The URL can be used to link to this page

03-935Council File # �./ � �� v Resolution # Green Sheet # ✓o ot��-7� Presented By RESOLUTION CITY OF SAINT PAUL, MINNES07A �7 Re£erred To Committee: Date 1 WHEREAS, Saint Paul has a long tradition of historic preservafion, which has led to the rejuvenation of its 2 neighbarhoods; a respect for the importance of preservarion in creating a unique sense of place; and 3 investment in rehabilitation, reuse and renovation to maintain a vital city; and 4 5 WHEREAS, in 2002 Saint Paul was selected by the National Trust for Historic Preservation to participate in 6 its Preservation Development Initiative (PD� program, one of only eight cities in the country to be so 7 honored;and 9 WHEREAS, sponsored by the National Trust and the John S. and James L. Knight Foundation, the PDI will 10 provide more than $1.8 million in technical assistance, grants and loan funds to incorporate historic 11 preservation into Saint Paul's community and economic development strategies; and 12 13 WHEREAS, in Saint Paul, the wark of the Narional Trust's multi-disciplinary team was coordinated by 14 Historic Saint Paul; and 15 16 WHEREAS, in November 2002, the National Trust team came to Saint Paul for an intensive week of 17 18 19 20 21 22 23 24 25 26 27 28 29 30 31 32 33 34 35 36 37 38 39 meetings, fact-finding, tours, interviews, etc. to assess Saint PauPs current and potential preservation-based economic development strategies, tools and issues; and WHEREAS, the team met with City staff, neighborhood organizations and community leaders to explore Saint Paul's current economic development programs and plans, the economic potential of downtown and neighborhood Main Street districts, opportuniries for the revitalization of Saint PauPs older residential areas, heritage tourism development opportunities, and public and private organizafional capacity; and WHEREAS, the team has now completed its assessment and produced a report, Preservation DeveZopment Assessment Report, which contains recommendations on how Saint Paul can maximize historic preservation's economic development potential; and WHEREAS, recommendations are made in five areas: 1) preservation infrastructure; 2) neighborhood commercial revitalization; 3) neighborhood preservarion; 4) downtown development; and 5) heritage tourism; and WHEREAS, the Department of Plamiing and Economic Development has reviewed the team's recommendations; NOW, THEREFORE, BE IT RESOLVED, that the City Council hereby accepts the Preservation Development Assessment Report, prepared by the National Tnxst for Historic Preservation; and 40 41 42 43 44 45 46 47 48 49 50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 03 � 93S BE TT FURTHER 12ESOLVED, that the City Council requests that PED and the Heritage Preservation Commission review the report in detail and report back to the City Council on: 1) alignment of the report's recommendations with the Administration's prioriries; 2) priorities for implementation of the report's recommendations; and 3) an assessment of estimated resources required to implement the priorities and the availability of those resources; and BE IT FINALLY RESOLVED, that PED and HPC report back to the Ciry Councii after budget discussions aze completed. Adoption B} Approved B} Requested by Department of: Plannin & Econoi'c nev lo me � "� • V UC�1H Approved by Financial Services By: F�mm annr�• by City Attorney Adopted by Council: Date �/�� .-. � /L�r- v� �� DEPARTMENT/OFFICE/COUNCII.: DATE INITTATED GREEN SHEET No.3006276 PED October 3, 2003 CONTACT PERSON & PHONE: tN1TTAi/DATE , pVITTAL/DA'1'E Lucy Thompson p 1 DEPARI'MENT DIlL,�� 4 C1TY COUNCII, MUST BE ON COUNCII. AGENDA BY (DATE) �IGN ? CfIY ATIORNEY _ CTIY CL£RK October 15, 2003 (already g�g 3 MAY R O T.) � _��AI"SERV/ACCTG SCI1CC1111P.d� ROUTING n I ��( � � . ORDER i� � / TOTAL # OF SIGNAI'URE PAGES _I_(CLIP ALL LOCATIONS FOR SIGNAI'ORE) ACTION REQUESTED: Approval of resolution accepting the Preservation Development Assessment Report, prepazed by the National Trust for Historic Preservation, and asldng for further review by PED and the Heritage Preservation Commission. RECOMIvIENDAIIONS: Approve (A) or Rejec[ �) PERSONAI, SERVICE CONTRACTS MI7ST AIVSWER THE FOLLOWING QUESTIONS: PL.ANNING COMIvIISSION 1. Has this persoNfum ever worked under a contract for Uvs depaztrneat? CI.B COMIvIlT1EE Yes No CIVti, SERVICE COMNIISSION 2. Has this person/firm ever been a city employee? Yes No 3. Does this person/fimi possess a skill not normally possessed by any cutrmt city employee? Yes No Explain all yes answers on separate sheet aud attacL to green sheet INITIATING PROBLEM, ISSUE, OPPORTI)NITY (Who, What, When, Where, Why): In 2002, Saint Paul was selected by the National Tnxst for Historic Preservation to participate in its Preservation Development Initiative (PDn. Sponsored by the National Trust and the John S. and James L. Knight Foundation, the PDI will provide more than $1.8 million in technical assistance, grants and loans to incorporate historic preservation into Saint Paul's coxnmunity and economic development strategies. The Preservation Assessment Report was produced after several months of reseazch, site visits and interviews with City staff, neighborhood organizafions and community leaders. It recommends that the City be a pariner in several implementafion strategies. ADVANTAGESIFAPPROVED: The City will have formally accepted the report, and directed PED and the Heritage Preservation Commission to review it for alignment with City priorities. DISADVANTAGES IF APPROVED: None. DYSADVANTAGES IF NOT APPROVED: The City will not detennine its role in using more than $1.8 million in new money to accomplish preservarion- based economic development. TOTAL AMOUNT OF'PRANSACTIONc NA COST/REVENUE BUDGETED: FONDING SOURCE: ACTI�I'I'Y NUMBER: � � � � ! �� FiNANCIAL INFORMATION: �� Z�a3 C�DOwments and Settmg\peshmannV.orsl Senmgs\TemP�M1.5m (� i� ' / a � H ��.;a:�:,,��::.;� � � �� . � DEPARTMENT OF PLANNING & ECONOMIC DEVELOPMENT MaRha G. FuUer, Di�edar CITY OF SAINT PAUL Randy G %lly, Mayor DATE: TO: FROM: SUBJECT: October 3, 2003 zs west Founh SYreet Sairst Pau� MN55102 Mayar Kelly and Members of the City Council Martha Fuller, Director /�� I. Preservation Development Initiative BACKGROUND o3-93S � Telephone: 651-166-6565 Facrimile: 651-22&326I In 2002 Saint Paul was selected by the National Trust for Historic Preservation to participate in its Preservation Development Initiative (PDI) program, one of only eight cities in the country to be so honored. Sponsored by the National Trust and the John S. and James L. Knight Foundation, the PDI will provide more than $1.8 million in technical assistance, grants and loans to incorporate historic preservation into Saint Paul's community and economic development strategies. In Saint Paul, the work of the National Trust's multi-disciplinary team was coordinated by Historic Saint Paul. In November 2002, the National Trust team came to Saint Paul for an intensive week of meetings, fact-finding, tours, etc. to assess our current and potential preservation-based economic development strategies, tools and issues. Meeting with City staff, neighborhood organizations and community leaders, the team looked at our current economic development programs and plans, the economic potenrial of downtown and neighborhood Main Street districts, and opportunities for the revitalization of our older residenfial areas. In addition, heritage tourism development opportunities, as well as public and private organizational capacity, were studied. The team has now completed its assessment and produced a report, Preservation Development Assessment Report, which is attached. All of the strategies in the report aze focused on how Saint Paul can m�imize historic preservarion's economic potential. Recommendations are made in five areas: Preservation Infrastructure Neighborhood Commercial Revitalization Neighborhood preservation Downtown Development Heritage Tourism Mac Nichols, Director of Preservation Development Initiatives at the National Trust, will present the report to the City Council at its October 15, 2003 meeting. o3-q3s Mayor Kelly and Members of the Ciry Council October 3, 2003 Page Two PED RESPONSE My staff and I have reviewed the Preservation Assessment Report, but would like more tnne to fully understand the implications of several recommendations and to prepaze a more detailed assessment of PED's capacity to implement them, based on City priorities detennined during your budget discussions. Therefore, we aze asking that the Council simply accept the report at this time, and refer it back to both PED and the Heritage Preservation Commission for further review. Attachment AA-ADA-EEO Employer 03-935 CITY OF SAINT PAUL Randy G Re11y, Mayar 390 City Aall I S WestlCellogg Boulev�d Sairrt Pm�1, MN55102 Telephone: 651-266-8510 Facs'unile: 65I-228-8513 DATE: October TO: Council FROM: Mayor K SUBJECT: Preserva I am attaching for your consideration the Preservation Assessment Report, prepazed by the National Trust for Historic Preservation to help Saint Paul better integrate our historic preservation and economic development strategies. The memo from Martha Fuller explains the background of the National TrusYs selection of Saint Paul, and what process they used to prepaze the attached report. I concur with Ms. Fuller's recommendation that the City Council accept the report at this time, and refer it back to both PED and the Heritage Preservation Commission for futther review. I believe this is an exciting opportunity to forward our economic development and preservation agendas. I look forward to working with you to identify our priorities for the substantial financial resources that accompany this effort. Attachments AA-ADA-EEO Employer 03-935 PRESERVATION DEVELOPMENT IlVITIATIVE CITY COUNCIL DISCUSSION October 15, 2003 AGENDA Time ( 5) I. Introduction Background Process for report preparation Role of Historic Saint Paul What this means for Saint Paul (15) II. (5) III. (15) IV, Summary of Key Findings, Recommendations PED Response Discussion and Action Cazol Cazey, Historic Saint Paul Mac Nichols, National Trust for Historic Preservation Martha Fuller Councilmembers Saint Paul, Minnesota .�� ,� ° � .� �� a The Preservarion Development Initiative is made possible by a graut from the Johu S. and James L. Knight Foundarion. The John S. and James L. Knight Foundation promotes excellence in journalism worldwide and invests in the viYatity of 26 U.S. communities. 03-435 � Saint Paul's Preservatiton Development Initiarive - Summary building partnerships among the various groups that have a stake in the commercial district. Neighborhood Commercial Districts St. Paul is a city of neighborhoods, each with its own history and feeling. Building on this foundation, St. Paul can create a collection of unique neighborhood commercial districts that reflect the diversity of cultures and history found in the city. The Comprehensive Plan for the City of St. Paui specifically commits to the concepts of preservation in two of its Ten Principles for City Development. Unlike many cities that have embraced preservation as a result of one strong leader's vision, preservation in St. Paul has emerged from the grassroots level. Attitudes in the neighborhoods toward preservation are profound and firmly entrenched, regardless of the stature of the architecture or the economic status of current residents. Preservation is a proven, but slow and steady, way to revitalize a city. While the city has demonstrated support for preservation, there is also evidence that city leaders have tended to merely accommodate rather than embrace preservation activities in the past. The issue facing St. Paul is not a lack of support for commercial revitalization, but rather the lack of sufficient resources to implement all of the plans and suggestions already developed. The assessment team offered some strategies for implementation on a Saint Pau! Skyline scale that seems possible. These strategies are based on preservation-oriented, commercial revitalization recommendations from the urban neighborhood revitalization model developed by the National Main Street Center0, a program of the National Trust for Historic Preservation. The Main Street Approach to commercial revitalization is based on four points: design, promotion (or marketing), economic restructuring and organization. Design takes advantage of the visual opportunities inherent in a commercial district by directing attention to its physical elements, including public and private buildings, storefronts, signs, and landscaping. Promotion seeks to attract investors, developers, and new businesses, by creating a positive public image of the area. Economic Restructuring strengthens the commercial districYs existing economic assets while diversifying its economic base. Organization establishes consensus and cooperation by The following neighborhoods were assessed: West Side (no historic designation); Frogtown (no designation); Irvine Park (local and national designation); Selby Avenue (significant portions are designated Iocally and nationally as part of the Ramsey Hill designation); Dayton's Bluff (local designation); Payne Avenue (not designated, but identified as eligible for nationai designation); and Swede Hollow (includes the Hamm's Brewery campus that the Minnesota SHPO has determined is eligible for national designation). Parts of Swede Hollow fall in the Dayton's Bluff designation. In each of these neighborhoods, community-based nonprofits— sometimes more than one—were actively engaged. Tfie organizations vary in capacity and focus on a variety of issues such as housing, community and economic development, neighborhood organizing and advocacy (associations), and historic preservation. As in many communities, historic preservation receives a mixed reception in St. Paul. The traditional historic properties, such as mansions on Summit Hill near the cathedral are successfully preserved. In other historic neighborhoods such as Frogtown, i- A f Saint Paul's Preservation DeveloPment Initiative - Summary Dayton's Bluff, and West Side, there has bee� less focus on the area's historic value, and, in a number of cases, historic preservationis misunderstood as too costly to consider. Many of St. Paul's historic �eighborhoods are not designated districfs. Designation can provide avenues for additional resources for a community. The city has been slow to add districts in recent years, leaving many of the affordable communities with smaller historic homes out af the historic preservation loop and ineligible for related resources. The commitment of the banking community in St. Paul makes it feasible to establish a significant pool of resources. The capital resources typically being used are traditional grants and loans available througfi federal, state, and local government housing and community development programs. Private resources also are primarily in the form of granting and lending programs commonly operated bythelending community, foundations, and corporate philanthropists. St. Paul can benefit from more creative models; such as secondary market resources; theme lending to upgrade an entire area; historic preservation resources; and specialized loan programs, such as incentive, crisis and stabilization, and intervention funds. St. Paul has a chance to capitalize on its "historic edge" and sense of place over Minneapolis, whose central business district (CBD) has been largely rebuilt during the region's economic growth. To do so, it must use a planning and development process that values the past as a key economic driver of its downtown's future. Paul has indeed embarked on a preservation-based downtown development strategy, the focus reaily seems, instead, to be on the riverFront and how it can be redeveloped for housing, cultural, and recreational uses. But St. Paul should heed the lessons of BalGmore and other cities that have created heralded harbor districts, which have drained the economic life out of their traditional commercial cores. The weakness of the retail and office sectors would appear to set the stage for housing conversions of existing buildings. Despite the high demand for housing — partially addressed by Mayor Randy Kelly's St. Paul 5000 Housing Pla� in the CBD — both new construction and rehabilitation of existing buildings requires public subsidy. This economic reality can be a diSficult one for city planners and policy makers who have grown accustomed to public subsidy set- asides for affordable housing, not market-rate units. While, St. Paul seems to have accepted the production of middle- class housing downtown as a legitimate public purpose, the city has, by far, allocated most of the available STAR resources and other housing subsidies to new construction rather than rehab. This does not bode well for the conversion of vacant and underutilized office and retaii space into CBD housing opportunities. Given that the hot housing market is matched by an equally weak office market, there may never be a better time for the city to convert its older office properties to housing, removing unneeded office inventory and bringing 24-hour Iife to new areas of the CBD. While success stories Iike Lowertown would suggest that St. Heritage Tourism In the past decade, there has been great growth in heritage travel. In fact, according to the Travel Industry Association (TIA), heritage travel was the only segment that saw an increase after the events ot September 11, 2001. St. Paul is a city with remarkable resources and assets. The city's heritage resources should be fully incorporated into every aspect of planning and promotion. Two planning processes are cuRenUy under way in St Paul, stimulated by strong leadership from the office of Mayor Randy Kelly: 1. St. Paul Cuitural Plan - This project is bringing together cultural resources from across the city to develop a state-of-the-art cultural plan as a key component of St. Paul's "Renaissance." The recognition of St. Paul as a cultural center and the unity of the city's cultural institutions provide a firm foundation for development of this cultural plan. The plan will be implemented in 2003. 2. Branding St. Paul — This project is an effort to "define" the city for both residents and visitors. A task force has been appointed by Mayor Kelly and is chaired by the CEO of the Wild, the National Hockey League club team based in St. Paul. Participation on the task force is by invitation and requires a $5,000 payment. The status of this project, including a timeline for implementation and the current membership of the task force, was not known by those with whom the PDI team met. Although the intention of these two projects is to enhance the profile of St. Paul, these undertakings raise croncems about the role of heritage: -ii- v3-�35 Saint PauYs Preservation DeveloPment Initiative - Summary 1. The Cultural Plan only gives passing reference to the citys heritage resources. Reviewing the projecYs materials — including the charrette nofes, information survey, list of organizations to be surveyed, and the outline of intended outcomes — it is clear that this plan focuses primarily on the arts. 2. The cost to participate in the branding task force is prohibi6ve for the city's heritage resources — most of whom are nonprofit organizations with limited funding. The fact that no one representing heritage sites had any knowledge of the task force's existence or work indicates a lack of inclusiveness. Further, the development of a"brand" for the city before a cultural plan is developed or the PDI program is implemented appears to be premature. Outlined in this report are specific steps that wili unify heritage resources, create a stronger voice, and position heritage sites for effective promotion. But the overarching recommendation is to develop a Cultural Heritage Tourism Plan for the city of St. Paul that will be successful and sustainable. - iii - Saint Paul's Preservation Development Initiative: Introduction In May, 2002 Saint Paul was named as a demonstration site in the Nationai Trust for Historic Preservation's Preservation Development lnitiatives (PDI) program. The PDI program, made possible by funding from the John S. and James L. Knlght Foundation, is designed to incorporate historic preservation into community and economic development strategies. Historic Saint Paul Corporation, the citywide historic preservation advocacy organization, submitted the proposal to participate in the PDI program as part of its ongoing mission to encourage historic preservation in Saint Paul. for developing a preservation- based neighborhood commercial revitalization effort. His recommendations are included in an appendix. The recommendations contained in this report 4orm the basis for an overall sfrategy for preservation development. In some cases there will be an obvious implementation order to the recommendations. For example, completing an inventory of available historic resources is necessary before designating additiona{ historic districts. In other cases, the recommendations represent a web of activities that are mutually supportive, such as strengthening the role of the Historic Preservation Commission staff in the planning process and integrating a revised heritage preservation ordinance into the zoning ordinance. Planning and Economic Development (PED) was very supportive. Historic Saint Paul has assembled a Preservation Development Initiatives Partnership group to guide the process. The partnership group provided briefing and reference materials, participated in interviews and tours, and offered comments and suggestions on the final recommendations contained in this report. PDI Comprehensive Preservation Assessment As part of the PDI process, a team was assembled in November, 2002 to assess opportunities for preservation-based community and economic development in Saint Paul. This repoR represents the observations and recommended strategies by the multi-disciplinary team. The recommendations are based on a review of written materials, interviews, site visits and a collaborative process, working with Historic Saint Paul, the City of Saint Paul, community development organizations, and private sector groups and individuals. Following the initial team visit, a representative of the National TrusYs National Main Street Center examined the opportunities An implementation strategy table is included as well as a summary of observations and recommendations for use in future implementation meetings where the full report document is unnecessary. Saint Paul Preservation Development Initiatives Partnership Although Historic Saint Paul was responsible for bringing the PDt program to Saint Paul, implementation is a community- wide task. Preservation-based development is most successful when the public, private and nonprofit sectors work together. The National TrusYs PDI team wishes to thank all of the peopie and organizations that helped develop this report. In particuiar, Carol Carey, executive director of Historic Saint Paul provided extensive support, information and effort to make this assessment a thorough tool. The staff of the City of Saint Paul's Department of -iv- a3 -q35 Saint Paul's Preservation Development Initiative: Introduction Preservation Development Iniriatives Partners Historic Saint Paul—Project Leader City of Saint Paul Mayors O�ce City Council Heritage Preservation Commission Minnesota Historicai Society Ramsey County Historical Society Preservation Alliance of Minnesota Lowertown Redevelopment Corporation Minnesota Landmarks Saint Paul Port Authority Saint Paul Riverfront Corporation Saint Paul on the Mississippi Design Center American institute of Architects Saint Paul Chapter Local Initiative Support Corporation Saint Paul Convention and Visitors Bureau University United Public AR Saint Paul Minnesota Humanities Commission Payne Arcade Business Association East Side Neighborhood Development Company Dayton's Bluff Neighborhood Housing Services Uppertown Preservation League v� �3�935 Table of Contents � Saint Paul's Preservation Infrastructure...l �p � �°� � " � � Neighborhood Commercial Revitalization...8 � � `�_ kk' k ' `� . � � � � Neighborhood Preservation...13 Downtown Development...17 Heritage Tourism...22 Conclusion...36 Appendices Q3�'i35 Saint Paul's Preservation Infrastructure An adequate preservation framework is necessary to apply the elements of historic preservation as a tool for ewnomic and community development. That framework begins with a strong preservation ethic well-imbued throughout the community, its municipal agencies, and preservation partners. The ethic must be manifested in the mechanics of govemment decision-making so that preservation tools can be impiemented and applied Saint Paul has a strong preservation ethic, and has done many exemplary things that demonstrate that commitment. Yet, the City can do more to achieve the ideal fremework that wili be necessary to leverage preservation to its maximum advantage. Observations A Solid CommitmenY The Comprehensive Plan for the City of Saint Paul (adopted 2001, on the web at http://www. stpa ul. gov/depts/ped/co mpplan/#principles) cites historic preservation, or its softer counterpart, the conservation of urban character, as a key component of its vision and policy. Specifically, the plan commits to the concepts of preservation in two of its Ten Principles for City Development, under General Policy 1. Principal #7 says, "Buiid on existing strengths. We will make every effort at city and neighborhood levels to recognize and enhance the treasures we have in our economic, cultural, architectural, and natural heritages:' And Principal #8 states "Preserve and enhance heritage resources. Saint Paul will continue to preserve and enhance its rich legacy of historic resources." Similarly in regard to Neighborhoods as Urban Villages in General Policy 6, the plan proposesto: Continue and expand efforts to enhance the city's traditional neighborhood design. Continue a commitment to the preservation of historically and architecturally significant buildings and neighborhoods. Step up code enforcement matched with additional resources for repair and rehabilitation. Strategically focus efforts to stem deterioration and declining values. Improve management and maintenance of rental property. A Grassroots Preservation Ethic From o6servations and conversations during the site visit it is evident that the commitments outlined in the Comprehensive Plan are based on a preservation ethic that seems to have emerged to shape the character and value system that in many ways defines Saint Paul today. Unlike many cities fhat have embraced preservation as a result of one strong leader's vision, preservation in Saint Paul has emerged from the grassroots level — in many cases in response to imminent threats to historic resources throughout the community. Attitudes in the neighbort�oods toward preservation are profound, firtnly entrenched, and amazingly well-developed. This is true not just in select neighborhoods, as is often the case, but in every neighborhood the assessment team toured and had an opportunity to visit with residents and neigfiborhood (eadership, regardless of the stature of the architecture or the economic status of current residents. From Historic Hill to Frogtown, from Dayton's Bluff to Old Fort Road, residents understand and appreciate the unique qualities of each area and regard them as assets. As the oldest settlement in the state to grow to an urban center, and the capital city as well, Saint Paul exudes a sense of history that the residents readily embrace. This attitude has been reinforced by the successful use of preservation as a redevelopment strategy by some neighborhoods and commercial centers that began the process early, iike Summit Avenue, Grand Avenue, and Selby Avenue, where the architectural quality combined with trendy rehabilitations has led to substantial gentrification and rising property values. Observing those experiences, other neighborhoods have come to see preservation as a tool for economic leverage or, at the very least, as a way to protect property values through designation and management of historic resources. This success has sometimes been viewed negatively as "gentrification" resulting in displacement and a loss of affordable housing. No sustained attempts have been made to promote preservation as a strategy for weaith-creation and neighborhood stability for low and moderate income residents. Citizen Participation The entrenched preservation ethic is evident in the relatively strong neighborhood associations and in Saint Paul's Preservation Infrastructure the citizen participation network established by the City to be responsive to the needs of each locale. In each neighborhood, representatives began their tours and presentations with a historical overview of the neighborhood's origins and evolution, and then proudly showed off their best efforts to preserve their essential character, even while accommodating changing ethnic settlement patterns. Coordination and Communication The only tempering factor in the neighborhood-based commitment to preservation is a� occasional lack of coordination between preservation groups and community development corporations (CDCs) and confusion overwhich properties have what protections. It is critical that citizens understand at the time they are making property decisions both the restrictions and opportunities associated with historic designation or neighborhood conservation. The City of Saint Paui has an outstanding website that provides easy access to neighborhood associations, business and municipal services, initiatives, and program applications. The informatio� is offered only in English, however, and historic preservation topics are only minimally covered. Rehabilitation Activity and Standards Another manifestation of the neighborhood-based preservation ethic is the high level of rehabilitation work in every neighborhood by CDCs. The activity in Saint Paul significantly exceeds that in most Midwestem cities, both in qua�tity and quality. The extremely high standard for both exterior restorative work and infill design in every neighborhood is extraordinary. Similarly, the commitment to a highly successful Payne Avenue MainStreet program demonstrates that the community understands and supports the instruments necessary to create livable neighborhoods. But while the city has demonstrated support for preservation through the citizen participation network and support for its CDCs, there is also evidence that city teaders have tended to merely accommodate rather than embrace preservation activities in the past. Marginalization Preservation is a proven, but slow and steady, way to revitalize a city. In Saint Paui, like many cities where politics seems to demand rapid and visible leaps forward, historic resources have suffered and preservation has been perceived as an obstacle rather than the route to progress. 70 clear the way for leaps of progress, elements of the preservation infrastrudure — such as Heritage Preservation Commission (HPC) review and preservation planning — have, to some degree, been marginalized. The reduction of the HPC staff to one person in 2000, and the relocation of that person from the Department of Planning and Economic Development (PED) to the Office of Licensing, Inspections, and Environmental Protection (LIEP) has cast preservation in a regulatory role and minimized its influence on planning functions. Local Historic Districts as Build'xng Blocks This marginalized role is also evident in the relatively few locally designated historic districts. With few exceptions, the City, by its limited use of historic district designation, seems to have seen that tool as useful primarily in high style, upscale neighborhoods. A notable exception was the designa6on of the Dayton's Bluff district, where local advocates rellied for designation to gain recognition and attract investrnent into an economically distressed neighborhood made up primarily of modest residential structures. Historic district designation at the local level is a basic buitding block of preservation. Designa6on can provide access to financial incentives and offers management tools to assure quality unmatched by other urban planning tools. Without a seat at the planning table, liberal use of historic designation, adoption of historic preservation as a central redevelopment strategy, and identification and promotion of financial incentives, preservation cannot be expected to serve as an ewnomic engine of renewal. Survey Data Those managing the historic resources of Saint Paul are currently working from piecemeai survey work compieted in 1975, 1983, and 1989, plus fragmentary nominations of individual properties. The 1983 study was the most comprehensive, generating the bulk of the more than 5,000 survey forms on file, but it is now 20 years old. Since early survey work was often superficial and not weil documented (such as in informai windshield surveys), it provides a weak basis for cultural resources management. Piecemeal expansion, with later survey work being more disciplined, complicates evenhanded management. There is no formal Resource List of properties o3-q�5 Saint Paul's Preservation Infrastructure potentially eligible for historic designation. Informal lists suggest between 750 and 200 undesignated sites are potentially eligible for heritage site status. Excellent studies were completed in 2000 for these six historic contexts in which resources are known to be threatened: o PioneerHouses:1854- 1880 o Transportation Corridors: 1857-1950 o Neighbofiood Commercial Centers: 1874-1960 o Religious Buildrngs: 1849- 1950 o Residential Real Estate Development: 1880-1950 o Downtown Saint Paul: 1849-1975 These studies provide an excellent background to guide preservation planning and subsequent survey work and designation. The introduction to the 1983 study also provides an excellent summary of the history of survey and designation work in Saiht Paul between 1966 and 2000. Designated Historic Districts and Sites Historic districts emerging from these surveys and related initiatives by the neighborhoods themselves include five districts (Irvine Park, Historic Hill, West Summit, Lowertown, and Dayton's Bluf�, comprising a total of about 2,000 properties. All but Dayton's Bluff (the most recent) are also, in large part, National Register Districts. There are 82 individually listed propeRies in the City in the National Register of Historic Places (NRHP). Limited use has been made of the local preservation district option under the City's Heritage Preservation Ordinance, and those designations, for the most part, have been recent. In othercases— such as the failure to support the designation of the North Quadrant designation — historically significant buildings have been lost, while others remain at risk. There are design guidelines for each of the historic districts but those vary significantly in quality, content, and format. They are difficult to administer, since each uses slightly different language to convey the same concepts, and they are undoubtedly confusing to homeowners to whom design control can be a major frustration. Building Codes The City of Saint Paul employs the Minnesota Building Code, derived from the Uniform Building Code, published by the International Conference of Building Officials (ICBO). As of March 31, 2003, the state adopted the "Minnesota Conservation Code," based on a model published by ICBO called the "Guidelines for the Rehabilitation of Existing Buildings." The state has already begun its ne�ct building code review and adoption process, which will include updating this current conservation code. This strategy under consideration is envisioned fo assisf building owners, developers and code officials in dealing with the sensitive economic and cultural issues that arise with altering and remodeling existing buildings, including those of historical signficance. The code is designed to allow the upgrade of existing buildings to a minimum level of safety and usability by persons with disabilities, without creating economic hardships or destroying the historical significance of the structure. We would recommend that the city follow the state's lead in utilizing ICBO standards and provide education and awareness of rehab provisions of new codes to the general population. The Heritage Preservation Ordinance The Saint Paul Heritage Preservation Ordinance, adopted in 1976, contains most of the basic provisions necessary to administer a preservation program. It establishes a Heritage Preservation Commission (HPC) and empowers that body to identify and recommend designation for heritage sites. It further authorizes the HPC to review changes to designated properties for: 7) ex[erior appearance (except paint); 2) new construction; 3) reiocation; 4) demolition (except when directed by the City Council or Mayor); and 5) review plans and studies which relate to the historic and architectural heritage of the city. The Division of Planning is required to inform the commission of planning and development activities which relate to or have potential impact on the historic and architecturai heritage of the city. All actions are subject to appeal to the City Council. The power to deny a demolition permit constitutes substantial authority if supported by the Council on appeal. These powers, however, Landmark Center at Dusk Saint Paul's Preservation Infrastructure apply to sites and districts already designated; there is no provision of denial or delay for buildings that might potentially be eligible for designation. There is a provision for affirmative maintenance to discourage "demolition by neglecY' The Zoning Ordinance The Heritage Preservation Ordinance stands alone, separate from the Zoning Ordinance. Since historic districts constitute a zoning overlay, the lack of coordination can cause conflicts in the administration of the ordinance and its enforcement, both exacerbated by the isolation of the HPC staff from planning functions. The zoning ordinance itself has been substantially updated in recent years, but the preservation ordinance has not. Many cities are now reconsidering their zoning ordinances to better manage the compiexities of multiple land-use functions and to integrate a host of new compone�ts in contemporary urban planning, including context- related, form-based zoning and prescriptive design management. There is good reason to consider the integrafion of the hvo ordinances in a similar process in Saint Paul. By doing so as a combined process, or separately if necessary, it would be possible to also update the zoning ordinance language and remedy a few critical voids in the current preservation ordinance. Incentives and Promorion Currently neither the Ciry nor local preservation groups aggressively market historic properties or districts beyond that done by neighborhood associations and CDCs, often with little acknowledgement of historic preservation per se.. While Historic Saint Paul and affordable housing providers do actively promote their programs, little is done to educate the public about the incentives for and advantages of quality home improvement or commercial redevelopment of historic sVuctures. This void is most visible on the City's website, but it is also evident in the lack of brochures,educationailiterature, and seminars. Such promotion would heighten preservation adivity by promoting the 20% federal historic tax credit, the 10% federal rehabilitation tax credit, local tax abatements and easements. and loan programs. Posirive Indicators ln spite of occasional missteps in recent years, there have been many positive developments undertaken with the full support and encouragement of the city. The Lowertown development effort, with its steady success in creating an urban neighborhood and advancing the arts through the reuse of historic warehouse structures, is an outstanding demonstration of how preservation can be the engine of economic revitalization. The success of Lowertown has also created opportunities for new development on nearby sites, such as Lowertown Biuffs, currently under construction, and the proposed River Garden development plans. Similarly, the reorientation of the city to the river and its ongoing effort vested in the Design Center of the Saint Paul Riverfront Corporation is a powerful demonstration that City Hall understands how to use traditional assets as redevelopment tools. Similar work is underxay in the field of public art, parks renewal, urban street fumishings and i�frastrudure, and a growi�g commitment to quality design and sustainability of public improvements. The establishment of Historic Saint Paul as a nonprofit advocate and agent for historic preservation is another positive indication that Saint Paul understands the value and leverage potential of its historic resources. In summary, we observe that while the preservation ethic is weli- established in the neighborhoods of Saint Paul and often (though not always) upheld by the City Council in neigh6orhood issues, there has been a tendency for executive leadership to merely accommodate preservation when necessary and then oniy to a limited degree, while, expressing discontent about the cost. There is an opportunity for the new administration to avoid these tendencies and embrace preservation more fully, capitalizing on the political support for preservation already present in the neighborhoods, to leverage historic resources citywide as a strategy for growth. Both in the development of commercial corridors and the implementation of the Housing 5000 objectives, the City can use historic preservation as an integral tool of its overall strategies. Our recommendations, which follow, are pursuant to that opportunity. Recommendarions It is important to recognize that the recommendations here are intended to advance the cause of preservation and urban revitalization in Saint Paul and thus cannot be read as an agenda for municipal government alone. The National Trust advocates a healthy role for govemment agencies as we{I as for private, nonprofit and for-profit organizations. Therefore, it is important that the comm�nity work together to decide who is in the best position to implement and manage various aspects of a preservation-based development initiative, and the enhancements of v3-q3s Saint Paul's Preservation Infrastructure infrastructure necessary to support it. Some activities may be the strict purview of municipal govemment. Others may be better done by the nonprofit sectoc Some will require for-profit involvement. Many may require public-private partnerships involving all three sectors. The secret to a well-implemented preservation initiative is collaboration and team work. Each sector— public, private and nonprofit—can be an advocate for preservation in its own area interest. All three should be part of effoRs to reform legislation and create support for preservation on a municipal, county and state level. While Historic Saint Paul has the primary mission of advocate for historic preservation in Saint Paul, others should be involved in promoting and supporting historic preservation as a strategy and a basic development principle. If the principles of conservation and historic preservation articulated in the comprehensive plan reflect the core values of Saint Paul, then a preservation ethic must imbue development decisions made by the City, private and nonprofit developers. Preservation cannot be an esoteric planning concept, but a way of doing business, making decisions and formulating policy. Funding and policy support of public, for- profit and nonprofit development projects should be linked to how those projects reflect the Ten Principles for City Development. Adherence to the Principles should be promoted as responsible development behavior. While there is somewhat of an order to the recommendations that follow, not alI of them are linear. Some are specific actions that should be taken. Others are ongoing activities. All of the recommendations are mutually supportive. Recommendation #1: Assure Adequate HPC Staff. It is critical that the infrastructure for preservation management be strengthened, both quantitatively and qualitatively. A city the size of Saint Paul should have a minimum staff of three irained professionals focused on historic preservation activities plus access to consultants for special studies as needed. HPC staff should fulfill three distinct roles: 1) Preservation planning (research and designation) and input to large-scale planning decisions; 2) Permit review and issuance with input to related permitting activities; and 3) Enforcement and field verification. The recent decision to increase the HPC staff to two is a step in the right direction. Recommendation #2: Strengthen HPC's Role in P/anning While the number of staff can benefit preservation, their placement is equally critical. By far the most common line of reporting for preservation staff in cities across the country is within departments of planning and community/economic development; even though those staff members also perform permitting and enforcement functions. In large cities some preservation staff may report to planning authorities but be assigned to licensing centers or enforcement crews. Ideally the City would relocate HPC staff to PED, encourage preservation planning activities, specifically in resource identification and research, and make every effort to assure the staffs early input to every planning decision. Since LIEP currently contains some zoning functions, while others remain in PED, it is conceivable that the integration of both large-scale planning and economic sVategies and integration to zoning and permitting could be achieved by splitting the HPC staff into offces in both departments. Recommendation #3: Rewrite the Heritage Preservation Ordinance and Integrete fo Zoning To remedy the conflicted attitude evidenced by the City in recent years, our recommendations for specific actions would build upon the commitments in the City's Comprehensive Pfan, and then suggest the modernization of the Heritage Preservation Ordinance. Ideally that would occur in the process of also revising the zoning ordinance so that the two might be thoroughly i�tegrated. Absent that, every effort should be made to integrate both the principles of preservation and the mechanics of its administration into the zoning ordinance and other planning func[ions. Specifically, and at a minimum, the Heritage Preservation Ordinance should be amended to address three critical missing components: The development of a Resource List of potentially significant properties based on recommendations from professional surveyors (see below), with provisions that the list be updated from time to time by action of the HPC. A stay of demolition for a minimum of 90 days (up to one year is probably supportable by case law) for properties historically designated, and those on the Resources List, to provide sufficient time for the HPC to consider historic designation, Saint PauPs Preservarion Infrastructure altematives to demolition, and other mitigation. Language Yo require maintenance of properties of historic merit to avoid demolition by neglect would also be necessary. The properties on the Resource List would be covered by this requirement. conserva6on of urban character as stated in the Comprehensive Plan. By applying geographic information systems (GIS) in the mapping process, pattems of character-setting elements can be tracked to target areas for urban conservation, or to facilitate form- based zoning management' Recommendation #d: Redraft Design Guidelines To streamline design control and make it more user-friendly within historic districts, the design guidelines should be completely redrafted. This is best done simultaneously as a package, with generic sections on principles, a glossary, and a list of material sources, followed by illustrated "dos and don'ts" specific to each historic district. If developed properly by graphic design professionals, these guidelines can aid homeowners and avoid conflict. Posted on the city's website, they can be readily accessible for the convenience of all. Recommendation #5: Refresh and Broaden Historic Suroey Data. Critical to preservation planning is historic survey and research to identify potential sites and districts for designation. The City shouid ailocate the resources to resurvey the entire city in sequence, over several years if necessary, and to conduct sufficient research on potentially significant areas to advance the designation process. The survey should go beyond the traditional identification of landmarks and obvious districts to map "background buildings" with sufficient integrity to form community character. That information could then serve as the basis for zoning and design decisions to assure the Recommendation #6: Acce/erate Local Histoiic District Designations. Given the policy of the Minnesota State Historic Preservation Office (SHPO) that demands a high degree of integrity and significance to warrant nomination to the National Register of Historic Piaces, the City should consider local designation as the first option, and allow the SHPO to pursue NRHP status at its discretion. With the exception of the historic tax credit, all of the incentive tools for historic preservation — both protections and enticements — are as applicable under local designation as under NRHP listing. Recommendation #7: Identify, Evaluate and Target Pivotal Historic Complexes. There should be a concentrated effort to identify large-scale landmark properties, both downtown and in the neighborhoods that wasrant excepGonal effort targeted for preservation, including those considered "white elephants," such as brewery complexes and other industrial facilities (see projects ' "Form-based" codes are part of the'new urbanisY planning philosophy. They focus more on a desired result and vision rather than prohibitions. They are retatively simp{e to understand and visually-0riented and use graphics to explain desired concepts. identified in Downtown Development Section). Then, to facilitate the consideration of adaptive use by the development community, Historic Structures Reports should be prepared for those complexes and landmark buildings, identifying their historic character-defining elements and documenting their physical conditions. That essential character can then direct decisions to remove noncontributing elements, and it can also drive the design of surrounding redevelopment efforts. Recommendation #8: Consider Creative Incentives. In addition to local incentives already in place, and loan programs to be developed as part of the Preservation Development Initiative project, the City should consider: o Streamlining review and permitting processesfor designated propesties by developing historic district (target-specific) guidelines, altemative building code provisions, density waivers, and disabled access waivers. o Transferabie development rights with bonuses that renovate contiguous historic structures. o Start-up financial assistance to urban pioneering businesses in targeted areas. o Custom incentive packagesforproperty owners denied a demolition permit to encourage rehabilitation. o The preparation of an annual progress repoR on building rehabilitation toward specified goals. Get creative. 03-935 Saint Paul's Preservation Infrastructure Recommendation #9: Promote Preservation. To promote the availability of all incentives and to aid atizens and CDCs in understanding the tools available for neighborhood revitalization the City should: o Develop a webpage within or linked from the City's website to provide easy access to historic survey mapping. Raise the visibility of historic preservation within that website by linking to other housing assisfance programs and planning documents. o Facilitate better communication among neighborhoods and CDCs to encourege diaiogue, shorten learning curves, and aid program development. o Standardize promotions and tools among neighborhoods to simplify the process for homeowners. o Strengthen and expand technical assistance for rehabilitation from a single central source to make it easier for homeowners to acquire the support they need to be good stewards of their properties. o Publish user-friendly homeowner materials in severalrelevant languages. o Conduct periodic community exchanges by sending delegations to visit other cities that have addressed preservation issues well and inviting representatives of those communities to visit Saint Paul and offer observations and recommendations. o Sponsor educational forums for developers on the potential of historic sWCtures, highlighting available incentives and technical assistance. Strengthen local preservation advocacy organizations (such as Historic Saint Paul and the Preservation Alliance of Minnesota)through contracts for technical assistance. Recommendafion #10: Work on Statewide Advocacy. To expand the incentives available to projects, the City and a coalition of community organizations enlisted by Historic Saint Paul should join a coalition with other communities and preservationists to advocate for: A Minnesota Rehabilitation Bui�ding Code that allows for altemative safety measures for existing buildings to assure public safety without driving up the cost of rehabilitation. A State Historic Tax Credit. In many states, historic tax credits modeled on the federal historic tax credit supplement and enhance the incentive package and fill the critical margin of feasibility for many rehabilitation projects. Such credits are making a huge difference in the current renewal of Saint Louis and Kansas City, Missouri, and in other Midwestern states. A Statewide Main Street Program open to urban neighborhood commercial centers and corridors would multiply the applicability of that program already underv✓ay in a limited fashion in Saint Paul, and provide a support network in the state. a 3 -q�5 Neighborhood Commercial Revitalization Commercial revitalization programs in Saint Paul are in an early stage of development. While some neighborhood districts are actively engaged in the revival of commercial corridors in the city, others seem to be unsure how to proceed or where to get the assistance they need to mount such efforts. In many of the plans and stretegies already developed far Saint Paul's downtown and neighborhood commercial areas, historic preservation, or at least some sensitivity to historic structures, is acknowledged. Working from an asset-based develapment strategy that takes advantage of Saint Paul's historic structures and neighborhoods, the City can create a strong commercial revitalization program. The PreservaYion Development Initiative assessment team reviewed a number of studies, documents, and reports about downtown Saint Paul, Lowertown, the two neighborhood commercial programs associated with the Local initiatives Support Corporation (LISC), National Mainstreet Initiative (NMSI), and various neighborhood plans. Upon review of these studies, it became clear that preservation-based commercial revitalization is already embraced by many groups and that some of these areas of the City have already begun to enjoy some successes at blending preservation and commercial redevelopment. The team noted that Saint Paul has many well considered neighborhood plans and planning staff who suppoR many of the preservation development concepts that the Preservation Development Initiative is designed to address. The issue facing Saint Paul is not a lack of support for commercial revitalization, but rather the lack of su�cient resources to implement all of the plans and strategies already developed. The assessment team made the decision to examine some of the key ideas and elements of the existing plans and to develop recommendations for implementation on a scale that seems possible. The team also decided to focus primarily on neighborhood commercial revitalization potential, with some limited discussion of downtown. The'Downtown DevelopmenP section of the assessmenf report addresses many of the issues related to the downtown area. As a program of the National Trust for Historic Preservation, the Preservation Development Initiative team also decided to base its preservation-oriented commercial revitalization recommendations on the urban neighborhood revitalization model developed by the National Main Street Center RO. The Main Street Approach to Commercial Revitalization Hisioric preservation has become an important tool in downtown and neighborhood commercial revitalization programs across the United States over the past 25 years. The National Main Street Center, a progrem of the National Trust for Historic Preservation, has promoted a method for such revitalization that is comprehensive in its approach to the wide range of issues that face commercial districts. The Main Street revitalization phifosophy is based on four points: 1. Design — an improvement of the entire visual quality of the commercial district, inciuding buildings (historic and new), public space, streetscape, signs, visual merchandising and views. 2. Promotion and marketing — identifying and promoting the districYs unique characteristics and opportunities through special events and celebrations, business- oriented merchandising events, public relations and other image-building activities. 3. Economicrestructuring— creating an economic development strategy based on market realities and diversifying and expanding markets. Business and real estate development integrated into a total strategy works best. 4. Organization — establishing an organization of volunteers and professional management to oversee and guide the districfs revitalization process. The Main Street Approach is more fully outlined in Appendix B. Neighborhood Commercial Revitalization Observations Downtown Saint Paul The Saint Paul Downtown Development Strafegy of the Comprehensive Plan, a 10-year policy plan for the development of the downtown area, states in its introduction that: neighborhood-serving retail for downtown residents as well as retail activities that serve the needs of new and existing businesses and visitors who partake in downtown's sesources. Downtown's market also includes the significant employee base of companies, institutions and govemment in the district. Downtown's physrcal strengths include an array of historic sfrucfures that tell the story of downtown's past, a wealth of existing and emerging green spaces and pa�ks, and its proximity to and relationship with the Mississippi River. Downtown Saint Paul has a distinctive feel to it that its twin, Minneapolis, lacks due to the historic structures, street grid, opens spaces, and in its relationship to the river. This distinction can be a differentiating market position for downtown property and business development. The economic and development value of downtown Saint Paul's historic areas is also cited among the 10 principles of the "Saint Paul on the Mississippi Development Framework," including "build on existing strengths" and "preserve and enhance heritage resources." Clearly, the concept of preservation-based development in downtown Saint Paul is well- documented and stated in many key planning documents and studies. The question is, "Are there sufficient resources and support for the implementation of these strategies?" Downtown retail is weak by ail accounts. Suburban competition and the loss of many retailers from the downtown area weaken its position as a major factor in the regional retail scene. Strategies to strengthen downtown retailing will need to be based on Neighborhood Commercial Districts Saint Paul is a city of neighborhoods; each with its own history and feeling. While downtown's retail potenfial is weak, neighborhood-serving convenience and specialty retaii can thrive if fostered in a supportive environment. Several of Saint Paul's neighborhoods have already begun to develop commercial revitalization programs. Building on this foundation, Saint Pau{ can create a collection of unique neighborhood commercial districts that reflect the diversity of cultures and history found in the city. The team visited many of the commercial corridors and found the following good examples of the potential for neighborhood commercial development in Saint Paul. Lowertown Lowertown has proven to be a successful "urban village" that uses its historic character to differentiate itself in the market. The variety of residential options, interesting spaces, and mixture of uses found in Lowertown is an example of the impact that preservation-based economic development can have. After 20 years of redevelopment activity by the City of Saint Paul and Lowertown Redevelopment Corporation, the Lowertown area has enjoyed more than $450 million in investment and created a true urban neighborhood. While the development of Lowertown has taken time to succeed, it has prove� that a steady growth pian thattakes advantage ofthe neighborhood's assets — its historic buildings — can work. While Lowertown is considered successful today, it was a risky undertaking in the beginning. People interested in revitalizing other neighborhood areas in Saint Faul should keep in mind that Lowertown was not an ovemight success, and that incremental change is necessary to ensure that districts continue to evolve wiih market opportunities. Payne Avenue — Arcade Street Commercial Districts The commercial revitalization programs in the Payne Avenue and Arcade Street Commercial Districts, managed by the East Side Neighborhood Develapment Company, Inc. (ESNDC), working with the Payne Arcade Business Association, have begun successful implementation of a neighborhood Main Street program. Part of the LISC 1Vational Mainstreet Initiative (NMSI), the Payne Avenue Commercial Building d3 Neighborhood Commercial lievitalization Payne Avenue project has incorporated all of the four points of the Main Street Approach. Reviewing the ESNDC strategic plan, the team noted that a successful ecanomic development strategy was integral to realizing its overall vision for the East Side. The program has addressed issues of business and property development; balancing historic and current neighborhood cultural sites, uses and design; and has continued to promote the area as a "neighborhood of choice ° One problem facing the Payne Avenue effort is the need to develop a sustainable funding model that continues beyond operational funding from LISC andlor the City. District del Sol (West Side� The District del Sol commercial revitalization program on the West Side, a program of the Riverview Economic Development Association (REDA) is another effott affiliated with the LISC NMSI. It has been pursuing a commercial program based somewhat on the Main Street Approach. While its stated emphasis is on physical improvements and design in conjunction with marketing activities and crime prevention, it has also worked on tenant recruitment and community organizing. Public improvements have been planned for Harriet Island and District del Sol as part of the Smart Growfh Twin Cifies project. It will be essentiai that REDA work with agencies and consultants implementing that plan to ensure that the community remains involved in the redevelopment process. Selby Avenue The Selby Avenue corridor has the potential to become a successful neighborhood commercial district. Although the SelbyAvenue Small Area Plan assumes that the Selby Avenue trade area for goods and services is Iimited by competition from Grand and University Avenues, its low-scale buildings and neighborhood feel can help develop a convenience-oriented neighborhood commercial district. The Selby Area Community Development Corporation (Selby Area CDC) has developed a business plan that includes physical development projects and business deveiopment programs to support the revitalization of Selby Avenue. Seven Corners Gateway (West 7` Street) The Seven Corners Gateway Plan outlines a vision for a three-block section of West 7'" Street from Kellogg Boulevard to Grand Avenue that articulates a Main Street commercial node with neighborhood-serving businesses, but also offers entertainment centers for visitors and commuters who pass through the district daily. The physical plan described in the Seven Corners Gateway Plan is an important part of any commercial revitalization effort in the West 7 Street area, but it still needs additional elements, including a management system, marketing plan and business development strategy, in order to be a comprehensive commercial revitalization effort. Recommendations Downtown Recommendation #1: Conducf a study of financing tools and incentives. The Saint Paul Downtown Development Strategy recommends a study of financing tools and incentives to promote retention and protection of historic buildings and sites. The strategy named the Capitol River Council, the Heritage Preservation Commission, City Council Research, and Historic Saint Paul as the groups to conduct such a study. The team thinks that Historic Saint Paul could take the lead on such a study in partnership with other groups named in the strategy. Financing for the study could come from technical assistance funds available through the Preservation Development Initiative matched with government or private funds. Recommendation #2: Pursue time/y designation of dawntown sites and districts and the use of other preservation tools as integral components of the Downtown Development Strategy. The strategy identifies regular and on-going invenfory and designafion of local historic sites including sites threatened with demolition, and the designation of districts and sites recommended in the Saint Paul Sutvey and Designation Project and downtown buildings currently on the National Register of Historic Piaces. In addition, the strategy recommends the historic and architectural significance of buildings be given equal consideretion to its "highest and best use", and to broaden the use of preservation tools for non- designated buildings. Historic Saint Paul is identified as a key implementer in several of these recommendations, and is uniquely positioned to be a strong private- sector partner to city departments, including PED and HPC, and other local organizations, in the implementation of these recommendations. Recommendation #3: Encourage a vision of downtown housing in historic 10 Neighborhood Commercial Revitalization office buildings. Unique living spaces in historic buildings will support the strategy of creating a downtown residential neighborhood while maximizing the reuse of historic structures. Many of the current plans for downtown include housing, maintaining a pedestrian or human scale, and developing amenities for downtown residents. Historic structures, adaptively used, will help downtown Saint Paul remain a comfortable place to live. Neighborhood Commercial Districts Recommendation #1: Develop a citywide, multi-district neighborhood Main Street program. There are several neighborhood commercial districts in Saint Paul that could support a comprehensive Main Street program, but need support to grow. The creation of a citywide Saint Paul neighborhood Main Street program would foster the generation and development of neighborhood programs and a network of efforts engaged in the revitalization of Saint Paul's commercial districts. Citywide commercial revitalization programs based on the Main Street model can be found in Boston, Baitimore, Washington, D.C., and Detroit. Many other cities have small numbers of urban neighborhood Main Street programs, but the citywide coordinating model provides the most support. all the Main Street programs in a city. Typicaliy housed within a govemment agency or a nonprofit organization, coordinating Main Street programs partner with the National Main Street Center to 1) provide hands-on assistance to participating communities; 2) develop resources to support revitalization activity; and 3) serve as a full-time advocate and front- line resource for commercial district revitalization in their jurisdictions. The team recommends that, ultimateYy, the Saint Paul Main Street Program be housed in City govemment but that Historic Saint Paul should participate in a design consulting rapacity. Initially, it may be necessary to establish a demonstration program outside of govemment with private funding and City suppoR until the City can identify funding sources. Coordinating Main Street programs form the backbone of the national Main Street movement. While neighborhoods can participate in the Main Street program individually, the challenge can be a daunting one without the s�pport of a coordinating entity that provides resources, a network, advocacy, and encouragement for (Following the on-site work of the assessment team, Josh Bloom, senior program associate at the National Main Street Center, investigated the potential for the development of a citywide Main Street program in Saint Paul. His recommendations are inciuded in Appendix B.) Recommendation #2: Work with the National Trust Community Investment Corporation (NTCIC) and other organizations with New Markets Ta7c Credits allocations to increase commercial lending in historic commercial areas. The New Markets Tax Credits program is a new financing tool created by Congress and managed by the Community Development Financing Institutions Fund (CDFI Fund) for increasing investment in commercial projects in Iow-income areas. The National TrusPs for-profit subsidiary, the NTCIC, received an allocation for credits to leverage $727 million in investment activity. The National New Markets Tax Credits Fund, Inc., a subsidiary of Community Reinvestment Fund, Inc., of Minneapolis received an aifocation valued at $162.5 million. New Markets Tax Credit loan funds may be used for business investment — including real estate — and may be paired with the Historic Rehabilitation Tax Credit. Historic Saint Paul, working with the National TrusYs Community Revitalization programs, can help eligible projects in historic areas connect to these funds. The New Markets Tax Credit (NMTC) Program permits taxpayers to receive a credit against federal income taxes for making qualified equity investments in designated Community Development Entities (CDEs) such as the NTCIC. Substantially all of the qualified equity investment must, in tum, be used by the CDE to provide investments in low-income communities. The credit provided to the investor totals 39 percent of 11 Downtown `Coney Island' 0�-4�5 Neighborhood Commercial Revitalization the cost of the investment and is claimed over a seven-year credit allowance period. In each of the first three years, the investor receives a credit equal to five percent of the total amount paid for the stock or capital interest at the time of purchase. For the final four years, the value of the credit is six percent annually. Investors may not redeem their investments in CDEs prior to the conclusion of the seven-year period. NMTCs are allocated annually by the fund fo CDEs under a competitive application process. These CDEs will then sell the credits to taxable investors in exchange for stock or a capital interest in the CDEs. The NMTC program is authorized to issue allocations to CDEs that will attract up to $15 billion dollar in investment. 