy iE'
statements in each document. Those interested in the exact -
language are encouraged to reference the original document.
CITY PLANS
The Community Housing
The City has conducted several plans for the Downtown over the Plan contains numerous
past 20 years,including: goals related to historic
• Salt Lake City Downtown Plan(1995) preservation.
• City Vision and Strategic Plan(1993)
• East Downtown Neighborhood Plan(1990)
• Salt Lake R/UDAT Our Downtown Future(1988)
In addition,the City has conducted some topic-specific citywide
plans including plans for community housing and the parks and
recreation system. Each of these plans contains policy direction
related to historic preservation,as summarized in Table B-1 below.
Table B-1: Summary of Historic Preservation Policy Directions
in City Plans
Historic Resource Objectives and Goals
Salt Lake City • Provide historic preservation education to developers and
Community Housing property owners,including information on technical and financial
Plan(2000) assistance and incentives.
Salt Lake City Parks& • Protect significant historical or prominent open space and/or
Recreation Master Plan natural amenities(Liberty Park improvements and completion of
(1998) the Jordan River Parkway listed as implementation priorities).
• Develop standards for maintenance for parks and open lands,
Historic Resource Objectives and Goals
including master plans for Washington Square and Parley's
Historic Nature Park.
Salt Lake City • Establish Downtown as a diverse 24-hour activity center.
Downtown Plan (1995) • Preserve and protect existing neighborhoods.
• Preserve existing housing and provide additional housing and
hotel units, neighborhood support services, and amenities.
• Reinforce physical qualities and historical development patterns
that establish the unique urban character of the Downtown.
• Preserve historically significant buildings and districts while
accommodating new development and renovation.
• Solidify and Promote specialized districts with unique identity,
scale, intensity, and mix of uses.
• Provide an efficient streamlined review process.
• Use well-designed open space in the Downtown as a catalyst for
investment.
• This plan is in the process of being updated.
City Vision and • Restore and adaptively reuse historic resources.
Strategic Plan (1993) • Develop programs to enhance and preserve the City's cultural
history and character as expressed in the built environment.
• Offer strong economic incentives to stop housing unit
deterioration.
• Facilitate the development of complementary neighborhood retail
in the Downtown commercial and neighborhood areas. _
Salt Lake R/UDAT Our • Maximize use of Historic Overlay ordinance.
Downtown Future • Encourage use of deed restrictions to protect historic properties.
(1988) • Promote the use of economic incentives for preservation through
the mail and media as well as at the staff level.
• Increase preservation funding and use a combination of strategies
to offer local incentives for preservation.
• Avoid easy or capricious variances in zoning that result in
degradation of commercial and residential areas.
• Keep historic resource inventory up-to-date.
Creating Tomorrow • Enforce preservation strategies for buildings and neighborhoods.
Together: Final Report • Rehabilitate historic buildings for cultural uses wherever possible.
of the Salt Lake City
Futures Commission
(1998)
Creating an Urban • Maintain and encourage diversity through retention of existing
Neighborhood: businesses and residents, retention of existing structures and uses,
Gateway District Land development of a broad range of housing types which can fit into
Use & Development virtually any area of Gateway and integration of social service
Master Plan (1998) providers and their clients into the fabric of the community
Appendix pg-39
Community Preservation Plan Final Draft 10.2012
COMMUNITY MASTER PLANS
Long-range land use planning in the City is focused on specific
planning communities rather than citywide. The City is divided
into eight planning communities. Each area has an independent
master plan with a future land use map and a number of goals and
policies for the planning area covering a variety of topic areas
including:
• Future land use types,
• Parks and open space,
• Urban design,
• Transportation and circulation,
• Public facilities and utilities,
• Environmental, and
• Historic preservation.
While the plans follow the same general format, there is some
variety in the range of issues included and the level of detail and
policy direction provided by each. For purposes of developing the
historic preservation plan, these plans were reviewed for issues
specific to historic preservation. The following table summarizes
the key policy topics addressed by each plan that contains a
historic preservation section or policy language. This is not
intended as an exhaustive list of the goal and policy language
provided in each plan. Please refer to the individual plans
available on-line at the Salt Lake City Planning Division website.
