SECTION 4 - HISTORIC PRESERVATION

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1 SECTION 4 - HISTORIC PRESERVATION Why preserve - It is reasonable to ask, "Why preserve?" when faced with the decision of what to do with an older property. The thought of starting fresh when faced with the problems of an older home or building is attractive in our modern society. The downside of this tendency, however, is that we lose part of our history every time we raze an old building. Without older structures that reflect the design and cultural aspirations of the past, communities take on a different character; neighborhoods lose their identity; we more easily forget those who went before us. When we preserve and restore our historic resources-buildings, sites, structures, objects, and landscapes-we gain a lot: We maintain our community's appearance and character, which gives it an identity and a personality all its own. We give future generations a glimpse of the architecture of their past. We save the artistic workmanship so evident in older structures. We "recycle" structures into other uses. Illinois Historic Preservation Agency (IHPA) The creation of the preservation movement in the country was a reaction to the pace and scale of change that has occurred over the past half century. During this period of growth, the single most influential factor that drove development was the creation of the continental freeway system that superimposed itself on cities, towns and open spaces. The system of freeways was followed by new suburban development which, in turn, altered patterns of housing and commercial development. Downtowns were torn down in the name of urban renewal, and replaced by oceans of asphalt to accommodate the automobile, and then occupied by remote and unfamiliar buildings that ignored the context that surrounded them. It was easily recognized that something more than simply blocking development had to be done in order to preserve the architectural heritage of cities, towns and villages. The intervention of government was necessary. However, due to the fact that the need for preserving the buildings of the past stemmed from personal passion to protect the built environment, public support for historic preservation has flowed from the bottom up, making it a grassroots movement, not just another Government program. This chapter addresses the current state of historic preservation in Elgin and at the National level, and then talks about implementation of preservation in Elgin through the Design Review process and alternate means such as conservation areas and easements. Also addressed are financial incentives, building codes, accessibility and teardowns. Preservation at the Local Level Historic preservation in Elgin has been making advances for over twenty years. Efforts were begun in the early 1980s as a grassroots movement by residents of an eastside neighborhood known as the Gifford Park Association (GPA). It was generally recognized that the effects of urban renewal of the 1960s had caused the erosion of downtown Elgin which was slowly making its way into the neighborhoods that surrounded it. One of the methods that was determined to be effective in controlling this wearing away of downtown and its surrounding neighborhoods was to enable the City to identify and protect architecturally significant properties and neighborhoods through the creation of a local landmark ordinance which enabled individual structures to be designated as landmarks, and groups of structures to be designated as historic districts. To implement the process of identification of structures that had the potential to be designated as individual landmarks or historic districts, older established neighborhoods were surveyed and an inventory of structures produced. The survey provided the City with information to facilitate the process of landmark designation. The following is a list of individual property and neighborhood surveys that have been carried out to date, with plans to continue surveying Elgin s older established neighborhoods in the future. The locations of the completed and future survey areas are shown on Figure 4.1 Survey & Inventory of Older Established Neighborhoods. Completed surveys: Illinois Historic Structures Survey 1972 (Interim Report 1972) Illinois Historic Landmarks Survey 1974 (Interim Report 1974) Gifford Park Neighborhood photographic survey (Elgin Historic District) Center City Survey Near West Side Laurel-Stella Area Michigan Triangle Spring-Douglas Corridor 1995 (Spring-Douglas Historic District) Northeast Neighborhood Southeast Neighborhood 1998 (Elgin National Watch Historic District) Lord's Park Neighborhood Ryerson Park/Southwest Neighborhood Part Proposed future surveys: Northwest Neighborhood Part 1 Northwest Neighborhood Part 2 Shoe Factory Area Sunset Park Midwest Neighborhood Part 1 Southwest Neighborhood Part 2 Midwest Neighborhood Part 2 Wing Park Neighborhood Highland/Larkin Neighborhood Midwest Neighborhood Part 3 Huff Neighborhood Part 1 Huff Neighborhood Part 2 Original Eastside Neighborhood Part 1 Original Eastside Neighborhood Part 2 Elgin s Historic Districts and Landmark Structures The City of Elgin is committed to protecting and preserving its historic neighborhoods and structures. The previously described survey work has helped to identify a number of neighborhood areas and structures that are now protected as local and/or national historic districts and landmarks. These neighborhood areas and structures are identified on Figure 4.2 Historic Districts and Landmarks. The Elgin Historic District (designated 1981) The Elgin Historic District contains part of the original plat of Elgin which was laid out in 1842 by James Gifford. Land within the district was completely platted by 1859 with streets laid out in a modified grid pattern. The Elgin Historic District contains an excellent collection of late-19th and early 20th century residential architecture. Located to the east of the downtown area, lots were platted as early as the 1840s. Construction within this area was limited until after the Civil War. Many of the dwellings were erected during the boom years of the 1880s and 1890s when Elgin prospered as a result of the growth of the Elgin National Watch Company. Between 1879 and 1891, this company grew from 840 to more than 3,000 employees. Many of the company's foremen and managers built large two-story frame dwellings along the streets in the neighborhood. By 1892, more than 400 buildings had been constructed within the present boundaries of the historic district. Section 4 -Historic Preservation Page 1