12 o3-y3s Neighborhood Preservation Current resources and activity within Saint Paul's historic residential neigh6orhoods can be expanded by strategic irtvestmenf, and hisioric district designation can make way for new resources. Leveraging investment from the private sector can spur economic and commercial development, stabilize fragile communities, and generally revitalize disinvested areas. The Role of CommuniYy- Based Nonprofits Saint Paul has a wealth of community-based nonprofits that are addressing community development needs such as affordable housing and economic development. Tfiese nonprofits focus in varying degrees - some highly and others not at all - on saving their historic assets. The following neighborhoods were assessed: West Side (no historic designation); Frogtown (no designation); lrvine Park (loca! and national designation); U ppertown/N/est' Seventh/Fort Road (no designation); Selby Avenue (significant portions are designated Iocally and nationally as part of the Ramsey Hill designation); Dayton's Bluff (Iocal designation); Payne Avenue (not desig�ated, but identified as eligible for national designation); and Swede Hollow (includes the Hamm's Brewery campus that the Minnesota SHPO has determined is eligible for national designation, and parts of Swede Hollow fall in the Dayton's Bluff designation). In each of these neighborhoods, community-based nonprofits - sometimes more than one - were actively engaged. The organizations vary in capacity and focus on a variety of issues such as housing, community and economic development, neighborhood organizing and advocacy (associations), and historic preservation. Although there are common issues shared among neighborhoods, there is also a lack of communication or coordination between neighborhoods and the organizations serving them. This theme shows up in multiple levels within the City, from government programs and entities to the private sector, both nonprofit and far-profit. Issues include: the need for housing affordable to a range of incomes; education on the benefits of historic preservation; design guidelines; and financial resources to save and reuse historic homes - especially small, worker houses. Other issues include the need to revitatize neighborhood commercial areas, programs to address problem properties, addressing the rising cost of land in some areas, and incentives to attract investors to develop larger key projects such as the SchmidYs Brewery in the West 7�/ Fort Road Community. Each neighborhood and the organization(s) serving them have specific strengths. For instance Payne Avenue has a Main Street program. Dayton's Bluff and West Side have successful home rehabilitation programs for both historic and non-historic properties. Rondo Community Land Trust is running a successful "home move" program in the Selby Avenue area, as well as sustainable construction and homebuyer training programs. On the West Side, the community's unique strength is their focus on cultural arts and an inventory of intact homes still affordable to low-income homeowners. Irvine Park has a model renovation program that has resutted in a unique commun'rty of beautifully restored historic homes. Historic Preservarion As in many communities, historic preservation receives a mixed reception in Saint Paul. The treditional historic properties, such as mansions on Summit Hill near the cathedral are successfully preserved. irvine Park is another example of a successful historic preservation program, and property values have risen dramatically in recent years. The community has successfully moved a number of historic homes into the neighborhood; however, the Irvine Park Historic District is now on the verge of jeopardizing its historic designation. In other historic neighborhoods such as Frogtown, Dayton's Bluff, and West Side, there has been less focus on the historic value and in a number of cases historic preservation is misunderstood as too costly to consider. This perception is shared both by some organizations and individual homeowners. Often this perception is driven by the limits placed on funding available (income restricted, etc.) to development organizations. It can be detrimental to St Paul's overall efforts to attract and retain residents while also respecting and bui�ding upon the 13 Rehabilihted Historic Home Neighborhood Preservation City's important historic housing stock. The neighborhoods that remain affordable to low- and moderate- income households are those that include a wealth of smaller, historic "worker homes" originally built for returning veterans and factory and railway workers. These homes form an invenfory of properties that, upon rehabilitation using historically compatible guidelines, will add to the area's historic cultural value and can be sofd to low- and moderate-income families and can also contribute to the Mayors ambitious "5,000 homes in four years" goal for affordable housing. Many of Saint Paul's historic neighborhoods are not designated districts. Designation can provide avenues for additional resources for a community. The City has been slow to add districts in recent years, leaving many of the affordable communities with smaller historic homes unrecognized and ineligible for designation-related resources. Deployment of Community Development Resources in Neighborhoods Although nonprofits seem to rely heavily on govemment resource programs such as Community Development Block Grant and HOME funds, one of Saint Paul's strengths is the invoivement of banks in community efforts. Bremer, US Bank, Saint Anthony Paric, University Bank, Liberry State, Western Bank, Cherokee State Bank, and Wells Fargo to name a few, are lending to housing and commercial development in each of the neighborhoods. And this is not in isolation. Nonprofit organizations have forged successtul partnerships with the banks to address many but not all capital needs. The capital resources typicaliy being used are traditional grants and loans available through federal, state, and Iocal govemment housing and community development programs. Private resources are also primarily in the form of granting and lending programs commonly operated by the lending community, foundations, and corporate philanthropists. Many local non-profit organizations, and developers, have been utilizing the City's 1/2 cent sales-tax program, STAR, as a source of flexible gap financing. The allocation of a significant portion of those resources to Housing 5000, combined with a weakened economy has increased the need for steady, flexible resources for large and small-scale rehabilitation projects. Saint Paul can benefit from more creative models such as secondary marketresources, theme Iending to upgrade an entire area, historic preservation resources, and specialized loan programs such as incentive, crisis and stabilization, and intervention funds. Greater resources would be forthcoming upon designation of additional communities as historic. These funds need to be income and geographically unrestricted to be most successful in Saint Paul. Recommendations The recommendations that follow advise the use of financial and organizationai structures to facilitate neighborhood preservation. While the City of Saint Paul can play a part in these structures, nonprofit preservation and community development organizations should take leadership roles in the creation and management of these efforts. Historic Saint Paul, working in collaboration with neighborhood development groups, should make neighborhood preservation a comerstone of its agenda. Recommendations 1-5 directly address a neighborhood preservation agenda. Recommendations 6 & 7 are necessary components of such an agenda and have also been addressed in the `Preservation Infrastructure' section. Recommendation #1: Establish a Center for Collaboration Create a central point of collaboraUon among CDCs, historic preservation groups, neighborhood housing services organizations, and Main Sheet initiatives. Historic Saint Paul is best suited to staff resource, education, and training programs for nonprofit organizations. Such an initiative will: • Help organizations coordinate their programs, leam from each other, and share ideas and resources • Combine efforts to advocate for preservation-based community development efforts • Organize forums to educate a6out presenration of historic resources, small and large • Provide technical assistance and education to homeowners and neighborhood developers alike • Provide design review for grant and loan resources • Provide design guideiines for neighborhood-based efforts • Develop an awards and recognition program to reward preservatio� thinking and efforts. Recommendation #2: Establish a Lending Pool Establish a lending pool to be managed by Historic Saint Paul 14 03- y�s Neighborhood Preservation structured to meet the unique needs of the City's historic neighborhoods. One of the greatest needs is a lending tool to assist in renovating smaller historic homes, both owner-occupied and rental properties that can be purchased, rehabilitated, and sold to low- and moderate-income families. This will meet two needs, that of affordable housing for lower income households as well as the preservation of historic homes. In Frogtown, a loan tool focused on historic properties might provide incentive for the organizations operating in the neighborhood to learn more about the historic resources there. Less demolition might occur and more rehabilitation takes its place, preserving the unique historic character of the community while providing affordable homeownership opportunities. In Dayton's Bluff, loans might be made to homeowners with incentives to rehabilitate houses in a historically compatible manner. A community such as this, that has a high percentage of homeownership, can benefit from lending tools uniquely structured to save historic value, while rehabilitating older homes. This tool should be targeted to owners with a range of incomes. In Irvine Park and West 7 Road neighborhoods, loans might be tailored to assist in the revitalization of the commercial corridor. A great deal of residential rehabilitation work has been completed by private property owners and under the leadership of the local CDC. Continued revitalization of the commercial corridor would add to neighborhood livability, and sustained private investment into residential properties. Business loans and real estate improvement loans for commercial property could assist in this. Some creative lending tools with a preservation ethic might include: • Thematic lending to assist in upgrading roofs,porches, siding, windows, fences, or whatever exterior enhancement is needed in a neighborhood (no incame restrictions and, where possible, in tartdem with banks) • Intervention funds for threatened properties • Crisis and stabilization funds for low-income homeowners • Preservation loans to properties within historic districts or individually Iisted with no income restrictions � Preservation incentive loans for enterior enhancements adjacent to historic districts or properties to expand preservation buffers for these districts. The commitment of the banking community in Saint Paul makes it feasible to establish a significant pool of resources. Beginning with the commitment from the Knight Foundation, adding an additional commitment from the Neighborhood Revitalization Corporation (NRC), the banks that are already active in Saint Paul will be able to leverage additional resources for communiry development work. Recommendation #3: Create a Preservation Development Fund An unrestricted develapment fund is needed to fill gaps not met privately or by city government to improve the streetscape and marketability of historic neighborhoods. Often !ittle impediments become major indicators of failure to the public because of slow response or lack of an unresficted fund to �ust get things done " These needs may include: • Removal of dead trees or trimming existing trees • Landscaping enhancements • Community ciean-ups • Temporary signs to educate the community of efforts underv✓ay • Banners and lighting = Temporary repairs Recommendation #4: Llrilize a Secondary Market The strength of the neighborhood organizations and the commitment of the banking community make Saint Paul a prime demonstration site for a unique collaboration between the National Trust for Historic Preservation and the Neighbarhood Reinvestment Corporation. Historic Saint Paul could collaborate with Community Neighborhood Housing Services in Saint Paul, for example, for the lending aspects of these recommendations, which would then aflow for the sale of these loans through their national secondary market, Neighborhood Housing Services of America (NHSA). This, coupled with periodic replenishment of lending resources, can develop significant financiai assets for preservation in Saint Paul on an ongoing basis. This asset building and leverage for preservation is a criTical need and a particularly ripe opportunity for Saint Paul. Recommendation #S: Develop Preservation Education Programs Using community forums, focus groups, and other organizing and training methods, educate the community on the value of historic preservation. The misperceptions 15 Neighborhood Preservation regarding historic rehabilitation can be addressed through education and special training programs for homeowners as well as for community-based organizations. A good example might be in the West Side neighborhood, where the community development entities are restoring historic homes to their unique, original state and seliing them to low-and moderate-income families with subsidies to bring down the purchase price. The multi-color schemes used on these historic homes, while beautifully done, might be difficult for low-income families to maintain. Through specially designed education programs for property owners and community development organizations, this type of issue can be addressed and alternate solutions devised. Education programs can also begin in elementary, middle, and high schools with programs that get students involved in writing the histories of their own neighborhoods and specific historic structures within them. A good example of this idea is a joumal published by the students of East Consolidated Elementary School in 1991 entitled, A Walk through Time: a History of Our School's Neighborhood. Highlighting and awarding model restoration and rehabilitation efforts in the City would also enhance the public view of preservation and encourage innovation. The following recommendations are necessary actions to not only protect historic neighborhoods, but also to provide resources and a marketing niche. Combined with a homeownership strategy, historic preservation can be used to enhance and create market value can be part of an effort to create wealth for low and moderate income homeowners. The City of Saint Paul has primary responsibility for the implementation of the following recommendations; however Historic Saint Paul and housing advocacy organizations should accept the task of promoting the use of historic districts to create wealth. Recommendation #6: Designate Additional Historic Districts The City must co�sider more of the historic neighborhoods for either local or nationat designation as historic districts. This would be of particularbenefittothose neighborhoods that have smaller, historic worker homes; neighborhoods such as West Side, Frogtown, and Selby Avenue. Many of these homes are in disrepair and need rehabilftation resources. Without designation, negative and unfortunate results can occur such as tear-downs or inappropriate changes to buildings and the historic fabric of neighborhood streetscapes. Unsightly renovations and additiorrs can detract from the historical and cultural significance of a neighborfiood and have long- term negative impact on a community's ability to maintain private invesVnent into its housing stock. Recommendation #7: Designate Conservation Districts. The City should consider establishing conservation districts in neighborhoods that have unique characteristics (i.e., cartiage houses, workers houses, row houses, front porches, etc.), offering special financial incentives regardless of historic designa6on This could encourage a preservation ethic and stabilize and enhance housing stock without perceived restrictions. Forinstance,in orderto save historic carriage houses as affordable rental space for office or homes, the City should review pre- existing guidelines and retum to earlier policies. Currently, new structures and incompatible additions are being built that damage the integrity of the historic neighborhoods. Carriage houses represent both an economic and historic resource if rehabilitated according to historically compatible guidelines. Many of them, however, have become a nuisance with overly large additions or unsightly exteriors. 16 Saint Paul's CDCs Do High Quality Rehabilitation Work 0�-935 Downtown Development Projects Downtown Saint Paui has a rich fabric of historic propeRies, landmarks, and places. Because its sister city, Minneapolis, has attracted the lion's share of the regiods economic growth, its central6usiness district (CBD) has been largely rebuilt, leaving comparatively few structures to remind the city of its history and create a sense of piace. IYs not too late for Saint Paul to chart a Reclaiming the riverfront from inappropriate uses such as the adult detention center and obsolete poR faciiities is a good thing. But Saint Paul should heed the lessons of Baltimore and other cities that have created heralded harbor districts, which, in tum, have drained the economic life out of their traditional commercial cores. Specific observations and recommendations on how to capture the potential of Saint Paul's historic downtown foilow. Observations different course to the future. Saint Paul has a chance to capitalize on its "historic edge" over Minneapolis if it can create a planning and development process that values the past as a key economic driver of its downtown's future. Downtown historic properties in urban centers across the country have become a magnet for young professionals and empty nesters who want a different kind of living experience. Historic commercial districts have blossomed as entertainment and boutique retail districts. Heritage tourism is the fastest growing segment of the tourism sector. It could be a much larger contributor to Saint Paul'S downtown economy. Whife success stories like Lowertown would suggest that Saint Paul has indeed embarked on a preservation-based downtown development strategy, there does not appear to be a clear vision of how to sustain Lowertown, and how to move beyond its boundaries to bring the Lowertown model to other sections of the CBD. The focus seems, instead, to be on the riverfront and how it can be redeveloped for housing, cultural, and recreational uses. Downtown Market Ali of those interviewed agreed that Saint Paul's central business district has a very strong housing market that has matured beyond apartment rentals to mixed rental and condominium offerings. As an example, the Cornerstone organization has presold twelve condominium units in the Great Northem Lofts property (J.J. Hill Building) for between $200 and $300 per square foot. The Tilsner, a subsidized aRists' loft, is ninety- five percent leased and rents for between $850 and $1,300 per unit. Like nearly all major American cities, Saint Paul's downtown housing surge is fueled by the convergence of two very different market demands--traditional young, professional singles and couples and the vast baby boom, empty-nester population group looking to re-experience city living Sai�t Paul has done much to reinforce these market trends by becoming art increasingiy popular culturel, recreational, and entertainment draw, including venues such as NHL hockey, a children's museum, science museum, a variety of riverfront activities, and a growing aRist community. At the same time, office vacancies have hit an all-time high at'18.4 percent, up from 13.9 percent in 2001 according to the October 2002 Saint Paul Office Report. One leasing agent said that when mastervtenant vacancies are counted, the rate rises to 24 percent. Total absorption of office space in 2002 was a negative 192,169 square feet. The retail market is experiencing similar weakness. In addition to these statistical findings on the retail market, the assessment team noted a general dearth of retail uses in the CBD. Vacancies appeared to be very high in the skyway system and on the ground level, even in heavily residential downtown neighborhoods like Lowertown. The weakness of the retail and office sectors would appear to set the stage for housing conversions of existing buildings. Public Subsidy for Downtown Housing Despite the high demand for housing in the CBD, both new construction and rehabilitation of existing buildings require pubiic subsidy. This economic reality can be a difficult one for City planners and policy makers who have grown accustomed to public subsidy set-asides for affordabie housing, not market-rate units. There is some concern in Saint Paul's neighborhoods that too many public dollars are being diverted to waterfront residential developments conneded to Mayor Randy Kelly's Saint Pau15000 Housing Plan. Saint Paul seems to have accepted the productiort of middle-class housing downtown as a Iegitimate public purpose. However, the City has, by far, allocated most of the available STAR resources and other housing subsidies to new construction rather than rehab. This is a concem for 17 Downtown Development Projects preservationists that could be tempered if a portion of the resources were allocated for the conversion of vacant and underutilized office and retail space into CBD housing opportunities. The City's 5,000 unit goai could still be met by converting vacant units, as the conversions of vacant units count as new units under the housing plan. Sustaining and Leveraging the Lowertown ExPerience Saint Paul owes much to Lowertown as a model for using the city's rich architectural legacy as the foundation for a new and vibrant downtown community. With 3,000 mixed-income residents, 850 of whom are artists, and 8,000 workers, Lowertown is a unique resource and catalyst for Sainf Paul's CDB. Two questions emerged from the assessment team's look at Lowertown. First, can Lowertown's success as a mixed-income neighborhood be maintained, especially given setbacks like the failures of Galtier Pfaza and the Depot? Constant vigilance and planning are needed to sustain a place like Lowertown, which could easily gentrify, pushing out the very artists who define its uniqueness as a community. And there is nowhere near the critical mass of retail uses needed to attract and retain its diverse household mix. The secand question is whether Saint Paul can transfer the success of Lowertown to other paRs of the CBD in order to maximize the economic benefits of historic preservation for its downtown? There does not appear to be a succession strategy. The lack of additional downtown commercial historic districts makes the use of the federal historic tax credit (and any future state historic tax cred'R) very difficult because each building owner who appiies for the credits must obtain individual listing in the National Register of Historic Places, a much higher level of significance than a "contributing" building in a designated district. Careful consideration should be given to the identification and designation of concentrations of downtown buildings, allowing access to significant resources to support redevelopment. Historic Preservation and the Mayor's Housing 5000 Plan As outtined above, Saint Paul's hot housing market is matched by an equaliy weak office market. There may never be a better time for the city to convert its older office properties to housing, removing unneeded office inventory and bringing 24-hour life to new areas of the CBD. Even though substantial rehab counts toward the 5,000 unit goal, results to date indicate the City's focus is on �ew wnstruction as it manifests its vision for increased housing. By skewing its resources toward new construction, Saint Paul is not maximizing its potentiai for attracting the distinctly different market of buyers and renters who prefer the unique quality of Ioft- style living. Financing Incentives for Historic Downtown Property Conversions Saint Paul lacks the basic financing tools that many progressive cities have in place to encourage developers with choices to select historic property renovation. The expiring This Old House tax freeze for instance, does not apply to commercial properties. Mostjurisdictions do not limit their 10-15 year pre-rehab tax freeze to ownervoccupied units. Given that property taxes are the single largest cost of operating a commercial property, the omission of historic commercial properties is a major flaw in the City's historic preservation incentive package. While the Old House Tax Credit was at the State level, the City could consider developing its own credit that included commercial properties. Twenty-one states now have some form of state historic tax credit. Minnesota is not among them, and Saint Paul stands to gain more from such a credit than any other Minnesota jurisdiction. Last year's successful legislative effort to rescue Maryland's stafe historic tax credit was led by Mayor Martin O'Malley of Baltimore because 90 percent of the state credits allocated benefited rehab in economically distressed areas of Baltimore. Connecting the dots Manyjurisdictions, including the States of Maryland and New Jersey, and ihe Cities of Los Angeles and Dover, Delaware, have moved aggressively to adopt smart rehab codes that lower the cost of rehabilitation and encourage loft conversions of downtown office a�d industrial properties. Combined with tailored financing programs and historic district designations that help leverage federal and state tax LE'�' Lowertown 03-435 Downtown DeveloPment Projects credits, these jurisdictions have created a healthy balance of rehab and new cons:ruction. A new, more preservation-fiendly rehab code has been adopted by the state. While the state has offered in-depth technical presentations and other education programs on the code's rehab provisions, awareness of these measures outside the building industry is Iow. By necessity, in order to assure it achieves a maximum impact, localities, such as Saint Paul, will have to enact a complementary set of public policy initiatives to educate the general public about preservation-minded strategies in the building and rehabilitation of structures. Getting ahead of the market Key properties like Hamm's Brewery and the Union Depot should not be allowed to fall into private-sector hands when their adaptive use could mean so much to the health and vibrancy of Saint Paul's downtown and older neighborhoods. Since the time that the assessment team visited Saint Paul, the City obtained a purchase agreement for much of the Hamm's site. Now the City will have the opportunity to direct the rehabilitation of the site with a deve�oper who will use the historic character of the complex to maximum advantage. The project will be complex and will require vision and patience. A through feasibility study that also accounts for the market and cultural value of the historic nature of the site is needed. An unknown fate appears to await the Depot, which is in foreclosure. Its potential use as a multi-modal transit center and as a connector between Lowertown and the waterfront will be complicated if a private speculator steps in before the City or County acts. Key Opportunities Key opportunities to use historic properties for economic and crommunity development gains lie before the City. The PDI assessment team noted the existence of a number of critical historic properties whose sensitive adaptation to new uses can make a significant contribution to the economic and community development of Saint Paul. These include: • Hamm's Brewery • The Head House/Sack House • Union Depot • Post Office • Lowry Building • West Publishing Building (Ramsey County West) • Schmidt Brewery Specific recommendation on each of these properties is made in the following section. Recommendations Saint Paul has a 12rge number of significant CBD historic properties that make a real contribution to the economic health of the city's downtown today. As growth and change inevitably undermine the marketability of these older buildings, they should be adapted to new uses that support the land- use goals of the Comprehensive Plan. The private sector knows that new construction is often cheaper, easier to accomplish, and more profitable than historic rehabilitation. The public role, however, should be to balance profitability with quality, cultural significance, and other elements that will serve the long-term interests of the City and enhance private property values over time. To achieve this end, Saint Paul must be more deliberate and develop a comprehensive approach to maximizing the economic benefits of its downtown historic buildings. This comprehensive approach should include the following elements: Recommendation # 1: Inventory historic and older buildings Following the strategy's adopted in the Downtown Development Strafegy (March 2003). City departments including the Heritage Preservation Commission (HPC) and Planning and Economic Development department (PED) should work together to inventory all of the central business districYs historic and older commercial and residential buildings. From of this inventory should come a list of priority properties, ranked separetely for their historic significance, strategic economic importance, and financial stability. A special note should be made of properties up for sale or rumored to be available. Key buildings to inventory would include the Lowry Medical Arts, First National Ba�k, Pioneer, Northwestern, Empire, Strauss, and Crane Buildings. Recommendation #2: Design an incentive financing package Simultaneous with the inventory, PED should design an incentive financing package for CBD historic rehabs that meet certain criteria and conform to the goals of the Comprehensive Plan. These incentives should include preservation development earmarks from existing programs such as STAR, tax increment financing, and Metropolitan Council grants, to indicate Saint Paul's interest in balancing the 19 Downtown Development Projects growth of downtown between rehab and new construction. Assistance in providing parking facilities for renovated propeRies is critical. At the same time, the mayor should announce a legisiative agenda that includes state and local enactment of incentives commonly available to other cities such as state historic tax credits and historic commercial property tax freezes. Recommendation #3: Create a fa�ade easement program The City should work with Historic Saint Paul (HSP) to develop a fa�ade easement program that helps developers achieve tax deductions and corresponding property tax rate reductions for donating easements in perpetuity to a local nonprofit organization. The program should provide HSP with the capacity to provide legal and tax accounting assistance to property owners and to ultimately hold the easements. Recommendation #4: Form National Register commercial districts Backed by the inventory work, financing incentives, and tax relief measures ouUined above, HPC should recommend the formation of one or more National Register commercial districts. These districts would qualify conVibuting buildings for federal and, hopefully, a future Minnesota State historic tax credit and historic commercial property tax freeze. The districts should not be locally designated initially and should not require review of privately financed exteriar improvements. The only real constraint on property owners would be on the use of federal funds for property demolition or inappropriate exterior changes that would Vigger a Section 106 review. Recommendation #S: Gain public control of key properties when available The City and County shouid collaborate on an early intervention strategy that secures public control of key historic properties at the point of sale or foreclosure. The strategy should be aimed at ultimately reducing the cost of transfer to a� appropriate developer, managing design, and playing a strategic role in determining the planned reuse. Recommendation #6: Develop an assessment process for historic properties The early intervention strategy should be linked with the developme�t of a historic property assessment process that would give PED the ability to work with neighborhood residents and preservationists to objectively assess the feasibility of historic property rehab. Recommendation #7: Address the continuing needs in Lowertown Saint Paul should redirect resources to address the continuing need to maintain the delicate stability of Lowertown. A key project to pursue on an accelerated basis would include the redevelopment of the Union Depot as a mixed-use inter-modal transportation center. Control of the train concourse should be used as a means of connecting Lowertown's artist and general resident population with riverfront amenities. Resident-serving retail is also a critical priority. Specific recommendations for key historic buildings: Head HouselSack House — Mayor Kelly should announce his intention to put executive branch resources, inciuding PED, behind the efforts of the Saint Paul Rivertront Corpora6on to further adaptive use for this historic structure. As of June 2003, a developer has been tentatively seleded. Reuse options are focusing on a restaurant initiaily and an interpretive center for the riverfront history that the sVucture represents for the longer term. Parties are working with the National Trust for Historic Preservation on a financing package that could use the rehabilitation tax credit and the New Market Tax Credit. Union Deoot — Use of the concourse should be �egotiated with the U.S. Post Office. Efforts to plan the DepoYs use as a light rail stop and inter-modal center should continue. Seek the help of the Great American Train Station Foundation to assist in the planning. Memphis' Central Station project should be looked to for lessons leamed. `zn Hcad and Sack Hossse 03-935 Downtown Development Projects Options for the use of currenUy down the adult detention vacant head house and center and use the land made concourse space should available as a carrot to attract include art exhibit space, an a deveioper to perform an exercise club, housing, and adaptive rehab of the West educational facilities. Publishing Building. � Lowro Buildinq —The building known as the Lowry Professional Quilding will be renovated into a mixed-use development with commercial space, retail space and for- sale condominium housing units. The condominiums units will be located on floors three through the penthouse on the thirteenth floor, and the commercial space will be located on floors one and two. The new redevelopment proposal shows a gap in financing needed to renovate the building due to costs slightly exceeding the ability of project to obtain private financing. It is anticipated that in order to preserve this historic building, it will require some public financing assistance. This is currently being analyzed. • Hamm's Brewerv—The City should re-engage the neighborhood residents, and prospective devefopers in an assessment of the potential uses of all or part of the Hamm's Brewery site. The assessment should include a structural study, eovironmental review, community input, proposed use options with schematics and cost estimates, and identification of subsidy mechanisms. Demolition of nonhistoric or structurally unsound buildings in the complex should be strongly considered to enhance feasible development opTions. • West Publishinq (Ramsev Countv propertiesl — Tear i�l o3-�"r35 Heritage Tourism Saint Paul is a city with remarkable resources and assets. Among these are the city's rich and diverse heritage, outstanding examples of architectural design, an engaged citizenry, and an enterprising and effective city govemment. Saint Paul is also a city that is struggling to determine its image — Will the emphasis be on modern or historic buildings? What is the role of historic preservation? Is it a sports town or a culturai cente�? How does it compete with Minneapolis? This section of the report focuses on the city's cultural and heritage resources in regard to potential for increasing tourism by organizing, developing, and promoting these resources. Heritage tourism is a growing industry, and investment in preserving and promoting historic resources can have tremendous benefits. The city's heritage resources should be fully incorporafed into every aspect of planning and promotion. Outlined below are specific steps that will unify heritage resources, create a stronger voice, and position heritage sites for effective promotion. But the overarching recommendation is to... Develop a Culfura/ Heritage Tourism Plan for the Cify of Saint Paul. Heritage Tourism: A Growing Industry In the past decade, there has been great growth in heritage travel. In fact, according to the Travel Industry Association (TIA), heritage travel was the only segment that saw an increase after the events of September 11, 2001. A survey conducted by TIA in 2000 highlighted the eMent of heritage travel: • Heritage travel increased 70°/o in 2000 over 1996. � Two-thirds of all travelers (65%) include a heritage or cultural sife in their travels — this translates to 92.7 million annually. • Heritage travelers stay longer — 4.7 nights compared with 3.4 nights for other travelers. • They are likely to extend their trip — 30 million travelers e�ended their stay because of heritage and 26% stayed two or more extra nights. • Heritage travelers spend more — an average of $631 per trip compared to $457 for other travelers. • Heritage travelers are more likely to stay in a hotel, motel, or B&B, - They are more likely to take a group tour — 6% as opposed to 3%. • Heritage travelers shop more — 44°/a compared to 33% for other travelers. • 18% spend $1,000 or more an their trips. • They are looking for unique items that represent the destination. • Heritage travelers tend to be siightly older and to have a post graduate degree. Observations A Cultural Heritage Tourism Plan for Saint Paul Two planning processes are currently under way in Saint Paul, stimulated by strong leadership from the office of Mayor Randy Kelly: 1} St. Paul Culfural Plan - This excellent project is bringing together cultural resources from across the city to develop a state- of-the-aR cultural plan as a key component of St. Paul's "Renaissance' Wolf, Keens and Company, the consulting firm retainetl to formulate the plan, will implement a comprehensive strategy including audience research, budget analysis, programming inventories, market surveys, focus groups and public meetings. The goal of the resulting cultural plan is increased funding, higher visibility, improved coordination, better programs and an expanded audience for the arts. The recognition of St. Paul as a cultural center and the unity of the city's culturel institutions provide a Firm foundation for development of this cultural plan. The plan will be implemented in 2003. 2) Branding St. Paul —This project is an effort to "define" the city for both residents and visitors. A task force was appointed by Mayor Kelly, and a group of leaders from city government and affiliated organizations worked to create a vision and a brand essence for St. Paul. The group sought to identify what was special and unique about the city, and to create a series of definitions that characterize the city and can be utilized across a broad spectrum of areas ranging from encouraging relocation of businesses to Sf. Paul to marketing the city to visitors. Observations on Cultural Plan and Branding Project The intention of these two projects is to enhance the profile of St. Paul. The following observations on each project are in reference to the proposal that St. Paul develop a heritage tourism plan: The Culiural Plan only gives passing reference to the city's heritage resources. Reviewi�g the projecYs materials including the 22 Heritage Tourism charrette notes, information survey, list of organizations to be surveyed and the outline of intended outcomes, it is clear that this plan focuses primarily on the arts. A Heritage Tourism Plan can complement and work with the Cultural Plan. The core of the Brand Essence was defined as "Gem, Harmony and Ethic." Each of these words can effectively relate to heritage tourism. The city is a"gem" because of its historic buildings, both downtown and in the city's neighborhoods. The terms "harmony' and "ethic" can related to the warm welcome that visitors will receive and the authenticity of the heritage interpretation that visitors will experience. As the group further defined the brands, word like historic, genuine, welcoming, entertainment, arts and culture further defined characteristics of St. Paul that can be appealing to heritage visitors. Incorporating Heritage and Culture In order To develop a Cultural Heritage Tourism Plan for Saint Paul, it is important to understand the relationship between "culture" and "heritage." The visitor who is interested in art is also often interested in heritage; therefore the two can work weli together in attracting visitors to a community. Based on a survey of programs across the country, the National Trust for Historic Preservation's Heritage Tourism Program has developed the following observations about culturel heritage tourism in the document Cultural and Heritage Tourism: The Same, Or Differenf? "It is not possible to define cultural tourism and heritage tourism as two entirely different kinds of tourism. In looking at definitions of both heritage and cultural tourism there clearly is overlap between the two. Without question, the areas of overlap far exceed the differences. "Most importantly, the heritage visitor and the cultural visitor are quite o8en one and the same, and thus it makes sense to work together to create appealing and well-rounded culturai heritage visitor experiences. `... `heritage' programs are more often found in rural areas while 'cultural' programs are more often found in urban settings. Historic preservation groups are more likely to describe'heritage tourism' programs, while museum and arts groups are more likely to refer to 'cultural tourism' programs, though the content is often quite similar. "Heritage tourism programs are often associated with history and the past, and yet, modem culture has roots in the past. Furthermore, an enlightened preservationist is able to see the culture of today as the heritage of tomorrow. "The primary difference behveen the rivo is that heritage tourism is `place' based. Heritage tourism programs create a sense of place rooted in the local landscape, architecture, people, artifacts, traditions and stories that make a particular pface unique. Cultural tourism programs celebrate the same kinds of experience, though with less emphasis on place. Thus, viewing the work of a great master artist in his home and studio is a heritage tourism experience, while viewing those same pieces of art in a treveling exhibition is a cultural tourism experience. The content is the same while the conte�ct is different" Steps and Principles for Developing a Cultural Heritage Tourism Plan The National Trust for Historic Preservation's Heritage Tourism Program advocates the use of four steps and five principles for developing a successfui and sustainable cultural heritage tourism program. This section will follow the four-step process, incorporeting the principles throughout. The four steps are: t. Assess the potential. Evaluate what your community has to offer in attractions, visitor services, organizational capabi4ities, ability to protect resources and marketing. 2. Plan and organize. Make good use of human and fi�ancial resources. They are keys that open the doors to sustainable heritage tourism. Set priorities and measurable goais. 3. Prepare far visitors, protect, and manage your cultural, historic, and naturat resources. look to the future as well as the present. Be sure that the choices you make now improve your community far the la�g term. 4. Market for success. Develop a multi-year, many-tiered promotional pla� that targets your 23 F. Scott Fitzgerald SEatue C�3 -935 Heritage Tourism market. Look for partners in local, regional, state, or national groups. The five principles are: 1. Collaborate. Much more can be accompiished by working togetherthan byworking alone. Successful heritage tourism programs bring together partners who may not have worked together in the past. 2. Find the Fit Between the Community and Tourism. Balancing the needs of residents and visitors is important to ensure that cultural heritage tourism benefits everyone. It is important to understand the kind and amount of tourism that your community can handle. 3. Make Sites and Programs Come Alive. Competition for time is intense. To attract visitors, you must be sure that the destination is worth the drive. 4. Facus on Authenticity and Quality. Quality is an essential ingredient for aIl cultural heritage tourism, and authenticity is critical wherever heritage or history is involved. 5. Preserve and Protect Resources. A community's cultural, historic, and natural resources are valuable and often irreplaceable. Recommendations Step One: Assessing the Potential Resources and opportunities in Saint Paul include: • Diversitv of Resources —A wide variety of museums, historic sites, homes, festivals, heritage areas, ethnic neighborhoods, architectural sryles. • Historical Stories — Ranging from Native American history to the city's establishment and development, the construction of the railroad, immigrants, authors, and gangsters. • Product Develo�ment Potential — Opportunities exist for interpretation and creation of attractions along the riverfront and downtown � Partnershi�s—Bringing together heritage and cuitural organizations can benefit the organizations and their customers. • CVB Commitment— Identification of heritage as an area that needs additional exposure is the first step in developing a plan for promotion of Saint Paul's unique�ess. Challenges in Saint Paul include: • Lack of Unitv — Heritage attractions have no unified "voice" to establish credibility with City leaders and to rise to the forefront as an impoRant element in attracting visitors. (Discussed in Step 2.) Orqanizational Capacitv - Nonprofit sites are coping with shrinking budgets, raising additional funds, recruiting and retaining volunteers, and serving multiple audiences. (Discussed in Step 2.) • Visitor Services — Visitors to Saint Paul will have difficulty in orienting themselves to the city because there is no Visitor Center.(Discussedfurtherin Step 3.) Assessing the Current Visitor Eacperience at Heritage Atlracrions Saint Paul's diversity of heritage attractions offers a foundation, or hub, for visitors to begin their exploration of the city's history. From here, they can branch out to the spokes — historic neighborhoods, ethnic festivals, architectural downtown tours, river walks, etc. In offering a heritage experience to travelers, it is critical to understand the audience and their expectations. Heritage attractions are competing against many other activities that can occupy a traveler's time. Additionally, it is important to recognize that although today's visitors are more sophisticated and well traveled than previous generations, they are less educated about our country's history. To better understand the current visitor experience in Saint Paul, an evaluation of each of Saint Paul's heritage attractions is recommended. This evaluation should include the following: 1. General Appearance — Is the property well maintained (including any buildings and Iandscaping)? Are signs easy to locate and understand? 2. Accessibility — is the site ADA compliant? Is it open for regular hours and days of operations? 3. Quality of Tourist Services — What items are sold in the gift shop? Are there enough restrooms? Is there ample parking? Is there a staff person or volunteer who can provide information on other attractions or who can give clear directions? F3! Heritage Tourism 4. Site Presentation — Are the interpreters knowledgeable? Is the information presented in an interactive manner? Does the presentation invite critical thinking by the visitors? Are there opportunities for hands- on activities and demonstrations? Are there regularly scheduled special events such as reenactments, musical performances, candlelight tours, or others? After conducting this assessment, a plan should be developed identiTying the necessary improvements and additions that should be made at each site. This plan should be incorporated into Step Three: Prepare, Protect, and Manage along with a timeline for completion of the identified changes. Step Two: Plan and Organize Although Saint Paul has a richness of heritage and cultural resources — house museums, history and art museums, festivals, cultural events, artists' studios, ethnically diverse historic neighborhoods, themed tours, etc. — each is virtualiy working in a vacuum, developing programs, raising funds, recruiting volunteers, planning eve�ts, etc. Although the cultural — or arts — community appears to be both vocal and organized, the heritage community is not. Planning and organizing is the first step to address this situation. Sharing Resources Saint Paul's heritage attraction's staff and volunteers are expending energy to reinvent the wheel instead of sharing knowledge, resources and lessons Ieamed with each other. Heritage representatives attending a meetlng during the Preservation Development Initiative site visit noted that this was the first time they had met as a group to discuss common concerns, issues, and opportunities. There was agreement that a continuation of these meetings will be beneficial to ali participants. To build on these new partnerships, the following steps are recommended: • Develop a database of heritage resources and contacts. • Determine a reqular meetinq schedule and distribute to all representatives with an invitation to participate. • Identifv areas of common concems, issues, and opportunities to work together. • Develop a timeline using identified priorities. • Appoint committees to work on each agenda item. • Reoort back to the full committee and track accomplishments. To better share resources, attraction representatives should identify areas where they possess a particular expe�tise that could be shared with others. An educational session can be included in each meeting agenda. A site representative can make a presentation on how their site, neighborhood or evenf undertakes and implements the identified area. If no one on the committee is well versed in the topic, identify appropriate speakers or consuftants and recruit them to conduct the session. Educational sessions might include topics such as: • Workinq with the media — How to develop a press release, how to conduct an interview, how to generate publicity for your site or event. • Develooinq effective advertisina — Choosing the right images and the right words, ad placement, tracking results. • Recruitment of soonsors — How to identify and solicit sponsors for a special exhibit or event. • Grant writinq — Identifying fund sources and writing winning grants. � New tours — Researching historical information, creating an entertaining and educational tour and training tour guides. • Volunteer recruitment Where to look for volunteers, what to expect from volunteers, training and recruitment tips. • Identifvinq partners — How to approach potential partners — businesses, other attractions, other nonprofits — and build a successful partnership. (Note: See Appendix C: "Tips for Successful Partnerships") Creating a Voice By demonstrating to Saint Paul's elected officials, the CVB staff, loql media, and other stakeholders that heritage site representatives are woricing together, heritage sites will benefit in several ways: • Soeakinq with a unified voice — Just as the arts community has accomplished, the heritage f�d: 03-935 Heritage Tourism community wiil be abie to clearly communicate what is needed in City support and to convey the importance of preserving and promoting the city's heritage. Increasinq credibilitv—The saying "strength in numbers" will apply. Reaching consensus and speaking with one voice will result in recognition of the dedication of staff and volunteers who are caretakers of Saint Paul's heritage. Convevinq the messaqe — Heritage site representatives will be able to reach consensus among themselves aboutthe messagesthat should be conveyed to visitors about the city's heritage, making it easier for the CVB io promote the sites individually and collectively. Step Three: Prepare for Visitors, Protect and Manage Resources Focusing Attractions on the Visitor Saint Paul's heritage sites offer widely differing hours, days and months of operation. Only a few attractions are open daily, year- round. Many are open only during the summer and fall. Sti�l more request or require advance reservations to open a site. The following lists reveal these operational inconsistencies: Open daily, year-round, no appointment required: • Landmark Center • State Capitol • Saint Paul Public Library � Science Museum • Cathedral of Saint Paul Limited days/months, no appointment required: • Museum of American Art — Tues.-Sun., year-round • Children'sMuseum— daily, summer months; Tues: Sun., Sept: May • Carousel — daily, May 1- 25; Tues.-Sun., May 26- Sept. 3 • History Center — daily, July-Aug.; Tues-Sun, Sept.-June • Ramsey House — Fri-Sat, May-Dec. • Gammelgarden Museum — Fri-Sat, year-round • Gibbs Museum —Tues- Sun, May 1-Oct. 31 • GovernorsResidence— Fri., May-Aug. � Historic FoR Snelling — Sat-Sun, May, Sept., Oct.; Wed: Sun, Memorial Day- Labor Day • Air Guard Museum — Sat- Sun, April-mid-Sept.; 2" Sat., Oct-March • Kelley Farm — Sat: Sun., holidays, May, Sept., Oct.; Thurs-Mon., June-Aug. • Sibley Historic Site — Thurs-Mon., May 1-Oct. 31 • Twin City Model RR Museum — Tues-Sun., year-round • Farmer's Market—May- Oct. • Summit Brewing Company — Tues., Thurs., Sat. tours � Schubert Club and Museum of Musical Instruments — Man-Fri., yearvround • Jackson Street Roundhouse — Sat-Sun, yearvround Appointments Required/Requested: • Assumption Church • City HalUCourthouse • Sleeper House • Old Muskego Church • Saint Paul Public Library (for tours) • James Hill House • Dawn in History Tours • Minnesota Historical These differing schedules are problematic for several reasons: Visitor Trip Planninq — People travel with the intention of relaxing, enjoying themselves, seeing new areas and sites, and, particularly in the case of heritage travelers, learning something new. Ease of touring and sightseeing is essential. The frustration of trying to discem which sites are open — and the disappointment of finding that many are not — can cause a traveler to pick another vacation destination. Calling many sites to schedule tours, changing travel plans to visit on days when sites are open, and trying to piece together a tour from availabie sites will likely only irritate a potential visitor and perhaps result in the loss of a visit to Saint Paul. Partnerinq with Events — Saint Paul has more than two doze� festivals and special events annually, including the Winter Carnival in January, the Scottish Ramble in February, An Irish Celebration in March, the Festival of Nations in April or early May, Capital City Lights and the Festival of Trees in November and the 26 J. J. Hill House Heritage Tourism Capital New Year in December. These and other festivals and events attract large numbers of visitors. Because the majority of Saint Paul's heritage attractions are closed during these months, the opportunity for partnership marketing and packaging — and increasing visitation — is lost. Heritage attractions are encouraged to open during major events, such as the Winter Carnival, and to work with event organizers on joint ticket sales and promotions. Itineraries — Recent research of travel trends shows clearly that a simplified planning process is a critical requirement for consumers. Travelers are opting for shoRer trips, and weekend travel now accounts for half of all fips. As a result, consumers want to be able to quickly identiTy attractions and activities that relate to their area of interest. Suggested itineraries focusing on various themes make it easy for visitors to plan their visit. Research also shows that heritage travelers enjoy many different types of activities, so itineraries should include information on non-heritage activities, such as shopping, hiking in parks, or attending a theatrical performance. Promotional Difficulties — The lack of regular hours of operation makes it diffcult for the CVB to include heritage attractions in its promotions. For example, a promotion titled "Make a Night of It" includes eight hotels offering discount packages between November 15 and February 16. The Fun Pass is also included. Heritage attractions receive no benefit from this promotion because the majority of them are closed during these months, and none are included on the Fun Pass. (Note: See Appendix C: "Sample Itinerary') Providing Improved Visitor Services Attractions — heritage, culturel, and other types — draw visitors to Saint Paul. But it is the services they receive and the hospitality with which they are provided that will ensure that they go away satisfied and planning to retum. Saint Paul's tourism industry needs to make improvement of visitor services a priority. Saint Paul Visitor Center The CVB currently provides visitors with an Information Center Network, seven locations where visitors can stop at an information desk to ask questions and pick up brochures. However, a city the size of Saint Paul needs an official Visitor Center that provides a place for visitors to start planning what they will see and do. As stated in Tourism USA: Guidelines for Tourism Development, produced bythe University of Missouri — Columbia, Departme�t of Parks, Recreation and Tourism, "Tourist Information Centers are the most important visitor service facility in a community. They frequenUy provide the initial contact with tourists...and they have the opportunity and responsibility of creating the first impressions a tourist will perceive." It is essential that the Saint Paul Visitor Center be an impartial distributor of information. Although spaces may be made available for attractions to place displays for a fee, brochures, tickets and souvenir sales, etc. need to equally represent all attractions. A new position of Visitor Center Manager should be created through the CVB. The managerwill be responsible for running the center, hiring siaff, providing training, selecting merchandise, developing entertai�ment, and operating ticket sales and reservations programs. After reviewing many possible locations for a�sitor Center, the most advantageous appears to be the Landmark Center. The location would be ideal for severai reasons: • The building is owned by the county. • Minnesota Landmarks manages the building and takes care of all maintenance. � The building is centrally located downtown near major hotels. • The center is already attracting visitars to enjoy its programming and smali museums. • The current information area and gift shop, and the room directly below this space, ran be reconfigured for a Visitor Center. • The building houses an excellent cafe. To convert the Landmark Center space into a Visitor Center, the following components should be included: � Siqns — Starting at all major interstate exits into Saint Paul, signs should easily lead visitors to the Visitor Center. Signs will need to be placed at each entrence to the building and throughout the downtown area as well. A large sign over the information desk should cfearly state "Saint Paul Visitor Center." � Staff— Information specialists should be hired by the CVB 27 o3-S35 Heritage Tourism and receive thorough training on attractions, restaurants, hotels, and visitor services. Training should include visiting all of the city's attractions and being competent to give directions. Increased traffic to the Visitor Center will require more than one specialist on duty at any given time. A computerized system for storing and retrieving information will make it easy for the specialists to access information and receive regular updates on activities and events. • Hours of Operation — The Visitor Center should be open 7 days a week — from 9 a.m. (or earlier) until at least 5:30 (or later). Disolavs — Photographs, posters, artifact exhibits, and other displays should be designed to create an inviting appearance, but also to generate interest in visiting Saint Paul's attractions. An area should also be dedicated to a large calendar of events which can be changed weekly or monthly. • BrochureRacks—These should provide space for every attraction to be included at no cost and should be kept continuously stocked. • Introductorv Film — The room below the current information desk provides an ideal space for showing a film which will orient visitors to the city. Ticket Sales — A program should be developed for information specialists to sell tickets to area atfractions. Tickets could be discounted to encourage visitors to purchase them in advance. The Visitor Center can keep a small percentage of the ticket sale price for program administration and to support the upkeep of the Vsitor Center. Reservation Services — Information specialists can also book hotel and motel rooms or make reservations at local restaurants. This service will encourage visitors who may only be passing through the city to stay overnight, resulting in increased expenditures. As with ticket sales, a small percentage of the reservation price can go back to the Visitor Center operations. Gift Shop — The Center currently houses a gift shop that offers generic items such as jewelry, dolis, cards, toys and figurines, and a few items relating to the Landmark Center. Reorganizing the space will allow for sales of souvenirs that relate to Saint Paul's attractions. Souvenir sales can also support the Visitor Center operations and provide a small profit back to the attractions. Walkinq Tours — Some of Saint Paul's many guided walking tours could be encouraged to begin from the Visitor Center. While participants are waiting for the tour to begin, they will have the opportunity to leam about other things to see and do in Saint Paul, purchase tickets and souvenirs. Arts and Entertainment — The Landmark Center already does an outstanding job of programming special music and events at the Center. These can be supplemented with additional music, arts demonstrations, etc. to let visitors know about events in other parts of the city. For example, during the Artists Studio Open House Days in Lowertown, an artist could come to the Visitor Center to demonstrate his or her work and hand out flyers about the open house. Visitor Survevs — The Visitor Center is an excellent location to place surveys to gather information on visitor origin, length of stay, number in party, etc. The surveys can also reveal the effectiveness of signs leading into the city or satisfaction with accommodations or attractions that have already been visited. As stated in Tourism USA: Guidelines for Tourism Development. `Most visitors are strangers to the community and are unaware of the variety of attractions offered. Types of information that should be available to tourists should be classified for easy reference, and could include most of the following major categories: • Accommodations (hotels, motels, campgrounds, B&Bs) � Auto repair gareges f►�:3 Landmazk Center Heritage Tourism • Attractions — amusements � Children's services • Churches • Cultural attractions — museums, galleries, lectures, musical performances • Complaint referrals • Community events • Directional information • Emergency information • Foreign language interpreters � Health services and hospitals - Historical sites, places, and buildings • Maps • Parking • Parks and recreational places —tennis courts, swimming pools, golf courses, horseback riding stables • Restaurants—type, price range, reservation requirements, accessibility • Sightseeing services • Transportation Services • Walking tours Wayfinding Signs The comfort a visitor feels in a community is directly linked to the abilifij to find their way to attractions, shopping, restaurants, and accommodations. In the core area of Saint Paul — downtown and surrounding neighborhaods — signs are inconsistent and sometimes confusing. Different styles appear randomly, most likely representing different city administrations' attempts to address the need for signs. Current signs should be evaluated and addressed on four levels: Ci ide — A clear system of easily identifiable signs needs to be developed to lead visitors from one attraction or neighborhood to another. A unifying design or logo will make the signs easy for visitors to spot. The signs should be large enough to be noticed while driving. Attractions and Neiahborhoods — Signs should Gearly identify to the visitor that they have arrived at an attraction or are entering a historic neighborhood. Downtown Skyways— Much of the downtown is connected by skyways, but a first-time visitor has no knowledge of how to access the skyway or what will be found on the second stories. Signs need to be placed throughout the downtown to lead visitors to street-Ievei and skyway restaurants, shops, and attractions. Parkinq — Knowing where to park saves frustration for visitors who may not be sure what is acceptable and what is not. For example, following the parking signs at the State Capitol leads visitors past the building to a parking lot that is usually full. Parking is readily available in front of the capitol building, but it is not clearly marked for visitors. Additionally, nonworking meters are located at each spot, leading a visitor to try to place money in a meter that does not work, and perhaps worrying about being towed while touring the Capitol. This is just one example of the need for clearly marked parking at all attractions. Sign Program Example: Direction Philadelphia This sign program was designed to make Philadelphia more visitor fiendiy. The program provides directional signs, identifies attractions, and links neighborhoods and districts. Federal Highway Administration funds (through TEA-21) supported the fabrication and installation of some 250 signs. Maintenance costs are paid by participating institutions based on the number of times the institution is mentioned on the signs. A Program Descriptron and Graphic Standards Manual addresses management and adminisVation, financing strategy, policies and procedures, maintenance, and graphic standards. Direction Philadelphia was initiated by the Foundation for Architecture. Planning was funded by a grant from the William Penn Foundation. A steering committee of individuals and organizations with a stake in the program worked with the foundation and its consultants. (Information from Exploring America Through Its Cuiture, PresidenYs Committee on the Arts and Humanities, written by Bill Moskin and Sandy Guettler.) City Maps Another tool that is essential to a visitors experience is a map of the city and surrounding area that clearly identifies attractions, accommodations, shopping, restaurants, parks and other stops. Two maps are currently available for visitors: 1. The Saint Pau! Vacation Guide This guide includes two maps, one of downtown Saint Paul and one of the Greater Saint Paul area. These maps are fairly easy to read, and with the accompanying information in the guide, visifors can plan what sites they would like to see. The drawback is that this publication is not readily available at all of the places that tourists are likely to stop. Because it is a large (72 page) publication, printing costs would most likely prohibit printing in large enough quantities to provide one to each visitor. 