09-196Council File #_ � - ) G� (�
Green Sheet # 3066679
ADOPTION OF THE
HISTORIC PRESERVATION CHAPTER OF THE
SAINT PAUL COMPREHENSIVE PLAN
Presented
by
RESOLUTION
CITY OF SAINT PAUL, MINNESOTA �'
, _
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
18
19
20
21
22
23
24
25
26
27
28
29
30
31
32
33
34
35
36
37
38
39
40
41
42
43
44
WHEREAS, Minnesota Statutes 462.353, subd. 1, grants a municipality the authority to prepare a
comprehensive plan, which is defined in Minnesota Statutes 462.352, subd. 5 as "a compilation of policy
statements, goals, standards, and maps for guiding the physicai, social and economic development, both
private and public, of the municipality and its environs. ..;" and
WHEREAS, Minnesota Statutes 473.856 requires that municipalities prepare comprehensive
plans consistent with the development guide and the metropolitan system statements adopted by the
Metropolitan Council; and
WFIEREAS, Minnesota Statutes 473.859 details the content of the comprehensive plan; and
WHEREAS, Minnesota Statutes 473.864, subd. 2, requires that municipalities review and update
as appropriate their comprehensive plans every 10 years and submit them to the Metropolitan Council for
review: and
WHEREAS, Section 107.02 of the City of Saint Paul administrative code authorizes the Planning
Commission to organize and facilitate the preparation of the Comprehensive Plan and any subsequent
updates, and to transmit its recommendation to the Mayor and to the City Council; and
WHEREAS, Section 107.04 of the City of Saint Paul administrative code authorizes the Planning
Commission to appoint task forces as advisory bodies to study technical issues identified by the
commission and to report their findings to the commission for its consideration; and
WHEREAS, Section 73.04(1) of the City of Saint Paul Legislative Code authorizes the Heritage
Preservation Commission to serve as an advisory body to the Mayor and City Council on municipal
heritage preservation matters, and to recommend the initiation of studies and reports as it deems
necessary to carry out the work of the Heritage Preservation Commission (HPC); and
WHEREAS, Section 73.04(1) of the Legislative Code states that any report or studies addressing
municipal heritage preservation matters that are submitted to the Mayor and City Council shall corrtain
both the recommendations of the HPC and the division of planning; and
WHEREAS, the City received a Certified Local Government grant from the United States
Department of the Interior, administered by the Minnesota Historical Society, to hire a preservation
planning consultant to write the Historic Preservation Plan chapter of the Saint Paul Comprehensive Plan;
and
WHEREAS, the Comprehensive Planning Committee of the Planning Commission in January
2006 began the coordination of tasks necessary to prepare the Comprehensive Plan update; and
WHEREAS, the Planning Commission on October 5, 2007, at the request of the Heritage
Preservation Commission, initiated the preparation of the Historic Preservation Plan and appointed a task
force comprising preservation experts, representatives of community organizations, residents, business
owners and developers to guide the work of staff and the consultants; and
a�r � 9�
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
WHEREAS, the Historic Preservation Plan Task Force was co-chaired by a member of the
Planning Commission and a member of the HPC; and
WHEREAS, the task force met from December 2007 through July 2008 to prepare the public
hearing draft of the Historic Preservation Plan; and
WHEREAS, the Planning Commission and HPC held a joint public hearing on the Historic
Preservation Plan on November 6, 2008, notice of which was duly given in the Saint Paul Legal Ledger on
October 9, 2008; and
WHEREAS, the Planning Commission and HPC recommended changes to the Historic
Preservation Plan, after considering public comment; and
WHEREAS, the Planning Commission on January 30, 2009 recommended adoption by the City
Council of the Historic Preservation chapter of the Saint Paul Comprehensive Plan; and
WHEREAS, the City Council held a public hearing on February 18, 2009 on the draft Historic
Preservation chapter of the Comprehensive Plan, notice of which was duly given in the Saint Paul Legal
Ledger on February5, 2009, and at which all interested persons were heard.
NOW, THEREFORE, BE IT RESOLVED, that the Saint Paul City Council hereby adopts the
Historic Preservation chapter of the Saint Paul Comprehensive Plan.; and
BE IT FURTHER RESOLVED, that the City Council hereby forwards the Historic Preservation
chapter to the Metropolitan Council for its review.
Requested b De a ent of:
Planni & E omi velo ment
By:
Form Ap oved by City Attorney
BY �U, ��. Z .,a-oti
Adoption Certified by
By:
Approved by.--� �
Mayor: y , ,�'`
BY� l�� t
Coyncil Secretary
�,��,�sp.�
Date `
_ ,7°f J
Form Appr �I y for bmis n t
Councd
By:
Approved by the Office of Financial Services
By:
Adopted by Date ���
Council:
� Green Sheet Green Sheet Green Sheet Green Sheet Green Sheet Green Sheet �
Oepartment/Office/Council: Datelnitiated: D � l L Z�
PE _Planning&ECOnomic p4-FEB-09 Green Sheet NO: 3066679
Development
ConWCt Person & Phone: Department r � Sent To P�ers�o�n IniY_7allDate
LUCy ThOmpSOt1 � 0 lannin & Economic De�elo me ew r��.. L v �!aL>V rJ ��
266-6578 I lannin & Economic Develo me De artrnent Director _/�
Assi n �
Must Be on Council Agentla by (Date}: Number Z � Attome Peter Warner �«� �"'`t
18-FEB-09 Fof 3 a or'sOffice Ma odAssistant
RoUting 4 onncil Kathv Lanhv
Doa Type: RESOIUTION Order 5 i Clerk CiN Clerk i
E-DocumeM Required: Y �
Document Confact:
ContactPhone:
Total # of Signature Pages _(Clip Ail Locations for SignaWre) �
Action Requested:
Approval of resolurion adopting the Historic Preservation chapter of the Sain[ Paul Comprehensive Plan.
� Rec mmendations: Approve (A) or Reject (R): personal Service Contrads Must Answer the Following Questions:
Planning Commission
1. Has this persoNfirm ever worked under a contract for this departmenYl
CIB Committee Yes No
Civil Service Commission . 2. Has this person/firm ever been a ciry employee?
Yes No
3. Does this person/firm possess a skill not normally possessed by any
curzent ciry employee?
Yes No
Explain all yes answers on separate sheet and attach to green sheet
Initiating Problem, Issues, Opportunity (Who, What, When, Where, Why):
Minnesota Statutes 473.864., subd2, requires that municipalities review and update their comprehensive plans every 10 yeazs, and
submit them to Yhe Metropolitan Council for review. As part of this decennial update, [he Planning Commission and Heritage
Pcesecvation Commission initiated the p�epazation of the City's fiist-evex Aistoric Pceservation chaptet. After receiving a grant from
the Minnesota Histodcal Society, PED and DSI staff worked wi[h a consultant and community task force to prepare the plan.
AdvanWges If Approved:
The City will have a Historic Preservafion chapter of its Camprehensive Plan that will: 1) to formalize Ciry policy regarding historic
preservation; 2) guide public and private investment to further City preservation goals; 3) advocate for historic preseroation; and 4)
guide the work o€the Heritage Preservation Commission.
Disadvantages If Approved:
None. .
.._ � �
Disadvantages If Not Approved: � �
The Ciry will not have policy to guide its historic preservation activities. ��� �'� �003
ToWI Amount of
Transaction: CosURevenue Budgeted: •
F�nding Source: Activity Number.
Financial Information:
(Explain)
February 4, 2009 2:06 PM Page 1
��
(,'I'1`Y �F• S'A� PA�. 390 Ciry� Hall Telephone: 65/-266-8510
Christopher B. Coleman, Mayor IS West Kellogg Boules•ard Facsimile� 657-266-8513
Saint Paul. MN 55102
February 6, 2009
Council President Kathry Lantry
and Members of the City Council
320C City Hall
Saint Paul, MN 55102
Dear Council President Lanhy and Councilmembers:
It is my pleasure to transmit to you the Historic Preservation chapter of the Saint Paul
Comprehensive Plan. It is one of six that, along with the Introduction and Implementation
secrions, will comply with State law that the City update its comprehensive plan every 10 years.
Once adopted, the Comprehensive Plan will guide development and revitalization of Saint Paul
for the next 10-20 yeazs.
The Historic Preservation chapter was prepared by a task force appomted by the Planning
Commission and chaired by Planning Commissioner Michae] Margulies and Heritage
Preservafion Commissioner John Manning. The tssk fnrce included preservation experts,
representatives of community organizations, residents, 6usiness owners and developers.
The sirategies in the Historic Preservation chapter are:
1. Be a leader for historic preservarion in Saint Paul.
The City of Saint Paul is in a unique position to encourage the preservation of
historic resources and to maintain the unique sense of place that is closely ried to the
historic features of the city.
2. Integrate historic preservation planning into the broader public policy, land use
planning and decision-making processes of the City.
A wide range of historic preservarion acrivities are conducted by many deparhnents
throughout the City. There must be a unified vision for historic preservation that is
aligied with City preservation policies.
3. Idenrify, evaluate and designate historic resources.
Before historic resources can be preserved and interpreted, they must be identified
and evaluated as to their significance and value to the community.
4. Preserve and protect historic resources.
In order to ensure that historic resources retain their ability to convey their meaning
and are preserved for future generations to appreciate and enjoy, they must be
properly protected.
5. Use historic preservation to further economic development and sustainability.
Historic preservation is one of fhe most important economic development tools
available to a community. It creates jobs, stimulates tourism, increases property
values, provides excellent incubator space for businesses, and provides an amenity
that helps cities compete with the suburbs.
�
�i
Council President Lantry
Febn�ary 3, 2009
Page Two
6. Preserve areas with unique arclutectural, urban and spafial characterisfics that
enhance the character of the built environment.
Saint Paul's tradirional urban fabric — its sh�eets, land use pattern, density,
architectural conrinuity and walkability — uniquely defines the city and the quality of
the urban experience in Saint Paul.
7. Provide opportunities for education and outreach.
Public outreach and education are instrumental to raising awareness about historic
preseroation and its benefits to the city, its residents and developers.
These strategies aze intended to accomplish the overazching goal of the Historic Preseroation
chapter, which is to provide a guiding vision for historic preservarion in Saint Paul, forxnalize
City policy regarding historic preservarion, guide public and private inveshnent to further City
preservarion goals, advocate for historic preservation, and guide the work of the Heritage
Preservation Commission.
Both the Planning Commission and Heritage Preservarion Commission have reviewed the
Historic Preservation chapter, held a public hearing and recommend adoprion. I concur with the
Commissions' recommendation.
Sincerel
Christopher B. Coleman
Mayor
Enclosures
��l-J�i(p
city of saint paul
planning commission resolution
file number o9-,0
date Januarv 30. 2009
RECOMMENDATION TO ADOPT THE
HISTORIC PRESERVATION CHAPTER
OF THE
SAINT PAUL COMPREHENSIVE PLAN
WHEREAS, Minnesota Statutes 462.353, subd. 1, grants a municipality the authority to
prepare a comprehensive plan, which is defined in Minnesota Statutes 462.352, subd. 5 as "a
compilation of policy statements, goals, standards, and maps for guiding the physical, social and
economic development, both private and public, of the municipality and its environs. ..;" and
WHEREAS, Minnesota Statutes 473.856 requires that municipalities prepare
comprehensive plans consistent with the development guide and the metropolitan system
statements adopted by the Metropolitan Council; and
WHEREAS, Minnesota Statutes 473.859 details the content of the comprehensive plan;
and
WHEREAS, Minnesota Statutes 473.864, subd. 2, requires that municipalities review and
update as appropriate their comprehensive plans every 10 years and submit them to the
Metropolitan Council for review; and
WHEREAS, Section 107.02 of the City of Saint Paul administrative code authorizes the
Planning Commission to organize and facilitate the preparation of the Comprehensive Plan and
any subsequent updates, and to transmit its recommendation fo the Mayor and to the City
Council; and
WHEREAS, Section 107.04 of the City of Saint Paul administrative code authorizes the
Planning Commission to appoint task forces as advisory bodies to study technical issues
identified by the commission and to report their findings to the commission for its consideration;
and
moved by Marqulies
seconded by Donnellv-Cohen
in favor Unanimous
against
v�-� ��
Planning Commission Resolution
Historic Preservation Chapter of the Saint Paul Comprehensive Plan
Page 2
WHEREAS, Section 73.04(1) of the City of Saint Paul Legislative Code authorizes the
Heritage Preservation Commission to serve as an advisory body to the Mayor and City Council
on municipal heritage preservation matters and to recommend the initiation of studies and
reports as it deems necessary to carry out the wosk of the Heritage Preservation Comm+ssion
(HPC); and
WHEREAS, Section 73.04(1) of the Legislative Code states that any report or studies
addressing municipal heritage preservation matters that are submitted to the Mayor and City
Council shall contain both the recommendations of the HPC and the division of planning; and
WHEREAS, the City received a Certified Local Government grant from the United States
Department of the Interior, administered by the Minnesota Historical Society, to hire a
preservation planning consultant to write the Historic Preservation Plan chapter of the Saint Paul
Comprehensive Plan; and
WHEREAS, the Comprehensive Planning Committee of the Planning Commission in
January 2006 began the coordination of tasks necessary to prepare the Comprehensive Plan
update; and
WHEREAS, the Heritage Preservation Commission on September 20, 2007 requested that
the Planning Commission initiate the preparation of the Historic Preservation Plan, and appoint a
Historic Preservation Plan Task Foroe`to guide the work of staff and the consultants; and
WHEREAS, the Planning Commission on October 5, 2007 initiated the preparation of the
Historic Preservation Plan and appointed a task force comprising preservation experts,
representatives of community organizations, residents, business owners and developers; and
WHEREAS, the Historic Preservation Plan Task Force was co-chaired by a member of the
Planning Commission and a member of the HPC; and
WHEREAS, the task force met from December 2007 through July 2008 to prepare the public
hearing draft of the Historic Preservation Plan; and
WHEREAS, the Planning Commission and HPC held a joint public hearing on the Historic
Preservation Plan on November 6, 2008, notice of which was duly given in the Saint Paul Legal
Ledger on October 9, 2008; and
WHEREAS, the Planning Commission and HPC recommended changes to the Historic
Preservation Plan, after considering'public comment.
NOW, THEREFORE, BE IT RESOLVED, that the Planning Commission hereby
recommends adoption by the City Council of the Historic Preservation Plan of the Saint Paul
Comprehensive Plan update.
09-��1�
CITY OF SAINT PAUL
HERITAGE PRESERVATION COMMISSION RESOLUTION
FILE NUMBER CLG-08-01
DATE December 18, 2008
Saint Paul Comprehensive Plan
Historic Preservation Plan Chapter
WHEREAS, the Saint Paul Heritage Preservation Commission is an appointed body
established to advise the Mayor and City Council on municipal heritage preservation matters
and to recommend initiation of studies and reports as it deems necessary to carry out the work
of the Heritage Preservation Commission; and
WHEREAS, the City of Saint Paul is required to submit an update of the City's
Comprehensive Plan to the Metropolitan Council every 10 years; and
WHEREAS, the City's Comprehensive Plan has never had a full chapter devoted to the
treatment of cultural resources and the work of the Heritage Preservation Commission within the
City of Saint Paul; and
WHEREAS, The Historic Preservation Chapter is an important part of the City's
Comprehensive Plan and serves as the Plan for identifying, surveying and designating the City's
cultural resources as well as guides the development of these culturally important sites; and
WHEREAS, the City's Planning and Economic Development Department leads the
revision effort to insure the Comprehensive Plan is thorough and complete and ready for review
and recommendation by the Planning Commission, and the Historic Preservation Chapter by
the Planning and Heritage Preservation Commissions; and
WHEREAS, the City received a Certified Local Government grant from the United States
Deparfinent of the Interior, administered by the Minnesota Historical Society, to hire a
preservation pfanning consuftant to write the Historic Preservation Plan Ghapter; and
WHEREAS, the Planning Commission appointed a Historic Preservation Plan Task
Force to study and elicit community input to guide the 2009-2019 update; and
WHEREAS, the Historic Preservation Plan Task Force, along with a Core Team of key
staff from all City Departments that are impacted by preservation, conducted several meetings
over a ten month period and have recommended a thorough, complete and visionary plan for
adoption by the Saint Paul City Council; and now, therefore,
BE IT RESOLVED, that the Saint Paul Heritage Preservation Commission recommends
that the proposed Historic Preservation Chapter of the 2009-2019 Saint Paul Comprehensive
Plan be approved by the Planning Commission and adopted by the City Council.
MOVED BY Commissioner Carey
SECONDED BY Commissioner Thomas
VOTE 8 to 0
SIGNED BY: (/'���~`
Paul Clifford Larson, Chair
D�/ �f�
The Historic Preservation Plan is one of six chapters of the draft Saint Paul Comprehensive
PIan.The draft policies of the Historic Preservation Plan were directed by a task force of Saint
Paul citizens, professionals, preservation advocates and experts, a Planning Commissioner, and
Heritage Preservation Commissioners that met monthly between November 2007 and July
2008, and a core team of City staff that met a total of three times between December 2007 and
July 2008. The Heritage Preservation Commission held a joint public hearing wiih the Pfanning
Commission on this draft on November 6, 2008, at City Hall, located at 15 W. Kellogg Boulvard,
St. Paul, MN. See http://wwwstpaul.gov�ndex.aw?nid=3558 to view drafts of the other
chapters of the plan. Comments on this draft can be directed to amvsoongC�cistoaul.mn.us.
ov-r��
Table of Contents
fntroduction
Strategy 1: Be a leader for historic preservaiion in Saint Paul
City as policy setter
Ciry as faci litator and convener
City as advocate
�
6
Strategy 2: Integrate historic preservatron planning iMO the broader pu W ic policy, 4
land use planning and decision-making processes of the City
Alignmeni with regulatory policies, planning processes and departmental goals
Adequate sUffing
Coordinated preservation planning ac[ivities and implementation
Strategy 3: Identify, evaluate and designate historic resources
Ongoing identfication and evaluation program
Historic contexts
Reconnaissance surveys
Evaluation of historic resources
Qesignation of historic resources
Strategy 4: Preserve and protect historic resources
Design review of sites and districts
Undesignated historic resources
Ciry-owned historic resources
11
14
Stsategy 5: Use historic preservatxon to further ewnomic develapment and sustaina6ility 16
Economic viability of historic resources
W nd use and regulatory incentives
Financial incentives
Strategy 6: Preserve areas with unique architectural, urban aM! spatial 79
characteristics that enhance the character of the built environment
Neighborhood character
Traditional urban form and features
Vsual character
Strategy 7: Provide opportunities for education and outreach
The story of Saint Paul
The importance of preservation
Owner education
Implementation
Appendix 1
Appendix 2
21
24
3 Nistoric Preservafwn Plan
D>-/q�
4 Saint Pau{ Comp2hensive
� i
The following principles inform ihe
mategies, objec9vesand polides in
this chaptec
• Prese�uation is a mre commun¢y
value
• Historfc pre:erwtion isa priorityfor
the City of Saim Paul.
• Preservaiionisacriticalcomponent
ot neigh6orhood vitaliry, quali[y of
life and sense of place.
- Preservation is key to making Saini
Paul an economicaUy, sociallyand
physically sustainable city, through
the rehabiliution and adapfive
reuse of buildings, as well as the
broader protec[ion and celebration
of neighborhood character.
� Preservation is an essenlial tool to
accomplish economic devebpmeni.
� His[oricresourcesareuniqueand
irreplaceable. aM should be ueated
accordingly.
- Preservation should be integrated
with the broader ciry and
neighborhood planning process,
and with oxher chapters of the
Comprehensive Wan
Saint Paul has a weahh of historic resources that define the diarader of the dty,
ueate a s[rong sense of place, enhance the quality of liFe of residerrtis, and connect
residerts to the ciry. Like ma�ry great American dties, Saini Paul has embraced his[oric
preservation as an important todfor mair�ining etonomic and sotial vi�lity During
ihe past 25 years, his[oric preservation has been used to transform areas such as
Lowettown, Cathedtal Hill, Rice Park,Selby Avenue, Summit Hiil and Dayton's Bluff.
The commitrnent to these places by residenu, the Crty and other organi�tions has
led to inveased investmeM and higher property values, and has made these areas
better places to live, work and reaeateThrough historic preservation, Sair�t Paul has
remained attractive and vital to those who seek an urban Iifestyle
Saint PauYs preservation ethic is the resu�t of grassroots movements.One of the
eadiest and most recognizabie grassroots preservation effor[s in SaiM Paul was
the successful campaign to save the Old Federal �ourts Building from the wreck-
ing ball and rehabilitate it as Landmark Center, which is now an iconic symbol of
the city. Saint PauPs commitment to historic preservation is furtherevidenced by
the fact it was one of the first communities in Minnesota to adopt a heritage pres-
ervation ordinance and become a �ertified Locai Government (CLG}_
While these early efforts set the stage for preservation in Saint Paul, historic
preservation efforts have been hampered by a lack of consistent leadership and
supportive Cicy policy.The heriiage preservation ordinance has a4lowed fos the
preservation of a relatively small number of key historic sites and districts, but
there has not always been an organizational structure that consistently makes
preservation a priority, sets goais for historic preservation, and establishes broad
policies that ensure these goals are achieved.
Purpose
The purpose of this chapter is Yo provide a guiding vision for historic preservation
in Saint Paul. It formalizes City policy regarding historic preserva6on, guides public
and private investment to further City preservation goals, advocates for historic
preservation, and g�ides the work of the Heritage Preservation Commission (HPC}.
Historic preservation defined
For the purpose of this chapter, fiistoric preservation is defined as follows:
Historic preservation is an activitythat preserves historic resources, aod
their ability to comm�nicate their iMended meaning and significance. it
includes the identification, evaluation, designation, protection and retention
of significaht architedural, historic and cultural resources in the built and
naturai environments. Resources can range from small objects, to buildings
and structures, to sites and districts, to landscapes and streetscapes, to entire
view corridors. By protecting the historic charader and fabric of a com-
munity, preservation enabies the people of today and tomorrow to connect
with the people and evenu that underlie their past. More recently, historic
preservation has become usociated with healthy living, sustainabilityand
green building to supportihe retention of older buildings, crea[e a sirong
and unique sense of place, and enhance the qualityof life in a community.