2 In addition to the homes for the city's middle and upper class residents, the district was also the home to many of the factory workers and their families. A number of multi-family brick apartment buildings or "flats" were constructed in the district in the 1880s and 1890s. Most of these were built along East Chicago Street and other streets in the western section of the district. These brick buildings are illustrative of the rapidly urbanizing character of Elgin at the turn of the century. The west section of the historic district also became the home of several of the city's most prominent churches. At the northwest corner of Gifford and Fulton Street is St. Mary's Church constructed between 1896 and 1899 in the Gothic Revival style. When it was built, this was the most costly church constructed in Elgin. Another prominent church in the district is the Universalist Church at the southeast corner of Villa and DuPage Streets. This brick church was completed in 1892 and was designed to resemble, from above, a pocket watch enclosed in a case. This church was listed on the National Register in Gifford Park is the city's first public park and it was laid out by James Gifford in his 1844 addition. The park was later enlarged in the 1850s. The park has been an amenity in the district since the mid-19th century and it was re-landscaped and equipped in a traditional design in the late 1990s. In the early 1850s the dream of building a school became a reality as a board of trustees laid the foundations for an academy in This building was completed in and came to be known as "Old Main." The threestory brick building was designed in the Greek Revival style with a large portico on the primary facade and a bell tower at the roof line. The building was damaged by fire in 1911 and the upper floor rebuilt. The building was used as a school until 1969 and in 1976 a fund drive to restore the building was initiated. Much of the building's original appearance was restored including the original roof form and bell tower. In 1987, the building opened as a museum operated by the Elgin Area Historical Society. Although much of the Elgin Historic District was developed by 1900, construction continued well into the early 20th century. More modern architectural types such as American Foursquare and Bungalow dwellings were constructed in these years, and by 1930 few vacant lots remained in the area. In recent decades demolition and new construction has been limited on most blocks and the district contains a remarkably homogenous collection of 19th and early 20th century dwellings. The significance of this area was recognized in 1983 when it was listed on the National Register of Historic Places. The Spring-Douglas Historic District (designated 1996) The Spring/Douglas Historic District is located in the north section of Elgin on the east side of the Fox River. The district encompasses both sides of Spring Street and Douglas Avenue for a distance of twelve blocks. These two streets run parallel to each other northward from the downtown area. The district terminates north of River Bluff Road. Like much of the city, this historic district developed during Elgin's boom years of the late 19th century. Much of this land was platted and subdivided in the 1840s and 1850s and the earliest remaining dwellings in the district date to just before the Civil War. The growth of the city's dairy industry and the establishment of the Elgin National Watch Company resulted in a dramatic increase in Elgin's population towards the end of the century. Housing construction moved northward from the downtown area and by 1890 an electric streetcar line ran up Douglas Avenue. Dozens of homes were built on these two streets which reflected the popular national architectural trends of the period including the Queen Anne and related styles. Douglas Avenue was called "Elgin's Fashionable Avenue" by a local newspaper in 1884 and it was home to many of the city's leading citizens. Numerous large dwellings were also built on Spring Street and this section of the city was one of the preferred residential areas of the turn of the century. In addition to the residential construction, Sherman Hospital was built just east of Spring Street during the 1890s. This hospital complex greatly expanded thereafter, and today is an important institutional landmark adjacent to the district. The district continued to develop in the early 20th century and many fine Colonial Revival and Prairie style dwellings were built in the years just before and after World War I. Both streets were largely developed by 1930 and only a few buildings were constructed after this period. The Spring/Douglas Historic District continues to contain some of Elgin's finest historic architecture and it remains an attractive residential section of the city. The significance of this area was recognized in 2000 when it was listed on the National Register of Historic Places. The Elgin National Watch Historic District (designated 1997) Just south of Elgin's downtown is the section of town most closely associated with the Elgin National Watch Company. The company, established in 1864, built its factory on a 35 acre site on the east bank of the Fox River just south of downtown. Housing for watch factory workers was provided through land purchased by the company for the construction of cottages, and through the construction of National House, a boarding house for single workers. At its peak in 1919, it contained 350 rooms. The structure was unfortunately demolished in With the doubling of the company by 1880, many new houses were constructed around the factory by employees of the company. Most of these were simple vernacular house types such as Gable Front cottages, Gable Ells, or Upright and Wings. Of the high style buildings found in the district, most were Italianate in style with some Greek Revival and Second Empire style buildings present as well. Construction reached its peak during the prosperous years of the company in 1920, during which time many newer structures were built. Notable structure within the district were the Watch Company Observatory, which set the time for clocks and watches by the stars, the Watch Factory Depot, currently being restored by the City of Elgin, Fire Barn #5, and the Illinois National Guard Armory. Elgin Landmark Structures The City has identified and designated individual landmark structures in addition to the three historic districts for protection under the ordinance. They are: 1. Lord's Park Pavilion Oakwood Boulevard. (Landmarked 1991) - Dedicated in 1898, this framed pavilion in the park was constructed as a focal point for Lord's Park on the eastern edge of the city. The park was a gift from George P. and Mary E. Lord to provide outdoor enjoyment and recreation for the residents of Elgin. The building was recently restored and continues to be well maintained by the City of Elgin. 2. Fire Barn No St. Charles Street. (Landmarked 1991) - Commissioned in 1904, Elgin's last fire barn was designed by Smith Hoag in the Classical Revival style. The first floor housed the horses and fire fighting equipment while the second floor housed the firefighters. The building was decommissioned in 1991 and is presently home to the Elgin Fire Museum. 3. Lord Memorial Museum Grand Boulevard. (Landmarked 1992) - Designed by D. E. Postle in the Neo-classical style, the museum was built in The museum is located in Lord's Park and was the final gift of George P. and Mary E. Lord to the people of Elgin. The museum finally had its east wing completed to match the west wing in Elgin National Watch Company Observatory Watch Street. (Landmarked 1992) - Built in 1910, the observatory's purpose was to record and transmit precise time from the movement of the stars to the Elgin National Watch Factory. 5. Fire Barn No Dundee Avenue. (Landmarked 1992) - Built for horse-drawn apparatus in 1896, this fire barn was designed by Elgin architect, Smith Hoag. Hoag was the architect for other fire barns in Page 2