29 03-�35 Heritage Tourism One-page Cify Map This map, an adaptation of the one in the Vacation Guide, is helpful if visitors just need to follow streets. There is a Iist of restaurants, accommodations, attractions, historic sites, museums, shopping, theaters and entertainment, and parks and recrea5on. However, there is no information about the attractions, and no indication is given of how these particular restaurants were selected for i�clusion or what type of food they serve, so a visitor would either have to have the Vacation Guide or site brochures for the map to be useful. Creating a New Map A new map should be created that provides street information, but also include brief information about the various attractions, types of food served at restaurants, etc. A pad or tear-off map could be printed with the map on one side and site information on the other. Pad or tear-off maps are generally inexpensive to print and easy to update. Space could also be left for a sponsor advertisement to help defray the cost of printing. The map pads should be printed in large quantities and distributed to locations throughout the city and surrounding area so that they are easily accessible by visitors. Developing the Product As one heritage site representative noted: "We have a good product, we just need to keep things dynamic." Saint Paul's heritage product— ranging from the Minnesota History Center and the Landmark Center to the Gangster Tours — offers a lively, entertaining, and educational experience for visitors. The addition of new product, primarily through enhanced interpretation and exhibits, will offer even more for visitors, resulting in longer stays and increased expenditures. Among the product development opportuni5es are: RiverfronE /nterpretive Heritage Treil As noted in The Culture and He�dage of Saint PauF. Faces and P/aces, produced by the Saint Paul CVB, Saint Paul has 29 miles of river shoreline — more than any other city along the Mississippi. There has also been a$15 million riverfront renovation of Harriet Island which makes the riverfront an inviting area for visitors to explore, have a picnic, or to enjoy the children's playground. Because the riverfront is where Saint Paul began, and because the infrastructure is in place through the extensive renovation, the setting lends itself to an Interpretive Heritage Trail. An excellent idea proposed for the Lowertown area is the development of a 3,000-foot-long History Wali which would tell the history of the area's development. Although this plan is currently on hold due to funding constraints, the construction of a History Wall would be a unique new product for the riverfront. Many cities are currently renovating their riverfronts and finding that they are very attractive to visitors. Saint PauYs riverfront offers tfie same opportunity. Product development here could include three components: Interpretive Sipns — A series of signs located strategically aiong the riverfront could tell the story of Saint Paul's settlement, notable dates, and interesting historical figures. Te�, photos, and copies of important documents can enliven the signs. Various designs are available for outdoor signs including covered kiosks to protect them from the weather. Historv Wall — The history wall should be pursued. An example of a History Wall is found at the Tennessee Bicentennial Capitoi Mall in Nashvilie. The 1,500-foot horizontal granite wall is engraved with important dates in Tennessee's history and quotes from famous Tennesseans about historical events. Tall vertical pylons mark each decade in the state's 200 years. Intemretive CenterNisitar Information Center/Gift Shoo — A small building could be constructed (or an existing one converted) for this use. The building should be staffed with employees who can give out information about the riverfront heritage walk. A gift shop could sell items related to the city's history and proceeds could help fund the operation of the center. The interpretive component could include introductory exhibits or a short film about Saint Paui's river history. The center should also provide information to help visitors plan to see other heritage attractions in the city. Potential funding sources for this development may be found fhrough the Scenic Byways Program (currently awaiting Congressional reauthorization before more grants are given) and the Federal Department of Transportation TEA-21 grant program. If Scenic Byways funds are pursued, the area will first have to apply for and be awarded designation as a National Scenic Byway. 30 Heritage Tourism Self-Guided Neighborhood and Downtown Walking and Driving Tours and Signs Self-guided walking and driving tours encourage visitors to explore and leam about the history of different areas of the city. Having visitors exploring neighborhoods and downtown is obviousiy acceptable to Saint Paul residents because of the large number of tour brochures that have been produced over the years. Brochures for nine tours were collected during the team visit including neighborhood tours for Historic Dayton's Bluff, Upper Swede Hollow, Third Street Neighborhood, Hamm Brewery Neighborhood, Swede Hollow, and Lowertown. Two downtown brochures have been developed: Downfown Saint Paul Architectu�e and Public Art and Tracing the Steps of Historic Saint Paul. There is also a brochure entitled, A River Heritage, Exploring Historic Sites and Districts in Saint Paul and Minneapolis. There are, however, several dilemmas presented by the brochures: • Most were printed in limited quantities. No consistency in distribution system accompanied their printing to make them readily available to visitors. • No marketing plans were developed to make visitors aware of the brochures' existence. • Many are out of print. Most were printed by one-time grant funds with no plans for reprinting when the original printing was depleted. The idea of providing self-guided tours is excellent and should be a coordinated and ongoing effort, perhaps as a partnership project of Historic Saint Paul and the Saint Paul CVB. Some points to consider in developing the tours include: • Conduct an assessment to detertnine which areas of the city need the tours. Which historic neighborhoods lend themselves to visitor exploration? • A unified desian far the self- guided tour brochures will let visitors know they have a series of choices of where they might want to explore. Tez� should include not only the history of houses or other buildings, but information on places to stop along the way — restaurants, shops, artists' studios, etc. — to encourage visitors to spend money as they 4our. • Funds to print sufficient quantities of brochures and to continue reprinting, must be available. • A distribution svstem should be developed that includes placing the brochures in the Visitor Center and other locations where visitors can find them. • A promotional plan — such as posters for the �sitor Center or inclusion on the CVB's website — will let visitors know the brochures are available. One publication that includes tours of all the neighborhoods and downtown could be produced and sold at a small price. The publication could be used by visitors while in town to guide them on the tours and would also become a souvenir of their visit to Saint Paul. Having one publication would also allow for an introductory section that discusses the arrival of various ethnic immigrant groups and their establishment of the neighborhoods that reflect their native cultures. The book might also include a section with information on the many ethnic festivals that are held annually to celebrate these cuitures. A system of interpre6ve signs could also be developed to place at the first stop on each neighborhood tour and at strategic locations in each area. The signs could provide information in addition to that in the brochures and could also be used by visitors who might not have found one of the publications. Guided Neighborhood TOU�S Thanks to Saint Paul's ethnically diverse and historic neighbofioods, heritage tourism opportunities exist beyond simply offering self-guided tours with the use of a brochure. The richness of the stories of settlement, struggle, and success of the various ethnic groups can be brought to life through guided tours. An agency, perhaps Historic Saint Paul, will need to be identified to develop and manage the tours. Tours through the Summit Avenue district are currently offered by the Minnesota Historical Society. Neighborhood tours could be 31 Historical Mazker 03 Heritage Tourism developed in other areas, however, such as Frogtown, Lowertown, East Side, and District DeI Sol. Tours could include the following: Ethnic Historv — Anecdotes and historical documentation can be woven together into an entertaining and educational presentation about the settlement of the ethnic group in a particular neighborhood — why they came to America, why they came to Saint Paul, stories of individuals and families and their struggles, contributions to the city's economic development, traditions that are maintained, etc. Demonstrations — A local artist who practices the art that is traditional to his or her culture, a choir that sings hymns from its country of origin, a housewife who prepares traditional ethnic foods, could add a highlight to a tour and provide real insight into the ethnic group's culture and heritage. Restaurants and Shops — Neighborhood "hangouts" can provide a memorable stop for an ethnic meal or to purchase a souvenir that represents the neighborhood and ethnic group. Both Chicago and Washington, D.C., have successfully developed neighborhood tours that attract visitors from the traditional core city attractions to explore and learn about the cities' diversity. (Note: See information on these tours in Appendix C taken from Share Your He�itage: Cultural Heritage Tourism Success Stories produced by the National Trust for Historic Preservation, Heritage Tourism Program.) Themed Tours The stories found in Saint Paul's history—and the city's built environment — can provide the foundation for developing tours based on specific themes. These themed tours allow visitors to target topics of specific interest and plan their visits accordingly. The tours can be made available through the CVB website, inclusion in the Vacation Guide, or simply as a one-page flyer that can be copied inexpensively. Far groups, a step-on guide can provide additional infortnation and enliven the tour. A series of themes with enticing titles could be developed. Topics might include Native Americans, building the railroad, artists, authors, and downtown architecture. For each theme the following considerations should be made: • Taraet Audience — Does the theme lend itself to families, children, and/or adults? Does the route require walking that might prohibit seniors from taking part? Are there accommodations for groups if motor coaches take the tour? • Route Selection — What is the easiest, most logical route for the tour? How much time will it take to drive or walk the route? Interoretation - Is it feasible to develop additional interpretation for the route if needed? Whatinterpretive methods will be useful — kiosks, audio tours, brochures? What are the interpretive messages that convey the theme? • Visitor Services — Are there adequate visitor services — restrooms, gas stations, restaurants — along the route? - Cost — If a visitor follows the theme tour route, how much will it cost to visit the recommended attractions? If the tour is promoted to tour operators, what is the cost per person for the tour? A good example of developing themed tours is found at the Lexington, Kentucky, CVB website, www.visitlex.com. The CVB developed themes for more than a dozen tours, such as antiques, bourbon distilleries, Civil War, covered bridges,fallfoliage,folk arts and crafts, gardens, churches, historic homes, horse farms, and more. They retained the services of a freelance writer to develop articles on each of the themes, which are then posted on their website under "Idea Guide" Each article includes historical stories on the topic, lists of places to visit and contacts and information on special events, festivals, and programs related to the topic. By placing the theme tours on the website, they can be accessed by visitors when they are planning their trips to Lexington. The tours can also be easily updated with new events or activities. (Note: See Appendix C: Developing a Themed Tour Itinerary.) Step Four: Marketing for Success Marketing Heritage Currently, the responsibility for marketing Saint Paul's heritage sites rests almost exclusively with the Saint Paul Convention and Visitors Bureau. The CVB has stated that inquiries to their office from potential visitors reveal a strong interest in the city's history. The CVB has also indicated a commitment to highlight Saint Paul's heritage sites and heritage areas, such as ethnic neighborhoods, in its marketing efforts. 32 Heritage Tourism The CVB has already taken the first step with the publication of, "The Culture and Heritage of Saint Paul: Faces and Places," an excellent sales piece that encourages tour operators and meeting planners to look at heritage-related opportunities for their clients. In order for the Saint Paul CVB to achieve the goal of promoting heritage, the city's heritage sites must wark together on identifying and implementing marketing opportunities. Just as the arts community has a cohesive marketing plan, so should the heritage community have a plan that incorporates the CVB's plans and additional promotions that the heritage sites can undertake themselves. Collectively, the heritage sites will become a strong partner for the CVB and will be able to take responsibility for some of their own marketing as well. Among the activities that heritage sites could undertake colledively are: Heritaqe Sites Brochure — Joint production of a brochure highlighting Saint Paui's heritage sites will benefit both the sites and the visitor. Many of the sites operate on limited budgets and cannot afford to print a brochure, orto print in enough quantity, and to have the piece distributed to area brochure racks. One brochure that includes ail of the city's heritage sites — photos, hours of operation, admission, etc. — and perhaps includes a discount on admission or gift shop purchases is a cost-effective marketing tool. For the visitor, the piece is a one-stop opportunity to leam about Saint Paul's many heritage sites. It was mentioned in meetings that Historic Saint Paul is considering a heritage brochure. A partnership would make this an even more cost- effective project. Promotionai Disolav— Sites can pool funds to purchase a pop-up display booth. The booth should have a backing that allows for images and teM to be attached with Velcro so that the design can be changed as needed.Each participating site can provide an image, and all of the images can then be reproduced in a similar manner, allowing for a professional dispiay. Road Show — Sites can take the display booth and brochures to specific locations — such as the nearest interstate welcome center or the Mall of America — at selected times (Tourism Week or during holidays). Site representatives can develop a schedule so that someone from one of the sites is staffing the booth on a regular basis, handing out infortnation, registering peopie for prizes, and encoureging visRation to the heritage sites. Frontline Staff Tours — A coupon can be developed and distributed to frontline service industry employees — hotels, restaurants, etc. —to provide free admission to empioyees whose job involves interacting with visitors. The admission could be offered at anytime or during a special open house at certain times ofthe year. Cooperative Advertising — Working with the CVB, heritage sites should identify target markets for Saint Paul. From these markets, select a venue (newspaperinseR, magazines, etc.) to produce advertisements promofing Saint Paul's heritage sites. The ad could contain general te� on Saint Paul's heritage with a prompt to telephone, e-mail, or write to request the heritage brochure. Or, if the ad space is large enough, sites could individually advertise. This type of purchase usually offers a significantly reduced rate. Either approach should include a mechanism for tracking success — more visitors to heritage sites. Seasonal Press Releases — A quarterly press release, sent to target markets, will infortn travelers about special events and new activities and programs at the heritage sites. Disfibution can be through e-mail to keep costs down, and the CVB can post the release on their website. Prize Packaoes — Create packages including admissions and gifts from heritage sites that can be utilized by nonprofits for fu�draisers or in exchange for promotion. Opportunities might include public television fundraisers or "Listen and Win" radio promotions that 33 03-935 Heritage Tourism could include interviews with site representatives. Aimort Exhibit — Contact the Minneapolis/Saint Paul Airport to determine exhibit policies. Request space near an information booth to place exhibits on heritage sites. The display should include photos, text, and the heritage sites brochure. Cross Traininq Proqram — Staff and volunteers who work at heritage sites generally have a love of history and can become excellent ambassadors for other sites. An evening event could be planned to acquaint personnel with other heritage attractions. A locaf hotel could provide a room and each of the attractions can set up a display and have staff available to provide information on their attraction. I �vitations should be sent to staff and personnel at all heritage and cultural sites. Refreshments, entertainment, and give- aways will add a festive atmosphere to the event. Branding Saint Paul A project is currently undenvay to "brand" Saint Paul for both residents and visitors. Branding a city is a major undertaking that requires the invoivement of p(ayers representing many different aspects of the community. Branding is more than just coming up with a theme for the city. It is a process of determining how a city sees itself and how it is to be presented to the outside worid. Once determined, this brand is integrated into every facet of how a city presents itself — whether to residents, potential new, commercial investors, federal funders, or visitors. The branding process is a critical component of how Saint Paul will promote itself to visitors. Even a quick look at Saint Paul shows a wide variety of assets that can be appealing to visitors — major spoRs teams, a multitude of attractions ranging from an art museum to the State Capitol to Mickey's Dining Car, restaurants, shopping (particularly the Mall of America), historic neighborhoods, stately architecture, ethnic and themed festivals, and much more. The challenge of branding is to encompass these many unique assets into a clear message that visitors can understand and to which they will respond. As stated previously, the major concern about this process as it is currently being undertaken is that the city's heritage is not being adequately represented in the decision-making process. As cultural heritage tourism developers have proven repeatedly in programs across the country, a community's cultural and heritage resources are what set it apart from any other community anywhere else. These resources represent what is distinctive and unique and, therefore, offer the marketing edge that communities like Saint Paul seek. Three recommendations are made regarding Saint Paul's branding: • Exoand the Task Force — The task force should be expanded to include representatives of Saint Paul's cultural and heritage organizations. • Remove the Participation Fee — An open process for discussi�g and determining a brand for Saint Paul should not require payment of a �y5,000 fee to participate. This fee should be removed, allowing others, particularly representatives of nonprofits, to participate. if this is not feasible, a complimentary position should be offered to a representative of the nonprofit sedor in Saint Paul. Chanqe the Timeline — The process of developing a brand should be put on hold until the City's cultural plan is developed and a heritage tourism plan is developed that is either a component or a complement to 4he cultural plan. Promote Off-Season Availability for Tour Groups and Conventions. Although many of the heritage and cultural sites in Saint Paul are closed during a portion of the year — particularly between October and April — site representatives who met with the team indicated a willingness to open their sites for groups. Tour operators and off-site event planners for conventions are always looking for a unique opportunity for their clients. The chance to have an entire historic site for the use of their group is very appealing. For the site, it is an opportunity to earn additional revenue, plan special programs, and showcase themselves. A satisfied tour operator or meeting planner can become a lucra6ve client for a cultural or heritage site, bringing repeat business because they know that the tour will be presented efficiently and that their clients will have a memorable occasion. Several steps are needed to develop off-season tours for cultural and heritage sites: 34 Heritage Tourism Inventorv — An inventory of all of Saint Paul's heritage and cultural sites should be conducted to determine who is willing and able to open for groups in the off-season. What kinds of programs can they offer? What additional or special activities can be offered to groups that they would not get on a regular tour, i.e. a special performance, coffee, and dessert? How much advance notice is needed? What is the price? Marketinq Materials—The Saint Paul CVB can incorporate this information into its group tour and convention publications. Simple flyers announcing the new tours or site availability can also be developed. Promotions —The CVB can conduct a direct mail or e-blast campaign to tour operators and convention planners announcing the new product. Additionally, the information should be distributed at trade shows and discussed during appointments at shows such as American Bus Association or National Tour Association. (Note: See Appendix C: Samp/e Inventory.) HotellMotel Information Books Frontline staff and concierges at Saint Paul's hotels and motels are often the first people visitors ask about what to see or do in the city. Making sure that they have the most current information on heritage sites, events, and programs wiil make them ambassadors for the sites. A hospitality training program is already in piace through the Saint Paul CVB to provide customer service training. To complement hospitality training and to make the city's information readily available, prepare information books for each hotel and motel. The books can include a page on each heritage site, including a photograph, te�R about the site, dates of special events, admission fees, directions, hours of operation, and a telephone number for more information. The CVB's telephone number should be placed on the front cover. The books should be updated once or twice a year to ensure accurate information. State Tourism Web Site The Minnesota Tourism Departrnent currently promotes Saint Paul and Minneapolis as one unit on their website. In order to create a better separate identify for Saint Paul, the department should be asked to separate the Twin Cities in website listings. Visitors to the website should be able to inquire about Saint Paul and get listings related to the city without having to sort through those in Minneapolis. Additionally, a request should be made to enhance the current text about Saint Paul to talk more about the city's heritage sites and resources. Conclusion: Enhancing Saint Paul's Heritage Theme As Saint Paul's heritage sites become more organized and more accessible for visitors, the Saint Paul CVB will be able place a greater emphasis on them in its promotions. The first step has already been taken with the pubiication of The Cu(ture and Heritage of Saint Paul: Faces and Places. The focus on both peop/e and places is an ezcellent strategy to bring the city's history to life. A sustained effort to raise the profile of Saint Paul's heritage resources should be represented in future marketing plans. Through advertising, media releases and tours, group tour and convention promotions, and other venues, Saint Paul will be recognized as a premier city for experiencing an important part of our country's heritage. 35 03-4 � 5 Conclusion Creating a preservation-based community and economic development ethic in Saint Paul should be relatively straightforward. In a city defined by its historic neighborhoods, dramatic vistas and monumental structures, grounding its development on conservation principals should be an easy "sell". Certainly, the philosophical basis for such a strategy exists in the Comprehensive Plan for the City of Saint Paul. That ethic can also be found at the grassroots, with impressive historic rehabilitation projecfs undeRaken in neighborhoods by community organizations. Historic preservation is not an esoteric discipiine in Saint Paul, but a widely held idea throughout the city. And yet, despite this appreciation of historic preservation and obvious examples of its economic value, historic structures and neighborhoods are too often sacrificed in anticipation of greater economic benefit. That willingness to sacrifice the long-term value of stable, attractive and affordable historic rteighborhoods and distinctive landmarks or vistas for short-term'benefiY undermines Saint Paul's long term potential. The observations and recommendations contained in the assessment report intend to reorient the City of Saint Paul, private developers and funders and community development organizations to the greater economic opportunities that historic preservation and a conservation approach can provide. Partnership Clearly, the breadth and volume of recommendations in this assessment report are too great for any one organization. Historic Saint Paul is a relatively young organization and is still developing its capacity. A successful preservation development strategy needs the cooperation and active paficipation of all sectors of the development community — public, for-profit and non-profit. Even those recommendations that seem to be solely the responsibility of the City of Saint Paul will require the support and advocacy of the private and non-profit partners to become realiry. Timing We should base community and economic development decisions on John Ruskin's quote, "When we build, let us think that we build for ever." For preservation development to be successful, all partners must take a long-view. While implementation should begin immediately, systemic economic and community development change occurs over decades, not months or years. Too often, ill- considered development projects occur according to a political calendar based on terms. With sufficient private and public policy support, decisions can be made in a larger conteM. Saint Paul has a strong planning office, as well as experienced planners and designers in private organizations. It should use that "in-house" talent to its advantage. NextSteps This assessment report is the beginning of the Preservation Development Initiative in Saint Paul. Once these observations and recommendations have been reviewed and discussed, historic Saint Paul and its partners should identify priority projects and assign responsibility for leadership. The Preservation Devefopment Initiatives office at the National Trust for Historic Preservation will work closely with Historic Saint Paul to determine which projects or programs should receive technical assistance associated with the PDI grant. We will also work together to identify National Trust assistance opportunities beyond the scope of the grant and in partnership with other organizations. Saint Paul offers the promise of a quality of life that is not available elsewhere in the Twin Cities area. Historic neighborhoods affordable to a wide spectrum of famiiies, a compact downtown with places to shop, work and live, beautiful scenic vistas of the river and surrounding bluffs — all of these things are possible. Through a balance of preservation, conservation and well-designed new development, Saint Paul can become the city of choice in the region. 36 o3-93S ` Appendices A. Recommendations & Implementation...A-1 B. Neighborhood Main Street...B-1 C. Heritage Tourism........C-i D. National Trust for Historic Preservation & Saint Paul's Preservation Development Initiatives Team...D-1 03 -� 35 Append'ur A: Summary of Recommendations & Implementation Partners 1. Preservation Infrastructure Lead Group(s) Comments Recommendarions 1.1. Rewrite Heritage Preservauon PED/f�C Base rewrite on Comprehensive Plan. Modernize Ordinance ordinance. Best if done with revision of zoning 1.2. Redraft design 13. Assure adeauate HPC staff 1.4. Strengthen HPC's planning role HPC Apply `user-friendly' format. Involve Historic Saint Paul, Desi Center, AIA and nei borhoods. PED/HPC Present HPC staffing needs to Mayor & Council with cleaz'ob ob�ecrives. PED/HPC Reorganization plan outlining HPC's planning 1.5. Refresh & broaden historic survey I PED/E�C I HSP, Ramsey Co. Historical Society, neighborhood data organizations, MHS collaborate on survey 1.6. I.D., target & evaluate key sites. PED/I3PC With HSP, AIA, PAM and neighborhood developm 1.7. Increase historic district designations 1.8. Statewide advocacy on tax credit & Main Sheet 1.9 Investigate creative incentives (state & local) and identify best tools 1.10. Promote preservation HPC I Supported by HSP, PAM and others. Work with SHPC to discuss criteria and outstanding issues PAM Work closely w/ Mayor's office. Organize coalirion of analysis of tools that address ,PAM, � Public process 2. Commercial Revitalizatiou Lead Group(s) Comments Recommendations 2.1. Conduct study of fmancing tools & HSP, Ciry Council Research, As recommended in the Saint Paul incentives HPC, Ca itol River Council Downtown Develo ment Strate 2.2. Designate downtown sites and districts HPC Re: Saint Paul Survey & Destgnation to su ort use of incentives Pro'ect 23. Identify historic building candidates for PED, HSP Look for demonstration project to conversion to housin encoura e ada tive use. 2.4. Develop citywide neighborhood Main PED, LISC, HSP & Continue to work on design on Street program neighborhood development citywide program in a collaborative or anizations rocess. Involve universities 2.5. Work w/ National Trust N'TCIC and PED, NTHP/NTCIC, LISC local Identify specific projects to include in others on using New Markets Tax Credits to Community Development next round of funding &om US increase local lendin Entities CDEs Treas CDFI Fund. A. I Append'u{ A: Summary of Recommendations & Implementation Paxtners 3. Neighborhood Lead Comments Preservation Group(s) Recommendarions 3.1. Develop preseroarion HSP, AIA, Involve neighborhood organizations as sponsors. Work tUrough schools education ro rams HPC and other ou s. 32. Designate addirional HPC As mentioned in other secfions, but targeted at neighborhoods. Especially historic districts West Side, Fro own and Selb 33. Designate conservauon HPC/PED Work w/ neighborhood groups where historic dishicts may not be an districts option Or use as way to `gently' encourage preseroation ethic. Consider incentives/ rotections to accom an desi ation. 3.4. Establish Center for HSP With support from LISC, PED, Council members, Design Center. Collaborarion 3.5. Establish lending pool HSP With City, Neighborhood Reinvestment, LISC, NTHP/PDI, fmancial institutions and azea foundations. Develop creative lending tools with reservation orientation. 3.6. Use secondary mazket HSP Working w/ NRC, NTHP & NHS of America. Leverage available loan funds for eater im act 3.7. Create preservation loan HPS/LISC W/coalition of private funders (realtors, fmancial institurions, etc.), to fund 'unprove mazketability of historic neighborhoods and enhancements not covered b other funds. 4. Downtown Lead Group(s) Comments Development Recommendations 4.1. Inventory historic and HPC, PED, SPRC Similar to recommendations above. Remember to also inventory older building in the CBD older, non-historic buildings that could use the 10% federal rehabilitation tax credit 4.2. Design an incentive PED Criteria should conform to and support goals from Comprehensive financing package Plan. Work through Mayor's Office on state and local incentives such as state historic tax credit & commercial properry taY freeze/abatement 43. Create a fagade PED, HSP HSP can become holder of easements that encourage preservation easement ro am and rovide talc deducrions for ro e develo ers. 4.4. Form National Register HPC As noted above, this is a most useful tool for contributing districts `back ound' buildin s to use incentives. 4.5 Gain public control of City/County Collaborate on eazly intervention when possible at point of sale or key properties when foreclosure. Package for redevelopment within the broader available deveLo ment oals. 4.6. Develop assessment PED/HPC w/ HSP Work w/ neighborhoods to create a system to evaluate historic, process for historic cultural and economic value for key properties. This creates an ro erties ob'ecrive feasibili rocess for rehab. 4.7. Address corninuing PED, LDC Continue to foster Lowertown development, as it may spin-off needs of Lowertown develo ment in ad'acent azeas. Focus on ke ro erties. A. Z o3•9s5 Appendix A: Summary of Recommendations & Implementation Partners 5. Heritage Tourism � Lead Group(s) � Comments 5.1. Develop Cultural CVB w/ support of This is the primary recommendarion for Heritage Tourism. A step- Heritage Tourism Plan for HSP, City & by step concept is outlined in the assessment report. Ensure that Saint Paul historic attractions heritage sites aze integal part of overall City tourism development o Assess the potential strategy and address unique issues faced by those attractions. o Plan & organize Include heritage site development and mazketing in tourism funding. o Prepaze for visitors o Protect & manage resources o Mazket heritage o Include heritage in the `branding' of Saint Paul o Enhance profile of Saint Paul's heritaee theme n. 3 03 - 9 3 5 Appendis B: Neighborhood Main Street :�I�i;� �'CREEfi �a�oa�a� r�usT 1�. HIS"[ORiC PR�SBRV�7'lON MEMORANDUM Date: June 25, 2003 To: Carol Carey, Esecutive Director, Historic Saint Paul Mac Nichols, Director, PreservaHon Development Initiative, National Trust From: Joshua Bloom, Senior Pragram Associate,National Main Street Center, National Trust Subject: Potential for citywidelmulti-district Main Street program in Saint Paul On April 22-23, 2003, Mac Nichols and I visited Saint Paul to explore opportunities for expanding the application of the Main Street revitalization model to more of the city's neighborhood commercial districts. While in Saint Paul, we shared additional information about how multi-district urban Main S�eet programs can be organized, managed and funded — and this memo fleshes out some of the ideas we discussed. The visit was organized in part to review the draft of the Preservation Development Initiative (PDI) report with key preservation partners. A chapter of that report focuses on the Main Street progrrm's current independent use in several Saint Paul neighborhoods. The chapter concludes with a recommendarion to start a centrally managed, multi-district, neighborhood Main Street program. We met with a cross-section Saint Paul's leaders in the fields of preservation, community development, and economic development. These included: Dan Bayers, Project Ma�ager, Dept. of Planning and Economic Development, City of Saint Paul Carol Cazey, Executive Director, Historic Saint Paul Douglas Copeland, Program Manager, District del Sol, Riverview Economic Development Association Amy Walker Filice, East Team Leader, Dep[. of Planning and Economic Development, City of Saint Paul Martha G. Fuller, Director, Dept. of Planning and Economic Development, City of Sain[ Paul Timothy J. Griffin, AIA, Director, Saint Paul on the Mississippi Design Center Douglas McRae, Director of Housing & Community Development, East Side Neighborhood Development Co. Stacey Miltett, Executive Director, Selby Area Community Development Co�poration Steve Peacock, Senior Program Officer, Local Initiatives Support Corporation Sara Reller, Project Manager, Selby Area Community Development Corporation Koberf Schreier, Director of Development, Dept. of Planning and Economic Deveiopment, City of Sainf Paul Lucy Thompson, Planner, Dept. of Planning and Economic Development, City of Saint Paul Mazshall Tumer, Ecoa Dev. Specialist, Dept. of Planning and Economic Development, Ciry of Saint Paul Background of commercial district revitalization work in Saint Paul Commercial district revitalization work is already happening in several of Saint Paul's neighborhoods. Some of these are employing the Main Street ApproachTM, a structure where a staffed, volunteer-driven, permanent management entity stunulates incremental unprovements in four broad areas of work: a 1 AppendiY B: Neighborhood Main Street Design projects improve buildings, storefronts, signs, public spaces, traffic and pazking funcrion, and visual merchandising. Design progra.ms may also include guidelines and regularions for better management of the districYs appearances. Promotion activiries help change perceptions of the dishict by building its identity and brand and by holding special events and retail events to attract visitors and shoppers. Economic restructuring exaruiues the districYs economy — both its businesses and customer base — to uncover opportunities for expansion. "ER" programs help strengthen existing businesses, recmit new businesses, and develop underused real estate. Organization, in Main Siseet lingo, means development of hmuazi and financial resources to accomplish revitalization. Organization also includes governance of the program, work planniug, membership, and intemaUextemal communications. Based on the PDI report, the challenge facing Saint PauPs neighborhood commercial dish is lack of resources and guidance rather than lack of plans. The PDI report notes revitalization work in progress in five Saint Paul neighborhoods. Briefly: o Lowertown: viewed as a successful, long-term, preservation-based revitalizarion effort with an"urban village" feei. o Payne Avenue — Arcade Street commercial districts: A CDC-based program which was part of the Nauonal Main Street Center and LISC sponsored "Neighborhood Main Street Initiarive" (NMSI). Payne Avenue continues to pursue a comprehensive program of work, but is threatened by loss of LISC and City operating support. o District del Sol (West Side): Another participant in NMSI, del Sol adheres fairly closely to the comprehensive Four Point ApproachTM but with emphasis on design improvements, mazketing, and crime prevention. o Selby Avenue: A dishict with revitalization potential as a convenience-oriented neighborhood commercial center. The local CDC has revitalization plans but no Main Street program exists at this time. o Seven Corners Gateway (West 7en Street): Some plans for revitalization exist (esp. for design changes), but they need to incorporate more work in promotion, economic restructuring and organization. No Main Street management program exists at this time. The PDI report observes that the listed neighborhoods without Main Street prograzvs could benefit from the modePs comprehensive management approach. And the report concludes that all of these neighborhoods would benefit from the guidance and funding that a citywide program could provide. At the local level, a neighborhood Main Street effort may be organized as an independent, 501(c)3 organizarion with a board, staff, and committees representing the four points. It may also be organized as a program of an existing organization (e.g., a CDC), with dedicated staff, a steering committee, and subcommittees representing the four points. For the first five yeazs or so, local urban Main Street programs typically rely on a blend of funds from the city, local merchants, residents, and local corporarions or institurions. Organizarional charts usually resemble one of these: a. 2 o3-�i35 Appendis B: Neighborhood Main Street Free-Standing Non-Profzt Program ti9ain Strt�t Bcr.ard Omanizatiem ( I P:omofiios ( � Iksien CAn1mi11aC Y..'Ommi14'C �9mmitU:(: Pca�:a[¢ IIircc:or f"ar,qaxeRtm�acuuix Cwnnri3&.-J Main Street in an Existing Organization P:vent Or_�ani�atitazi lio:+n3 c+C Directors L.sccutit-c Dira:an; A4ssin Stxe+:i SI�YZinc CommiRCn Pmmt3tum I}csiea Cam�aitlse Cmnmittee Frogeam Disector 4sorxisc� iiu�ncziesre Ccam�ixe Potential for a Main Street coordinating program Main Street "coordinating programs" — umbrella management entities — help local Main Street efforts succeed by providing financial resources, networks for leaniing, advocacy, and technical guidance. A coordinating entity may be housed in a private nonprofit corporation or within city government. Citywide coordinating programs aze based on a model developed at the statewide level over the past twenty-five years, with inodifications for an urban setting. Favorable conditions for establishing citywide program o The neighborhoods themselves: there's a great cluster of suitable, interested sites. o Genuine desire among city and private sector leaders to fmd a way to establish a citywide program, despite fmancial constraints. o City wants a more holistic, equitable approach to providing neighborhood commercial districts with resources. (It cannoUwill not fund Payne Avenue and del Sol forever.) o Talents and resources among several private entities present opportuniries for a unique partnership- based Main Street coordinating program. Current obstacles o Not much appetite for establishing a new city program in these lean, program-cutting times. o Existing Main Street districts (Payne Avenue and District del Sol NMSI programs) foresee threat to their resource pool if other neighborhoods establish Main Street programs. o City would like to get out of obligation/precedent it has set by funding two commercial corridor prob ams for their third year. o Housing is the current top city priority — not neighborhood commercial corridors. s. 3 Appendix B: Neighborhood Main Street o LISC has met resistance when courting funders for commercial corridor revitalizarion. Public or private coordinating program? A Main Street coordinating progrrm may be housed in city govemment, a dedicated private nonprofit, or an e�sting nonprofit agency. While examples of private nonprofit Main Street coordinating programs exist on the state level, none yet exists on a citywide level. The three operating examples of citywide Main Street coordinating programs — Boston, Baltimore, and Washington, DC — aze all housed in city government. A fact sheet attached to this memo contains short profiles of each of these prograzns, as well as the NMSI partnership between LISC and the Narional Tmst. In addition, Detroit is currently establishing a citywide progrrm, an initiative of the mayor's office. San Diego had an unusual ` joint venture" citywide prograzu (joinfly administered by a business unprovement district association and the city's office of planning and economic development), but the joint coordinaring strategy proved ineffecrive. Cleveland launched a citywide commercial corridor revitalization program out of a CDC umbrella group (an association of Cleveland CDCs), but only affiliated CDCs are eligible and the City of Cleveland is not a partner. Pros Ca� Public:£oordinaiin9Pf0�'8131 Msks^scoatttimtianvfcap � Cit� housed i� city departmer�t. + r��g ��""� �e�,�ees w aae �,. PNR��s ckt�etopment pmgsuns. auzt city- nun- scrviccs por.'�iWc. • Gi[}• ma �att tn: srrn as x > Lerer.�gts maae monex 5m# "leadei in n�uitalizatwn �taa srotuntr�sctFartaElhelt�itn'e( 6urcaucrs�ic�iriot - fmm mercl�ants, rt."�idents, t�ic. etumpm��cial). -3}sw cily d914ar4 toutr! � liarc4Cr W tcvtxa�ro prn�a0. stimuiasc e tr,rs! �cmcrs. *isourccs fo¢a cih �m`;sm. • 3Lim� he beCernse a�citt �tar faSl ro to pWitics �•v6ui eco�wmic devek+}tment c�ktrc � adminisiration.x �iiange. air;sdti t�iosg apent, • Trmxc#ers `ox�eten�hip o£ revitalizaiion elTon tmm aitv to Iaul laaders, xshile relaining citv invohrm.n[. + fiom�zlemcn�s a�.m�a s Imusing PmB�°ti tn (mrild sia6le �i Ft'NiiCE:{�.t70�Itid�iRg(1rogldli! ' Agilcannalentn:picncur�at. • C:micffixlivrl}�t�il's�tta:rc haused in eacisting or rsew ` cau k'��ca�e pmam nsaurccs- coocdd'nia�ion oeun� depa,mrtms privatenon�grofd. • ��syn:ccit�citc5im�cial aadinit�fi5v�(e.g��amm�a, �cury�sxt, if paliiicaih� faa=cxa6le. econamis desrlopmcnt, artd ciiv • Caa fte�c pastnen33ips:mtong scrt�i�es) seaeratum�nizvionsA,\"Dcin� • �ta��lxcomennanciati}� Bua�s Icca! �n��nzrskip of unstabk if fund�KS pa11 bx�, x m�ilaiiaieon ciTont- I Iattf W launeh in ]can [imes. • Cs bz an irnt�rrtden� adtncau: • hia�� come up a�ainu diffi,. fprci[}'saeiahlfathpa3 pa[iti�ldilCo�¢c��iihciar businessdKirices. �inis7rafion. Who could provide what in Saint Paul? Saint Paul has an rich set of potenrial partners that could play a role in a Main Street coordinating program. o The City's Department of Planning and Economic Development is eager to help expand Main Street revitalization in Saint Paul. s. 4 03-435 Appendix B: Neighborhood Main Street o Historic Saint Paul is poised to assist in the establishment of a Main Street coordinating program — inside or outside city government. o Several private organizations could serve as potenrial host of the coordinaring program (e.g., Historic Saint Paul or the Saint Paul on the Mississippi Design Center). And, once a coordinating program is established, the Design Center potenrially could provide azchitectural and planning services to local distaicts, lessening the need for staff azchitects at the coordinating program. Ci vide LocaiC {in each nei hborhdod] Pre�launch ' Pubiic:t} Recunn:iissance4i5i[s (nfvm�atiwt s.��ar.ons App]icatipn prodvctiun. + ct�rtlinafinn � + 5iu; �i�clian • Co r.meba.�ddaice�uimunc Year 1 start-up services to Q��n:��?' din:qor metfines + AssisL�uce ttith s�ffhirint n0ighb0i'ho0d5 ° °n`1aiuStrec330t"training • Re.wurccic� n�urksM1ops For stai'f and + 1;`orl: pSsu �Icwelsapment rolssnt�is Arciaikswrn( sutiiets fnr Ch�ei�r guidelinas mat tircdin�rncr ` buiidins �nd pubPic �acr n:ra,�rs. n>visiom' imjrmsrrrwnss + Ywr�s;nd reuicw�� Year2seruicesto • (tu:trtcrt�3rrcckarau�etines + �tariu�tanalysis IiBighb0l'h80d5 ' rraini�m}.orks�ZO}7s(topi:; • ArchiWCiumtsenic45" �cific) * \1'otk pkan assis�anx • Ntazkaiin5�otr�ms. • T�yie-sge:cifia�robliYn-sc''Win$ • �Wt�caa•.anaivaisc+fcitv t��cl+si�it v�canom�c d�;velopmen, anrt Yu�+:nd rev�e�.� La�aeim2 licies �(20f 3 50CYiCES [O ' Q�ictl}�dimridrmi;Ctinr.s • Arc.Ritceturs! <en�ipx* ti8ighborhood8 " 1'rxini�4ra:kshops Te�-nc-speciiictscl�vixii + Plae frn bcai Yracana rc.�icrr rcsv�,rswcsdurcesfoa..tSID�) • T�ansitionalan�is:anccutotscr • ktarkGing�av� funt3iugscar.cs > Add euw hlain Strect dtsteicis2 f �c:.dart serrices t�2lc) YCa�458NiC8Sf0 • QusHCricdimaarrm�ain�. :im.3aizeewralsen�ceu�." nQigh6orhoods ' 7'r�ini�m w�sk.sLa�xe • Tupic-spccific uxh v'rsit P3M 3'ar a��staSazab4c kmal � Yc�-and msi`s. n.w.�zaue scwrces {c.g., QIDe} Transivan;d zssieanu �c a3m:x Swxiisv,t souttz:s * t4:n- I�e: providcd �ry ilaa Sair<! Paul on ihc �lississippe Iks¢3n CcaG:r. Rough costs of a cityv�ide program Coordinating program sta3F T 1: Approx. S:SOFDO Eit}'+��;� courcfinnior $I Il�.ilSiQ (u�t;rinvc) ,limin�sUative assistam 560.�h1 iu'! f�i�tccJ .'vmtnteci $%U.17iJ45 i�+F fnn.*c) Substt�utmi �v:ars: S33R.ObWycsr. depcnding on �pxnsio¢ rntc, iaflntttm, etc. Cihe�,�a: ctbr. S211.°.dW�7 A.csi.stant coc;cclma,ar $SfU,f?CK� :�2miniVmina.?rsisfant S50,CA{? �r�itCrct �SQ� s. 5 Append'u� B: Neighborhood Main Street Fina�ccial resources {cash) fr� t6e cflnrdinaGng program to neighbw9ioods 3ppmzGnc Appraztofak Approsecnta{s itm�s slistrict {orfi�edislritks l`ear 1 Di�etilar��ary"suPiron $�,000 $SS,f#72) S'_Ti,tt� t'a4ade'vngmrement im^enti.�cs $[D,139fi Frouri�tiontnt3cketing S3,U�0 I^ieaibh'.:anSnRin reswmc�s �Z.IXYiI Year 2 11imCWrS913a4'SUj3ptUSt $-{4.IXH} $IOi.?iKl �5?7.*913 A �uninist�lire sssisLUft xippt�rt 32�.�5 ��pdc imprattientci�t inanlitros $�4,IX3Q PrtxnWicarin�a�keting S3.G00 l�k.�ihk:oueultinx ^sc.cci� $?.JfJ9 1`car 3 Dimcyor satasy su�o.t �O,C-0£t SS�.Q00 S1?S,DQC3 ,'idministratii�ea53isL�nisuppvrt $13.Df� t' . a im rove�npri inarntives S.lQ.iN7() Yesr 3 as�u,��, �u�,non sz;,c�o s��,rwwc� s?s:,c�o AdwittiStctRw assisiani suppprt $I? {� �: � i mn:merst i�uxmi�ws Egp.00� rox_tgtal.rash{" t�aptg`y StJ1L3Up Consa�ing services from the caordinating program to the neigh6ofioads Approx. cosis per Apprax. tnt�Is, fise disfrict ttistricts Prc-laoach Rec'�nnaiaSn+xc vcsits $�.4f3t1 $25.U417 $itc SClettion Pear7 TzaininewnPasi�ops S25,iHif 512i.tiC�Q R4:source team �i�o�#; Ft� dc��ctapment Y��nenl review Year 2 Traininsasoksfin¢.e $±4,U47p $Ii6.iN10 �iarkctanal1�sis i4o�d: {+tsi assi5tanu "3'eCh visi2 Yearv�.�sd nw'imi !'ear 3 Tcdtvisita(2) SS�.IXl9 5??.tkitl }'car-�ed msiex� Ycar 3 Tc�cli v uitl �21 S SS.r7f10 $i5 {�00 Yeao-c, d mvi�� A�fICUZ. t0�3I5.� CORS[k�YIlM SCtVEC(.5 S-I�I`i.C�} Sources of funds Revitalization resources must come from a blend of the public and private sectors. The city must be a financial partner in the effort — whether or not the program is housed in a city department If the program is publicly run, the city can leverage private resources by raising corporate and foundafion support and channeling it through an existing city or community foundarion. T'he city can also leverage private monies for local distdcts by uutiating e. 6 03-9�5 Appendis B: Neighbarhood Main Street "corporate buddy" relationships between Saint Paul-based corporarions and local Main Street programs. Sources of support may include any combinarion of the following: Cit WidB LOCaI • Cii•, ��za:�:r<t1 !'unds + Cit� 3'usitiim� • C'or��oratepar[rit�rs • �le:c,ia,titeeniribu�i{�a�s � Cit�-aas�:3 e��imunet� nr t;inailti • Resr3er=t ca3��ri6�3tit>>u ioiart�l�tiorrs • Cor�ler<.te�>srtr.cr + 3.ac.rl a<3€es rax • l.r.z cammu7itt or famits 1'oai�i;�:�e+crr,s • ��•:elo�a�nc=rt 2�t�aca :�zti • Busasa�s� (jr�prai:i�;ei�t Uas�rict (13It�} � 1a� �ncr:rn�ait 1�ir�anc3rs� c�isirael 4TIT) Next steps The first steps toward establishing a Main Street coordinating program in Saint Paul have akeady been taken as part of the PDI assessment and as part of the organizing that took place for this visit. If the city and local leaders decide to proceed, the National Main Street Center can help guide the program's establishment, based on our experience with other urban, multi-dishict coordinating programs. We can offer telephone guidance on a pro- bono basis and on-site work on a fee basis. Here are some logical next steps: o Meet with the director of Planning and Economic Development to discuss strategy. o Establish a formal advisory committee to guide development of a coordinating program. o Establish contact with Stephanie Redman, program manager for technical services, at the National Main Street Center: Stephanie_Redman@nthp.org; (202) 588-6245. o Hold informal meetings with Saint Paul foundations and potential corporate partners to shaze information about Main Street and "take the temperature" of their likely interest. o Assess feasibility of city deparhnent-based program or private nonprofit-based program; consider feasibility of "Twin Cities" coordinating program (private nonprofit). o If level of support warrants, have the advisory committee map out timelines and budgets; follow up with National Main Street Center. e. 7 Appendis B: Neighborhood Main Street MAI?d STREET 1`dATIONAL TRUST yKFIIST9RTC PRESE�IA'iT42# Urban Main Street Successes Since the mid-1980's, the National Main Street Center has been closely involved with commercial dishict revitalization in a variety of urban settings. These include urban downtowns and neighborhood commercial districts. The following highlights our most significant historical and current involvement with urban Main Street programs. Urban Demonstration Project, 1985 to 1998 Having experienced great success in downtown revitalization in communities under 50,000 in population, the NMSC established a pilot Urban Demonstration Program in partnership with the Economic Development Adminisharion and the National Endowment for the Arts. This Yhree-year demonsiration program tested and refined the Main Street approach in eight varied urban business districts. These distdcts included four downtowns in mid- sized cities (Dubuque, Iowa; Cheyenne, Wyoming; Knoxville, Tennessee; and Joliet, Illinois; a1150,000 to 250,000 population) and neighborhood business distdcts in four cities across the country (Albuquerque, New Me�co; Boston, Massachusetts; Chicago, Illinois; and Pittsburgh, Pennsylvania). "By restoring the buildings, attrecting small businesses and promoting the area as the unique shopping experience that it could be, the merchants, the residents, and our organization embarked on a program that ultimately became a National Trust Main Streef [program} and a tremendous success" — Arthur Ziegler, Pitfsburgh History and Landmarks Foundation about East Carson Street Main Street Each demonstrarion site received technical assistance from the National Main Street Center in all four points of the Main Sireet Approach. Local programs were established and operated for three years; many have continued to this day. Cumularively, the Urban Demonstration Project participants achieved significant change in their commercial districts: $100,313,650 invested in the districts, 635 building rehabilitations, and 1700 jobs created (net). The successes and lessons learned during the demonstration program allowed the Center to understand that, with some modifications to the traditional approach, Main Street could and would work quite well in urban areas. Based on this demonstration program, the National Main Street Center achieved a solid foundation for its work in urban areas, work that has grown and expanded over the last decade as an increasing number of urban areas have become interested in commercial district revitalization. Boston, Massachusetts, 1995 to present Working closely with the City of Boston and Mayor Thomas Menino, the Main Street B��AII Center worked to establish a model city-wide Main Street program in 1995. Analogous to a �� state-wide Main Street program, Boston Main Streets offers a variety of Main Street .��YCOtS �� uaining and technical assistance to the city's neighborhood commercial dis�icts. "�'d�" Beginning with five neighborhoods, Boston Main Streets and the NMSC now work with twenty-one neighborhoods, inciuding Roslindale Village, an Urban Demonstration site. The NMSC was initially involved in desio ing the structure, scope, and design of the city's Main Street program. We have �:1 d3-535 Appendis B: Neighborhood Main Street continually provided technical assistance to the city prograzn and to the Main Street neighborhoods since the program's inception. Boston MainStreets neighborhoods' results have been unpressive. From 1995 through December of 2001, neighborhood Main Street programs have generated the following: • 386 Net New Businesses • 2,761NetNew Jobs • 81,680 Volunteer Hours Invested • 217 Businesses Storefront Improvement Projects • 427 Businesses Received Design Assistance •$638, 797 in BMS Physical Improvemen[ Grants •$1,904,897 in Private Inveshnent Leveraged by Grants {� }��:� �Z�1 r ��'"-� --�� ,,, `---�+""'� �Fei�hbarhoad �1ainStceet Tiutiadt�c The Neighborhood Main Street Initiative, 1996 to 2000. °One ci thz firsi ihings .ve :iid �ras �st alt o; our ei�ct�d cf�iena9s tti sian a�iocur:�;�t f:�at ceciare� ;,ur agrs�r?�nt en hoti� ta uparads ihw area by �rs� addressing tite ne�d ics im�.�ve onr stre-�3 anti sidea,�lk in(Ya�isU�tufe a�d �3tem imr�rcvinc� t's?e a;�a's translt i+nks. C3r� t°a� �i� t�t�t, YY�� g�Ge a�sa€trnen� ste�r��! i;� and dealt ��eith tne n�s�h�,arh�o�'s �rug c#eati;�� anfl pros�itu�ian :�,CbI�S. 3€7d 1+Oitirit��C5 Staif� sh�laing Up Yo hei� nu1 rvi�h c3�:aning St�r�er�ants �rs� stree�s_" - Staeita Gro�re_ L�irectar ;niasfsrn�tnn Gate�v�y r�ai�a 5dr�et In close partnership with the Local Initiatives Support Corporation, the Main Street Center entered into a four- year demonstration program to establish Main Street programs in existing community development corporations (CDCs). As CDCs successfully established housing development programs to stabilize neighborhoods, many realized that new residents wanted to access to retail and commercial services in their neighborhoods. Seeing this need, the NMSC and LISC selected six neighborhoods to participate in a demonstration program designed to detemune if Main Street would work in a CDC environment and what changes would be necessary to adapt to that environment. Selected neighborhoods in Lansing, MI; Philadelphia, PA; Providence, RI; Oakland, CA; Richmond, VA; and Tacoma, WA received teehnical assistance from the NMSC. The demonsiration concluded successfully in April, 2000. Local results in business development, reduction of crune (real and perceived), promotional activities, and physical improvements have transformed these districts into vital neighborhood centers. Each district achieved, on average, investment of $4.6 million, a net gain of 16 new businesses unprove the commercial corridor. Five maintain active Main Street programs. Following the success of the demonstration sites, the Neighborhood Main Street Initiative has been expanded to serve additional neighborhoods across the country, including those in Cleveland, Toledo, Grand Rapids, Los Angeles, St. Paul, and others. a. 9 APpendiY B: Neighborhood Main Street Baltimore, Maryland, 1999 to present Beginning in 1999, the Main Street Center began working with the City of Baltimore and State of Maryland to structure a city-wide Main Street program for Baltimore. Working with a public-private advisory committee, the NMSC gathered input from a wide variety of public and private individuals and organizations and formulated recommendations regazding the services, cost, location, timeline, and expected results of a Baltimore Main Sffeet program. Based on the Center's recommendations, Mayor Thomas O'Malley established the Baltimore Main Streets program in 2000. Currently, seven dishicts are participating, ranging from popular Federal Hill and Hampden to economically chattenged Monument Village which is located in an Empowerment Zone. The Center has worked closely with each dishict to establish successful programs and provide strategic guidance to their revitalization efforts. From October 2000 to Apri12001 — six short months — Baltimore Main Streets dishicts unplemented 75 building renovations, a net gain of 33 new businesses and 33 new jobs, and tallied 4,222 volunteer hours devoted to unproving these seven commercial districts. The program has overseen $11 million in private investment —$29 in private investment for every $1 of the city's d'uect support of neighborhood programs. The District of Columbia, 2001 to present In order to meet Mayor Williams's goal of revitalizing neighborhoods, �eST�RE DC the Dish of Columbia formally launched its Main Street program in � February, 2002. The National Main Street Center worked closely with the D{" �`1:11\ S"I'KrE"I`S ! Office of the Deputy Mayor for Planning and Economic Development to identify the full range of commercial distdct revitalizarion needs in Washington, D.C., and to design ReStore DC, a program that will meet those needs. The hallmazk of the ReStore DC program is DC MainStreets, and five very diverse neighborhood commercial disiricts were selected in May 2002 to receive a comprehensive set of tecluucal and financial assistance to help them establish Main Street programs and to address specific issues in their commercial districts. Seven additional dishicts were selected to participate in May, 2003. The Main Street Center is a close partner with DC Main Streets and each participating dishict. B. 10 v3�935 Appendix C: Heritage Tourism Partnership Tips Prirrciple I: Collabarat�or7 H��DOL'P: Tips for Successful Partnerships 1) Gei To Knaw Each Othei-. Parmerships eron� bea on afv�m gqunct ef mnival knorvted;c a��A undersrzuidmg Leam ab�ut tl�e values. pnaritisr and 6mitat�nus of potenUal parirtaa and �zrn 4irni how tl�oy will beocfitfrom cotlabarstion 2} <l�taintaiia Open Com�nunicatlan. ESteCi�ii and inaintsui opeir linesofcamnrunienlion bettvicen k��y ca�tacts sc each putner ui�ani;sition_ 'I'f�is is essentiai, particularly t'ar p:vmerihipa c�roi�u�� oP orgwivation: with no h�sCOry �C coapetat3on. 3) Srea#: iVe�w Grnund .ind Old Habits. Rca:.h om to new and unlikely coilnbnrataro. EfFectiix paslnerlrips nill acknowiedge and overcoma 3ereunVz.c �ieve3ap nc�a hat��tx of coapuati�n, and airh nnrealistic expectatioi�s. 4) Share Decitiion?13aking. Share t}te decision m�in,n, authoritv and respansbility ec�iitably with tire pzrticipatiq9 Ru�iners. AII panne�s miist feel weicoma and beiieve thet their cantributions uc uulued. 5) Sl�are Responsibility & Costs. Rarinars need to be clear ahaut whaz [hey c2n conmbutt te� any pra�ect, x�hcther �t is Ume. rrtaney, or mi7uence Detine Uie ralcs and respons�biluies af partner up front G} C�et it in �4riting .� �xri[�en agreement prQeidzs a refereuce panit for n�i�at ead2 p�t��er agreed m de. �Ac timetme. costs. and oUeer fa�tars. 7) �i'ork Toward Shared Goals. Parmuships r:lc�uld ba baseU aromid>hared suais tltat rei7e� tlie mumal �alf interesL uC tl�e partic�pazine argamzations. Se aware thut rhe m issians af offier parmer orgamzazuros ciiffer $om }'our rnr�n, and undmstarad the poteoUal con�et�uencc �artner_tup's ackons for each aY Uie pmmeis. 8) Bc Realistic. I:twn uttat }�nur pa�iners c� aftird to contnt�ute tn'partnsT��p projzus, buth in �cmis ol'time. raonct� =md ctlicc resource�—and I:nan �iiiat sdditionni r�mi�ces are nva0able fr�m outaide :oiircc� c. 1 Appendiar C: Heritage Tourism Partnership Tips 9} [dentify Lcadcrship. Une ora.inriasian ar uadieidi�;�t naai< t�r take on a Ie:��fe�Jup ristc to siuYain thc y�nrnu�rhtp 1 R�der mu>t 3m[ abu;c the Ieadevnh��i pasiuo�a ta 3iarx�acd an iodiridi3�t a�r.da 10) Secure CommitmenE For ilie Long Terzn. S1u.t part�iarship> he�in r+ith a nuh oCenth�i,i�.�nt Lune-terns partnership>. leke am <tro�ig rc;auozt=Inp. r�a{uire �,nucirec. i7exdbilit}�_ inelusnenesx respcet fardi�itrenusaid a �i dGneness te;kccept leadirship mlc�s ane? � ctrsr uncter.,tandi�ae 's[cn�i tiia rtn� hccinninz about ro3c� and r.;pe�n.ibilints. 11) Allotv Timc for Results Ga[hca�g a rotmni#ex wifh dncr>c sni�sestc m.ans �t zvill ttil:e ¢ime to rwc]a eoa4��sui, ha�r rrcn farr �iAs� c�lTtrtt platts_ ntat�.�ials_ ctc_ 13) 1'lan ft�r thc Fu#nre. S?ron_ panurssl�i��s ptan 12u the tuturr Nr �J�nmfi ing mutval gaeis and targcu� tii:: human .md Gnaiiciul rc_ uureen rcquired te> arloie�a the+e goals_ !3) Cetebrate Snccesses aiong the Wap. I ui:c d�r timc to.:�?rlmi[c U�r succasslid cotu�leEion aPsmallcr prq�ccEC alcnv^ c;ic i+a} Li order it� r:iaunain tlir ciathusrasm Ib�� ilie k,n� temi gnal. oi the F,ttruicrship. � � NskW:Wlcb a5nu(vmlfic aR�a:zo [.� rc wa• �a �m: ��uo�=I tnaoo��m� m, m� \nz � .ai�,o.�:� Rms-d br:ta�eml i�s.sl i'ar H�nu�c Pr.:u.�aroo Nmxab� Tanzm Nrn�ram C. 2 c�3-93 S Append'uc C: Heritage Tourism Partnership Tips Example: Two-Day St. Paul Heritage Tour Itinerary (Dlote: The tour is provided as an example of how a visitor might spend rivo days exploring St. PauPs heritage. It assumes that a Visitor Center has been established and that all sites aze open for tours.) Dav One 9:00 a.m. 10:15 a.m. 1230 p.m. 2:00 p.m. Visitor Center Watch introductory film, get maps and brochures for itinerary, take a self-guided tour of the Landmazk Center Minnesota History Center Museum Tour e�ibits Lunch — Mickey's Dining Car James J. Hill House Tour historic house museum 3:30 p.m. Lowertown Take a guided [our of the neighborhood, visit an artisYs studio, conclude at Farmer's Mazket 5:00 p.m. 6:00 p.m. 7:30 p.m. Dav Two 9:00 a.m. 11:00 a.m. 12:15 p.m. 1:45 p.m. 3:00 p.m. 5:00 p.m. Free Time Dinner — Restaurant of Choice Great American Aistory Theater Enjoy performance Gibbs Museum of Pioneer and Dakotah Life Tour historic site, watch demons4ations Minnesota State Capitol Tour capitol Lunch — Picnic on Riverfront Tour Riverfront Heritage Trail Gangster Tour Jackson Roundhouse Museum Tour museum, take a caboose ride Free Evening Shopping, dinner, ballgame c. 3 Appendis C: Heritage Tourism Neighborhood Tours CULTURAL M{�SAtC: ��--��a�KC�oa ��u�s �� >�r��: u�rmi��"��Saa�rmrmu a�'t�Bfiial;jS�iu�s �: rNL� - i,u1(F,rertxtK'�ilt+terr. - C�r'x:�yro cm�uu"ty mt�. �rnta+thrrat' _ ,- ttr�dc�n�s ojL�iraga %R`ti� ur t7na�9. %7eri�ureatlsimLYuU:ga :- �uet�nx+tt�uda(ameiltrot'lxtaLii `xtiGft]�N v �7.� � R2o:��s`r:ah3!�' F?��u`.yr. ;�ur,z �m fi�hyVu t_aar. Sae,� .?x`u`x:+:�m'r .r .V:h ::.S. ,. ;�.-ry , >-rr :.ti'�s�Ei:S .e da,�a :Ite ,�te rc;�Q;.: tmra�av�v�:� C. 4 -sa�;�.:�m:�,ix ;:.,.^vze•r.'=; i'.'.fi.F?(.u.R��"::�.��:yM��:.a:rl e�nFY.a E'�i4-i'Y$�! .`HY•33 '�,-'Y .i v.-;.: ��:i^-'"�i 1 mrs�i3.x . .. 03-935 Appendiac C: Heritage Tourism Neighborhood Tours �E: )'l A! tiN "i,iYP.(iF.?ll 513(jP i�iP �� dF 1'4t� iIl C�liCdgR+i �Lt5GiI1�.�xA41iPl� f�ittiG'I.I�iR,4 f�.4V S�iY(� Xt" 1�1Y �LitS iyA:�'.ilta �i:KF 57�,se i):nr aad ut tht. an9dternm a�+d nrtivim th.a mr�e th'sa;.,v nnr c¢ �Rsr+�lds inr t r.t,�rzingr,vcs. p cv.is a i�n Ect;�l sul6.rr�t wel`_ itu; �c alv 6Ter.r�,hat �R oif 6�e+au;�l rra��x ru�sr. x« �tx div�nmx or s;+rc.ite radttc�d tr:.l.+we-� �rrosc :kan 70 a'=;rrne;�iflx.u[�<;��ttis;�ix4 h�vmlyraeie irrr.,,vrcni�c9 d3e,YOtki ao�i �hnii ��s:ea�ants 3ixd kept a)@,u a kvkalcsr��eni :h�aw nuat� a� n;kiEra3 tr�c�lt;nnsihnt nu�ka{:lisxgo �•eo �3� �6a;nanisi�. I..aivx t,tia,�rvi crantcai [o haEststhersget ta kikum� t#tc�sc'akus".�cic,�, s <ts [E�i?-c(i�x��toa�f Czmzii�man� Cu3;iaaS L4��np�nenC Cor daeGt}'a �Jc�anme+�to(Criilsirai R(€.��s {p( 4J. f;urm,fn t�t;� r�� irrth zr,r�.zarain�s cf s:��i�es �f ssnaii, nan}rrc�'�? azts aada�l�ar' �r�;iivad;�rnxatte�rd ihn�i�ghe�t d�e ir'x cih�ic:c�isrcc.7h�rah:im's �;,.als oipms�nie.ga!�ii �,eseung u'�cse unir�a(�E hcsita�,`es v31�r i,;un;xr�d hr luaneti �u�n ui3c(p�r> Car�aaan uid hermliea� rc�aogr='v.eci t3ie ir,apanar.rrotshari�ig die.vfez.�al �hx� o�ii2esem�w�irbomt�culsinnrdcrta�rt�v3a�emrsa�?<Ibn:lgey�tys.let �is�saaourists,a�xrrumr(}�icag�r�i�E;nittis�.c cohe. uansxmnhhes� romnimkces � r r,�prtiensne.�t,rnzuzing�}nr;� the conimonfp munti.aea�. (anunstta,x�ror,r tfic;+r> e,�ohatio�n�,w:. ihm alt [!;e iz� kr�.n ne�a.l?Forheais in t"�ic,�,<r ii�w.^n.:�1 tl�ra�me �marotior,.d �ea;s:�e��t atoisltx! ta �tie n;�,�r :anav{ area=.'th�:� irantc�,' io!ird ��mi [o k�a�t:�c Fbil>?r cut��a7 a:[r�ctrorrs ci �u� c t;ien�'.1�' F,s{;i.?�n�2 t ti3 tm� r.�c x+xe.v :t.,°� tt@oY' n.v;} S! S� a z�. v�n. ifi'NC C�3YC.°�I}' . � �,. ]V N.i � i..� .v."h9(..iv ? r]Y<,1? ... . ..e...'i. � b^.. c. 5 . „r;rnr,r t�cm� mzt..�:zm�w S�l�r'stti3t�T1` �(fiik' (Ct7tif)p/�I<'ft�V�FFtTSt7I"TI=UPfS�,1. �a� db%i�� }9 ^ui:4ww.:rs�;c�: ";�eeaeav:3; .. n=r.:;�_nb;:a.�z"zai.. ; : -rvn,n Append'u� C: Heritage Tourism Neighborhood Tours '°I`I�re is no tter�yirag th��t� �rzrts ��ui cutttr�e on a t�c��" ��s �i�aru�n. „ The rtrt� �i�t��n„ . .. �`��?t� c�ra� rtet� btrs�nt�s�s�;t�s�l�;neig�ot�hoods; unr� dr�t<�uri��° - — ��.�;w,ca�,m� YJtrw' hLitv�hvbll N�T it1 i"`}i. i�fl1 A1UR"9 d ct:�i,i;t? �.ivanattnAau�m�r„Inrdr: 1tt.(\7�1; �USt:nai txu{ (�; pnmiotu:.ial'�r.ulw.�s c�3Ta.�amz ��x#i�i�iwi ��.:hru. and.orn �!�r and s�sir aamagt�*ilxaipS ,t;:nu :,�s�.ur�i m:n�csl �r.};snrr.uianc !�� s"31,.0 .ncaaxiu�;e� C�CA'sw�muo n a,N,�rta i.�.��na;i o,�vrs:d van tr.i�c uf r�rrad�htxrrixtefr "Ii�;izh�vnnc�g i� as dm�ing �E:e a»r and �e"vig�e to:�r. a�uj V, :rcti`I Cm' +"a7a?aln's (;iil'nala. a;�o ��i4 a kNt ran ance z o�on;ti to oez of fmm �aghix rsplaYmn; ;h -mm;+juiug's.�iMic rmxs. �v;it�tiil nadinaix a xianvntvat�ralazriaooa t� iehr,i a msr, denu�! �es. ia Ou popv- lac iu��'i dm��i tha if i mul� mar��, dx�tnms i:�roniercnccwsl;nlulingin (J:iraa<ya tmar cuL� s�s C`,urnan'I mz�?d pr.^�,v fata R�il bus,�aci oi tourissa�u} ai7� cu6r,ng in �wxherguide' 11utt }�Ean crarktiratt aiu) in tha #�1i o( I4')� (.��na,� i�.Yi Aa �,r�:� �Mi�s ux?u; oei,��`xr_tax�z ilx?�i w:cecs w`i Ap�*y1� �i II�X OI'.�i`i6 t1V'1L1Ei �`:it ;dG� m 1'C �lAinm�i�sma.IP.Mihlh'�..' `Sire�a+x'�3e;1� grtrnl�?^� 1aDtu�±ea (vt;-I�tiyGeti tour��rsh an� het}�i.' nve ai'?3y i� a gt;ins' .;m,:avi �}a ?n 3'3➢'. C.uz:a�a s�a.:n°cukv dx« rin- pHraieJ e�nn at cc�rt�aai�a(xan 25 �.di�ira� �uusers i��.; c�1l.ilmratnt�eP�*. u sakc iiskon;n�:�s oc��bar"�ia see he.!x,x��.e:l ar.d;�cev;zi+lu�e.Ttri�:ec th,»,nitumr-CYti,�ci Y�r��t¢tuxxl 1;3ur� }CZTl—awuaec�bg if,�c 0!€ce 43£ irtvfsm �.ithin d:e L1f 4 iv.n iarc�.xd i�;in a <Km.�'Jn �hree-:rua ani �r.�m Srnis ISx�xir.k �' i�, aml miuhinc ae i�na�i ?.nou�;rowzhatihe�. thcC3±�ga �c��hiroihaqcic Cat`r 1l�nm; �v2ijm. v�.1 esfabiislxd tnat ca�xuas i�rh �ms i<n.�;iw�,f}sO,IX%k? inr;ilhr;m�7 t?ie.ti.¢hr.t C:umma�}`et;:.�acan k�7r;};nh�o�alh� ki �aEt ar�t auti�tnGc;and�ra�'scd nxz- �handiu; t!n shc�s }mn�iic �dunhc;+�e w:u°..� oi s:mac Ior c,mmun's,ry-IvsrJ :ssa�anrravo�as �k'� 33cv uGd::e:.ans,:..�. . v"vN:]i:i,l�t�.� . _ _... . +�., r.>� utas � i,� . ,, :r_..,�,«; � �n ,.fi :.. ..�,;:�� .�..�, ,si `. i,xa�: ,..�..._ , .nt�»t (1m �ru�;ixms�4�s corat vrN� s,o 'sr2i�a ,�;. °\c.gh',�zt'�a7d'.�a - Sxi;�l IArrir�g 1a$hi�Etuxx# ioi�n k�c.il �i.tts .�ueihz fa.��M�ngand,r',na�.h cf �;n- munitiec 13;tSx,adivh e\n�s:�mtY1u c A�ccar, , iv.u�e 4pEUC Puerzn �u�3 �ie:n,�',cti 7,��.n 3�u,3rc.hrzxturi#l.rnda tku.e rli�r,ttc; 3:�c�ar ktutn�z'i7�e:e are cv�e:x��orisa� :wcssrticrlulcd o- a *:a:6ry.tuv� cai �m��a 6�ieqzneaui dx3ear. �Yidt CGiE593YS PI dR 3i�F2�'1�1i� t:,j 43fiC)t' matian aiumt a c:�tm and itthisi�,2� in thezin. aittt dz.�� me�^cr, t�et3 uttn nc; bothtw�ietzsi's Prexu[e�!'aY�catanunin lram.tisits n�lio hare :�'searred thri: st;bKns v:�o�hly, tl�ese.ea!on#s. ntt� xxFv.TSn�e ,nzd �xorz ifi�e4'Qtti than me n'q�3�r Ha3!.c Sfn,�i.d Is3u�, i�xhuic Ihr(;r�;tlu,.^�, Eire'(hrndaollreland .1 iciisn is7i�.n Gn �uui i<��an i 1�.NU�n �.;i �Su an.em po}��r tuur C�cnattn�atronei i-aita�, Rtxus oS t2�ire fir R3rasa�x, C;m��l Ihuir.¢a fivz-{iaiu S�ia9 "!"a Gurs[ �re ��r�n cn a <ambma_+maciram:- s+al�?rn,zmu� o(thc ifut�� .4e+v an ania=c �xr.`ormanccrn a�aih€y aad h� �;anrn at.r;yont ef c eum�cf{*,�a(arSng n�.�:i:a:Uth.:! smr traJni�rn,3 c2srn i�.�in arom:.d;he „,`-�ix 1Ii (1T€ar.n �n:rr �archaud+nds. tiidClHr ori� ts�Ts a; i'e ax m:xz `su i�a;c i �:em k� {'ti} n mar�u.3-�,+ilte [cxtn tu i:au:u qi✓rn o�,..'Anva4^un,� r: iNHI��S zo:�ttIIl�!