Table B-2: Summary of Community Master Plan Historic
Preservation Policy Directions
Planning Area Historic Districts* Historic Resource Objectives
Avenues (1987) Avenues (L) • Provide better information to the
Avenues Extension (N) community on design guidelines.
South Temple (L)
City Creek (N) _
Capitol Hill (2001) Capitol Hill (L) • Implement historic signage and plaques.
Capitol Hill Extension • Additional intensive survey and designation.
(N) • Place preservation easements on public
buildings.
• Expand zoning language to include historic
Appendix pg-40
Community Preservation Plan Final Draft 10.2012
landscape protections.
• Desi nate historic landsca es.
Central Community (2005) Central City (L) • Create more historic district designations.
Exchange Place (L) • Increase historic preservation planning staff.
University (L) • Coordinate historic preservation and Transit
Bryant (N) Oriented Development.
Bennion-Douglas (N) • Ensure zoning is conducive to preservation.
Gilmer Park (N) • Enforce regulations to maintain historic
Westside Warehouse resources and ensure compatible
(N) development in historic districts.
• Identify additional historic sites and districts.
• Conduct additional outreach and education
to promote historic preservation.
East Bench (1987) N/A N/A
East Central Neighborhood University District • It is important that the neighborhood's
Plan (1992) twentieth century architectural flavor, tree
lined streets, and well maintained properties
be conserved.
• Conserve the low medium density character
of the area
• Encourage compatible infill housing on
vacant lots
• Encourage preservation of housing and
neighborhood elements
East Downtown Central City • Require new development to reflect the
Neighborhood Plan 1990 character of the neighborhood
• Designate 600 East as an historic district
• Strengthen demolition ordinance
• Pursue all strategies for preservation and
renovation of older apartment complexes
• Identify historic districts with monuments
and signage
• Develop revolving loan fund for historic
storefront renovation using CDBG funds
• Designate placement of brownstone
apartment buildings 50 years and older on
the City Register of Cultural Resources
Northwest (1991) Northwest (N) N/A
Northwest Quadrant N/A N/A
Appendix pg-41
Community Preservation Plan Final Draft 10.2012
Sugar House 2001 Highland Park (N) • Conduct reconnaissance-level survey work
(areas specified).
• Promote designation of historic sites.
• Educate property owners on tax credits.
• Support designation of national & local
districts.
• Investigate possibility of conservation
district ordinance.
• Educate about and promote the use of
available loans and financial incentives for
maintenance and repair.
West Salt Lake N/A • Conduct surveys of potential historic districts
(3.20.06 Draft) (areas specified).
• Promote the designation of sites and
districts in the planning area.
• Educate property owners on neighborhood
history and available tax incentives.
•
* (L)denotes Local Historic Districts;(N) denotes National Historic Districts.
Appendix pg-42
Community Preservation Plan Final Draft 10.2012
Appendix C: Existing Funding
Sources Programs for Historic
Preservation
The following table lists existing funding source programs that
could potentially be for historic preservation projects in Salt Lake
City.
Table C-1: Existing Funding Sources for Historic Preservation
Name Offered By I Available To Description Scale
.ate , ,
Federal National Parks Property owners of • Income tax credit for up to 20% National
Income Tax Service via income-producing of eligible rehabilitation
Credit State Historic structures improvements;and
(established Preservation (residential • Minimum Investment must
1976) Office properties and exceed pre-rehabilitation value
commercial of the building over 2-5 years,
properties). depending on magnitude of
project.
State Income State Historic Residential • 20%of eligible costs income tax State
Tax Credit Preservation properties(owner- credit;and
(established Office occupied and non- • Minimum Investment of$10,000
1993) owner occupied). over 3 years.
New Market National Trust Historic commercial • Equity investments funneled to National
Tax Credit Community rehabilitation qualified real estate projects
(NMTC) Investment projects in a census from the Community
(established Corporation tract with a 20% Development Entity(in this case
(established
(NTCIC) poverty rate of NTCIC)to private, public, and
2000)
household incomes non-profit entities.
at or below 80%of • Provide an investment tax credit
the area median (or to investors to the CDE of 39%
statewide median, on equity earned over a 7-year
if lower). period.