3 South St Liberty St Highland Ave Larkin Ave McLean Blvd Wing St State St 16 US Route State St Dundee Ave I Congdon Ave Summit St Chicago St Villa St Bode Rd US Route 20 Figure 4.1 Survey & Inventory of Older Established Neighborhoods Map Legend Surveys Completed 1 Elgin Historic District (1981) 2 Center City (1991) 3 Near Westside (1995) 4 Laurel Area (1995) 5 Michigan Triangle (1995) 6 Spring-Douglas District (1995) 7 Northeast Neighborhood (1997) 8 Southeast Neighborhood (1998) 9 Lords Park Area (2000) 10 Ryerson Park/Southwest Neighborhood (2002) 11 Northwest Neighborhood Pt. 1 Surveys Proposed 12 Northwest Neighborhood Pt Shoe Factory Area 14 Sunset Park 15 Midwest Neighborhood 16 Southwest Neighborhood Pt Midwest Neighborhood Pt Wing Park Neighborhood 19 Highland/Larkin Neighborhood 20 Midwest Neighborhood Pt Huff Neighborhood Pt Huff Neighborhood Pt Original Eastside Neighborhood Pt Original Eastside Neighborhood Pt. 2 Fox River Feet City of Elgin Comprehensive Plan and Design Guidelines City of Elgin Community Development Group

4 Illinois Route 47 Illinois Route 47 Kendall Rd Marshall Rd Muirhead Rd South St Liberty St 29 Illinois Route 72 Barr Rd Rohrsen Rd Plato Rd Burlington Rd Dittman Rd Lenz Rd Plank Rd Crawford Rd Switzer Rd 28 Corron Rd McDonald Rd Highland Ave 30 (/ 20 Russell Rd Nesler Rd Coombs Rd.-, 90 Bowes Rd Higgins Rd 26 Big Timber Rd Hopps Rd (/ Highland Ave Larkin Ave McLean Blvd 27 State St State St.-, 90 Congdon Ave Chicago St Summit St Villa St West Bartlett Rd (/ 20 Figure 4.2 Historic Districts & Landmarks Map Legend Elgin Historic District (1981) Spring-Douglas District (1996) Elgin National Watch District (1997) DC Cook District (2007) Fox River Elgin Planning Boundary Elgin Landmarks (15) Dundee Av Grand Av Park St Park St Park St Oakwood Blvd Margaret Pl Watch St St. Charles St S State St Division St E Chicago St W Highland Av Larkin Av N Randall Rd National Register of Historic Places (11) 16 Spring-Douglas District Park St 18 Elgin Historic District E Chicago St Villa St Prairie St S State St Watch St St Charles St W Highland Av N Randall Rd Kane County Landmarks (4) 27 35W655 Tollgate Rd 28 15N485 Damisch Rd 29 12N950 Route Corron Farm 1 Mile 1/2 Mile 0 1 Mile City Comprehensive of Elgin Plan and Design Guidelines City of Elgin Community Development Group

5 Elgin. The structure was restored in 1996 when its bay window and main barn doors were reconstructed based on photographic documentation. 6. Teeple Barn North Randall Road. (Landmarked 1998) - Completed in 1885, this massive balloonframed barn was designed for dairy farmer Lester Teeple by Elgin architect W.W. Abell. It is the only 16- sided barn recorded in Illinois. The interior reveals a complex system of timber framing, with large x- bracing supporting the wall panels. 7. The Professional Building Division Street. (Landmarked 1998) - Completed in 1928, this Gothic Style building was designed as offices for doctors, lawyers, insurance agencies, and dentists. The interior contains a very ornate lobby with arcade designed in the Gothic Revival Style. The eighth floor was originally occupied by the Union League Club, which maintained a luxurious dining facility and huge fireplace. 8. The Elgin Tower Building East Chicago Street. (Landmarked 1998) - Completed in 1929 by the St. Louis Bank Building & Equipment Company, this 15 story 186 foot Art Deco building was designed to house Home National Bank & Home Trust and Savings Bank. Gray granite and Bedford Indiana limestone are used on the exterior surfaces. 9. The Ora Pelton Residence South State Street. (Landmarked 1998) - Built in 1889, the house is an excellent unaltered representation of high Victorian detailing and form. The residence was designed by renowned architect and builder, Gilbert M. Turnbull. The carriage house in the rear, built in 1890, is also an essentially unaltered significant structure. 10. Lovell House Margaret Place (Landmarked 2001) - Constructed in 1886 by local builder Henry Jensen, the Stick Style home with Eastlake characteristics was originally owned by Vincent Smith Lovell, former mayor of Elgin ( ). 11. The Charles & Louisa Busche Home 616 Park Street (Landmarked 2003) - Designed by two of Elgin s notable architects, Gilbert M. Turnbull and David E. Postle, the Queen Anne Free Classic Style home was constructed in 1892 by local builder Charles Giertz. 12. The Thomas P. & Emma Matters Estate 636 Park Street (Landmarked 2003) - Constructed in 1903, the Queen Anne Free Classic Style home was originally owned by Thomas P. Matters, the proprietor of the Matters Tubular Well Company. 13. The Alexander & Margaret McTavish House 650 Park Street - (Landmarked 2003) Constructed in 1922, the Colonial Revival Style home was originally owned by Alexander McTavish, a local carpenter and contractor for Steven Smith who built many of the homes in the Lord s Park Neighborhood. The Elgin Heritage Commission The authority to identify properties and recommend them for designation is provided to the Elgin Heritage Commission. The Elgin Heritage Commission is a citizens advisory board made up of nine members including an architect, a historian, a real estate agent, a representative of the local historical society appointed by the city council, and interested citizens as available. The Commission was created in 1984 with a broad range of duties and responsibilities including the "promotion and education of property owners, local government agencies and the public at large regarding the protection, maintenance, and preservation of Elgin's architectural, historic and cultural resources..." The Commission has an advisory role in matters pertaining to historic building surveys, nominations to the National Register, and other preservation planning efforts. The Historic Preservation Ordinance The enabling legislation that affords the City the ability to regulate changes to the exterior of an individual landmark property, or groups of properties located within historic districts brought about the creation of Title 20 of the Elgin Municipal Code - "Historic