(+S .il:� �a9pJM 3tdta9 (�311RPt•. c. 6 03 -9 3 5 Appendix C: Heritage Tourism Neighborhood Tours .N,ttiL�C 7!1£ �IAST OF OPf'OfiFUtiImS GdL+txNUrr.'C:dma! I�aB.ni �n;i�h CG7 vi�,rcouaDorei�;'�sG=�un. �t�p: b�n;ur �vsnm� u�.headi etS:�: �. d ::�th rnm:nunir,��.k�: _aitcuai c:r,<ita �mn�r,rm_mucN�rn�mr�, �� 3�zix�. o�n�cnn�vu,',cti busici�v, .,;„1 rri'w'�bMrr:c�al rzsrd�r.u' il�z can�- ;�n�aitr a:�<og;ar��;dons�� na tuvr �7u u!ncvr i s to msir, d:cnseAv .n �+ri; � Ctii can th�ar�;h!!s ii�f•r.l am! ars�ii brsxtt�rts ti,z�ite rrcn r:r.�a;�, a::d pid adsi7v�eutrna i ��v'u=tErpnctnen.aron�,l"ach�,v3nt n, nn� Nntit}'muid ]7ad &az Itir t'wfnarn ti:r tpnm�ru�iit' u�vi 7i+r�rtvir.� lhe�cii5tci('t�l"st, pa+rrn�te ci `Hi i3111bf3i PPHIi,�P D� fQiiP.11Ul?i�.IPS �i sencs 1Lr t[u4�:s io do � i3d�u�t Imi � im,x��r nrunlp��a�e. `tve ne+rerbyp.. d�r iur,iV can2rmini�res w �rv tosjreuk �a; �t+em Eha�xea?ra7sfsMn�hemaqsdcm ,�i it�c tnor un, �pdudxl in tS� �iec;.'�an� ma[er.° Pn�a<y ng •.ve�rt w,�� roisci .uz9 Un.thure c��r;,` Natix CluiCiae 1r�IL_�eoix, Ght'� ewcqinna¢ li �7x 4vi�e Uzne Cti PsGrys �iyianCsn pwv;di�; x9�a� �ses.nts s,ar.0 na�4:ii�G aclivamrnf, m �r�aix E±a��i oa guesc res4�irse� Ygun'lilgse�i�iti� �o �µ�€s iaJiUr�x,r�d c6��i� �Ertir in�iw�t, CSi l�as ia�d a}unrserci7i;� t�,uect �n OILtUn RCCQd[tl3SC5E%GC h1.Ek'i Si�r.s:aui Prcgrrnru tiu!re A�icr: htI �i t�!rni� haie an an�scr prsare7aziqn dL��aonau �'son, ez3aib)t �c t�rammir4 U Rx inta'�}SCeiadon �uh.tr.!.� bm�.� to t�u �rf;srslxcne erw�rm b5<ierbat h�tc� t:eutc�t Gr �se tta¢qu�ele ifs hm amcon io: tc�us gu�vs •;� �ezi ors,�e,i .:.uir.�:.u+araipme in lse p:c,ema�innc a�.A utr:: th: �sset il:i:d},^. She�a:x'. "c;c�,l uur, x9?en saes:s i� inr,4 }ra Mmrn m� va� �¢r z rzl-a��-r. w�;1r.x71 and tas'�eamb�;pan. Qi bri�ing �uwsi�e [o]i;e dii of7he�xdai �ount��T�uoducx liximle3u:icl�. at a rtctaw.�u [ha, e11az ineiLenxare�l:nuin oiiheicuc� t-avsur� tpudima�d:inti�uiqi.' "ti'hcn 1'sn«5viz,: � s�n.e t�las�nor,'7 :s� thnn ta tzJl me v':sr mcwpat�:h,t th�z �,g�ihn:lx:c�d ! I'.n� nita�r trme listiz-ia��.i+:� e�lbm�auon or �ust gc�i lui�}• mi� ��iat ir,H l�em Iwad�d drnm t4ner,yrJ; tluir iarnll rs �hx i� ia�inafin,d,—am! nct zhc toird of tl�ing .uu re iil,�Ir?� Gn:i et du I�i�ce�• �`�I�sen�-he3t�s each g�iuk preparea xmp�+.nr Ji,tir v�ur x*ttlarig �o�^,hir m r�eaa 3ms,�,ius.and nazms. hi�v�r �itt sh.o}m a{ong it3e rouus oH'a audrtriGChandcrnlve�ti�is a�idam�as ptfe:pd on diespa3at ta;�+.v`,:aj� inu� �uai¢ ainima�ice€�m��u of ihe:�dn�» nr h.,wit�e h�a� s�: esc�uzt 1'm (Mxc� R�:mnrsr.c G}°;�n�, t inK murisin cxo�rir, Cti°i' hs t�el�md she dinztsz scu11 mmmuniazs in thc�n becortcee:or,ounc�liyvia�Asv�ngor errnnnny allmuw�zzn�un�tyi�dcrs: pr�r�prn�.rsrccsand (ruinECyeaple Co niunram asid �caect thr�ch!suaric bvi3i cnviranment anr! 4xy}�2t�ute �he:r a=.1h�13sulKSrnVUS. ._ _ _,.. .'amx :�,s:,_ H• �.�r�: h^�'t:::xi's,". ��.l�sizi YUi'� t •3,^ - m?4r:e. GY.tFY�� ...'• • ,.;, ��1�L�21552 [NVjUf u�iE�ltfl[ 211S�t+,1 3tll tat!1)ntm.iT 'f amf �a�'li�; s�swrtncgic' as manr: mmmtuury•arts�tirg;rn'�tc�'- c � thxm �.itn ad&cwa� eqroa�rz and u somC atat ionvi�ute m to�l xcimmii� dimrsgY� ata+su�t atd ��'(t��Opsa?es� "- +` 1`� �a�-C��;4}Pltt�{. w°I�Y �.4t'cY�l�',d4C,�3�'L4?�l4� �-' �� fl¢��M � . �.,..a � .�,�" ilt^"�UQR.fC{��b��i2$1�f�:'. �i��l!` i��1 ��kf��.�ia�: ��f�rir�iim�1 C. 7 Appendix C: Heritage Tourism Neighborhood Tours 1{�)1 �iAn aiat a,rmiv�c3 m th..? tc�s2i3r.;ei ,xro;?� �r. 1�� Prr rc�:�ikdz cm ��^ ,lta 4,tt y�uci��iz.it (.� i tva:� C7iir:�c� ��hlx,�ixws[>,U cF�ps�ab:im.3 1 �� (.r.9 hcnb L:�M EtvYd P+L`St7Ef3. IC¢r�,�nPrmfmu{±2Er? ��„�; �ic�._ :*�i�,aunn;uttis�sdantt,vn� �ry hneaa}fif� to �I's�,"'r�api�va. •tkrtane.ts�s�Z3v,rn4euJi'"` mL�'g` flxnrcr,u�rma}re�mh thdti�deeac�s f�tt'� SgS W fh.i�lLWIIIRUiBtl6112(C(K�i rsfJyNl�:vn�,5ltk'�Q[ta�t VliC1DdIC4:Lhi5 tzak;sWS�; acd?pC�Y"effit'Gtitd4uc�nC.�6 a;td En�dbm fOtlluiFn�.� � ��^i 13L�1 s:v4;ar3:caasa� timc.ra�.Har.hea: m�rt.e!w�; is � 1 ��J �Yi;h �e�sa.xu. }h2l i.e«!iu Cf:xs;� Ti .� ��fi „trnm iP��i�d I't;a�,ittx�t tir sa; �LX�� _..i4\} guc3ti iake ier3m fi;�l and,"J<iap C C=. uixr „ t��e'Ye 1�ipin� p��le s�e th�� rz�igt��rnhoo�i 1�I�87"8�1t�; t0 il5�' f�1el1' in�ugt'ri�ttiorts It� ert�i.�ior2 tuhat it ��cu iilte ir� tt�e pr� t ��d hvu pe�?o1� �it�e tJre�e todu}�" - � , l.n i:�41k9Y'i f �.� 1d�t �r.^U's: � ,�x (vttr.ex:"suy��..`�;.�:.xr.y x avar'ir:w-. c .rR ..s�ti��wak.vti.�rv:.r, w � .. <,�, , . , , 03-�35 AppendiY C: Heritage Tourism Theme Tours Developing a Theme Tour Itinerary i. Theme: Z. Tour name: 3. Lengthoftour: � Half-day _ Fult-day _ Other: 4. The geogaphic azea to cover: 5. Tour enhy point: Tour route: Tour exit locarion: 6. Tour Highlights (50-75 words): 7. Assets and activities that wntdbute to theme: 0 0 0 0 0 0 8. Tour mterpretation: o brochures o signs o audioguides 0 other 9 Target audiences: o fam3lies o groups o seniors 0 others 10. Visitor services: o reshooms o gas stations o restaurants 0 other 11. Transportation: = walking: = driving: c. 9 Appendix C: Heritage Tourism Theme Tours Inventory of OfF-Season Group Availability At St. Paul's Heritage Sites Note to Heritage Sites If your site is closed during a part of the yeaz, but you aze able to open for groups with advance bookings, please complete the following form and retum to the St. Paul Convention and Visitors Bureau. Site Name: Address: Contact Person: Telephone/E-Mail: Site Description: Tour Description: Programs / Performances: Demonstrations: Hands On Activities: Special Activities Not Available Except to Groups: (such as coffee and dessert after the tour, a special performance, etc.) c. io 03-�'35 Append'uc C: Heritage Tourism Theme Tours Meal Options: Restaurant On-Site: Catering Available: Suggested Itinerasy for Site Visit (Include tour, any special demonstrations or programs, meals, etc.): Scheduling a Visit: Lead Time: Group Size: Minimum Maximum Cost Per Person: Cancellation Policy: c. 11 Appendix D: National Trust for Historic Preservation & Saint Paul's Assessment Team The National Trust for Historic Preservation is a private, nonprofit organization chartered by Congress in 7949. It provides leadership, education and advocacy to save America's diverse historic places and revitalize communities. For more than 50 years, the National Trust has been helping people protect the irreplaceable. With more than a quarter mitlion members, the National Trust is the leader of the vigorous preservation movement that is saving the best of our past for the future. The National Trust supports preservation through a wide range of programs and adivities. It • Operates a nationwide collection of National Trust Historic Sites. • Provides technical and financial assistance to state and local organizations; • Promotes travel to historic destinations; • Works on Capitol Hili and in state legislatures and city halls to encourage the adoption of laws and policies that support preservation; • Goes to caurt to ensure that preservation laws are upheld; • Teaches people about the benefits of preservation through workshops and other educational programs; and • Demonstrates how preservation can revitalize communities through programs such as the Preservation Development Initiative, National Main Street Center, and National Trust Community Partners. National Trust Community Revitalizarion Department The National TrusYs Community Revitalization Department develops programs and initiatives to revitalize America's historic communities — downtowns, neighborhood commercial districts and residential area. Leading the preservation movemenYs efforts to use historic preservation to rebuild communities and encourage economic development, the community revitalization programs of the National Trust develop innovative and fresh approaches to community building. C O M M U N I T Y REVITALIZATION NATIONAL TRUST �r�I5T0&IC gRE5fiHVATION�,. Preservation Development Initiatives The National TrusYs Office of Preserva6on Development Initiatives (PDI), offers a comprehensive approach to preservation-based economic revitalization. Initially funded by a grant from the John S. and James L. Knight Foundation, PDI helps targeted city govemments assess, develop and realize the fuii economic development potential of their historic sites, landmarks and districts. The breadth of historic preservation resources and opportunities is first identified through a comprehensive assessment. Cities then set priorities for follow up program assistance from full range of National Trust technical assistance. To support economic and community development through historic preservation, the PDI office: • Designs `packages' of comprehensive technical and financial services for client communities; • Uses the broad array of National Trust expertise in interdisciplinary teams & programs • Builds sVategic partnerships National Trust Community Partners Community Partners offers a range of financial and technical assistance to preservation organizations, community development corporations, local govemments and developers engaged in historic rehabilitation projects that promote economic and community development. Its National Trust loan Funds (NTLF) has a 32-year track record of lending to projects in low- income histor'tc districts and to specific endangered historic resources nationwide. NTLF consists of two preservation revolving funds, the lnner-City Ventures Fund and the National Preservation Loan Fund. Since 1980, these funds have closed on 171 loans for an aggregate dollar amount of $16.5 million and currently possess combined assets of approximately $10 million. The Funds have played a role in the rehabilitation of over 600 historic properties resulting in the production of 2,500 housing units and 1.7 million square feet of commercial space and community facilities. Types of loans have varied from acquisition, c. 12 03 5 Appendix D: National Trust for Historic Preservation & Saint Paul's Assessment Team construction, mini-permanent, predevelopment and equity bridge loans, guaranties and working capital lines of credit. Community Partners has also performed private placements of $33.7 million in historic tax credit equity with corporate investors through the services of its Heritage Property Services group. its $25 miilion Banc of America Historic Tax Credit Fund has become an industry leader in the syndication of small-scale rehabilitation tax credit projects, having directly invested or committed nearly $14 millian nationwide. National Main Street Center Established in 1980, The National Main Street Center is the nation's largest full- service commercial district revitalization organization with a neiwork of over 2,000 active commercial district revitalization programs. Cumulatively, the commercial districts taking part in the Main Street program have generated more than $16.1 billion in new investment, with a net gain of more than 226,900 new jobs and 56,300 new businesses. The Main Stree4 program is one of the most successful economic development strategies in the United States. Applying its trademarked Main Street Four-POint Approach, the Center assists communities interested in revitalizing their traditional commercial districts. Understanding that a communiry cannot achieve success through a single project alone, the Center emphasizes a multifaceted approach to establishing a revitalization effort based on the four points: organization, design, promotion, economic restructuring. This comprehensive model helps communities develop a solid framework for retuming their commercial district to a vibrant and bustling neighborhood with thriving local businesses that can compete in today's marketplace. The Center serves as a clearinghouse of information specific to community redevelopment, offers technical consulting, provides repoRs on revitalization and preservation issues, sponsors conferences and workshops, conducts research, and offers advocacy and general assistance on critical revitalization issues in both rural and urban communities. Midwest Office The National Trust has established a system of six regional offices and two field offices to provide aid to state and local preservation efforts. The Midwest Office, located in Chicago, Illinois, provides support and services to grassroots preservationists, organizations, commissions and individuals throughout eight states including Minnesota. The Midwest Office provides field and technical assistance services, paRnerships with state and Iocal organizations and works to expand the presence of the National Trust in its region. The Regional Offices also maintain a system of two advisors in each state to assist with the identification and response to critical preservation issues. National Trust Headquarters Heritage Tourism Program The National Trust defines cultural heritage tourism as "traveling to experience the places and activities that authentically represent the stories and people of the past and present" Cultural heritage tourism includes historic, cultural and natural resources. The National TrusYs Heritage Tourism program provides technical assistance helping cultural and heritage attractions develop successful and sustainable programs that will enhance communities for residents and visitors alike. Consulting services are available in strategic planning, preservation, tourism development, interpretation and marketing.The program's work includes a series of "how-to" materials D. 1 Alan Karchmer Appendix D: National Trust for Historic Preservation & Saint Paul's Assessment Team to help individuals and organizauons developing cultival and heritage tourism programs, and the program serves as a national advocate for cultural heritage tourism issues. The Heritage Tourism progrem is an active participant in Partners in Tourism, a coalition of cultural and heritage [ourism practitioners and Share Your Heritage, a coali[ion of national cultural organizarions and agencies that has been funded by American Express and the Na[ional Endowmen[ for the Arts. Assessment Team Carolyn Brackett Senior Program Associate, Heritage Tounsm Program — National TrustForHistoric Preservation Carolyn Brackett is Senior Program Associate for the Heritage Tourism Program of the National Trust for Historic Preservation. She has devoted her career to the field of history and heritage tourism working at the local, state and national level. In her position with the National Trust, she provides heritage tourism consulting services to clients across the country. Ms. Brackett serves on the PresidenYs Advisory Councii on Historic Preservation and is working with the Council to coordinate and enhance heritage tourism programs at the federal Ievel. Her involvement in the tourism industry began in 1988 when she joined the Tennessee Department of Tourist Development as Assistant Director of Information. In this position, she worlced extensively with travel writers and developed special promotions. Additionally, she developed a partnership with the Tennessee Historical Commission, Tennessee Main Street Program and Tennessee Arts Commission to create and conduct a series of workshops titled "Promoting Your Cultural Resources' which the team presented to communities across the state. From 1990-1992, Ms. Brackett served as the departmenYs State Coordinator for the National Trust for Historic Preservation's Heritage Tourism Initiative. Through this program, Ms. Brackett worked with four multi-county areas to develop tourism programs based on the regions' culture and heritage. Ms. Brackett has served as executive director of Historic Nashville Inc., Nashvilie's nonprofit preservation organization, director of statewide projects for Tennessee 200, Inc., the state's bicentennial project, and director of Marketing for The Hermitage, Home of President Andrew Jackson. Ms. Brackett has a Bachelor of Science degree in historic preservation from Middle Tennessee State University in Murfreesboro, Tennessee. Eric C. Youngberg, AICP SeniorMar�agement Consrz/tarlt, Nerghborhood Reinvestment Corporabon & Advisor (Mo.) to the Natlonal Trust Mr. Youngberg is a trainer and consultant on community reinvestment strategies, business planning, strategic planning and urban design for the Neighborhood Reinvestrnent Corporation in Saint Louis, Missouri. Mr. Youngberg joined Neighborhood Reinvestment in 1983 with experience as a city planner, community organizer, planning consultant, VISTAvolunteer, lobbyist and city council person. He received a BA degree from Simpson College in Urban Studies and Sociology and a masters degree in community and regional planning from the University of Nebraska- Lincoin. John Leith-Tetrault Drrector, Community Parfiers — Na�onal Trust For His tori c Preser va ti on John Leith-Tetreult has 25 years of nonprofit and for profit experience in community development, urban real estate finance, community development banking, historic preservation, training and urban planning. He has specialized in developing community-based and city- wide partnerships with the financial strength to facilitate the rehabilitation of properties that provide an economic benefit to low-income neighborhoods and central business districts. His employment history includes senior positions with the Enterprise Foundation, Neighborhood Reinvestment Corporation, Bank of America D. 2 b3-935 Appendis D: National Trust for Historic Preservation & Saint Paul's Assessment Team and Neighborhood Housing Services. He has held his current position with the National Trust since '1994. As Director of Community Partners, Mr. Leith-Tetrault manages all of the TrusYs community development, CDFI lending, real estate consulting and tax credit equity initiatives. Under his direction, the National Trust has pioneered an urban neighborhood revitalization model that uses "preservation-based community development" strategies to bring new investment to low and mixed- income urban historic districts. He has also made the National Trust an industry leader in the placement of corporate equity investments in real estate projects qualified for federal and state historic tax credits. Mr. Leith- Tetrault holds a BA in history from Georgetown University and a Masters in Urban and Regional Planning from George Washington University. Rhoda J. Stauffer Community In vestment Manager, Community Parmers — National Trust For Historic Preservation Rhoda Stauffer has spent most of her 20-year career in the field of housing and community development. Prior to joining the National Trust, she spent 14 years directing technical assistance and lending programs for the McCauley Institute. Ms. Stauffer's background is in training and technical assistance; nonprofit organizational development and management; financing and developing affordable housing; and gressroots leadership development. Her background also includes business and administrative management, and building bridges between resource- rich entities and resource- poor communities. She has played a key role in founding a number of nonprofit housing development and advocacy groups and has provided assistance to a variety of grassroots organizations in the Washington D.C. metro area. Ms. Stauffer currently serves on the board of a number of nonprofits, including: Dance Place and Miriam's House. She also is a member of the Advisory Council for the Northwest Church Family Network, a housing program for low-income families. She holds an undergraduate degree in Social Work and Biblical Studies from Fresno Pacific University. R. McDuffie Nichols Director, Preservation served on the Intemational Franchise Associafion Emerging Markets Committee for increasing minority and women-owned franchise businesses and as a member of the board of the Responsible Hospitality Institute. He also serves on the community board of directors and the architecturai review board for Montgomery Village, Maryland. Prior to his current position, Mr. Nichols managed and coordinated the Main Street Center's technical assistance to community and state Main Street programs. He has also served as director for a downtown revitalization organization in South Carolina and marketing director of a commodity brokerage firm in North Carolina. Mr. Nichols holds a BA from the University of Alabama in History and Political Science with graduate study in marketing and business administration. De velopm en t Im'6 a ti ves — NationalTivstForHistoric �ista.Kendall Preservation Mr. Nichols develops and Program Associate, manages new initiatives and CommunityParmers— strategic technical assistance National TrustForHistoric services. Preservation Mr. Nichols served on the Governor of Maryland's Smart Codes Steering Committee to design a rehabilitation building code and Smart Growth development guidelines and assisted in the development of urban neighborhood Main Street programs in Boston, Baltimore, Washington, DC and Detroit. Mr. Nichols also Krista Kendall is a Program Associate working with the National Trust Loan Funds in the Community Partners program at the National Trust. She works with preservation organizations, local governments and other nonprofit organizations to provide loans for the revitalization of inner-city historic neighborhoods and preservation resources under D 3 Appendix D: National Trust for Historic Preservation & Saint Paul's Assessment Team the InnervCity Ventures Fund and National Preservation Loan Fund programs. With a B.A. from Montclair State College in Geography (and a concentration in Urban Studies), a Certificate in Historic Preservation from Goucher College and a background in residential real estate sales and marketing, Ms. Kendall has found the perfect career to complement her skills and interests. Royce A. Yeater, AIA Director, Midwest O�ce — Nationa/ Trust £or Historic Preservation Mr. Yeater has a professional degree in architecture (NDSU, 1969) and a Masters Degree in Historic Preservation (U. Va, 1975). He precticed architecture, focusing on institutional facilities and historic preservation projects, from 1975 to 1983 with Foss Associates in Fargo, ND. In that year he founded YHR Partners in Moorhead Minnesota, and in 1997 moved to Minneapolis to establish a branch office for that firm. While in prac[ice, Mr. Yeater also founded and served on a variety of boards and commissions of non profit organizations in the field of historic preservation, at the local, state, regionai, and national level. In September of 2001, he left his prectice to head the Midwest Office of the National Trust for Historic Preservation in Chicago. There he focuses on building the capacity of state and local preservation organizations and develops strategies to confront new and emerging threats to historic resources in eight Midwestem states. Joshua Bloom Senior Program Associate, National Main Sfreet Center — Na6onal Trust For Historic Preservation Joshua Bloom is a senior program associate with the NMSC. He provides training and guidance to both urban a�d town Main Street programs in the Northeast and scattered other places. Among the urban programs he assists are twenty-one neighborhood commercial districts in the city of Boston, the Forest Park Southeast neighborhood of St. Louis, and designated communities of the National Main Street Initiative, a partnership between the NMSC and the Local Initiatives Support Corporation to establish Main Street programs in community development corporations nationwide. He also provides technical services to New Jersey and New Hampshire Main Street towns. Josh specializes in developing market analyses fortraditional business districts. He received his B.A. from Columbia University and a masters in historic preserva6on from the University of Pennsylvania. Before joining the staff of the Main SVeet Center in 1995, Josh served as executive director of Main Street South Orange in South Orange, New Jersey, his home town. �! �' ��,.eS` si .'�s.i'"� ��" �`tk�. �"�'9ir- .''T-'c? , a�.�M � r r, x � 5 X'�'. �'&."Cr' � � �� v� �4tK �i�y��y'F}'✓`P '1L�� '�'i.�.� -'�.' . � �, t2 T' 4 5'/ �, s6,�+.�' �% �Y.,��i . �f f� 1�y y i-� � �� „" �'� ��a•., . 't �ac,�.r.�. `x' � ' � F � � , e r - �R,�nY'Gg'.3`��-nz �..c�� ,z�� ^ - � i y3 'S' ..i r � �m . "'3 + � � I ,��"�` � � � ; 1 F � , 'r✓ + . ,4-+� t,r"si'' ,,� �'��?��' N � . • • Y ' �,� .�`� � - ' c � ��' �-a� '°"� ��" �-1 � � � t- -^� ��'... � �� -�-. . " � i� 1 : �: � � - � ,�,. � '. �� - � �I...'�� . � ,� . _ . s � i� _ � z x ` s t �". > '{ . � ' . _.-.; F �-` � rc ..� - � • /" ♦ '_ � ��. � , � ; _��_ � � � �� ^ ' � . � f ., �i - , ' � r : ti � 3 � . _ <' J �. ; - � � 1 � . f i .�+��/ � �� f' � � �� , .. . - �'`.__�i + ' � _ � �^� . /� % 1 .: � �� •� ' � � 1 � ; ,� i ,. �� - I - - ; � f�� - �� '" -�.� - � . - � � '� l �� '`� �� ' " ._. � � Y W� ,� ", f�: � . � ' �:' ` �� F � � � �., � 3 � �' � i� E � 7 f. a`� , �k �('Y G� I ` �_ , j ` --�_ �� + . I i . I t �� _ j� . t � e �. a � _ � l�l �f i,3 � � ' � _: ( � � , i; � . � s�,`.. ��.�� p � „ � _li t 5� , �. �` `�^---- s � ' iA _' � - _ ' - _ ' _ `�- �.qa� . � - - , i ^f� — s �t - � � � �� j�� , � �� `�`1�r-t�"'' '�-��° -- --- _ - _ - � '�' � nA .. . --�— - ��'. � � � � I �� E y E � °�,� � - �� i t i `^ '�r �d �� 1'� �. �' . l � � � f � " . �lme. -- r � . 1 s,- . �.�..� �„.+ � s,� �� _ �: < . � je . . _ � � . � � 5 � �� .�; � — I ` Y w ._ '�"�� 3 y Y I 1 � ' � : � 1 ., � � �sF�; f . . _:'-.._ . � ` I "` � f . � ., i �� — _ f �,M� .. � . f '� 6 b '°�.. � — i �� ' ✓�2 �" . 1 � � 6 '� ' � � f � i "�� ». � T 1 �, � i�, . n 9p ��,, r�`�"�� 'rry"^. }..3 � " '� ! � .,��.t T .� r y . � �v -�' r J , 3�, a _ � .�.; - 3 a-� '�' �b�� z� �`X,��4.., i �"� � � i�� r J S �`' � 'w� w� � '%�� > .al. � ,r� , , .. a :. ^ a � � � � � �,.s � ` ' �° 5 s,,,-.�._ ' :. r t _,. fz �� " � °s��^s f��,� �y ,�2� i`.a ` ,7' �ir�'". - ,. a .i � .�: -..,� f �� -�., � " f , �s �' s � �� , ( . .� ' ss �, �� "w,�� . s 6 � �' �� ta�. ` t�' -.= �,' �-;�- *^� � `~ ,,,� _`'_ - ..,,�'-�.,. �.""','' ��„ C�: � »4 ....� n F3�� "'" tih ..u„ � .= '� _ _ , � _�' Saix�t Paul's Preservation Development Initiative Summary 90/15�03 Introduction In May 2002 Saint Paul was named as one of the firsf four demonsEration sites in the National Trust for Historic Preservation's Preservation Development Initiative (PDI). The program, made possibfe by funding from the John S. and James L. Knighf Foundation, is designed to assist communities incorporete historic preservation into their community and economic development strategies. Historic Saint Paul Corporation, a citywide historic preservation advocacy organization, submitted the proposal to participate in the PDI progrem as part of its ongoing mission to promote and support historic preservation activity in Saint Paul. The use of historic preservation as an economic development strategy is a relatively new practice — although its effectiveness has been evident time after time in stories of run-down, crime-ridden, and disinvested communities that experience impressive revival by utilizing preservation as a community building tool. Preservation builds sfrong, stable neighborhoods; attracts residents, businesses, and visitors; creates jobs; and generates taxes. Yet, many public officials overlook historic preservation, not realizing that it is a proven economic catatyst. PDI Comprehensive Preservation Assessment As part of the PDI process, a team was assembled to assess opportunities for preservation-based community and economic development in Saint Paul. Team members were selected for their invoivement and expertise in pubiic policy, community lending, commercial revitalization, affordable housing, and heritage tourism. This report represents the observations and recommended strategies by the multidisciplinary team. Recommendations are based on a review of written materials, interviews, site visits, and a collaborative process, working with Historic Saint Paul, the City of Saint Paul, community development organizations, and private sector groups and individuals. The recommendations contained in this report form the basis for an overall strategy for preservation development. In some cases there will be an obvious implementation order to the recommendations. In other cases, the recommendations represent a web of activities that are mutually supportive. An imp(ementation strategy fable is inciuded as wetl as a summary of observations and recommendations for use in future implementation meetings. Key Saint Paul Preservation Development Initiative Recommendations: • Preserve and reuse key properties: Head House(Sack House — interpretive center and rivertront restauranf Union Depot/Concourse — transit hub Hamm's Brewery — housing, commercial, and offices • Continue conversion of underutilized downtown o�ce buildings to residential use. • Develop a citywide collaborative network to support 'Main StreeY activity along commercial corridors. • Create a Preservation Development Loan Fund. • Identify and secure additional resources that provide incentives to preservation activity such as historic and New Markets tax credits. • Develop a Cultural Heritage Tourism Plan and integrate Heritage 7ourism into the city's marketing efforts. • Strengthen the Heritage Preservation Commission - update preservation ordinance and design guidelines. Saint Paul Preservation Development Initiatives Partnership Although Historic Saint Paul was responsible for bringing the PDI program to Saint Paul, successful impfemenfation wifl be a communify-wide fask. Preservation-based development is most successful when the public, private, and nonprofit sectors work together. . The National TrusYs PDI team wishes to thank all of the people and organizations that helped develop this report. In particular, Historic Saint Paul provided extensive support, information, and effort to make this assessment a thorough tool. The staff of the City of Saint Paul's Department of Planning and Economic Development (PED) was very supportive. Historic Saint Paul has assembled a Preservation Development Initiative partnership group to guide the process. The partnership group provided briefing and reference maferials; they participated in interviews and tours; and they offered comments and suggestions on the final recommendations contained in this report. Chapters in this Assessment Reporf include P�ese�vation Infrastructure, Neighborhood Commercral Revitalization, Neighborhood Preservation/Conservation, Downtown Development, and Herifage TouNsm. Page 1 of 10 Preservation Infrastructure An adequate preservation fremework is necessary to appiy the elements of historic preservation as a tool for economic and community development. That framework begins with a strong preservation ethic well imbued through the community, its municipality, and preservation partners. The ethic must be man'rfested in the mechanics of government decision-making so that preservation tools can be implemented and appiied. Saint Paul has a strong preservation ethic, and has done many exemplary things Ehat demonstrate the commitment. Yet, the City can do more to achieve the ideal framework that will be necessary to leverage preservation to its ma�cimum advantage. Observations: A solid commitment The importance of maintaining the character of Saint Paul's built environment in redevelopment efforts is repeated throughout adopted plans at both city and neighborhood leveis, including the Comprehensive Plan for the City of Saint Paul, which cites historic preservation, or its softer counferpart, the conservation of urban character, as a key component of its vision and policy. A grass roots prese:va:ion ethic Attitudes in the neighborhoods toward preservation are profound, firmly entrenched, and amazingly weli developed. This was apparent in every neighborhood the assessment team toured regardless of the stature of the arcfiitecture or the economic status of currenf residents. While the successful use of preservafion as a redevelopment strategy was evident in some neighborhoods and commercial centers, such as Grand, Selby, and Summit Avenues, no sustained attempts have been made to promote preservation as a strategy for wealth-creation and neighborhood stability for low and moderate income residents. Goordination and communication A tempering factor in neighborhood-based commitment to preservation is occasional lack of coordination between preservation groups and Community Development Corporations (CDC's) and confusion over which properties have what protections. ReHabilitation activity and standards One manifestation of fhe neighborhood-based preservation ethic is the high level of rehabilitafion work in neighborhoods by CDC's. This rehabilitation activiry in Saint Paul significantly exceeds thaf in most Midwestem cifies, both in quantity and quality. Marginalization in Saint Paui, preservation is often perceived as an obstacle sather than a route to pcogsess. Recent{y, preservation was reduced to a regulatory role and its influence in planning functions minimized. Local historic districts as building blocks This marginalized role is evident in the relatively few locally designated historic districts. The City seems to view designation as useful mainly in high style, upscale neighboshoods. Historic district des'sgnation at the locai level is the basic building block of preservation. Without increased use of historic designation, a seat at the city planning table, adoption of historic preservation as a centrai redevelopment strategy, and identification and promotion of financial incentives, preservation cannot be expected to serve as an economic engine of renewal. Designated historic districts and sites Saint Paul designates only five districts as historic (Irvine Park, Historic Hill West Summif, Lowertown, and Dayton's Bluffl. These districfs comprise about 2,000 properties, and all but Dayton's Bluff (the most recent) are aiso, largely, National Register districts. There are &2 individually listed Saint Paul properties in the Nationai Register of Historic Places (NRHP). There are design guidelines for each individual district, but those guidelines can be difficuit to manage consistently as they use different language to convey similar concepts. Buiiding codes At the time of assessment, the State of Minnesota had begun its next building code r°view and revision process, including adopting the Minnesota Conservation Code. Thi5 coda is designed to allow the upgrade of existing buildings to a minimum level of safety.and usability by persons with disabilities, without creating economic hardships or destroying the historical significance of the strucfure. The Heritage Preservation Ordinance The 1976 ordinance established the Heritage Preservation Commissio� (HPC) and empowers it to identify and recommend designation for heritage sites, and review changes to designated properties. The Division of Planning is required to inform the HPC of planning and development activities that relate to or have potential impact on the historic and architeeturaf heritage of the City. . The Zoning Ordinance The Heritage Preservation Ordinance stands alone, separate from the Zoning Ordinance. Because of this overlap, the lack of coordination can cause conflicts in the administration of the ordinance and its enforcement; both exacerbated by the isolation of the HPC staff from planning functions. It may be in the City's best interest to integrate the two ordina�ces. Incentives and promotion Littie is done to educate the public about the advantages of quality restoration and redevelopment of residential and commercia! historic structures. This void is evident in the City's web site, brochures, educational literature, and seminars. page 2 of 10 Positive indicators Though there has been a fendency for executive leadership to merely accommodate preservation, there is now an opportunity to embrace preservation more fuily, capifalizing on the support for preservation already present in neighborhoods. Utilizing these resources could leverage historic resources citywide as a strategy for growth. Summary of Recommendations: Assure adequate HPC staff to fulfill three distinct roles: 1. Preservation planning (research and designation) and input to large-scale planning decisions; 2. Permit review and issuance with input to related permitting activities; and 3. Enforcement and field verification. PED, HPC Strengthen HPC's role in planning to encourage preservation-planning activities, specifically in resource identification and research. PED, HPC Rewrite the heritage preservation ordinance and integrate into the zoning ordinance to the fullest extent possible. PED, HPC Redraft design guidelines to streamline design control and make if user-friendlier within historic districts. HPC Refresh and broaden historic survey data to identify potential sites and districts for designation. PED, HPC Accelerate local historic district designations to protect historic resources and maximize access to all of the incentive tools for historic preservation. HPC Identify, target, and evaluate pivotal historic complexes that warrant exceptional effort, including those considered "white elephants," such as brewery complexes and other industrial facilities. PED, HPC Consider creative incentives such as: • Streamlined review and permitting processes. • Transferable development rights. • Financial assistance to pioneering businesses. PED, HPC, HSP Work on statewide advocacy to expand the incentives available to projects including: • A State Historic Tax Credit. • A City/Statewide Main Street Program PAM, HSP, NTHP Promote preservation to aid citizens and CDC's in understanding the tools available for neighborhood revitalizafion. - Webpage to provide easy access to information. • Communication among neighborhoods and CDC's. • Standardized promotions and toois. • Technicai assistance. • User-friendly homeowner materials. • Educational forums highlighting available incentives and fechnicai assista�ce. HSP, PAM, LISC, CITY Neighborhood Commercial Revitalization Commercial revitalization programs in Saint Paul are, as a whole, in an early stage of development. While some neighborhood districts are actively engaged in the revival of commercial corridors in the city, others seem to be unsure of how to proceed or where to get the assistance they need to mount such efforts. In many of the plans and strategies already developed for Saint Paul's downtown and neighborhood commercial areas, historic preservation, or at least some sensitivity to historic structures, is acknowledged. Working from an asset-based development strategy that takes advantage of Saint Paul's historic structures and neighborhoods, the City can create a strong commercial revitalization program. Many groups embrace preservation-based commercial revitalization and some areas of the City have already begun to enjoy success at blending preservation and commercial redevelopment. The issue facing Saint Paul is not a lack of support for commercial revitalization, but rather the lack of sufficient resources to implement all of the plans and strategies already developed. Observations: The Main Street Approach to Commercial Revitalization Historic preservation has become an importanttool in downtown and neighborhood commercial revitalization programs over the past 25 years. The National Main Street Center, a program of fhe National Trust for HisYoric Preservation, promotes a method for such revitalization that is comprehensive in its approach to the wide range of issues that face commercial districts. Downtown Saint Paul Downtown Saint Paul has many distinctive features, including its historic structures, street grid, open spaces, and relationship to the river. Clearly, the concept of preservation-based development in downtown Saint Paul is well documented and stated in many key planning documents and studies. The question is "are there sufficient resources and support for the implementation of these strategies?" Page 3 of 70 Downtown retail is week by all accounts. Strategies to strengthen dovantown retailing will need to be based on neighborhood-retailing for the growing numbers of downtown residents and its existing market which includes the significant employee base of companies, institutions, and government in the district. Neighborhood Commercial Districts While downtown's refail potential is weak, neighborhood-serving convenience and specialty retail can thrive in a supportive environment, and several of Saint Paul's neighborhoods – profiled below - have begun to develop successful commercial revitalization programs that reflect the diversity of cultures and history found in the city. Lowertown Lowertown has proven to be a successful "urban village° that uses its historic character to differentiate itseff in the market. The Lowertown area has enjoyed more than $450 million in investment and created a true urban neighborhood. Payne Avenue Payne Avenue's commercial revitalization program, based on the Main Street model, has addressed issues of business and property development while balancing historic and current neighborhood cultural sites. District Del Sol While the West Side's revitafization program's stated emphasis is on physical improvements and design in conjunction with marketing and crime prevention, it has also worked on tenant recruitment and community organizing. Selby Avenue Selby Avenues low-scale buildings a�d neighborhood feel, along with planned physical development projects and business development programs will help develop a convenience oriented neighborhood commercial district. Summary of Recommendations: Conduct a study of financing tools and incentives to promofe retention and protection of hisforic buildings and sites in downtown. HSP, CITY COUNCIL RESEARCH, HPC, CAPITOL RNER COUNCIL Pursue timely designation of downtown sites and districts and the use of other preservation tools as integral components in the implementation of the Downfown Development Strategy. HPC Encourage a vision of downtown housing in historic o�ce buildings to support the strategy of creating a downtown residential neighborhood while maximizing the reuse of historic structures. PED, HSP, CAPITOL RNER COUNCIL Develop a citywide, multi-district neighborhood , Main Street program to provide resources, a network, advocacy, and encouragement to local Main Street initiatives. PED, LISC, HSP & NEIGHBORHOOD CDCS Work with the National Trust Community InvesCment Corporation and other organizations with New Markefs Ta�c Credits allocations to increase commercial lending in historic commercial areas. PED, NTHP/NTC1C, LISC, & LOCAL COMMUNITY DEVELOPMENT ENTITlES (CDE'S) Neighborhood Preservation/Conservation Current resources and activity wfthin Saint PauPs historic residential neighborhoods can be expanded by strategic investment, and historic district designation can make way for new resources. Leveraging imestment from the private sector can spur economic and commercial development, stabilize fragile communities, and revitalize disinvested areas. Observations: The role of community-based nonprofits Saint Paul has a wealth of community-based nonprofits that address community development needs. These nonprofits focus in varying degrees—some highly and others not at all—on saving historic assets. Although there are common issues shared among neighborhoods, there is also a lack of coordination between neighborhoods and the organizations serving them. Historic preservation Historic preservation receives a mixed reception in Saint Pauf. Traditional historic properties are successfully preserved, but in other historic neighborhoods such as Frogfown, Dayton's Bluff and the West Side, there has been less focus on historic value and in a number of cases preservation is misconstrued as too costly to consider. The City has been slow to designate historic districts in recent years, leaving many of the affordable communities with smaller historic homes unrecognized and ineligibie for designation-related resources. Deployment of community development resources in neighborhoods Although nonprofits seem to rely heavily on government resource programs such as CDBG and HOME funds, one of Saint Paui's strengths is the involvement of financial institutions in community efforts. With shrinking public resources available for large and smail-scale rehabilitation projects, Saint Paul could benefit from more creative models such as secondary market resources, theme lending to upgrade an entire area, Page 4 of ? 0 historic preservation resources, and specialized loan of how to sustain Lowertown, and how bring the programs. LowerEown model to ofher sections of the CBD. Summary of Recommendations: Establish a center for collaboration among CDC's, historic preservation groups, neighborhood housing services organizafions, and Main Street initiatives to: • Coordinate programming • Advocate for preservation-based communify development resources • Provide technical assistance and education to homeowners and neighborhood developers • Provide design review for grant and loan resources • Provide design guidelines for neighborhood-based efforts HSP, HPC, COCs, PEQ LISC Estabiish a lending pooi to assist in renovating smaller historic homes, that can be purchased, rehabilitated, and sold to tow- and moderate-income families. HSP, CDC's Create a preservation development fund to improve the streetscape and marketability of historic neighborhoods. HSP, LISC Observations: Downtown market Saint PauPs central business district has a very strong housing market, and the weakness of the retail and office secfors would appear to set the stage for housing conversions of existing buildings. Public subsidy for downtown housing Despite this high demand for housing in the CBD, any construction or rehabilitation is likely to require public participation. Saint Paul seems to have accepted the production of middle-class housing in downtown as a legitimate pubiic purpose. However, the City has allocated most of the available STAR resources and other housing subsidies to new construction rather than rehabilitation. Sustaining and leveraging the Lowertown experience Careful consideration should be given to the identification and designation of concentrations of downtown buildings to build on the success of Lowertown and maximize the preservation of CBD historic resources. Utitize the secondary market to leverage and develop assets that support preservafion activity in Saint Paul on arr ongoing basis. HSP, CDCs, NTHP, NR Develop preservation education programs to educate the community on the value of historic preservation and promote the use of historic districts to create wealth. HSP, AIA, HPC Designate additional local or National Register historic districts to maintain private investment into the city's housing stock. HPC Designate conservation districts in neighborhoods that have unique characteristics to encourage a preservation ethic and stabilize and enhance housing stock without perceived restrictions. HPC, PED Downtown Development Projects Downtown Saint Paui has a rich fabric of historic properties, landmarks, and places. Saint Paul has the opportunity to capitalize on in its "historic edge" by utilizing its past as a key economic driver for its future. While success stories like Lowertown suggest that Saint Paul has embarked on a preservation-based downtown development strategy, there does not appear to be a clear vision Historic preservation and the Mayor's Housing 5000 . Plan There may never be a better time for the City to convert ifs older office properties to housing. Results to date indicate the City's focus is on new construction as it manifests its vision for increased housing. Financing incentives for historic downtown property conversions The omission of historic commercial properties is a major flaw in the City's historic preservation incentive package. Connecting the dots Several other majorjurisdictions have moved to adopt smart rehab codes that lower the cost of rehabilitation and encourage loft conversions of downtown office and industrial properties. Caetting ahead of the market Key properties like Hamm's Brewery and the Union Depot should not be allowed to fall into private-sector hands when their adaptive use cold mean so much to the health and vibrancy of Saint Paul's downtown and older neighborhoods. Key opportunities A number of historic properties whose sensitive adaptation to new uses can make a significant contribution to the economic and community development of Saint Paul. These include: • Hamm and Schmidt Breweries . Head House/Sack House Page 5 of 10 • Union Depot • Post Office • Lowry building • West Publishing Building (Ramsey County West) Summary of Recommendafions: Saint Paul has a iarge number of significant CBD historic properties. As growth and change inevitably undermine the marketability of these older buildings, they shouid be adapted to new uses that support the land-use goals of the Comprehensive Plan. Inventory historic and older buildings in the central business district with special attention paid to properties available for potential redevelopment. HPC, PEQ SPRC Design an incentive financing package for CBD historic rehabs that meet certain criteria and conform to the goals of the Comprehensive Pian. PED Create a facade easement program to help developers achieve tax deductions and corcesponding property tax rate reductions for donating easements in perpetuity to a local nonprofit organization. PED, HSP, PAM Form National Register commercial districts to qualify contributing buildings for federal and, hopefully, a future Minnesota State historic fax credit and historic commerciai property tax freeze. HPC, SHPO Gain public contro! of key properties when available at the point of sale or foreclosure. Gity of Saint Paul, Ramsey Gounfy Develop an assessment process for historic properties that would give PED the ability to work with neighborhood residents and preservationists to objectively assess the feasibiiity of historic property rehab. PED, HPC, HSP Address the continuing needs in Lowertown - key projects to pursue on an accelerated basis would include the Farmers Market expansion and redevelopment of the Union Depot and Concourse as a mixed-use, inter-modal transportation center. PED, SAINT PAUL GROWER'S ASSOC/AT/ON LRC, LOCATE, RCRRA Develop and implement strategies to redevelop key historic buildings. All partners listed above, community parFners, and private developers Heritage Tourism Saint Paul is a city with remarkable resources and assets. Among these are the city's rich and diverse heritage, outstanding examples of architectural design, engaged citizenry, and an enterprisi�g and effeotive city govemment. Saint Paui is aiso a city struggling to determine its image — Will the emphasis be on modern or historic buiidings? What is the role of historic preservation? It a sports town or a cultural center? How does it compete with Minneapolis? Heritage tourism is a growing industry, and investment in preserving and promoting historic resources can have tremendous benefits. The city's heritage resources should be fully incorporated into every aspect of ptanning and promotion. Observations: A Cultural Heritage Tourism Plan for Saint Paul Two planning processes are currently underway, stimulated by the leadership of Mayor Randy Kelly: Saint Paul Cultural Plan — a planning process bringing together cultural resources from across the city to develop a state-of-the-art cultural plan as a key component of Saint Paul's "Renaissance." While there is much overlap between cultural and heritage tourism, the primary difference befween them is fhat heritage tourism is 'place-based', rooted in fhe locai Iandscape, architecture, people, and artifacts that makes a particular place unique. Cultural tourism celebrates the same kinds of experience with less emphasis on place. As the heritage and cultural visitor is often one and the same, it makes sense to work together to create appealing and well-rounded cultural heritage visitor experiences. (from Cultural and Heritage Tourism: The Same, Or Different?) Branding Saint Paul —An effort to `define' the city, for residents and visitors. The core of the "brand essence" was defined as °Gem, Narmony, and Efhic." Each of these words can effectively relate fo heritage tourism. Other words emerging from the process - historic, genuine, welcoming, entertainment, arts, and culture - further defined characteristics of Saint Paul that can be appealing to heritage visitors. Summary of Recommendations: Develop a Cultural Heritage Tourism Plan for Saint Paul to attract and serve heritage travelers following the four step, five principie approach for successful and sustainable programs advocated by the National TrusYs Heritage Tourism Program: Page 6 of 10 Four Steps: 1: X�ssess the potenfial – evafuate what Saint Paul has to offer. 2. Pian and Organize–make good use of human and financial resources. 3. Prepare for visitors, protect, and manage your cultural, historic, and nafural resources. 4. Market for success – look for partnerships in local, regional, state, or national groups. Five Principles: 1. Collaborate. 2. Find the fit between community and tourism. 3. Make sites and programs come alive. 4. Focus on authenticity and quality. 5. Preserve and protect resources. Make improvement of visitor services a priority. Such steps could include: • A Saint Paul Visitors Center • Way finding signage in downtown core and surrounding neighborhoods • Self-guided neighborhood tours to Saint Paul's ethnically diverse and historic neighborhoods • Joint heritage sites marketing materials • Off-season availability of heritage sites for tour groups and conventions • Better presence for Saint Paul Heritage Sites on the Minnesota Tourism DepartmenYs web-site • New interpretive maps, signage, and installations Raise the profile of Saint Paul's heritage resources in future marketing plans. CVB, MN Landmarks, HSP, City of Sainf Paul, hisforic atfractions, and neighborhood organizafions Conclusion Creating a preservation-based community and economic development ethic in Saint Paul should be relatively straightForward. In a city defined by its historic neighborhoods, dramatic vistas and monumental structures, grounding development on conservation principles should be an easy "sell." Certainly, the philosophical basis for such a strategy exists in the Comprehensive Plan for the City of Saint Paui. Thaf ethic can also be found at the grassroots level, with impressive historic rehabilitation projects undertaken in neighborhoods by community organizations. Historic preservation is not an esoteric discipline in Saint Paul, but a widely held value throughout the city. And yef, despife fhis appreciafion of hisforic preservation and obvious examples of its economic value, historic structures and neighborhoods are too often sacrificed in anticipation of greater economic benefit. That willingness to sacrifice the long-term value of stable, attractive and affordable historic neighborhoods and distinctive landmarks or vistas for short-term "benefiY' undermines Saint Paui's Iong-term potential. The observations and recommendations contained in the assessment report intend to reorient the City of Saint Paul, private developers and funders, and community development organizations to the greater economic opportunities that historic preservation and a conservation approach can provide. Partnership Cleariy, the breadth and voiume of recommendations in this assessmenf report are too great for any one organization. Historic Saint Paul is a relatively young organization and is still developing ifs capacity. A successful preservation development strafegy needs the cooperation and active participation of all sectors of the development community—public, private, and nonprofit. Timing For preservation development to be successfiul, all partners must take a long-view. While implementation should begin immediately, systemic economic and community development change occurs over decades, not months or years. Too often, ill-considered development projects occur according to a political calendar. With sufficient private and public policy support, decisions can be made in a larger context. Saint Paul has a strong planning office, as well as experienced planners and designers in private organizations. In should confinue to use that "in house" talent to its advantage. Next Steps This assessment report is the beginning of the Preservafion Development lnitiative in Saint Paui. Once these observations have been reviewed and discussed, Historic Saint Paul and its partners should identify priority projects and assign responsibility for leadership. The Preservation Development Initiatives office at the National Trust for Historic Preservation will work closely with Historic Saint Paul to determine which projects or programs should receive technical assistance associated with the PDI grant. We will also work together to identify National Trust assistance opportunities beyond the scope of the grant and in partnership with other organizations. Saint Paul offers the promise of a quality life that is not avaifable elsewhere in the Twin Cities area. Historic neighborhoods affordable to a wide spectrum of families; a compact downtown with places to shop, work, and live; beautiful scenic vistas of the river and surrounding bluffs—are all part of its character. Through a balance of preservation, conservation, and weii-designed new development, Saint Paui will become the city of choice in the region. Page 7 of 10 2. Commercial Revitalization Lead Groups Comments Recommendations 2.1 Conduct study of financing tools & HSP, City As recommended in the Saint Pau! Downfown incenfives. Council Development Strategy Research, HPC, Capitol River Council 2.2 Designate downtown sites and districts HPC Re: Saint Pau/ Survey & Designation Project to su ort use of incentives 2.3 Identify historic building candidates for PED, HSP, Look for demonstration project to encourage conversion to housing Capitol River adaptive use. Council 2.4 Develop citywide neighborhood Main PED, LISC, HSP, Continue to work on design of citywide program in Street network & neighborhood a coilaborative process. Involve universities and development other partners. or anizations 2.5 Work w/ National Trust NTCIC and PED, Identify specific projects to include in next round of others on using New Markets Tax Credits NTHPlNTCIC, funding from US Treasury CDFI Fund. to increase local lending LISC, Iocal Communiry Development Entities CDE's Page 8 of 10 Summary of Recommendations & Implementation Partners 3.1 Establish Center for Collaborations. I HSP I With support from LISC, PED, Council members, Desiqn Center. 32 ... �yE�\44fii NTHP/PDI, financial institutions and area foundations. Develop creative lending tools with reservation orientation. 3.3 Create preservation loan fund. HSP, LISC W/ coalition of private funders (realtors, financial institutions, etc.) to improve marketability of historic neighborhoods and enhancements not covered by 3.4 Use secondary market. 3.5 Develop preservation educaiion 3.7 Designate conservation districts. & NHS of America. Levera e loan funds for reafer im act. HSP, AIA, HPC Involve neighborhood organization as sponsors. Work throu h schools and other rou s. HPC As mentioned in other sections, but targeted at neighborhoods. Especially West Side, Frogtown, Work w/ neighborhood groups where historic districts may not be an option. Or use as way to "gently" encourage preservation ethic. Consider incentives/orotections to accomnanv desianatio� 4. Downtown Development Lead Group(s) Comments Recommendations 4.1 Inventory historic and older buildings in HPC, PED, Similar to recommendations above. Remember to the CBD SPRC also inventory older, non-historic buildings that could use the 10% federal rehabilitation tax credit. 4.2 Design and incentive financing PED Criteria should conform to and support goals from package Comprehensive Plan. Work through Mayor's office on state and local incentives such as state historic tax credit & commercial property tax freeze/abatement. 4.3 Create a fa�ade easement program. PED, HSP HSP can become holder of easements that encourage preservation and provide tax deductions for ro e develo ers. 4.4 Form National Register districts. HPC As noted above, this is a most useful tool for contributing "background" buildings to use incentives. 4.5 Gain public control of key properties City/Counfij Collaborate on early intervention when possible at when available. point of scale or foreclosure. Package for redevelopment within the broader development oals 4.6 Develop assessment process for PED/HPC w/ Work w/ neighborhoods to create a system to historic properties. HSP evaluate historic, cuitural and economic value for key properties. This creates objective feasibility rocessforrehab. 4.7 Address continuing needs of PED, LDC Continue to foster Lowertown development, as it Lowertown. may spin-off development in adjacent areas. Focus on key properties. Page 9 of 10 5. Herita e Tourism Recommendations Lead Grou s Comments 5.1 Develop cultural Heritage Tourism Plan Minnesota This is the primary recommendation for Heritage for Saint Paul Landmarks, CVB Tourism. A step by step concept is outlined in the • Assess the poterttial w( support of assessment report. Ensure that heritage sites are • Plan and organize HSP, City, and integral part of overall City tourism development • Prepare for visitors historic strafegy and address unique issues faced by those • Protect and Manage resources attractions attractions. Include heritage site development and • Market heritage in the "branding" marketing in tourism funding. of Sai�t Paui • Enhance profile of Saint Paul's herita e theme Page a0 of 10 r .. C O MMUN I'LY REVITALIZATION NATIONAL TRUST 6HI31'ORIC PRESEEVATIOY_ Preservation Deve(opment initiative Preservation-Based Community & Economic Development in Saint Paul National Trust's Preservation Development Initiatives Encourage and support preservation- based community and economic development through technical and financial assistance. Why Saint Paul? • Strong neighborhoods • Wide variety of historic resources • Network of neighborhood groups & CDCs • City initiatives offer opportunities • Some resources available for preservation development • Citywide preservation organization & partners • 2007 Preservation conference PDI Primary Strategies in Saint Paul • Reuse key sites • Convert downtown buildings to housing • Citywide `Main StreeY effort • Secure additional resources for incentives • Preservation Development Loan Fund • Heritage tourism • Strengthen Heritage Preservation Commission & `preservation infrastructure' 2 Preserve & Reuse Key Sites • Head & Sack House interpretive centedrestaurant • Union Depot/Concourse transit hub • Hamm's Brewery mixed use Head & Sack House • Transportation, industrial, river & social history interpretive center • Reuse in a prime location that compliments new residential development • Demonstration of preservation development tools — HTC, NMTC, public/private partnership 3 Union Depot/Concourse • Multi-modal transportation hub potential • Compliments other riverFront development plans • Strengthens Lowertown as a `neighborhood of choice' • Higher/better use of facility Hamm's Brewery Complex • Neighborhood asset • Opportunity for city to guide a development sensitive to park & neighbors • Mixed use opportunity �� Citywide Main Street Network • Build on existing successes • Develop resource network � Use national models as a basis, but customize for Saint Paul Boston Main Streets • 386 net new businesses • 2,761 net new jobs • 217 storefront improvement projects • $1,904.897 private rei nvestment leverage Boston ��,2II �� rnamas M. Manim M3yrorat Boswn » Preservation Development Loan Fund • $1.7 million minimum lending program • Leverage PDI demonstration fund for a larger resource • Line of credit Secure Resources for Incentives • New Market Tax • Use secondary Credits market to expand fundingfor • Historic preservation Rehabilitation Tax development Credits • Preservation • Targeted use education incentives programs 0 Integrate Heritage Tourism into City's Marketing Efforts • Link to city marketing • Coordination between attractions • Combine `heritage' & `culture' marketing • Improve visitor services Strengthen the Heritage Preservation Commission Staffing — planning, permits & enforcement HPC in planning HP ordinance revision — Resource list — Demolition stay — Demolition by neglect . • Redraft design guidelines • Refresh surveys/ broaden • Increase local designations • Statewide advocacy — Tax credits — Main Street — SHPO �l � ��11V�l� 1�' ��I �1_ � �I�1�1� ( �� \� �II_ I l��l'�1�:�1�:I'�� l�l��>\- I�I �� ( � � ll\ � r I�� _ I � � � � �:�11�VI��1.�� IIuII�IYI�I;I�: li� 1�:1"��>1.;�I� �1��> �1�[-1 l�: ��1�I�� 1��>I��I [ I�� I�: �� I�: � I I.> I�; I'� 1`�� `�� SeinE Pnnl Cify Council December 1996 Hiaforic Preeerva£ion Honein� t>dvimry C.ommifEee ReporE Eo £he Conncil COMMITTEE CO-CHAIRS: Richard T. Murphy Sr., Saint Paul Heritage Preservation Commission �. Imogene Triechel, City of Saint Paul Planning Commission COMMITTEE PARTICIPANTS: Gary Ballman, Ramsey Hill Association Carol Carey, Upper Swede Hollow Neighborhoods Assn Kris Danielson, North End Area Revitalization, Inc. Angela DuPaul, Upper Swede Hollow Neighborhoods Association Karen Hartvigson, Summit-University Planning Council Mervin Hough, Summit-Uaiversity Planning Council Cynthia Kath, Greater Frogtown Community Development Corporation Michael Koop, Minnesota Historical Society, State Historic Preservation Office Tom Lloyd, West Side Citizens Organization Alice Magnuson, Sunt Anthony Park Community Council Judge Margaret Marrinan, Ramsey Counry Historical Sociery Mary Michel, Summit Ave. Residential Preservation Association Deborah Miller, Saint Paul Heritage Preservation Commission Dennis Roberts, Dayton's Bluff Neighborhood Housing Service Travis Schultz, Dayton's Bluff Center for Civic Life Kate Severin, Thomas-Dale/Dist. 7 Planning Council Laurel Severson, West Seventh/Fort Road Federation Richard Taylor, Dayton's Bluff Center for Civic Life Michelle Vojacek, Communiry Member At Large COMMITTEE STAFF: Beth Bartz, Planning Division, Planning and Economic Development Depaztment Mazcia Moermond, Ciry Council Research Sheri Pemberton, Housing Division, Planning and Economic Development Department Aazon Rubenstein, Office of Liscence, Inspection and Environmental Proteccion S�E Pa�,l C.t Co,.��l DeamLer 1996 HisEoric Pxeeranfioa Hon� Ad.; eory �'.ommi£4ee ReporE Eo fLe �'.ovncil II . I \�YI � I.� �� II� � � � _ I _ I ��a \- A. Charge to the Advisory Committee The Saint Paul City Council directed the formation of the Historic Preservation Policy Advisory Committee on December 20,1995 bued on the recommendation of iu Community and Economic Development Committee. The Community and Economic Development Committee had reviewed the Planning and Economic Development Department's Houses to Homes program over the course of four meetings and concluded that the program's goals and objectives were still addressing critical needs in tfie City. Houses to Homes was established in 1990 and works to reduce vacant housing in the City's neighborhoods and rehabilitate houses so that they provide incentive to their neighbors to maintain and improve their own properties. However, the Community and Economic Development Commitcee also found that current City policy was inadequate and could not provide sufficient guidance when the City Council or Housing and Redevelopment Board faced decisions involving historic buildings being rehabilitated by the Houses to Homes program. In order to address this policy need, the Historic Preservation Policy Advisory Committee was formed to: 1. Develop specific policy recommendations for the City Council and Housing and Redevelopment Authority (HRA� Board to assist them in the policy and funding decisions they face; 2. Develop broad-based guidelines and recommendations regarding history, heritage and historic preservation in Sainc Paul; and 3. Consider the eactent and conditions under which higher rehabilitation/restoration costs are justified for preservation of historic chazacter. The Advisory Committee was made up of representatives which were designated by many local organizations, including district councils, community development corporations and neighborhood- based historic preservation groups. These groups aze listed below. � Saint Paul Planning Commission � Saint Paul Heritage Preservation Commission o Minnesota Historical Society � Ramsey County Historical Society � Upper Swede Hollow Neighborhoods Assn. � Ramsey Hill Association ° Uppertown Preserva[ion League ° Irvine Park Association ° Summit Avenue Resiclential Preservation Assn. � Historic Dayton's Bluff Association � Representa[ives of Distria Councils 3, 4, 5, 6, 7, 8, 9, & 12 � Representatives of Community Developmenc Corporations from � North End Area Revitalization � Neighborhood Development Alliance � Eas[ $ide Neighborhood Development Corp. o Dayton's Bluff Neighbozhood Housing Serv. Two Communixy Volunxeers to be selected by the City Council President Sn;nt Pmil City Cunacil Decembo: 1996 Hieforic piexrvnEioa $oneing l�dviwry (�.ommiffee ReporE Eo £�e C.onncil The Advisory Commiitee was co-chaired by Imogene Triechel on behalf of the Planning Co mmicclOII and Richazd Murphy on behalf of the Heritage Preservauon Commission. The Advisory Committee held meetings from January through October of 1996 to idenrify key issues, conduct research where possible and develop recommendations. Decisions were reached by consensus. The Advisory Committee focussed iu discussions on the overall policy direction the Council should consider for the future, rather than on the more technical aspects of policy implementation. Although many members of the Advisory Commiaee have uchnical and professional eapenise in housing and historic preservation, they believed that they would best serve the Council's interesrs by acting as a"citizen committee" rather than a panel of egperts. This being said, the report is divided into the following sections: I. Inuoduction A. Charge to the Advisory Committee B. Advisory Committee Values II. Background A. His2oric Preservation B. Houses to Homes III. Benefiu of Rehabilitation and Preservarion A. Historic Preservation B. Houses to Homes IV. Recommendations A. Housing and Preservation Policies B. Financial Considerations C. Reducing Costs D. Simpli£ying Processes E. Altemative Funding Measures B. Advisory Committee Values During the course of iu meetings and discussion, the Advisory Committee concluded there were a number of important values which guided their thinking. Some of the central values articulated aze listed below. 