For the purposes of this chapter, heritage preservation is the same as historic
preservation.
1 WSTOric Preservatlon Plan
c�G -���—
Legai framework
There are a number of laws ihat serve as the legal basis for historic preservation
aaivities in Saint Paul. Federal laws include the Nationai Historic Preservation
AQoft966andtheNationalEnvironmentaiPolicyAdof7969. Statelawsindude
the Minnesota Historic Districis Rct and the Minnesota Environmental Rigfits Act
Perhaps the most sign�cant law impacting historic preservation in Saint Paui is
Minnesota Statute 471.793, which announced that the"historical, architectural,
archaeological, engineering artd cuitural heritage of this state is among its most
important assets' The riatute gra�ted tocal governments the power to estabiish
local heritage preservation commissions to engage in a compmhensive program
of historic preservation, and to promote the use and conservation of historic prop-
erties for the education, inspiration, pleasure, and enrichment of the citizens of this
srate°
Saint Paul exercised the authority granted by the Legislature and, in 7976, estab-
lished the Saint Pauf Heritage Preservation Commission as an advisory body to the
Mayor and Ciry Council on heritage preservation matters. The Commission is made
up of thirteen members. Saint Paul also enacted various heritage preservation
ordinances to safeguard the Gtys hentage, located in chapters 73 and 74 of the
Saint Paul Legislative Code. These heritage preservation ordinances charge the
Commission to fulfill certain duties, including the dutyto °protect the architectural
character of heritage preservation sites"through various means such as the educa-
tion of the citizens ofthe city with respect to the historic and architectural heritage
of the city, the designation of city heritage preservetion sites and the review of
city permits to undertake work in a heritage preservation site. The ordinantes also
establish various design guidelines that the Commission must apply to City permit
revievs decisiorrs for work in heritage preservatian sites.
Background
The modern day historic preservation movement sTarted to gain widespread
acceptance in the late 1960s and early 1970s, closely corresponding to the
enactment of key Eederal and State enabling legislation for historic preservaiion. ln
Saint Paul, the first property to be officially recognized was theJames J. Hi11 House,
which was designated a National Historic Landmark in 7461. Several properties
in Sairrt Paul were subsequeMly Visted on the Nationat Register of Historic Piaws
(NRHP) and the State Register of Historic Places (SRNP) in the late 1960s and early
1970s. After a number of notable preservation successes, induding Landmark
Center, the City of Saint Paul enacted a heritage preservation ordinance in 7976.The
ordinance incl udes a declaration of public policy and purpose:
The Counciiof the CityofSaintPaut hereby dedarez as a matterof public
policy that the preservation, protection, perpeEUallon, and use ofareas, places,
6uildings, sYruchues, andotherobjects (�aving hrstoricat, cultural, arci+iteciura(,
archaeo%giml, orengineering significanceis a pub/icnecessityand is requi�ed in
tlie interest ofihe heahh, prosperit}; wfety and welfareaf the people.
• SafeguardtheheritageoPtheCityof5aintPaulbypreservingpropertieswhich
reAed elements of the ciry's cukural, sodaf, economic, po(itical, architectural,
a�chaeological, orengineereng history,
• ProtedandenfrancetheCityofSaintPau('sattradionforesidents,tourisisand
visitors, and serve as a suppoR and stimutus to business and ind�stry;
2 Saini Paul Comprehensive Plan
r' _ ` . . °-�e
Enhance the visua} and aesthefic character, diversity, and interesY ofthe City
ofSaintPaui,•and
Foster civic pride in the beauty and notabte acmmplishments ofthe past,-
Promote the use a�d preservation ofiristoricsites and structures for the
education and generat welfare of the people ofthe City of SaintPaul.
Since 1976, this declaration of public policy and purpose has guided the Cty's his-
tnric preservation efforts. Some of the major highlights over the years include the
designation of a large number of properties and several districls in Saint Paul as
Ciry hentage preservatlon sites in the 1980s, the completion ofi a city-wide historic
resources survey in 1983, the City becoming a Certified Local Government in 1985,
and the renaissance of severel historic areas such as Lowertown, Cathedral Hill and
Summit Avenue. As of Marth 2008, there werethree Nationaf Historic Landmarks
in the city, 86 individuai properties and seven historic districts that have been
listed on the NRHP; 77 individual properties and two historic distncts that have been
historically designated by the StateoF Minnesota; and 73 individual properties and
six historic districts that have been designated as heritage preservation sites by the
Cty of Saint Paul (Fgure A}.
During the last decade, the focus of preservation efforts in Saint Paul has started to
change. While the numberof properties being designated as heritage preservation
sites by the City has dropped off considerably, there is a much greater focus on
planning for preservation and community education. in this time, iwo individual
properties and one historic district were designated for heritage preservation by
the City, and six properries were listed on the NRHP. Perhaps more notable are
some of Saint Paul's other preservation achievements, induding the creation of
Historic Saint Paul in 1998, a non-pr�t organization created to preserve, proted
and enhance the character of Saint Paul neighborhoods, and the development
of six historic contexts in 2001.The City partidpated in the NationaiTrustfor
Historic Preservation's Preservation pevelopment Initiative in 2002, which trrought
together a team of local and nationa� experts to assist the Gity in better utilizing
fiistoric preservation as an economi[ development tool. fn 2004, the City instaVled
several historic district marker signs in locally-designated historic districts to raise
awareness about them and to benefit heritage tourism efforts. Saint Paul's many
successes, as weH as its cha4tenges, were showcased to a nationaf audierxe in
2007, when Saint Paul hosted the National Trustfor Historic Preservation's annual
National Historic Preservation Conference, the premiere historic preservation con-
ference in the United States. In 2007, the City took a major step fnrward in pfanning
for historic preservation by initiating work on the firsriever historic preservation
chapter in the �iLy's Comprehensive Plan.
Key trends
Sroadened definition of preservation
When histonc preservation started to gain widespread acceptance in the fate
7960s and early 1970s, much of the focus was on saving key buildings of national or
state significance and architedural landmarks. Today, preservation recognizes the
cuitural, social, economic and politica� history of the city. History is demonstrated
not only in the built environment, but also in the landscape and in the stories of
iu citizens and visitors.
Increased focus on sustainability
An existing buiiding that was wetl-built and has been maintained over time is
the most"green"building there is. Most historic buildings were designed with
features that address today's pressing sustainability issues, such as large windows
3 Historic Preservation Plan
ny ���
that take advantage of natural light, veMilation and passive wiar capabilities.The
preservation, rehabilitation and adaptive reuse of his[oric buildings support the
tity's surtainability goals.
Thedaswlition ard replacementof histaic
6uilding5 with newconstiuction inaeasestlx
consumption of ratural resources,fills landfilis
and irKreases qreenhase gas emissiorts.
Forexample, a typid 50,000-s9uarrfoot
cqnmercial b�elding conTains abou[80 billion
sdsshit�erma� Uross csitls) of emboated
er�qy, ihe enercjythatwent into manuFectur-
inq the Iwilding materidls and consbucting
thestructure' ThdsisiheequivalenYaF
640,000 gailons of gasolina tf the buildiMj
is demotished, ali of this cnergy is wasted
Moreover, ihe demolition wil I ger�vate more
ihan 4,000 tonsof waste, which 6 enough to
fill2b bmccars, a a train [hat is neady a quarter
mifetong.° Sirce corrsvuctiwa� debri5account5
fa 75 percentof tlie annual municipal wns[e
stream, eath buildirg tliat is preserved can
significantly entend the lifeof a IandfilL° If
the demdished building is replaced by new
mnstruction, a n equi�ral�t arnou M of ener9y
a required ro mnstructthe new buildirg.
Anotl� 6enefit of preservirg historic twild-
ings is an asw6ated reduction of cgeenhouse
9ases and reAuced er�ergy mnsumption More
than 43 perceM of the carbon eimssiom in the
United SMes are attribu[ed to the consUUC-
5onandoperetionsofbuildinqs." Onestudy
has determined that the <peenhouse gas
emissions 6om renovatlon projxts are 30-50
percmt lest than art equal irn2sGtient in new
constru[tion.�There is also a common miscor'
ceptionthathistoric huYdirgsare lessenergy
efficientUwn riew buildings. Severdl studies
have proven this incarect and havefound
tl�at his[oric buildings actually use less enc�rgy.
n stuay by rhe unaed statrs Deparanait of
Energy indicates tlat commerdal buil�nqs
mnstruaed 6efore 7920 use less energy per
squarefuot than buildings from anyoMer
de�de up untii Z000." Arather study found
that utliity costs for Fvstoric buildings are
almost 27 percent less than ihose for nom
historicbuildings.'"
Increased awareness of our place ln history
As the world continues to change at an ever-increasing rate, preservation can give
us perspec[ive on where we are and where we have been. Hisioric preservation
conne�ts the past with the present, and tfie peopVe of today with Yhe peopie wfio
came before. Wth increased support for preservation activity, there is a continued
need to reach out to ihe public and educate them about the importance of desig-
nating, preserving and protec[i�g historic resources_
Awareness of economic development as a key tool
Rehabilitating key resources in neglec[ed and distressed neighborhoods can serve
as a catalyst for investment Downtowns become revitalized, and properties are
returned to ihe tax roils. While not the"quick fix"that wme communities look for,
She incremental, property-by-property reinvestment typical of preservation is more
economical ly viable over the long term, and will likely lead to a more stable local
economy. Jobs are created for small businessand laborers. Sensi6vely-restored
buildings create market value for themselves, as well as the buiidings and public
spaces ad}'aceni io them. tncreasingly, qua(ity of life is a crilical ingredient in eco-
nomic development and inter-city competition; historic preservation is integral to a
communiTy's quality of I ife.
Strategies
Seven strategies will guide future historic preservation efforts in Saint PauL The
remainder of the Plan describes these strategies in more detail and wntains poli-
cies to implement them.
Be a leader for historic preservation in Saint Paul
The City must play a broad range of roles in preserving historic resources, as well as
raising awareness and educating the public about the history of the city, ics historic
resources and the ben�u of hirtoric preservation. Policies under this strategy
focus on three rotes for the Cry: policy setter, facilitatorJconvener and advocate.
Integrate historic preservation planning into the broader public policy, land
use planning and decision-making process of the Gty
Most C'rcy departments, as well as many other public and private entities, are
imolved with historic preservation in a variety of ways and to varying degrees.
Involvement may indude pianning, regulation, maintenance, facilitation, redevel-
i UnitetlNationsErnimnmentProgramme,'BUildirgsandQimateCharige;5lalus,ChallmgearMOpportunkieS2WJ,
ISBN9J&92�07-279Si
ii Moe,�hard5ustaireWeStewartship:&rMey,CaiifomixHirtoricPreservaffin'shsentialROleinfightingQmare
Change. Presented Mamh D, 2008.
iii Carroon,Jean.TesrimoerybeForetheUni[edSbresSenate,CommietreonRUlesandAdminBtration,hearingon
Irtyxoving FaergyEffidenry, Naeasing xhe UseofRenewa61e5ourcesof E�rgy, aM Redu�gthe Car6o� FootprimN
theCapi[WComplex. June18,2W8.
iv PewCemeronGlobaiClimateChangeTowaNsAClimate-FriendlyBuiltEmironment2C45.AVaiWbMathtry9/
www.pewdimare.o`glgbbaFwarmim�-in-0epTh/all_reporM/buildings
v GmegSeMellonGreenDaignlnsti[u[eCametyeMelbnCrcaiDZSignimtiMeLifeCydeASSessmcvttTOOL
Available at wwwsidm�ret
vi LLS.EnergylnformationAgenry ConwmptionofGmssEnergylntensityforSumofMajorWeisforNOnMali
BuiWmgs2IXS3AVaitableathtW:!(www.eia.doe.govfemeu!<hers2oo3ldetaNed adr,2oo3f2oo3set9/2003pdfKipdf'
vu BratlfeyWofF,DOnaldHOm,aMGOnstaMeRamirezFuuncingH'storicFedemlBuldirgs:MAnalysisofCUrteM
Praaice. 6eneml Sermces Admimaation, Washir�gtton, D.C.1999.
4 Saint Paul tomprehensive Plan
opment, funding and education. Poli6es under this strategy focos on creating a
unified and consistenivision for historic Qreservation, incorporating preservation
planning considerations into the broader planning process, and coordinating and
aligning preservation adivi5es between departments.
Identify, evafuaice and designate historic resources
Historic resources must be identified, studied and evaluated before dxisions can be
made regardirtg their significance, value to the communiry and worthiness for preser-
vation. Moreover, previously-identified properties may need to be reconsidered and
reevaluated as new information comes to light and perspec�ves change. From a pub-
lic policy and decision-making perspective, the identification of historic resources is
critical to making well-inforrned decisions and avoiding preservation battles that can
eruptwhen historic resources are threatened. Policies under this strategy focus on
how to comprehensivelyand systematically identify and document historic resources,
select properties for heritage preservation designation, and maintain u�fo-date and
accurate information on historic properties.
Preserve and protect historic resources
There are a finite number of irreplaceable historic resources in Saint Paul. Historic
resources are focal points of the tommuniTy that create a strong sense of place,
and instill a sense of pride and ownership in residentr of Saint Paul. While there
will always be loss over time due to natural disasters and other unforeseen events,
neglect, inappropriate alterations and purposeful removal are all avoidable condi-
tions. Policies under this strategy focus on how to preserve, protect and maintain
the unique character of Saint Paul's historic resources.
Use historic preservatioo to further economic development and sustainability
Hlstoric preservation is a powetfiul tool for ecorromic development It creates jobs (in
some cases, more than new consiruction); stimulates private investmen� increases
property values; coMributes to an enhanced qualiry of life, sense of communiry and
neighborhood pride; celebrates a community's"specialness; which helps in main-
taining a competitive edge; and provides environmentally sustainable alternatives to
new construction. Policies under Yhis strategy focus on ways to utilize hirtoric preser-
vation to bring investment to the city, stimulate neighborhood revitalization, create
jobs, increase property valUes, improvethe sustainabifity of Saint Fau4, and maka it
easier and more cost-effective to wmplete historic rehabilitation projects.
Preserve areas with unique architectural, urban and spatial characteristics
that enhance the character of the built environment
Historic preservation plays a criticai role in defining the physical and visual character
of Saint Paul. It is inextricably linked to community character, qualiry of life, and
the sense of place ia neighborhoods and commercial districts throughout Yhe city.
Policies under this strategy focus on maintaining and enhancing the traditional
urban character and fabric of the city to create distinctive, vibrant places to Iive,
workand recreate.
Provide opporW nities for education and outreach
Historic resources and educational programs playa key role in bringing meaning to
a place, yet the public's undersianding of preservation and its goals artd regulatory
requirements varies widely. Policies under this strategy focus on clarifying historic
preservation regulations and processes; interpreting hiscoric place5 to bring greater
meaning to them; and reaching out to the public to increase awareness, apprecia-
tioa and �nders[anding.
Preservation Plan
,
Be a Leader for Historic Preservation in Saint Paul
Histwic preservation is a core communityvaluaThe Crty of Saint Paul is in a unique
position to enmu2ge the preservation of histonc rewurces and to maintain the
unique sense of place that is dosely tied to the historic features of the city.Through
its abilityto create policies and develop programs,the City can foster hista'ic preser-
vaUon and use it as a tool ro revital¢e neighborhoods and commercial centers, Aes-
ervation is a tool to bnng economic development to the city while also enharxing
ihe overall historic diaracter of Saint PauL Historic preservation should also be used
as a means for aeating an environmentally, economipity and sociaily sustainable
city. tonvesse{y, the Crty can impede preservacion tfirough pd'+cies and programs
that resuft in the Ioss of histonc resources, grve preference to new mnsvuction over
adaptive reuse, or require properties to be akered in ways that cause a loss of historic
tharac[er, thereby changing the fundamenial character of hisFOric resources and the
entire ciry.The first approach is prefened. While there are many ways a ciry and its
govemance can be a leader and serve as a s[eward, ffiere are three key areas where
the City must take on a leadership role: policy setting, facil'rtation, advocacy and
stewardship.
City as policy setter
1.1. Strengthen and update the historic preservatian ordinance to reflect modern
preservation practices and tools by:
a. Clarifying and expanding terms, roies, responsibilities, regulatorycontrols
and processes;
b. Broadening the dedaraYion of public policy and purpose statement to
frame hirtoric preservation within the context of an environmentally,
sociaily and economically sustainable city;
c. Expanding responsibilities to include timely reviews of proposed demoli-
tion of ail buildings and rtructures in the city, a pradice often referred to as
demoGtion delay;
d. Clarifying and improving enforcement pawess that inc4ude interim
protection of historic resources during designation, and requiring own-
ers of designated properties to maintain their properties to avoid costly
reconstruction and repair or demolition by neglect (often called duty to
maintain);
e, Clarifying criteria for the identifiwtion, evaluation and designation process;
and
f. Creating a preservation "toolkit'comprised of land use incentives for
historic preservation, such as hirtoric variances, the t2nsfer of develop-
ment rights, and a fa4ade easement prag2m to provide incentives that
make it easier to preserve and mainiain resources designated for heritage
preservation.
12. Adopt the broadened declaration of public policy and purpose statemeot in
Yhe historic preservation ordinance as part of the AdministraYive Code (See pages 2
and 3 under Background).
73. Update ordinances, policies, and other regulations, induding the Zoning
Code, thaT discourage or dixonnect with City goals for historic preservation.
7.4. Maintaio the City's status as a Certified Local Government iCLG), which means
adhering to the agreement established between the State Hisioric Preservation
Office (SHPO) and the Ciry in 1985 {See Appendix t).
6 Saint Paul Comprehensive Plan
��-� ��
a. Pursue CLG grants and provide matching funds to carry out City historic
preservation activities (See Appendixl).
1S. Strengthen the role ofthe HPC in atl public planning, deveiopment and design
processes by.
a. Institutionalizing and creating a dear, timely process to consider historic
preservation interests and concems in devetopment, land use and environ-
mental review processes;
6. involvingtheHPCinthecreationandreviewofplansandprojectsthat
affett historic rewurces (See Strategy 2); and
c Allowing the HPC to review and comment on projects involving historic
resources as part of the capital improvement budget process.
d. Workingwithdistric[councilstoengageinteresedneighborhoodpartiesin
broader planning and development issues.
City as facilitator and convener
1.6. Develop a dearinghouse where information pertaining to historic preserva-
tion can be collected and diueminated to City departments and the public
a. Identify and maintain a repository for City records on historic resources,
historic preservation piojxts, and other preservation effor[s and aciivities.
b. Utilize the City Historic Preservation Officer and Historic Preservation Team
to create a central point ofcollaboration for entities with a stake in historic
pseservation (See Strategy 2).
c. Develop programs to connect individuals and businesses who want to
acquire historic properties with sellers of historic properties.
d. Further develop the NPC websfte to indude infocmation on historic
resources and the hisYOry of Saint Paul, the benefits of heritage preserva-
tion designation, technical assistance on haw to preserve and maintain
historic properties,and linksm other preservation-related websites.
e. Educate City project managers and other development professionals to
bring consistency to historic preservation projectr for developers working
with historic resources.
1.7. Develop partnerships with distrid councils and preservation organizations to
fund and promote preservation initiatives_
7.5. Pursue intergovernmenYal agreemenis with Federal, State, and County
agencies to further Ciry preservation goals and better wordinate historic
preservation efforts
a. Update and develop programmatic agreements with the SHPO and Federal
agencies, such as the United States Departmeni of Housing and Urban
Development, to streamline the review of federa�ly-funded activities.
tity as advocate
7.9. Maintain Cty-owned hisioric resvurces pursuant to recognized preservation
standards (See Strategy 4}.
a. UseHPCdesignguidetinesandthe5eoetaryafthelnterio/s5tandardsforthe
TreaimentofHistoric Properiies to guide work on properties designated as
herhage preservation siter, use the5eaetary of thel�terior's Standards forthe
Tieatment ofNistoricProperties forother historic resomces.
7 Hisioric Preservation
r�y-��,�
b. Provide adequate funding for the maintenance, refiabi{itation and restora-
tion of City-owned historic resources, induding infrasVUC[ure_
1.10. Give equal consideration to historic preservation factors when City action,
involvementorfunding is requested or required.
1.11. Give equal conside2tion to projects with historic preservation factors when
reviwing all Capi[al Improvemen[ Budgetfunding requests. This may indude add-
ing historic preservation as a point category in the scoring process.
Al/ requests forcapRal improvement fifnding should tonsider imparts on historic
resources. Projects that adverselyaffeci historicr�aurces shou(d be given Iower
priorityin the funding process.
1.12. Prioritize the retentioo of designated historic resousces (oc those determined
eligible for historic designation} over demolition when evaluating planning and
development projec[s that require or request City ac[ion, involvement or funding.
7.73. Designate Ciry-owned properties that indude historic resources as a heritage
preservation site or historic distrid prior to sale (See Strategy 3).
1.14. Develop programs to educate the public about historic preservation (See
Strategy �.
8 Saint Paul Comprehensive Plan
s_ - ,
Integrate Historic Preservation Pianning into the Broader Public
Policy, Land Use Planning and Decision-Making Processes ofthe City
'fhe HPC is often perceived as 6eing responsible for all ofthe Crt}�s historic preservation
ackivities, when in actualiry, a wide range of hisioric preservation activities are
conduRed by many different deparhnenis throughoutthe CRy. Currenfly, many of these
efforts are not coordinated. Not onlydo many deparanenu ladc an official preservalion
pdicy, but there is a disconneck between some Ciiy practices and preservation goafs.
Outdated survey data on historic Tesources, timited staffing and competition for funding
to preserve Gty-owned historic resources create additional challenges.The net resuh of
these condrcions is maed.There are many preservapon success stories, but there is also
ihe potential to negatively affect historic resources.lmproving thestanding of historic
re5ources in the pianning {xocesz wi►1 require a muhi-faceted approach.There must be
a unified visian for historic preservation that is aligned with Cty preservavon policies.