Preservation." The ordinance was created in 1988 to provide a mechanism to identify, designate, preserve and protect landmarks, buildings, fixtures, facades, places, districts and natural objects within the City which have historical or architectural significance. Preservation at the Regional Level Kane County With the pressures of new development increasing in the County, a preservation program was initiated in 1989 to preserve the historic character of the County s unique communities with the protection of its historic resources. The tools used by the County to achieve its goals for preservation are: 1. the 2030 Land Resource Management Plan 2. Rural Structures Survey 3. Preservation Plan and Register of Historic Places 4. the Rustic Road Ordinance The County currently has 30 designated historic landmarks, one rustic road and one historic district. Of these, two designated historic landmarks lie within the boundaries of the Comprehensive Planning area. They are: 1. Old St. Peter s Church Building on Rt. 47 at Plank Road 2. Hinds Farmstead on Damisch Road at Big Timer Road Kane County facilitates the preservation of landmarks through intergovernmental agreements, technical assistance in establishing programs in communities without preservation tools and help to strengthen municipal ordinances. The Kane County Rustic Roads Program was established under the preservation ordinance to designate and preserve natural character and scenic vistas for future generations. The program encourages the development of a Corridor Management Plan along a designated route which defines and protects the significant scenic, natural and historic features that should be protected and enhanced. The program promotes Preservation at the National Level The earliest efforts of the federal government to legitimize and legally recognize historic preservation was through the passage of the National Historic Preservation Act of With passage of the Act, Congress made the federal government a full partner and a leader in historic preservation. While Congress recognized that national goals for historic preservation could best be achieved by supporting the drive, enthusiasm, and wishes of local citizens and communities, it understood that the federal government must set an example through enlightened policies and practices. In the words of the Act, the federal government's role would be to "provide leadership" for preservation, "contribute to" and "give maximum encouragement" to preservation, and "foster conditions under which our modern society and our prehistoric and historic resources can exist in productive harmony." An underlying motivation in passage of the Act was to transform the federal government from an agency of indifference, frequently responsible for needless loss of historic resources, to a facilitator, an agency of thoughtful change, and a responsible steward for future generations. However, in order to ensure that the preservation ethic extended throughout all federal agencies, two resultant institutions of the Act were important to this implementation. An Advisory Council on Historic Preservation, the first and only federal entity created solely to address historic preservation issues, was established as a cabinet-level body of President-appointed citizens, experts in the field, and federal, state, and local government representatives, to ensure that private citizens, Page 7

6 local communities, and other concerned parties would have a means of influencing Federal policy, programs, and decisions as they impacted historic properties and their supporting values. Section 106 of the National Historic Preservation Act granted legal status to historic preservation in federal planning, decision making, and project execution. Section 106 required all federal agencies to take into account the effects of their actions on historic properties, and provide the Advisory Council with a reasonable opportunity to comment on those actions and the manner in which federal agencies took historic properties into account in their decisions. 9. New additions, exterior alterations, or related new construction shall not destroy historic materials that characterize the property. The new work shall be differentiated from the old and shall be compatible with the massing, size, scale, and architectural features to protect the historic integrity of the property and its environment. 10. New additions and adjacent or related new construction shall be undertaken in such a manner that if removed in the future, the essential form and integrity of the historic property and its environment would be unimpaired. The National Park Service (NPS), under the jurisdiction of the Secretary of the Interior, was directed to implement the policy developed as a result of the Act. The agency was selected since it was one with the longest and most direct experience in studying, managing, and using historic resources. It was understood that it would provide funding assistance, basic technical knowledge and tools, and a broad national perspective on America's heritage. A set of Standards were created to help preserve the distinctive character of historic buildings and their sites, while allowing for reasonable changes to meet new needs. Standards for Rehabilitation The Secretary of the Interior s Standards for Rehabilitation, as they are commonly referred to, apply to historic buildings of all periods, styles, types, materials, and sizes. They apply to both the exterior and the interior of historic buildings. The Standards also encompass related landscape features and the building's site and environment as well as attached, adjacent, or related new construction. More importantly, they are applied to projects in a reasonable manner, taking into consideration economic and technical feasibility. The Standards are as follows: 1. A property shall be used for its historic purpose or be placed in a new use that requires minimal change to the defining characteristics of the building and its site and environment. 2. The historic character of a property shall be retained and preserved. The removal of historic materials or alteration of features and spaces that characterize a property shall be avoided. 3. Each property shall be recognized as a physical record of its time, place, and use. Changes that create a false sense of historical development, such as adding conjectural features or architectural elements from other buildings, shall not be undertaken. 4. Most properties change over time; those changes that have acquired historic significance in their own right shall be retained and preserved. 5. Distinctive features, finishes, and construction techniques or examples of craftsmanship that characterize a historic property shall be preserved. 