1❑ The key issue is preserving neighborhoods. Rehabilitauon and historic preservauon are integral strategies towazd maintaining a sound hovsing stock in the City's neighborhoods. 2❑ The Advisory Committee scrongly believes that hiscoric preservation and housing rehabilitation aze complementary activities which aze not in competirion with one another, as they work toward the same goal of preserving and maintaining suong neighborhoods within 2 Sa;ne Panl Ci[ Co�il D�b� 1996 F3.�� P,c�a�on Hon� Ad.;�,� Co�,;r� R�� i,e Co��l the City. Historic preservation and housing rehabilitation are part of a continuum of reinvestment in our neighborhoods, along with infill housing on vacant lou in azeas which will support denser housing. 3❑ Solutions to the City's challenge of maintaining iu aging housing stock should be neighborhood based and neighborhood-specific in order to be successful. 4❑ Neighborhoods which are diverse in terms of the people living there and the rauge of housing scock aze the most likely to succeed. 5❑ Old homes are one of Saint Paul's most important asseu, and they should be nurtured as valuable and irreplaceable resources. 6❑ Our most successful housing and neighborhood programs capitalize on classic urban residential values, such as connection to neighborhood and community, an appreciation of older homes, a sense of the value of city amenities and diverse communities. 7❑ The City's housing stock is a form of infrastructure, similaz to roads and sewers. However, because housing is "privately occupied" me, as a society, expea public investment in housing to provide a fast and easy-taunderstand payback. This puts publicly-funded housing efforts in the difficuit position of justifying expenses which yield benefits over many years, and in many ways beyond the investment in a single site. 8❑ A sound housing infrastructure which provides a vaziety of styles, sizes and ages of homes for a socially and economically diverse population is the key to the success of our neighborhoods and our Ciry. 9❑ Solutions to the City's aging and deteriorating housing stock will take time. These houses and neighborhoods took many years to reach dilapidation, and it will take time to make them vibrant again. I I. I:�.�� 1�� Jl��t ��1�� A. Historic Preservation Saint Paul prides iuelf on being a historic City and certainly the historic nature of the city enhances our environment. Saint Paul's historic resources, whether Cass Gilbert's State Capitol building, buildings reflecting the city's historic status as a railroad hub, workers housing in Frogtown and the North End, the range of styles of residential architecture on Summit Avenue, or the Indian burial 3 S�f Penl C:y C��;1 D�be:1996 HieEoric Pmeerva6oa Hweing t,dvieory C.omnui£ee ReporE 4o ELe �.onncil mounds on the river bluff east of downtown, aze special and unique resources that cannot be duplicated. Hiscoric structures and sites, and housing in pazticulaz, are resources that differentiate the City from modern suburbs and that can be marketed as a special attraction of City life. Saint Paul is also a City of neighborhoods of distinct historic character. Preserving and enhancing the city's historic character, from individual buildings to historic districts, neighborhood commercial nodes, tree-lined streets, public places with public life, and even the egistence of sidewalks, make the ciry generally and Saint Paul in particulaz special and attractive. Historic preservation efforts seek to identify and preserve the characterdefin'ing elemenu of historic structures and sites—such as the round rurreu of the Landmazk Center or the combination of narural elemenu and human habitation in Swede Hollow while allowing for changes that do not have adverse impacrs on character-defining elemenu. Preservation is a tool for economic development, fo: com:nunity revitalization, for building a sense of community and identity, for preserving and enhancing imporcant communiry resources. Historic Preservationisu use rehabilitation terms in very specific ways. W/e provide tbese �nitions to assist in clarifying their meaning. Houses to Homes "Rehabilitation" is the repair of a house as it currently exists which resulu in the replacement or repair of all faulty major systems and makes the house competitive with new construction and which results in the house meeting current health, safety and buil standards. Mistoric Preservation � Rehabilitation resulu in the repair or replacement of building systems with an effort towazd duplicating the original appeazance as much as possible. �°Mothballing" is protecting a building, without improving it, to allow for future rehabilitarion or restoration. �"Restoration" is a full-blown effort to rerum a house to iu original (museum quality) appearance, *�*�+*++*+g as much of the original material as possible in the process. Simply put, the goal of historic preservation is to preserve important cultural resources—buildings, other suuctures, landscapes, and azcheological resources–in order to: fos2er awazeness and appreciation of the city's history; promote the city's historic identity; C� Sniat Pa,.l C:ty Covno;l D�en,ba 1996 Hieforic Preceron£ion Honeing 1�avieory C.ommiEfee ReporE fo f�e Conaci� o build on the city's unique resources and reuse what we already have; � help create suonger neighborhoods, including low/moderate income azeas; � create jobs, investment, taa base, and distinctive housing, commercial, industrial and institutional opportunities; and � make the aty attractive to residents, businesses and visitors. The purpose and goals of historic preservation are cleazly staud at the beginning of Chapter 73 of the Ciry's Legislative Code, entitled "Heritage Preservation Commission.° nt Paul 73.01 Declaration of Public Policy and Purpose The council of the City of Saint Paul hereby declazes as a matter of public poliry that the preservation, protection, perpetuation and use of azeas, places, buildings, structures and other objects having a special historical, community or aesthetic interest or value is a public necessity and is required in the interesc of the health, prosperiry, safety and welfaze of the people. The purposes of this chapter aze to: (1) Safeguard the heritage of the City of Saint Paul by preserving sites and structures which reflect elemenu of the city's cultural, social, economic, political or architecrural history; (2) Protea and enhance the City of Saint Paul's attraction to residents, touriscs and visitors, and serve as a support and stimulus to business and industry; (3) Enhance the visual and aesthetic character, diversity and interesc of the City of Saint Paul; (4) Foster civic pride in the beauty and notable accomplishmenu of the past; and (5) Promote the use and preservation of historic sites and structures for the education and general welfare of the people of the City of Saint Paul. At this point, we want to discuss what bistoric preservation is not about, in order to avoid preventable misconceptions. ❑ Historic preservation is not about saving everything that is old. ❑ Historic preservation is not for making old houses look cute and overly omate. ❑ Historic preservation does not mean desia ing new buildings in historic districts to look old. ❑ Historic preservation turning people's homes into museums. ❑ Historic preservation does not compel owners to restore their older homes. It does mean respeaing the original design intent and character of hiscoric structures and sites. 5 Sam£ Pavl Ci£y Council Decembcr 1996 Hie(aric Preservnfion Houeing Advieory (�,ommiE£ee ReporE Eo E�e �.'ouncil a House uH ❑ Designation by the City of Saint Paul, either as a single site or a pazt of a districc. ❑ Listed on the National or State Register of Historic Places either as a site or a part of a district. ❑ Listed in the 1983 Saint Paul and Ramsey County His�oric Sites Survey as being eligible for designation as a"site of major significance.° ❑ Uncovering of previously unconsidered information which revea]s significance (usually for sites with historic rather than azchitectural significance). 0 Identification of a building by a community (geographic, cukural, etc.) as being important to their idenury and heritage. B. Houses to Homes The Houses to Homes program was created in 1991 to address vacant houses in neighborhoods across the City. Neighborhoods had identified vacant housing as a key factor in dedining neighborhood confidence and quality. Vacant housing was triggering a"continuum of disinvestment" across the City as it provided a disincentive for maintenance and inves�ment for adjacent and neazby properties. (See diagram on the following page.) Poorly maintained properties discouraged purchase by potential homeowners, leaving these houses to be purchased and often subdivided for rental property or le$ vacant. Continuum of DISINVESTMENT � � �` .;�° � „ h: � � . �� . . - ✓`'�`��"�`� s f ` sy ° x" ` 0 S�t P�1 C�t Co�� D��mLer 1996 HieEoric Picacrva£ion $o¢einS 1,dvieory C.ommi£4ee ReporE bo f.be �`.onncil- Continuum of REINVESTMENT - �—� __ � _ ��s��:-.ti I � neighborhood confidence � �� Rehab Houses to Homes im proved properties � improved adjacent roperties esonomic J development �� The creators of the Houses to Homes prograzn believed that public investment in poorly maintained and vacant houses could break this cycle. Neighborhood confidence would be bolstered and homeowners encouraged to reinvest in their property creating greater neighborhood quality. The City-Council-adopted Saint Paul Housing Policy for the 1990s articulates many policy goals which are addressed by the Houses to Homes Program. The Houses to Homes program works to rehabilitate vacant houses not only so they may be reoccupied, but to a level that can act as an incentive for other investment in the revitalization of the City's neighborhoods. Houses to Homes also provides money for the demolition of vacant structures and the consuuction of new housing in the City's vacant lots. To date, over 232 vacant houses have been rehabbed and over 341 demolrshed througb the Houses to Homes program. �Sa;nt Pa,�l Ci[y Coun�J Decen.ber 1996 � Hieforic PneeroeE�on Houaing 1�Advieory Commi£fce ReporE Eo E}ie C.`ouncil 'AUL HOUSING POLICY GOALS ADDRESSED BY THE HOUSES TO HOMES PROGRAM 1. Neighborhood Confidence � maintain a Iugh level of owner occupancy in single-family and duplex strucmres; � sound housing mazket indudes well-maintained property and improving physical quality of housing; � safety- freedom from fear of crimes, primary consideration in housiag mazket; and o economic and soaal diversity in neighborhoods is essential to have an adequate level of reinvestment for the maintenance of older neighborhoods. 2. Neighborhood Quality � encourage appropriate conversions of property to ownership structures and unit configurations that meet cunent needs to attsact and maintain home owners; o need for resources to match the serious revitalization needs of constandy aging housing stock and a competirive hovsing mazket; � eliminate problems of illegal and disruptive behavior; and � solve land use conflicts. 3. Housing Opportunity o make changes to the housing supply through renovation, redevelopment and new construction that will conuibute to the balanced population objective and to newer needs in the city's changing populations. Vacant houses aze selected for ueatment with neighborhood input. Factors affecting the decision regazding appropriate ueatment for a particular propercy include the neighborhood setting, condition of the scructure, cosc of rehabilitation and the egpected sale value after rehabilitation. These decisions also musc consider the level of rehabilitation and improvemenu needed to create a positive "ripple effea" on the adjacent propercies and the neighborhood as a whole. Progxam guidelines have set the level of public subsidy available for these propemes which in turn place concr+y;nu on the amount of rehabilitation that can be done on each property. In 1995 questions regarding the appropriaze level of treatment azose when subsidy level waivers were requested on three properties for historic preservation reasons. One property was located within a Ciry-designated historic districc; the other two had been identified as azchitecturally significant properties in the Ramsey County Historic Sites Survey, but were not officially designated. Questions then arose as to when such waivers could be justified for the purposes of preseroation. In other words: when does the value of preserving historically significant propenies and the positive effects historic properties can have on neighborhoods justify the cost? It should be noted here that aL Zeast 12 historically designated pmperties and many more arrbitecturally significant properties bave been rehabilitared thmugh rhe Houses w Homes program avithout subsidy waivers. Future sections will discuss this issue further, but firsc, some background on historic preservation. 0 S�f P�1 C.t C��1 Due�r 1996 HieEoric Preeeron4ion Housmb 1�Advieory (.`ommiE4ee ReporE fo £he �.`onncil- - I l l. InI�:AI�:1� I�I�� >I� I'�I�:I ��I.�II1.1�I� ��I�I��\ '�\II� I�'1'�[�:�I:1'�� l�l��>\ The Advisory Committee believed it was criucal to first explore the potential benefiu to Saint Paul of providing City money for housing rehabilitation and preservation efforts. After all, if these projects do not provide sufficient direct and indirect benefits or "returns on our investment; perhaps we should not be in the business of financing such projecu. Therefore, the Advisory Committee established a two-prong reseazch approach to address this issue. The Advisory Committee worked in two subcommittees--one focussed on housing rehabilitation and the other on historic preservation. Each subcommittee evaluated vazious methods for documenting potential benefiu of preservation and rehabilitation. A. Historic Preservation The Historic Preservation Subcommittee analyzed several areas of potential impact of historic preservation. Although its focus was to determine the impacts of preservation Iocally, many other cities were considered in their analysis. We feel that hiscoric preservation makes economic sense because it creates jobs, investment, increased tax base, and distinctive housing, commercial, industrial, and institutional opportunities. An exauunation of Saint Paul's five lustoric districts reveals the importance, role, success and benefits of historic preservation. ❑ Lowertown has been rebom as a commercial and residential neighborhood with new offices, residences, arcists studios, and restauranu, all bringing new investment, tax revenues, and life to the city. The National Trust for Historic Preservation recognized Lowertown's success through a 1995 awazd to the Ciry of Saint Paul, Lowertown Redevelopment Corporation, the McKnight Foundation, and Historic Landmazks for Living. ❑ Irvine Park was a run down, long-neglected neighborhood which the City played a major role in revitalizing. Now it is a gleazning, well-preserved, little jewel and a delightful neighborhood in which to live. ❑ The Historic Hill area was once dilapidated, red-lined by banks, and slaud for demolition/clearance under the guise of "urban renewal". By preserving and enhancing the historic character of tlus neighborhood, residenu and the City have reclaimed irreplaceable historic resources and created both a strong, viable, and beautiful neighborhood and tremendous economic value. ❑ Dayton4 Bluff has both grander and more modest historic homes. There preservation is being used to stabilize and improve the neighborhood physically, socially, and economically by creating a stronger sense of communiry identity, bringing in new investment to rehabilitate 0 S�e Pa,.l C�cy Co,�:l Ik�� 1996 Hiafonc Preeerva£ion Houaiag t,dvieoay �'.ommi£Eee � ReporE fo f�e Council historic housing, and, it is hoped, create a healthier neighborhood where low and moderate income families live togecher (rather than moderate and upper income people displacing low income people). The firsc evidence of the success of these efforts is appeazing — the sale of 324 Bates and 723 E. Third Street, the firsc houses to have sold for over $100,000 in the neighborhood; the revitalization of the Third Street gateway azea; and the opening of the Swede Hollow Cafe on Easc Seventh Sueet. ❑ The Summit Avenue West historic district is unique in that preservation wu not needed or used as a communiry revitalization tool. In this case, historic district status ensures that future changes to strucrures and the distria do not hazm or destroy the district's historic character. 1. Property Values wthin Historic Districts In an initial anempt to quanrify the economic benefiu of historic districts, we examined a 10% sample of residential properties within three his[oric districc boundazies. Changes in property values within the sample were then compared against both changes in city-wide residential properties and in the tas wazd in wfiich the historic district is located (see map on the following page). Ciry-wide and tax ward data were taken from the Usage Classi£cation Report published annually by Ramsey County. Adjus�ed for inflation, residentaial property values in the Historic Hill Distria rose 163% since 1981 while residential property values rose only OJ°k in Tas Wazd 7 and decreased 18.2% citp wide. During the same time period, residential properties values in Irvine Pazk rose 13.6°k for the sample, while Taac Wud 5 residential property values decreased 15%. (See Tables 1 and 2) Therefore, it appears that preseroation efforts in both of these areas yielded significandy increased property values in comparison to their surrounding neighborhoods and the city as a whole. Table 1. Aggregate residential property values in the Historic Hill District as compared with Tax Ward 7 and city-wide trends. Aggregate value in 1981 (1995$) Aggregate value in 1996 °k change Hici oric Hill sample 11,583,286 13,466,700 16.3% 10 Tag Ward 7 555,041,033 559,049,600 0.7% SeinE Paul Ciiy Counoil December 1996 Hie6oric Preeeava£ion Honemg Ad.ieory CommifEee IZeporE 40 £lae Connci� Table 2. Aggregate residential property values in the Irviae Park District as compazed with Ta.e Ward 5 and city-wide trends. Aggregate value in 1981 (1995$) Aggregate value in 1996 % change Irvine Pazk sample Talc Wazd 5 752,124 465,313,028 854,300 13.6% 15.0% 18.2% Saint Paul Sotnce�Ramsey (All numlmn ac »zs, ]981 and 1996. using tlx ConsumerPricelndeGJ 395,515,650 11 Sain4 Penl CiLy Connoil DxemLer 1996 His6oric Preserva6on Housiag 1,dviwry Commi£Eee ReporE 4o f�e �.onacil For comparison's sake, a similaz egamination of the Dayton's Bluff neighborhood was undertaken but yielded less positive results. Again a sample of property values was exa**,;,,ed, although this time for the period 1993-1996, as the Dayton's Bluff Heritage Presen�ation Disuict has only been in effect since the fall of 1992. During this time, residential properties values decreased 14.1°k for the Dayton's Bluff sample. Values changes of individual properties within the sample ranged from -83.6% to 79.3%. During this same period residential properties values in Tax Ward 2 decreued 7.7% and city-wide decreased 4.5%. (See Table 3,) Table 3. Aggregate residential property values in the Dayton's Bluff District as compazed with Tax Wazd 2 and citv-wide trendc_ Aggregate value in 1993 (1995$) Aggregate value in 1996 % change Day[on's Bluff sample Taa Wazd 2 Saint Paul 3,352,562 i,235,036,374 2,880,600 -14.1% 1,139,548,800 -7.7% 5,762,096,550 -4.5% Smnre•Ramsey Couniy UsageRepom,1981 asd 1996. (A7[ numlxrs adjustelfar in/lation u.arsg die ComumerP�icelndecJ While these numbers appear to indicate a negative influence of the historic district on properry values, we must note here that this neighborhood is undergoing a substantial change from rental to owner- occupied residences and multiple unit buildings aze being converted into dupleg or single family residences. Deconversions of propercies from multiple-unit rental to singlrfamily owneroccupied (and/or duplex) usually decreases a property's assessed value. One eacample of this dynamic is the case of 7� East Third Street. This properry was a five-unit rental property which was converted to a single-family home. Inirially this deconversion resulted in an 83.6% drop in the property's assessed value. However, recent appraisals value the property at 150% of iu previous rental value. There are many new home owners in Daycon's Bluff rehabilitating formerly vacant and/or dilapidated structures with private resources who were attracted by the discuict. While it may be a number of years before the neighborhood realized any mazket impacc from the renovation projects, the properties are owned and occupied by home owners, rather than falling into the hands of absentee landlords—which is a concern in this neighborhood where residents believe there is a still a somewhat precarious balance between owner-occupied and rental homes. This factor alone has had an immediate positive effect on the quality of life on many uonbled blocks throughout the district. While the above resulu provide some insight into the effea of historic districu on residential property values, one cannot draw any conclusions on the effect of historic distria regulations alone on property values. Tfiere are several factors which vary considera6ly among these districts wluch would influence the assessed values, including: ❑ the amount of time the distria has been in esistence; ❑ the amount of public dollars used to subsidize rehabilitation; ❑ the public infrastructure invescment; ❑ the economic condiuons at the time of designation; and ❑ the quality and type of su-uctures within the districts. 12 Sa;n£ Paal C:cy Conncil December 1996 H.a�� Pn�fi� Han� A�;� Co�,:tt� R�� Co�� : A significant research effort would be needed to separate the effeccs of these other variables from the effects of the historic distritt regulauon alone. 2. Leveraged Investment Anecdotal reports inform us that the governmental acknowledgment of the importance of a neighborhood through districc designation iu regulatory protections encourage invescment in properties. Real estate agenu report that potential home buyers aze more comforcable in making a significant rehab invesrment in a historic house when they know district regulations aze in place to conuol what will occur on adjacent properties. Dayton's Bluff is one example. Even though the neighborhood hu at times received negative press coverage, the public acknowledgment of the value of this neighborhood through district designation has encouraged home owners to buy and business owners to invest and bring jobs and services to this troubled neighborhood. The Dayton's Bluff Community Council extensively mazketed the historic district following designation to encourage sales and rehabilitation in the neighborhood. Their follow- up indicated that over 70 home owners who purchased during the four years following designation indicated they would not have done so had the historic district not been in place. Mervyn Hough, owner of A Toast to Bread, moved his business to 705 E. Third Sueet just after the designation of the Dayton's Bluff neighborhood as a historic district: The fact that the Bakery's location was in tfie fiistoric district made us feel that the property values would stop declining and that city government supported tbe idea of preservation and revitalization of the neighbarbood It �as a key reason for picking that location. Cazol Carey offered similaz thoughts on her business, the Swede Hollow Cafe: Clearly, the opening of tbe Swede HolZow Cafe is directly related to the designation of Dayton's Bluff as an Heritage Preservation district. It is likely that neitber my partner ar myself would be liuing in the area and investing in a new business—and hiring East Side residenu—without the economic safety net an historic district provides. Sine rhe Cafe has opener� we have had a great response from people interested in East Side history—and they're zvilling to share photograpbs arul stories. Peaple of all ages have stated over and over ho� excited tbey are to see new, positive uses being put to old buildings, and to see the neighborbood start to "eome around n 3. Tourism Hiscoric preservation attracts tourists as well. The Minnesota Hiscorical Sociery (MHS) estimates that over 750,000 people visited Saint Paul MHS Historic Sites from July 1, 1995 to June 30, 1996. (See Table 4� Using Minnesota Department of Tourism rates on tourism spending, we can estimate that E�3 Se:n£ Paul City Cuuacil Deaembcr 1996 HieEoric Preearva{ioa Houaiag a�dvieory �.ommi£fee ReporE Eo £he ('.onncil over a18 million was spent locally by visitors to these sites.' Participation in neighborhood tours provides evidence that tourism interest eatends beyond these museum sites into the neighborhood historic districcs. Over 10,000 visitors come to our neighborhoods annually in the follow activities: ❑ MF35 records indicate that over 1,200 participated in organized tours of the F3istoric Hill Disuia and Irvine Park during the 1996 federal fiscal year. ❑ During the F. Scott Fitzgerald celebration in September over 1,500 participated in guided uolley tours of the Hill District azea and tour organizers claim that three times that many were turned away. ❑ An estimated 6,000 - 7,000 participate annually in the Ramsey and Summit Hill House Tours. Historic Home Tours sponsored by the Historic Dayton's Bluff Association have drawn over 5000 pazacipanu to the neighborhood The Dayton's Bluff Community Council has distribuzed over 6000 driving tour brochures since the distria was created in 1992. Academic arclutecmral tours run by the University of Minnesota and Saint Paul Public Schools Communiry Education, fundraising tours run by charitable o* a ni�ations and the Minneapolis-Saint Paul Home Tour (featuring many historic homes in the Ciry's historic districts) bring even more visitors into these districts. These visitors not only spend money in local restauranu and scores, but are inuoduced to some of Saint Paul's most atuactive neighborhoods as possible locations to purchase a home or open a business. 4. Research from other cities Srudies from other cities also demonscrate that propercy values in hiscoric discriccs show a similaz trend when egamined against comparable azeas thaz aze not designated historic disaicts. A study of Galveston, Tegas and Fredricksburg, Virginia by the Government Finance Officers Association found that property values in historic districu in these two cities rose from one and one-half to j'zve times bigber than in other comparable azeas in these cities from the 1970s to the i990s. �The Minnesota Department of Tourism escimates that visitors to attractioas, on average, spend approximately $31.51 per site visited. The total number of visitozs to Saint Paul MFi$ Historic Sites is 758,363. Eliminating visits by school children reduces that number to 572,913. Mukiplying that number by 531.51 yields 518,052,489. 14 Sein£ Pnnl Ci£y Co�cil Decembcr 1996 HiaEoric Piceeavnfioa $oneinb tldvimry Commif#ee ReporE Eo 4]ie Conncil The Preservarion Alliance of Virginia conducted a study of the economic impact of preservation on jobs, business and community across the scate of Virginia. The study found that: ❑ Preservation visitors stayed longer, visited twice as many places, and spent two and one-half times more money than did non-preservation visitors. ❑ Every $1 million spent on historic rehabilitation in Virginia creates 3.4 more jobs than does the same amount spent on new construction. ❑ Assessed residential property values in Staunton's four historic districts increased at a higher rate than in azeas that aze not historic districts. Donovan Rypkema syathesized a number of similar scudies in his book The Economics of Historic Preservacion and presents 100 reasons why preservation makes good economic sense. Among his findings: ❑ Historic rehabilitation is a cost-competitive aliernative to new construction. "When the cosc of a high-quality new building is compazed to the quality rehabilitation of a historic building... a consistent pattern emerges. If no demolition is required, a major commercial rehabilitation will probably cost from 12% less to 9% more than the cost of comparable new construction, with a rypical cosc savings of about 4%. If, on the other hand, a new construction project inciudes the costs of razing an�isting building, the cost savings from rehabilitation should range from 3 to 16 percent." ❑ Incentives are often a necessary catalyst for historic preservation but consistently a cost- effective one. "Over the last 20 years, for each dollar appropriated by the Rhode Island General Assembly for historic preservation, the state has received $1.69 in new state tax revenue. The overall benefit to our scate's economy was $29 for each state dollar appropriated." (Edward Sanderson, Preservation Forum) ❑ I'reservation creates more jobs than the same amount of new construction. One million dollazs spent on preservation rather than new construction will resuit in $120,000 more dollazs staying within the communiry initially, five to nine additional construction jobs and 4J more new jobs eisewhere within the communiry will be created, household incomes will increase $107,000 more, retail sales will increase $142,000 —$34,000 more than with new constnxction, and service businesses also benefit more. ❑ When encouraged tfirough a comprehensive strategy, historic preservation actizrity can have the same impact on the community as larger projects. "Success isn't measured by a single development, but through the compounding impact that a number of projecrs will have over time... the beneficiaries of historic preservation aze not limited to those in the construction business or those located neaz specific projects. Preservation spreads iu benefiu throughout the local economy." ❑ Historic preservation aerill need to be pan of the economic development strategy for those communities tfiat wish to maintain a competitive edge. Other municipalities can duplicate � S�e Pnal C.c C��:I D�r 1996 H:.Eoric Preemvafiun Hu...ing Adv;eoiy Commi[4ee ReporE Eo £ko Council our water lines, industrial pazks, tag rates and permitting process. No one can duplicate our historic resources. "Whenever there has been a'back to the city' movement, it invariably has been 'back to the historic districts.'" We believe that these benefiu occur in Saint Paul as well. Preservation activiaes have posiuve effects on the chazacter and the value of our neighborhoods which, in turn, attraca tourism and investment. Preservation of historic buildings is one economic suategy in wluch Saint Paul has an advantage over the newer suburbs. The recommendarions that follow seek to ma4;m;�r that strategic advantage. New bullet point regazding historic contexts (Recommendation #10 in my copy): The City should develop "historic contexcs" for Saint Paul to provide a framework for evaluating the sigaificance of sites, structures and districts and guide public investment. ("Hiscoric contexcs" aze written analyses of property types or hiscorical themes for a given geographic azea which help to prioritize preservation of structures related w that theme.) B. Housing Rehabilitation The Housing Rehabilitation Subcommittee decided that a comparison of the various outcomes of vacant housing was necessary to determine if any yielded measurably more or better outcomes at a reasonable public cost. The potential outcomes for vacant housing considered were: No public intervenaon and eventual private reoccupation of the house; Demolition and potential new housing construction; and Rehabilitation. In order to assess the public impacts of these potential outcomes, the group considered many variables. Neighborhood, economic/job, and City financial impaccs were discussed. In the end, the group concluded it would be most straight-forwazd to try to quantify the impacu on City govemment—as the City incurs the bulk of expenses associated with th�e projects. The foIIowing factors should be PYa**+=*+ed both before and after one of the above outcomes occurred � Number of building permiu; o Assessed property values; � Sales prices; � Number of police calls; and � Number of Citizen Services calls for code enforcement service. The subcommittee wished to eaamine this information not only for vacant houses, but also for the azea affecced by the vacant house. The subcommittee did some preliminary data gathering through June of this yeaz. At that point the University of Minnesota's Center for Urban and Regional Affairs (CURA) began a reseazch effon on behalf of Saint Paul's Communiry Development Corporations 16 Sa;ne Paal C.t Co��l D�n,ber 1996 HieEoric Preeerve&on Housia5 L�dvieory CommiEbee ReporE Eo E�te Conncil (CDCs) and funded by the Local Initiatives Support Corpozation (LLSC). CURA's research questions very closely paralleled those posed by the subcommittee. Therefore the subcommittee began a collaboration with CURA, the CDCs and LISC in their undertaking. The subcommittee halted iu own reseazch and nuned over all the information and analysis developed to date to CURA, as CURA had significantly greaur resources to address these compleg reseazch questions. The resulu of the CURA research were available in November of 1996, with a final report e%pected in eazly 1997. The Advisory Committee strongly believes that CURA's analysis of vacant housing ueatment options in Saint Paul provides significant insighu into the impacts of public intervention in the City's vacant housing siruation. Therefore, the Advisory Committee requested and received permission to shaze some of CURA's preliminary findings—which are discussed below. The CURA analysis focussed on the three potential outcomes for abandoned/vacant houses: 1) demolition; 2) private reoccupation with no City assistance; and 3) rehabilitation. Approacimately 1,000 houses wluch were vacant between 1990 and 1995 were exunined. Also ex�ned were the street faces on either side of the block on wluch the house was located—a total of approximately 15,500. Community Development Corporations (CDCs) and others involved in housing rehabilitation have long suspected that housing rehabilitation effons spur rehabilitation and maiatenance projects in the surrounding area. These impressions seem to be validated by scatistics on building pernuts granted by the City. In cases where vacant houses were rehabilitated, there was an 800% increase in the number of building permits granted by the City to houses on the affected screet faces. There was no statistically significant impact on building permiu pulled for either private reoccupation or demolition. The average value of these permiu was $713. The overall private investment on an average block was calculated to be $9,989! Table 4. Impact of Demolirion, Private Reoccupation and Rehabilitation on annual BUILDING PERNIITS PULI.ED on Affected Street Faces. Demolition Private Reoccupation Rehabilitation °k Statistical Change in 0% 0% +800% Building Pernuu Pulled Another major azea examined in the CURA reseazch was the impact of the potential vacant housing outcomes on property values. Assessed values and sales prices were studied. In both cases, the structural chazacteristics of the houses were taken into account, wluch includes such items as the number of bedrooms, bathrooms, porches, gazage size, etc. Also considered (and controlled for) were the number of demolitions, private reoccupations and rehabilitations affectiug a block. Finally, 2 All houses listed as vacant between 1990 and 1995 were included. 17 Sn:nt Pe,.l City Cunnoi� December 1996 Hie4oric Preeea+n£ion Houeing Eldvisory CommiE4ee RePOrE £o £�e (�.ouacil neighborhood variables were added as conuols. In the development of the study it became clear that assessed values were not a good indicator of potential impact for a number of reasons, including their appazent inconsistency across neighborhoods and agpazent systematic undervaluing of properties as compazed to sales prices. These concerns will be fully egplored in the report to be issued by CURA in early 1997. Table 5. Impact of Demolition, Private Reoccupation and Rehabilitation on PROPERTI' VALLIES of Pazcels on tlffected Street Faces. Statistical Impact on: Demolition Private Reoccupation Rehabilitarion Sales Prices -$2,000 -$1,263 $0 Assessed 1994 and 1946 assessed values, and 1995 sales prica were used by CURA for this analysis. � Table 5 on the previovs page indicates the varying impacts of vacant housing outcomes on each pazcel in the affected street faces. This means that a negative property value impact of $2,000 translates to a neighborhood (affected screet faces) impaa of approximately $28,000! Given the difficult circumstances affeccing the majority of the Ciry's vacant/abandoned housing stock, these figures are viewed as being generally positive to Advisory Committee members, who note that one interpretation of the data could be that rehabilitation scabilizes an azea already egperiencing a downward pressure in propeny values. Calls for service to the City's Police Department and Citizen Services Office were also esamined to determine the impact of the alternative vacant housing strategies. These calls were considered to be indicators of both neighborhood qualiry of ]ife and cost to the City for service provision. Table 6. Impact of Demolition, Private Reoccupation and Rehabilitation on CAI.LS FOR SERVIC t the Vacant Property Site. °!o Statistical Change in Demolition Private Reoccupation Rehabilitation Police Calls Citizen Citiun $ervice calls were fikered to indude drop to 4°k previouslevel �}4% 0% -$300 0% Certificue of Occnpancy calls- Finally, CURA is analyzing the impact of the three vacant housing outcomes in terms of costs incused direccly and indirectly by the City. They will be projecting City costs and revenues over a ; The average number of houses on the blocks e am;�ed is 14. Therefore, the impacts listed in Table 5 shoutd be multiplied by 14 to get the impact for the affected street faces. � S�e P�1 C.t Co��l D��r 1996 HisEoric Paceervnfion Honein5l�dvieory �.ommiLfee Reporf 40 £�ae �:ouaci] � 20-year horizon in order to determine which option provides the best °pay-back" to the City. Initial calculations indicate that rehabilitation is a mazginally better approach for vacant housing. As mentioned earlier, the CURA study will eaplore these costs, benefiu and their implications fully in their forthcoming report. Notably, they will not be calciilating other cosrs and benefits, that do not affect the City coffers. Egamples of these include the jobs genented by one type of treatment of vacant housing versus another, or the spin-off benefiu that accrue to properties ouuide the street-face (or studied azea) such as across a back alley. In the Advisory Committee's view, these items would tend to increase the overall public benefit to be gained through rehabilitarion. I � �. I�I�:� �c�> �I �I I�;\II�.��I�I��\� A. Housing & Preservation Policies Change happens—change and progress aze important elemenu in American cultural history. And buiidings are, in economic terms, real estate commodities subject to changing market wnditions, uses, and technology. Yet retaining and reusing significanx pazu of our cuitural heritage is important to give identity and a sense of connectedness to our past. If, for example, the Lowertown and Rice Pazk azeas had been redeveloped as the central core of downtown Saint Paul has been, there would be little to distinguish this city from others or to indicate why and how this city developed. Historic preservation is the preservation of cultural resources, including buildings, other structures such as bridges and monumenu, landscapes and cityscapes, and archeological resources, for the use, enjoyment, and education of present and future generations. The Advisory Committee remains convinced that rehabilitation and restoration of housing provides invaluable insights to us today about our community and ourselves. However, there aze limited resources for addressing the rehabilitation needs of the City's aging housing stock. Therefore, the committee makes the following recommendations to assist the City Council as they consider our community's rehabilitarion needs. RECOMMENDATIONS 1❑ The City should examine all methods of protecting city and neighborhood chazacter to determine the mosc appropriate solution when a neighborhood or the City is interesced in conseroation of an area. Options other than traditional historic district status might include: a � Conservation or design districts to regulate only new construction, demolition, and major additions in order to ensure adherence to general building patterns and prevent demolition of most-significant structures. b� Infill design guidelines for new buildings in older residential or commerciai areas to ensure design compatibiliry. (In San Francisco, for example, building plan � S�t Pa,.l C.t Co,��:l D�� 1996 H;sEorie Preeeroasun Huueing Advieoiy Cumm:tfee ReporE fo Eho Cu,mcil eaaminers review all infill residential construction for adherence to infill design guidelines. This sort of regulation would have prevented the conuoversy that azose over a new manufactured home at 838 Ashland Avenue several years ago.) Scattered-site historic districcs, e.g., a scattered-site Bungalow-style district. d o Create smaller, more manageably-sized historic districu, thus protecting important properties without the administrative problems associated largu districts. 2❑ The Ciry should develop a heritage preservation chapter of r7ae comprehensive plan to address the following policy issues: priorities for designation; update of the 1983 city/county survey; finanaal hardship; relationships with City departmenu; preservarion tools, incentives, and programs; azcheological resources; and education, outreacfi, and partnerships. 3❑ The City should step back and reassess what it should regulate as "hiscoric." We acknowledge that not all old buildings are worth saving. But, we must also seek to preserve a representative sample of buildings and neighborhoods which represent the communities, homes, work places, and churches of the lower—and middle-classes —not jusc the mansions and office buildings of the wealthy. 4❑ The City should develop historical conte%rs for Saint Paul to provide a framework for evaluating the significance of sites, structures, and districtc—these could take the form of docoumenu that discuss things such as pioneer housing in Saint Paul, Saint Paul's 19`b Century Industrial buildings, etc. 5❑ Historically or architecturally significant buildings should be retained and reused whenever possible and akerations to buildings and sites should be in keeping with their character. 6❑ Continue to designate historically and architeaurally significant sites, buildings, structures and districts. Provide adequate staffing to allow the continued designation Of SZLCS. 7❑ Preservation efforts should work more closely with neighborhoods. 8❑ The Ciry should establish priorities for future designations of sites, structures, and districts. Priorities should be based on: a� threau to a structure, site, or district; b� significance of a structure, site, or distria as a representation of iu type within the ciry; c� representation of ethnic, religious, racial or other wmmunities with historically significant properties; and d� identification as architeccurally or historically significant in a survey or planning document. 20 Se;nt Pn,al C.ty Cuune;l December 1996 E'TieEoric Pacaervafion Hona:+�. a'�avieory CommiEEce ReporE fo f�e Conncil 9❑ The Ciry should promote the development of uchitectural styles in new construction which complement the eaisting neighborhood housing stock. This may be accomplished in puc by promoting the development of newly redrawn classic pattem books for home construction. 10 ❑ Fstablished guidelines for historic discricts should be followed. B. Financia) Considerations The rehabilitation of vacant housing normally requires financial support beyond the "post-rehab" appraised value of the property —this is in large measure due to high acquisition costs for the properties and low property values in the neighborhoods where vacant housing is more prevalent. Additionally, coscs for plumbing, heating, electrical, and other systems are basically constant across the Ciry regardless of neighborhood. Cosrs aze also relatively high for "single site rehabilitations" when compazed to the cost of new construction of severai new homes on the same site. Table 7. Illustration of Neighborhood Impact on Market Value. House Description/Location Pre-Rehab Total Post-Rehab Market Redevelopment Market Value (:oct^ Val � 4XX Maple Street—Dayton's Bluff: 2 lk story Viccorian house in an historic district. House has architectural charaaer including a turret and gingerbread, 4 bedrooms and 1900 square feet. 19XX Carroll Avenue—Merriam Pazk: 2 story Victorian house not in an historic district. House has historic character including gingerbread, 4 $9,000 $155,100 $28,000 $177,161 $81,000 $139,000 National literature and local redevelopment activities show that the cost of undercaking a rehabilitation/redevelopment project often exceeds the mazket value of the property upon completion. One reason why the public sector becomes involved in redevelopment is the added value to the communiry, beyond the mazket value of the structure. Rehabilitated housing adds societal value and contributes to neighborhood stabilization, reduction in crime and to the fulf'illment of other public policy objectives. Saint Paul will soon have a much clearer picture of the impact of housing rehabilitation activiries from the previously-mentioned CURA reseazch report. The costs associated with developing new or rehabilitated housing have been increasing in the pasc decades. Data shows the average single family building permit value (adjusted to 1994 dollars) increased by 3.5 percent between 1970 ($92,243) and 1980 {$101,440) and by 18.2 percent between 1980 and 1990 ($119,975). From 1990 to 1994 the increase was 5.4°k ($124,453). While a portion of this increase is due to increased demand for house amenities, it is also due to increasing cost of materials, higher wages and rising interest rates. 21 S�f P�1 C.t Co,�:l D�� 1996 Hie6oric Pn�ra�en H oneing Eldvisory ('.ommiE4ee RePurE Eo Ehe Connci� Redevelopment and rehabilitation of housing is a complex undertaking involving financial lenders, designers, engineers, construction workers, real estate specialists and managers, among others. Many from the public and private sector are involved to get the job done. A myriad of federal, state and local laws, rules and regulations add time and eapenses to the projects. Finally, financing assistance is affeaed by many factors, including: � size of the structure; � conversion of a duplex back to iu original single family use; � lead base paint abatement; � asbestos removal (hazardous waste); � hiscoric districts or individual designation; o material and labor cos� increases; � sale prices for vacant houses being too high; n building code (State and Local) requiremenu; and � mazketing value after rehab is low in the neighborhood azea. Rehabilitation retains Saint Paul's character as well as the higher quality construction and materials often found in older homes. While newer homes may look comparable financially, the end result is often a home with a shorter useful life and less character. RECOMMENDATIONS 11 ❑ The City should eliminate funding biases wwazd new construaion for total project cost and per square foot cost guidelines. 12 ❑ The City should consider issuing loan guarantees instead of loans themselves as a way to suetch available resources. 13 ❑ The Ciry should provide programs that allow better coordination to create a more comprehensive improvement effect. Identify target areas in which to address vacant houses, rehabilitation of existing homes, new construction and public improvements to max;**+;�e impact. These programs should encourage residenu to stay in the City and improve their properties. Such an °umbrella° program could be named Capital City Homes and be a broader version of xhe current Houses to Homes Program. For home improvement and rehabilitation projecu ouuide of the utrgeted areas, provide programs that have the flexibility to cover a wide spectrum of property activities with fluctuaring interest rates to allow all incomes to take advantage of City financing for home improvemenu. A fixed amount of money should be set aside annually for this purpose. 14 ❑ The City should alter iu project financing procedures to more accurately reflect the cost of individual housing projects, by showing the acquisition and demolition cosu along-side the rehabilitation costs. 22 Sa�ne Panl C�cy Connoil December 1996� HieEoric Presea9a6on Honsiag .��ieory (.'onami£Eee �eporE fo f]�e �;ommcil 15 ❑ The City should rehabilitate houses that will contribute to the community over the longxerm. Use quality materials, require a high level of workmanship, design for attractiveness and long- term usefulness. 16 ❑ The City should convert some eaisting Houses to Homes funds to a low/no interest `revolving loan fund" for rehabilitauon. C. Reducing Costs RECOMMEN DATIONS 17 ❑ The City should allow owners to use sweat equity as part of their financing. Suicc timelines should be enforced to ensure completion of the work. 18 ❑ The City should consider the development of a rehabilitation loan program for homeowners with incomes of $40,000 - $100,000. 19 ❑ The Ciry should continue iu efforts to decrease the acquisition cost of properties to be rehabilitated by working with HIJD, the VA and others who control a significant share of the foreclosure market. D. Simplifying the Processes During its discussions, the comauttee considered several regulations or bureaucratic hurdles, which increase rehabilitation coscs, discourage potential "rehabbers," or work against the goal of returning the historic character of Saint Paul's housing stock. We make the following recommendations to reduce these obstacies. RECOMMEN DATI ONS 20 ❑ Older buildings moved to new sites should be treated similazly to rehabilitated buildings under the building code, not as new construction. 21 ❑ The Ciry should promote the simplification of state building codes as they relate to rehabilitation projects. This may be accomplished through the promotion of a scate building code for historic buildings which encourages respectful rehabilitation of historic buildings and, where necessary, the moving of historic structures, without compromising on life safety issues. This building code should acknowledge and appreciate past building practices and materials. 22 ❑ Develop more of a"one-stop-shopping° approach at the City for rehabilitation projeccs. 23 Sain4 Pa,.l City Cunnoil Dxon,bcr 1996 HisEoric Preeer.n&un Hunaia� .4do:so,y Cumm:£bee g eporE Eo f]ie C.ouncil 23 ❑ Sprinkler system requiremenu for rehabilitated structures should be repealed. E. Alternative Funding Measures Tas code changes affecting the federal tax crediu for rehabilitation of historic structures have made the benefiu less attsactive to developers. These tas credits were once a major impetus for preservauon and encouraged much of the redevelopment of the Lowertown azea. The City should eaplore other options to encourage preseroation. It is expecced that legislation allowing the creation of historic tax increment districcs will be reintroduced at the State Legislature next session. This tool could provide funds for Saint Paul preservauon projecrs, revolviug loan funds, and historic infrastructure such as brick streeu and alleys and granite curbing. Additionally, many cities, towns, regions, and states azound the country have nonprofit or ni>a tions that complement the prescrvation work of local governmP„u. Activities that such an organization might undertake include: ° �' � inventory, and historic reseazch; o purchase and stabilization or rehab�itation of threatened buildings; � finding development parmers or other entities to complete projects; o educational programs; � tours; � preservation advocacy and promotion, � revolving loan fund for residential and commercial projects; � publications; � easemenu; and a job training (such as the Youth Build program). A preservation nonprofit could build par[nerships among governmental bodies, developers, community organizations and the business community resulting in greater preservation of our City's heritage wfiile reducing the burden of this activity on local government. Alternative funding measures should be explored to espand the pool of funds available for improving our housing stock. Additionally, efforts should be made to eatend the benefit of a rehabilitated structure for many yeazs with maintenance training. RECOMMENDATIONS 24 ❑ The City should work in partnership with local corporations, foundations, and community and preservation organizations to es[ablish a not-for profit, citywide preservauon organization (perhaps called the Historic Saint Paul Foundation or the Saint Paul Preservation League) to promote historic preservation and engage in preservation-related activities that are beyond the � S�f Pad C.t Co,.n�il D�emb�r 1996 HieEoric Picaerva6on Honeing tldvieory �. ReporE 4o E�e Conacil City's capaary. Additional funding should be sought from the state legislature, the Minnesota Livable Communities Act and Saint Paul's STAR program. 25 ❑ The Ciry should support state efforts to create historic taa increment districts. Egplore financial and other incentives to promote preservauon activities, such as historic district tax increment frnancing, a revolving loan fund for historic districts and sites, facade easemenu, transfer of development righu, and building and fire code issues. 26 ❑ The City should consider escrow accounts, long-term loans or a fee-like mechanism to encourage long-term maintenance of rehabilitated structures. 27 ❑ All rehabilitation, preservation and new conscruction programs the City provides or participates in should have a"home ownership° education component. 28 ❑ The City should better communicate about e�cisting housing programs, through flyers in tax bills, neighborhood paper advertising and/or church bulletins. 29 ❑ The City should create home improvement programs that would allow the City to recapture a portion of the appreciation due to the City's improvement efforts. As an incentive to remain in the Ciry, allow owners to retain the full amount of the appreciation if they choose to invest in another Saint Paul home. 30 ❑ The City should couple rehabilitation with job uaining at the neighborhood level. 31 ❑ The City should encourage home improvement ezcperts to provide education/uaining on rehabilitation at the neighborhood level. 32 ❑ The City should assist in the development of a mechanism for providing free or reduced-cost labor through building trades apprenticeships or Habitat-forHumanity-like programs, perhaps through a Historic Saint Paul Foundation. 25 �a' �h`��``r"s''s<5.�r 5+, �� 3n�y^ ".v� a o`" . b q r y r�., y � � . , i �yr�„Y�,,�'"„'w"�-i.Y��'�'�s�" K��7ni�`} :s��, ✓ .AS fia�`�tiY� �s�.v'�w" . � . >?� w .��. rs�'"`.,:+,�e'�z� t '�''�,, , �a t �. ' � . +Y' ^ �k. s S?� z � $ '.��ri'�e�.�� _ — � % t ?�"rx �' ��°s�"� '` � �` � ��a` ? �--,� — � "w`'�-�`',3fi£-d's""� `�zw"� 4'f:"�° x�.?�raF`za�'.�.'v�' • �.k�u ^ .. d �<.��.,�"n`_, � „`.' �'��: � '� ` _ " , . . . � �_� �_, _ -�. � "�'' �y �_L• � 1i�7i - . —_.\`-: 'j�L?I' ;� �l� �- ' ��.3� � . � �ry ' �� ' — � � . fi .. F..�. .. � � � � .. . . . , " .�_ • • \ � �. -i". � �,. � �= ". .. , �� - � f � .. . -� , : . _� " ` � � � � // A � .. _; .. - �� o : i ' ', ' � � - l�U�i ""'� � . . . . L_..€ F _ +` / ' G j � :• } . _%� i . r l: / i . i A . � � �.t .� !� j �` I � , ��; ,,� r , g _ , _ � ' ->� - � - ,� �,, ,, _ = � :y �� " ��! �� ; - ` 1 ' ` = �� ,�� _ _ _ -- _ � � �� - E i, �.x )�� _ _ _ _- �.: �: � r � � � _ � 'I a ,.,. --.�_ � . . � �E �'. � ._ ' � s �� , � . . . . �at ��' `�"�',:, �, �e i � � � . �,� _ �i �� i; 's;, �� , - —. ,. � �'�' E .� � . � �. ` � � �. — � � � ��`c� � ��. .. . . .. � yi%�� '� t�i 1 ' � .. } i1 ^ � 1� � Y F� S { > �{ 'J . � � / v 6�— � �.� ,. l� �� '� � Y:' S �� . � 5 � ' � ".. r �5� iiat *o . � �^z- / � a��i`� `=� ^� yz ..�;;.. ,,. � .,�., .— �' "�.*a �,.--�,,, -. ''�a.;?°`�: T � ��- ��~ �~ �� - r ��_ �`- _ � The Preservafion Development Iniriative is made possible by a grant from the John S. and James L. Knight Foundation. The John S. and James L. Knight Foundation promotes excellence in journalism worldwide and invests in the vitality of 26 U.S. communifies. ♦ • � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � Saint Paul's Preservation Development Initiative - Summary The Comprehensive Plan for the Saint Paul Skyline City of St. Paul specifically commits to the concepts of scale that seems possible. These preservation in two of its Ten strategies are based on Principles for City Development. preservation-oriented, commercial Unlike many cities that have revitalization recommendations embraced preservation as a result from the urban neighborhood of one strong leader's vision, revitalization model developed by preservation in St. Paul has the National Main Street Center0, emerged from the grassroots level. a program of the National Trust for Attitudes in the neighborhoods Historic Preservation. toward preservation are profound and firmly entrenched, regardless The Main Street Approach to of the stature of the architecture or commercial revitalization is based the economic status of current on four points: design, promotion residents. Preservation is a (or marketing), economic proven, but slow and steady, way restructuring and organization. to revitalize a city. While the city Design takes advantage of the has demonstrated support for visual opportunities inherent in a preservation, there is also commercial district by directing evidence that city leaders have attention to its physical efements, tended to merely accommodate including public and private rather than embrace preservation buildings, storefronts, signs, and activities in the past. landscaping. Promotion seeks to attract investors, developers, and new businesses, by creating a positive public image of the area. Economic Restructuring strengthens the commercial district's existing economic assets while diversifying its economic base. Organization establishes consensus and cooperation by The issue facing St. Paul is not a lack of support for commercial revitalization, but rather the lack of sufficient resources to implement ali of the plans and suggestions already developed. The assessment team offered some strategies for implementation on a building partnerships among the various groups that have a stake in the commerciai district. Neighborhood Commercial Districts St. Paul is a city of neighborhoods, each with its own history and feeling. Building on this foundation, St. Paul can create a collection of unique neighborhood commercial districts that reflect the diversity of cultures and history found in the city. The following neighborhoods were assessed: West Side {no historic designation); Frogtown (no designation); Irvine Park (local and national designation); Selby Avenue (significant portions are designated locally and nationally as part of the Ramsey Hill designation); Dayton's Bluff (local designation); Payne Avenue (not designated, but identified as eligible for national designation); and Swede Hollow (includes the Hamm's Brewery campus that the Minnesota SHPO has determined is eligible for national designation). Parts of Swede Hollow fall in the Dayton's Bluff designation. In each of these neighborhoods, community-based nonprofits— sometimes more than one—were actively engaged. The organizations vary in capacity and focus on a variety of issues such as housing, community and economic developmeni, neighborhood organizing and advocacy (associations), and historic preservation. As in many communities, historic preservation receives a mixed reception in St. Paul. The traditional historic properties, such as mansions on Summit Hill near the cathedral are successfully preserved. In other historic neighborhoods such as Frogtown, -i- • • � S � , � � � r � � � + � � � � � � � � � � i r � � � � � � � � � � � i � � � � � Saint Paul's Preservation Development Initiative - Summary Dayton's Bluff, and West Side, there has been less focus on the area's historic value, and, in a number of cases, historic preservation is misunderstood as too costiy to consider. Many of St. Paul's historic neighborhoods are not designated districts. Designation can provide avenues for additional resources for a community. The city has been siow to add districts in recent years, leaving many of the affordable communities with smaller historic homes out of the historic preservation loop and ineligible for related resources. The commitment of the banking community in St. Paui makes it feasible to establish a significant pool of resources. The capital resources typically being used are traditional grants and loans available through federal, state, and local government housing and community development programs. Private resources also are primarily in the form of granting and lending programs commonly operated by the lending community, foundations, and corporate philanthropists. St. Paul can benefit from more creative models; such as secondary market resources; theme lending to upgrade an entire area; historic preservation resources; and specialized loan programs, such as incentive, crisis and stabilization, and intervention funds. St. Paul has a chance to capitalize on its "historic edge" and sense of place over Minneapolis, whose central biisiness district (CBD) has been largely rebuilt during the region's economic growth. To do so, it must use a planning and development process that values the past as a key economic driver of its downtown's future. Paul has indeed embarked on a preservation-based downtown development strategy, the focus really seems, instead, to be on the riverfront and how it can be redeveloped for housing, cuitural, and recreational uses. But St. Paul should heed the lessons of Baltimore and other cities that have created heralded harbor districts, which have drained the economic fife out o4 their traditional commercial cores. The weakness of the retail and o�ce sectors wouid appear to set the stage for housing conversions of existing buildings. Despite the high demand for housing — partially addressed by Mayor Randy Kelly's St. Paul 5000 Housing Plan in the CBD — both new construction and rehabilitation of existing buildings requires public subsidy. This economic reality can be a di�cult one for city planners and policy makers who have grown accustomed to public subsidy set- asides for affordable housing, not market-rate units. While, St. Paul seems to have accepted the production of middle- class housing downtown as a legitimate public purpose, the city has, by far, allocated most of the available STAR resources and other housing subsidies to new construction ratherthan rehab. This does not bode well for the conversion of vacant and underutilized office and retail space into CBD housing opportunities. Given that the hot housing market is matched by an equally weak office market, there may never be a better time for the city to convert its older o�ce properties to housing, removing unneeded offce inventory and bringing 24-hour life to new areas of the CBD. While success stories like Lowertown would suggest that St. Heritage Tourism In the past decade, there has been great growth in heritage travel. In fact, according to the Travel IndustryAssociation (TIA), heritage travel was the only segment that saw an increase after the events of September 11, 2001. St. Paul is a city with remarkable resources and assets. The city's heritage resources should be fully incorporated into every aspect of planning and promotion. Two planning processes are currently under way in St. Paul, stimulated by strong leadership from the office of Mayor Randy Kelly: 1. St. Paul Cultural Plan -This project is bringing together cultural resources from across the city to develop a state-of-the-art cultural pian as a key component of St. Paul's "Renaissance." The recognition of St. Paul as a cultural center and the unity of the city's cultural institutions provide a firm foundation for development of this cultural plan. The plan will be implemented in 2003. 