• The NMTC can be claimed in
conjunction with Federal and
State income tax credits(a
practice called twinning).
• Offered by Zions Bank, U.S. Bank,
Wells Fargo Bank
Name Offered By Available To Description Scale
Government Funding —11.11.11111r—
Community Federal Eligible • Acquisition of real property; National,City
Development Government communities across • Relocation and demolition;
Block Grants the US.1 • Rehabilitation of residential and
(CDBG) 70%of all funds non-residential structures;
must be used for • Construction of public facilities
projects benefiting and improvements, such as water
low and medium- and sewer facilities, streets,
income residents of neighborhood centers, and the
the community. conversion of school buildings
Communities for eligible purposes;
typically use • Public services,within certain
funding to limits;
augment the
• Activities relating to energy
operating budgets conservation and renewable
for a variety of energy resources;and
departments and • Provision of assistance to profit-
programs including motivated businesses to carry
housing, out economic development and
redevelopment, job creation/retention activities.
parks, and
transportation.
Loans low
Building Redevelopmen Property owners in • Up to 50% low interest project RDA Central
Renovation t Agency(RDA) the central business loan for facade restoration, Business and
Loan Program district and system upgrades, or residential Sugarhouse
Sugarhouse project conversions of upper floors of project areas
areas. commercial structures.
Building Redevelopmen Building owners in • No interest loan upon proof of Designated RDA
Renovation t Agency(RDA) eligible project project LEED certification for up project areas in
Loan Program area. to 50%of the total renovation the City
for High costs.
Performance
Buildings
Revolving Utah Heritage Owners of National • For exterior structural State, City
Loan Fund Foundation Register or local improvements and interior
register properties systems improvements.
or contributing • Five-year loans with an interest
structures in a rate fixed at half of prime.
national historic
district.
Salt Lake City,as a city with over 50,000 people, is an entitlement community meaning it
received CDBG funding on an annual basis.The CDBG award amount is determined by
one of two formulas that weigh the more prominent variable—population or age of housing
stock.
Appendix pg-44
Community Preservation Plan Final Draft 10.2012
rants
Preserve Preserve Designated • Bolster local heritage National
America America "Preserve America" preservation efforts;
(White House communities. The • Support better integration of
Administrative City became a heritage preservation and
Initiative Preserve America economic development;and
through the community in 2007. • Foster and enhance
Advisory intergovernmental and public-
Council) private partnerships to
accomplish these goals
Appendix pg-45
Community Preservation Plan Final Draft 10.2012
Utah Cultural I Utah State Cities,towns, • Grant awards up to $10,000 in a State
Heritage Historical counties, non-profit given year.
Tourism Society(SHPO) cultural • All grants require a one-to-one
Grants organizations. local financial match.
• Grants aimed at proposals that
will increase heritage tourism in
Utah, including activities that will
increase knowledge,
employment, attendance,
income,and participation.
• (May not be available every
year—not funded in 2009.)
Certified Local Utah State CLG cities,towns, • Conducting architectural and State
Government Historical and counties. archaeological surveys
(CLG) Grants Society(SHPO) • Nominating properties to the
National Register of Historic
Places
• Printing walking tour booklets
• Preparing feasibility studies and
working drawings for property
improvements
• Rehabilitating National Register
properties.
Utah Utah State Local cemeteries • Grants for inventory database State
Cemetery Historical and local groups. and GIS cemetery inventory
Inventory Society(SHPO) development.
Project • All grants require a one-to-one
local financial match.
Save National Trust Non-profits,federal • Federal matching grants; must National
America's for Historic organizations,state have dollar-for-dollar match to
Treasures Preservation, and local grant award amount.
National Park 1 governments, • Historic property rehabilitation
Service, federally grants start at a $125,000
President's recognized Indian minimum and have a $700,000
Committee on tribes. maximum.
the Arts and • For use on sites or collections of
Humanities. national historic significance.