Up-to-date information on historic resources needs to be available to decision-makers.
Departments need adequate levels of properly-trained staff. Coordination between Ciry
departments will help ensure that historic rewurces are fu11y considered during policy,
land use, planning and decision-making protesses.
TheMayorappointsmembersto[heHPC Alignmentwithregulatorypolicies,planningprocessesand
andprovidesviswnformajorhiscoric departmentaigoals
preservation initia6ves.The Department
of5afetyand Inspecuons (DSp is 2.1. Develop, in cooperation with the City Historic Preservation O�cer, a
responsibleformanyoftheCiry'shinoric preservationpolicyforeachdepartmentaffectingthebuiltandlornatural
preservation aaivities, including sta�rg environment that inmrporates historic preservation into its mission.
and supporting the HPC, design review,
and surveying properties for historic
designation.TheoepamnencofPFanning zZ- �ncorporatehistoricpreservationconsiderationsintodevelopment,landuse
andEmnomicDeveiopment{pED)is andenvironmentalreviews,siayingmindfulofprojecttimelines.
responsibieforplanninqandfunding StateandFederolenvtronmentaireviewreguEationsrequirethattheimpactsof
rieighborhood deveiopment projects, many pubtidy-and privately-funded projects on histo�ic resources be assessed.
many of which involve historic preserva-
tion,indudingFederalcompliancewith Potentiaiadverseeffectstohistoricresoorcesaretobeavoidedormitigated,
Section 706 ofthe NHPA (See Appendix and preference is to begiven to preserving histonc resources in a manner that
a).TheDeparcmentofPublicwo.iQis complieswiihHPCdesignguidelinesorthe5enetaryofthelnterior'sStandards
responsibleformairrcaincngtheCiry's fortheTreotmentofHistoricProperties.PlonningforproJedsthatuseFederat
historic bridges and brick streets, and funds, such os road and bridge projects, mustmnsider their impads on historic
workswichchenninnesocaDepartmenc resourcu,indudinglandsmpesandmrridon,throughtheFederalSedioni06
ofTrensportation on transportation
projectsthataffeahistoricresources. plOtesSOfthBNHPA(S2eApf7¢tid1X7}.
ihe Real Estate Division otPUbiicworks a. Consider impachs to historic resources in all public and private planning
overseesthemaintenanceandrepairof anddevelopmentprojectsthatrequireCiryinvolvement,actionorfunding.
several hisroric buildings owned bythe
City,indudingCrtyHaU.TheParksand Alternativesshould6econsideredtoavoid,minimizeormiUgatepoteniial
Reaeation Oivision owns and mainrains a adverse impa[ts to historit �esour[es.
num6er af histaric 6uGdings, landscapes
and parks �n several h�scoric distrias. 23. Integrate historic preservation into public policy and planning processes.
a. Utilize the res�lts of historic resources surveys to inform planning and
decision-making. CiTy departrnents should conduct surveys to identify
historic resources as they prepare plans, design capital projects, and before
ihey perform maintenance. if historic resources are identified, they shouid
be accommoda2ed in planning, deslgn and maintenance projecu.
b. Indude a historic preservation component, as appropriate, in public and
private planning and development documents that require City involve-
menL adion or funding, induding capital improvement plans, small
area plans, master pfans,developmentagreementsand development
guidelines.
9 HistorK Preservation Plan
l�ri 9�
Adequate staffing
2.4. Add staff dedicated to preservation activities within the Department of Safety
and Inspections that will adequately support a comprehensive preservation
program
ZS Create a Ciry Historic Preservation Team of representatives from departmentr
whose work affec[s preservation ac[ivities.The team should coordinate the
preservation-re{ated gaa{s, po{icies and procedures of tfiese departmenis witf�
those of the HPC.
26. Designate a Cty Historic Preservation Officer, who meets the Senetaryof the
interiors Professionat Quoliflcation Standards, to serve as the coordinator for all
of Saint Paul's historic preservation activities and oversee the effurts of the City
Historic Preservation Team.
2.7. Identify and train s[afffrom appropriate departments to oversee historic p�es-
ervation responsibilities and select key staffto serve as liaisons to the City Historic
Preservation Team.
KeyCity staff, induding those imolved with planning, urban design, economic
deve%pment and property managemeM, should be trained on how to meet City
historic preservation goa/s, and compty with Federal, Stote and Ciry legislative
requirements. Maintenance and construdion staff sbould be trained on how to
properly maintain and pteserve historicresources.
Coordinated preservation planning activities and implementation
2.8. Share information between departments via the Historic Preservation Officer
and Historic Preservation Team.
29. Seek partnerships with organizatipns such as His[oric Saint Paul, district
counciis and community development corporations.
10 Saini Paul tomprehensive Plan
2.10.indude district councils in planning for hiswric preservatian and in surveying
neighborhoods to identify historic resources.
� �lc�
Identify, Evaluate and Designate Historic Resources
Before historic resources on be preserved and interprMed, and their intended
meaning conveyed,they must be identified, studied and evaluated as to their
significance and value ta the community_This creates a need fos accurate
infrnmation sothat dedsiorrmakers on make well-informed, rational decisions.
Therefore, an up-to-date historic resources imentory is criticai. Moreover, an
inveniory can help avoid fas[-minuxe preservation 6attlestha[ can occur when
old buildings and other potentially historic srtes are threatened.
Ongoing identification and evaluation program
3.1. Implement an ongoing survey prog2m to identify and eva�uate all types of
historic resources in Saint Paul, induding buildings, strudures, objects, archaeo-
logical sites, districtr and landscapes (See Appendices 7 and 2).
a. Identify, through new survey efforts, a ful� spectrum of properties that have
yielded, or may be likely to yield, information important in prehistory or
history; are associated w+th significanY evenis or with an important pattern
of cultural, political, economic or social history; are associated with the Iives
of significant persons or groups; embody the distinctive characteristics of
an architectural or engineering type or style, or metfiod of construction;
exemplify the work of a master builder, engineer, designer, artist, craftsman
or architect; exemplify a landscape design or development pattern distin-
gnished by innovation, rarrty, uniqueness or quafity of design or detaiV; or
contain or are associated with distinctive elements of city identity.
32. Continue io deve{op a data base to capiure, s[ose aod mainSain information
collected on historic resources during surveys. The data base should be compatible
with the SHPO's architxture-history and archaeology data bases, and the Ciry's GIS
and permitting sys[em.
a. Confinue to develop a well-organized surveyform and data entry program
to expedite surveys and data entry.
b. Yntegrate survey resutts imo the Crcy GIS system; map historic resources.
33. Make the results of the sunreyavailable to departments, decision-makers, and
the public.
a. Make survey information and results avaifable to all City departmenu
through the heritage preservation clearinghouse.
b. Add survey resulu to the HPC website.
c Publish survey results and provide copies to libraries, district councils and
City departmenu, and make copies available ta the pubiic.
3.4. Pursue creative ways to adequately staff and fund the survey program.The
steps taken to conducta surveyand how surveys are carried out are outlined in the
Seaetary ofthe fiterior's Standards forPreservation P/anning.
a. Developalong-rangesvategytoadequatelyfundthesurveyprogram.
b_ Appty for CLG grants to develop his[oric contexts and partially fund suweys.
Histo�ic contexts
Historic caMexts provide the framework to help determine ifa resource is histarirally
sign�cant and warthy of preservation. ihey:
t t Historic Preservation Pian
The tertn historic resource is used
throughout this chapter in a broad
sense. fvr purposes of explaining
ihe pto[ess af idenvfication, evalU-
ation and devgnalion in Strategy 3,
the tertn historic resourre wfN mea�
an object, strucYUre, build�ng, si[e,
landscape or district that is believed
to have hirtori�l, cuhural, architer
tusal, archaeologica{ or en9i�eenng
significance and to meex at least one
ofthe criteria for designation as a
heritage preservation site or distria
(See Pdicy 3.7 a. for vi[eriaJ.
� w -""'- —=� "e
i i .'-- - � - - _ _ 1}' � - P .
��� ''� > .�1 - _ -_, ...�,.-'��� ' '. Y t'.
yt ,1 1
a _ ��,. . � ;�_, ±e
��`�F"� �" '�s�! '�
'� p '� �<:' — ; "-� .�, ` . �I
,. -
,, , ,z,, ,
� „ �. - t . „ _
' � --.°.n' -c--- � .
5 5'a
! 'bc1 r. �:..: �x� S ��. .r ..'rit'" �'—l4k
' 'a—�—
� �
; �,�{ �
i i.;s:d :
_
= ; ',-_i�
O�/ /9/�
- help in the identification, evaluation, designation, and preservation of historic
resources;
- organize vast and diverse historic resources of a community based on thematic
associations, geographical areas and specific time periods; and
• group togeiher common properties and identify sites forfuture study and pos-
sible designation.
tn200t theCrrydevelopedasetofsixcomprehensivehistoricconteatsbasedon
ihematic areas ofthe cit}�s development that touch on rrear/yeverysignificant prop-
erty type commoniy found in SaintPaul. Fxisting contexts indude:
• Pioneer Houses:7854-1880;
• Residential Real Estate Revelopment:7880.1950;
• Neighborfiood Commertial Centers:18741960;
- Downtown Saint Pau1:1849-1975;
• Ghurches, Synagogues, and Relfgious Buildings:7849-1950; and
• Transportation Corridors:1857-1950
While these contexts providea broad framework the continuation of historyand
the discovery of previously unknown facets ofhistory have led to the need foraddi-
rional cantent work to identify a full spectrum ofhistoric resaurces in Saint Paul (See
Appendix2).
35. Utilize existing statewide histo�ic contexts that are relevant to Saint Paul to
evaluate properties for potential statewide significance.
3.6. Gontinue to develop new and expand existing historic conteMS to allow for
the continual identification of a full spectrum of historic resources (See Appendix
2).
a. implement the rxommendationsfrom the 2001 context study.
4. Develop the following new historic contexts, with the highest priority on
developing historic contexCS for the most threatened resource types and
areas:
Saint Paul Parks, Parkways, and Cultural Landscapes
Neighborhoods at the Edge of the Walking City
Post W Wfl Devetopment, Modernism, and Historic Preservation
Mississippi RiverValley: Navigation and Commerce
Immig2nt and Ethnic Communities
ResourcesTypes: Multiple Housing Units, Schools, Fire Houses, Early
Gas Stations and Automobile Dealerships
Reconnaissance surveys
3J. Identify and evatuate historic reso�rces in Saint Pau{ systematically and
comprehensively (See Appendices 7 and 2). A multi-year work plan should be
developed to conduct a reconnaissance-level survey of the entire city.The city
should be divided into manageable surveyareas that can be completed each year
All surveys should follow the standard prafessional format outlined in Archeology
and Historic Preservation: SecreW ry of the loterior's Standards and Guidelines'
[4S Federal Register 44716-44740] (Nationai Park Service 1983}.
!- i �" • Highest priority should be given to surveying individual potential historic
' ry'�r� - �t."°��
"—'�' '"" ��-"'�° resources whenever the Ciry receives an application to substantially after
f -' ,a� -
:z;i: ; '� or destroythe resource. Another high priority is the survey and idertifica-
X �" r [,
.=�,�� �,�� ,� , tion of historic resources in areas facing development pressure, such as
12 Saint Paui Comprehensive Plan
Invest St Paul areas and the Gentral Corridor.
• A medium-high priority should be the survey of City-owned resources,
induding buildings and structures, bridges and roads, and parks and
natural areas
• Ofinediumpriorityisthewrveyofpreviouslyun-surveyedareasand
A�oPenYtYPes-
• A lower, ongoing priority is the survey of properties as they turn 50 years old.
• The lowest prioriry should be to reevaluate previously inventoried
properties as existing wrvey informaiio� becomes outdated and as aew
information becomes available Previously-inventoried properties should
be resurveyed if theyare located in areas that are being surveyed.
3.8. Enter results from survey work and any other new, relevant information into
the historic resources data base. Demolished buildings shouid be left in the data
base, but recorded as non-extant
Evaluation of historic resources
3.9. Evaluate properties based on historic contents, reconnaissance surveys and
applicable designation criteria to determine their potential significance as well as
their potential eligibility for designation as a heritage preserwtion site bythe City
of Saint Paui and for listing on the Nation Register of Historic Places,The criteria
identified in the heritage preservation ordinance should be used to evaluate
Therearenumerouszicesanddistricts pprentialhistoricresourcestodeterminetheirpotentialeligibilityfordesignation
thaiare worthyof preservaxioa Since it as a heritage site bythe City of Saint Paul.The criteria established by the National
can take a considerable amaunt ofvme park Servi[e shoUld be u5ed to evaluaie the si nificante of otential historiC
and effort to designate a property for 9 P
heriwgepreservatbn,resourcesshnuld resourcesiodeterminetheireligibilityforlistingontheNRHP.
be ranked and prioritlzed based on sig-
nifica�ce,physicalrtireacs,developmenc 3.10.Forwardpropertiesthatappeartobepotentiallyeligibleforlistingonffie
pressure, reques[sfrom owners, eco- NRHP to the SHPO for an official determination of eligibility.
nomic importance and financial stablity.
The highest prirnity shouW be given to
historicresourcesthatareffireatenedby Designationofhistoricresources
demuction or developmerrc pressure.
Since manyareasfacing development 3.17. Make the designavon of significant historic resources as heritage preservation
pressure have not been choroughty site5 a priority for the City Cou�cil.
surveyed to ideniifya full specvum of
histrnic resources, survey etfotts muse a. A4locate adequate funding and sta�ng to designate historic resources.
be aligned wich designanon priorines Designation studies and nominations should be prepared byCiry staffor
to ensure thzt all unknown historic
resourcesfacingdevelopmeMpressure contracthistorianzttcanoftentakesixmonthstoiwoyea�stocompJetea
can be propedy identified and decizions designation study depending ort the sign�cancG compleriry and size ohhe
ca� 6e made abouc designac�on. resource fi-e a sing(e properry or a large district); msis can aho varygreatty
designavon of distric2s should also be based on the effort required. Similady, considerab(e siaff time is required to
ahighpriorirysincetheycanprotecc �om letethedesi nation rocess,indudin
entireareasratherffianasingleproperty. P B P 9p+iblicoutreach,meetingsand
Medium prioricy shouid be given to der hearings, and preparing repoRS. Therefore, adequate funding and staffing is
ignatinguniqueorrarehistoricresource criticattoawccessfuidesignationprogram.
types. Non-threatened pioperties with
<ompleted designacron scudies should 3.72 Designate his[oric resources, such as buildiogs, structures, objects,
be a bw priority,
archaeological sites, historic districts, and landscapes as Saint Paul heriWge
preservation sites or historic districts.
13 Historic Preservation Plan
D9-1G�
Preserve and Protect Historic Resources
6iven the many benefrts associated with preserving his[oric resources, it murt
be recogn'ized that there is a finite numberof irreplaceable historic resources
in Saint Paul.ln order io ensurethatthese limited historic reso�rces retain
their ability to corrveytheir mearnng and are preserved forfuture generations
m appreciate and enjoy, they must be properly protected.
There are a variety of threats facing historic resources, induding demofition by
neglect and purposeful deshuciion; development pressures, such as potential
impacts from the Central Corridor light rail projed on surrounding historic
resources; owners who do not properly maintain their buildings; challenges to
flnding new uses; and even natural disasters. Since historic resources Tend to 6e
somewhat unique, there are an equal number of chal�enges when it comes to
preserving them. Consequently, a number of factors need to be considered before
selecting a preferred approach to preserving and protecting a fiistori� resource.
Design review for sites and districts
4.1. Utilize design review controls to protect properties and dis[ricts designated
for heritage preservation from destruction or alterations that would compromise
their ability to convey their historic significance.
a. Develop clear and comprehensive design guidelines for newly-designated
hirtoric rewurces.
b. Revise City design guidelines for historic districts and heritage preserva-
tion sites.
One set ofgenera! design guidelines should be developed, based on tire
Sectetary of Yhe lnterior's Siandards for the Treatment ofHistaric Properties,
to provide generai guidance fw a1l properties and districts designated for
heritage preservation. The existing design guidelines for each historic district
shou/d be supplementat to ihe genera! design guidelines and should be
apdated m specificalty address the unique charader and condition of the
district Supplemental desigo guidetines shou(d be prepared to aedress the
uniqueness ofindividualdesig�ated properHes. Design guidelines not only
address how to respond fo changes and repairs to histaric buildings they also
address how new consiruction, such as add'ri'rons and new buildings, should
be sited and designed to reinforce the historic charader of the distdct.
c. After projects are approved by the HPC and permits issued, construction
should be reguiarfy inspec[ed to ensure that ihe project is being corn
structed according to HPC approval.
42. If archaeological sites are discovered during the construction of Ciry, or CiTy-
funded, projecu, all work should stop until a licensed, professional archaeologist
(American Indians as appropriate) is consulted, to develop a course ofaction
before construction work resumes.
7 4 Saint Paul Comprehensive Piao
(� % l 9fo
Undesignated h'sstoric resources
Only a smal! percentage of signifrcanthistoricresources are designaYed as heritage
preservation sites. Currentiy, sigrtificant, butundesignated, historicresources,
induding properties listed on the NRtIP, could be significantly ahered or destroyed
withoutconsideration by the HPC. Some /evelofprotection should be provided to
undesignated historicresources until ffie HPChas had an opportuniry to consider the
signihmnce afa propeKyand aato protectit.
43. Proted undesignated historic rewurces.
Any undesignated propertytiratis eligible for local designation or listing on the NRHP
should be protected fram destruction or a subsiantial loss ofhistoric charader until
the HPChas an oppoKUniiy to consider altematives to adverse effects, o� pursue
hisroric designaYion of t6e properry, andfor find parties inierestecl in acqui�ing and
preserving it.
a. Develop a demolition delay ciause in the historic preservazion ordinance
to ailow for the consideration of undesignated his[oric resources during
City permitting processes (See Strategy 1).
b. Implement interim protec[ion for historic resources going through the
heritage preservation designation process (See Strategy t).
City-owned historic resources
4.4. Maintain Gty-owned historic resources pursuant to recognized preservation
standards (See Strategy 1}.
HPCdesign guidelines artd the Secretaryofthe tnterior's Standards fw the
TreatmenYOfHistoric ProperNes should be used to guide work on propeKies
designated as heritage preservafion sites, while the SecretaryofYhe Interiofs
Standardz for the Treatmentof HistoricProperties shoutd be used forathe�
historic propenies determined eligible fordesignation.
a. Pursueandprovideadequatefundingforthemaintenance,rehabilitation
and restoration of Ciry-owned histotic resources, intluding infrastructure.
b. Evaluate, preserve, maintain, rehabilitate or restore, as appropriate,
historic properties thaY are retained by the Qty; keep these sites open and
available to the pubiic
c. Institute standards to document historic properties retained by the City.
4.5. Acquire key threatened historic properties until a suitable owner can be found.
The Ciryof Saint Paulshould seek ro acquire and preserve key threatened
bistoriuesources thatembodyimportant historic themes, consistent weth
broade� neighborhood revitalization and economic deve%pmentgoals.
As needeQ the City shou/d colfaborate with RamseyCounty, tbe Minnesota
Historical5ociery, community deve%pmentcorporations, and other
preservatian and community-based organizatians to acqu+re signiffcant
historic resaurces. Acquisi8on shoeld normaily 6e made with the ultlmate goat
of iransferring ownenhip to an appropriatenew owner, determining a new
use, and regu(atiny the design ofrehabilRation work.
a. Designate,priortosale,City-ownedpropertiesthatcontainhistoric
15 Historic PreservaCron Plan
!' �l�
Dollar fordollar, historic preservatlon is one
of the highestjolrgeneraGng economic
development options availableto a com-
munity In new mnstruc[ion, the majority
ofconstruc[ion cos[s arefor materials, wi[h
labor being a much smaller percentage of
the toAl mSCThe opposi[e is hue for his-
toric preservatlon_!n histoN[ rehabilitaGOn
projects,the majwity of construdion ca4s
are forla6or, wtth a mufi smalier perceni-
age going to material costs. As an example,
suppose a mmmunity is cnoosing between
spending $tA00,000 in new mnstrucUOn
and spending 51,6W,W6 in rehabilitation.
Whatwould the differences be?
• Rehabi8tatian projec¢ witl initially allow
$120,000 more ddlars m stay in the cam-
munrty mmpared to newconsRuction °
- Rehabilhatian will crea[e five Co nine mare
mnstruaion jabs chan new <onstruction."
• Gompared to new mnsiruction, reha-
bilitavon willaeate4Jmorenewjo6s
elsewhere in thecummunity."
. Househdd incomes will inveaze S7Q7,o00
morewi[h rehabilitafwn than with new
conshuction"
• Retail sales in the <ommuniry wlll increase
5M2,900 as a resul[ of that 57,000,000` of
reFiabiti[atian expcaidit�me-S34.tro0 more
than with $t,000,�000fnewmnstruc[ion.°
Use Historic Preservation to Further Economic
Development and Sustainability
His[oric preservation is one of the most important economic development iooLs
avaElable to a cnmmunity. Seventy-five percent of the top 20 successful (in terms of
xonomic developmenU cides in the nation are also among the top crties with ihe
greates[ amouM of historic rehabilitation activity. "' Historic preservation benefits a
ciry by sVengthening its sense of place and ideniity, as well as providing ameniroes
and contributing to the long-tem sustainability of irreplaceable resources. As an
economic developmenttoo3, preservation creates jobs, stimulates tnurism, inaeases
property values, provides excelleni incubator space for 6usinesses, and provides an
amenity that helps cities compete wrth the suburbs. The resuh is a stronger, more
economicatlysustainable dty Whle Saint Paul has successfully used historic pres-
ervation to transform and revKalize Lowertown, many buildings in downtown, and
numerous successful neighborhood commercial nodes, Saint Paul has yetto take
full advantage of the emnomic development potential of historic preservation.