2. Branding St. Paul — This project is an effort to "define" the city for both residents and visitors. A task force has been appointed by Mayor Kelly and is chaired by the CEO of the Wild, the National Hockey League club team based in St. Paul. Participation on the task force is by invitation and requires a $5,000 payment. The status of this project, including a timeline for implementation and the current membership of the task force, was not known by those with whom the PDI team met. Although the intention of these iwo projects is to enhance the profile of St. Paul, these undertakings raise concerns about the role of heritage: -ii- Saint Paul's Preservation Development Initiative - Summary 1. The Cultural Plan only gives passing reference to the city's heritage resources_ Reviewing the projecYs materiais — including the charrette notes, information survey, iist of organizations to be surveyed, and the outline of intended outcomes — it is ciear that this plan focuses primarily on the arts. 2. The cost to participate in the branding task force is prohibitive for the city's heritage resources — most of whom are nonprofit organizations with limited funding. The fact that no one representing heritage sites had any knowledge of the task force's existence or work indicates a lack of inclusiveness. Further, the development of a"brand" for the city before a cultural plan is developed or the PDI program is implemented appears to be premature. Outlined in this report are specific steps that will unify heritage resources, create a stronger voice, and position heritage sites for effective promotion. But the overarching recommendation is to develop a Cultural Heritage Tourism Plan for the city of St. Paul that wiil be successful and sustainable. - iii - • • � � � � � s � � � � � � � � � ` � � � � � � � � r � � S � � � � ' � s � � � � � � Saint Paul's Preservation Development Initiative: Introduction In May, 2002 Saint Paul was named as a demonstration site in the National Trust for Historic Preservation's Preservation Development Initiatives (PDI) program. The PDI program, made possible by funding from the John S. and James L. Knight Foundation, is designed to incorporate historic preservation into community and economic development strategies. for developing a preservation- based neighborhood commercial revitalization effort. His recommendations are included in an appendix. The recommendations contained in this report form the basis for an overall strategy for preservation development. In some cases there will be an obvious implementation order to the recommendations. For example, completing an inventory of availabie historic resources is necessary before designating additional historic districts. In other cases, the recommendations represent a web of activities that are mutually supportive, such as strengthening the role of the Historic Preservation Commission staff in the planning process and integrating a revised heritage preservation ordinance into the zoning ordinance. Pianning and Economic Development (PED) was very supportive. Historic Saint Paul has assembled a Preservation Development Initiatives Partnership group to guide the process. The partnership group provided briefing and reference materiais, participated in interviews and tours, and offered comments and suggestions on the final recommendations contained in this report. Historic Saint Paul Corporation, the citywide historic preservation advocacy organization, submitted the proposal to participate in the PDI program as part of its ongoing mission to encourage historic preservation in Saint Paul. PDI Comprehensive Preservation Assessment As part of the PDI process, a team was assembled in November, 2002 to assess opportunities for preservation-based community and economic development in Saint Paul. This report represents the observations and recommended strategies by the multi-disciplinary team. The recommendations are based on a review of written materiais, interviews, site visits and a collaborative process, working with Historic Saint Paul, the City of Saint Pau1, community development organizations, and private sector groups and individuals. Following the initial team visit, a representative of the National TrusYs National Main Street Center examined the opportunities An implementation strategy table is included as well as a summary of observations and recommendations for use in future implementation meetings where the full report document is unnecessary. Saint Paul Preservation Development Initiatives Partnership Although Historic Saint Paul was responsible for bringing the PDI program to Saint Paul, implementation is a community- wide task. Preservation-based devetopment is most successful when the public, private and nonprofit sectors work together. The National TrusYs PDI team wishes to thank all of the peopie and organizations that helped develop this report. In particular, Carol Carey, executive director of Historic Saint Paul provided extensive support, information and effort to make this assessment a thorough tool. The staff of the City of Saint Paui's Department of -iv- • � Saint Paul's Preservation Development Initiative: Introduction � � � • Preservation Development Iniriatives Partners • Historic Saint Paul—Project Leader • City of Saint Paui � Mayor's Office • City Council � • Heritage Preservation Commission � Minnesota Historical Society � Ramsey County Historical Society : Preservation Alliance of Minnesota ! Lowertown Redevelopment Corporation + Minnesota Landmarks : Saint Paul Port Authority ! Saint Paul Riverfront Corporation . Saint Paul on the Mississippi Design Center � American Institute of Architects Saint Paul Chapter � Local Initiative Support Corporation . Saint Paul Convention and Visitors Bureau � University United � Public Art Saint Paul ; Minnesota Humanities Commission � Payne Arcade Business Association , East Side Neighborhood Development Company a Dayton's Bluff Neighborhood Housing Services � � Uppertown Preservation League � � � � � � . -v- � Table of Contents Saint PauYs Preservation Infrastructure...l Neighborhood Commercial Revitalization...8 Neighbarhood Preservation...13 Downtown Development...17 Herita�e Tourism...22 Conclusion...36 Appendices I www.nthp.org • • � � � � � � � � � � � � � � e � � � � � � � � � � � � � � � � � � � � � � � � � � Saint PauPs Preservation Infrastructure An adequate preservation framework is necessary to apply the elements of historic preservation as a tool for economic and community development. That framework begins with a strong preservation ethic well-imbued throughout the community, its municipal agencies, and preservation partners. The ethic must be manifested in the mechanics of govemment decision-making so that preservation tools can be implemented and applied Saint Paul has a strong preservation ethic, and has done many exemplary things that demonstrate that commitment. Yet, the City can do more to achieve the ideal framework that will be necessary to leverage preservation to its maximum advantage. Observations A Solid Commitment The Comprehensive Plan for the City of Saint Paul (adopted 2001, on the web at http://www. stpaul.gov/depts/ped/co mpplan/#principles) cites historic preservation, or its softer counterpart, the conservation of urban character, as a key component of its vision and policy. Specifically, the plan commits to the concepts of preservation in two of its Ten Principles for City Development, under General Policy 1. Principal #7 says, "Build on existing strengths. We will make every effort at city and neighborhood levels to recognize and enhance the treasures we have in our economic, cultural, architectural, and natural heritages." And Principal #8 states `Preserve and enhance heritage resources. Saint Paul will continue to preserve and enhance its rich legacy of historic resources ° Similarly in regard to Neighborhoods as Urban Villages in General Policy 6, the plan proposes to: Continue and expand efforts to enhance the city's traditionai neighborhood design. Continue a commitment to the preservation of historicaily and architecturally significant buildings and neighborhoods. Step up code enforcement matched with additional resources for repair and rehabilitation. Strategically focus efforts to stem deterioration and declining values. Improve management and maintenance of rental property. A Grassroots Preservation Ethic From observations and conversations during the site visit it is evident that the commitments outlined in the Comprehensive Plan are based on a preservation ethic that seems to have emerged to shape the character and value system that in many ways defines Saint Paul today. Unlike many cities that have embraced preservation as a result of one strong leader's vision, preservation in Saint Paul has emerged from the grassroots level — in many cases in response to imminent threats to historic resources throughout the community. Attitudes in the neighborhoods toward preservation are profound, firmly entrenched, and amazingly well-developed. This is We not just in select neighborhoods, as is often the case, but in every neighborhood the assessment team toured and had an opportunity to visit with residents and neighborhood leadership, regardless of the stature of the architecture or the economic status of current residents. From Historic Hill to Frogtown, from Dayton's Bluff to Old Fort Road, residents understand and appreciate the unique qualities of each area and regard them as assets. As the oldest settlement in the state to grow to an urban center, and the capital city as well, Saint Paul exudes a sense of history that the residents readily embrace. This attit�de has been reinforced by the successful use of preservation as a redevelopment strategy by some neighborhoods and commercial centers that began the process early, like Summit Avenue, Grand Avenue, and Selby Avenue, where the architectural quality combined with trendy rehabilitations has led to substantial gentrification and rising property values. Observing those experiences, other neighborhoods have come to see preservation as a tool for economic leverage or, at the very least, as a way to protect property values through designation and management of historic resources. This success has sometimes been viewed negatively as "gentrification" resulting in displacement and a loss of affordable housing. No sustained attempts have been made to promote preservation as a strategy for wealth-creation and neighborhood stability for low and moderate income residents. Citizen ParticiPation The entrenched preservation ethic is evident in the relatively strong neighborhood associations and in • • � � � � � � � � � i � � � � ` � � � � � � � � � , � � � � � � � � � � � � � � � � Saint Paul's Preservation Infrastructure the citizen participation network estabiished by the City to be responsive to the needs of each locale. In each neighborhood, representatives began their tours and presentations with a historical overview of the neighborhood's origins and evolution, and then proudly showed off their best efforts to preserve their essential character, even while accommodating changing ethnic settlement patterns. Coordination and Communication The only tempering factor in the neighborhood-based commitment to preservation is an occasional lack of coordination between preservation groups and community development corporations (CDCs) and confusion over which properties have what protections. It is critical that citizens understand at the time they are making property decisions both the restrictions and opportunities associated with historic designation or neighborhood conservation. The City of Saint Paul has an outstanding website that provides easy access to neighborhood associations, business and municipal services, initiatives, and program applications. The information is offered only in English, however, and historic preservation topics are only minimally covered. Rehabilitation Activity and Standards Another manifestation of the neighborhood-based preservation ethic is the high level of rehabilitation work in every neighborhood by CDCs. The activity in Saint Paul significantly exceeds that in most Midwestern cities, both in quantity and quality. The extremely high standard for both exterior restorative work and infill design in every neighborhood is extraordinary. Similarly, the commitment to a highly successful Payne Avenue MainStreet program demonstrates that the community understands and supports the instruments necessary to create livable neighborhoods. But while the city has demonstrated support for preservation through the citizen participation network and support for its CDCs, there is also evidence that city leaders have tended to merely accommodate rather than embrace preservation activities in the past. Marginalization Preservation is a proven, but slow and steady, way to revitalize a city. In Saint Paul, like many cities where politics seems to demand rapid and visible leaps forward, historic resources have suffered and preservation has been perceived as an obstacle rather than the route to progress. To clear the way for leaps of progress, elements of the preservation infrastructure — such as Heritage Preservation Commission (HPC) review and preservation planning — have, to some degree, been marginalized. The reduction of the HPC staff to one person in 2000, and the relocation of that person from the Department of Planning and Economic Development (PED) to the Office of Licensing, Inspections, and Environmental Protection (LIEP) has cast preservation in a regulatory role and minimized its influence on planning functions. Local Historic Aistricts as Building Blocks This marginalized role is aiso evident in the relatively few locally designated historic districts. With few exceptions, the City, by its limited use of historic district designation, seems to have seen that tool as useful primarily in high style, upscale neighborhoods. A notable exception was the designation of the Dayton's Bluff district, where local advocates rallied for designation to gain recognftion and attract investment into an economically distressed neighborhood made up primarily of modest residential structures. Historic district designation at the local level is a basic building block of preservation. Designation can provide access to financial incentives and offers management tools to assure quality unmatched by other urban planning tools. Without a seat at the planning table, liberal use of historic designation, adoption of historic preservation as a central redevelopment strategy, and identification and promotion of financial incentives, preservation cannot be expected to serve as an economic engine of renewal. Survey Data Those managing the historic resources of Saint Paul are currently working from piecemeal survey work completed in 1975, 1983, and 1989, plus fragmentary nominations of individuat properties. The 1983 study was the most comprehensive, generating the bulk of the more than 5,000 survey forms on file, but it is now 20 years old. Since earty survey work was often superficial and not well documented (such as in informal windshield surveys), it provides a weak basis for cultural resources management. Piecemeal expansion, with later survey work being more disciplined, complicates evenhanded management. There is no formal Resource List of properties • • � � r � � � � � � i � � � � � � � � � � � � � � � � i � � � t � � r � � � � � � � Saint Paul's Preservation Infrastructure potentially eligible for historic designation. Informal lists suggest between 150 and 200 undesignated sites are potentially eligible for heritage site status. Excellent studies were completed in 2000 forthese six historic contexts in which resources are known to be threatened: o Pioneer Houses: 1854- 1880 o Transportation Corridors: 1857-1950 o Neighbo�hood Commercial Cenfers: 1874-1960 o Religious Buildings: 1849- 1950 o Residential Real Estate Development.• 1880-1950 o Downtown Saint Paul: 9849-1975 These studies provide an excellent background to guide preservation planning and subsequent survey work and designation. The introduction to the 1983 study also provides an excellent summary of the history ot survey and designation work in Saint Paul between 1966 and 2000. Designated Historic Districts and Sites Historic districts emerging from these surveys and related initiatives by the neighborhoods themselves include five districts (irvine Park, Historic Hifi, West Summit, Lowertown, and Dayton's Bluff), comprising a total of about 2,000 properties. All but Dayton's Bluff (the most recent) are also, in large part, National Register Districts. There are 82 individually listed properties in the City in the National Register of Historic Places (NRHP). Limited use has been made of the local preservation district option under the City's Heritage Preservation Ordinance, and those designations, for the most part, have been recent. In other cases— such as the failure to support the designation of the North Quadrant designation — historically significant buildings have been fost, while others remain at risk. There are design guidelines for each of the historic districts but those vary significantly in quality, content, and format. They are difficult to administer, since each uses slightly different language to convey the same concepts, and they are undoubtedly confusing to homeowners to whom design control can be a major frustration. Building Codes The City of Saint Paul employs the Minnesota Building Code, derived from the Uniform Building Code, published by the International Conference of Building Officials (ICBO). As of March 31, 2003, the state adopted the "Minnesota Conservation Code," based on a model published by ICBO called the "Guidelines for the Rehabilitation of Existing Buildings." The state has already begun its next building code review and adoption process, which will include updating this current conservation code. This strategy under consideration is envisioned to assist building owners, developers and code officials in dealing with the sensitive economic and cultural issues that arise with altering and remodeling existing buildings, including those of historical sign�ca�ce. The code is designed to allow the upgrade of existing buildings to a minimum level of safety and usability by persons with disabilities, without creating economic hardships or destroying the historical significance of the structure. We would recommend that the city follow the state's lead in utilizing ICBO standards and provide education and awareness of rehab provisions of new codes to the general population. The Heritage Preservation Ordinance The Saint Paul Heritage Preservation Ordinance, adopted in 1976, contains most of the basic provisions necessary to administer a preservation program. It establishes a Heritage Preservation Commission (HPC) and empowers that body to identify and recommend designation for heritage sites. It further authorizes the HPC to review changes to designated properties for: 1) exterior appearance (except paint); 2) new construction; 3) relocation; 4) demolition (except when directed by the City Council or Mayor); and 5) review plans and studies which relate to the historic and architectural heritage of the city. The Division of Planning is required to inform the commission of planning and development activities which relate to or have potential impact on the historic and architectural heritage of the city. All actions are subject to appeal to the City Council. The power to deny a demolition permit constitutes substantial authority if supported by the Council on appeal. These powers, however, Landmark Center at Dusk • • � r � � � � � � � � � � � � � � � � � � � � � � � � # � � � � � � � � � � � ` � � Saint Paul's Preservation Infrastructure apply to sites and districts already designated; there is no provision of denial or delay for buildings that might potentially be eligible for designation. There is a provision for affirmative maintenance to discourage "demolition by neglecY' The Zoning Ordinance The Heritage Preservation Ordinance stands alone, separate from the Zoning Ordinance. Since historic districts constitute a zoning overlay, the lack of coordination can cause conflicts in the administration of the ordinance and its enforcement, both exacerbated by the isolation of the HPC staff from planning functions. The zoning ordinance itself has been substantially updated in recent years, but the preservation ordinance has not. Many cities are now reconsidering their zoning ordinances to better manage the complexities of multiple land-use functions and to integrate a host of new components in contemporary urban planning, including context- related, form-based zoning and prescriptive design management. There is good reason to consider the integration of the two ordinances in a similar process in Saint Paul. By doing so as a combined process, or separately if necessary, it would be possible to also update the zoning ordinance language and remedy a few critical voids in the current preservation ordinance. Incentives and Promotion Currently neither the City nor local preservation groups aggressively market historic properties or districts beyond that done by neighborhood associations and CDCs, often with little acknowiedgement of historic preservation per se.. While Historic Saint Paul and affordable housing providers do actively promote their programs, little is done to educate the public about the incentives for and advantages of quality home improvement or commerciai redevelopmenf of historic structures. This void is most visible on the City's website, but ft is aiso evident in the lack of brochures, educational literature, and seminars. Such promotion would heighten preservation activity by promoting the 20% federal historic tax credit, the 10% federal rehabilitation tax credit, local tax abatements and easements, and loan programs. Positive Indicators In spite of occasional missteps in recent years, there have been many positive developments undertaken with the full support and encouragement of the city. The Lowertown development effort, with its steady success in creating an urban neighborhood and advancing the arts through the reuse of historic warehouse structures, is an outstanding demonstration of how preservation can be the engine of economic revitalization. The success of Lowertown has also created opportunities for new development on nearby sites, such as Lowertown Bluffs, currently under construction, and the proposed River Garden development plans. Similarly, the reorientation of the city to the river and its ongoing effort vested in the Design Center of the Saint Paul Rivertront Corporation is a powerful demonstration that City Hall understands how to use traditional assets as redevelopment tools. Similar work is undenvay in the field of public art, parks renewal, urban street furnishings and infrastructure, and a growing commitment to quality design and sustainability of public improvements. The establishment of Historic Saint Paul as a nonprofit advocate and agent for historic preservation is another positive indication that Saint Paul understands the value and leverage potential of its historic resources. In summary, we observe that while the preservation ethic is well- established in the neighborhoods of Saint Paul and often (though not always) upheld by the City Council in neighborhood issues, there has been a tendency for executive leadership to merely accommodate preservation when necessary and then only to a limited degree, while, expressing discontent about the cost. There is an opportunity for the new administration to avoid these tendencies and embrace preservation more fully, capitalizing on the political support for preservation already present in the neighborhoods, to leverage historic resources citywide as a strategy for growth. Both in the development of commercial corridors and the implementation of the Housing 5000 objectives, the City can use historic preservation as an integral tool of its overall strategies. Our recommendations, which follow, are pursuant to that opportunity. Recommendations It is important to recognize that the recommendations here are intended to advance the cause of preservation and urban revitalization in Saint Paul and thus cannot be read as an agenda for municipal government alone. The National Trust advocates a healthy role for government agencies as well as for private, nonprofit and for-profit organizations. Therefore, it is important that the community work together to decide who is in the best position to implement and manage various aspects of a preservation-based development initiative, and the enhancements of 0 • • � � � � � � * � � � � � � � � � � � � � t r � � � � � � � � � � � � � � � � � � � Saint Paul's Preservation Infrastructure infrastructure necessary to support it. Some activities may be the strict purview of municipal govemment. Others may be better done by the nonprofrt sector. Some will require for-profit involvement. Many may require public-private partnerships involving all three sectors. The secret to a well-implemented preservation initiative is collaboration and team work. Each sector— public, private and nonprofit — can be an advocate for preservation in its own area interest. All three should be part of efforts to reform legislation and create support for preservation on a municipal, county and state level. While Historic Saint Pauf has the primary mission of advocate for historic preservation in Saint Paul, others should be involved in promoting and supporting historic preservation as a strategy and a basic development principle. If the principles of conservation and historic preservation articulated in the comprehensive plan reflect the core values of Saint Paul, then a preservation ethic must imbue development decisions made by the City, private and nonprofit developers. Preservation cannot be an esoteric planning concept, but a way of doing business, making decisions and formutating policy. Funding and policy support of public, for- profit and nonprofit development projects should be linked to how those projects reflect the Ten Principles for City Development. Adherence to the Pri�ciples should be promoted as responsible development behavior. While there is somewhat of an order to the recommendations that follow, not all of them are linear. Some are specific actions that should be taken. Others are ongoing activities. All of the recommendations are mutually supportive. Recommendation #1: Assure Adequate HPC Staff. It is critical that the infrastructure for preservation management be strengthened, both quantitativefy and qualitatively. A city the size of Saint Paul should have a minimum staff of three Uained professionals focused on historic preservation activities plus access to consultants for special studies as needed. HPC staff should fulfill three distinct roles: 1) Preservation planning (research and designation) and input to large-scale planning decisions; 2) Permit review and issuance with input to related permitting activities; and 3) Enforcement and field verification. The recent decision to increase the HPC staff to two is a step in the right direction. Recommendation #2: Strengthen HPC's Role in Planning While the number of staff can benefit preservation, their placement is equally critical. By far the most common line of reporting for preservation staff in cities across the country is within departments of pla�ning and community/economic development; even though those staff members also pertorm permitting and enforcement functions. In large cities some preservation staff may report to planning authorities but be assigned to licensing centers or enforcement crews. Ideally the City would relocate HPC staff to PED, encourage preservation planning activities, specifically in resource identification and research, and make every effort to assure the staff's early input to every pianning decision. Since LIEP currently contains some zoning functions, while others remain in PED, it is conceivabie that the integration of both large-scale planning and economic strategies and integration to zoning and permitting could be achieved by splitting the HPC staff into o�ces in both departments. Recommendation #3: Rewrite the Heritage Preservation Ordinance and Integrefe to Zoning To remedy the conflicted attitude evidenced by the City in recent years, our recommendations for specific actions wouid build upon the commitments in the City's Comprehensive Plan, and then suggest the modernization of the Heritage Preservation Ordinance. Ideally that would occur in the process of also revising the zoning ordinance so that the two might be thoroughly integrated. Absent that, every effort should be made to integrate both the principles of preservation and the mechanics of its administration into the zoning ocdinance and other planning functions. Specifically, and at a minimum, the Heritage Preservation Ordinance should be amended to address three critical missing components: The development of a Resource List of potentially significant properties based on recommendations from professional surveyors (see below), with provisions that the list be updated from time to time by action of the HPC. A stay of demolition for a minimum of 90 days (up to one year is probably supportable by case law) for properties historically designated, and those on the Resources List, to provide su�cient time for the HPC to consider historic designation, • • � � � � � � # � � � � � � � � � � � � � � i � � � � � � � � � � S � � + � � i � • Saint Paul's Preservation Infrastructure altematives to demolition, and other mitigation. Language to require maintenance of properties of historic merit to avoid demolition by neglect would also be necessary. The properties on the Resource List would be covered by this requirement. consecvation of urban character as stated in the Comprehensive Plan. By applying geographic information systems (GIS) in the mapping process, patterns of character-setting elements can be tracked to target areas for urban conservation, or to facilitate form- based zoning management' Recommendation #4: Redraft Design Guidelines To streamline design control and make it more user-friendly within historic districts, the design guidelines should be completely redrafted. This is best done simultaneously as a package, with generic sections on principles, a glossary, and a list of material sources, followed by illustrated "dos and don'ts" specific to each historic district. If developed properly by graphic design professionals, these guidelines can aid homeowners and avoid conflict. Posted on the city's website, they can be readily accessible for the convenience of all. Recommendation #5: Refresh and Broaden Historic Survey Data. Critical to preservation planning is historic survey and research to identify potential sites and districts for designation. The City should allocate the resources to resurvey the entire city in sequence, over several years if necessary, and to conduct sufficient research on potentially significant areas to advance the designation process. The survey should go beyond the traditional identification of landmarks and obvious districts to map "background buildings" with sufficient integrity to form community character. That information could then serve as the basis for zoning and design decisions to assure the Recommendation #6: Accelerate Local Historic Districf Designations. Given the policy of the Minnesota State Historic Preservation O�ce (SHPO) that demands a high degree of integrity and significance to warrant nomination to the National Register of Histofic Places, the City should consider local designation as the first option, and allow the SHPO to pursue NRHP status at its discretion. With the exception of the historic tax credit, all of the incentive tools for historic preservation — both protections and enticements — are as applicabie under local designation as under NRHP listing. Recommendation #7: Identify, Evaluate and Target Pivotal Historic Complexes. There should be a concentrated effort to identify large-scale landmark properties, both downtown and in the neighborhoods that warrant exceptional effort targeted for preservation, including those considered `Yvhite elephants,° such as brewery complexes and other industrial facilities (see projects � "Form-based' codes are part of the `new urbanisY pianning philosophy. They focus more on a desired result and vision rather than prohibitions. They are relatively simple to understand and visually-oriented and use graphics to explain desired concepts. identified in Downtown Development Section). Then, to facilitate the consideration of adaptive use by the development community, Historic Structures Reports should be prepared for those complexes and landmark buildings, identifying their historic character-defining elements and documenting their physical conditions. That essential character can then direct decisions to remove noncontributing elements, and it can also drive the design of surrounding redevelopment efforts. Recommendation #8: Consider Cieative lncentives. In addition to local incentives already in place, and loan programs to be developed as par[ of the Preservation Deveiopment Initiative project, the City should consider: o Streamlining review and permitting processes for designated properties by developing historic district (target-specific) guidelines, alternative building code provisions, density waivers, and disabled access waivers. o Transferable development rights with bonuses that renovate contiguous historic structures. o Start-up financial assistance to urban pioneering businesses in targeted areas. o Custom incentive packages for property owners denied a demolition permit to encourage rehabilitation. o The preparation of an annual progress report on building rehabilitation toward specified goals. Get creative. � • • � � � A � � � � , � i s � � � � � � � � � � ` � � � � � � � � � � � � � + � � � ! Saint Paul's Preservation Infrastructure Recommendation #9: Promote Preservation. To promote the availability of all incentives and to aid citizens and CDCs in understanding the tools available for neighborhood revitalization the City should: o Develop a webpage within or linked from the City's website to provide easy access to historic survey mapping. Raise the visibility of historic preservation within that website by linking to other housing assistance programs and planning documents. o Facilitate better communication among neighborhoods and CDCs to encourage dialogue, shorten learning curves, and aid program development. o Standardize promotions and tools among neighborhoods to simplify the process for homeowners. o Strengthen and expand technical assistance for rehabilitation from a single central source to make it easier for homeowners to acquire the support they need to be good stewards of their properties. o Publish user-friendly homeowner materials in several relevant languages. o Conduct periodic community exchanges by sending delegations to visit other cities that have addressed preservation issues well and inviting representatives of those communities to visit Saint Paul and offer observations and recommendations. o Sponsor educationai forums for developers on the potential of historic structures, highlighting available incentives and technical assistance. Strengthen local preservation advocacy organizations (such as Historic Saint Paul and the Preservation Alliance of Minnesota) through contracts for technical assistance. Recommendation #10: Work on Statewide Advocacy. To expand the incentives available to projects, the Ciry and a coalition of community organizations enlisted by Historic Saint Paul should join a coalition with other communities and preservationists to advocate for: o A Minnesota Rehabilitation Building Code that allows for alternative safety measures for existing buildings to assure public safety without driving up the cost of rehabilitation. o A State Historic Tax Credit. In many states, historic tax credits modeled on the federal historic tax credit supplement and enhance the incentive package and fill the critical margin of feasibility for many rehabilitation projects. Such credits are making a huge difference in the current renewal of Saint Louis and Kansas City, Missouri, and in other Midwestern states. o A Statewide Main Street Program open to urban neighborhood commercial centers and corridors would multiply the applicability of that program already underway in a limited fashion in Saint Paul, and provide a support network in the state. • � � � � � � � � � � � � � � � � ` � � � i � � ' � � � � � � � � � � � ` � + r � � � Neighborhood Commercial Revitalization Commerciaf revitafization programs in Saint Paul are in an early stage of development. While some neighborhood districts are actively engaged in the revival of commercial corridors in the city, others seem to be unsure how to proceed or where to get the assistance they need to mount such efforts. In many of the plans and strategies already developed for Saint Paul's downtown and neighborhood commercial areas, historic preservation, or at least some sensitivity to historic structures, is acknowledged. Working from an asset-based development strategy that takes advantage of Saint Paul's historic structures and neighborhoods, the City can create a strong commercial revitalization program. The Preservation Development Initiative assessment team reviewed a number of studies, documents, and reports about downtown Saint Paul, Lowertown, the two neighborhood commercial programs associated with the Local Initiatives Support Corporation (LISC), National Mainstreet Initiative (NMSI), and various neighborhood plans. Upon review of these studies, it became clear that preservation-based commercial revitalization is already embraced by many groups and that some of these areas of the City have already begun to enjoy some successes at biending preservation and commerciai redevelopment. The team noted that Saint Paul has many well considered neighborhood plans and planning staff who support many of the preservation development concepts that the Preservation Development Initiative is designed to address. The issue facing Saint Paul is not a lack of support for commercial revitalization, but rather the lack of sufficient resources to implement ail of the plans and strategies already developed. The assessment team made the decision to examine some of the key ideas and elements of the existing plans and to develop recommendations for implementation on a scale that seems possible. The team also decided to focus primarily on neighborhood commercial revitalization potential, with some limited discussion of downtown. The 'Downtown DevelopmenY section of the assessment report addresses many of the issues related to the downtown area. As a program of the National Trust for Historic Preservation, the Preservation Development Initiative team also decided to base its preservation-oriented commercial revitalization recommendations on the urban neighborhood revitalization model developed by the National Main Street Center�. The Main Street Approach to Commercial Revitalization Historic preservation has become an important tool in downtown and neighborhood commercial revitalization programs across the United States over the past 25 years. The National Main Street Center, a program of the National Trust for Historic Preservation, has promoted a method for such revitalization that is comprehensive in its approach to the wide range of issues that face commercial districts. The Main Street revitalization philosophy is based on four points: 1. Design — an improvement of the entire visual quafity of the commercial district, including buildings (historic and new), public space, streetscape, signs, visual merchandising and views. 2. Promotion and marketing — identifying and promoting the districYs unique characteristics and opportunities through special events and celebrations, business- oriented merchandising events, pubiic relations and other image-bui�ding activities. 3. Economic restructuring — creating an economic development strategy based on market realities and diversifying and expanding markets. Business and real estate development integrated into a total strategy works best. 4. Organization — establishing an organization of volunteers and professional management to oversee and guide the districYs revitalization process. The Main Street Approach is more fully outlined in Appendix B. • • � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � Neighborhood Commercial Revitalization Observations Downtown Saint Paul The Saint Paul Downtown Development Strategy of the Comprehensive Plan, a 10-year policy plan for the development of the downtown area, states in its introduction that: neighborhood-serving retail for downtown residents as well as retail activities that serve the needs of new and existing businesses and visitors who partake in downfown's resources. Downtown's market also includes the significant employee base of companies, institutions and govemment in the district. Downtown's physical strengths include an array of historic structures that tell fhe story of downtown's past, a wealth of existing and emerging green spaces and parks, and its proximity to and relationship with the Mississippi River. Downtown Saint Paul has a distinctive feel to it that its twin, Minneapolis, lacks due to the historic structures, street grid, opens spaces, and in its relationship to the river. This distinction can be a differentiating market position for downtown property and business development. The economic and development value of downtown Saint Paul's historic areas is also cited among the 10 principles of the "Saint Paul on the Mississippi Development Framework," including "build on existing strengths" and "preserve and enhance heritage resources." Clearly, the concept of preservation-based development in downtown Saint Paul is well- documented and stated in many key planning documents and studies. The question is, "Are there sufficient resources and support for the implementation of these strategies?" Downtown retail is weak by all accounts. Suburban competition and the loss of many retailers from the downtown area weaken its position as a major factor in the regional retail scene. Strategies to strengthen downtown retailing will need to be based on Neighborhood Commercial Districts Saint Paul is a city of neighborhoods; each with its own history and feeling. While downtown's retail potential is weak, neighborhood-serving convenience and specialty retail can thrive if fostered in a supportive environment. Several of Saint Paul's neighborhoods have already begun to develop commercial revitalization programs. Building on this foundation, Saint Paul can create a collection of unique neighborhood commercial districts that reflect the diversity of cultures and history found in the city. The team visited many of the commercial corridors and found the following good examples of the potential for neighborhood commercial development in Saint Paul. Lowertown Lowertown has proven to be a successful "urban village" that uses its historic character to differentiate itself in the market. The variety of residential options, interesting spaces, and mixture of uses found in Lowertown is an example of the impact that preservation-based economic development can have. After 20 years of redevelopment activity by the City of Saint Paul and Lowertown Redevelopment Corporation, the Lowertown area has enjoyed more than $450 million in investment and created a true urban neighborhood. While the development of Lowertown has taken time to succeed, it has proven that a steady growth plan that takes advantage of the neighborhood's assets — its historic buildings — can work. While Lowertown is considered successful today, it was a risky undertaking in the beginning. People interested in revitalizing other neighborhood areas in Saint Paul should keep in mind that Lowertown was not an overnight success, and that incremental change is necessary to ensure that districts continue to evolve with market opportunities. Payne Avenue — Arca de Street Commercial Districts The commercial revitalization programs in the Payne Avenue and Arcade Street Commercial Districts, managed by the East Side Neighborhood Development Company, Inc. (ESNDC), working with the Payne Arcade Business Association, have begun successful implementation of a neighborhood Main Street program. Part of the LISC National Mainstreet Initiative (NMSI), the Payne Avenue Commercial Building • • � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � Neighborhood Commercial Revitalization Payne Avenue project has incorporated all of the four points of the Main Street Approach. Reviewing the ESNDC strategic plan, the team noted that a successful economic development strategy was integrai to realizing its overall vision for the East Side. The program has addressed issues of business and property development; balancing historic and current neighborhood cultural sites, uses and design; and has continued to promote the area as a "neighborhood of choice:' One problem facing the Payne Avenue effort is the need to develop a sustainable funding model that continues beyond operational funding from LISC and/or the City. Area Plan assumes that the Selby Avenue trade area for goods and services is limited by competition from Grand and University Avenues, its low-scale buildings and neighborhood feei can help develop a convenience-oriented neighborhood commercial district. The Selby Area Community Development Corporation (Selby Area CDC) has developed a business plan that includes physical development projects and business development programs to support the revitalization of Selby Avenue. Seven Carners Gateway (West 7` Street� District del Sol (West Side� The District del Sol commercial revitalization program on the West Side, a program of the Riverview Economic Development Association (REDA) is another effort affiliated with the LISC NMSI It has been pursuing a commercial program based somewhat on the Main Street Approach. While its stated emphasis is on physical improvements and design in conjunction with marketing activities and crime prevention, it has also worked on tenant recruitment and community organizing. Public improvements have been planned for Harriet Island and District del Sol as part of the Smart Growth Twin Cities project. It will be essential that REDA work with agencies and consultants implementing that plan to ensure that the community remains involved in the redevelopment process. Selby Avenue The Selby Avenue corridor has the potentiat to become a successful neighborhood commercial district. Although the SelbyAvenue Small The Seven Corners Gateway Plan outlines a vision for a three-block section of West 7`" Street from Kellogg Boulevard to Grand Avenue that articulates a Main Street commercial node with neighborhood-serving businesses, but also offers entertainment centers for visitors and commuters who pass through the district daily. The physical plan described in the Seven Corners Gateway Plan is an important part of any commercial revitalization effort in the West 7� Street area, but it still needs additional elements, including a management system, marketing plan and business development strategy, in order to be a comprehensive commercial revitalization effort. Recommendations Downtown Recommendation #1: Conduct a study of financing foo/s and incentives. The Saint Paul Downtown Development Strategy recommends a study of financing tools and incentives to promote retention and protection of historic buildings and sites. The strategy named the Capitol River Council, the Heritage Preservation Commission, City Council Research, and Historic Saint Paul as the groups to conduct such a study. The team thinks that Historic Saint Paul could take the lead on such a study in partnership with other groups named in the strategy. Financing for the study could come from technical assistance funds available through the Preservation Development Initiative matched with government or private funds. Recommendafion #2: Pursue timely designation of downtown sites and districts and the use of other preservation tools as integral componenfs of the Downtown Development Strategy. The strategy identifies regular and on-going inventory and designation of local historic sites including sites threatened with demolition, and the designation of districts and sites recommended in the Saint Paul Survey and Designation Project and downtown buildings currently on the National Register of Historic Places. In addition, the strategy recommends the historic and architectural significance of buildings be given equal consideration to its "highest and best use", and to broaden the use of preservation tools for non- designated buildings. Historic Saint Paul is identified as a key implementer in several of these recommendations, and is uniquely positioned to be a strong private- sector partner to city departments, including PED and HPC, and other local organizations, in the implementation of these recommendations. Recommendation #3: Encourage a vision of downtown housing in historic 10 • • � � � � � � � � � � � � � � � � � � � � � � � � , � � � � � � � � � � � � � � � � Neighborhood Commercial Revitalization office buildings. Unique living spaces in historic buildings will support the strategy of creating a downtown residential neighborhood while maximizing the reuse of historic structures. Many of the current pians for downtown include housing, maintaining a pedestrian or human scale, and developing amenities for downtown residents. Historic structures, adaptively used, wili help downtown Saint Paul remain a comfortable place to live. Neighborhood Commercial Districts Recommendation #1: Develop a citywide, multi-district neighborhood Main Street program. There are several neighborhood commercial districts in Saint Paul that could support a comprehensive Main Street program, but need support to grow. The creation of a citywide Saint Paul neighborhood Main Street program would foster the generation and development of neighborhood programs and a network of efforts engaged in the revitalization of Saint Paul's commercial districts. Citywide commercial revitalization programs based on the Main Street model can be found in Boston, Baltimore, Washington, D.C., and Detroit. Many other cities have small numbers of urban neighborhood Main Street programs, but the citywide coordinating model provides the most support. Coordinating Main Street programs form the backbone of the national Main Street movement. While neighborhoods can participate in the Main Street program individually, the challenge can be a daunting one without the support of a coordinating entity that provides resources, a network, advocacy, and encouragement for all the Main Street programs in a city. Typically housed within a govemment agency or a nonprofit organization, coordinating Main Street programs partner with the National Main Street Centerto 1) provide hands-on assistance to participating communities; 2) develop resources to support revitalization activity; and 3) serve as a full-time advocate and front- line resource for commercial district revitalization in their jurisdictions. The team recommends that, ultimately, the Saint Paul Main Street Program be housed in City government but that Historic Saint Paul should participate in a design consulting capacity. Initially, it may be necessary to establish a demonstration program outside of government with private funding and City support until the City can identify funding sources. (Following the on-site work of the assessment team, Josh Bloom, senior program associate at the National Main Street Center, investigated the potential for the development of a citywide Main Street program in Saint Paul. His recommendations are included in Appendix B.) Recommendation #2: Work with the National Trust Community Investment Corporation (NTCIC) and other organizations with New Markets Tax Credits allocations to increase commercial lending in historic commercial areas. The New Markets Tax Credits program is a new financing tool created by Congress and managed by the Community Development Financing Institutions Fund (CDFI Fund) for increasing investment in commercial projects in low-income areas. The National TrusYs for-profit subsidiary, the NTCIC, received an allocation for credits to leverage $127 million in investment activity. The National New Markets Tax Credits Fund, Inc., a subsidiary of Community Reinvestment Fund, Inc., of Minneapolis received an allocation valued at $162.5 million. New Markets Tax Credit loan funds may be used for business investment — including real estate — and may be paired with the Historic Rehabilitation Tax Credit. Historic Saint Paul, working with the National Trust's Community Revitalization programs, can help eligible projects in historic areas connect to these funds. The New Markets Tax Credit (NMTC) Program permits taxpayers to receive a credit against federal income taxes for making qualified equity investments in designated Community Development Entities (CDEs) such as the NTCIC. Substantially all of the qualified equity investment must, in turn, be used by the CDE to provide investments in low-income communities. The credit provided to the investor totals 39 percent of 11 Downtown `Coney Island' Neighborhood Commercial Revitalization the cost of the investment and is claimed over a seven-year credft allowance period. In each of the firstthree years,theinvestor receives a credit equai to five percent of the total amount paid for the stock or capital interest at the time of purchase. For the final four years, the value of the credit is six percent annualty. Investors may not redeem their investments in CDEs prior to the conclusion of the seven-year period. NMTCs are allocated annually by the fund to CDEs under a competitive application process. These CDEs will then sell the credits to taxable investors in exchange for stock or a capital interest in the CDEs. The NMTC program is authorized to issue allocations to CDEs that will attract up to $15 billion dollar in investment. 12 • • � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � Neighborhood Preservation Current resources and activity within Saint Paul's historic residential neighborhoods can be expanded by stretegic investment, and historic district designation can make way for new resources. Leveraging investment from the private sector can spur economic and commercial development, stabilize fragile communities, and generally revitalize disinvested areas. The Role of Community- Based Nonprofits Saint Paul has a wealth of community-based nonprofits that are addressing community development needs such as affordable housing and economic development. These nonprofits focus in varying degrees —some highly and others not at all — on saving their historic assets. The following neighborhoods were assessed: West Side (no historic designation); Frogtown (no designation); Irvine Park (local and national designation); Uppertown/West Seventh/Fort Road (no designation); Selby Avenue (significant portions are designated locally and nationally as part of the Ramsey Hill designation); Dayton's Bluff (local designation); Payne Avenue (not designated, but identified as eligible for national designation); and Swede Hollow (includes the Hamm's Brewery campus that the Minnesota SHPO has determined is eligible for national designation, and parts of Swede Hollow fall in the Dayton's Bluff designation). In each of these neighborhoods, community-based nonprofits— sometimes more than one — were actively engaged. The organizations vary in capacity and focus on a variety of issues such as housing, community and economic development, neighborhood organizing and advocacy (associations), and historic preservation. Although there are common issues shared among neighborhoods, there is also a lack of communication or coordination between neighborhoods and the organizations serving them. This theme shows up in multiple levels within the City, from government programs and entities to the private sector, both nonprofit and for-profit. Issues include: the need for housing affordable to a range of incomes; education on the benefits of historic preservation; design guidelines; and financial resources to save and reuse historic homes — especially small, worker houses. Other issues include the need to revitalize neighborhood commercial areas, programs to address problem properties, addressing the rising cost of land in some areas, and incentives to attract investors to develop larger key projects such as the Schmidt's Brewery in the West 7'"/ Fort Road Community. Each neighborhood and the organization(s) serving them have specific strengths. For instance Payne Avenue has a Main Street program. Dayton's Bluff and West Side have successful home rehabilitation programs for both historic and non-historic properties. Rondo Community Land Trust is running a successful "home move" program in the Selby Avenue area, as well as sustainable construction and homebuyer training programs. On the West Side, the community's unique strength is their focus on cultural arts and an inventory of intact homes still affordable to low-income homeowners. Irvine Park has a model renovation program that has resulted in a unique community of beautifully restored historic homes. Historic Preservation As in many communities, historic preservation receives a mixed reception in Saint Paul. The traditional historic properties, such as mansions on Summit Hill near the cathedral are successfully preserved. Irvine Park is another example of a successful historic preservation program, and property values have risen dramatically in recent years. The community has successfully moved a number of historic homes into the neighborhood; however, the Irvine Park Historic District is now on the verge of jeopardizing its historic designation. In other historic neighborhoods such as Frogtown, Dayton's Bluff, and West Side, there has been less focus on the historic value and in a number of cases historic preservation is misunderstood as too costly to consider. This perception is shared both by some organizations and individual homeowners. Often this perception is driven by the limits placed on funding available (income restricted, etc.) to development organizations. It can be detrimental to St Paul's overall efforts to attract and retain residents while also respecting and building upon the 13 Rehabilitated Historic Home • • � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � i � � � � s � � � � � Neighborhood Preservation City's important historic housing stock. The neighbofioods that remain affordable to low- and moderate- income househoids are those that include a wealth of smaller, historic '4✓orker homes" originally built for retuming veterans and factory and railway workers. These homes form an inventory of properties that, upon rehabilitation using historically compatible guidelines, will add to the area's historic cuitural value and can be sold to low- and moderate-income families and can also contribute to the Mayor's ambitious "5,000 homes in four years" goal for affordable housing. Many of Saint Paul's historic neighborhoods are not designated districts. Designation can provide avenues for additional resources for a community. The City has been slow to add districts in recent years, leaving many of the affordabte communities with smaller historic homes unrecognized and ineligible for designation-related resources. Deployment of Community Development Resources in Neighborhoods Although nonprofits seem to rely heavily on government resource programs such as Community Development Block Grant and HOME funds, one of Saint Paui's strengths is the involvement of banks in community efforts. Bremer, US Bank, Saint Anthony Park, University Bank, Liberty State, Western Bank, Cherokee State Bank, and Wells Fargo to name a few, are lending to housing and commercial development in each of the neighborhoods. And this is not in isolation. Nonprofit organizations have forged successful partnerships with the banks to address many but not all capital needs. The capital resources typically being used are traditional grants and loans available through federal, state, and local govemment housing and community development programs. Private resources are also primarily in the form of granting and lending programs commonly operated by the lending community, foundations, and corporate philanthropists. Many local non-profit organizations, and developers, have been utilizing the City's 1!2 cent sales-tax program, STAR, as a source of flexible gap financing. The allocation of a significant portion of those resources to Housing 5000, combined with a weakened economy has increased the need for steady, flexible resources for large and small-scale rehabilitation projects. Saint Paul can benefit from more creative models such as secondary market resources, theme lending to upgrade an entire area, historic preservation resources. and specialized loan programs such as incentive, crisis and stabilization, and intervention funds. Greater resources would be forthcoming upon designation of additional communities as historic. These funds need to be income and geographically unrestricted to be most successful in Saint Paul. Recommendations The recommendations that foliow advise the use of financial and organizational structures to facilitate neighborhood preservation. While the City of Saint Paul can play a part in these structures, nonprofit preservation and community development organizations should take leadership roles in the creation and management of these efforts. Historic Saint Paul, working in collaboration with neighborhood development groups, should make neighborhood preservation a cornerstone of its agenda. Recommendations 1-5 directly address a neighborhood preservation agenda. Recommendations 6 & 7 are necessary components of such an agenda and have also been addressed in the `Preservation Infrastructure' section. Recommendation #1: Establish a Center for Collaboration Create a central point of collaboration among CDCs, historic preservation groups, neighborhood housing services organizations, and Main Street initiatives. Historic Saint Paui is best suited to staff resource, education, and training programs for nonprofit organizations. Such an initiative will: • Help organizations coordinate their programs, leam from each other, and share ideas and resources • Combine efforts to advocate for preservation-based community development efforts • Organize forums to educate about preservation of historic resources, smali and large • Provide technical assistance and education to homeowners and neighborhood developers alike • Provide design review for grant and loan resources • Provide design guideiines for neighborhood-based efforts • Develop an awards and recognition program to reward preservation thinking and efforts. Recommendation #2: Establish a Lending Pool Establish a lending pool to be managed by Historic Saint Paul 14 • • � � � � � � � � � i � � � � � � � � � � � � � � � � S � � � � � � � � � � � � � � Neighborhood Preservation structured to meet the unique needs of the City's historic neighborhoods. One of the greatest needs is a lending tool to assist in renovating smaller historic homes, both owner-occupied and rental properties that can be purchased, rehabilitated, and sold to low- and moderate-income families. This will meet two needs, that of affordable housing for lower income households as well as the preservation of historic homes. In Frogtown, a loan tool focused on historic properties might provide incentive for the organizations operating in the neighborhood to learn more about the historic resources there. Less demolition might occur and more rehabilitation takes its place, preserving the unique historic character of the community while providing affordable homeownership opportunities. In Dayton's Bluff, loans might be made to homeowners with incentives to rehabilitate houses in a historically compatible manner. A community such as this, that has a high percentage of homeownership, can benefit from lending tools uniquely structured to save historic value, while rehabilitating older homes. This tool should be targeted to owners with a range of incomes. In Irvine Park and West 7 Road neighborhoods, loans might be tailored to assist in the revitalization of the commercial corridor. A great deal of residential rehabilitation work has been completed by private property owners and under the leadership of the local CDC. Continued revitalization of the commercial corridor would add to neighborhood livability, and sustained private investment into residential properties. Business loans and reai estate improvement loans for commercial property could assist in this. Some creative lending tools with a preservation ethic might include: • Thematic lending to assist in upgrading roofs, porches, siding, windows, fences, or whatever exterior enhancement is needed in a neighborhood (no income restrictions and, where possible, in tandem with banks) � Intervention funds for threatened properties • Crisis and stabilization funds for low-income homeowners • Preservation loans to properties within historic districts or individually listed with no income restrictions • Preservation incentive loans for exterior enhancements adjacent to historic districts or properties to expand preservation buffers for these districts. The commitment of the banking community in Saint Paul makes it feasible to establish a significant pool of resources. Beginning with the commitment from the Knight Foundation, adding an additional commitment from the Neighborhood Revitalization Corporation (NRC), the banks that are already active in Saint Paul will be able to leverage additional resources for community development work. Recommendation #3: Create a Preservation Development Fund An unrestricted development fund is needed to fill gaps not met privately or by city government to improve the streetscape and marketability of historic neighborhoods. Often little impediments become major indicators of failure to the public because of slow response or lack of an unrestricted fund to �ust get things done " These needs may inGude: • Removal of dead trees or Vimming existing trees • Landscaping enhancements • Community clean-ups • Temporary signs to educate the community of efforts undenvay • Banners and lighting • Temporary repairs Recommendation #4: Lltilize a Secondary Market The strength of the neighborhood organizations and the commitment of the banking community make Saint Paul a prime demonstration site for a unique coliaboration between the National Trust for Historic Preservation and the Neighborhood Reinvestment Corporation. Historic Saint Paul could collaborate with Community Neighborhoad Housing Services in Saint Paul, for example, for the lending aspects of these recommendations, which would then allow for the sale of these loans through their national secondary market, Neighborhood Housing Services of America (NHSA). This, coupled with periodic replenishment of lending resources, can develop significant financiai assets for preservation in Saint Paul on an ongoing basis. This asset building and leverage for preservation is a critical need and a particularly ripe opportunity for Saint Paul. Recommendation #5: Develop Preservation Education Programs Using community forums, focus groups, and other organizing and training methods, educate the community on the value of historic preservation. The misperceptions 15 • � � � � r � � � � � � � � � � � � • � � � � � � � � � ` � � � � � � � ! � � � � � � Neighborhood Preservation regarding historic rehabilitation can be addressed through education and special training programs for homeowners as well as for community-based organizations. A good example might be in the West Side neighborhood, where the community development entities are restoring historic homes to their unique, original state and selling them to low-and moderate-income families with subsidies to bring down the purchase price. The multi-color schemes used on these historic homes, while beautifully done, might be difficult for low-income families to maintain. Through specially designed education programs for property owners and community development organizations, this type of issue can be addressed and alternate solutions devised. Education programs can also begin in elementary, middle, and high schools with programs that get students involved in writing the histories of their own neighborhoods and specific historic structures within them. A good example of this idea is a journal published by the students of East Consolidated Elementary School in 1991 entitled, A Walk through Time: a History of Our School's Neighborhood. Highlighting and awarding model restoration and rehabilitation efforts in the City would also enhance the public view of preservation and encourage innovation. The following recommendations are necessary actions to not only protect historic neighborhoods, but also to provide resources and a marketing niche. Combined with a homeownership strategy, historic preservation can be used to enhance and create market value can be part of an effort to create wealth for low and moderate income homeowners. The City of Saint Paul has primary responsibility for the implementation of the following recommendations; however Historic Saint Paul and housing advocacy organizations should accept the task of promoting the use of historic districts to create wealth. �� --�� ,� j / r Recommendation #6: Designate Additional Historic Districts The City must consider more of the historic neighborhoods for either local or national designation as historic districts. This would be af particular benefit to those neighborhoods that have smaller, historic worker homes; neighborhoods such as West Side, Frogtown, and Selby Avenue. Many of these homes are in disrepair and need rehabilitation resources. Without designation, negative and unfortunate results can occur such as tear-downs or inappropriate changes to buildings and the historic fabric of neighborhood streetscapes. Unsightly renovations and additions can detract from the historical and cultural significance of a neighborhood and have long- term negative impact on a community's ability to maintain private investment into its housing stock. Recommendation #7: Designate Conservation Districts. The City should consider establishing conservation districts in neighborhoods that have unique characteristics (i.e., carriage houses, workers houses, row houses, front porches, etc.), offering special financial incentives regardless of historic designation This could encourage a preservation ethic and stabilize and enhance housing stock without perceived restrictions. Forinstance,in orderto save historic carriage houses as affordable rental space for office or homes, the City should review pre- existing guidelines and return to earlier policies. Currently, new structures and incompatible additions are being built that damage the integrity of the historic neighborhoods. Carriage houses represent both an economic and historic resource if rehabilitated according to historically compatible guidelines. Many of them, however, have become a nuisance with overly large additions or unsightly e�eriors. 