Historic Redevelopmen Buildings on the • RDA reimburses owners up to RDA Depot
Preservation t Agency(RDA) state and City 50%tax increment generated District project
Tax Increment historic register. from renovation development areas
Reimburseme provided exterior of structure is
nt Program retained to a degree approved
by SHPO and HLC.
HGTV Restore National Trust • http://www.nationaltrust.org/rest National
America for Historic ore_america
Preservation
and HGTV
Johanna Johanna Favrot National Historic • Matching grants to nonprofit National
Favrot Fund Fund Landmarks organizations and public
Appendix pg-46
Community Preservation Plan Final Draft 10.2012
for Historic agencies for projects that
Preservation Cynthia Woods contribute to preservation or
and Cynthia Mitchell Fund recapture an authentic sense of
Woods for Historic place
Mitchell Fund Interiors
for Historic
Interiors
National Trust National Trust Non-profits, public • Two types of assistance: National
Preservation for Historic agencies matching grants for preservation
Funds Preservation planning and education efforts
(formerly and intervention funds for
Preservation preservation emergencies.
Services
Funds) •
Appendix pg-47
Community Preservation Plan Final Draft 10.2012
Easements
Preservation Utah Heritage Historic property • A conservation easement that State
Easements Foundation owners. protects the historic,
architectural,or archeological
significance of a property
through a private legal easement
that gives partial rights to the
property to a qualified easement
holder for a predetermined
duration.
• Protects against changes that
would be inconsistent with the
preservation of the property
(demolition,inappropriate
alterations,etc).
• Qualifies the donor for a
• charitable contribution tax
deduction for the assessed value
-of the easement.
•
Appendix pg-48
Community Preservation Plan Final Draft 10.2012
Appendix D: Definitions
The following definitions apply to terms that are commonly used throughout this plan.
Compatible
Designed to be in harmony with surrounding elements such as surrounding architecture and
landscape in terms of massing, design, scale, and siting.
Contributing Structure
A contributing structure is a structure or site within an historic preservation overlay district that
meets the criteria outlined in subsection C2 of section 21A.34.020 and is of moderate
importance to the city, state, region or nation because it imparts artistic, historic or cultural
values. A contributing structure has its major character defining features intact and although
minor alterations may have occurred they are generally reversible. Historic materials may have
been covered but evidence indicates they are intact.
Design Guidelines
Written tenets, based on the Secretary of Interior's Standards, according to which the Salt Lake
City Historic Landmark Commission interprets the standards of the historic overlay ordinance for
alterations, new construction, demolition, and relocation of landmark sites and properties in
historic districts.
Historic Context
Those patterns or trends in history by which a specific occurrence, property, or site is
understood and its meaning (and ultimately its significance) within history or prehistory is made
clear. Historic contexts are found at a variety of geographical levels or scales. The geographic
scale selected may relate to a pattern of historical development, a political division, or a cultural
area. Regardless of the scale, the historic context establishes the framework from which
decisions about the significance of related properties can be made. (From the National Park
Service)
Historic Landscape
A cultural landscape associated with events, persons, design styles, or ways of life that are
significant in national or local history, landscape architecture, archaeology, engineering, or
culture.
Historic Preservation
The process of preserving part of a community, from an individual building or part of a building
to a whole neighborhood (including roadways, landscapes and waterways), because of its
historical importance. (From UrbanPlanning.org.)
Appendix pg-49
Community Preservation Plan Final Draft 10.2012
Historic Preservation Overlay District
A geographically or thematically definable area which contains buildings, structures, sites,
objects, landscape features, archeological sites and works of art, or a combination thereof, that
contributes to the historic preservation goals of Salt Lake City.
Landmark Site
A Landmark Site is any site included on the Salt Lake City Register of Cultural Resources that
meets the criteria outlined in subsection C2 of section 21A.34.020 of the zoning ordinance. Such
sites are of exceptional importance to the city, state, region or nation and impart high artistic,
historic or cultural values. A Landmark Site clearly conveys a sense of time and place and
enables the public to interpret the historic character of the site.
Noncontributing Structure
A noncontributing structure is a structure within an historic preservation overlay district that
does not meet the criteria listed in subsection C2 of section 21A.34.020 of the zoning ordinance.