6. Deteriorated historic features shall be repaired rather than replaced. Where the severity of deterioration requires replacement of a distinctive feature, the new feature shall match the old in design, color, texture, and other visual qualities and, where possible, materials. Replacement of missing features shall be substantiated by documentary, physical, or pictorial evidence. 7. Chemical or physical treatments, such as sandblasting, that cause damage to historic materials shall not be used. The surface cleaning of structures, if appropriate, shall be undertaken using the gentlest means possible. 8. Significant archeological resources affected by a project shall be protected and preserved. If such resources must be disturbed, mitigation measures shall be undertaken. It is these standards on which the general philosophy of historic preservation is based. They have changed the scope of what the philosophy of preservation is from protection of the occasional monument, shrine or burial mound securely protected and out of reach to the lay person, to the preservation of objects of everyday life, including homes, neighborhoods, commercial buildings, landscapes, and other structures accessible to all people. In addition to the involvement of the federal government in creating preservation policy, the states, through State Historic Preservation Officers (SHPOs) appointed by the governor of each state, were required to provide matching funds, a designated state office, and a statewide preservation program tailored to state and local needs and designed to support and promote state and local historic preservation interests and priorities. The National Register of Historic Places The method used by the federal government to identify and designate properties as historically significant is through the National Register of Historic Places. The National Register of Historic Places is the Nation's official list of cultural resources worthy of preservation. Authorized under the National Historic Preservation Act of 1966, the National Register is part of a national program to coordinate and support public and private efforts to identify, evaluate, and protect the country s historic and archeological resources. Properties listed in the Register include districts, sites, buildings, structures, and objects that are significant in American history, architecture, archeology, engineering, and culture. The program is administered by the National Park Service. The National Register contains approximately 77,000 listings. These comprise mainly of: All historic areas in the National Park System; Over 2,300 National Historic Landmarks, which have been designated by the Secretary of the Interior because of their importance to all Americans; Properties across the country that have been nominated by governments, organizations, and individuals because they are significant to the nation, to a state, or to a community. Elgin has a number of properties listed in the National Register. They are listed below: 1. Elgin Academy, 350 Park Street. (listed Oct 08,1976) 2. Gifford-Davidson House, Prairie Street (listed May 31,1980) 3. First Universalist Church, 55 Villa/263 DuPage Street (listed Nov 07,1980) 4. Ora Pelton House, 214 S.State Street (listed Aug 12,1982) 5. Elgin Historic District, roughly bounded by Villa, Center, Park, N. Liberty, and S. Channing streets (listed May 09,1983) 6. Elgin Milk Condensing Company / Illinois Condensing Company, Brook and Water Streets (listed Feb 14,1985) (Demolished 1998, De-listed 2002) 7. Fire Barn #5, 533 St. Charles Street (listed Aug 05,1991) 8. Elgin National Watch Company Observatory, 312 Watch Street (listed Aug 16,1994) 9. Teeple Barn, 1715 North Randall Road (listed Dec 10,1979) 10. Memorial Washington Reformed Presbyterian Church, West Highland Avenue (listed Nov 19,1980) 11. Spring-Douglas Historic District, Roughly bounded by Douglas Ave, Spring Street River Bluff Road and Kimball Avenue (listed April 28, 2000) Page 8

7 12. Elgin Tower Building, 100 E Chicago Street (listed May 22, 2002) Properties listed in the National Register are distinguished by having been documented and evaluated according to uniform standards. These criteria recognize the accomplishments of individuals and groups who have contributed to the history and heritage of the United States and are designed to help state and local governments, Federal agencies, and others identify important historic and archeological properties worthy of preservation and of consideration in planning and development decisions. Listing in the National Register contributes to preserving historic properties in a number of ways such as recognition that a property is of significance to the Nation, the state, or the community, consideration in the planning for federal or federally assisted projects, eligibility for federal tax benefits and qualification for federal assistance for historic preservation, when funds are available. However, listing in the National Register does not protect a property from demolition, or impose any regulation on a property or district. Historic preservation, in addition to being a public activity, is also largely a private endeavor and is supported through the country by individual citizens, organizations, businesses, communities, elected officials, and public institutions in various and varied ways. The National Trust for Historic Preservation, a private organization that was chartered by Congress in 1949, supports and nurtures historic preservation in the private realm. However, it is at the local grassroots level the individual homeowner, the neighborhood group, and the community in partnership with the local government where preservation actually happens. Implementation of Historic Preservation In many communities, including Elgin, preservation is placed on a lower priority that in spite of its growth in the past 20 years, continues to remain in a relatively marginal position. However, preservation groups are not losing as often, as education and awareness of the issues become more prevalent. But until preservation occupies a more assured position within local government, preservationists will need to accept compromises of one sort or another. Recognition and ultimately acceptance in the main stream will make implementation easier as more preservationists learn to shed some of their rigidity and emotional attachment to the issues and negotiate more effectively. The Design Review Process - Certificate of Appropriateness (COA) The implementation of the preservation ordinance is carried out through a design review process that is performed by the Elgin Heritage Commission's Design Review Subcommittee, following which a Certificate of Appropriateness (COA) is issued. A COA is required when construction, alteration, removal or demolition requiring a building permit is proposed to the exterior of any designated landmark or structure within a historic district, or when any of these changes affect the character of the significant features of these structures. It is a