16 Saint PauYs CDCs Do High Quality Rehabilitation Work � • � � � � � � � � # i � , i � � � � � � � � � � � � � s � � ' � � � � � � � � � � � Downtown Development Projects Downtown Saint Paul has a rich fabric of historic properties, landmarks, and places. Because its sister city, Minneapolis, has attracted the lion's share of the region's economic growth, its centrel business district (CBD) has been largely rebuilt, leaving comparatively few structures to remind the city of its history and create a sense of place. tt's not too late for Saint Paul to chart a different course to the future. Reclaiming the riverfront from inappropriate uses such as the adult detention center and obsolete port facilities is a good thing. But Saint Paul should heed the lessons of Baltimore and other cities that have created heralded harbor districts, which, in turn, have drained the economic tife out of their traditional commercial cores. Specific observations and recommendations on how to capture the potential of Saint Paul's historic downtown follow. Observations Downtown Market Saint Paul has a chance to capitalize on its "historic edge" over Minneapolis if it can create a planning and devetopment process that values the past as a key economic driver of its downtown's future. Downtown historic properties in urban centers across the country have become a magnet for young professionals and empty nesters who want a different kind of living experience. Historic commercial districts have blossomed as entertainment and boutique retail districts. Heritage tourism is the fastest growing segment of the tourism sector. It could be a much 4arger contributor to Saint Paul's downtown economy. While success stories like Lowertown would suggest that Saint Paul has indeed embarked on a preservation-based downtown development strategy, there does not appear to be a clear vision of how to sustain Lowertown, and how to move beyond its boundaries to bring the Lowertown model to other sections of the CBD. The focus seems, instead, to be on the riverfront and how it can be redeveloped for housing, cultural, and recreationa! uses. All of those interviewed agreed that Saint Paul's central business district has a very strong housing market that has matured beyond apartment rentals to mixed rental and condominium offerings. As an example, the Cornerstone organization has presold twelve condominium units in the Great Northern Lofts property (J.J. Hill Building) for between $200 and $300 per square foot. The Tilsner, a subsidized artists' loft, is ninety- five percent leased and rents for between $850 and $1,300 per unit. Like nearly all major American cities, Saint Paul's downtown housing surge is fueled by the convergence of two very different market demands—traditional young, professionai singles and couples and the vast baby boom, empty-nester population group looking to re-experience city living. Saint Paul has done much to reinforce these market trends by becoming an increasingiy popular cultural, recreational, and entertainment draw, including venues such as NHL hockey, a children's museum, science museum, a variety of riverfront activities, and a growing artist community. At the same time, office vacancies have hit an ail-time high at 18.4 percent, up from 13.9 percent in 2001 according to the October 2002 Saint Paul Office Report. One leasing agent said that when master-tenant vacancies are counted, the rate rises to 24 percent. Totai absorption of office space in 2002 was a negative 192,169 square feet. The retail market is experiencing similar weakness. In addition to these statistical findings on the retail market, the assessment team noted a generat dearth of retail uses in the CBD. Vacancies appeared to be very high in the skyway system and on the ground level, even in heavily residential downtown neighborhoods like Lowertown. The weakness of the retail and office sectors woufd appear to set the stage for housing conversions of existing buildings. Public Subsidy for Downtown Housing Despite the high demand for housing in the CBD, both new construction and rehabilitation of existing buildings require public subsidy. This economic reality can be a difficult one for City planners and policy makers who have grown accustomed to public subsidy set-asides for affordable housing, not market-rate units. There is some concern in Saint Paul's neighborhoods that too many public dollars are being diverted to waterfront residential devetopments connected to Mayor Randy Kelly's Saint Paul 5000 Housing Plan. Saint Paul seems to have accepted the production of middle-class housing downtown as a legitimate public purpose. However, the City has, by far, a{focated most of the ava}lable STAR resources and other housing subsidies to new construction rather than rehab. This is a concern for 17 • • � e � � � � � i , � � � � � � � ` � � � � s r � � � � � � � � � i � i � � � � + � Downtown Development Projects preservationists fhat could be tempered 'rf a portion of the resources were allocated for the conversion of vacant and underutilized office and retail space into CBD housing opportunities. The City's 5,000 unit goal could still be met by converting vacant units, as the conversions of vacant units count as new units under the housing plan. Sustaining and Leveraging the Lowertown ExPerience Saint Paul owes much to Lowertown as a model for using the city's rich architectural legacy as the foundation for a new and vibrant downtown community. With 3,000 mixed-income residents, 850 of whom are artists, and 8,000 workers, Lowertown is a unique resource and catalyst for Saint Paul's CDB. Two questions emerged from the assessment team's look at Lowertown. First, can Lowertown's success as a mixed-income neighborhood be maintained, especially given setbacks like the failures of Galtier Plaza and the Depot? Constant vigilance and planning are needed to sustain a place like Lowertown, which could easily gentrify, pushing out the very artists who define its uniqueness as a community. And there is nowhere near the critical mass of retail uses needed to attract and retain its diverse household mix. The second question is whether Saint Paul can transfer the success of Lowertown to other parts of the CBD in order to maximize the economic benefits of historic preservation for its downtown? There does not appear to be a succession strategy. The lack of additional downtown commercial historic districts makes the use of the federal historic tax credit (and any future state historic tax credit) very difficult because each building owner who appfies for the credits must obtain individual listing in the National Register of Historic Places, a much higher level of significance than a "contributing° building in a designated district. Careful consideration should be given to the identification and designation of concentrations of downtown buildings, allowing access to significant resources to support redevelopment. Historic Preservation and the Mayor's Housing 5000 Plan As outlined above, Saint Paul's hot housing market is matched by an equally weak office market. There may never be a better time for the city to convert its older office properties to housing, removing unneeded office inventory and bringing 24-hour life to new areas of the CBD. Even though substantial rehab counts toward the 5,000 unit goal, results to date indicate the City's focus is on new construction as it manifests its vision for increased housing. By skewing its resources toward new construction, Saint Paul is not maximizing its potential for attracting the distinctly different market of buyers and renters who prefer the unique quality of loft- style living. Financing Incentives for Historic Downtown Property Conversions Saint Paul lacks the basic financing tools that many progressive cities have in place to encourage developers with choices to select historic property renovation. The expiring This Old House tax freeze for instance, does not apply to commercial properties. Mostjurisdictions do not limit their 10-15 year pre-rehab tax freeze to owner-occupied units. Given that property taxes are the single largest cost of operating a commercial property, the omission of historic commercial properties is a major flaw in the City's historic preservation incentive package. While the Old House Tax Credit was at the State level, the City could consider developing its own credit that included commercial properties. Twenty-one states now have some form of state historic tax credit. Minnesota is not among them, and Saint Paul stands to gain more from such a credit than any other Minnesota jurisdiction. Last year's successful legislative effort to rescue Maryland's state historic tax credit was led by Mayor Martin O'Malley of Baltimore because 90 percent of the state credits allocated benefited rehab in economically distressed areas of Baltimore. Connecting the dots Manyjurisdictions, including the States of Maryland and New Jersey, and the Cities of Los Angeles and Dover, Delaware, have moved aggressively to adopt smart rehab codes that lower the cost of rehabilitation and encourage loft conversions of downtown office and industrial properties. Combined with tailored financing programs and historic district designations that help leverage federal and state tax Lf;3 Lowertown • • � � � � � � � � , � � � � � � � � � � i � � � � � � � � � � � � � � � � � � � � � Downtown Development Projects credits, thesejurisdictions have created a healthy balance of rehab and new construction. A new, more preservation-friendly rehab code has been adopted by the state. While the state has offered in-depth technical presentations and other education programs on the code's rehab provisions, awareness of these measures outside the building industry is low. By necessity, in order to assure it achieves a maximum impact, localities, such as Saint Paul, will have to enact a complementary set of public policy initiatives to educate the general public about preservation-minded strategies in the building and rehabilitation of structures. Getting ahead of the market Key properties like Hamm's Brewery and the Union Depot should not be allowed to fail into private-sector hands when their adaptive use could mean so much to the health and vibrancy of Saint Paul's downtown and older neighborhoods. Since the time that the assessment team visited Saint Paul, the City obtained a purchase agreement for much of the Hamm's site. Now the City will have the opportunity to direct the rehabilitation of the site with a developer who will use the historic character of the complex to maximum advantage. The project will be complex and will require vision and patience. A through feasibility study that also accounts for the market and culturaf value of the historic nature of the site is needed. An unknown fate appears to await the Depot, which is in foreclosure. Its potential use as a multi-modal transit center and as a connector between Lowertown and the waterfront will be complicated if a private speculator steps in before the City or County acts. I�ey Opportunities Key opportunities to use historic properties for economic and community development gains lie before the City. The PDI assessment team noted the existence of a number of critical historic properties whose sensitive adaptation to new uses can make a significant contribution to the economic and community development of Saint Paul. These include: • Hamm's Brewery • The Head House/Sack House • Union Depot • Post Office • Lowry Building • West Publishing Building (Ramsey County West) • Schmidt Brewery Specific recommendation on each of these properties is made in the following section. Recommendations Saint Paul has a large number of significant CBD historic properties that make a real contribution to the economic health of the city's downtown today. As growth and change inevitably undermine the marketability of these older buildings, they should be adapted to new uses that support the land- use goals of the Comprehensive Pfan. l'he private sector knows that new construction is often cheaper, easier to accomplish, and more profitable than historic rehabilitation. The public role, however, should be to balance profitability with quality, cultural significance, and other elements that will serve the long-term interests of the City and enhance private property values over time. To achieve this end, Saint Paul must be more deliberate and develop a comprehensive approach to maximizing the economic benefits of its downtown historic buildings. This comprehensive approach should include the foilowing elements: Recommendation # 1: Inventory historic and older buildings Following the strategy's adopted in the Downtown Development Strategy (March 2003). City departments including the Heritage Preservation Commission (HPC) and Planning and Economic Development depaRment (PED) should work together to inventory all of the central business districYs historic and older commercial and residential buildings. From ofthis inventory should come a list of priority properties, ranked separately for their historic significance, strategic economic importance, and financial stability. A special note should be made of properties up for sale or rumored to be available. Key buildings to inventory would include the Lowry Medical Arts, First National Bank, Pioneer, Northwestern, Empire, Strauss, and Crane Buildings. Recommendation #2: Design an incenrive financing package Simultaneous with the inventory, PED should design an istcentive financing package for CBD historic rehabs that meet certain criteria and conform to the goals of the Comprehensive Plan. These incentives should include preservation development earmarks from existing programs such as STAR, tax increment financing, and Metropolitan Council grants, to indicate Saint Paul's interest in balancing the 19 � � � e � * � � � + , � � � � � � + � � � � � � � � � � � � � � � � � � � � � � � � � Downtown Development Projects growth of downtown between rehab and new construction. Assistance in providing parking facilities for renovated properties is critical. At the same time, the mayor should announce a legislative agenda thaf includes state and local enactment of incentives commonly available to other cities such as state historic tax credits and historic commercial property tax freezes. Recommendation #3: Create a fa�ade easement program The City should work with Historic Saint Paul (HSP) to develop a fa�ade easement program that helps developers achieve tax deductions and corresponding property tax rate reductions for donating easements in perpetuity to a local nonprofit organization. The program should provide HSP with the capacity to provide legal and tax accounting assistance to property owners and to ultimately hold the easements. Recommendation #4: Form Nafionai Register commercial districts Backed by the inventory work, financing incentives, and tax relief measures outlined above, HPC should recommend the formation of one or more National Register commercial districts. These districts would qualify contributing buildings for federai and, hopefully, a future Minnesota State historic tax credit and historic commercial property tax freeze. The districts should not be locally designated initially and should not require review of privately financed exterior improvements. The only real constraint on property owners would be on the use of federal funds for property demolition or inappropriate exterior changes that would trigger a Section 106 review. Recommendation #5: Gain public control of key properties when available The City and County should collaborate on an early intervention strategy that secures public control of key historic properties at the point of sale or foreclosure. The strategy should be aimed at ultimately reducing the cost of transferto an appropriate developer, managing design, and playing a strategic role in determining the planned reuse. Recommendation #6: Develop an assessment process for historic properties The early intervention strategy should be linked with the development of a historic property assessment process that would give PED the ability to work with neighborhood residents and preservationists to objectively assess the feasibility of historic property rehab. Recommendation #7: Address the continuing needs in Lowertown Saint Paul should redirect resources to address the continuing need to maintain the delicate stability of Lowertown. A key project to pursue on an accelerated basis would include the redevelopment of the Union Depot as a mixed-use inter-modal transportation center. Control of the train concourse should be used as a means of connecting Lowertown's artist and general resident population with riverfront amenities. Resident-serving retail is also a critical priority. Spec�c recommendations for key historic buildings: • Head House/Sack House— Mayor Kelly should announce his intention to put executive branch resources, including PED, behind the efforts of the Saint Paul Riverfront Corporation to further adaptive use for this historic structure. As of June 2003, a developer has been tentatively selected. Reuse options are focusing on a restaurant initially and an interpretive center for the riverfront history that the structure represents for the longer term. Parties are working with the National Trust for Historic Preservation on a financing package that could use the rehabilitation tax credit and the New Market Tax Credit. Union De�ot — Use ot the concourse shouid be negotiated with the U.S. Post Office. Efforts to plan the DepoYs use as a light rail stop and inter-modal center should continue. Seek the help of the Great American Train Station Foundation to assist in the planning. Memphis' Central Station project should be lookedtoforlessonslearned. 20 Head and Sack House • • � � � � � � � � � � � � � � � � � � � e � � � � � � � � � � � � a � � � � � � � � Downtown Development Projects Options for the use of currently vacant head house and concourse space should include art exhibit space, an exercise club, housing, and educational facilities. down the adult detention center and use the land made available as a carrot to attract a developer to perform an adaptive rehab of the West Publishing Building. Lowrv Buiidina — The building known as the Lowry Professional Building will be renovated into a mixed-use development with commercial space, retail space and for- sale condominium housing units. The condominiums units will be located on floors three through the penthouse on the thirteenth floor, and the commercial space will be located on floors one and two. The new redevelopment proposal shows a gap in financing needed to renovate the building due to costs slightly exceeding the ability of project to obtain private financing. It is anticipated that in order to preserve this historic 6uilding, it will require some public financing assistance. This is currently being analyzed. Hamm's Brewerv—The City should re-engage the neighborhood residents, and prospective developers in an assessment of the potential uses of all or part of the Hamm's Brewery site. The assessment should include a structural study, environmental review, community input, proposed use options with schematics and cost estimates, and identification of subsidy mechanisms. Demolition of nonhistoric or structurally unsound buildings in the camp{ex should be strongly considered to enhance feasible development options. • West Publishinq (Ramsev CounN qropertiesl — Tear 21 • � � � � � � � � � s � � � � � � � � � � e ` ` � � � � � � � � � � � � � � � ` � � � Heritage Tourism Saint Paul is a city with remarkable resources and assets. Among these are the city's rich and diverse heritage, outstanding examples of architectural design, an engaged citizenry, and an enterprising and effective city government. Saint Paul is aiso a city that is struggling to determine its image — Will the emphasis be on modern or historic buildings? What is the role of historic preservation? Is it a sports town or a cultusat centes? Flow dces it compete with Minneapolis? This section of the report focuses on the city's cultural and heritage resources in regard to potential for increasing tourism by organizing, developing, and promoting these resources. Heritage tourism is a growing industry, and investment in preserving and promoting historic resources can have tremendous benefits. The citys heritage resources should be fully incorporated into every aspect of planning and promotion. Outlined below are specific steps that will unify heritage resources, create a stronger voice, and position heritage sites for effective promotion. But the overarching recommendation is to... Develop a Cultural Heritage Tourism Plan for the City of Saint Paul. Heritage Tourism: A Growing Industry In the past decade, there has been great grow[h in heritage travei. ln fact, according to the Travel Industry Association (TIA), heritage travel was the only segment that saw an increase after the events of September 11, 2001. A survey conducted by TIA in 2000 highlighted the e�ertt of heritage travel: Heritage travel increased 10% in 2000 over 1996. Two-thirds of all travelers (65%) include a heritage or cultural site in their travels — this translates to 92.7 million annually. • Heritage travelers stay longer —4.7 nights compared with 3.4 nights for other travelers. • They are likely to e�end their trip — 30 million travelers extended their stay because of heritage and 26% stayed two or more extra nights. • Heritage travelers spend more — an average of $631 per trip compared to $457 for other travelers. • Heritage travelers are more likely to stay in a hotel, motel, or B&B. • They are more likely to take a group tour — 6% as opposed to 3%. � Heritage travelers shop more — 44% compared to 33% for other travelers. • 18% spend $1,000 or more on their trips. • They are looking for unique items that represent the destination. • Heritage travelers tend to be slightly older and to have a post graduate degree. Observations A Cultural Heritage Tourism Plan for Saint Paul Two planning processes are currently under way in Saint Paul, stimulated by strong leadership from the o�ce of Mayor Randy Kelly: 1) St. Paul Cultural Plan - This excellent project is bringing together cultural resources from across the city to develop a state- of-the-art cultural plan as a key component of St. Paul's "Renaissance " Wolf, Keens and Company, the consulting firm retained to formulate the plan, wili implement a comprehensive strategy including audience research, budget analysis, programming inventories, market surveys, focus groups and public meetings. The goal of the resulting cultural plan is increased funding, higher visibility, improved coordination, better programs and an expanded audience for the arts. The recognition of St. Paul as a cultural center and the unity of the city's cultural institutions provide a firm foundation for development of this cultural plan. The plan will be implemented in 2003. 2) Branding St. Paul — This project is an effort to "define" the city for both residents and visitors. A task force was appointed by Mayor Kelly, and a group of leaders from city government and a�liated organizations worked to create a vision and a brand essence for St. Paul. The group sought to identify what was specia{ and unique about the city, and to create a series of definitions that characterize the city and can be utilized across a broad spectrum of areas ranging from encouraging relocation of businesses to St. Paul to marketing the city to visitors. Observations on Cultural Plan and Branding Project The intention of these two projects is to enhance the pcofile of St. Paul. The following observations on each project are in reference to the proposal that St. Paul develop a heritage tourism plan: The Cultural Plan only gives passing reference to the city's heritage resources. Reviewing the project's materials including the 22 i • � � � � � � � � ` � i � � � � � w � t � � � � � r � �� ! ` � � Heritage Tourism charrette notes, information survey, list of organizations to be suneyed and the outline of intended outcomes, it is clear that this plan focuses primarily on the arts. A Heritage Tourism Plan can complement and work with the Cultural Plan. The core of the Brand Essence was defined as °Gem, Harmony and Ethic." Each of these words can effectively relate to heritage tourism. The city is a"gem" because of its historic buildings, both downtown and in the city's neighborhoods. The terms "harmony" and "ethic" can related to the warm welcome that visitors will receive and the authenticity of the heritage interpretation that visitors will experience. As the group further defined the brands, word like historic, genuine, welcoming, entertainment, arts and culture further defined characteristics of St. Paul that can be appealing to heritage visitors. Incorporating Heritage and Culture In order to develop a Cultural Heritage Tourism Plan for Saint Paul, it is important to understand the refationship between "culture" and "heritage." The visitor who is interested in art is also often interested in heritage; therefore the two can work well together in attracting visitors to a community. Based on a survey of programs across the country, the National Trustfor Historic Preservation's Heritage Tourism Program has developed the following observations about cultural heritage tourism in the document Cultural and Heritage Tourism: The Same, OrDifferent? "It is not possible to define cultural tourism and heritage tourism as two entirely different kinds of tourism. In looking at definitions of both heritage and cultural tourism, there clearly is ovedap between the two. Without question, the areas of overlap far exceed the differences. "Most importantly, the heritage visitor and the cultural visitor are quite often one and the same, and thus it makes sense to work together to create appealing and well-rounded cultural heritage visitor experiences. ... `heritage' programs are more often found in rural areas while 'cultural' programs are more often found in urban settings. Historic preservation groups are more likely to describe `heritage tourism' programs, while museum and arts groups are more likely to refer to 'cultural tourism' programs, though the content is often quite similar. "Heritage tourism programs are often associated with history and the past, and yet, modern culture has roots in the past. Furthermore, an enlightened preservationist is able to see the culture of today as the heritage of tomorrow. "The primary difference between the two is that heritage tourism is `place' based. Heritage tourism programs create a sense of place rooted in the local landscape, architecture, people, artifacts, traditions and stories that make a particular place unique. Cultural tourism programs celebrate the same kinds of experience, though with less emphasis on place. Thus, viewing the work of a great master artist in his home and studio is a heritage tourism experience, while viewing those same pieces of art in a traveling exhibition is a cultural tourism experience. The content is the same while the contezt is different° Steps and Principles for Developing a Cultural Heritage Tourism Plan The National Trust for Historic Preservation's Heritage Tourism Program advocates the use of four steps and five principles for developing a successful and sustainable cultural heritage tourism program. This section will follow the four-step process, incorporating the principles throughout. The four steps are: 1. Assess the potential. Evaluate what your community has to offer in attractions, visitor services, organizational capabilities, ability to protect resources and marketing. 2. Plan and organiae. Make good use of human and financial resources. They are keys that open the doors to sustainable heritage tourism. Set priorities and measurable goals. 3. Prepare for visitors, protect, and manage your cultural, historic, and natural resources. Look to the future as well as the present. Be sure that the choices you make now improve your community for the long term. 4. Market fior success. Develop a multi-year, many-iiered promotional plan that targets your 23 F. Scott Fitzgerald Statue • � � � i � � � � � � � � � � � � ` � � � � � � ` � � � � � � � � � � � � � � � � i • Heritage Tourism market. Look for partners in local, regional, state, or national groups. The five principles are: 1. Collaborate. Much more can be accomplished by working together than by working alone. Successful heritage tourism programs bring together partners who may not have worked together in the past. 2. Find the Fit Between the Community and Tourism. Balancing the needs of residents and visitors is important to ensure that cultural heritage tourism benefits everyone. It is important to understand the kind and amount of tourism that your community can handle. 3. Make Sites and Programs Come Alive. Competition for time is intense. To attract visitors, you must be sure that the destination is worth the drive. 4. Focus on Authenticity and Quality. Quality is an essential ingredient for all culturel heritage tourism, and authenticity is critical wherever heritage or history is involved. 5. Preserve and Protect Resources. A community's cultural, historic, and natural resources are valuable and often irreplaceable. Recommendations Step One: Assessing the Potential Resources and opportunities in Saint Paul include: * Diversitv of Resources — A wide variety of museums, historic sites, homes, festivais, heritage areas, ethnic neighborhoods, architectural styles. � HistoricafStories—Ranging from Native American history to the city's establishment and development, the construction ofthe railroad, immigrants, authors, and gangsters. - Product Develooment Potential — Opportunities exist for interpretation and creation of attractions along the riverfront and downtown • Partnershi�s — Bringing together heritage and cultural organizations can benefit the organizations and their customers. CVB Commitment — Identification of heritage as an area that needs additional exposure is the first step in developing a plan for promotion of Saint Paul's uniqueness. Challenges in Saint Paul include: • Lack of UniN— Heritage attractions have no unified "voice" to establish credibility with City leaders and to rise to the forefront as an important element in attracting visitors. (Discussed in Step 2.) Orqanizational Capacitv - Nonprofit sites are coping with shrinking budgets, raising additional funds, recruiting and retaining volunteers, and serving multiple audiences. (Discussed in Step 2.) • Visitor Services — Visftors to Saint Paul will have di�culty in orienting themselves to the city because there is no Visitor Center. (Discussed further in Step 3.) Assessing the Current Visitor Experience at Heritage Attractions Saint Paul's diversity of heritage attractions offers a foundation, or hub, fior visitors to begin their exploration of the city's history. From here, they can branch out to the spokes — historic neighborhoods, ethnic festivals, architectural downtown tours, river wafks, etc. In offering a heritage experience to travelers, it is critical to understand the audience and their expectations. Heritage attractions are competing against many other activities that can occupy a traveler's time. Additionally, it is important to recognize that although today's visitors are more sophisticated and well traveled than previous generations, they are less educated about our country's history. To better understand the current visitor experience in Saint Paul, an evaluation of each of Saint Paul's heritage attractions is recommended. This evaluation should include the following: 1. General Appearance — Is the property well maintained (including any buildings and landscaping)? Are signs easy to locate and understand? 2. Accessibility — is the site ADA compliant? Is it open for regular hours and days of operations? 3. Quality of Tourist Services — What items are sold in the gift shop? Are there enough restrooms? Is there ample parking? Is there a stafF person or volunteer who can provide information on other attractions or who can give clear directions? 24 • • � � � � � � � � � � � � � � �- � � � � � � � ` ` � � � � � �- � � � r � � � � � � � Heritage Tourism 4. Site Presentation — Are the interpreters knowledgeable? Is the information presented in an interactive mannerl Does the presentation invite critical thinking by the visitors? Are there opportunities for hands- on activities and demonstrations? Are there regularly scheduled special events such as reenactments, musical performances, candlelight tours, or others? After conducting this assessment, a plan should be developed identifying the necessary improvements and additions that should be made at each site. This plan should be incorporated into Step Three: Prepare, Protect, and Manage along with a timeline for completion of the identified changes. Step Two: Plan and Organize Although Saint Paul has a richness of heritage and culturai resources — house museums, history and art museums. festivals, cultural events, artists' studios, ethnically diverse historic neighborhoods, themed tours, etc. — each is virtuaily working in a vacuum, developing programs, raising funds, recruiting volunteers, planning events, etc. Although the cultural — or arts — community appears to be both vocal and organized, the heritage community is not. Planning and organizing is the first step to address this situation. Sharing Resources Saint Paul's heritage attraction's staff and volunteers are expending energy to reinvent the wheel instead of sharing knowledge, resources and lessons tearned with each other. Heritage representatives attending a meeting during the Preservation Development Initiative site visit noted that this was the first time they had met as a group to discuss common concerns, issues, and opportunities. There was agreement that a continuation of these meetings will be beneficial to all participants. To build on these new partnerships, the following steps are recommended: • Develop a database of heritage resources and contacts. • Determine a reaular meetinq schedule and distribute to all representatives with an invitation to participate. • Identifv areas of common concerns, issues, and opportunities to work together. • Develop a timeline using identified priorities. • Apqoint committees to work on each agenda item. • Report back to the full committee and track accomplishments. To better share resources, attrection representatives should identify areas where they possess a particular expertise that could be shared with others. An educational session can be included in each meeting agenda. A site representative can make a presentation on how their site, neighborhood or event undertakes and implements the identified area. If no one on the committee is well versed in the topic, identify appropriate speakers or consultants and recruit them to conduct the session. Educational sessions might include topics such as: � Workina with the media — How to develop a press release, how to conduct an interview, how to generate publicity for your site or event. • Develooinq effective adveRisinp — Choosing the right images and the right words, ad placement, tracking resutts. � Recruitment of sponsors — How to identiTy and solicit sponsors for a special exhibit or event. � Grant writinq — Identifying fund sources and writing winning grants. � New tours — Researching historical information, creating an entertaining and educational tour and training tour guides. � Volunteer recruitment — Where to look for volunteers, what to expect from volunteers, training and recruitment tips. � Identifvina oartners — How to approach potentiai partners — businesses, other attractions, other nonprofits — and build a successfulpartnership. (Note: See Appendix C: "Tips for Successful Partnerships") Creating a Voice By demonstrating to Saint Paul's elected officials, the CVB staff, local media, and other stakeholders that heritage site representatives are working together, heritage sites will benefit in several ways: � Speakina with a unified voice — Just as the arts community has accomplished, the heritage 25 • � � + � � � � � ` � � � S � � � � � � e � � � � � � � � « � �- t � � � � � � � � r � Heritage Tourism community will be able to clearly communicate what is needed in City support and to convey the importance of preserving and promoting the citys heritage. Increasina credibilitv — The saying "strength in numbers" will apply. Reaching consensus and speaking with one voice will result in recognition of the dedication of staff and volunteers who are caretakers of Saint Paul's heritage. Convevinq the messaqe — Heritage site representatives will be able to reach consensus among themselves about the messages that should be conveyed to visitors about the city's heritage, making it easier for the CVB to promote the sites individually and collectively. Step'I`hree: Prepare for Visitors, Protect and Manage Resources Focusing Attractions on the Visitor Saint Paul's heritage sites offer widely differing hours, days and months of operation. Only a few attractions are open daily, year- round. Many are open only during the summer and fall. Still more request or require advance reservations to open a site. The following lists reveal these operational inconsistencies: Open daily, year-round, no appointment required: • Landmark Center • State Capitol • Saint Paul Public Library • Science Museum • Cathedral of Saint Paul Limited days/months, no appointment required: • Museum ofAmerican Art— Tues: Sun., year-round � Children'sMuseum— daily, summer months; Tues.-Sun., Sept-May • Carousel — daily, May 1- 25; Tues.-Sun., May 26- Sept. 3 • History Center — daily, July-Aug.; Tues-Sun, Sept: June • Ramsey House — Fri-Sat, May-Dec. • Gammelgarden Museum— Fri-Sat, year-round • Gibbs Museum — Tues- Sun, May 1-Oct. 31 • Governor's Residence — Fri., May-Aug. • Historic Fort Snelling — Sat-Sun, May, Sept., Oct.; Wed.-Sun, Memorial Day- Labor Day • Air Guard Museum — Sat- Sun, April-mid-Sept.; 2" Sat., Oct-March • Kelley Farm — Sat.-Sun., holidays, May, Sept., Oct.; Thurs-Mon., June-Aug. • Sibley Historic Site — Thurs-Mon., May 1-Oct. 31 • Twin City Model RR Museum — Tues-Sun., year-round • Farmer's Market — May- Oct. • Summit Brewing Company —Tues., Thurs., Sat. tours • Schubert Club and Museum of Musical Instruments — Mon-Fri., year-round • Jackson Street Roundhouse — Sat-Sun, year-round Appointments Required/Requested: • Assumption Church • City Hall/Courthouse • Sleeper House • Old Muskego Church • Saint Paul Public Library (for tours) • James Hill House • Down in History Tours • Minnesota Historical Society Tours These differing schedules are problematic for several reasons: Visitor Triq Planninq — People travel with the intention of relvcing, enjoying themselves, seeing new areas and sites, and, particularly in the case of heritage travelers, learning something new. Ease of touring and sightseeing is essential. The frustration of trying to discern which sites are open — and the disappointment of finding that many are not — can cause a traveler to pick another vacation destination. Calling many sites to schedule tours, changing travel plans to visit on days when sites are open, and trying to piece together a tour from available sites will likely only irritate a potential visitor and perhaps result in the loss of a visit to Saint Paul. Partnerinq with Events — Saint Paul has more than two dozen festivals and special events annually, including the Winter Carnival in January, the Scottish Ramble in February, An Irish Celebration in March, the Festival of Nations in April or early May, Capital City Lights and the Festival of Trees in November and the r•'Tj. ]. J. Hill House • ! � � � � � � � � � , ` � � , � � � � � � ` , � t � � � � � � �' � � � � � � � � � � Heritage Tourism Capital New Year in December. These and other festivals and events attract large numbers of visitors. Because the majority of Saint Paul's heritage attractions are closed during these months, the opportunity for partnership marketing and packaging — and increasing visitation — is lost. Heritage attractions are encouraged to open during major events, such as the Winter Camival, and to work with event organizers on joint ticket sales and promotions. Itineraries — Recent research of travel trends shows clearly that a simplified planning process is a critical requirement for consumers. Travelers are opting for shorter trips, and weekend travel now accounts for half of ail trips. As a result, consumers want to be able to quickly identify attractions and activities that relate to their area of interest. Suggested itineraries focusing on various themes make it easy for visitors to plan their visit. Research afso shows that heritage travelers enjoy many different types of activities, so itineraries should include information on non-heritage activities, such as shopping, hiking in parks, or attending a theatrical performance. Promotional Difficulties — The lack of regular hours of operation makes it difficult for the CVB to include heritage attractions in its promotions. For example, a promotion titled "Make a Night of It" includes eight hotels offering discount packages between November 15 and February 16. The Fun Pass is also included. Heritage attractions receive no benefit from this promotion because the majority of them are closed during these months, and none are inciuded on the Fun Pass. (Note: See Appendix C: "Sample Itinerary') Providing Improved Visitor Services Attractions — heritage, cultural, and other types — draw visitors to Saint Paul. But it is the services they receive and the hospitality with which they are provided that will ensure that they go away satisfied and planning to return. Saint Paul's tourism industry needs to make improvement of visitor services a priority. Saint Paul Visitor Center The CVB currently provides visitors with an Information Center Network, seven locations where visitors can stop at an information desk to ask questions and pick up brochures. However, a city the size of Saint Paul needs an official Visitor Center that provides a place for visitors to start planning what they will see and do. As stated in Tourism USA: Guidelrnes for Tourism Development, produced by the University of Missouri — Columbia, Department of Parks, Recreation and Tourism, °Tourist Information Centers are the most important visitor service facility in a community. They frequently provide the initial contact with tourists...and they have the opportunity and responsibility of creating the first impressions a tourist will perceive ° It is essential that the Saint Paul Visitor Center be an impartial distributor of information. Although spaces may be made available for attractions to place displays for a fee, brochures, tickets and souvenir sales, etc. need to equally represent all attractions. A new position of Visitor Center Manager should be created through the CVB. The manager will be responsible for running the center, hiring staff, providing training, selecting merchandise, developing entertainment, and operating ticket sales and reservations programs. After reviewing many possible locations for a Visitor Center, the most advantageous appears to be the Landmark Center. The location wouid be ideal for several reasons: • The building is owned by the county. • Minnesota Landmarks manages the building and takes care of all maintenance. • The building is centrally located downtown near major hotels. • The center is already attracting visitors to enjoy its programming and small museums. � The current information area and gift shop, and the room directiy below this space, can be reconfigured for a Visitor Center. • The building houses an excellent cafe. To convert the Landmark Center space into a Visitor Center, the foilowing components should be included: • Siqns — Starting at all major interstate exits into Saint Paul, signs should easily lead visitors to the Visitor Center. Signs will need to be placed at each entrance to the building and throughout the downtown area as well. A large sign over the information desk should clearly state "Saint Paul Visitor Center." • Staff— Information specialists should be hired by the CVB 27 • � f � � � � � � � � � � s � � � � � � � � � � � � i � � � s � � � � � � � � � s � � Heritage Tourism and receive thorough training on attractions, restaurants, hotels, and visitor services. Training should include visiting all of the city's attractions and being competent to give directions. Increased traffic to the Visitor Centerwill require more than one specialist on duty at any given time. A computerized system for storing and retrieving information will make it easy for the specialists to access information and receive regular updates on activities and events. • Hours of Operation — The Visitor Center should be open 7 days a week — from 9 a.m. (or earlier) until at least 5:30 (or later). Disolavs — Photographs, posters, artifact exhibits, and other displays should be designed to create an inviting appearance, but also to generate interest in visiting Saint Paul's attractions. An area should also be dedicated to a large calendar of events which can be changed weekfy or monthly. • Brochure Racks — These should provide space for every attraction to be included at no cost and should be kept continuously stocked. • IntroductorvFilm—Theroom below the current information desk provides an ideal space for showing a film which will orient visitors to the city. Ticket Sales — A program should be developed for information specialists to sell tickets to area attractions. Tickets could be discounted to encourage visitors to purchase them in advance. The Visitor Center can keep a small percentage of the ticket sale price for program administration and to support the upkeep of the Visitor Center. Reservation Services — Information specialists can also book hotel and motel rooms or make reservations at local restaurants. This service will encourage visitors who may only be passing through the city to stay overnight, resulting in increased expenditures. As with ticket sales, a small percentage of the reservation price can go back to the Visitor Center operations. Gift Shop — The Center currently houses a gift shop that offers generic items such asjewelry, dolls, cards, toys and figurines, and a few items relating to the Landmark Center. Reorganizing the space will allow for sales of souvenirs that relate to Saint Paul's attractions. Souvenir sales can also support the Visitor Center operations and provide a small profit back to the attractions. Walkinq Tours — Some of Saint Paul's many guided walking tours could be encouraged to begin from the Visitar Center. While participants are waiting for the tour to begin, they will have the opportunity to learn about other things to see and do in Saint Paul, purchase tickets and souvenirs. Arts and Entertainment—The Landmark Center already does an outstanding job of programming special music and events at the Center. These can be supplemented with additional music, arts demonstrations, etc. to let visitors know about events in other parts of the city. For example, during the Artists Studio Open House Days in Lowertown, an artist could come to the Visitor Center to demonstrate his or her work and hand out flyers about the open house. Visitor Survevs — The Visitor Center is an excellent location to place surveys to gather infiormation on visitor origin, length of stay, number in parry, etc. The surveys can also reveal the effectiveness of signs leading into the city or satisfaction with accommodations or attractions that have already been visited. As stated in Tourism USA: Guidelines for Tourism Development: "Most visitors are strangers to the community and are unaware of the variety of attrections offered. Types of information that should be available to tourists should be classified for easy reference, and could include most of the following major categories: • Accommodations (hotels, motels, campgrounds, B&Bs) • Auto repair garages m Iandmazk Center • • � � � � � � � � � � � � � � � � � � � � � ' � � � � � � � � � � � � � � � � � � � Heritage Tourism • Attractions — amusements � Children's services • Churches • Cultural attractions— museums, galleries, lectures, musical performances • Complaint referrals • Community events • Directional information • Emergency information • Foreign language interpreters • Health services and hospitals • Historical sites, places, and buildings • Maps • Parking • Parks and recreational places — tennis courts, swimming pools, golf courses, horseback riding stables • Restaurants—type, price range, reservation requirements, accessibility • Sightseeing services • Transportation Services • Walking tours Wayfinding Signs The comfort a visitor feels in a community is directly linked to the ability to find their way to attractions, shopping, restaurants, and accommodations. In the core area of Saint Paul — downtown and surrounding neighborhoods— signs are inconsistent and sometimes confusing. Different styles appear randomiy, most likely representing different city administrations' attempts to address the need for signs. Current signs should be evaluated and addressed on four levels: Citvwide — A ciear system of easily identifiable signs needs to be developed to lead visitors from one attraction or neighborhood to another. A unifying design or logo will make the signs easy for visitors to spot. The signs should be large enough to be noticed while driving. • Attractions and Neiqhborhoods — Signs should clearly identify to the visitor that they have arrived at an attraction or are entering a historic neighborhood. Downtown Skyways— Much of the downtown is connected by skyways, but a first-time visitor has no knowledge of how to access the skyway or what will be found on the second stories. Signs need to be placed throughout the downtown to lead visitors to street-level and skyway restaurants, shops, and attractions. Parkina — Knowing where to park saves frustration for visitors who may not be sure what is acceptable and what is not. For example, following the parking signs at the State Capitol leads visitors past the building to a parking lot that is usually full. Parking is readily available in front of the capitol building, but it is not clearly marked 4or visitors. Additionally, nonworking meters are located at each spot, leading a visitor to try to place money in a meter that does not work, and perhaps worrying about being towed while touring the Capitol. This is just one example of the need for cleariy marked parking at all attractions. Sign Program F�campfe: Direction Philadelphia This sign program was designed to make Philadelphia more visitor friendly. The program provides directional signs, identifies attractions, and links neighborhoods and districts. Federal Highway Administration funds (through TEA-21) supported the fabrication and installation of some 250 signs. Maintenance costs are paid by participating institutions based on the number of times the institution is mentioned on the signs. A P�ogram Description and Graphic Standards Manua/addresses management and administration, financing strategy, policies and procedures, maintenance, and graphic standards. Direction Philadelphia was initiated by the Foundation for Architecture. Planning was funded by a grant from the William Penn Foundation. A steering committee of individuals and organizations with a stake in the program worked with the foundation and its consultants. (Information from Exploring America Through Its Culture, PresidenYs Committee on the Arts and Humanities, written by Bill Moskin and Sandy Guettler.) City Maps Another tool that is essential to a visitor's experience is a map of the city and surrounding area that clearly identifies attractions, accommodations, shopping, restaurants, parks and other stops. Two maps are currently available for visitors: 1. The Saint Paul Vacation Guide This guide includes iwo maps, one of downtown Saint Paul and one of the Greater Saint Paul area. These maps are fairly easy to read, and with the accompanying information in the guide, visitors can plan what sites they would like to see. The drawback is that this publication is not readily availabie at all of the places that tourists are likely to stop. Because it is a large (72 page) publication, printing costs would most likely prohibit printing in large enough quantities to provide one to each visitor. 29 • • r � � � � � r � � � � � � � � � � � � � � * � � � � � � � � � � � � � � � � � � � Heritage Tourism One-page Cify Map This map, an adaptation of the one in the Vacation Guide, is helpful if visitors just need to follow streets. There is a list of restaurants, accommodations, attractions, historic sites, museums, shopping, theaters and entertainment, and parks and recreation. However, there is no information about the attractions, and no indication is given of how these particular restaurants were selected for inclusion or what type of food they serve, so a visitor would either have to have the Vacation Guide or site brochures for the map to be useful. Creating a New Map A new map should be created that provides street information, but also include brief information about the various attractions, types of food served at restaurants, etc. A pad or tear-off map could be printed with the map on one side and site information on the other. Pad or tear-off maps are generaily inexpensive to print and easy to update. Space could also be left for a sponsor advertisement to help defray the cost of printing. The map pads should be printed in large quantities and distributed to locations throughout the city and surrounding area so that they are easily accessible by visitors. Developing the Product As one heritage site representative noted: "We have a good product, we just need to keep things dynamic." Saint Paul's heritage product — ranging from the Minnesota History Center and the Landmark Center to the Gangster Tours — offers a lively, entertaining, and educational experience for visitors. The addition of new product, primarily through enhanced interpretation and exhibits, wiii offer even more for visitors, resulting in longer stays and increased expenditures. Among the product development opportunities are: Riverfront /nterpretive Heritage Tiail As noted in The Culture and Heritage of Saint Paul: Faces and Places, produced by the Saint Paul CVB, Saint Paui has 29 miles of river shoreline — more than any other city along the Mississippi. There has also been a$15 million riverfront renovation of Harriet Island which makes the riverfront an inviting area for visitors to explore, have a picnic, or to enjoy the children's playground. Because the riverfront is where Saint Paul began, and because the infrastructure is in place through the extensive renovation, the setting lends itself to an Interpretive Heritage Trail. An excelient idea proposed for the Lowertown area is the development of a 3,000-foot-long History Wall which would tell the history of the area's development. Although this plan is currently on hold due to funding constraints, the construction of a History Wall would be a unique new product for the riverfront. Many cities are currentty renovating their riverfronts and finding that they are very attractive to visitors. Saint Paul's rivertront offers the same opportunity. Product development here could include three components: Interpretive Siqns — A series of signs located strategically along the riverfront could tell the story of Saint Paul's settlement, notable dates, and interesting historical figures. Te�, photos, and copies of important documents can enliven the signs. Various designs are available for outdoor signs including covered kiosksto protectthem from the weather. Historv Wall — The history wail should be pursued. An example of a History Wall is found atthe Tennessee Bicentenniai Capitol Mall in Nashville. The 1,500-foot horizontai granite wall is engraved with important dates in Tennessee's history and quotes from famous Tennesseans about historicai events. Tall vertical pylons mark each decade in the state's 200 years. Interpretive Center/Visitor Information CentedGift Shop— A small building could be constructed (or an existing one converted) for this use. The building should be staffed with employees who can give out information about the riverfront heritage walk. A gift shop could sell items related to the city's history and proceeds could help fund the operation of the center. The interpretive component could include introductory exhibits or a short film about Saint Paul's river history. The center should also provide information to help visitors plan to see other heritage attractions in the city. Potential funding sources for this development may be found through the Scenic Byways Program (currently awaiting Congressional reauthorization before more grants are given) and the Federal Department of Transportation TEA-21 grant program. If Scenic Byways funds are pursued, the area will first have to apply for and be awarded designation as a National Scenic Byway. 30 � • � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � r � � Heritage Tourism Self-Guided Neighborhood and Downtown Walking and Driving Tours and Signs Self-guided walking and driving tours encourage visitors to explore and learn about the history of different areas of the city. Having visitors exploring neighborhoods and downtown is obviously acceptable to Saint Paul residents because of the large number of tour brochures that have been produced over the years. Brochures for nine tours were collected during the team visit including neighborhood tours for Historic Dayton's Bluff, Upper Swede Hollow, Third Street Neighborhood, Hamm Brewery Neighborhood, Swede Hollow, and Lowertown. Two downtown brochures have been developed: Downtown Saint Paul Architecture and Public Art and Tracing fhe Steps of Historic Saint Paul. There is also a brochure entitled, A River Heritage, Exploring Historic Sites and Districts in Saint Paul and Minneapolis. There are, however, several dilemmas presented by the brochures: • Most were printed in limited quantities. • No consistency in distribution system accompanied their printing to make them readily available to visitors. • No marketing plans were developed to make visitors aware ofthe brochures' existence. • Many are out of print. Most were printed by one-time grant funds with no plans for reprinting when the original printing was depleted. The idea of providing self-guided tours is excellent and should be a coordinated and ongoing effort, perhaps as a partnership project of Historic Saint Paul and the Saint Paul CVB. Some points to consider in developing the tours include: • Conduct an assessment to determine which areas of the city need the tours. Which historic neighborhoods lend themselves to visitor exploration? • A unified desian for the self- guided tour brochures will let visitors know they have a series of choices of where they might want to explore. Te� should include not only the history of houses or other buildings, but information on places to stop along the way — restaurants, shops, artists' studios, etc. — to encourage visitors to spend money as they tour. • Funds to print suffcient quantities of brochures and to continue reprinting, must be available. • A distribution svstem should be developed that includes placing the brochures in the Visitor Center and other locations where visitors can find them. • A promotional plan — such as posters for the Visitor Center or inclusion on the CVB's website — will let visitors know the brochures are available. One publication that includes tours of all the neighborhoods and downtown could be produced and sold at a small price. The publication could be used by visitors while in town to guide them on the tours and would also become a souvenir of their visit to Saint Paul. Having one publication would also allow for an introductory section that discusses the arrival of various ethnic immigrant groups and their establishment of the neighborhoods that reflect their native cultures. The book might also include a section with information on the many ethnic festivals that are held annually to celebrate these cultures. A system of interpretive signs could also be developed to place at the first stop on each neighborhood tour and at strategic locations in each area. The signs could provide information in addition to that in the brochures and could also be used by visitors who might not have found one of the publications. Guided Neighborhood TOUPS Thanks to Saint Paul's ethnically diverse and historic neighborhoods, heritage tourism opportunities exist beyond simply offering self-guided tours with the use of a brochure. The richness of the stories of settlement, struggle, and success of the various ethnic groups can be brought to life through guided tours. An agency, perhaps Historic Saint Paul, will need to be identified to develop and manage the tours. Tours through the Summit Avenue district are currently offered by the Minnesota Historical Society. Neighborhood tours could be 31 Historical Marker � • � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � Heritage Tourism developed in other areas, however, such as Frogtown, Lowertown, East Side, and District Del Sol. Tours could include the foliowing: Ethnic Historv — Anecdotes and historical documentation can be woven together into an entertaining and educational presentation about the settlement of the ethnic group in a particular neighborhood — why they came to America, why they came to Saint Paul, stories of individuals and families and their struggles, contributions to the city's economic development, traditions that are maintained, etc. Demonstrations —A local artist who practices the art that is traditional to his or her culture, a choir that sings hymns from its country of origin, a housewife who prepares traditional ethnic foods, could add a highlight to a tour and provide real insight into the ethnic group's culture and heritage. Restaurants and Shoos — Neighborhood "hangouts" can provide a memorable stop for an ethnic meai or to purchase a souvenir that represents the neighborhood and ethnic group. Both Chicago and Washington, D.C., have successfuily developed neighborhood tours that attract visitors from the traditional core city attractions to explore and learn about the cities' diversity. (Note: See information on these tours in Appendix C taken from Share Your Heritage: Cultural Heritage Tourism Success Stories produced by the National Trust for Historic Preservation, Heritage Tourism Program.) Themed Tours The stories found in Saint Paui's history — and the city's built environment— can provide the foundation for developing tours based on specfic themes. These themed tours ailow visitors to target topics of specific interest and plan their visits accordingly. The tours can be made available through the CVB website, inclusion in the Vacation Guide, or simply as a one-page flyer that can be copied inexpensively. For groups, a step-on guide can provide additional information and enliven the tour. A series of themes with enticing titles could be developed. Topics might include Native Americans, building the railroad, artists, authors, and downtown architecture. For each theme the following considerations should be made: • Tarpet Audience — Does the theme lend itself to families, children, and/or adults? Does the route require walking that might prohibit seniors from taking part? Are there accommodations for groups if motor coaches take the tour? � Route Selection — What is the easiest, most logical route for the tour? How much time will it take to drive or walk the route? • Interoretation - Is it feasible to develop additional interpretation for the route if needed? What interpretive methods will be useful — kiosks, audio tours, brochures? What are the interpretive messages that convey the theme? • Visftor Services — Are there adequate visitor services — restrooms, gas stations, restaurants — along the route? • Cost — If a visitor follows the theme tour route, how much will it cost to visit the recommended attractions? If the tour is promoted to tour operators, what is the cost per person for the touR A good example of developing themed tours is found at the Lexington, Kentucky, CVB website, www.visitlex.com The CVB developed themes for more than a dozen tours, such as antiques, bourbon distilleries, Civil War, covered bridges,fallfoliage,folk arts and crafts, gardens, churches, historic homes, horse farms, and more. They retained the services of a freelance writer to develop articles on each of the themes, which are then posted on their website under "Idea Guide." Each article includes historical stories on the topic, lists of places to visit and contacts and information on special events, festivals, and programs related to the topic. By placing the theme tours on the website, they can be accessed by visitors when they are planning their trips to Lexington. The tours can also be easily updated with new events or activities. (Note: See Appendix C: Developing a Themed Tour Itinerary.) Step Four: Marketing for Success Marketing Heritage Currently, the responsibility for marketing Saint Paul's heritage sites rests almost exclusively with the Saint Paul Convention and Visitors Bureau. The CVB has stated that inquiries to their o�ce from potential visitors reveal a strong interest in the city's history. The CVB has also indicated a commitment to highlight Saint Paui's heritage sites and heritage areas, such as ethnic neighborhoods, in its marketing efforts. 32 • • � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � Heritage Tourism The CVB has already taken the first step with the publication of, "The Culture and Heritage of Saint Pauh. Faces and Places," an excellent sales piece that encourages tour operators and meeting planners to look at heritage-related opportunities for their ciients. In order for the Saint Paul CVB to achieve the goal of promoting heritage, the city's heritage sites must work together on identifying and implementing marketing opportunities. Just as the arts community has a cohesive marketing plan, so should the heritage community have a plan that incorporates the CVB's plans and additional promotions that the heritage sites can undertake themselves. Collectively, the heritage sites will become a strong partner for the CVB and will be able to take responsibility for some of their own marketing as well. Among the activities that heritage sites could undertake coliectively are: Heritaqe Sites Brochure — Joint production of a brochure highlighting Saint Paul's heritage sites will benefit both the sites and the visitor. Many of the sites operate on limited budgets and cannot afford to print a brochure, or to prinf in enough quantity, and to have the piece distributed to area brochure racks. One brochure that inciudes all of the citys heritage sites — photos, hours of operation, admission, etc. — and perhaps includes a discount on admission or gift shop purchases is a cost-effective marketing tool. For the visitor, the piece is a one-stop opportunity to learn about Saint Paul's many heritage sites. It was mentioned in meetings that Historic Saint Paul is considering a heritage brochure. A partnership would make this an even more cost- effective project. Promotional Displav — Sites can pool funds to purchase a pop-up display booth. The booth should have a backing that allows for images and text to be attached with Velcro so that the design can be changed as needed.Each participating site can provide an image, and all of the images can then be reproduced in a similar manner, allowing for a professional display. Road Show — Sites can take the display booth and brochures to specific locations — such as the nearest interstate welcome center or the Mall of America — at selected times (Tourism Week or during holidays). Site representatives can develop a schedule so that someone from one of the sites is staffing the booth on a regular basis, handing out information, registering people for prizes, and encouraging visitation to the heritage sites. Frontline Staff Tours — A coupon can be developed and distributed to frontline service industry employees — hotels, restaurants, etc. — to provide free admission to employees whose job involves interacting with visitors. The admission could be offered at anytime or during a special open house at certain times of the year. C000erative Advertisinq — Working with the CVB, heritage sites should identify target markets for Saint Paul. From these markets, select a venue (newspaperinsert, magazines, etc.) to produce advertisements promoting Saint Paul's heritage sites. The ad could contain general text on Saint Paul's heritage with a prompt to telephone, e-mail, or write to request the heritage brochure. Or, if the ad space is large enough, sites could individually advertise. This type of purchase usuaily offers a significantly reduced rate. Either approach should include a mechanism for tracking success — more visitors to heritage sites. Seasonai Press Releases — A quarteriy press release, sent to target markets, will inform travelers about special events and new activities and programs at the heritage sites. Distribution can be through e-mail to keep costs down, and the CVB can post the release on their website. Prize Packages — Create packages including admissions and gifts from heritage sites that can be utilized by nonprofits for fundraisers or in exchange for promotion. Opportunities might include publictelevision fundraisers or "Listen and Win" radio promotions that 33 • • � � � � � � � � � � � � � � � � � � � � � � s S � � � � � � � � � � � � � � � � � Heritage Tourism could include interviews with site representatives. Air ort Exhibit — Contact the Minneapolis/Saint Paul Airport to determine exhibit policies. Request space near an information booth to place exhibits on heritage sites. The display should include photos, text, and the heritage sites brochure. Cross Traininq Proqram — Staff and volunteers who work at heritage sites generally have a love of history and can become excellent ambassadors for other sites. An evening event could be planned to acquaint personnel with other heritage attractions. A local hotel could provide a room and each of the attractions can set up a display and have staff available to provide information on their attractio n. I nvitations should be sent to staff and personnel at all heritage and cultural sites. Refreshments, entertainment, and give- aways will add a festive atmosphere to the event. Branding Saint Paul A project is currently underway to "brand" Saint Paul for both residents and visitors. Branding a city is a major undertaking that requires the involvement of players representing many different aspects of the community. Branding is more than just coming up with a theme for the city. It is a process of determining how a city sees ifself and how it is to be presented to the outside world. Once determined, this brand is integrated into every facet of how a city presents itself—whetherto residents, pofential new, commercial investors, federal funders, or visdors. The branding process is a critical component of how Saint Paul will promote itseif to visitors. Even a quick look at Saint Paul shows a wide variety of assets that can be appealing to visitors — major sports teams, a multitude of attractions ranging from an art museum to the State Capitol to Mickey's Dining Car, restaurants, shopping (particularly the Mall of America), historic neighborhoods, stately architecture, ethnic and themed festivals, and much more. The chalienge of branding is to encompass these many unique assets into a clear message that visitors can understand and to which they will respond. As stated previously, the major concern about this process as it is currently being undertaken is that the city's heritage is not being adequately represented in the decision-making process. As cultural heritage tourism developers have proven repeatedly in programs across the country, a community's cultural and heritage resources are what set it apart from any other community anywhere else. These resources represent what is distinctive and unique and, therefore, offer the marketing edge that communities like Saint Paul seek. Three recommendations are made regarding Saint Paul's branding: • Expand the Task Force — The task force should be expanded to include representatives of Saint Paul's culturai and heritage organizations. • Remove the Particiqation Fee —An open process for discussing and determining a brand for Saint Paul should not require payment of a $5,000 fee to participate. This fee should be removed, allowing others, particularly representatives of nonprofits, to participate. If this is not feasible, a complimentary position should be offered to a representative of the nonprofit sector in Saint Paul. Chanpe the Timeline — The process of developing a brand should be put on hold until the City's cultural plan is developed and a heritage tourism plan is developed that is either a component or a complement to the cuitural plan. Promote OffSeason Availability for Tour Groups and Conventions. Although many of the heritage and cuitural sites in Saint Paul are closed during a portion of the year — particulariy between October and April — site representatives who met with the team indicated a willingness to open their sites for groups. Tour operators and off-site event planners for conventions are always looking for a unique opportunity for their clients. The chance to have an entire historic site for the use of their group is very appealing. For the site, it is an opportunity to earn additional revenue, plan special programs, and showcase themselves. A satisfied tour operator or meeting planner can become a lucrative client for a cultural or heritage site, bringing repeat business because they know that the tour will be presented efficiently and that their clients wiil have a memorable occasion. Several steps are needed to develop off-season tours for cultural and heritage sites: 34 � • � � � � � � � � � � � � � � � � � , � � � � � � � � � � � � � � � � � � � � � � � Heritage Tourism inventorv — An inventory of all of Saint Paul's heritage and cultural sites should be conducted to determine who is willing and able to open for groups in the off-season. What kinds of programs can they offei'? What additional or special activities can be offered to groups that they would not get on a regular tour, i.e. a special pertormance, cofFee, and dessert? How much advance notice is needed? What is the price? Marketinq Materials — The Saint Paul CVB can incorporate this information into its group tour and convention publications. Simple flyers announcing the new tours or site availability can also be developed. Promotions — The CVB can conduct a direct mail or e-blast campaign to tour operators and convention planners announcing the new product. Additionally, the information should be distributed at trade shows and discussed during appointments at shows such as American Bus Association or National Tour Association. (Note: See Appendix C: Sample lnventory.) Hotel/Motel Information Books Frontline staff and concierges at Saint Paul's hotels and motels are often the first people visitors ask about what to see or do in the city. Making sure that they have the most current information on heritage sites, events, and programs will make them ambassadors for the sites. A hospitality training program is already in place through the Saint Paul CVB to provide customer service training. To complement hospitality training and to make the city's information readily available, prepare information books for each hotel and motel. The books can include a page on each heritage site, including a photograph, text about the site, dates of special events, admission fees, directions, hours of operation, and a telephone number for more information. The CVB's telephone number should be placed on the front cover. The books shouid be �pdated once or fivice a year to ensure accurate information. State Tourism Web Site The Minnesota Tourism Department currently promotes Saint Paul and Minneapolis as one unit on their website. In order to create a better separate identify for Saint Paul, the department should be asked to separate the Twin Cities in website listings. Visitors to the website should be able to inquire about Saint Paul and get listings related to the city without having to sort through those in Minneapolis. Additionaily, a request should be made to enhance the current text about Saint Paul to talk more about the city's heritage sites and resources. Conclusion: Enhancing Saint Paul's Heritage Theme As Saint Paul's heritage sites become more organized and more accessible for visitors, the Saint Paul CVB will be able place a greater emphasis on them in its promotions. The first step has already been taken with the publication of The Culture and Heritage of Saint Paul: Faces and Places. The focus on both people and places is an excellent strategy to bring the city's history to life. A sustained effort to raise the profile of Saint Paui's heritage resources should be represented in future marketing plans. Through advertising, media releases and tours, group tour and convention promotions, and other venues, Saint Paul will be recognized as a premier city for experiencing an important part of our country's heritage. 