The major character defining features have been so altered as to make the original and/or
historic form, materials and details indistinguishable and alterations are irreversible.
Noncontributing structures also include those which are less than 50 years old.
Significant
Properties are significant for their association with important events or persons, for their
importance in design or construction, or for their information potential. The basis for judging a
property's significance and, ultimately, its eligibility for designation is historic context. (From the
National Park Service.)
Standards of Ordinance
Local law based on state enabling legislation, which provides the general criteria against which
work can be measured.
The National Park Service's Secretary of Interior's Standards includes four treatment
approaches:
• Preservation places a high premium on the retention of all historic fabric through
conservation, maintenance, and repair. It reflects a building's continuum over time,
through successive occupancies, and the respectful changes and alterations that are
made.
• Rehabilitation emphasizes the retention and repair of historic materials, but more
latitude is provided for replacement because it is assumed the property is more
deteriorated prior to work. (Both Preservation and Rehabilitation standards focus
Appendix pg-50
Community Preservation Plan Final Draft 10.2012
attention on the preservation of those materials, features, finishes, spaces, and spatial
relationships that, together, give a property its historic character.)
• Restoration focuses on the retention of materials from the most significant time in a
property's history, while permitting the removal of materials from other periods.
• Reconstruction establishes limited opportunities to re-create a non-surviving site,
landscape, building, structure, or object in all new materials.
Appendix pg-51
Community Preservation Plan Final Draft 10.2012
APPENDIX E. THE PLANNING PROCESS
This plan was developed through an interactive process that involved and incorporated
feedback from a variety of groups. In addition to constant and close communication with
planning staff of the Planning Division, public participation in the
planning process included the following:
HISTORIC LANDMARK COMMISSION
Regular meetings were held with the Historic Landmark Commission
charged with oversight of the planning process to receive their 3` - ,�►-r'"
feedback and direction. ija' . ' ►�
CITIZEN ADVISORY COMMITTEE
A 17-member Citizen Advisory Committee included citizens Final workshop.
representing a range of backgrounds, interests, and geographic
areas of the City, including preservation architects, historians, and
property owners. This volunteer group met regularly during the ` t_ ,
process to provide feedback on the content of this plan as it was
developed.
PUBLIC WORKSHOPS
Three public workshops and one open house were held throughout
the plan's development. These were held at the beginning, middle, The Historic Landmark Commission
and end of the process to offer opportunities for the community to is the key decision-making body for
define what they would like to see the plan address, help shape the the historic preservation program of
goals and policies for the plan, and then to provide feedback on the
draft plan prior to adoption.
CITY WEBSITE
,_ -
A dedicated page on the City's website, with a presence on the main
page, served as a primary method of making plan work products
and announcements available to the public for their review. The ; .
website also provided a means to submit questions and comments - _ .r
to staff.
ADDITIONAL OUTREACH ACTIVITIES - 'akie
The planning process also employed a number of additional
outreach methods at various times throughout the planning Three workshop and open house
process, including interviews with key preservation stakeholders and events were held during the course
of the planning orocess to garner
City elected officials, surveys widely d stributed through the public input.
Appendix pg-52
Community Preservation Plan Final Draft 10.2012
community councils, an ongoing online survey, presentations by staff to various groups, a public
service announcement (PSA) on SLCTV, and posters at various locations to advertise the effort
was underway and how to find additional information.
Appendix pg-53
Community Preservation Plan Final Draft 10.2012
APPENDIX F. TRANSIT AND HISTORIC
PRESERVATION: AN OPPORTUNITY FOR PARTNERSHIP
Three of the current transit stations in the City are within or along
the boundary of local historic districts. The planned extensions to
the system generally do not lie within or abut existing historic
districts.
A station area is the 1/2 -mile area around a transit station. While
ideal density numbers vary by community, higher density is
generally encouraged within transit areas, particularly the first 1/4
mile from the station to encourage use of the transit system.
There are several important considerations when applying transit-
oriented development (TOD) principles in an historic context.