One of the keys to using historic preservation as an economic development tool
is the designation of historic resources. Designation not only opens the door to a
number of i�centives, such as historic preservation tax credits, but it also provides
a measure of neighborhood and community stability. When a historic resource
is designated as a heritage preservation site, the associated regulation provides
some prediciability thai improvements wiif maiMain and improve ihe integrity
(and hence market value) of the site.
In a built-up city like Saint Pau�, where major new redevelopmeni projects may
require the demolition of existing buildings, historic preservation is a greener and
more sustainable alTernative. Retaining historic buildings saves precious natural
resources and energy, avoids filling landfills with used materials, and makes use
of historic materials that may be of higher quaYity than what is availabfe today.
Moreover, historic buildings that have been well-maintained are adaptable
to a range of new uses. Another added benefit is that most new buildings are
designed to be thermally sealed, and rely on mechanical systems for heating,
cooling, and lighting; historic buildings often have large windows and other fea-
tures that provide natural light and venti�ation.
Saint Paul is fortunate that its bui{ding stock has genera4ly not been destroyed
by benign neglect or purposeful demolition, and has benefitted kom foresight
by city ieaders and citizensThe ciry has also not been severely affected by
i�appropriate developmentThe benefit ofthis condition is that many historic
resources have retained their historic character and now create an opportunRy for
a tremendous amount of investment that will further strengthen the economic
vitality of Saint Paul.ihe National Trust for Historic Preservation recognized this
in 2002, when it named Saint Paul as a demonstration site for its Preservation
Development fnitiative (PDq prograrn. A multi-disciplinary team of Gty staff and
representatives from Historic Saint Pau�, community development organizations,
and pciwte sec[or groups and individuals Qrepared a report, which notes_
�iii ftypkema,po�wvanD.TheE<awmi6ofHisroricReServation:0.Commutiryt�dersGUideNatiaiatTnx[fw
His[oric Pre�n2tion, Washmgron,�L.1994.
oc Ryplcema,DOnovan0.ihe&nnornusofHi4aricPreservaEOn:ACornm�nityLea[IersGUide.NationalTrustfor
Historic Preservatiory Wafiirgton. �.C1994.
16 Saint Paul
I'Xi- iql
"Despitean appreciation for historic preservation and obvious examples of
its xonomic va�ue, historic structures and neighborhoods are too often sacri-
ficed in anticipation of greater economic benefitThat willingness to saaifice
the long-term value ofstable, attractive and affordable historic neighbor-
hoods and distinctive landmarks or vistas for short-term'benefiY undermines
Saint Paul's long-term potentiaLThe observations and recommendations
contained in the assessment report intend to reorient the City of SaiM Paul,
private developers and funders and communitydevelopment organizations
to the greater economic opportunities that histonc preservation and a con-
servation approach can provide°
Historic use variances can be
granted bythe HPC to allow a
fi�stori<resourteto be used for a
purpose that wouid otherurise �ot
be permitted bytheZoning Code,
in orderto maintain the economic
viabiliry ofthe historic resource
The t2nsfer of development rights
involves conveNng the undevel-
oped floor area from ane zoning
lotthat contains a historic resource
to another zoning lot that dces
notJran4er development rights
eliminatethe pressure to remove
or significantlyaher a historic
resource in order to realize thefull
em�omic potemial ofthe sRe, since
the"unused'economic pocentiat is
tranSFerred to another site that can
actept it.
Policies in this section build upon the recommendations in the PDI reportThey
focus on ways to bring investment m the city, creaYe jobs, increase properry
values, make Saint Paul a sustainable city, and make it more beneficial to integ2te
historic preservation into redevelopment projects.
Economic viability of historic resources
5.1. Develop a process and set of criteria to assess the economic viability of
historic resources.
One of the most daunting chaHenges fadng historic resources is knowing when
and how to best change orintensify their use. Given the role they ptay in aeat-
ing a sense of place artd enhancing quality oflife, itis important that historic
resources be redeve%ped in a way thata/lows them io mntirtue these fiinctions
while also serving as a mta(ystforaddifional investment in the surrounding area.
The CityHistoric Preservation Team shoald playa rale in this process.
52 Developeriteriatoobjxtivelydeterminewheneconomicincentivesshould
be used for the rehabilitation of historic resources.
53. Realize the full economic potential of key historic resources.
a. RehabilitatekeyhistoricresourcestoserveasacaWlystforadditional
development in adjacent areas.
b. integrate historic properties into new development to strengthen sense of
place and provide a Iink between old and new.
c Develop educationaUtraining materials to inform developers of economic
development opportunities that are based on historic preservation.
5.4 Invest in historic resources along transit corridors as part of a larger
neighborhood revitalization and reinvestmerrt strategy.
land use and regulatory incentives
S5. Develop land useand regulatoryincentives to make iteasierand more
feasible to rehabilitate resources designated as heritage preservation sites (See
Stf3tE(Jy 1).
a. ConsistentwiththeauthoritygrantedbyStatestatute,developan
ordinance that allows fiistoric use variances in order to alleviate undue
hardships created by the historic character of designated properties.
b. 6cplore the use ofiransfer development rights to alleviate development
pressure on hi5toric resources.
5.6. Utiiize Chapter t317 of the Minnesota State Building Code to review alterations
aad changes in use to historic buildings tisted on the NRHP or designated as City
heritage preservation sites.
7 7 Hisioric Preservation Plan
tr-���
Financial incentives
5.7. PartnerwithHistoric5aintPaultoincreaseitscapacitytoimprovehistoric
resources through its revolving loan program. Loans could be available for
such adivities as reuse studies, intervenuon for threatened historic resources,
SincetheFederdlHis[oricPreservation emergencymaintenanceandstabil¢ation,andmaintenance/rehabilitationfor
Tax Incenmies Program was esbbGshed
in7576.morett,an53obi14onha:6�n ���^+'to-moderateincomehomeownersandownersofsmallbusinesses.
inves[ed in his[oric reha6limtion projeC[s
uv�g�heseraxaedicsinadd�oon,more 5.8. ExploretheestablishmentofaCityhistoritpreservationfundtoaddress
thaohatfofues�cesmtheU�rcedsrates unanticipatedneedsforhistoricresources.Suchafundcouldprovideseedmoney
�ow offer h�sm�� pre:e�on �cuedrzs for a project, temporarylemergency repairs to hiswric resources, signage or
uwthaveledmsg��ontinvemnencin �ucationprograms,orotherenhancementsthathavenootherfundingsource.
histwic preservatlon projec[s and tumed
manyoth�se ecor�o��oltytnf�ble 5.9. Actively promote the use of fedewl hismric preservation tax credits for the
prq�cts��cowccesstulprojecu. rehabilitationofincome-producingpropertieslistedonordeterminedeligiblefor
listing on the NRHR (See Appe�dixl}.
a. List historically significant commercial and historicdistricts on the NRHP,
so properties in these districtscan take advantage of Eederat historic
preservation px credits_
5.70.Encourage the use of Federal SVew Markettax credits in combination witfi
historic preservation tax credits to increase investment in commercial projects in
historic resources in low-income areas (See Appendix 7).
571. Use historic tax credits to encourage affordable housing.
Given the large size ofmany historichouses and design ofmanyhisYOric
warehottse and mmmercial buildings, historiuesources are oRen good
candidates far conversion to housing. The use ofaffardab(e housing taxcreQiYS,
eitheialone a' with historic preservation tax credits when feasiblG greatly
improves ihe economic viabiliry ofmany historit resources.
5.72. Work with other Minnesota cities to seek State legislation to creaCe a
siate-wide historic preservation tax credit for properties listed on the NRHP or
designated as City heritage preservation sites.
5.73. Partner with the Preservation Alliance of Minnesota to expand its fa4ade
easement program in Saint Paul.
5.14. Pursue the ability to tax designated properties based on their curreni use
rather than their "highest and besi" use.
5.15. E�cplore the development of a tiry propertytax abatement program to
enmurage the rehabilitation of historic resources designated as City heriWge
preservation sites.
7 S Saint Paul Comprehensive Plan
Preserve Areas with Unique ArchRectural, Urban and Spatial
Characteristics that Enhance Yne Charader of the Bui1t Ernironment
Onty a portion of SainT Paul is histori�lly significarrt and worthy of the Ievel of
protection afforded by local designation. However, Saint Paul's ttaditional urban
fabric—iu streeu, density, placement of houses on residenval Iots, development
afong transit corridoss, tand use pattems (such as smaN mmmercial nodes on
the edges of neighborhoods), architectural mntinuity and walkability—uniquety
defines the city and The quality of the urban experience in Saint Paul. Moreover,
these features svengthen the social fabric of the city and itz neighborhoods by
creavng an emironment where residents can inreract
Preservation of important broad pattems and features of ihe city requires a
different approach than traditional historic preservation practices.The following
policies address the preservaTion of Saint Paul's unique, historic urban form and
character in areas not meeting the criteria for lo�al designation.
Neighborhood character
6.7. Determine the character-defining features of each neighborhood that should
be preserved; incorporate these features into area plans and master plans for new
development.
6.2 Increase community awareness about the distinctive features and
characteristics of Saint Paul's neighborhoods.
Traditional urban fabric and features
63. 6cplore the creation of neighborhood conservation districts.
!n its b�oadestinterpretatian, mnservation distrid planning speaks to the idea that
the total environment-bui)tand nqturat-is worthyof understanding and proteo-
Yion.ln u�ban settings, conservation districts usual)yrefer to ffie delineation ofan
area with adistindiveappearancG ameniry,landscape, architectureqnd/orhistory
thatdoes not easily frt into standard histodcdistrictframewo�ks. Neighborhood
tonservation disbicts nre a tool to recognize and preserve the unique features of
an area that while they defrne the area's overalt chamder, maynotrise to the leve(
ofsignifrcance required for forma! designation. Features and characteristics may
indude the size, scale, archReduml character and materiai found on buildrngr,
the rhythm attd spadng ofsfructurer, geneml visualcharader; and infrastructure.
!n conservation districts, developmenistandards are rypicalJy lesa strinqeni thaa
the design guidetines for histo�ic disYricts, and they are cusYOmized Yo p�oYect ihe
unique charaderistics ofa particuta� neighborhood.
�A.. �k R �e+��II�3'��R� B � T• � �
�
� � �.. ��
Fortn-based coding is a tooi to
regulate developmentto achieve
a specific ur6an fortn. Form-based
codes address the relationship
hetween bu�7ding faodes and the
pubiic realm, the form and mass of
6uildings in relation to one another,
and the sde and types of rtree[s
and Wockt Porm-based codes aeaTe
a prediccable public realm primarily
by controlling building fnrm, whh
a lesserfocus on land useThey
typimlly conWin a regulaling plan
(showing the lorations where build-
fng form siandards app�y), pu6lic
space standards (for such elemenu
as sidewalks, travel lanes, orrmeet
parking,meetveesand street
furniture) and 6uilding foRn 5[am
dards (control�ing the configuratlon,
features and (unc[ions of buildings
that define and shape the pubBc
realm). Form-based codes sometimes
also indude �ndards relati� m
architec[ure, landsoping, signage
and enviwnmental featurez
_ D'i-1 9�
6.4. Update the Zo�ing Code to strengthen the traditional character of the ciTy.
a_ �plore incorporating form-based coding into the Zoni�g Code to
encourage the protection and enhancement of traditional neighborhood
characier.
6S. Encourage City#unded projects to protec[ and enhance those neighbor-
hood physical features that define an area's visual character and urban form.
�sual chaeacter
6.6. pssist neighborhoods in addressing design issues related to the retention
and preservation of neighborfiood cfiaracter.
a. Partner with appropriateorganizations to focus on educating the
public on the significance of specific features and characteristics of a
neighborhood, and how to protect these features through appropriate
maintenance and sympathetic alterations.
b. Determine where gaps exist in pianning and design expertise, and foster
the development of new organizations and toolsto address these gaps.
6.7. Partner with organizations That support preservation and redevelopment
efforts in neighborhood commercial distrids and along commerciai corridors.
Because SafirPau!'s urban form was oeated largety by rhe location ofsheetcar
/ines along mmmerdol coiridors, the preservation ofcommercialcorridors is
particularly important Yo preserving the overatl character of the ciry. ln addition,
neighbarhaod commercial districts are a key feature of5aint Pau%s traditiona/
wban neighborhoods. fffortsho�ld be made to provide necessary support ro
ihe various organizations working to retain and enhance commercial districts
and mrridon as d�ning elements of the urban fqb�ic.
20 Saint Paul Comprehensive Pian
���
Provide Opportunities for Education and Outreach
Historit resources play an impartanc ro4e in bringing meaning ta a place and
connecting peopie to where ihey Iive Public outreach and education are instru-
merrcal m raising awareness about historic preservaaon and its benefiu to the
Ciry; iu residents and developers. Utilmng historic resources m corney the history
of Saint Paul to residents and visitors will mnnect people to Saint Paul and make
ii more desirable. Education is equalty imporCant when ii mmes to understanding
the goals and processes of his[oric preservation.
The HPC already offers a number of programs to educate the public about
historic preservatioa It has installed hisionc dstrict identificaiion signs around
designated his[oric districts.The HPt co-sponsors the Mnual Saint Paul Heritage
PreservaYion Awards with the Amerian Inrtitute of Architects and oversaw the
writing ofSL Paui'sArchitecture: A History(Universiry of Minnesota Press, 2006),
by Jeffrey A Hess and Paul CJifford Larson. These efforts, however, are not enough.
Education efforts must be mare broad in smpe. Muhipfe approaches must be
developed to meet the demands ofvarious audiences, ranging from residents
who want to learn more about where they live, to tourists who want to experience
historic places and sites, to developers who want to know the requirements and
procedures for redeveloping historic resources, to City staff who need to make a
variery of decisions that will affect historic resources.
The story of Saint Paul
7.1. Develop programs to educate the pubiic about the history of the city.
a. Partner with organizations, inciuding the Minnesota Historical Society,
Ramsey County Historical Society, Historic Saint Paul, Preservation
Afliance of MinnesoYa, Mississippi Idational River and Recreation Area and
district councils, to offer guided tours and lectures on the history of Saint
Paul.
b. Develop and partner with organizations to create seif-guided walking tour
brochures for downtown and designated historic districts.
c. Add information about neighborhood hisiories and hisioric resources to
the HPC website that enables residents and tourists to learn about Saint
Paul and devefop customized, seif-guided tours. AddiCronal information
may indude an interactive map, designation studies, NRHP nominations,
inventory forms, and context studies.
d. Install inierpretative panels as partofCity-funded capitaf and
development projects that include historic sites, or are the site of
significant historic events.
e. Collaborate with SaiM Paul schools to develop education curciculums
that teach the history of Saint Paul and heip students understand the
importance of historic preservation.
f. Organize a series of educational forums to inform the general public about
existing designated sites and districts,and new context studies.
7.2. Identity and mark significant historic resources.
a. Continue to install historic district identification markers as new historic
districts are established
b. Provide HPC plaques to individual designated properties.
21 Historic Preservation Pian
f�r-I4(�
c InstallhistoricmarkersatsitessignificanttothehistoryofSaintPaul,the
State of Minnesota and the United States.
The importance of preservation
73. EducatethepublicabouCtheimportanteofdesignating,preservingand
protec[ing historic resources
a Continue to prepare an annual report, as outlined in the Certified Lo�I
Government agreemeni, to document the his[oric preservation accom-
plishments of the City and the HPC (See Strategy 1 and Appendix A).
b. Continuetosponsortheannual5aintPaulHeritagePreservationAwards.
c Partner wiih other organizations, such as Historic Saint Paul and dis-
trict counciis, to offer education sessions on hiscoric preservation in
neighborhoods.
d. Educate property owners on appropriate and affordable methods to
maintain historic properties by offering technial information on the HPC
website and through more formal educational workshops.
a �evelop promotional materia(s on incentives for historic preservation in
Saint Paul. information should include the purpose of the program, fund-
ing requirements, limitations, and appiication processes.This information
should also be added to the HPC and PED websites, and made available
through City departments and district councils.
7.4. Host an annual forum for real esiate agents so they can learn how to provide
potential buyers of hirtoric rewurces with accurate information on the property
and any potential legal requirements associated with the historic status ofihe
property.
7.5. EducaYe Ciry officials and staff about historic preservation.
Efforts to hain Citystaffshould be coordinated by the City Nistoric
Preservation Officer, wlth the assistance of ihe CityHistoricPreservation Team.
Tiaining mayindude the deve%pmentof technical manuais, lectures and
attendance at conferences.
a. Educate key Ciry sWff about preservation goals and iegislative
requirements (See Strategy 2).
b. Educate key Ciry maintenance and construction staff on proper techniques
w maintain and preserve historic resources.
t Educate the HPC about Rs roles, responsibilRies and processes.
Upon appointment to the HPC, new commissioners should be rrained on the
(egat requirements, ro/es and responsibilities of the HPC. AshoRrefresher
course should 6e held each yearand attended by alt mmmissionen.
Ow�er education
7.6. Improve the process to notify all property owners when their property is being
considered for designation, is initially designated and/or whenever a designated
property changes ownership_The notification should include information on what
it means for a property to be designated for heritage preservation. Currently, the
Tmth-im5ale of Housing Program requires that buyers of one- and two-family
residences be notified ifthe property theyare purchasing is designated_An
additional program should be developed to inform ali owners and buyers if the
property is historically designated.
22 Saint Paul Comprehensive Plan
D`�-�R%
7.7. EducatepropertyownersanddevelopersaboutC'rtygoalsandreview
processes far his[oric preservation.
a. Enhance materials outlining City review and permitting processes for
historic resources.
b. Create educational materials for developers on the benefits of compatible
design and how to design infill development that is compatible with the
character of a historic dimict
7.8. MakeCityhistoricpreservationgoals,regulations,andguide�inesavailabie
through the HPC and PEQ websites, as well as through district councils.
23 Historic Preservation Plan
♦"
�
Implementation Resources dedicated to the Cit�s historic preservation program
overthe past several years have been inadequate. Recognizing
that funding for such programs will continue to be limited, the
City must be strategic in prioritizing the policies recommended
bythis Chapter. While ail ofithe policies are necessaryto maintain
an adive and effective preservation program, implementation
of the foliowing six palicies will set the stage for subsequent City
preservation efforts.
1. Revise and strengthen the historic preservation ordinance,
and adopt a broadened declaration of public policy and purpose
statement as part of the Administrative Code. The ordinance
establishes the City's authority to carry out preservation activities.
Several changes are recommended to make it consistent with
current preservation pradice, and to better integrate preserva-
tion with community vitality and quality of life. (Po{icies 1.1 and
1.2)
2. Create a City Historic Preservation Team of representatives
from departments whose work affects and is impacted by preser-
vation activities; develop a preservation policy for each af these
departments. This is a good first step in ensuring that preserva-
tion is given equal weight to broader pianning and public policy
decisions. It will also lay the groundwork for better integration
beiween preservation and pianning. (Policies 2.1 and 2.4}
3_ Survey. �thout a commitment to an on-going survey pro-
gram, the City will continue to lose impartant historic resources,
and decisions will continue to be made without clear and accu-
rate information. (Policies 3.1 through 3.4}
4_ Designate_ The ultimate protection from complete or partiai
loss or alteration of historic resources will not take place until the
City Councii designates a site or district for heritage preservation.
Designatian also heips witn management of historic resources.
(Policies 3.11 and 3.12)
5. Develop an annual work plan for the Heritage Preservation
Commission that prioritizes survey and designation work and
takes into consideration the priorities outlined in Policy 3J. The
work plan should include ways to fund and staff the survey work.
6_ Realize the fuil economic potential of key histaric properties
in Saint Paui. Key properties can serve as a catalyst for additional
development in adjacent areas. They can range from a large in-
dustrial sites, such as the breweries or 3M, to a small corner com-
merciat buitding at an old streetcar intersection. (Policy 5.3)
24 Saint Paul Comprehensive Plan
o�-�G�
Credits
Mayor thris Coleman
Gty Courxil
Melvin Carter III, Ward 7
Dave Thune, Ward 2
Pai Harris, Ward 3
Russ Stark Ward 4
Lee Helgen, Ward 5
Dan Bostrom, Ward 6
Kathy lantry, Ward 7
Historic PreservationTask Force
Michael Margulies, Co{hair, Planning Commission
bhn Manning, Co{hair, Heritage PreservaUOn Commission
John Anfinwn
Roger Brooks, former HPC chair
CliffCarey
Richard Dana
John Emgo
Robert Frame, former HPC chair
Tom Goodrum
Tim Griffin
Historic Preservation CoreTeam
Bruce Beese, Public Works
1oe EhdKh, Departmentof
Safetyand Inspeaions
Don Ganje, Parks and Rxreatbn
Nancy Homans, Mayofs Office
Saint Paul Planning Commission
Brian Alton, Chair
Kathi Donnel4y-Cohen
Jon Commers
Marilyn Porter
Eduardo Barrera
James Bellus
Bob Gudahy (uniil August 2008)
Carole Faricy
Erik Goodlow
Sceven Gordon
GeorgeJohnson
Jill Henrickson
V rginia Housum
Pai Igo, Saint Paul HPC
Tom Kromroy
Angela Stehr
Paul Larson, Saint Paul HPC
Bii�ieYoung
Anne Hunt, Mayor's Office
Wendy Lane, Dept of Safery and inspections
Steve Magner, Depart. of Safety and inspections
Diane Nordquist, Planning & Economic Deveiopment
Peter Warner, C'rty Attorney's Office
Richard Kramer
Yu�-Ka�g Lu
Michael Margulies
Gladys Morton
Dennis Rosemark (until August 20�)
Gaius Nelson
Kris[ina Smitten
Bob Spauiding
Daniel Ward II
Barbara A. Wend
Heritage Preservation Commissian
Paul Wrson,Chair
John Manning, Vice Chair
Lee Meyer, AIA
SteveTrimble
Susan Bartlett Foote
Carol Carey
Dick Faricy, FAIA
Staff
Cecile Bedor, Directoy PED
Bo6 Kessler, Director, D51
Report Production
Joan Chinn
April Haas
Patlgo
Carole Kralicek
Mark Shepherd Thomas
ShariTaylor Wilsey
Diaoe Trout-Oertel, AIA
WcyThompson, PED
Amy Spong, DSI, Herrtage Preservation
25 Historic Preservation Plan
(79 9i�
Saint Paul Comprehensive Plan
Appendix 1: Historic Preservation, Background Data
SAINT PAUL
COMPREHENSIVE PLAN
APPENDIX 1
HISTORIC PRESERVATION
BACKGROUND DATA
D t-I Qlo
Saint Paul Comprehensive Plan
Appendix 1: Historic Preservation, Background Data
PREPARED FOR:
CITY OF SAINT PAUL
BY:
THE 106 GROUP LTD.