35 � • � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � , � � � � � � � � Conclusion Creating a preservation-based community and economic development ethic in Saint Paul shouid be relatively straightforward. In a city defined by its historic neighborhoods, dramatic vistas and monumental structures, grounding its development on conservation principals should be an easy "sell". Certainly, the philosophical basis for such a strategy exists in the Comprehensive Plan for the City of Saint Paul. That ethic can also be found at the grassroots, with impressive historic rehabilitation projects undertaken in neighborhoods by community organizations. Historic preservation is not an esoteric discipline in Saint Paul, but a widely held idea throughout the city. And yet, despite this appreciation of historic preservation and obvious exampies of its economic value, historic structures and neighborhoods are too often sacrificed in anticipation of greater economic benefit. That willingness to sacrifice the long-term value of stable, attractive and affordable historic neighborhoods and distinctive landmarks or vistas for short-term 'benefiY undermines Saint Paul's long term potential. The observations and recommendations contained in the assessment report intend to reorient the City of Saint Paul, private developers and funders and community development organizations to the greater economic opportunities that historic preservation and a conservation approach can provide. Partnership Clearly, the breadth and volume of recommendations in this assessment report are too great for any one organization. Historic Saint Paul is a relatively young organization and is still developing its capacity. A successfui preservation development strategy needs the cooperation and active participation of all sectors of the development community — public, for-profit and non-profit. Even those recommendations that seem to be solely the responsibility of the City of Saint Paul will require the support and advocacy of the private and non-profit partners to become reality. Timing We should base community and economic development decisions on John Ruskin's quote, "When we build, let us think that we build for ever." For preservation development to be successful, all partners must take a long-view. While implementation should begin immediately, systemic economic and community development change occurs over decades, not months or years. Too often, ill- considered development projects occur according to a political calendar based on terms. With sufficient private and public policy support, decisions can be made in a larger conte�. Saint Paul has a strong planning office, as well as experienced planners and designers in private organizations. It should use that "in-house" talent to its advantage. Next Steps This assessment report is the beginning of the Preservation Development Initiative in Saint Paul. Once these observations and recommendations have been reviewed and discussed, historic Saint Paul and its partners should identify priority projects and assign responsibility for leadership. The Preservation Development Initiatives office at the National Trust for Historic Preservation will work closely with Historic Saint Paui to determine which projects or programs should receive technical assistance associated with the PDI grant. We will also work together to identify Nationai Trust assistance opportunities beyond the scope of the grant and in partnership with other organizations. Saint Paul offers the promise of a quality of life that is not available elsewhere in the Twin Cities area. Historic neighborhoods affordabfe to a wide spectrum of families, a compact downtown with places to shop, work and live, beautiful scenic vistas ot the river and surrounding bluffs — all of these things are possible. Through a balance of preservation, conservation and well-designed new development, Saint Paul can become the city of choice in the region. 36 Appendices A. Recommendations & Implementation...A-1 B. Neighborhood Main Street...B-1 C. Heritage Tourism........C-1 D. Nationa� Trust for Historic Preservation & Saint Paul's Preservation Development Initiatives Team...D-1 I www.nthp.org • � � � � � � � � � � � � � � � � � � � ` r � � � � i • ! • • � * • • r • � • ! • • � AppendiY A: Summary of Recommendations & Implementation Partners 1. Preservafion Infrastructure Lead Group(s) Comments Recommendations 11. Rewrite Heritage Preservarion PED/HPC Base rewrite on Comprehensive Plan. Modemize Ordinance ordinance. Best if done with revision of zoning ordinance. 1.2. Redraft design guidelines HPC Apply `user-friendly' format. Involve Historic Saint Paul, Desi Center, AIA and nei borhoods. 1.3. Assure adequate APC staff PED/I�C Present HPC staffing needs to Mayor & Council with cleaz �ob ob�ectives. 1.4. Strengthen HPC's planning role PED/FIPC Reorganization plan outlining HPC's planning res onsibilities 1.5. Refresh & broaden lustoric survey PED/HPC HSP, Ramsey Co. Historical Sociery, neighborhood data or anizations, MHS collaborate on surve 1.6. I.D., target & evaluate key sites. PED/HPC With HSP, AIA, PAM and neighborhood development ou s. 1.7. Increase historic district designations HPC Supported by HSP, PAM and others. Work with SHPO to discuss criteria and outstandin issues 1.8. Statewide advocacy on tax credit & PAM Work closely w/ Mayor's office. Organize coalition of Main Street MN communities and develo advocac a enda 1.9 Investigate creative incentives (state & PED/HSP Develop cosWenefit analysis of tools that address local and idenri best tools s ecific issues 1.10. Promote preservation HSP,PAM, Public and private public education process LISC, Ci A. � � * � � � � � � � � � � � � + � � e � � � � � � i A � � , r � � � � 1 � � � � � ` r � Appendix A: Summary of Recommendations & Implementation Partners 3. Neighborhood Lead Comments Preservafion Group(s) Recommendations 3.1. Develop preservauon HSP, AIA, Involve neighborhood organizations as sponsors. Work through schools education ro ams HPC and otfier ou s. 32. Designate additional HPC As mentioned in other sections, but targeted at neighborhoods. Especialiy historic districts West Side, Fro own and Selb 33. Designate conservation HPC/PED Work w/ neighborhood groups where historic dishicts may not be an dishicts option. Or use as way to `gently' encourage preservation ethic. Consider incentives/ rotections to accom an desi ation. 3.4. Establish Center for HSP With support from LISC, PED, Council members, Design Center. Coliaboration 3.5. Establish lending pool HSP With Ciry, Neighborhood Reinvestment, LISC, NTHP/PDI, fmancial institutions and area foundations. Develop creative lending tools with reservation orientation. 3.6. Use secondary market HSP Working w/ NRC, NTHP & NHS of America. Leverage available loan funds for eater im act 3.7. Create preservation loan HPS/LISC W/coalition of private funders (realtors, financial instihxtions, etc.), to fund improve marketabiliTy of historic neighborhoods and enhancements not covered b other funds. 4. Downtown Lead Group(s) Comments Development Recommendations 4.1. Inventory historic and HPC, PED, SPRC Similar to recommendations above. Remember to also inventory older buiiding in the CBD older, non-historic buildings that could use the 10% federal rehabilitation tax credit 4.2. Desi� an incentive PED Criteria should conform to and support goals from Comprehensive financing package Plan. Work through Mayor's Office on state and local incentives such as state bistoric tax credit & commercial properry tax freezelabatement 4.3. Create a fapade PED, HSP HSP can become holder of easements that encourage preservation easement ro am and rovide tas deductions for ro e develo ers. 4.4. Form National Register HPC As noted above, this is a most useful tool for contributing districts `back ound' buildin s to use incentives. 4.5 Gain public control of City/County Collaborate on early intervention when possible at point of sale or key properties when foreclosure. Package for redevelopment within the broader available develo ment oals. 4.6. Develop assessment PED/HPC w/ HSP Work w/ neighborhoods to create a system to evaluate historic, process for historic cultural and economic value for key properties. This creates an ro erties ob�ective feasibili rocess for rehab. 4.7. Address continuing PED, LDC Continue to foster Lowertown development, as it may spin-off needs of Lowertown develo ment in ad'acent areas. Focus on ke ro erties. A. 2 Appendiar A: Summary of Recommendations & Implementation Partners 5. Heritage Tourism 5.1. Develop Culturai Heritage Tourism Plan for Saint Paul o Assess the potential o Plan & organize o Prepare for visitors o Protect & manage resources o Mazket heritage o Include heritage in the `branding' of Saint Paul o Enhance profile of Saint Paul's heritaee theme Lead Group(s) � Comments CVB w/ support of This is the primary recommendation for Heritage Tourism. A step- HSP, City & by step concept is outlined in the assessment report. Ensure that historic attracrions heritage sites aze integral part of overall City tourism development strategy and address unique issues faced by those amactions. Include heritage site development and mazketing in tourism funding. n. 3 i ! � � � � � � � � � � � � � � � � S � � � � � � � � � � � � � � � � � � � � � � � � Appendix B: Neighborhood Main Street MAIN STkEET 3vATI01\AL TRUST � fii�n,aic h[�sExvwnox MEMORANDUM Date: June 25, 2003 To: Carol Carey, Executive Director, Historic Saint Paul Mac Nichols, Director, Preservation Development Initiative, Nafional Trust From: Joshua Bloom, Senior Program Associate,National Main Street Center, National Trust Subject: Potential for citywide/multi-district Main Street program in Saint Paul On Apri122-23, 2003, Mac Nichols and I visited Saint Paul to explore opportunities for expanding the application of the Main Street revitalization model to more of the city's neighborhood commercial districts. While in Saint Paul, we shared additional information about how multi-district urban Main Street programs can be organized, managed and funded — and this memo fleshes out some of the ideas we discussed. The visit was organized in part to review the draft of the Preservation Development Initiarive (PDI) report with key preservation partners. A chapter of that report focuses on the Main Street program's current independent use in several Saint Paul neighborhoods. The chapter concludes with a recommendation to start a centrally managed, multi-district, neighborhood Main Street program. We met with a cross-section Saint Paul's leaders in the fields of preservation, community development, and economic development. These included: Dan Bayers, Project Manager, Dept. of Planning and Economic Development, City of Saint Paul Carol Cazey, Executive D'uector, Historic Saint Paul Douglas Copeland, Program Manager, District del Sol, Riverview Economic Development Association Amy Walker Filice, East Team Leader, Dept. of Planning and Economic Development, City of Saint Paul Martha G. Fuller, Director, Dept. of Planning and Economic Development, City of Saint Paul Timothy J. Griffin, AIA, Director, Saint Paul on the Mississippi Design Center Douglas McRae, Director of Housing & Community Development, East Side Neighborhood Development Co. Stacey Millett, Executive Director, Selby Area Community Development Coiporation Steve Peacock, Senior Program O�cer, Loca1 Initiarives Support Corpontion Sara Reller, Project Manager, Selby Area Community Development Corporation Robert Schreier, Director of Development, Dept. of Planning and Economic Development, City of Saint Paul Lucy Thompson, Planner, Dept. of Planning and Economic Development, Ciry of Saint Paul Mazshall Turner, Econ. Dev. Specialist, Dept. of Plauuing and Economic Development, City of Saint Paul Background of commercial district revitalization work in Saint Paul Commercial district revitalization work is akeady happening in several of Saint PauPs neighborhoods. Some of these are employing the Main Street ApproachTM, a structure where a staffed, volunteer-driven, permanent management enrity stimulates incremental improvements in four broad areas of work: s. 1 • � � � � � � � � � + � � s � � � � • � � ` � � � � � � � � � � � t , � � � a � � � � Appendix B: Neighborhood Main Street Design projects improve buildings, storefronts, signs, public spaces, traffic and parking funcrion, and visual merchandising. Design programs may also include guidelines and regularions for better management of the districYs appearances. Promotion activities help change perceptions of the district by building its idenrity and brand and by holding special events and retail events to attract visitors and shoppers. Economic restructuring examines the district's economy — both its businesses and customer base — to uncover opportunities for expansion. `BR" programs help strengthen existing businesses, recruit new businesses, and develop underused real estate. Organization, in Main Street lingo, means development of human and financial resources to accomplish revitalization. Organization also inciudes governance of the program, work plauuiug, membership, and internaUextemal communications. Based on the PDI report, the challenge facing Saint PauPs neighborhood commercial districts is lack of resources and guidance rather than lack of plans. The PDI report notes revitalization work in progress in five Saint Paul neighborhoods. Briefly: o Lowertown: viewed as a successful, long-term, preservation-based revitalizarion effort with an"urban village" feel. o Payne Avenue — Arcade Street commercial districts: A CDC-based program which was part of the National Main Street Center and LISC sponsored "Neighborhood Main Street Initiative" (I�MSI). Payne Avenue continues to pursue a comprehensive program of work, but is threatened by loss of LISC and City operating support. o District del Sol (West Side): Another participant in NMSI, del Sol adheres fairly closely to the comprehensive Four Point ApproachT'" but with emphasis on design improvements, marketing, and crnne prevention. o Selby Avenue: A district with revitalization potential as a convenience-oriented neighborhood commercial center. The local CDC has revitalizarion plans but no Main Street prograxn exists at this time. o Seven Corners Gateway (West 7rn Street): Some plans for revitalization exist (esp. for design changes), but they need to incorporate mare work in promotion, economic restructuring and organization. No Main Street management program exists at this time. The PDI report observes that the listed neighborhoods without Main Street programs could benefit &om the model's comprehensive management approach. And the report concludes that all of these neighborhoods would benefit from the guidance and funding that a citywide program could provide. At the locallevei, a neighborhood Main Street effort may be organized as an independent, 501(c}3 organization with a board, staff, and committees representing the four points. It may also be organized as a program of an existing organization (e.g., a CDC), with dedicated staff, a steering committee, and subcommittees representing the four points. For the first five years or so, local urban Main Street programs typically rely on a blend of fixuds from the city, local merchants, residents, and local corporations or institutions. Organizational charts usually resemble one of these: s. 2 � � � � � � � � � � � • • S � � � � i • ! � • � � � r � � a � � � � a ` � � � � i � � Appendix B: Neighborhood Main Street Free-Standing Non-Profit Program :l��n Strcc-f Soarci �I� Pevgr�xe Dixu[ar � x�t�n;m_ Camndt2o Main Street in an Existing Organization F`8reate �}r��aaaizatifan Bt�ad �f i7areCEars E��:,t€tiz�e I}ir�ct�ar h7�rxe Sva�e4 Steer'aug �e�mm�e � Potential for a Main Street coordinating program Main Street "coordina6ng programs" — umbrella management entities — help local Main Street efforts succeed by providing financial resources, nerivorks for learning, advocacy, and technical guidance. A coordinaring entity may be housed in a private nonprofit corporation or within city government. Citywide coordinating programs are based on a model developed at the statewide level over the past twenty-five years, with modiftcations for an urban setting. Favorable conditions for establishing citywide program o The neighborhoods themselves: there's a great cluster of suitable, interested sites. o Genuine desire among city and private sector leaders to find a way to establish a citywide program, despite financial constraints. o City wants a mare holistic, equitable approach to providing neighborhood commercial districts with resources. (It cannot/will not fund Payne Avenue and del Sol forever.) o Talents and resources among several private entities present opportuniries for a unique partnership- based Main Street coordinaring program. Current obstacles o Not much apperite for establishing a new city program in these lean, program-cutting times. o Existing Main Street districts (Payne Avenue and District del Sol NMSI programs) foresee threat to their resource pool if other neighborhoods establish Main Street programs. o City would like to get out of obligation/precedent it has set by funding two commercial corridor programs for their third year. o Housing is the current top city priority — not neighborhood commercial corridors. s. 3 � � � � � � � � � � � � � � � � � � � . � � � � � � � � � i � � � � � � � � r � r + Appendix B: Neighborhood Main Street o LISC has met resistance when courting funders for commercial corridor revitalizarion. Public or private coordinating program? A Main Street coordinating program may be housed in city government, a dedicated private nonprofit, or an existing nonprofit agency. While examples of private nonprofit Main Stxeet coordinaring programs exist on the state level, none yet exists on a citywide level. The three operating examples of citywide Main Street coordinaring programs — Boston, Balrimore, and Washington, DC — are all housed in city government. A fact sheet attached to this memo contains short profiles of each of these programs, as weli as the NMSI partnership between LISC and the National Trust. In addition, Detroit is currently establishing a citywide program, an initiarive of the mayor's office. San Diego had an unusual "joint venture" citywide program (jointiy administered by a business improvement district association and the ciry's office of planning and economic development), but the joint coordinating strategy proved ineffective. Cleveland launched a citywide commercial corridor revitalization program out of a CDC umbrella group (an association of Cleveland CDCs), but only affiliated CDCs are eligible and the City of Cleveland is not a partner. Pac� �ans Ft��EiC: �0��[tu�Eittg prb�r2�tt ' h7cakc:s caarctinaricmc� � • Cit� flaesn'th�v�c staoma� ar hi�used iat City depat�inenL 1��'� �t� re�,ro�� ao add �w pro� d�v�apmenkprk�a�.au�Eeity e�_ SC� `4�� pOSS�4�C, • C�fij• 7v�i.'ricy[ bC' SCC3i d9 �. ' �U"�' � �3hGy' �d `9�'" sn �£aRCd3ir�h0a {iQ0 v�6�tG:rC££p�Ed af ihe Ipe�.t Yt��l fiG Or s�t — fr� m Es. �cside�Er.�, ctc. e 'al� �c —'Ni�tt �ih 3@1�aaS CduB[� + HAK$Qr Et3 t�y ptivet� �3yiaanaL3;eve' fatal�cMers. re s�'o#��CS`F�'�S�m. * 1k93y' bC asse Ofei43` * Ma„° �t1 vi�firn � pu�s�nc�dtex� ' dav�3�,4�n�ssadol3asS adu�ie� c 3 ' being sD�u�- * T gwn�ai��Y re � . .� �ffoki fmm t�kr W 1�F , cs, whi1C � - ciCy invidv�r,�a�, * C � ercsmay�6r'skpaa�ing P�S� � buiid be ne Pt�i°�� a4N3Yi�1tl�f�it� �!t'Q�I`�lFS ' �k dud asunaigE. � �n'g � 'v�Ey i$plil� thC htsv�! �n �st€rz{{ or n� #�acm tcre� �i�aae r�,�es. c�or,�a�u�reis,y pt`�te �Qta�fl1. ' ��` rea�iv� cicy � iait�ti,�es (e �., , suj�[k, if y 1C. cCa�amie � mC11t, 91�d �i�' # � � �� . �e�e�t n�i�e� a�n c�t�. � �u �e �+ana�t�y e Eus9d§ k�t alvencrship of if fW�rs pull �5ack. �viLroF . �tY'tit3�. * Ilp�td � @aemch. in lc&u timus. * CdnEs�3nindt � �ch��ae4t� * �isy�bm�up - fOrel�'�rceiv�h g43Rie�1 � �+�79hady lxisiaess ' . . � 4 - . Who could provide what in Saint Paul? Saint Paul has an rich set of potential partners that could play a role in a Main Street coordinaring program. o The City's Department of Planning and Economic Development is eager to help expand Main Street revitalizarion in Saint Paul. t� • � � e � � � � � � � � • � � • � • � � � � � � � . � � � � i e • � � . � � � � � � Appendix B: Neighborhood Main Street o Historic Saint Paul is poised to assist in the establishment of a Main Street coordinating program — inside or outside city government. o Several private organizarions could serve as potenrial host of the coordinating program (e.g., Historic Saint Paul or the Saint Paul on the Mississippi Design Center). And, once a coordinating program is established, the Design Center potenrially could provide architectural and planniug services to locai districts, lessening the need for stafF architects at the coordinaring program. C' ide Locat �€cs each �e` �harha� PC�-]�ti[1Gh + Pnlxleciry� � �t�cousaissaece.�,si[s • In£cumatE�n �ssep€rs ' Ap�pliG6ppn pTqd'uCti4n, _5fn • �a�E SCIICCCQI�N1 + CO buikl ceCRSeien�xtk �'�"� r�C�.•ESp52fVEC�Siti ' C�QN�rFy�inGC.NarmeZd��s * ASS+StanECwiihS9�l'Fhirin� ri �� * `Ywia'an $treet I�}^ trdiai� E ILc�;ou�ee tt�an .vpt��li.t�p5 fbr ��f£� + t'VOr�: grLVS davb:ictpsa�Cnt v67YattiL`GfY � A.Y�hi8cClt[t'ia� SCrVM�b fht ' I}es�' $uxt�bFe�$ A� OxC3E buiT�i� dnd �iC yjqiaGC i�CVi�vs, �viSie�Ygt imprp4ysnCn#sg • YCdhCn$ iC9*iCCaw' Y�xr2 serc+Bs� � * Q��y eircrzer er�t�, »�a��e a�ys� il�it„�rkfffl'� Tr:rining;srosk56z.� {�pp.'us� * �n�ni€rc.�tn�t sesvar,�s• 4 3g�CS�c} + Wpf9t�L7at�e�tRt�C� * R4�t'k�}� � • Ttr�sic-sp�:i6fr`pmErt�n•spluietlg ' �.�Iv4cacy; an�lyxi5 of ceRy €�1a vi�ik m�� t&nd t Year-end revi�.v y c�� :� � C�S4i} � _ 1si�CUv� f Ari�t - t�?r1�e �.�»Fc�. ♦ 'E'iYei4iev`��zva:_� t TGj96C-9[t�CiEiCEEChvi�f[ � • Pd� fOr B� locd� + i`c�`�end i�xti�cr SOEezGe�� -,�*., EFIIS� • Triu�Si� 4�9�Y4Rw� d�y '� ��E� p3�3f33 �Citlt�i#i BCUM$5 * Ai� �' P+'�tU� L�iSYCtCLY�i � � }"Q�,t +� $�41tH` (� * P ariG�tLf14& • �sC� � � 6G�CC9 � • * Tr� ta'u+=h6 + Tppx �&�4�,Yi uia�F • F[�m f+sr � � le 10Cp3 + Y�t�'-e.a�d cev�w revv�a� sous� (s,g., EIIS�} . r �ss te atlaec 1`nndin skur� x M�.y 1� �p �i+e S:t+�T �10� 1� M��ippd I7W„5i�u C4utei, * s r� � s � � t � s. � +s , f ! S f R ��:��.�,� cicv�,f¢� � a� $Ito,aa[s(wJrriug�� Adnt�i5'ksAdiaC A5Se5'�� S5Q.6U€S (al £¢iae�*�} A�cI�'s�� 8U �Q w/ " Sa%b�qu�+sEyear9t � r, d�fnd'en� 8�5 Mp�n3Eilu i`atr ntfl�UM �. City�cidC ��Ur�i�Bt�a' SYI0,4{�tS c��diest�n' S�€i,� .ldmieri�t, iut Rt.Si� SS+S Aashi�tt $s�,�l1 e B. 5 Appendix B: Neighborhood Main Street Fnancial resnurces {eash} framthe coar�inating program to npighbofiacuts Apprtra.li� AppNz#otals �pprDz.FOtats itEms rdistrid forCafcdistrids Yt�r 1 �4r SaW+Y a'�wd 5�4,4W $5�,400 $?75,4Q6 �'d�8deimp�pi�v�meai.ints:niives $t0,flfl€I FYC3ntOfipnlmsA�ta� $3,00€7 �1E " a�§ptarCES $2,� Ytar2 �+�Pt�dt8t3'��RY�R 5�0.6U4 $34i�40 $52�,540 Ac9ttie�ii4E�ixe�#M45uplx?tR 52f#,400 Fd�tl� irflpmvemCnT int�uci;�S S4C�,�4 kefeng �3��(7 I7Gxible tXl»sul3in�C SCtt*it�3 5�;5� YCAs'3 Din:�4isr Sa&'uy suHpuct $3tY,04A 5��,400 $�25,4€}D Adetinu �3&i�u43apj�t $IS,iHtfl � _ e.ui sne�.ti4�es �M1{t tbllti Year4 Dit�etOr . Supp4rt 523,� S37,t%14l $285,�(}Q �v� �5r�#. $12,WFJ F . . � im int'�'attik�S. S2tl.�6 rux.t�rot�t casx uts 5`t.si2�t� . � � � : .+s + a F. , ♦ � a�� ea Appttsr.CP��' dp�rez.t�a4��ifv� ilit�kr"�t diikxitts Pav�l�u�rClt �S�mee viSiE� $3,R� S��,U6� � Y�l T�nm� � pps $25�,IX� $I23,6da tCktn �`�7c j9&m � Yesr�esad x�yi�w � . Y�rZ Ta�i€� �va'e.[i:�qps S3€�,� SI341,d16G �Fy� �Yd�. � as� T�hviss# �CWS-4"At(� ILS'iCaY �� TeCte ti�ad5 f�} $�13,daN7 �3'3,Cw�a Ysat-teEd � Ytaa'4 `rcc�,-;a� �l 5��,�r s�s,aa€a � �� ra:. tata�s, cou��an� ��ces S�so,tattu Sources of funds Revitalizarion resources must come from a blend of the public and private sectors. The city must be a financial partner in the effort — whether or not the program is housed in a city deparhnent. If the progxam is publicly run, the city can leverage private resources by raising corporate and foundation support and channeling it through an existing city or community foundation. The city can also leverage private monies for local districts by initiaring � � � � � � � � � � � � � � a � � � � � � � � � � � � � � � ` � � � � � � � � i • • • • Appendix B: Neighborhood Main Street "corporate buddy" relationships beriveen Saint Paul-based corporarions and local Main Street programs. Sources of support may include any combinarion of the following: �I lt�B �a�� + C3tF ��ePal £unc€s � Ci[� funtiTng u • Cc�rperrste partners • �vlerc:hant etsntr��butic�t�s * Cit�-tsa�c� ct�mmunicy c�r �'amily • IZQS�dent cont�ibu�iQi�s fc>undatiuns + Cqrp�r�te partn2r • Local �ales tax • Locai cc�mmur;ic�° or fa�nilg� fcsundatic�n� + l�eo�elc�pm�nt im�racY fe�3 + Bu�ittea� Irnprravsm�ne I)asU'ict �BII3} + 'F�k Irecaem�nc Pinancin, cdistn�# �'IF) Negt steps The first steps toward establishing a Main Street coordinating program in Saint Paul have akeady been taken as part of the PDI assessment and as part of the organizing that took place far this visit. If the city and local leaders decide to proceed, the Narional Main Street Center can help guide the program's establisl�ment, based on our experience with other urban, multi-dish coardinating programs. We can offer telephone guidance on a pro- bono basis and on-site work on a fee basis. Here are some logical next steps: o Meet with the director of Planning and Economic Development to discuss strategy. o Establish a formal advisory committee to guide development of a coordinating program. o Establish contact with Stephanie Redman, program manager for tecYmical services, at the National Main Street Center: Stephanie_Redman@nthp.org; (202) 588-6245. o Hold informal meetings with Saint Paul foundations and potential corporate partners to share information about Main Street and "take the temperature" of their likely interest. o Assess feasibility of city departrnent-based program or private nonprofit-based program; consider feasibility of "Twin Cities" cooxdinating program (private nonprofit). o I£level of support wanants, have the advisory committee map out timelines and budgets; follow up with National Main Street Center. B. � • � � � � � � � � • • � � � � � � � � � s � � � � � � ` � r � � � � i � f � � � S � � Appendix S: Neighborhood Main Street MAII�T STREET hATIONAL TRUST p� HIS"PPffiC PRESERS:41'IOTT Urban Main Street Successes Since the mid-1980's, the National Main Street Center has been closely involved with commercial district revitalization in a variety of urban settings. These include urban downtowns and neighborhood commercial districts. The following highlights our most significant historical and current involvement with urban Main Street programs. Urban Demonstration Project,1985 to 1998 Having experienced great success in downtown revitalizarion in communities under 50,000 in population, the NMSC established a pilot Urban Demonstration Program in partnership with the Economic Development Administration and the National Endowment for the Arts. This three-year demonstration program tested and refined the Main Street approach in eight varied urban business districts. These districts included four downtowns in mid- sized cities (Dubuque, Iowa; Cheyenne, Wyoming; Knoxville, Tennessee; and Joliet, Illinois; a1150,000 to 250,000 population) and neighborhood business districts in four cities across the counhy (Albuquerque, New Mexico; Boston, Massachusetts, Chicago, Illinois; and Pittsburgh, Pennsylvania). "By restoring the buildings, attracting small businesses and promoting the area as the unique shopping experience that it could be, the merchants, the residents, and our organization embarked on a program that ultimately became a National Trust Main Street [program} and a tremendous success." - Arthur Zieqler, Pittsburgh History and Landmarks Foundation about East Carson Street Main Street Each demonstration site received technical assistance from the National Main Street Center in all four points of the Main Street Approach. Local programs were established and operated for three years, many have continued to this day. Cumularively, the Urban Demonstration Project participants achieved significant change in their commercial districts: $100,313,650 invested in the districts, 635 building rehabilitations, and 1700 jobs created (net). The successes and lessons learned during the demonstrarion program allowed the Center to understand that, with some modifications to the traditional approach, Main Street could and would work quite well in urban azeas. Based on this demonstration program, the Narional Main Street Center achieved a solid foundarion for its wark in urban areas, work that has grown and expanded over the last decade as an increasing number of urban areas have become interested in commercial district revitalization. Boston, Massachusetts, 1995 to present Working closely with the City of Boston and Mayor Thomas Menino, the Main Street Center worked to establish a model city-wide Main Street program in 1995. Analogous to a state-wide Main Street program, Boston Main Streets offers a variety of Main Street training and technical assistance to the city's neighborhood commercial districts. B Boston M81 [I Stl'�2t5 � �� egmmng �nth five neighborhoods, Boston Mam Streets and the NMSC now work with twenty-one neighborhoods, including Roslindale Village, an Urban Demonstrarion site. The NMSC was initially involved in designing the structure, scope, and design of the city's Main Street program. We have � • � � � � � � � � � � � i S � � � i � ` � � • � � � � � � � � � � i � � � � � � � � Appendix B: Neighborhood Main Street continually provided technical assistance to the city program and to the Main Street neighborhoods since the program's inceprion. Boston MainStreets neighborhoods' results have been impressive. From 1995 through December of 2001, neighborhood Main S�eet programs have generated the following: - 386 Net New Businesses • 2,761Net New Jobs • 81,680 Volunteer Hours Invested • 217 Businesses Storefront Improvement Projects - 427 Businesses Received Design Assistance • 5638, 797 in BMS Physical Improvement Grants • S1,904,897 in Private Inveshnent Leveraged by Grants 1 .1��'`r`h. , '�'� lY�f�(iOd M�#flsfi� YI11tI1tIS'G - D� �` th� firs: :hings �a+e did r:Gs �et all o` our elc-c:e�J o�4a:s to si�n a�ocumz;�t fhat cecla;ed �ur agreemen: an hoe� tn upOr�dE tl°3� 2f@a '�y �rsi �adressing ;he :�?�d :o im:,rwve o:�r stree; �na sic��n�alk �rafsasvucture and Lhem tm�ro.ing t,"� area s �artsii links- Gnc� �roe di� t'�a:, ti?e {�olice cs�artmEn; stepp� in art� de�lf tivith #h� neigh�orha�'s d�u� �eafirtg �n� �ros�i:uficn probl�ms and vo�unteers sta: �ed st�o�n•in� up to help o�t u.�ith d�ansng stor�fror�ts and sfr��fs.' - Sheela C-r�ve. �irecEa� �Nas,n;r��:�r Ca:e;v�} PVta;n S��e' The Neighborhood Main Street Initiative,1996 to 2000. In close partnership with the Local Initiatives Support Corporation, the Main Street Center entered into a four- year demonstration program to establish Main Street programs in existing community development corporations (CDCs). As CDCs successfully established housing development programs to stabilize neighborhoods, many realized that new residents wanted to access to retail and commercial services in their neighborhoods. Seeing this need, the NMSC and LISC selected six neighborhoods to participate in a demonstration program designed to determine if Main Street would work in a CDC environment and what changes would be necessary to adapt to that environment. Selected neighborhoods in Lansing, MI; Philadelphia, PA; Providence, RI; Oakland, CA; Richmond, VA; and Tacoma, WA received technical assistance from the NMSC. The demonstration concluded successfully in April, 2000. Local results in business development, reduction of crime (real and perceived), promotional acriviries, and physical improvements have transformed these districts into vital neighborhood centers. Each district achieved, on average, investment of $4.6 million, a net gain of 16 new businesses improve the commercial corridor. Five maintain active Main Street programs. Following the success of the demonstration sites, the Neighborhood Main Street Iniriative has been expanded to serve addirional neighborhoods across the country, including those in Cleveland, Toledo, Grand Rapids, Los Angeles, St. Paul, and others. s. 9 • � � � � � � + � � � � � � � � � � � � � � � � � � � � � � � � + � � � � � � � � � � Appendix B: Neighborhood Main Street Baltimore, Maryland,1999 to present Beginning in 1999, the Main Street Center began working with the City of Baltimore and 5tate of Maryland to structure a city-wide Main Street program for Baltimore. Working with a public-private advisory committee, the NMSC gathered input from a wide variety of public and private individuals and organizations and formulated recommendations regarding the services, cost, locarion, timeline, and expected results of a Balrimore Main Street program. Based on the Center's recommendarions, Mayor Thomas O'Malley established the Baltimore Main Streets program in 2000. Currently, seven districts are participating, ranging from populaz Federal Hill and Hampden to economically challenged Monument Village which is located in an Empowerment Zone. The Center has worked closely with each distdct to establish successful programs and provide strategic guidance to their revitalization efforts. From October 2000 to Apri12001 — six short months — Baltimore Main Streets districts implemented 75 building renovarions, a net gain of 33 new businesses and 33 new jobs, and tallied 4,222 volunteer hours devoted to improving these seven commercial districts. The program has overseen $11 million in private inveshnent —$29 in private inveshnent for every $1 of the city's direct support of neighborhood programs. The District of Columbia, 2001 to present In order to meet Mayor Williams's goal of revitalizing neighborhoods, the District of Columbia formally launched its Main Street program in February, 2002. The National Main Street Center warked closely with the Office of the Deputy Mayor for Planning and Economic Development to identify the full range of commerciai district revitalizarion needs in • � !� +iR� Washington, D.C., and to design ReStore DC, a program that will meet those needs. The hallmark of the ReStore DC program is DC MainStreets, and five very diverse neighborhood commercial districts were selected in May 2002 to receive a comprehensive set of technical and financial assistance to help tkem establish Main Street programs and to address specific issues in their commercial districts. Seven additional districts were selected to participate in May, 2003. The Main Street Center is a close partner with DC Main Streets and each participaring district. a. 10 Appendix C: Heritage Tourism Partnership Tips 1'ri��ci��e I. �o�lu�a�ra�ion ��1ti�L1'i`; 'L`ips far Successt`ul I'sr�rs�i€ps > , f � ��, �. � .. , , 2� ��tair� U C aa� g. Tes� �a ' o� uri � ke� � st eaeh � . , �t ` � , , 3`f�' ; �f'�'g. � s�ich� � 'c� t e e r k�HGLF {R� �: c. I ao- � � e- i Appendix C: Heritage Tourism Partnership Tips 9} Identif�' l.eadership, One oreani�ztion or individnaf needs [o tal:e on a leader>hip role to susta3n t6e parmership. The leader m�t not al�use the leadershi� �osition to fi3nvazd an indiv�duaf a�enda. lp} Secure Commitment for the Long Term. �iost �rartn�rships begin xith a rush nf enthusiasnt. Lona-term pacmerships_ like any stron2 retatim�ship, rsquire patience, flexibdit}�, incfu>ive�, aspecc for differeaces and a �il[ingness ta aec�pt leadershtp mies--and a elear understanding troni the uen be�innin� abouf rflfrs aud [espoasibiliEies. 11) Altow Time for IZesuits Gatherin� a cummittee wsfh diveise iflteres#s mearts tt tvilI tske ti�ae ta reach eDnsensu5, hitce ercn�one sis.,,p otCon plans, �nsYeriats, exc. 22} Plan for fhe Puture. Suoag partneEShips pfan for tiie tazurc br 'rdet�dfvtng ma6�ia1 goa�s and tzug�ting thc Ex�nan as� finanaisl reswrr�s requued in �chieve fhese goals. 13) Celebrate Suecesses a�long fhe'UVay. Tscke Yl�c tine ea �.�3ebrate ihe success�f'ut �ompleti€an ot'am°�lEer projccts sIong The tvax 7n �arder io inaint�in Ehe e��thasi�;�n far t2te Ivng-tecan �osEs tif'the gartne€slaip. � �_ � w�b� s ��e rrom ie� a,�. be hm�� •�� Ecm� m�.�� .1n+ms� E.3vms Carepacy s� rbs )kdc�c. ronvao P.oyrm Nazn�vd E.kbwmrnt�srlACArts C. 2 Appendix C: Heritage Tourism Partnership Tips Example: Two-Day St. Paul Heritage Toux Itinerary (Note: The tour is provided as an example of how a visitor might spend two days exploring St. Paul's beritage. It assumes that a Visitor Center has been established and that all sites are open for tou�.) Dav One ' 11 . u 10:15 a.m. 12:30 p.m. 2:00 p.m. Visitor Center Watch introductory film, get maps and brochures for itinerary, take a self-guided tour of the Landmazk Center Minnesota History Center Museum Tour eachibits Lunch — Mickey's Dining Car James J. Hill House Tour historic house museum 330 p.m. Lowertown Take a guided tour of the neighborhood, visit an artist's studio, conclude at Farmer's Mazket 5:00 p.m. 6:00 p.m. 730 p.m. Dav Two 9:00 a.m. 11:00 a.m. 12:15 p.m. 1:45 p.m. 3:00 p.m. 5:00 p.m. Free Time Dinner — Restaurant of Choice Great American History Theater Enjoy performance Gibbs Museum of Pioneer and Dakotah Life Tow historic site, watch demonstrations Minnesota State Capitol Tour capitol Lunch — Picnic on Riverfront Tour River&ont Heritage Trail Gangster Tour Jackson Roundhouse Museum Tour museum, take a caboose ride Free Evening Shopping, dinner, ballgame c. 3 Appendis C: Heritage Tourism Neighborhood Tours � CULIURAL MOSAIC: EIGHBORH04D TOURS :F ��s- c��L��,�� r�a�,��s�r,� �R. �cz;�r��t o!a uEvfd.iqq ¢7dt+tug�al' .ap��my; wd t9:'s�gn. b�C Cen�rrc�wwrati ; :� `>� , # � � ,. c. 4 Appendix C: Heritage Tourism Neighborhood Tours �n 1994 (uuu Cuzmae mdeihe "L° ta wad:in Quc�s bimli�tg busutess disuia. Eten� day stve'd see the SeusTo�'tr and Lake Sha�e Ihivz and all d�e artfinetture a� actin:ty diat nuke C13icago o� of �e wvdd's mast erdfivgevies. itrras adry Tuanalavcti and ia�e�v �I. But shealso 3a�ewtliat just ofl'tiae evuial usil'�c mmdrns rsae the liighua��, o� a+zr d�e raiUoad t�arkrtu�e �.+re than A �mernei�4ba:�odswhe�eeimmigants from amimd �he wod'� �d Lh�rdesai6aeu had l�: alive a kaleidasrope of �hnit riwals and cvltv.al cradi�ns rhaimai:e Ci�i�gn zv�m more fascinaring luana GuTmzn xanted to help rnhe� g�m 3mvs �ae°atha"Ching� As thm-cGrector a`Com?ounity^ Cultura! De�loFinatt £or the de}'s I�eparcmmt t+t CulavzlAffairs (DC��, Guzmar. spoke rguladynnh mprzseo�arica vfsmres oi small, nonpmfit m3sai+d culmrat o�n¢uians sanaed ttuw�outthe dt,vs elvucce�nas - If�shu�l goats n! pn�viu�and p�pe¢tatiogtiuse unique ailcival lieeia;a c�e ofics� ham}xmdln� limited audirnczs and sr.wR bud�s Guanan anel Ga m4leag�ces rea�ni�ed t�e �ponance of s6uiag+he cvinual ri�a oi theseneighbo�oods m orda to broadeuvieNS aod b�¢ge ga� Yet mrra to�urmx and marirChicagouu. in taa w�e;e enha mraware oE these cummunmes er apprehensiwe abcwt 4entiui 1g beyrond the mmmonly tourg! a�res. �on.�wisamong.theattso�g3niza[ionswastfiaea0 t6ele�se[- k�aim naghbolhoods in �icigo daeis'ed thesarne promotianat treatr�emaccoaied:oshe �nore�Famedareac'7hey�uantedt3Sna xays ro becon�e �iable �ultica] amaainm G7 and of themszl�' ss}s f,w�nan. t.vl"fi�;4im�e dng m,u tvI- rtc:�'rtezc gHNrs td G1w+�+'S t�*t�hfn�rcla !n CxneWee^, u�FSe�s� � mT�6M1:N}'9�7iar�ov' ui6Ymtt k��:t�f��: u{ir ssnn atidz C'.n'vte i�kgE 's�a:as �w�m& �mdgnmias c. 5 s�,��r��-rc�m DISTRi&UTE THE ECONOMIC fiENEFiTS OF TOURIS,�a. �+�x��+��'��+� ;g to t�r Rx�eu eaa1� - 77x,nnxatN rar.�ai Cqq's c,FC; jrum me �r.� c� rh� 13r-m Rcm: una.near_' Appendix C: Heritage Tourism Neighborhood Tours , �T�'tE1'B i5 110 (�EIL}!tiE�;�'it1t� culture on a lvc�:er,�re�;� °The arts ��s rnr�fit ; r� � r�Zrrr�t�r�s�.� ,��;�__ �� _ � . � WAe2' A.fAPFNFD NtX! 6D In i9S1, ACAsemreda SISqU'70 ?�ational Endowment tor the Arzs (\F3.; gant ihat paid forp�amorionailamd�.ures. mllabontne eeh�bio�n pmjeas and mm� pmerand�+zbvtevainmgfo: ahedn's zthnicarts and tv[uval oiganirddoas.ln 1941, as an cateusion o(DCA"s rnmzade effan.� G�nan a�gan'ved vm�taus of edmic t�eig6ba[M�ods.7nthe bepnni� 7 rvas dm5� the sao and gving 6te tuuc and if ti+asn't Pu�,` e�din5 �ubnan, wha taoka tau out ancz a mo�Rh ro ooe of five �ghtwd3oods e�Pia��B die mmmsmitl'ae�hniciaotc culRUa1 aad'ecAas, andaatwmc�ruievatution mc Nithina vrar, demand gmv for the popu- iarioiac 2dedded dvn if I muld maixet �hewursmronCetmtessch�uli�in Chica�os}rarouc`saysGvzmuc "(cuuld prepa✓foiafiill busload of touaus ao@ ado�itahringioanodcerguide"lhac plantrod:edw�I a��d in the (all a( d995 uucc . , ,, anct: Gtum^.d: iuid?0 pmpzid goups for ha n88ohkw�hoocttouu'fiemua suarss c+as apparwi not ookto Guanar. but alw to 1� Commiss'apa, (x�is��'�be�k. 'She ga�re me Lhe geen liy,nt to purs�e a fi�ll-flulged «nu progrun a��d i�ped me appl�� f�r a �am."Gtuinan sms In 199Z Guwians�fieadtYi rhe mm- piiored eHon of mordinaringabout 25 atltural pzimersin a coflabotavuz e��t za vkz t�sitors inm the nei�ba�odds to �.�e, heai smell, ar�d � the whole �re Ti�'s ini5afive—Chicago tie�bar�Od 7oua (G�'LJ—manzged by' dxrOf6ce o£ Tourism wi[frin [he DC�, nzs fundedNmh a S2�,Q�tJ tiuc�-1�zt gallt &omSra[s. Rcebud � Cn. and nzauhivg dt}� fwuts. :in ouegrrn;�[h offie G�'� the Chica tieigNbahoods GifiShqn projea, x�as �ablished tha[sazne}rm'H�€h p�ams mtaiig5A0.0IXi Gom \G1and the \'attuvt Cummt� fountlauon Shcinge�lunc�iir s�5c �ad autlmntic handQa4i�1 ma claandise theshogspirn4dealcemaiisre scwtca of inmme ior mmm�min=6ase� 3IfS 43°�dllYGlpp0.5, G�) &ID'u htiu�. R'i�Yu'A: �y1Cu"S t�'vi5� itgmrtiar�uih L ti'd muz ix!�a.{,..Iaac almaun:Pbnsrs�cxvmirtl�a.'xr,'�e � ri. Atit q'�Bl�,v%i,�pi rors ifear�"m.sE b�ha �wfsv: un+a+�.�m6fr�tkc cr'�r� '&ns K6 c{hmci .' md 7�s n Wnm�3 AiA a�.Ui". DY�GCC4t"� ]�LL'�'4:�¢'Fn' P C�. fie tauts themsehrs mme under n.v h�tngc ":'�$ghbp�" M� �St�l.�l . Wd� tieighbothoodTou� Iocal gui6�s cdace thefoundingaad �rrrn�t� ufcom- munities like Sw�ish.�lndennnrille Guman �inmin Saua�e Pumu Ric�c t3umbold� I'ar�, or [ne arch�teri¢ailr nfi PraineAraeue fiistoric Disvicr.IUere azz ni� neigh6odwod to�s sdiz3uir3 or. a rauti� basis on Sauudns thmu;hou� the �ar. Speaat Tuurs prt.�^s�nt an amatgam a's infa�- maGan a6outa:utnueand'nshiaon�in the tit}; and they are aRen iied into nzigh- brnhood es�esrzc Pr�nud b��mmmurum 6i3torizau wi»t hx� teseanhed theit w6jeastha�iy tlie�areton�c more a�paiA�E ar�d more Cndeptfi man the rPgular wius. SpEdal To�as IDdude "ihe Great Chirz� F'ue.'lnmads of lcz] a¢d A Ie.vish lxgary�, Ga�and I�biarzFfAmy, aud fiemospopulm'huQlorintecnaLaul vuiwrs, t�as of Chiagc� Biugaad C.�peL Duriag a five-hau Sgedal Tous � areut�en an a mmbination drivi�- n�I��1ryL0i2hE dLSRKL �'iQtF2➢ 2t05�C pH({)SIII2[l� 9t2�t11blG Nld �IdPK�Liilti't aiany�one df a numbao`pani6pabng 3f'S12LTdQL51I1dI5c9tT S[d�lt[p[i2I QIlSN2S filllll a2tl4Vd �if �ODC AC C�.Ttausrtnbeprepsd�sed'md`i- eidua4} hspaups oE35 ormore To bD051 gonp 5d1R G�Cic madcehng thE mms m smiar d� org�irrvtionq S�IOO�S. �OfpOmI16SL� 3fiS� �SivL ffdYY� piarmss ■ c. 6 Appendi�c C: Heritage Tourism Neighborhood Tours M.u�wc ra Mosr a' O�¢uHmes 0 Co7Lilwrure `Culnual wunsm thmt ah G4'tadonemllabo�rzh.` sa�a Guunar 'Cm�a�Cies 6tcome�.�nvh ead� whts az�d a"r,6 c�mmwinfi�ai cula�ral mnta� ia!nrlopmem mqna6ons :!waben of mmmera laal busin�i� and na�bo� residenti The tom- munitc ans o�gpnpzooza do no� ha�e ih� time a budge�s m ma�e� thems�srs ac ��eil a, G`7an t6rough i�s mlodul and atustic bmcht¢es. ��x6sitz prz¢ crn�, znd ptid ad��rasementt 'tm palmers azmmpl'ah whac no one mvn� mWd Fi� the Fu aenvm� du Cmnnnmin�mui Touri.mc'Ihepoimof CTs m promote the culuval heitage otllmmmmmutia u sen� The tndis to do ic n9th�u[ being unam2orinapptopriae "N@vevabypass t6e ioa; mmmimitiu o[ IIyto spearc (or ihem'll�y� arealuaps liomlhe ine}rooa ofthetuur on, indud�l iv rtre da�;ian- mala� Proarss re�rdin� soipi mmen4 tourrrcunn dnd 6rodn�re c9jw." s�ales Chi�irit 1 �Ilas�nor, C'�a Tsuwrplan�c �theaameGme �v�C sraysvigiFancin prrnidingHfiaz�hsitaswaru �nala a aAjas�mencc to toucs ba�d an � res�sorori bY s(a�& se�sim2�w �ile's cuhu�and.tfi�"t(v3g;t�r6aiva ,� G�3f l�s,foreed a pattngshi}� 6a�t on mutwl �eeil and r�spett. Aias �usmtd thaamms Cwoe�7iaz � , oijb€ta�mhateanar�sticpmsm�atioa dan�tisua6on, c�hibi4 ar pvfam�ance '[heid�esp[aadon�eadt artis Imngsio hu , oe}�uslire,.en}i�msticetre�balivso�}. - baRgsliurikytheta�guidelisnot unmmmoo ior ta;i gu�a w f�l morc3 mou� to panidpatz in Inep��ta¢onc s� as on thzRoou of Chire,w� Blves and C�ispd tMU u�hm w�sjo�c�cd ppriam�s rni r�age(ora call-anG-reponse song. S�nell and f�reare b� pazcs a�brin�ngyrour tue rolife all oCthespeBal ioursG�Tprodu�c in.lude lunch at a resiaivan�thaz rzflau ilie �heme or echnidtc af the taw Faus mi Qualit�• arui eY�B+e�rtidqs M'hen t mtmiavpcxmtial g�ides,' rejs l�illase�w4 9 ask them to t�l me d�ston°abou�ilx�rnc�g;hl�dwod 7bev ofien have IiNe�lmewn �Iomution otNnS� N+�ysw6�hatt�asbe�n ih hand� drnvo tkwue� tlia� Gnillces that is fasd»zfifg—andna d�ekind of iliing }vu5e I�ely[Q Fmd at dlm libmq;' ��i lasenar 6elw ea�3 gutdegrepara a smpt ioriheu tour, u�ddflg wge�kiec io reseuc6 fu1s, da�es and aams Aianqgik s�opsrJoug�he rou�es ot�er awhenfic handrra(ied itenvq and mtals o6erai na tt�espeoal taurszlwa�s'vtcoE pomie authentic dementsofihe ailnue or;ceritage beiirg ze�nied. i4e.se�ieurcdPruwll LA�g�erat v3amtll1tii17llKPRiP V V l�t35h2� i1tC dit� smallmmmun'vies mdae dt} t�emme ewnwnica�ly tiahle A stronger ceunotm�zll�nrsmm�itytead� P�P�'rnvnas and busirnsspeople � maimain and protenfhzirl6scoricbidh envimi�ttandpapzcua��har � mhurvl [e�vices. t3rrrg� iti.i�6x1 cui Tw.s .aaF:�uLa�ana�lins:� ndama� awrsmuemi... m4mFvr� a�fsst�'. eta�¢vrs x�' tn;Fa imkl taiY�ig++W%laK s�ir79J�tmmpm;{a�s 6G1f�Sl{�R,.R;$�hY •.r.,� �s�k!�Srnn -_ . - ' io� S�ts '- - . �nYi�T2�,oE' :. '. . - imm�s�rac7K�bac _ ecTovwie�itfie _...... :fl�.?�:� ` . �'�� , `- 6E: Aaunn�lu¢f6oi�ki M�� :.�� : . �o��'�'�. ��:�� t a�� e < � �� „--� , ° - h „ C � "�.`°-`t �-.. -, C. 7 Appendix C: Heritage Tourism Neighborhood Tours 1991 �E:�. �, a�,a�ckG to DG ia; �lcvai promopon 1777 Prepa�d �oup toun cnrh on E2 1� / 9LY� gua�<P�P� m Gv( toua qrimgo!�t�c�fic�ods Gifi S1toFn established 1� C'.Thosv I,G��s x l� JG�. adih �ar. fo:us:o e�,imic ��Imomocici ma[i�ing pian 1� `�l;th $ean gran:, iX;,9 tow�cis C1ila£,i \a�borhoodToub 1� �5 tours otTaa thmughom �heYrc �� 2,SOD-;�eas take in�fiv�ual and �crup C�T murs „ We'r - e heipin% p�le see these neighborhoorLc diffet�entl}I to use their imnginnr�tions to cmuisizm u��t it was dihe in the pa�t and how people live there �oday." — Catliv.lki 1']�'7SE170l; Ch�TtOtn'�IAtp`a�^' � 7FZCWiEAnet. C]umg^;�ddm&�. >pa:�3ahe'ei.4rnueN"s�irDmrsa; � (7fx�eiVsaSw+t�tSvk t�.�lmvicea� namr N�smra� ry`Ossmg's&a�m7lvema �:r.a fs.sge!�.�mu. %dM.xcncL FtekL • • � � � � � � � � � � � S i � � � � � � � � � � � � � � � � � � � � � � � � � � � � Append'u� C: Heritage Tourism Theme Tours Developing a Theme Tour Itinerary 1. Theme: 2. Tour name' 3. Length of tour: ❑ Half-day ❑ Other: _ 4. The geograpluc azea to cover: _ 5. Tour entry point: Tour route: Tour exit ]ocarion: 6. Tow Highlights (50-75 words): 7. Assets and activities that contribute to theme: 0 0 0 0 0 0 8. Tour interpretation: o brochures o signs o audioguides 0 other 9. Target audiences: o families o goups o seniors 0 others 10. Visitor services: o restrooms o gas stations o restaurants 0 other il. Transpor[ation: ❑ walking: ❑ driving: � Full-day c. 9 Appendiar C: Heritage Tourism Theme Tours Inventory of Off-Season Group Availability At St. Paul's Heritage Sites Note to Heritage Sites: If your site is closed during a part of the year, but you are able to open for groups with advance bookings, please complete the following form and retum to the St. Paul Convention and Visitors Bureau. Site Name: Address: Contact Person: Telephone/E-Mail: Site Description: Tour Description: Programs/Performances: Demonstrations: Hands On Activities: Special Activities Not Available Except to Groups: (such as coffee and dessert after the tour, a special performance, etc.) c. 10 Appendix C: Heritage Tourism Theme Tours Meal Options: Restaurant On-Site: Catering Available: Suggested Itinerary far Site Visit (Include tour, any special demonstrations or programs, meals, etc.): Scheduling a Visit: Lead Time: Group Size: Minimum Maximum Cost Per Person: Cancellation Policy: c. 11 • ! � � � � � � � � � � � r � � � � � � � � � , • ` � �' � � a' � � � � � �' � � � � � � Appendis D: National Trust for Historic Preservation & Saint Paul's Assessment Team The National Trust for Historic Preservation is a private, nonprofit organization chartered by Congress in 7949. It provides leadership, education and advocacy to save America's diverse historic places and revitalize communities. For more than 50 years, the National Trust has been helping people protect the irreplaceable. With more than a quarter million members, the National Trust is the leader of the vigorous preservation movement that is saving the best of our past for the future. The National Trust supports preservation through a wide range of programs and activities. It • Operates a nationwide collection of National Trust Historic Sites. • Provides technical and financial assistance to state and local organizations; • Promotes travel to historic destinations; • Works on Capitol Hill and in state legislatures and city halls to encourage the adoption of laws and policies that support preservation; • Goes to court to ensure that preservation laws are upheld; • Teaches people about the benefits of preservation through workshops and other educational programs; and • Demonstrates how preservation can revitalize communities through programs such as the Preservation Development Initiative, National Main Street Center. and National Trust Community Partners. National Trust Community Revitalization DePartment The National TrusYs Community Revitalization Department develops programs and initiatives to revitalize America's historic communities — downtowns, neighborhood commercial districts and residential area. Leading the preservation movemenYs efforts to use historic preservation to rebuild communities and encourage economic development, the community revitalization programs of the National Trust develop innovative and fresh approaches to community building. C O M M U N I T Y REVITALIZATION NATIONAL TRUST for�ISTORIC PBESERVATION,.. Preservation Development Initiatives The National TrusYs Office of Preservation Development Initiatives (PDI), offers a comprehensive approach to preservation-based economic revitalization. Initially funded by a grant from the John S. and James L. Knight Foundation, PDI helps targeted city governments assess, develop and realize the full economic development potential of their historic sites, landmarks and districts. The breadth of historic preservation resources and opportunities is first identified through a comprehensive assessment. Cities then set priorities for follow up program assistance from full range of Nafional Trust technical assistance. To support economic and community development through historic preservation, the PDI o�ce: • Designs `packages' of comprehensive technical and financial services for client communities; • Uses the broad array of National Trust expertise in interdisciplinary teams 8 programs • Builds strategic partnerships National Trust Community Partners Community Partners offers a range of financial and technical assistance to preservation organizations, community development corporations, local governments and developers engaged in historic rehabilitation projects that promote economic and community development. Its National Trust Loan Funds (NTLF) has a 32-year track record of lending to projects in low- income historic districts and to specific endangered historic resources nationwide. NTLF consists of two preservation revolving funds, the Inner-City Ventures Fund and the National Preservation Loan Fund. Since 1980, these funds have closed on 171 loans for an aggregate dollar amount of $16.5 million and currently possess combined assets of approximately $10 million. The Funds have played a role in the rehabilitation of over 600 historic properties resulting in the production of 2,500 housing units and 1.7 million square feet of commercial space and community facilities. Types of loans have varied from acquisition, c. 12 • � � � i � � � , � � � i � � � � � � � � � � i � � � � � • S � � � � � � � � � � � � Appendix D: National Trust for Historic Preservation & Saint Paul's Assessment Team wnstruction, mini-permanent, predevelopment and equity bridge loans, guaranties and working capital lines of credit. Community Partners has also performed private placements of $33.7 million in historic tax credit equity with corporate investors through the services of its Heritage Property Services group. Its $25 million Banc ofAmerica Historic Tax Credit Fund has become an industry leader in the syndication of small-scale rehabilitation tax credit projects, having directly invested or committed nearly $14 million nationwide. National Main Street Center Established in 1980, The National Main Street Center is the nation's largest full- service commercial district revitalization organization with a network of over 2,000 active commercial district revitalization programs. Cumulatively, the commercial districts taking part in the Main Street program have generated more than $16.1 billian in new investment, with a net gain of more than 226,900 new jobs and 56,300 new businesses. The Main Street program is one of the most successful economic development strategies in the United States. Applying its trademarked Main Street Four-PointApproach, the Center assists communities interested in revitalizing their traditional commercial districts. Understanding that a community cannot achieve success through a single project alone, the Center emphasizes a multifaceted approach to establishing a revitalization effort based on the four points: organization, design, promotion, economic restructuring. This comprehensive model helps communities develop a solid framework for returning their commercial district to a vibrant and bustling neighborhood with thriving local businesses that can compete in today's marketplace. The Center serves as a clearinghouse of information specific to community redevelopment, offers technical consulting, provides reports on revitalization and preservation issues, sponsors confierences and workshops, conducts research, and offers advocacy and general assistance on critical revitalization issues in both rural and urban communities. Midwest Office The National Trust has established a system of six regional offices and two field offices to provide aid to state and local preservation efforts. The Midwest Office, located in Chicago, Iilinois, provides support and services to grassroots preservationists, organizations, commissions and individuals throughout eight states including Minnesota. The Midwest Office provides field and technical assistance services, partnerships with state and local organizations and works to expand the presence of the National Trust in its region. The Regional Offices also maintain a system of two advisors in each state to assist with the identification and response to critical preseroation issues. National Trust Headquarters Heritage Tourism Program The National Trust defines cultural heritage tourism as "traveling to experience the places and activities that authentically represent the stories and people of the past and present." Cultural heritage tourism includes historic, cultural and natural resources. The National Trust's Heritage Tourism program provides technical assistance helping cultural and heritage attractions develop successful and sustainable programs that will enhance communities for residents and visitors alike. Consulting services are available in strategic planning, preservation, tourism development, interpretation and marketing. The program's work includes a series of "how-to" materials D 1 Alan Karchmer • � � � � � i � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � Appendix D: National Trust for Historic Preservation & Saint Paul's Assessment Team to help individuais and organizations developing cuFtural and heritage tourism programs, and the program serves as a national advocate for cultural heritage tourism issues. The Heritage Tourism program is an active participant in Partnecs in Tourism, a coalition of cuttural and heritage tourism practitioners and Share YourHeritage, a coalition of national cuitural organizations and agencies that has been funded by American Express and the National Endowment for the Arts. Assessment Team Carolyn Brackett Senior Program Associate, Heritage Taurism Program — National TrustforHistoric Preservation Carolyn Brackett is Senior Program Associate for the Heritage Tourism Program of the National Trust for Historic Preservation. She has devoted her career to the field of history and heritage tourism working at the local, state and national level. in her position with the National Trust, she provides heritage tourism consulting services to clients across the country. Ms. Brackett serves on the PresidenYs Advisory Council on Historic Preservation and is working with the Council to coordinate and enhance heritage tourism programs at the federai level. Her involvement in the tourism industry began in 1988 when she joined the Tennessee Department of Tourist Development as Assistant Director of Information. In this position, she worked extensively with travel writers and developed special promotions. Additionally, she devetoped a partnership with the Tennessee Historical Commission, Tennessee Main Street Program and Tennessee Arts Cammission to create and conduct a series of workshops titled "Promoting Your Cultural Resources" which the team presented to communities across the state. From 1990-1992, Ms. Brackett served as the departmenYs State Coordinator for the National Trust for Historic Preservation's Heritage Tourism initiative. Through this program, Ms. Brackett worked with four multi-county areas to deveiop tourism programs based on the regions' culture and heritage. Ms. Brackett has served as executive director of Historic Nashville Inc., Nashville's nonprofit preservation organization, director of statewide projects for Tennessee 200, Inc., the state's bicentennial project, and director of Marketing for The Hermitage, Home of President Andrew Jackson. Ms. Brackett has a Bachelor of Science degree in historic preservation from Middle Tennessee State University in MurFreesboro, Tennessee. Eric C. Youngberg, AICP $enior Management Consultant, Neig6borhood Reinvestment CorPoration � Advisor (Ma.) to the National Tn,sc Mr. Youngberg is a trainer and consultant on community reinvestment strategies, business planning, strategic planning and urban design forthe Neighborhood Reinvestment Corporation in Saint Louis, Missouri. Mr. Youngberg joined Neighborhood Reinvestment in 1983 with experience as a city planner, community organizer, planning consultant, VISTAvolunteer, lobbyist and city council person. He received a BA degree from Simpson College in Urban Studies and Sociology and a master's degree in community and regional planning from the University of Nebraska- Lincoln. John Leith-Tetrault Direaor, CammunityPartners— National TzastforHistoric Presernation John Leith-Tetrault has 25 years of nonprofit and for profit experience in community development, urban reat estate finance, community development banking, historic preservation, training and urban planning. Ne has specialized in developing community-based and city- wide partnerships with the financial strength to facilitate the rehabilitation of properties that provide an economic benefit to low-income neighborhoods and centrai business districts. His employment history includes senior positions with the Enterprise Foundation, Neighborhood Reinvestment Corporation, Bank of America D. 2 • � � i � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � Appendis D: National Trust for Historic Preservation & Saint Paul's Assessment Team and Neighborhood Housing Services. He has held his current position with the National Trust since 1994. As Director of Community Partners, Mr. Leith-Tetrault manages all of the TrusYs community development, CDFI lending, real estate consulting and tax credit equity inftiatives. Under his direction, the National Trust has pioneered an urban neighborhood revitalization model that uses "preservation-based community development" strategies to bring new investment to low and mixed- income urban historic districts. He has also made the National Trust an industry leader in the placement of corporate equity investments in real estate projects qualified for federal and state historic tax credits. Mr. Leith- Tetrault holds a BA in history from Georgetown University and a Masters in Urban and Regional Pianning from George Washington University. housing; and grassroots teadership development. Her background also includes business and administrative management, and building bridges between resource- rich entities and resource- poor communities. She has played a key role in founding a number of nonprofit housing development and advocacy groups and has provided assistance to a variety of grassroots organizations in the Washington D.C. metro area. Ms. Stauffer currenUy serves on the board of a number of nonprofits, including: Dance Place and Miriam's House. She also is a member of the Advisory Council for the Northwest Church Family Network, a housing program for low-income families. She holds an undergraduate degree in Sociai Work and Biblical Studies from Fresno Pacific University. R. McDuffie Nichols Direaor, Preservation served on the International Franchise Association Emerging Markets Committee for increasing minority and women-owned franchise businesses and as a member of the board of the Responsible Hospitality Institute. He also serves on the community board of directors and the architectural review board for Montgomery Village, Maryland. Rhoda J. Stauffer Commvnity Investment [Llanager, Community Partners — National Tzust for Hiscoric Presezvation Rhoda Stauffer has spent most of her 20-year career in the field of housing and community development. Prior to joining ihe National Trust, she spent 14 years directing technical assistance and lending programs for the McCauley Institute. Ms. Stauffer's background is in training and technical assistance; nonprofit organizational development and management; financing and developing affordable Prior to his current position, Mr. Nichols managed and coordinated the Main Street Center's technical assistance to community and state Main Street programs. He has aiso served as director for a downtown revitalization organization in South Carolina and marketing director of a commodity brokerage firm in North Carolina. Mr. Nichols holds a BA from the University of Alabama in History and Political Science with graduate study in marketing and business administration. Development Initiatives — Notional TrustforHistoric Krista Kendall Preservation Mr. Nichols develops and manages new initiatives and strategic technical assistance services. Mr. Nichols served on the Govemor of Maryland's Smart Codes Steering Committee to design a rehabilitation building code and Smart Growth development guidelines and assisted in the development of urban neighborhood Main Street programs in Boston, Baltimore, Washington, DC and Detroit. Mr. Nichols also Program Associate, Community Partners — National Trvst far Historic Preservation Krista Kendall is a Program Associate working with the National Trust Loan Funds in the Community Partners program at the National Trust. She works with preservation organizations, locai governments and other nonprofit organizations to provide loans for the revitalization of inner-city historic neighborhoods and presecvation resources under D. 3 • � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � Appendix D: National Trust for Historic Preservation & Saint Paul's Assessment Team the InnervCity Ventures Fund and National Preservation Loan Fund programs. With a B.A. from Montciair State College in Geography (and a concentration in Urban Studies), a Certificate in Historic Preservation from Goucher College and a background in residential real estate sales and marketing, Ms. Kendall has found the perfect career to complement her skills and interests. Royce A. Yeater, AIA Directoz, Midwest O�ce — Natianal Trustfor Historic Preservatian Mr. Yeater has a professional degree in architecture (NDSU, 1969) and a Masters Degree in Historic Preservation (U. Va, 1975). He practiced architecture, focusing on institutional facilities and historic preservation projects, from 1975 to 1983 with Foss Associates in Fargo, ND. In that year he founded YHR Partners in Moorhead Minnesota, and in 1997 moved to Minneapolis to establish a branch office for that firm. While in practice, Mr. Yeater also founded and served on a variety of boards and commissions of non profit organizations in the field of historic preservation, at the local, state, regional, and national level. In September of 20Q1, he left his practice to head the Midwest Office of the National Trust for Historic Preservation in Chicago. There he focuses on building the capacity of state and local preservation organizations and develops strategies to confront new and emerging threats to historic resources in eight Midwestem states. Joshua Bloom Senior Pzogram Associate, National Main Stteet Cenur — National Tzust foz Hinoric Pzeservation Joshua Btoom is a senior program associate with the NMSC. He provides training and guidance to both urban and town Main Street programs in the Northeast and scattered other places. Among the urban programs he assists are twenty-one neighborhood commercial districts in the city of Boston, the Forest Park Southeast neighborhood of St. Louis, and designated communities of the National Main Street Initiative, a partnership between the NMSC and the �ocal tnitiatives SupQort Corporation to establish Main Street programs in community development corporations nationwide. He also provides technical services to New Jersey and New Hampshire Main Street towns. Josh specializes in developing market anatyses for traditional business districts. He received his B.A. from Columbia University and a master's in historic preservation from the University of Pennsylvania. Before joining the staff of the Main Street Center in 1995, Josh served as executive director of Main Street South Orange in South Orange, New Jersey, his home town. u � � < „�.'�' � •. � � �,� ,� � ��, � , ,.: �� .� � , ' d .. �'��.� e,� !�''' � ��, r �' � � �,� :� �� %� '�� f � � r.c . e �� '� F � �� sr �`.-" ., � t ' � � ` � / �. � ly � �' � l� � � � � � y . �� y : � \,.\. a ,� � � ,�- ; ; �1 � ,� �. � o ��, Fi � � .. ^,��<(- � � _ �,pt r 4�� 4 Y . ry : :. � ` .`� . � ' ! ,� � �f19�.:g�\. ..\' . X ' �x ' ff " ' � �'I ' �'-'' . =J �� _ �, � � , 4',,' � + i�le, . y ti ,� a . � °�l � � _- � � � . �1 � ,.A <� e�.�N. A '- � i_ C � / � .�. ��: � "' •- •�'� ��/j/ f 3 � ��--� i�� ii)�t.�b ', ,,i ,.-� �� D 3� � g� c �";�' 4 Y ---"' � r- ... _� �` - �� ;�',. 'fi'�� `—.;