document issued to ensure that the exterior work planned for the building is fitting to its visual and aesthetic characteristics. It is similar to a building permit that ensures the structural soundness and safety of the building. The COA needs to be obtained in addition to the regular building permit. Additional documentation may be necessary to facilitate the review process. In most cases, COAs are issued administratively by staff for compliance with the guidelines. In certain cases, it is necessary to schedule a site visit with the City staff or submit additional documentation like photographs and drawings to better illustrate the proposal. Elgin Design Guideline Manual for Landmark Structures and Historic Districts The design guidelines used by the Design Review Subcommittee in determining whether the work proposed on the exterior of a property conforms with the ordinance are contained in the Elgin Design Guideline Manual for Individual Landmarks and Historic Districts. The purpose of the manual is to present architectural design guidelines to property owners, residents, contractors and others, relating to the type of rehabilitation work and new construction that may be approved by the Elgin Heritage Commission's Design Review Subcommittee in locally designated historic districts and to locally designated landmark structures. Additionally, the guidelines are intended to be used as a reference source for the rehabilitation of older structures not located within a designated historic district. The guidelines apply only to the exteriors of properties and are intended to protect the overall character of Elgin's locally designated historic districts as well as the architectural integrity of the district's individual buildings and locally designated landmark structures. The guidelines emphasize maintaining architectural styles, details and streetscape elements which collectively make up the unique character of the districts. For new construction, the guidelines provide information on how to relate new buildings and their landscape elements to the existing context of buildings and their streetscapes. The Elgin Design Guidelines are based on the Secretary of the Interior's Standards for Rehabilitation and Guidelines for rehabilitating historic buildings. These federal standards provide a framework for the more detailed guidelines presented in the locally prepared manual. Elgin s design guidelines for historic properties state the generally appropriate and inappropriate treatments for rehabilitation work and preserving the architectural styles, details and streetscape elements which collectively make up the character of the designated districts or structures The Design Review Process The design review process in Elgin is binding, which means that it is necessary to be followed by law, rather than be followed voluntarily by the individual property owner. The voluntary citizens commission that is appointed by the Elgin City Council to implement the process is the Design Review Subcommittee of the Elgin Heritage Commission. The Design Review Subcommittee consists of 7 members four representatives of the whole Elgin Heritage Commission, and three representatives of each designated historic district. At the recommendation of the Subcommittee, a COA is issued by City staff in addition to the regular building permit. If an application for a COA is denied, a property owner has the opportunity to appeal the decision of the Design Review Subcommittee to the whole Commission. The whole Commission, in this instance, is charged with either upholding the decision of the Design Review Subcommittee, or overturning it based on findings obtained at a public hearing. If the decision of the Design Review Subcommittee is upheld by the whole Commission, the property owner has the option of appealing to the Elgin City Council. The following is information on the number of COAs issued to individually landmarked properties and those within historic districts between 1995 and 2003: Year Total COAs submitted for review Approved by the Design Review Subcommittee Administratively approved Total COAs approved COAs denied Page 9

8 Alternative Means of Resource Protection To foster appropriate use and wider public knowledge and appreciation of such neighborhoods Conservation Areas Conservation areas provide a community with the means of achieving preservation at a neighborhood level without some of the perceived burdens of the traditional historic district regulatory approach. In Elgin, the historic district approach, despite its successful implementation in the past 20 years, has, to a certain extent, been perceived as a burden on property owners largely due to the added regulation that is placed upon their properties. As a result of the added regulation, the requirement of a Certificate of Appropriateness (COA) is construed as an additional step necessary to be followed before new construction, alteration or demolition can commence on the property. In many cases, the review of the COA is carried out by the Design Review Subcommittee of the Elgin Heritage Commission, which imposes a two week time period on the permit review process. And on some occasions, it is the diverse personal philosophies of the individual design review board members that can sometimes create an impression that the review process is arbitrary and capricious. A recent example of this sentiment was expressed by residents of a neighborhood that voted down efforts to have their neighborhood designated as an historic district largely due to the regulation that accompanied historic designation. During the process, alternative methods of neighborhood revitalization were suggested, one of which was the idea of Conservation Areas. A conservation area can be defined as one that possesses form, character, and visual qualities derived from arrangements or combinations of topography, vegetation, space, scenic vistas, architecture, appurtenant features, or places of natural or cultural significance, that create an image of stability, comfort, local identity, and livable atmosphere. The term area is used to make clear that it is not a special kind of zoning or preservation district. Ideally, the designation of a conservation area does not establish any additional regulation over those that already exist. It is up to the local government to decide what attributes of the property be reviewed. The types of conservation areas that could potentially be designated are: i. An Architectural Conservation Area can be defined as an area containing any physical features, improvements or both, architecturally and aesthetically significant to the city and cause such an area to constitute a distinctive section of the city. ii. A Neighborhood Conservation Area is intended to accommodate a unique land use, urban design, and other distinctive characteristic of older established neighborhoods. The concept allows