REPORT AUTHOR:
GREG MATHIS� M.C.R
JULY 2008
o�� i�
Saint Paul Comprehensive Plan
Appendix 1: Historic Preservation, Background Data
iii
TABLE OF CONTENTS
TABLEOF CONTENTS ......................................................................................................................tu
LISTOF FIGURES ........................................................................................................................... iv
LISTOF TABLES ............................................................................................................................. rv
INTRODUCilON ...................................................................................................................................1
A LEGAL BASIS F9R PRESERVATION ...........................................................................................................2
FederalLaws ...............................................................................................................................2
StateLaws ..................................................................................................................................2
SaintPau/ ................................................................................................................................... 4
AN INTRODUCTION TO PRESERVATION PLANNING ..........................................................................................5
Standards fo� Greservation Planning ..............................................................................................5
Standard 1.• Estab/ish Histoiic Contexts .........................................................................................5
Standard 2.• De�e%p Goa/s and P�ionties fo� the Identificalion, Eua/uation, Registration, and
Treatment of Histonc Properties ................................................................................................... 6
Standaid 3: The Resu/ts of Preservation P/anning Are Made Auadable for Integ�ation Into Broader
PlanningP�ocesses ...................................................................................................................... 6
Secretary of the Interiois Guidelines for Preservation Planning ........................................................ 6
Managing the Planning Process .....................................................................................................6
De✓e/oping Histoiic Contexts ........................................................................................................8
Deve%ping Goals for a Historic Context .......................................................................................11
Integrabng Indiuidual Historic Conte�ts - Creating the Preservation Plan ........................................12
Integ�aUon with Management F�amewo�ks ..................................................................................12
HISTORIC RESOURCES IN SAINT PAUL ...................................................................................................... 13
Historically Designated Properties in Saint Paul ............................................................................13
Nahona! Historic Landmarks .......................................................................................................13
National Register ofHisto�ic Places .............................................................................................13
State Historic Oist�icts and State Register of Histo�ic Places ...........................................................13
Local Landmark Desrgnation .......................................................................................................13
In✓entoiied P�operties and P�evious Survey Efforts .......................................................................13
FutureSurvey EtfarLs .................................................................................................................18
FUNDING FOR HISTORIC PRESERVATION ................................................................................................... 1J
FederalProg�ams ......................................................................................................................19
State of Minnesota P�ograms ...................................................................................................... 22
D9-I ��
Saint Paul Comprehensive Plan
Appendix i: Historic Preservation, Background Data
iv
LIST OF FIGURES
FIGURE A. HISiORICALLY DESIGNA7ED PROPERTIES IN SAIM PAUL ...................................................................... 14
LIST OF TABLES
TABLE A. HISrORICALLY DESIGNATED PROPERTIES IN SAINT PAUL ...................................................................... LS
� 19�
Saint Paul Comprehensive Pian
Appendix 1: Historic Preservation, Background Data
1
Introduction
This Appendix presents background and baseline da�. The first secUon describes the Iegal basis for preservation as
defined by key Federal, State, and local enabling legislation. The nert section provides an introduction to historic
preservation planning. The following section provides a summary of historically-designated properties in Saint Paul
and previous survey efforts. The last section identifles potential funding wurces avaiiable to govemment agencies
and the private sector to accomplish the City's goals for historic preservation.
���u�
Saint Paul Comprehensive Plan
Appendix i: Historic Preservation, Background Data
2
A Legal Basis for Preservation
Federaf Laws
7he Nationa/ Historic Preservation Act of 1966
In 1966, the United States Congress approved and President Johnson signed into law the National Historic
Preservation Act (NHPA). Since amended, the NHPA is the Federal enabling legislation for the protection of cultural
resources in the United States. Among its accomplishments, it established the Nat�onal Register of Historic Places
(NRHP), the Nation's officiallist of cultural resources worthy of preservation. It created a State Historic Preservation
Office (SHPO) for each state and Tribal Historic Preservation Offices (THPOs) for federally recognized tribes. Sedion
106 of the NHPA requires Federal agencies to consider the effect of their aRivities on historic propeKies and to afford
the Advisory Council on Historic Preservation (ACHP) the opportunity to comment on those activities.
Other Federa/ Laws
There are a number of additlonal Federal laws that impact preservation efforts in the United States. These laws
include the National Environmental Policy Act of 1969 (NEPA), as amended; the Arthaeological and Historic
Preservation Act of 1974, as amended; the American Indian Religious Freedom Act of 1975, as amended; the
Archaeological Resources Protection Act of 1979, as amended; the Abandoned Shipwrecks Act of 1987; and the
Native American Graves Protection and Repatriation Act of 1990, as amended.
State Laws
Several State statutes address cultural resources in Minnesota. Many of these laws are found in Minnesota Statutes,
Chapter 138, including the Minnesota Field Archaeology Ad, the Minnesota Historic Sites Act and the Minnesota
Historic Districts Act. Other State laws relating to preservation and cultural resources include: §471.193 Municipal
Heritage Preservation, the Minnesota Private Cemeteries Act and the Minnesota Environmental Rights Act (MERA).
The Environmental Qualiry Board alw maintains a number of rules pertaining to the protection of cultural resources.
Minnesota Statutes, Chapter 138: Histo�ica! Societies, Sites, A�chives, Archaeology, FolkJife
Chapter 138 designates the director of the Minnesota Historical Society (MHS) as the State Historic Preservation
Officer and places responsibility for Minnesota's historic preservation program with the MHS. Other sections pertain
to historic and archaeological resources.
Minnesota Field Archaeology Ad
The Minnesota Field Archaeology Ad (§13831-138.42) establishes the offce of the State
Archaeologist; requires licenses to engage in archaeology on non-Federal public land; establishes
ownership, custody, and use of ob7ects and data recovered dunng survey; and requires State
agenaes to submit development plans to the State Archaeologist, MHS and the Minnesota Indian
Affairs Council for review when there are known or suspec[ed archaeological sites in the area.
U�l�t l�
Saint Paul Comprehensive Plan
Appendix 1: Historic Preservation, Background Data
3
Minnesob Nistonc SitesAd
The Minnesom Historic Sites Ad (§138.661-135.669) establishes the State Historic Sites Network
(Network) and the State Register of Historic Places (SRHP), and requires that State agencies
consuit with MHS before undertaking or licensing projects that may affect propertles on the
Network, the SRHP or the NRHP. In order to be listed on the SWte Historic Sites Network, a
property must be a significant State resource that the MHS is preserving, developing,
interpreting and maintaining for public use, benefit and access during open hours. For a
property to be listed on the SRHP, it must possess historical, architectural, archaeological and
aesthetic values that are of paramount importance in the deve�opment of the state and be a
site�that is not operated by the MHS for historical, interpretive or public use and access
purposes.
Minnewta Histonc Oistricts Ad
The Minnesota Historic Districts Act (§138.71-138.75) designates certain historic districts
throughout the state and includes enabiing legislation that allows local governing bodies to create
commissions to maintain architectural design review control over these areas.
Other Sedions Re%uarlt to Saint Paul
There are two additional sections in Chapter 138 that are worth noting. The first, gf38.052,
authorizes counties, in this instance Ramsey County, to appropriate County funds or funds from a
speaal counry-wide tax levy, to be allocated to the MHS-recognized County historical society for
the purpose of promoting historical work in the counry. Allowable histoncal work mcludes the
collection, preservat{on and publication of historical material, and the dissemination of historical
information about the county. The other section, §138.586, authorizes County boards to acquire
and maintain tracts of land within the county that are designated as having historical or
archaeological significance, and whose acquisition and maintenance are approved by the MHS, and
to aid in the construction of markers on such lands.
Minnesota Statute 307.08: Minnesota Piivate Cemeteries Act
The intent and xope of this act is to give all human burials and human skeletal remains equal treatment and to
respect their human dignity irrespective of their ethnic origins, cultural backgrounds or religious a�Iiations. The
provisions of this section protect all human burials or human skeletal remains found on or in public or private lands or
waters i� Minnesota and makes it a felony [o intentionally, willfully or knowmgly destroy, mutiWte, injure, disturb or
remove human skeletal remains or human burial grounds.
Minnesota Statutes, Chapter ISB: CapitolArea Architectural and P/anning Board
This chapter established the Caqitol Area Architectural and Planning Board (CAAPB) to maintain design review
authority over a large area around the State Capitol. The Board is charged with preserving and enhanang the
architedural integrity of the Capitol, its grounds and the surrounding area; proteding and enhancing open spaces
within the Capitol Area; developing proper approaches to the Capitol Area; and establishing a framework for growth
of the Capitol buildings to keep them within the spirit of the original design.
Minnesota Statute 471.193: Municipaf Neritage Preservatron
This statute, entitled °Municipal Heritage Preservation;' enables local units of government to establish heritage
preservation commissions. Since most decisions about land use and buildings are made by local govemments, this
piece of legislation is one of the most important State laws, as it provides the most comprehensive protection of
historic properties.
D� �1 �
Saint Paul Comprehensive Plan
Appendix 1: Historic Preservation, Background DaW
4
Minnesota SYatute 1668.02: Minnesola Environmental Rights Ad
This act declares that each person is entitled by right to the protection, preservation and enhancement of air, water,
land and other natural resources located within the state, and that each person has the responsibility to contribute to
the protection, preservation and enhancement thereof. Historic resources are included in the definition of natural
resources.
The goal of this law is to create and maintain conditions under which human beings and nature can exist in
productive harmony, in order that present and future generations may enjoy clean air and water, productive land and
other natural resources by providing adequate civil remedy to protect these resources from pollution, impairment or
destruction. To accomplish this feat, fhe Act gives residentr and enti[ies of Minnesota the right to a civil suit in order
to protect the air, watec, land and other natural resources of the state, including historic resources.
Saint Paul
Saint Pau/ Code ofOrdinances, Chapter 73. Heritage Preservation Commission
This ordinance, enaded in 1976, codifed a public purpose and policy for heriWge preservation in the city.
Specifically, it established the Heritage Preservation Commission (HPC), defined the powers and duties of the
Commission, authorized the Gty to designate heritage preservation sites, and outlined procedures for designation. It
also authorized the HPC to review permits of locatly-designated heritage sites, established fines for violations of the
ordinance, and specified repositories for documents and recording heritage preservation sites.
Saint Paul Code ofO�dinances, Chapter 74. He�itage Preservation Districts and Programs
Chapter 74 is a companion ordinance to Chapter 73. Chapter 74 codlfies City of Saint Paul designated historic
districts, including a legal description of each district and design guidelines that are used to review alterations to
property located with the designated historic districts.
Cxl l 9�
Saint Paul Comprehensive Plan
Appendix 1: Historic Preservation, Background Data
5
An introduction to Preservation Planning
Currently, the only formal relationship between preservation and planning in the City of Saint Paul is a requirement in
the heritage preservation ordinance that the Departrnent of Planning and Economic Development notify the HPC of
any plans with a preservation component or impact, and consider any comments received from the HPC. Beyond this
requirement, which is only occasionally met, the City has no established policies and procedures for preservation
planning. While the heritage prese�vation ordinance outlines some basic regulatory responsibilitles and procedures,
there is no policy in place to guide the City as it seeks to comply with Federal and SYate regulations governing the
preservation and protection of historic resources. This lack of formally-adopted policy has hindered the ability of City
departments to plan for historic resources. Other governmental agencies can serve as models and provide guidance
as the City develops its own policies and procedures. The National Park Service (NPS), our nation's steward of
historic and cultural resources, has developed well-def ned goals, policies and procedures for historic preservation
planning that can serve as a model for Saint Paul. The following section is an overview of how the National Park
Service suggests developing and implementing historic preservation plannin9.
The NPS has identified the following goals for preservation planning:
• integrate historic preservation into the broader public policy, land use planning. and decision-making
processes;
• increase the opportunities for broad-based and diverse public partiapation in planning and historic
preservation activities;
• expand staff and policy makers' knowledge and skills in preservation planning; and
• provide maximum flexibility in program administration to enable a community to implement preservation
planning programs that meet its specific needs and concerns.
Standards for Preservation Planning
As articulated by the NPS, historic preservation plannin9 is based on the understanding that cultural resources are
irreplaceable. Once a cultural resource is lost, it cannot be replaced. While some lost historic resources wn be
reconstructed, they do not convey the same sense of history and meanin9 as the original artifact. The goal of
preservation planning is to preserve cultural resources before they are lost and to prevent harmful effects to these
properties.
Preservation planning is a process that organizes preservation achvities in a logical sequence. The steps include the
identification, evaluation, registratlon and treatment of cultural resources. While a rational order has been defined,
in order for preservation planning to be successful and have positive effeds, the planning and preservation process
must begin before all his[oric properties have been identified. In addition, preservation planning should have a
strong public participation component that allows for diverse opinions to be expressed and for the building of
consensus and buy-in for historic preservation.
Preservation planning can occur at several levels or scales: county-wide, in a community, or even for a single site.
Depending on the scale, the planning process will involve different segments of the public and professional
communities, and the resulting plan will vary in detail. For example, a city-wide preservation plan will likely have
more general recommendations than a plan for a specific site.
Standard 1: Establish Historic Conteuts
Before historic properties can be identified and assessed, a framework must be established for their identification.
Decisions about the identification, evaluation, registration and treatment of historic properties are most reliably made
when the relationship of individual properties to other similar properties is understood. Information about historic
properties representing aspects of hisYOry, architedure, archaeology, engineering and culture must be colleded and
organized to defne these relationships. Historic contexts organize information based on a culiural theme and itr
geographical and chronological limits. Historic contexts describe the significant broad patterns of development in an
area that may be represented by historic properties. The development of historic contexts is the foundation for
decisions about [he identification, evaluation, registration and treatment of historic properties.
�-!G�
Saint Paul Comprehensive Plan
Appendix 1: Historic Preservation, Background Data
6
S�ndard 2: Develop Goals and Priorities for the Identification, Evaluat9on, Registration and Treatrnent
of Historic Properties
A series of preservation goals should be systemaUcally developed for each historic context to ensure that the range
of properties representing [he important aspects of each histonc conte� is identified, evaluated and treated.
Priorities must be set for aIl goals idendfied for each historic context. The goals, with assigned priorities established
for each historic context, should then be integrated to produce a comprehensive and consistent set of goals and
priorities for all historic contexts in the geogrephical area of a planning effort, which may range from a specific site to
an entire community.
The goals for each historic context may change as new information becomes available. If this is the case, the overall
set of goals and priorities may need to be altered.
Activities undertaken to meet the identified goals must be designed to deliver a usable product within a reasonable
period of time. Moreover, the scope of activity must be defined so the work can be completed with available
budgeted program resources.
SWndard 3: The Results of Preservation Planning Are Made Available for Integration into Broader
Planning Processes
The preservation of historic resources is one component of the larger planning process. Planning resulYs, including
goals and priorities, information about historic properties and any planning documents, must be transmitted in a
usable form to those responsible for planning activities, including City departments, the Mayor, City Council and
district councils. In order to successfully achieve preservation goals, preservation planning must be integrated into
the planning process and project planning at an early stage. To maintain success throughout the city, the results of
preservation planning must be made readily available to other governmental planning bodies and to private interests
whose actroities affed cuftural resources.
SecreWry of the Interior's Guidelines for Preservation Planning
These guidelines link the Standards for Preservation Planning with more specific guidance and technical informat�on.
They describe one approach to meeting the Standards for Preservation P/anning. Agencies, organizations or
individuals proposing to approach planning differently may wish to review their approaches with their SHPO or the
NPS.
The Guidelines are organized as follows:
• Managing the planning process
• Developing historic conte�Rs
• Developing goa{s for a histoeic conte�
• Integrating individual historic conteafis - creating the Preservation Plan
• Coordinating with management frameworks
• Recommending sources of technical information
Managing the Planning Process
The preservation planning process must include an explicit approach to implementa4on, a provision for review and
revision of all elements, and a mechanism for resolving conflicts wiYhin the overall set of preservation goals and other
land use planning goals. It is recommended that the process and its products be described in public documentr.
Implementing the Process
The pla�ning process is wntinuous. To establish and maintain such a process, however, the process must be divided
in[o manageable segments that can be performed within a defined period, such as a fiscal year or budget cycle. One
�t-!2�
Saint Paul Comprehensive Plan
Appendix 1: Histonc Preservation, Background Data
7
means of achieving this is to define a period of time during which all of the preliminary steps in the planning process
will be completed. These preliminary steps would also include setting a schedule for subsequent activities.
Review and Revision
Planning is a dynamic process. It is �pected that the needs for historic conteats as described in Standard 1 above,
and the goals and priorities that are developed pursuant to SWndard 2, will need to be altered and updated over time
as conditions change, new informat�on becomes available, or planning goals are achieved. The incorporation of new
informaUon is essential to improve the content of the plan, and to keep it up-to-date and useful. It is essential that
new information be reviewed regu�arly and systematically, and the plan revised accordingly.
Public ParlicipaGon
The success of the preservation planning process depends on how well it solicits and integrates the views of various
groups. The planning process is directed first toward resoNing conflicts in goals for historic preservation, and second
toward resolvi�g conFlicts behveen histonc preservation goals and other land use planning goals. Public parGCipation
is integral to this approach and includes at least the following actions:
1. involving historians, architectural historians, archaeologists, historical architects, folklorists and persons from
related disciplines to define, review and revise the historic contexts, goals, and priorities;
2. involving interested i�dividuals, organizations and communities in the identification of the kinds of historic
properties that may exist as well as suitable protective measures;
3. involving prospectrve users of the preservation plan in the defnition of issues, goals and priorities;
4. providing for coordination with other planning efforts at local, state, regional and national levels, as
appropriate; and
5. creating mechanisms for identifying and resolving conflicks about historic preservation issues.
The development of historic conteats, for example, should not be limited to a single discipline and should be based
on the professional input of all disciplines i�volved in preservation. For precontad (NaUVe American) archaeology,
for example, data from fields such as geology, geomorphology and geography may also be needed. The individuals
and organizations to be involved will depend, in part, on those present or interested in the planning area.
Docvments Resulting hom the P/anning Process
In most cases, the planning process produces documerrts that explain how the process works, and discuss the
historic conteats and related goals and priorities. While the process can ope2te in the absence of these documents,
planning documents are important because they are the most effective means of communicating the process and its
recommendations to others. Planning documents also record decisions about cultural resources.
As various parts of the planning process are reviewed and revised to reFlect current information, related documents
must aiso be updated. Planning documents should be created in a form that can be easily revised. It is atso
recommended that format, language and organization of any documents or other materials containing preservation
planning information meet the needs of prospective users.
�
Saint Paul Comprehensive Plan
Appendix l: Historic Preservation, Background Data
8
Developing Historic Contexts
Gene�a/Approach
Available information about historic properties must be divided into manageable units before it can be useful for
planning purposes. Major decisions about identifying, evafuating, registering and treating cultural resources are mosi
reliably made in the conte� of other related propertles.
A historic contea2 groups information abouY related historic properties, based on a theme, geographic limits and
chronological period. A single historic conteat describes one or more aspects of the historic development of an area,
considering history, architecture, archaeology, engineering and culture, and identifies the significant patterns that
individual historic properties represent. An example for Saint Paul is Residential Real Estate Development: 1880-
1950. A set of historic contexts is a comprehensive summary of all aspects of the history of the area. Historic
contexts are the cornerstone of the planning process, with the goal of identifying, evaluating, registering and treating
the full range of properties that represent each historic conte�R.
Identifcation activities should be organized to include properties representing all aspects of the historic conte�2. The
historic context is the framework within which to apply the criteria for evaluation to specific properties or property
types. Decisions about treatment of properties are made with the goal of treating the range of properties in the
context. The use of histonc contexts in organizing ma}or historic preservation adivities enwres that those activ�ties
result in the preservation of the wide variety of properties that represent our history, rather than only a small, biased
sample of properties.
Historic contexts, as theore[ical constructs, are linked to adual historic properties through the concept of properly
types. Property types permit the development of plans for identification, evaluation and treatment, even in the
absence of complete knowledge of individual properties.
Histonc contexts can be developed at a variety of xales appropriate for neighborhood, city, regional and state
planning. Gfven the probability of hisforic contexts overlappmg in a� area, it is important to coordinate the
development and use of historic conte#s at all levels. Generally, the State Historic Preservation O�ce possesses the
most complete body of information about historic properties and, in practice, is m the best position to perform this
function.
The development of historic contexts generally results in documents that describe the hls[oric processes or pattems
that define the context. Each of the conteats selected should be developed to the point of identifying important
property types. The amount of detail included in these summaries will vary depending on the level (local, state,
regional or national) at which the contexts are developed and on their intended uses. For most planning purposes, a
synapsis of the written description of the historic contea�t is su�cient.
Creating a Histoiic Contea2�
Generally, historic contexts should not be constructed so broadly as to include all property types under a single
histonc conteM or so narrowly as to contain onty one properry type per historic conte�. The following procedures
should be followed in creating a historic context.
1. Identify the concept, time period and geographical limitr for the historic context.
Existing information, concepts, theories, models and descriptions should be used as the basis for defining
historic conte�s. Biases in primary and secondary sources should be identified and accounted for when
existing information is used in defining historic contexts.
The identifcation and description of historic conte�hs should incorporate contributions from all disciplines
imolved in historic preservation. The chronological period and geo9raphical area of each historic context
should be defined after the conceptual basis is established. However, there may be exceptions, especially in
defining prehistonc conte�RS where drainage systems or physiographic regions often are outlined first. The
o�i-i��
Saint Paul Comprehensive Plan
Appendix 1: Histonc Presecvation, Background Data
9
geographical boundaries for historic contexts should not be based upon contempo2ry political, project or
other contempo2ry boundaries if those boundaries do not coinade with historical boundaries. For �ample,
boundaries for prehistoric contexts will have little relatiooship to contemporary city, county or state
boundaries.