1. Offer Attractive and Distinct Station Areas
Station area plans should ideally develop unique identities for
each station. These identities are largely shaped by the
surrounding development context of the station. For
example, a station in the central business district may have a
different design and development pattern than one next to
the University. By appropriately building on the existing
context, the station area can serve as a draw and facilitate
transit use. The station areas in Salt Lake are designed to be
the same general design, with the only defining feature being
art. The City made a deliberate decision to make them
consistent; however, the art could certainly be used to help to
identify the individual history of each site.
Historic districts offer an advantage in planning a station in
that the historic district already defines a unique identity.
Transit Oriented Development planning in these areas should
work to build upon this identity by placing a strong emphasis
on adaptive reuse and appropriate additions to existing
structures. Communities such as Dallas, Denver, San Diego,
and Arlington County, Virginia, have found that preserving
and integrating historic buildings in station area plans helps
maintain community identity. New development should be
compatible with the overall identity of the district and use
appropriate scale and step-downs in height to transition to
the remainder of the district.
Appendix pg-54
Community Preservation Plan Final Draft 10.2012
2. Create Mixed-Use Activity Centers
The goal of TOD planning is to develop station areas that
maximize ridership both day and night. A mix of residential, •
restaurant and entertainment,office,and retail uses are
s•
necessary to achieve this. '^ • • ;;;�,•
The adaptive reuse of historic buildings at station areas can a ,
help ensure that interesting,unique architecture is retained LL a '
and helps form a distinctive draw for each of these activity
centers. In some locations,adaptive reuse might be --�
partnered with the transfer of development rights(TDRs)to The historic Sears building at the
achieve additional density and to accommodate a broader Cedar light rail station in Dallas.
mix of uses than may have traditionally existed. See the
discussion on TDRs in Chapter Four.
3. Promote a People-Friendly Design
Regardless of the architecture or development intensity of a
given station area,the overall design and circulation pattern
should be pedestrian-friendly. Walkability is a key focus as
transit riders are pedestrians before and after departing the
light rail car. Station areas should offer multiple routes of safe
pedestrian ways with enhancements that promote use of
outdoor spaces through outdoor dining and plaza areas for art,
gathering,or garden spaces.
Traditional development patterns in older portions of cities
and towns tend to already be more pedestrian-oriented than
more recently developed areas,which tend to be more auto-
oriented. Intact and connected sidewalks,large shade trees
and detached sidewalks are some of the amenities already in
place in historic districts.
4. Manage Parking
Parking to serve the transit station and the development
within the transit station area should be well planned in
advance. Parking should be placed on the side or rear of a
building rather than in front of the building,and development
should maximize the use of on-street and flexible or shared
parking arrangements.
Appendix pg-55
Community Preservation Plan Final Draft 10.2012
Salt Lake City has an advantage for offering on-street parking
given the wide street widths of the original street grid. These
spaces should be maximized to reduce the need for
additional parking lots as development in station areas
intensifies.
Appendix pg-56
Community Preservation Plan Final Draft 10.2012
APPENDIX G. TRANSFER OF DEVELOPMENT RIGHTS
WHAT IS A TRANSFER OF DEVELOPMENT RIGHTS PROGRAM?
Transfer of development right (TDR) programs treat development potential as a commodity that
can be transferred (often for a price) between designated sending and receiving areas. In the
case of preservation, such programs can be used to transfer density from historic buildings to
other properties in the city. The purchase of the development rights associated with a historic
property preserves the property and compensates the property owner for the foregone
development potential. The purchaser of the rights is then able to develop their property at a
higher density or intensity than would otherwise have been allowed. The system is designed to
reduce redevelopment pressure on historic landmarks by allowing unused development
potential to be transferred. The landmark owner may generate additional income by selling
development rights to the owner or developer of the receiving site.
This win-win relationship and use of the market system make TDRs popular in concept. While a
valuable tool, much care must be taken in crafting the programs to achieve their intended
purpose and to be as administratively simple as possible. Many communities nationwide have
used TDR programs to support historic preservation, including San Francisco and New York City.