variations in permitted uses and site development regulations that are adapted to the needs of the specific neighborhood. iii. A Historic (Heritage) Conservation Area is the concept with the most regulatory effect of the three, where the designated area requires architectural design review guidelines for the demolition, new construction or additions to habitable areas of buildings, structures, and sites. In Elgin, the various needs and issues that the designation of a Conservation area would respond to are: To protect and stabilize property values within older established neighborhoods. To prevent blight caused by insensitive in-fill development To provide focus for the economic revitalization of the conservation area and its surrounding areas. To lessen the adverse effects of incompatible uses by preventing new uses that conflict with the existing uses on the block or neighborhood. To encourage property owners and residents to improve neighborhoods To protect desirable and unique physical features of neighborhoods To conserve and protect the beauty and heritage of the older established neighborhoods of the city. To improve the quality of the city s environment through the conservation and maintenance of its older established neighborhoods which constitute or reflect distinctive features of the architectural, cultural, political, economic, or social history of the city. It should be noted that all of these methods of designating areas as conservation areas in Elgin, depending upon the amount of review involved, will always be perceived as regulation in disguise, if not properly promoted. Care needs to be taken to make them appear to be less regulatory in nature, and more policy based, less burdensome or threatening to the average property owner, and more positive and forward-looking for the community. At the outset, these areas can be created primarily to organize neighborhood planning efforts and coordinate housing rehabilitation programs. Once established, if some sort of regulation were to be introduced, it could focus on new construction considerations such as building height, scale, placement and setback, and materials. Review of demolition permits and the treatment of vacant lots could also be included. A natural starting point is to examine the areas developed prior to 1939 and currently zoned RC2 and RC3, which comprise mainly of Elgin s older established neighborhoods (Fig 3). These areas would be eligible for focus by the City to explore the idea of conservation areas, as opposed to historic district regulation. Land Trusts Historic resources such as buildings, structures, archeological and environmental resources can also be protected through land trusts. Non-profit organizations with limited funds can provide long-term stewardship of historic resources by acquiring property or interests in property. Land trusts often work directly with private property owners requiring donations of land, development rights and conservation easements. Easements and Restrictive Covenants Individual property owners can chose to protect their significant property through the use of preservation easements and covenants. A preservation easement is a legal document by which specific rights held by a property owner are donated or sold to a government agency or a non-profit organization. In return, the document provides protection for historically or architecturally significant buildings, parcel of land or natural resources by regulating their alteration and use. The agency holding the easement receives the right to review and comment on proposals for changes as outlined in the document. The registration of the easement binds subsequent owners and ensures protection either in perpetuity or for a specified length of time. Preservation easements can be designed to provide protection for whatever features of a property are considered important. An exterior or facade easement protects the exterior visible facades of a building and sometimes regulates development on the lot itself. An interior easement, on the other hand, protects valuable interior features. Scenic or open space easements can also be set up to control development of farmland and archaeological sites. The donation of a preservation easement usually provides the owner with certain tax advantages, particularly if the property has been listed on the National Register of Historic Places. A covenant is simply a binding legal agreement, attached to the property title, which can limit alterations to or use of significant property. A covenant, unlike an easement does not necessarily involve an alteration in property value. A more varied range of regulations on the property can apply, frequently not applicable until a change in ownership occurs. A covenant is very flexible and includes whatever is considered worthy of protection. Because property value is not affected, no tax advantages are available. Financial Incentives for Preservation There are a number of financial incentives available in the public sector for property owners contemplating the rehabilitation and restoration of historic properties. In most cases, properties are determined to be historic if they are listed in, or eligible for listing in the National Register of Historic Places or designated as local historic landmarks or within historic districts. Page 10

9 Local Incentives The City of Elgin has been fortunate to have the ability to provide financial incentives to owners of residential and commercial properties contemplating the restoration or rehabilitation of their properties. Elgin s local incentives for property rehabilitation are mostly in the form of capital improvement grants rather than property and income tax relief. The programs that benefit historic properties in Elgin are: 1. Residential Historic Architectural Rehabilitation Grant Programs - 50/50, 75/25 and Exterior Paint programs. These programs, first initiated in 1995, provide owners of residential property within Elgin s three historic districts and individual residential landmarks, grants to complete the exterior restoration of the structures on their properties. These grants are set up to carry out projects that would normally not be financially feasible by a property owner due to the cost and workmanship required on historic properties. The programs offer a reimbursement of 50% or 75% of the cost of exterior rehabilitation up to a maximum of $10,000 per property, per year. The 75/25 Program is offered only to low to moderate income property owners since the benefit is greater. The exterior paint program, a component of the 75/25 Program, offers a property owner a $2,500 grant for exterior paint projects, with the remaining being funded at 75%. Since their inception, the programs have generated an increased interest in restoration of properties within Elgin s historic districts. To date, approximately 165 properties have participated in these programs. The total participation of the City of Elgin has been around $1.4 million which has generated over $ 2.8 million in private investment in historic districts. 