2. Assemble the existing information about the historic context.
a. Collectinq information: Seve21 kinds of information are needed to construct a preservation plan.
Information about the history of the area encompassed by the historic context must be coilected,
including any information about historic properties that have already been identified. 6cisting survey or
inventory entries are an important source of informatlon about historic properties. Other sources may
include literature on archaeology, history, architecture and the environment; social and environmenWl
impact assessments; ciry, regional and state land use plans; architedural and folk life studies and oral
histories; ethnogrephic research; state historic inventories and registers; technical reports prepared for
Section 106 or other assessments of historic properties; and direct consultation with individuals and
groups.
In addition, organizations and groups that may have important roles in defning historic contexts and
values should be identified. In most cases, a range of knowledgeable professionals drawn from the
preservation, planning and academic communities will be available to assist in defining conteats and in
identifying sources of information. In other cases, however, development of historic contexts may
occur in areas whose history or prehistory has not been extensively studied. In these situations, broad
general historic contexts should be initially identified using available literature and expertise, with the
expectation that the conteMS will be revised and subdivided in the future as primary source research
and field surveys are conducted. It is also important to identify such sources of information as existing
planning data, which are needed to establish goals for identification, evaluation and treatment, and to
identiry factors that will affect attainment of those goals.
The same approach for obtaining information is not necessarily desirable for a�l historic conte�AS.
Information should not be gathered without first considering its relative importance to the historic
contert, the cost and time involved, and the expertise required to obtain it. In many cases, published
sources may be suffiaent for writing initial definitions of historic contexts, while archival research or
fieldwork may be needed for subsequent activities.
b. Assessina information: All information should be reviewed to identify bias in historic perspective,
methodological approach or area of coverage. For example, field surveys for archaeological sites may
have ignored historic archaeological sites, or land use plans may have emphasized only development
goals.
3. Synthesize information.
The information collected and analysis results should be included in a written narrative of the historic
conte�. This narrative provides a detailed synthesis of the data that have been collected and analyzed.
The narrative covers the history of the area from the chosen perspective and identifies important patterns,
events, persons or cultural values. In the process of identifying the lmportant patterns, one should
consider:
• trends in area settlement and development, if relevant;
• aesthetic and artistic values embodied in architecture, construc[ion technology or craftsmanship;
• research values or problems relevant to the historic context, social and physical sciences and
humanities, and cultural interests of local communiLes, and
• intangible cultural values of ethnic groups and American Indian peoples.
�i-i4 �
Saint Paul Comprehensive Plan
Appendix 1: Historic Preservation, Background Data
10
4. Define property types.
A property type is a grouping of individual properties based on shared physical or associative charaderistia.
Property types Iink the ideas incorporated in the theoretical historic context with actual historic properties
that illust2te those ideas. Property types defined for each historic contea�t should be directly related to the
conceptual basis of the historic conte�R. Property types defined for the his[oric context "Earty Agriculture
and River Settlement in Minnesota, 1840-1870" might include farmsteads, building material manufacturing,
overland transportation routes, river transportation, town sites, rural facilities, and colleges and universities.
a. Identify_prooertv Noes: The narrative should disass the kinds of properiies expected within the
geographical limits of the contea�t and group them into those property types most useful in representing
important historic trends. Generally properry types should be defined after the historic conte� has
been defned. Property types in common usage (i.e., farm buildings, sawmills, Flour mills, roads, or
commercial buildings) should not be adopted without verifying their relevance to the historic contexts
being used.
b. Characterize the locational oatterns of orooertv Noes: Generalizations about where particular types of
properties are likely to be found can serve as a guide for identifcation and treatment. Generalizations
about the distribution of archaeological properties are frequenUy used. The distribution of other historic
properties often can be estimated based on recognizable historical, environmental or cultural factors
that determined their location. Locational patterns of property types should be based on models that
have an explicit theoretical or historical basis and can be tested in the field. The model may be the
product of historical research and a�alysis ("Prior to widespread use of steam power, mills were located
on rivers and streams able to produce water power'�, or it may result from sampling techniques.
Often, the results of statistically valid sample surveys can be used to describe the locational patterns of
a representative portion of properties belonging to a particular property type. Other surveys can also
provide a basis for suggesting locational patterns if a diversity of historic properties was recorded and a
variety of environmental zones was inspected. It is likely that the identification of locational patterns
will come from a combi�ation of these sources. Expected or predicted Iocational patterns of property
types should be developed with a provision made for their verification.
c. Charaderize the current condition of orooertv rioes: The expeded condition of proper[y types should
be evaluated to assist in the development of identification, evaluation and treatrnent strategies, and to
help define physical integrity thresholds for various property types. The following should be assessed
for each property type:
1. Inherent characteristics of a property type that either contribute to or detracF from its physical
preservation. For example, a property type commonly constructed of fragile ma[erials is more
likely to be deteriorated than a properly rype constructed of durable materials; structures whose
historic functions or design limits the potential for alcernative uses (water towers) are less likely to
be reused than structures whose design allows a wider variety of other uses (commercial buildings
or warehouses).
2. Aspeds of the social and natural environment that may affect the preservation or visibility of the
property type. For example, community values placed on certain types of properties (e.g.,
churches, historic cemeteries) may result in their maintenance, while the need to reuse valuable
materials may stimulate the disappearance of properties like abandoned houses or barns.
3. It may be most efficient to estimate the condition of property types based on professional
knowledge of existing properties and field test these estimates using a small sample of properties
represenfative of each type.
5. Identify informational needs.
Gri-i �i �
Saint Paul Comprehensive Plan
Appendix l: Historic Preservation, Background Data
11
Filling gaps in informatlon is an important element of the preservation plan designed for each historic
context. Statements of the information needed should be as spec�c as possible, focusing on the
information needed; the historic context and the property rypes to which it applies; and why the informadon
is needed to perform identification, evaluation or treatment activities.
Developing Goals for a Historic Context
Deve%ping Goals
The purpose of establishing preservat�on goals is to set forth a"best case" version of how properGes in the historic
mntext should be identified, evaluated, registered and treated. Preservation goals should be oriented toward the
9reatest possible protection of properties in the historic conte#. They should be based on the principle that
propeities should tre presecved in place if possible, through affirmative treatments like rehabilitation, stabilization or
restoration. Generally, goals will be specific to the historic context and will often be phrased in terms of property
types. Some of these goals will be related to information needs that have been previously identiFied for the historic
conteM. Collectively, the goals for a historic conte�2 should be a coherent statement of program direction covering
all aspects of the conte#.
For each goal, a statement should be prepared identifying:
1. the goal, including the context and properry types to which the goal applies and the geographical area in
which they are located;
2. the activities required to achieve the goal;
3. the most appropriate methods or strategies for carrying out the activities;
4. a schedule within which the activities should be completed; and
5. the amount of effort required to accomplish the goal, as well as a way to evaluate progress toward its
accomplishment.
Setting Pnorities 9or Goafs
Once goals have been developed, they need to be ranked in importance. Ranking invoNes examining each goal in
light of a number of factors:
1. General social, economic, political and environmental conditions and trends affecting (positively and
negatively) the identification, evaluation, registration and treatment of property types in the historic context.
Some property types in the historic context may be more threatened by deterioration, land development
patterns, contemporary use patterns, or public perceptions of their value. Such property types should be
given priority consideration.
2. Ma7or cost or technical considerations affecting the identifcation, evaivation and treatment of property
rypes in the historic context.
The identification or treatment of some property types may be technically possibie but the cost prohibitive;
or techniques may not be currently perfected (for example, the identifcation of submerged sites or objects,
or the evaluation of sites containing materia� for which dating techniques are still being developed).
3. Identification, evaluation, registration and treatment activities previously carried out for property types in
the historic context.
�-�G�
Saint Paul Comprehensive Plan
Appendix 1: Historic Preservation, Background DaW
12
If a number of properties representing one aspect of a historic conteM have been recorded or preserved,
treatment of additional members of that property type may receive lower priority than treatment of a
property type for which no examples have been recorded or preserved. This approach ensures that the
focus of recording or preserving all elements of the historic conteM is retained, rather than limiting activities
to preserving properties representing only some aspects of the context.
The result of considering goals in light of these concerns will be a list of refined goals ranked in order of prioriry.
Integrating Individual Historic Conte� — Creating the Preservation Plan
When historic contexts overlap geographicalty, competing goals and pnonties must be integrated for effective
preservation planning. The ranking of goals for each histonc conte# must be reconciled to ensure that
recommendations for one context do not contradict those for another. This important step results in an overall set of
priorities for several historic contexts and a list of the activities to be performed to achieve the ranked goals. When
applied to a specific geographic area, this is the preservation plan for that area.
It is ecpected that, in many instances, historic conteats will overlap geographically. Overlapping contexks are likely to
occur in two combinations—those that were defined at the same scale (i.e., Neighborhood Commeraal Centers:
1874-1960 and Transportation Corridors: 1857-1950) and at differenY scales (i.e., contea2s that apply to the entire
city and a context that applies to a specifc neighborhood, such as Downtown Saint Paul: 1849-1975). Different
contexts may cover the same property types, although the shared property types will probably have different levels
of importance. Similarly, they may group the same properties into different property types, reFlecting either a
different scale of analysis or a different historical perspective.
As previously noted, many of the goals formulated for a historic conteM will focus on the property types defined for
that conte�. Thus, it is critical that the integration of goals include the explicit consideration of the potential for
shared property-type membership by individual properties. For example, when the same property types are
addressed by two or more contea�ts, reconciling gwis will require weighing the importance assigned to each property
type. The degree to which integration of historic conteMS must involve reconciling proper[y types may be limited by
the coordinated development of historic conte�s used at different levels.
Integration with Management Frameworks
Preservation goals and priorities are adapted to Iand units through integration with other planning concerns. This
integration must involve the resolution of conflicts that arise when competing resources occupy the same land base.
Successful resolution of these conflicts can often be achieved through the judicious combination of inventory,
evaluation and treatment activities. Since h�storic properties are irreplaceable, these activities should be heavily
weighted to discourage the destrudion of signiflcant properties and to be compatible with the primary land use.
C�'i/
Saint Paul Comprehensive Plan
Appendix 1: Historic Preservation, Background Data
13
Historic Resources in Saint Paul
Historically Designated Properties in Saint Paul
In Saint Paul, there are a number of historic designations that can be bestowed on a propeRy, including federal,
smte and local designation. Each designation carries with it different regulations and responsibilities for both the
owner and public agencies. Many of the properties in Saint Paul that are historically designated are subject to one or
more types of designadon.
Nationa/ Histo�ic Landmarks
Designation as a National Historic Landmark (NHL) is the highest honor that can be bestowed on an historic place in
the United States. NHLs are nationally significant historic places designated by the Secretary of the Interior because
they possess exceptional value or quality in illust2ting or interpreting the heritage of the United States. Of the fewer
than 2,500 NHLs in the United States, three are located in Saint Paul (Table A, Figure A).
Nationa/ Registe� ofHisto�ic Places
The NRHP is the nation's official list of cultural resources worthy of preservation. Authorized under the NHPA and
administered by the NPS, fhe NRHP is part of a national program to coordinate and support public and private efforts
to identify, evaluate, and protect our historic and archaeological resources. Properties listed in the NRHP include
districts, sites, buildings, structures and objects that are signifcant in Ameriwn history, architecture, archaeology,
engineering and culture. The first property in Saint Paul to be listed on the NRF1P was the James. 7. Hill House in
1966. In the ensuing four decades, nearly 100 properties, including the three NHLs, and seven historic districts in
Saint Paul have been listed on the NRHP (Table A, Figure A).
State Histo�ic Distrids and State Registe� ofHisto�ic Places
Since the enactment of State Historic District Act in 1971 and the Historic Sites Act in 1993, two historic districts in
Saint Paul have been designated as state historic districts (Table A, Figure A). In addition, three MHS-owned
properties have been added to the State Historic Sites Network, and ten properties have been placed on the SRHP
(Table A, Figure A).
Gocal Landmaik Oesignation
Since the establishment of the HPC in 1976, 73 individual properties and six historic districts have been designated as
heritage preservation sites by the City of Saint Paul (Tab�e A, Figure A). Many of these properties are also listed on
the NRHP.
Inventoried Properties and Previous Survey Efforts
The first comprehensive survey of historic sites in Saint Paul was conducted over a three-year period, 1980-1983.
During this survey, more than 5,400 properties were inventoried in Ramsey County, with the overwhelming majority
located in Saint Paul. Since 1983, a number of project-specific cultural resource surveys have been completed in
Saint Paul. As of December 2007, there were 6,108 properties in Saint Paul in the SHPO architectural data base,
including properties that are already listed on the NRHP. In addition, there are 41 known archaeological sites in
Saint Paul that appear in the SHPO data base for archaeology.
CX�'/9�
Saint Paul Comprehensive Plan
Appendix 1: Histonc Preservation, Background Data
14
FIGURE A. HISTORICALLY DESIGNATED PROPER7IESIN SAINT PAUL
Insert Figure 1
Dg-1qt�
Saint Paul Comprehensive Plan
Appendix 1: Histonc Preservation, Background Data
15
TABLE A. HISTORICALLY DESIGNATED PROPERTIESIN SAINT PAUL
Resource Name pddress NHL NRHP State Local
Dayton's Bluff Historic Distrid Roughty bounded by Mounds Blvd. 1992
to Pine, E. 7` St. to Maple, North
St. to Maria, Maury St., Greenbrier,
Beech St., Hope and Arcade to,
Conwa to Bates Euclid and Ma le
Historic Hill District (local) Roughly bounded by Irvine, Grand, 1973, 1980,
Oakland, Summit, Lexington, 1974 1985,
Portland, Dale, Dayton to Grotto, 1988,
and Marshall 1991
• Historic Hill District (NRHP) Irregular pattern from Pleasant 1976
and Grand Aves. to Holly and
Marshall Aves., from Lexington
Pkwy. to 4th and Pleasant
• Woodland Park Distrid Roughly bounded by Marshall and 1978
Selb Aves. Arundel and Dale Sts.
Irvine Park Historic Distrid Roughty boGnded by Irvine Park, 1973 1974 1982
W. 7th Walnut and Sherman
Lowertown Historic District Roughly bound by Kellogg Blvd., 1983 1984
Jackson 7th and Broadwa Sts.
Northern Pacific Railway Company Energy Park Dr. and Bandanna 1983
Como Shops Historic District Blvd.
• Paint Shop 1010-1012 W. Bandana Blvd. 1985
• Paint Shop 1020 W. Bandana Blvd. 1985
• New Car Shop 1021 E. Bandana Blvd. 1985
• Blacksmith Shop 1217 N. Bandana Blvd. 1985
• Car Sho 1295 N. Bandana Blvd. 1985
St. Paul, Minneapolis, & Manitoba 23-27 Empire Dr. (7ackson St. and 1987 1985
Railway Company Shops Historic Pennsylvania Ave.)
District ]ackson Street Sho s
West Summit Avenue Historic Summit Ave. between Lexington 1993 1990
District Pkw . and Mississi i R. Blvd.
University-Raymond Historic District Roughly University Ave. from 2005
Ham den Ave. to H. 280
Commerce Buildin 10 E. 4`" St. 2007
Endicott Midwest Suildin 141-143 E. 4 St. 1974 1979
St. Paul Union De ot 214 E. 4� St. 1974
St. Paul Publicpames ]. Hill 76, 80-90 W. 4�" St. 1975 1979
Reference L�bra
Muench Adolf House 653 E. S St. 1975 1979
Germania Bank Building (Saint Paul 4-6 W. 5'" St. 1977 1979
Bufldin
Old Federal Courts Building 75 W. S St. (109 W. S St.) 1969 1973 1979
Landmark Center
Messerli House 1216 E. 7`" St. 1995
Seventh Street Improvement Arches E. 7`" St. over Burlington Northern 1989
Santa ri ht-of-wa
Mlcke s Diner 36 W. 7`�` St. 36 Old W. 9`" St. 1983 1984
Church of the Assum Gon--Catholic 51 WJ`" St. Sl Old W. 9`" St. 1975 1980
Smith Buildin 225-229 W. 7'" St. 1995
Ramse Justus Stone House 252 W. 7 St. 1975 1978
Rochat-Louise-Sauenvein Block 261-277 W. 7'" St. 1980 1979
Walsh Building (Walsh Block) 189-191 E. 8`" St. (189-191 Old E. 1989 1984
7U' St.
G9! i�
Saint Paul Comprehensrve Plan
Appendix i: Historic Preservation, Background Data
16
I� • .
Saint Paul Comprehensive Plan
Appendix 1: Historic Preservation, Background Data
17
G �-
Saint Paul Comprehensive Plan
Appendix l: Historic Preservation, Background Data
18
Puture Survey Efforts
The 1980-1983 historic sites survey identified more than 5,400 properties and provided a good baseline for historic
sites in Saint Paul. The resutts from this survey are now more than a quarter century old and are out-of-date due to
the afteration and demolition of properties over time. In addition, there is an entire gene2tion of properties that are
now more than 50 years old that were not previously considered. While additional project-speafic cultural resource
surveys have been completed over the years, the lack of a coordinated, on-going survey has resulted in large gaps
and vastly outdated information on previously-identified properties.
Saint Paul encompasses a large geographic area, with a diverse geological and ecological character. The ciry has a
complex pattern of development with a unique ethnic, social, political and economic history. Given these
complexities and the large geographic area encompassed by the city, it can be difficult to identify and evaluate
historic resources. In order to better manage this process and to obtain more predictable and consistent results,
Saint Paul should consider the multi-step preservation planning process developed by the NPS to systematically
identify and evaluate cultural resources. If these steps are followed, Saint Paul will be able to develop and maintain
an accurate and up-to-date inventory of historic properties in the aty.
The first step in this process is the development of historic contexts. The SHPO and the HPC have already developed
a number of statewide and local contexts that apply to Sa+nt Paul, and additional contexts are recommended in
Appendix 2.
The neM step in the identifcation of historic resources is a reconnaissance level survey, also known as a Phase I
survey. During this type of "windshield survey," Iarge areas are covered to identify known cultural resources and
potential resources that require additional study. The 1980-1983 city-wide survey is an example of this type of
survey.
In an intensive survey, properties are studied at a more in-depth level. Also known as a Phase II, this is the third
step in the idenYification of cultural resources. During this rype of survey, properties are more thoroughly researched
and documented. For archaeological'sites, test holes are dug. The goal of an intensive level survey is to determine
whether or not a property or properties are eligible for listing on the NRHP or for designation as a heritage site by
the City of Saint Paul.
The finat step in this process is the adual designatio� of a properLy or an entire area. Properties can be listed on the
NRHP and/or locally designated by the City pursuant to Chapter 73 of the Saint Paul Code of ordinances.
Oy �
Saint Paul Comprehensive Plan
Appendix 1: Historic Preservation, Background Data
19
Funding for Historic Preservation
There are a variety of ways to fund preservation projects in Saint Paul. Funding sources vary based on the type, size
and scope of the project, as well as on the entity completing the project - local, state, or fede2l agency; non-profit
organization; or private company or individual.
Federal Programs
Ceitified Local Govemment Grants
The Certified Locaf Government (CL6) prog2m is a nationwide prog2m that helps local �nits of govemment advance
preservation efforts in their jurisdictions. A city, couniy or township with a qualifying heritage preservation ordinance
and an active HPC can apply to the Minnesota SHPO to become a CLG. Currently there are 37 CLGs in Minnesota,
including the City of Saint Paul.
In order to maintain its status as a CLG, the City of Saint Paul must meet the following requirements:
• maintain its qualified HPC pursuant to state and local legislation;
• maintain a system for the survey and inventory of historic properties;
• enforce appropriate State and local legislation for the designation and protection of his[oric properties;
• provide for adequate public participation in local historic preservation programs, including the process of
recommending properties for nomination to the NRHP;
• perform other agreed-upon functions delegated by the SHPO; and
• satisfactority perform the responsibilities listed in the points above and other specifically agreed-upon
functions delegated to the City by the SHPO, including the preparation of an annual report to document the
fulfllment of these responsibilities.
The beneft for a city to acquire and maintain its status as a CLG is that the municipaliry is then qualified to apply for
Federal matching grants for a variety of preservation projecks. Eligible projects may include, but are not limited to:
• Historic preservation plans
• Historic conte�s
• Histonc resource surveys
• Local landmark and NRHP nominations
• Building reuse studies
• Cultural landscape inventories
• Design guidelines
• Public education
CLG grants cannot be used for capital improvement ("bricks and mortar'� projects. Priority is given to projects that:
• refled goals and strategies of the statewide preservation plan;
• promote sound preservation planning through historic context development, and completion of historic and
archaeological surveys;
• result in the local designation of landmarks and historic districts; and
• involve properties associated with the history of under-documented groups or communifies.
Funding for the CLG grant program comes from the Historic Preservation Fund, appropriated annually by the United
States Congress, and distnbuted to SHPOs in all 50 states. Federal regulations require that each SHPO must
distribute at least ten percent of its annual allocation to CLGs.
�-/ 9�v
Saint Paul Comprehensive Plan
Appendix 1: Historic Preservation, Background Data
20
Community De�e/opment B/ock Grant Progrem
The Community Development Block Grant Program (CABG) is a federal program administered by the United States
Deparhnent of Housing and Urban Development (HUD). Since 1974, this long-standing, highly Flexible a�d important
program has provided communities with resources to address a wide array of serious challenges and unique
community development needs. The objectives of this program are to provide decent affordable housing and
services to low and mode2te-income persons in the community, and to create jobs through the expansion and
retention of businesses.
The CDBG program provides annual grants on a formula basis to 1,180 general units of local govemment and states.
HUD determines the amount of each grant by using a formula comprising several measures of community need,
including Yhe extent of poverty, population, housing overcrowding, age of housing and population growth lag in
relationship to other metropolitan areas.