In Salt Lake, the City in the past has supported transfers of development rights in a preservation
context—for example, with the Hotel Monaco downtown. In another example, Portland,
Oregon, allows the transfer of unused density or floor area ratio (FAR) from a historic landmark
to another location in certain multi-family and nonresidential zoning districts. Density or FAR
may be transferred within the neighborhood where the landmark is located or to any site within
two miles of the landmark.
TDR SENDING AND RECEIVING AREAS
A TDR program, which deals with shifting density around to different locations in the city, should
be developed to achieve a desired result in overall built form. It is therefore critical to have a
big-picture idea of the goals for preservation as well as how transfers could help facilitate other
efforts in the city. The following are some potential TDR sending-receiving relationships:
Economic Development
Sending: Local historic districts or landmark sites (citywide)
Receiving: Predefined target area or areas in the Downtown where additional density
may be desired.
Housing
Sending: Local historic districts or landmark sites (citywide)
Receiving: Predefined historic or eligible buildings suitable for adaptive reuse or
expansion to accommodate affordable housing.
Redevelopment
Appendix pg-57
Community Preservation Plan Final Draft 10.2012
Sending: Local historic districts or landmark sites.
Receiving: RDA project areas outside historic districts
Light Rail Transit
Sending: Historic properties within a prescribed distance of the receiving transit station
area.
Receiving: Predefined transit station areas.
DEFINE BOUNDARIES WITH MARKET REALITIES IN MIND
As a market-based tool,it is essential to the success of any TDR program to define sending and
receiving area boundaries with a number of factors in mind:
• Demand: Market demand of the development in the receiving areas.
• Incentive:Level of additional density allowed in the receiving area.
• Supply: Credits available from sending areas should be scaled correctly so that the market
is not flooded and benefits can be directed in a meaningful manner.
Appendix pg-58
Community Preservation Plan Final Draft 10.2012
APPENDIX H. BEST PRACTICE HIGHLIGHT:
CHICAGO HISTORIC BUNGALOW INITIATIVE
The Historic Chicago Bungalow Initiative(HCBI)is designed to educate the public about the
historic and architectural importance of Chicago's tens of thousands of bungalows,and to assist
property owners in adapting their homes to meet current needs. The program also focuses on
improving quality of life and property values in Chicago's older,close-in neighborhoods,thus
helping to spur redevelopment and minimize the energy and environmental costs associated
with urban sprawl. A major focus of the program is encouraging energy-efficient rehabilitation
projects. After going through a free certification process,bungalow owners can apply for low-
interest loans or grants to help"green"or restore their homes. The HCBI has restored several
bungalows as model green homes,and tracks the energy usage of these models against
conventional restorations.
For more information,visit www.chicagobungalow.ora.
Appendix pg-59
Community Preservation Plan Final Draft 10.2012
APPENDIX I. CONSERVATION DISTRICTS
WHAT IS A CONSERVATION DISTRICT?
New"conservation districts"might be an appropriate tool for
protecting some of the communities in Salt Lake that have special
attributes that citizens want to protect. Conservation districts are
being considered or have been adopted in a growing number of
jurisdictions across the country as one alternative to more stringent
historic district regulations. Communities as diverse as Dallas, Texas
(illustrated on this and the following page); Cambridge, Massachusetts;
and Portland, Oregon, all have adopted conservation districts,though
each district is unique. (Portland also has"conservation landmark"
designation for individual properties.) Most conservation districts are
directed at preserving the residential character of a neighborhood,
maintaining a unique community center, or emphasizing an important
cultural element of a community. Some are intended as, buffer, or
transition areas immediately surrounding a protected historic district.
Sometimes,they are used for areas that fall short of meeting the
criteria for a local, state, or national historic designation, but which
nevertheless have important cultural,visual, or other significance. ham'*; . ;.