2. Commercial Facade Improvement Programs: The Facade Improvement programs, first initiated in 1991, are designed to promote improvements to commercial facades and storefronts in the City s downtown commercial area. Property owners or business owners within the target area are eligible to apply for grants for work to improve facades of commercial buildings that are visible from a public right-of-way. These grants are provided in recognition of the positive impact that individual facade renovations can have on the overall appearance and quality of their storefronts. Currently there are two programs in place: Center City Facade Improvement Program - for commercial properties within Elgin s center city. The program offers an incentive of 35 percent of the total cost of improving building facades, up to a maximum of $100,000, with an additional $50,000 provided to high-impact projects. The State & National Street Facade Improvement Program for commercial properties located on State and National Street. The program offers an incentive of 50 percent of the total cost of improving building facades, to a maximum of $50,000, with an additional $50,000 provided to high-impact projects. The Facade Improvement Programs have been very successful in generating interest in restoring and rehabilitating downtown Elgin s commercial facades. Since the inception of the program in 1991, 49 properties have participated in the program. The total participation of the City has been $1.4 million, generating $3.9 million in total private investment in commercial properties. State Incentives State financial incentives are usually provided in the form of property and/or income tax relief. In Illinois, tax relief programs are administered by the Illinois Historic Preservation Agency (IHPA), and provided in one of the following ways: Property Tax Assessment Freeze where the assessed value of rehabilitated property is frozen at the prerehabilitation value for a set number of years. Property Tax Abatement where the tax owed on historic property is abated or reduced for a period of time. Property Tax Exemption where historic property may be completely or partially exempt from taxation, and is based on the difference between the property s assessed value before and after rehabilitation. It should be noted that these tax relief programs are generally not used statewide. Tax relief is limited to local governmental jurisdictions that have opted to participate in the program. Currently, Elgin has not opted out of participating in these programs since the number of properties that have been certified for tax relief is minimal. To date, only 6 properties in Elgin have applied for and have been certified by the Illinois Historic Preservation Agency (IHPA) to participate in the Property Tax Assessment Freeze program. This number is not likely to increase in the number of years for the reason that the program requires property owners to substantially rehabilitate their homes on the exterior and interior to qualify. However, if the number of participating properties requesting tax relief increases, the City may choose to opt out of the program, due to the potential of a considerable loss of revenue. TEA-21: The Transportation Equity Act for the 21st Century, more commonly referred to as TEA-21, is a federal financial initiative given to states to apply for all transportation projects. The law authorizes a wide range of highway, safety, mass transit, and other surface transportation related programs for a period of six years. It followed the same innovative concepts as its predecessor, the Intermodal Surface Transportation Efficiency Act (ISTEA) of 1991, at which time Elgin was selected to receive grant to install new historic street lights in the Elgin Historic District. The program supports transportation spending on a number of transportation-related projects such as bus and rail lines, bike paths and sidewalks, with a clear emphasis on Intermodal connections and transportation planning issues. It continues to be an important source of funding for historic preservation projects, since states are required to set aside 10% of their surface transportation funds for historic preservation, landscaping and scenic beautification. From , approximately $10 million per year had been authorized for research and preservation projects. The third generation of the program known as TEA-3 is currently being debated in Congress for authorization in Key factors that will determine the implementation of the program are the state of the economy and public support for additional funding. But the original program s provisions for flexibility, local decision-making, long range planning, fiscally constrained budgeting, and environmental stewardship will continue to be included in the new program to improve the transportation system. Federal Incentives The Federal Rehabilitation Investment Tax Credit: The rehabilitation tax credit offers property owners a dollar for dollar credit on their federal income taxes. The credit is based on 20% of rehabilitation expenses. The building, in addition to being certified as an historic structure, must be commercial or income producing, and the building must be substantially rehabilitated and certified by the National Park Service as conforming to the Secretary of the Interior s Standards for Rehabilitation. The 10% Tax Credit: The 10% credit is available for owners of commercial properties that are fifty years or older, but not listed in the National Register of Historic Places, or identified as significant enough to be listed. The 10% credit does not require the review of the scope of the rehabilitation, and property owners are generally required to obtain their credit directly from the Internal revenue Service (IRS). Charitable Donations: The federal government encourages donations of historic properties or parts such as facades to be protected as historic resources, and in turn obtain a tax benefit. Some of the ways in which a property owner can obtain federal tax deductions from taxable income or taxable estates and gifts are: Donating historic property to a preservation organization. The National Trust for Historic Preservation (NTHP) is one such organization that acquires historic properties throughout the country with the intention of preserving them either as museums, or for sale with restrictions that protect the buildings in perpetuity. Donating historic property to a non-preservation organization with preservation restrictions already in place. Making a charitable remainder gift of historic property to an organization, allowing for the retention of a life estate to allow the immediate family to reside in the house until the death of the donor. Page 11