Historic preservation and heritage tourism are among the many activities supported by CDBG. However, all CDBG-
assisted activities must meet at least one of the national objectives ouUined in 24 CFR 570.208 for Entitlement
programs and 24 CFR 570.483 for State programs. Among the most prominent categories are:
• Planning
• Historic preservation
• Economic development
• Administration
• Engineering and design
• Acquisition
• Qearance
• Site preparation
• Property rehabilitation
• Property disposition
• Code enforcement
• Public facilities and improvements
• Removal of architectural barriers
• Adivities by community-based development organizations
• Technical assistance
• Consultant services
• Payment of non-Federal share required in connection with a federal grant-in-aid program
Fede�al Tiansportabon Enhancement P�og2ms
For nearly hvo decades, the Federal government has offered a series of Federal transportation programs that have
supported transportation-related historic preservation projects. These programs have included the T2nsportation
Equity Ad for the 21� Century (TEA-21); the Interrnodal Surface Transportation Efficiency Act (ISTEA); and now the
Safe, AccounWble, Flexible, Efficient Transportation Equity Act: A Legacy for Users (SAFTFA-LU). In a 15-year period
beriveen 1991 and 2005, more than $2 billion in Federal-aid highway funds has been allocated to thousands of
transportation-related historic preservation projects throughout the country. These programs have been used for
projects as diverse as preserving abandoned railroad roadbeds for use as trails; rehabilitating historic highways,
brid9es, and buildings; and integrating historic properties into new transportation-related developments. Historic
resources have also benefited from transportation enhancement money for landscaping, land acquisition and
streetscapes in historic commertial districts.
Federal Tiansit Enhancement Programs
Both TEA-21 and SAFTEA-LU require that one percent of Federal mass transit funding in urbanized areas with a
population of more than 200,900 be set aside for transit enhancements. Transit enhancement funding is avaifable
from the Federal Transit Administrdtion (FTA) for designated public bodies representing urbanized areas with
populations over 200,000. The funding is part of the Urbanized Area Formula Progrem of the FTA. In fiscal year
Z001, over $8 million from this program was obligated for historic mass transit buildings.
D'-f-l�l�
Saint Paul Comprehensive Plan
Appendix 1: Historic Preservation, Background Data
21
Eligible enhancements inciude historic preservation, rehabilitation and operation of historic mass transportation
buildings, structures and facilities (including historic bus and railroad faciiities). Projects must be designed to
enhance mass transportation service or use, and be physically or functionally related to transit facilities.
Fede2/ Investment Tax Credits
One of the ways the Federal govemment encourages the preservation of historic buildings is through Federal tax
laws that benefit qualifying historic preservation projects.
The Federal Historic Preservation Tax Incentives program offers a 20% tax credit for the rehabiliWtion of income-
producing historic strudures listed on the NRHP, and a SO% tax credit for alI buildings constructed before 1936. A
projed may qualify for a 20-percent investment tax credit if:
• it involves rehabilitation of a certified historic building used for income-producing purposes;
• the rehabilitation work follows the Secretary of the InterioPs Standards for Rehabilitation; and
• the project receives preliminary and final approval from the National Park Service.
Since 1976, the NPS has administered the program in partnership with the Internal Revenue Service (IRS) and
SHPOs. Over the last three decades, this program has proven itself to be one of the nation's most successful and
cost-effective community revitalization programs, having leveraged more than $30 billion in private investment to
rehabilitate tens of thousands of historic buildings, both large and small, into rental housing, offices and retaii s[ores.
As a result of the Federal Historic Preservation Tax Incentives program, abandoned or under-used schools,
warehouses, factories, churches, retail stores, apartments, hotels, houses and offices in cities and towns across the
country have been restored in a manner that retains their historic character and reinvigorates the community. The
program also helped to create moderate and low-income housing in historic buildings.
The Federal historic preservation tax credits can also be combined with other incentive programs, such as low-
income housing credits and the New Markets Tax Credit, to create an even greater incentive to rehabilitate historic
buildings.
Property owners, developers and architects must apply for the tax credit through the Minnesota SHPO and are
encouraged to work with SHPO staff to ensure that appropriate rehabilitation measures are followed, The SHPO then
passes its recommendations on to the NPS for approval, which then authorizes the IRS to issue the credit.
Save Ameiica's Tieasures
The Save America's Treasures (SA� program was established in 1998 by Executive Order. The program is a public-
private partnership between the National Trust for Historic Preservation (NTHP), the NPS, the PresidenYs Committee
on the Arts and Humanities, and other Federal agencies that are dedicated to the preservation and celebration of
America's priceless historic legacy. SAT works to recognize and rescue the enduring symbols of American tradition
that define us as a nation by focusing public attention on the impoKance of our nation's heritage and the need to
save our endangered treasures.
Every year, the SAT program awards Federal challenge grants to eligible historic resources to help fund preservation
and/or conservation work on nationally-significant intellectual and cultural artifacts and nationally-significant historic
structures and siYes. Eligible applicants include non-profit, tax-exempt 501(c) organizations, units of State or local
government, and Federally-recognized American Indian tribes. Grants are awarded through a competitive process
and require a dollar-for-doliar, non-Federal match. The minimum grant request for collections projects is $Z5,000
Federal share; the minimum grant request for historic property projects is $125,000 Federal share. The maximum
grant request for all projeds is $700,000 Federal share.
Preserve America
Established in 2003 by Executive Order 13287, the Preserve America program is a White House initiative developed in
cooperation with the ACHP, the Department of the Interior and other Federal agencies. It establishes Federal policy
o�-r��
Saint Paul Comprehensive Plan
Appendix 1: Histonc Preservation, Background Data
22
to provide Ieadership in preserving America's heritage by actively advancing the protection, enhancement and
contemporary use of the historic properties owned by the Federal govemment.
The order also encourages agencies to seek partnerships with State, tribal and local govemments and the private
sector to make more efficient and informed use of these resources for economic development and other recognized
public benefits. In addition, it directs the Secretary of Commerce, working with other agencies, to use �isting
authorities and resources to assist in the development of lowi and regional heritage tourism.
Each year, subject to Congressional funding, the Preserve America program awards grants to designated Preserve
America communities. The grants support a variety of activities related to heritage tourism, and innovative
approaches to the use of histonc properties as educational and economic assets. These grants go beyond the bricks
and mortar grants available through the SAT progrem. Eligible reapients for these matching (50/50) grantr include
SHPO, THPOs, designated Preserve America Communities, and CLGs that are applying for PreserveAme�ica
Community designation. Individual grants range from $20,000 to 3150,000.
State of Minnesota Programs
The State of Minnesota offers two grant programs, funded by the Minnesota Legislature, that support historic
preservation, interpretation and capital projects undertaken by history organizations and local units of government.
State Grants-in Aid
The purpose of th�s program is to support projects conducted by organizations and institutions that interpret and
preserve Minnesota's history. Available funds vary and are dependent on legislative appropriations. The maximum
grant award is currently $6,000 for historic properties listed on or determined eligible for listing on Yhe NRHP. All
other categories are limited to $6,000, except for microform copies, which is capped at $2,500. Funds must be
matched at least one-to-one. Matching funds may be cash, in-kind and/or donated services or materials contributed
to the pro7ect.
The primary reapients of State grants-in-aid awards are regional, county and local non-profit organizations whose
primary purpose is historic preservation and/or interpretation. Eligible projects indude:
• Historic properties
• Artifad collections
• Interpretive programs
• Microform copies
• Oral history
• Photographic colledions
• Manuscripts
• Publications and research
• Museum environments
• Technology
Projects from non-historical organizations should fill a need that is not being met by a historical organization.
Sfate Capital P�ojects G�ants-in Aid
The purpose of this program is to support historic preservation projects of a capital na[ure, including publicly-owned
and -used bwldings. There is usually one funding cycle each fall; grants are based on legislative funding. The
primary recipients of State capital project grants are pubiic entities as defined in State law, including county and local
jurisdictions. Non-profit organizations whose primary purpose is historic preservation and/or Interpretation, and
which have entered into a qualifying lease or management agreement with an eligible public entity sponsor, are also
eligible to apply. In order to be eligible for funding, the work must meet the following conditions:
• the expenditure funded must be for a public purpose;
CX ��f �
Saint Paul Comprehensive Plan
Appendix 1: Histonc Preservatwn, Background Data
23
• the property assisted must be publicly-owned;
• the project expenditures funded must be for land, buildings or other improvements of a capital nature; and
• the work must meet the Secretary of the Interiors Standards for Rehabilitation.
Two types of histonc preservation projects are eligible for funding: restoration and/or preservation, and building
systems and accessibility work.
State Historic Preservation Tax Incentives
As of June Z008, more than half of the states across the country, or approximately 70-percent of the states that tax
income, have developed State tax credit programs for historic preservation projects. Most of these programs are
similar to the Federel Income Tax Credit Program described above. Although they vary from state to state, most
laws contain the following elements:
• criteria for determining what buildings qualify for the credit;
• standards to ensure Yhat the rehabilitation preserves the historic and architectural character of the building;
• a method for calculating the value of the credit awarded, reflected as a percentage of the amount expended
on that portion of the rehabiliWtion work that is approved as a certifed rehabilitation;
• a minimum amount, or threshold, required to be invested in the rehabilitation; and
• a mechanism for administering the program, generally involving the SHPO and, in some cases, the State
Department of Revenue.
Often, these State tax credits can be combined with Federal rehabilitation tax crediks and other Federal incentive
programs, such as low-income housing credits and the New Markets Tax Credit, to create an even greater incentive
to rehabilitate the irreplaceable buildings and places in our commu�ities.
Currently, Minnesota is in the minority and does not have a State tax credit program for historic preservation. Therc
are on-going efforts by local officials, as well as grassrootr organizations, to encourage the Minnesota Legislature to
pass a State historic preservation tax credit for commercial and residential property. As it has been repeatedly
proven across the country, the creation of a State tax credit is a boon for preservation and Iocal xonomies alike.
State-Wide Non-Profit Organizations
The Preservation Alliance of Minnesota (PAM), established in 1981, is the onty state-wide, private, non-proft
organization advocating for the preservation of Minnesota's historic resources. PAM administers a preservation
easement program in order to proted historically and architecturally signifcant properties in perpetulry. A
preservation easement is a legal document behveen a property owner and PAM that limits the present and any future
owner's abiliry to alter or degrade the features subject to the easement. The easement is recorded with the
properry's deed and may be granted on one or more e�erior faGades, interior architectural features, natural
landscape and open space.
Preservation easements typically prohibit detrimental alterations to the appearance or material integrity of the
property and require on-going maintenance. The properry may continue to be used for any purpose the owner
chooses and it may be sold or leased at any time, subject to PAM's continuing easement.
Any building or property may qualify for a preservation easement if PAM determines that the property possesses
architectural or historical significance. However, only donations of easements on properties listed in the National
Register of Historic Places (including properties contributing to historic districts) are eligible for Federal income tax
deductions. The assessed value of a qualifying easement is deductible as a charitable contribution on the donor's
Federal income tax return. In addition, PAM rypically requires a donation toward its Easement Endowment, which
ensures the resources necessary to monitor and defend PAM's easement portfolio in perpetuity. Both the value of
the easement and the accompanying endowment contribution are fully tax-deductible. State property taxes may also
be reduced if the value of the estate is reduced due to the limitations placed on future developments.
��/9�
Saint Paul Comprehensive Plan
Appendix 2: Historic Contexts
SAINT PAUL
COMPREHENSIVE PLAN
APPENDIX 2
HISTORIC CONTEXTS
�i�q(p
Saint Paul Comprehensive Plan
Appendix 2: Historic Contexts
PREPARED FOR'
CITY OF SAINT PAUL
BY:
STARK PRESERVATION PLANNING�LLC
AND
THE 106 GROUP LTD.
REPORT AUTHOR:
WILLSTARK, M.C.R.P.
JULY 20OH
09-l91�
Saint Paul Comprehensive Plan
Appendix 2: Historic Contexts
iii
TABLE OF CONTENTS
Tableof Contents .......................................................................................................................1
Introduction...............................................................................................................................4
Whatis an historic context� .............................................................................................................5
Why are historic contexts necessary? ....................................................................
Current Applicable Historic Conteuts ...............................................................
State Historic Conte�s .........................................................................................
Statewide Properiy Type Contexts ........................................................................
Statewide Thematic Contexts ...............................................................................
Saint Paul's Historic Context Process .....................................................................
Additional Surveys and Other Sources for Historic Contexts ....................................
Summary and EvaluaYion of Local Historic Contexts ...............................................
Pioneer Houses: 1854-1880 .............................................................................
Residential Real Estate Development: 1880-1950 ..............................................
Neighborhood Commercial Centers: 1874-1960 .................................................
Downtown Saint Paul: 1849-1975 .....................................................................
Churches, Synagogues, and Religious Bwldings: 1849-1950 ...............................
Transportation Corridors: 1857-1950 ................................................................
Archaeological Resources in Saint Paul .................................................................
Historic Contexts for a New Era ......................................................................
Saint Paul Parks, Parkways, and Cultural Landscapes .............................................
Neighborhoods at the Edge of the Walking City .....................................................
Post-WWII Development, Modernism and Historic Preservation ..............................
Mississippi Rrver Valley: Navigation and Commerce ................................................
Immigrant and Ethnic Communities ......................................................................
Other Resources Types ........................................................................................
MultipleHousing Units .....................................................................................
Schools ...........................................................................................................
Fire Houses .....................................................................................................
EarlyGas Stations ............................................................................................
Automobile Dealerships ....................................................................................
.............. S
.............4
..............5
..............5
..............5
.............. S
..............5
..............5
..............6
..............6
..............6
..............6
..............6
..............6
.............. 5
..............4
..............5
..............5
..............5
..............5
..............5
...............5
...............6
...............6
...............6
...............6
...............6
�-f l9fp
Saint Paul Comprehensive Plan
Appendix 2: Historic Contexts
Introduction
What is an historic conteM?
According Yo the National Park Service (NPS), a historic conteM is a document "created for planning purposes that
groups information about historic properties based on a shared theme, specifc time period, and geographical area."
In short, it is a critical part of the historic preservation planning process that helps organize the vast and diverse
historic resources of a communiry based on thematic associations, geogrephical limits and chronological periods. A
context study usualiy groups together common "inventoried" properties (from naYional, state, or local inventories)
and then suggests which ones to further survey for designation purposes.
Why are historic conteuts necessary?
Historic contexts are the comerstones of the historic preservation planning process. Rather than being an end in
themselves, they serve preservation planning by assuring that the fu//range of historic properties is indentified and
subsequently evaluated (and then, presumably, registered and protected). Contexts help to prioritize the
preservation decision-making process by examining historic resources in relation to similar properties, determining
how common or uncommon their occurrence, and ascertaining their significance relative to other resources. HisYOric
contexts guide future survey and designation processes by proactively and objectively seeking geographical areas,
resource types or themes that are likely to reveal valued historic resources. Within the local preservation planning
process, they allow a heritage preservation commission (HPC) to pursue designation in a thoughtful, deliberate and
coordinated manner, rather than responding to community cnses or adhocdeve�opment pressures. For an HPC,
historic conte�s are particularly cntical, as they serve to justify the identification and designation of historic
resources, which has regulatory consequences. Without an historic context to appreaate the relative significance of a
resource, decisions made by Commissioners or staff are less able to withstand public scrutiny and legal challenges.
Current Applicable Historic Conteuts
Historic contexts can be compieted at the national, regional, state, or local level, depending on the theme and
resource type. Saint Paul has representation in most of these rypes of contexts.
SWte Historic Conteuts
In Minnesota, the State Histonc Preservation O�ce (SHPO) has prepared numerous historic mnteats, ranging
chronologically from ancient Indian cultures to the mid-hventieth century. In what is referred to as °Post Contact
Period Contexts"— after the period of initial European contact with native Indians — the SHPO has established the
following historic contexks:
1. Indian Communities and Reservations: 1837-1934
2. St. Croix Tnangfe Lumbering: 1830s-1900s
3. Early Agriculture and River Settlement: 1840-1870
4. Railroads and Agricultural Development: 1570-1940
S. Northern Minnesota Lumbering: 1870-1930s •
6. Minnesota's Iron Ore Industry: 1880s-1945
7, Minnesota Tourism and Reaeation in the Wke Regions: 1870-1945
8. Urban Centers: 1870-1940
These contexts provide a brief synopsis of the period, examples of associated property types, maps illustratlng the
geographic limits of the context and bibliographic resources. Saint Paul is geographically represented in Contexts 3,
4,7and8.
� /9�
Saint Paul Comprehensive Plan
Appendix 2: Historic Contexts
State-wide Property Conte�
In addition to these broad state-wide conte�s based on periods of development, the SHPO has established thematic
conte� based on property types. These contexts include:
• State-Owned Buildings (with numerous sub-categortes, including the State Capitol Complex)
• Bridges
• Hydroelectric Power in Minnesota: 1880-1940
• Finnish Log Architecture: 1880s-1930s
• Red River Trail in Minnesota: 1835-1871
• Minnesota Military Roads: 1850-1875
• Quarries and Mines
• Rock Art
• Lithic Scatters
• Earthworks
• Federal Relief Construction: 1933-1941
• Geographic Features of Cultural Significance
Saint Paul has examples of property types in many of these context categories.
State-wide Thematic Contexts
Other broad, thematically-based documents provide a context and means of historic evaluation for Saint
Paul resources. The National Park Service, which oversees the National Register of Historic Places (NRHP), has
developed a Multiple Property Documentation Form (MPDF) for documenting thematically-related properties.
Minnesota examples of MPDFs (or Thematic Resources documentation, as they were previously named) that contain
contextualinformation relevantto Saint Paulresourcesinclude:
• Carnegie Libraries of Saint Paul Thematic Resources
• Federal Relief Construdion in Minnesota
• Grain Elevator Design in Minnesota
• Iron and Steel Bridges in Minnesota
• Minnesota Masonry Arch Highway Bridges
• Minnesota Military Roads
• Railroads in MinnesoW, 1&62-1956
• Reinforced-Concrete Highway Bridges in Minnesota
These documents serve as a basis for evaluating the NRHP eligibility of related properties and contain valuable
conteMUal information on groups of properties. The documenks are available from the National Park Service or SHPO.
Saint Paul's Historic Conteut Process
In collaboration with the Ramsey County Historical Society, the Saint Paul HPC initiated its most significant step in
the preservation planning process when the NistoiicSitesSurveyof5t. Pau/and RamseyCountywas undertaken
from 198� to 1983. Over 5,40� site forms were completed for the survey, more than 2,5�0 of which included
information on the architect and contrador. Although the bulk of the proper[ies was located in Saint Paul, the
survey also included other Ramsey County cities. The survey findings were organized into 17 planning districts,
summarizing the history, characteristics and key findings of each district. Properties already designated, those
believed to be eligible for the NRHP or local designation, "additional sites of major significance" and potential historic
dis2nctr were listed at the conclusion of each chaQter.
The survey resulted in the designation of numerous�individual properties and the formation of several historic
districts. However, without well-developed historic contexts to understand the full story of the history and
development of the aty, only the most obviously significant resources received attention and moved fonvard with
Dq-i 9�
Saint Paul Comprehensive Plan
Appendix 2: Historic Contexts
designation. While many other buildings were noted in the inventory, their significance could not be fully
comprehended, and designation could nof proceed, without the development of thorough his[oric contexts
to describe and analyze the broader picture of Saint Paul's architectural and historic contributions and
development.
The sites survey completed in 1983 provided a tremendous baseline for the initial inventory and evaluation of the
cib/s resources; however, it is now more than 25 years old. The age of this data has become a limitation to the
further development of hi5[onc preservation pianning tools, including historic conteMS. Since undertaking the survey,
many changes have occurred in Saint Paul, including the loss of many of the inventoried properties. Furthermore,
new property types and periods of conshuction are now being considered significant and worthy of historic
designation, including examples of Modernism, suburban sryle residential development, and resources related to the
mid-hventieth century automobile sales industry.
In 2001, Saint Paul prepared a comprehensive historic context study based on thematic areas of the citys
development and inclusive of the entire city. Carole Zellie of Landscape Research and Garneth O. Peterson of
BRW/URS prepared the study. The contexLs included:
• Pioneer Houses: 1854-1880
• Residential Real Estate Development: 1880-1950
• Neighborhood Commercial Centers: 1874-1960
• Downtown Saint Paul: 1849-1975
• Churches, Synagogues, and Religious Buildings: 1849-1950
• Transportation Corridors: 1857-1950
Each historic context is introduced with an overview of the impacts of the theme on the historic development of the
city and a description of the contextual framework. Sources used to form the context are discussed, includmg
limitations. In general, the sources include such items as general histories, newspaper articles and advertisements,
National Register nominations, photographic and other image collections of the Minnesota Historical Society,
secondary sources related to the theme, and broader academic studies. In every case, the 1983 HistoncSites
SurveyofSt. Pau/and RamseyCountywas referenced, although it was not within the scope of the projed to
update or revise the data from the earlier survey. Most contexts were organized by either a subdivision of the themes
(for example ��Ra+l Transportation" within Transportation Corridors) and/or chronological periods. Each context
concludes with recommendations highlighting the prioritles for future designation studies or further conteM
development. Text is carefully footnoted with specific sources cited.
Additional Surveys and Other Sources for Historic Contexts
Since the extens�ve local survey efforts of the 1480s, the data base of inventoried properties in Saint Paul has
expanded, mostly Yhrough various surveys and studies prompted by Federal undertakings and Section 106 of the
National Historic Preservation Act. As a result, the inventory of properties on the SHPO data base has risen from
5,400 to more than 6,100. 6ctensive and detailed surveys, such as the ones conducted for the Central Corridor light
rail transit project, have made important contributions to the collection of inventoried properties and to historic
contexts. Contexts developed for these projects rypically focus narrowly on the resources within the project's area of
potential effect. Unlike those prepared for the City's planning purposes, they are less likely to Wke broad perspectives
of neighborhoods or overall urban development trends into consideration. 5till, they can be valuable to the City's
preservation and designation process by providing a framework against which to evaluate resources for Iocal heritage
preservation designation and potential eligibility for listing on the NRHP.
v�i-�G�
Saint Paul Comprehensive Plan
Appendix 2: Historic Contexts
Summary and Evaluation of Local Historic Contexts
Pioneer Houses: 1854-1880
This contea2 describes and identifies those residences associated with the early settlement period of Saint Paul.