KEY ELEMENTS OF CONSERVATION DISTRICTS s ..,,
ir •
• Design flexibility is an important attribute of conservation
districts. Whereas the primary purpose of a preservation 410-
district is to protect the historic integrity of an area (usually by 1i of
preventing demolition and requiring appropriate renovation or 1111
highly compatible new construction), conservation districts -- _
can, depending on how they are drafted, be much more --1""iler'
flexible and can allow design elements that might accent or -
complement a particular neighborhood feature so long as the Example of conservation
general character of the area remains intact. Design guidelines district in Dallas, Texas
in conservation districts generally are not overly detailed and
are developed on the basis of specific neighborhood concerns
and features, such as building height, lot size, setbacks, and
landscaping. (Historic districts go further to also address more
specific elements of the buildings themselves such as windows,
Appendix pg-60
Community Preservation Plan Final Draft 10.2012
decorative elements,materials,and colors.) A conservation
district could be an appropriate tool to address concerns such
as encroachment of commercial uses into residential areas,by
imposing some limited design and development standards
designed to preserve the existing character of the area. The
conservation district could be a good tool for allowing infill
development that is consistent with established neighborhood
design(contextual setbacks,shape of building,pitch of roof,
etc.).
• The sponsoring group typically develops a plan or study that
details the proposed conservation district with a map,
neighborhood history,defining characteristics,issues the
district is intended to address,and design guidelines to be
instituted through the district.
• The process for creating conservation districts can be
voluntary. The voluntary nature of the district means that it
would be applied in areas where residents care strongly about
their neighborhoods,and thus much of the district's provisions
would be self-enforced.
• Administration of conservation districts is typically kept as
simple as possible—using existing procedures of underlying
zoning and allowing staff review of most proposals in
conservation districts. This keeps the mechanics streamlined
and does not place a review volume burden on official boards
and commissions which,over time,could result in an
unwillingness or inability to support additional conservation
districts.
In Salt Lake,the Sugarhouse and Gilmer Park neighborhoods have
been suggested as possible areas to consider conservation
districts.
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APPENDIX J. PROTECTING HISTORIC PROPERTIES OF
THE RECENT PAST
PROTECTING HISTORIC PROPERTIES OF THE RECENT PAST
A recurring theme in the comments received during this planning process is that Salt Lake
should be more assertive in identifying and protecting historic resources from the recent past.
Historic preservation traditionally has focused on a fairly strict threshold of 50 years in
determining whether or not a property is historically significant. A simple reason for this
threshold is because,typically,timeframes of less than 50 years do not allow sufficient insight
into whether a property is sufficiently important in the big-picture history of the community. In
the words of the National Park Service:"The passage of time allows our perceptions to be
influenced by education,the judgment of previous decades,and the dispassion of distance."
Often,because they are not considered technically eligible for designation,historic resources
that are less than 50 years old receive less attention and protection than older landmarks,and
are more susceptible to demolition or inappropriate alterations.
There is growing precedent for recognizing historic significance in properties that have not hit
the 50-year mark. Some nationally famous examples have included the architecturally
significant terminal building at Dulles Airport in Washington,D.C.,and Elvis Presley's historically
significant Graceland mansion,both of which were placed in the National Register when they
were less than 50 years old. The Park Service guide on the topic explains:
"Fifty years is obviously not the only length of time that defines
"historic"or makes an informed,dispassionate judgment possible.
It was chosen as a reasonable,perhaps popularly understood span
that makes professional evaluation of historical value feasible.The
National Register Criteria for Evaluation encourage nomination of
recently significant properties if they are of exceptional
importance to a community,a State,a region,or the Nation.The
criteria do not describe"exceptional,"nor should they.
Exceptional,by its own definition,cannot be fully catalogued or
anticipated.It may reflect the extraordinary impact of a political or
social event.It may apply to an entire category of resources so
fragile that survivors of any age are unusual.It may be the
function of the relative age of a community and its perceptions of
old and new.It may be represented by a building or structure
whose developmental or design value is quickly recognized as
Appendix pg-62
Community Preservation Plan Final Draft 10.2012
historically significant by the architectural or engineering
profession.It may be reflected in a range of resources for which a
community has an unusually strong associative attachment. Thus a
complete list of exceptionally significant resources cannot be
prepared or precise indicators of exceptional value prescribed."
Other Resources:
• Recent Past Resource Network:www.recentpast org
• US Dept Interior:NPS:Guidelines for Evaluating and Nominating Properties that Have Achieved Significance Within the Past
Fifty Years(proper cite)
Appendix pg-63
Community Preservation Plan Final Draft 10.2012