Only 120 pre-1880 residences were identified in the 1983 survey; they are considered a rare property type i� the
city. The survey suggests that there may be a concentratlon of pre-1880 houses associated wRh German and Qech
settlement in the Uppertown area. Recommendations included: further survey work in the Thomas-Dale area to
identify additional examples of this resource type; and further investigation of outlying farmhouses.
Since the recommendations were made, a designation study was completed in 2002 on the George H. and Hannah
Hazzard House.
Residentra/ Rea! Estate Development: 1880-1450
This conte�R covers Iarge geographic areas of Saint Paul that were developed as additions and subdivisions by land
speculators and real estate brokers. It is useful in identifying residential districtr representative of various periods of
development and architecture. Recommendations included:
The original plats of Hamline, Macalester Park, Merriam Park, Saint Anthony Park, and Warrendale were
identified as good candidates to represent original marketing and planning ideals, and period architecture.
Further study is warranted to determine if existin9local historic districts represent the key ideas of their
period of urban and architectural development.
7he authors recommended further development of a historic context called °Neighborhoods at the Edge of
the Walking Ciry" to include areas such as Uppertown, Frogtown and other early neighborhoods near
downtown that were laid out and sofd in a less-coordinated effort to a less transportaYion-sensiLve chentele.
To-date, no action has been taken on these recommendations.
Neighborhood Commercia/ Centers 1874-1960
The Neighborhood Commercial Centers historic context focused on the evolution of smaller commercial nodes
reflecting the changing needs of Saint Paulites as the city and its residential and transportation patterns developed.
This context is organized into the following frameworks and periods:
• Pioneer Period of Saint Paul Retailing: 1850-1872
• New Neighborhoods and Commercial Corners: 1872-1900
• Late Nineteenth-Century Shopping Streets: 188D-1900
• Streetcars and New Suburbs: 1900-1930
• Grocery Store to Supermarket: The Neighborhood Commercial Center: 1930-1960
Resource types covered in this conteM include corner stores, apartmentJstorefront combinaUOns, business blocks,
brick-front stores and automobile-based shopping centers. The authors noted that many of the properties in this
category are among the most frequently altered, and therefore designation of examples with good integrity was
encouraged. Many examples of commercial nodes were surveyed in the 1983 inventory, but it is likely that changes
in integrity — for better and worse — have occurred in the intervening years. Eady gas stations are smgled oui as
particularly vulnerable to development. Recommendations included:
• re-survey of the resource type to assess effects of alterations since the 1983 survey;
• selecGVe inventory of neighborhood commercial properties to identify other candidates for possible
designation;
• designation studies for architect-designed 1880s examples of neighborhood commercial properties using
criteria based on architectural significance as well as the relationship to early streetcar or passenger rail
developments. Because of the frequency at which commercial s[orefronts are altered, designation was
considered a matter of urgency.
• further context study on apartment buiidings, a building type often found in or near neighborhood
commercial centers.
0%19�
Saint Paul Comprehensive Plan
Appendix 2: Historic Contexts
• study and designation of gas stations, which are particutarty vulnerable to redevelopment.
Since the context study, designation studies were completed for most of the recommended properties, including the
Crosby Block, Arvidson Block, Schott Block, Hamline Apartments and Stores, Highland Theater, Grandview Theater,
Old Fireside Inn & Tamarack Lodge Hall, and William Thompson Commercial Building.
Downtown SaintPau/.• 1849-I975
Downtown Saint Paul is the most dynamic of all of the context areas. Because of its age, density, and cultural,
eco�omic and architectural significance, this historic context was given special focus. Its period of study extends
well into the {atter half of the twentieth cenYury, to 1975, reflecting the cootinuing importance and redevelopment of
this part of the city, as well as the loss of earlier historic fabric. The authors also conducted a brief reconnaissance
survey to update the 1983 inventory; of the approximately 190 buildings previously surveyed in downtown, SO had
been razed. This fact emphasizes both the increasing rariry of early specimens of historic buildings as well as the
regular growth of new building stock. The conteM is organized in the following framework and time periods:
• The Pioneer Years: 1849-1880
• The City of the Northwest: 1880-1900
• The Golden Era: 1900-1920
• Approaching Modernism: 1920-1950
• Postlude or Prelude: 1950-1975
This context also addresses the urban renewal and redevelopment of the 1960s, as well as the city's early
interest in historic preservation, including the effort to save the old Federal Courts Building. The authors
acknowledged the "vast amount of change" that downtown has experienced and recognized that not every building
over 50 years of age can be saved. Instead, they emphasized the need "to recognize the significance of the
area as a whole, and carefully consider the historic and architectural significance of each remaining building."'
Rewmmendations included:
• designation of 20 properties considered "the most critical priorities for designation;"
• further study of smaller-scale, two- and three-story buildings on the fringes of downtown; and
• further survey and evaluation of properties from the i950s and 1960s, since few were inventoried in the
1983 survey.
Based on the context study's recommendations, the City completed a designatio� study for the potential Rice Park
Historic District in 2002; designation was not pursued. Other recommendations have not yet been implemented.
Chu�ches, Synagogues, and Re/igious Bui/dings 1849-1950
This study utilized the survey material of the many houses of worship to formulate a historic conteM inclusive of their
historical and architectural contributions. The conteM is organized into four periods:
• Pioneer Congregations and New Immigrants: 1841-1880
• New Churches in New Neighborhoods: 1880-1900
• Early Twentieth Century Expansion: 1900-1930
• Churches in the Third and Fourth Generations: 1930-1960
The te� provides backgrounds on the history, growth and development for each of the major religious sects in Saint
Paul for each time period. Of the 180 inventorled religious sites, seven were locally designated at the time of the
context study. Recommendations included:
• designatlon studies for 16 additio�af religious properties; and
• identification of adaptive uses for vacant or underutilized buildings.
In 2002, designation studies were completed for several religious properties based on recommendations in the
' Historic Context: Downtown St. Paul, 1549-1975, p. 27.
�f-14 �P
Saint Paul Comprehensive Plan
Appendix 2: Historic Contexts
context sTUdy, including Saint Maithew's Evangelical Luthera� Church, Trinity Norwegian Evangelical Lutheran
Church, Zion German Evangelical Luthe2n Church, Church of Saint Columba and Knox Presbyterian Church. The
1959 Ralph Rapson-designed Prince of Peace Lutheran Church (not listed among the 16 recommended for further
designation study) was demolished in 2006 to make way for a condominium devetopment. Other religious 6uildings
mntinue to be vacant and threatened by development pressures or preservation issues. Saint Matthew's Evangelical
Lutheran Church was listed on the Preservation Alliance of Minneso�'s 10 Most Endangered Places list in 2008.
TiansportaSon Corndors.�1857-1950
Among the most complex of the historic context studies is this one pertaining to various transportation corridors.
Although mter-related, the study includes Ihree distinct conteats:
• Rail Transportation: 1857-1950
• The Saint Paul Streetcar System: 1872-1953
• The Midway as a Transportation Center: 1883-1950
Within these contexts, a wide variety of overlapping property types was accounted for, including railroad lines;
grade separations; bridges, train and streetcar shops; the Union Depot and streetcar stations; Lowertown
warehouses; and related industries such as Seeger Refrigerator Company, 3M, Harvester, breweries, and industries
located in the Midway such as manufacturers, wholesalers, and automobile dealerships. Recommendations included:
• study of transportation corridors themselves (the conteaT focused on the buildings) for potential
designation;
• designation of the remaining buildings associated with Saint Paul's railroads, including any buildings not
within the Lowertown Historic District;
• study of hvo significant railroad bridges: the Omaha Swing Bridge and the Chicago Great Western Bridge;
• designation study for the Minnesota Transfer Railway Company Roundhouse;
• designation study for the industrial complexes, including the 3M Main Plant, Hamm's Brewery Complex, and
)acob Schmidt Brewing Company;
• designation study for individual industriai buildings, such as the Coca Cola Bottling Co. and the Omaha Tron
& Brass Factory;
• designabon study of the Universty and Raymond avenues area for a potential historic district representing
the manufacturing concentration in the Midway and industrial manifestations of the work of Saint Paul
architects;
• further study of any remaining historic resources focused on automobile sales; and
• study of all remaining streetcar-related facilities, including the Selby Streetcar Tunnel, to determine which
may be eligible for designation.
Since the time of the wnteM development, the Ciry designated a related distnct: Yne University-Raymond
Commercial Historic District. The Carlton Lofts bwlding within that district was rehabilitated using Federal histonc
preservation tax incentives. A designation study was completed in 2002 for the Minnesota Transfer Railway
Roundhouse. A moratorium was placed on the Schmidt Brewery in 2006, and a designation study on the property
was initiated. The property is now in the National Register nomination process. The Minnesota Department of
Transportation developed a statewide MPDF on railroads in 2007, providing context to the rail transportation corridar
and related facilities in Saint Paul. �
Several studies completed for the Central Corridor LRT, mostly along University Avenue, have made contributions to
our understanding of historic transportation corridors. Several properties and districts have been listed in, or
determined efigible for listing in, the NRHP, including the Minoesola Miik Company building.
D�Y l�llp
Saint Paul Comprehensive Plan
Appendix 2: Historic Contexts
Archaeologiwl Resources in Saint Paul
Extant archaeological resources associated with the large Native American population that lived in the current
jurisdiction of Saint Paul before Euro-American settlement have been documented in a series of state-wide
contexts developed by the State Histonc Preservation Office. Each conte� consists of a written narrative defining
the context's broad historical pattems, tempo2l limits and geographical boundaries. Goals and priorities have been
developed for many conte#s. In addition, a summary of the identified property types associated with each mntext is
provided. The contexts provide a basic bibliography of Minnesota archaeology, and should be consulted and
referenced when encountering archaeological resources in Saint Paul, or if there is the potential to encounter such
resources.
Archaeological resources related to the early industrial and residential settlemenY of Saint Paul are onry just now
being recognized and unearthed. Discoveries, such as Nina Clifford's bordello during the excavaGons for the
Science Museum of Minnesota and the remains of a brewery found when creating the Bruce Vento Nature Sanctuary,
only scratch the surface of the resources remaining beneath our feet. These types of resources not only inform us of
the way our communities lived and worked many years ago, but can also provide compelling exhibits and public
educational adivities.
The City of Saint Paul will need to plan for instances where archaeological resources— Native American or historic—
are or may be encountered in the development process. The variable archaeological resource types make
the development of historic contexts outride of those already completed infeasible. Instead, Saint Paul should plan
for [he treatment of archaeological resources and develop a methodology for evaluating them as they are
encountered.
Historic Cooteuts for a New Era
The historic contexts prepared for the City in 2001 touch on nearly every signifcant property rype commonly found in
Saint Paul and include portions of most neighborhoods. They are well-organized and include nearly all of the
dominant building rypes, styles and development trends in Saint Paul from the 1850s to the 1950s. These contexts
use important factors of urban development — growth of transportation systems and real estate developmentr — as
guides to include the majority of the citys historic growth. Most historic properry types were included in one or more
contexts, although some property types bear more in-depth examination.
While the 1983 survey served as the foundation of the 2001 context study, no efforts were made to update, amend
or revise the survey data (with the exception of the Downtown context to account for surveyed sites that were no
longer eMant). When the contexts were written, the survey was nearly 20 years old, and it is now dated by a
quarter century. Although a logical and important basis for the context s[udy, the dated nature of the survey data is
perhaps the weakest link in the methodology of the historic conte� study.
It should be noted that since the 2001 context studies were completed, authors Jeffrey A. Hess and Paul Clifford
Larson published St. Pau/'sArchitecture: A Historyin cooperation with the City of Saint Paul HPC (Universiry of
Minnesota Press, 2006). With extensive illustrations and a well-written narrative, the book provides a comprehensive
overview of the citys built environment — with an emphasis on ea�tant strudures — from 1840 to 2000. While not
written using [he typical framework of a historic context (listing property types and providing recommendations), it is
arranged chronologically and is a useful resource for further investigation and evaluation of a wide range of Saint
Paul's architedural resources. In essence, it can be substituted for, or cited in, additional historic contea2 studies.
The march of time and the continuation of history play another role in the development of new contexts. Fifty years
is the general standard for consideration of historic status (although Saint Paul's HPC designation criteria do not
require that a property be greater than 50 years old). However, only two of the contea2s ea4end into the current 50-
year retrospedive period (DOwntown, which extends to 1975; and Neighbo�hoodComme�cia/Centers, which
extends to 1960). While the vast majority of Saint Paul's development was completed by the 1950s, it is not a city
frozen in time. While smalfer in scope, new and expanded contexts represenGng the era of growth and styles of the
latter half of the hventieth century are necessary.
Other omissions in the historic contexts can be rectified as we learn to further appreciate and value other resource
�xxi-i �i�
Saint Paul Comprehensive Plan
Appendix 2: Historic Co�texts
types. The natu2l IandscaAe of Saint Paul, dominated by the Mississippi River Valley, has heen managed and
shaped by the hands of humans for centuries. An understanding of the important relationship of people with the
landscape is only now being recognized and respected. Resources of the Post-World War II era are mming into
consideratlon as historic patterns of development, in addition to architecture.
Foilowing are recommendations for additional historic conte� and themes, in no particular order, to be
explored to contribute to a more complete understanding of Saint Paul's historic resources and to guide the
preservation planning process.
Saint Paul Parks, Parkways and Cultural Landscapes
Saint Paul has an important heritage of early development of park land for public enjoyment, including
Como Park and the network of parkways. The public ownership and development of the parks resulted in their
exclusion from previous historic context studies. As Yhe preservation community increases its appreciation for
historic landscape design, it becomes increasingly important to understand the context within which the public park
system was developed, and what makes it important to the City's qualiry of life and unique character.
Neighborhoods at tlte Edge of the Walking City
The authors of the 2001 historic conte� study concluded that neighborhoods such as Uppertown and Frogtown, as
well as other unstudied areas near downtown, did not ft neatly into the study of Residential Real Estate
Development because they were platted and sold in a less-coordinated effort to a less transportation-sensitive
clientele. These areas would be well-served by the devefopment of a historic conteM. The neighborhoods largely
excluded from previous studies (except for commercial and industrial properties) include Thomas-Dale, Uppertown,
and Frogtown/Midway.
Post-WWII Development, Modernism and HisCOric Preservation
Although briefly addressed in existing conte�s, both isolated and large-scale pockets of residential, institufional,
industnal and commercial development during the post-World War II era shoufd be more fully developed.
Descriptions of the housing sryles, such as the "rambler," should be included, along with the impact this era had on
the shape of Saint Paul. Although this period of time is most noWbly associated with great suburban expansion, it
was also an era that added 13,000 new dwelling units in Saint Paul proper. Areas of post-war residential
developments can be found in the outer corners of Saint Paul, includinq portions of the Highland Park, Greater East
Side and Highwood neighborhoods. In addition, infill pockets of high-quality Modernist design, such as the Stone
Bridge development in Highland, represent an important era of architedure, while modest public housing projects
designed for 1ow-income, returning World War II veterans in the 1940s, such as the ]ohn ]. McDonough Homes,
demonstrate the public response to housing shortages. Individual examples of high-slyle Modernist housing, such as
the 1962 Marcel Breuer-designed house in Highwood, may be located throughout the city. Institutional and
commercial buildings outside of downtown, such as the 0'Shaughnessy Auditorium on the College of Saint
Catherine's campus, also show evidence of the rising interest in modern butlding styles. Several superior examples of
industrial bwldings from the 1940s and 1950s survive, scattered on either side of University Avenue and on Marshall
Avenue.
Within the downtown, notable examples from the Modern era were mostly constructed as part of a coordinated
urban renewal campaign, including the Minnesota Mutual Life Insurance Company Building (1955), Degree of Honor
Building (1961), Hilton Hotel (1966) and Dayton's Department Store (1963). At the same time, early preservation
efforts began in the 1960s and 1970s. This early approach to preservation was d'rfferent from today's approach, and
has begun to take on a character and significance of its own. These movements are briefly addressed in the
Downtown context (which extends to 1975), but should be more fully developed as preservationists begin to address
the historic significance of Modernism and various forms of revitalization as part of its architectural legacy. As
previously recommended within the Downtown context study, survey and evaluation of the downtown buildings of
the 1950s and 1960s should be undertaken in coordination with the development of a historic context. Rather than
being limited to the downtown, the contea�t should extend to the entire city to include other unknown specimens of
architectural design and development patterns �n the second haif o4 the twentieth century.
tx/�lG�p
Saint Paul Comprehensive Plan
Appendix 2: Historic Contexts
Mississippi River Valley: Navigation and Commerce
The Mississippi River has played a pivotal role in the life of Saint Paul for millennia. The connection and access to the
river as a transportation corridor was critical in siting the ciry that would become Saint Paul. This important link
continued wefl into the twentieth cenTury. Historic conTeXcs centered on rivenvay resources have not been developed
to-date. Resources such as the Saint Paul Municipal Elevator and Sackhouse, Meeker Island Lock and Dam, and
potential buried sites or unevaluated standing structures would 6e included in such a conteut. Beyond the river and
its immediate banks, the naturaV topogrephy of the Valley of Sairrt Paul is an importarrt resource itseff as a cultu2l
landscape, with overlapping cultures and historic sites ranging from ancient Indian communities fo early twentieth
century industry. The "Mississippi River Valley of Saint Paul Cultural Landscape" was placed on the Preservation
Afliance of Minnesota's 10 Most Endangered Places �ist in 2007 in response to a variety of development pressures
that have been placed on the valley. A new histonc context expioring the long tradition of human occupation and
industry along, and the cultural significance of, the Mississippi River and its valley would assist the City in
understanding and protecting the landscape and its resources.
Immigrant and Ethnic Communities
As with many American aties, Saint Paul has a long history of being the adopted home of immigrant communities.
Since its settlement, various ethnic communities, mostly European, have made their imprints on the Citys culture and
character. Much has bee� written ack�owtedging the contributions of German, Irish, Swedish, Ltalian and other
immigrant communities' historic and on-going inFluence on Saint Paul's culture and its built environment. In more
recent decades, new immigrant communities from the Americas and Southeast Asia have arrived, bringing with them
their own traditions, tastes and cultures. The Frogtown neighBorhood has become home to several Southeast Asian
communities, and parts of the West Side have been adopted by Mexican immigrants. AII immigrant communities,
along with the second and third generations of Americans, have placed their unique cultural stamp on these areas,
reforming and reshaping their histories. While all immigrant groups need to be considered for a complete historic
context of the city, more time needs to pass in order to better unders[and the significance of some of the patterns of
more recent immigrants in order to interpret them appropriatety.
Other Resource Types
A number of property types did not fit neatly into the thematic headings of the 2001 context study or were only
brieFly mentioned within those conteats. The importance of the resource types to the architectural character of Saint
Paul or to its historical development warrant further exploration and their inclusion in a historic context study.
Mu/tip/e Housing Units
Current historic contexts for residential properties focus on single-family houses, the dominant housing rype
in Saint Paul. Multiple housing units — small and large apartment buildings and rowhouses — can be found in
both concentrated areas and scattered within neighborhoods of single-family residences. These properties
have played an important role in housing Saint Paulites who were unable to obtain, or uninterested in the
ciry's "ideal" of living in, a single-family house. Many of [he apartment buildings possess architectural
features reflective of their period of development. In the 2001 context study for Neighborhood Comme�cial
Centers, the authors recommended a context study on apartment buildin9s as a property type.
Schao/s
Although considered part of the neighborhood studies, public and private schools located throughout the
city, including colleges and universities, can best be evaluated within their own comparative conte�. The
city has a range of architectural styles and periods, from Collegiate Gothic to Modern, that reflect the
educational ideals, purposes and methods of their respective periods.
Fire Houses
Again, reflected in neighborhood development, Yhis civic property type would beneft from a comparative
analysis of the styles and trends of currently used or rehabiliWted historical fire houses and fire engine
�ilRl�
Saint Paul Comprehensive Plan
Appendix 2: Historic Contexts
10
stations Yo evaluate and prioritize preservation needs.
Ear1y Gas Statrons
A number of unique and early gas stations are eatant within the city, and it is possible that others may
remain unsurveyed. In the Nerghborhood Commercral Centers histo�c co�tea�t, gas stations were noted as
"particularly vulnerable to redevelopment." Further inventory, evaluation and contextual development of
early gas stations would assist in identifying and preserving the 2re eatant specimens.
Automobile Dea/erships
Automobile dealerships were a common sight along University Avenue in the mid-twentieth century. Often
large and incorporating Moderne design elements, they are rapidly vanishing. Although briefly mentioned
within the Tiansportation Corridorshistoric contea�t, little conteMUal information is provided. A
reconnaissance survey to identify the remaining automobile dealerships should be conducted to evaluate
their integrity and determine if a historic context is warranted.
Industria/ Bui/dings
(to be written by consultant)
� Neighborhood Commeraal Centers: 18741960, p. 16.
�-t
Saint Paul Planning Commission
Joint Meeting with the Heritage Preservation Commission
City Hall Conference Center "
15 Kellogg Bonlevard West
Minutes November 6, 2008
A joint meeting of the Planning Commission and the Heritage Preservarion Commission of the City of
Saint Paul was held Thursday, November 6, 2008, at 5:45 p.m. in the Conference Center of City Hall.
Commissioners Mmes. Donnelly-Cohen, Lu, Morton, Wencl; and
Present: Messrs. Alton, Barrera, Bellus, Goodlow, Gordon, Johnson, Kramer, Nelson,
Spaulding, and Wazd.
Commissioners Mmes. �Fazigy, *Porter, *Smitten, and Messrs. *Commers, and *Margulies.
Absent: �
*Excused
Also Present: Heritage Preservafion Commissioners: Paul Larson, Chair, John Manning, Lee
Meyer, Carol Carey, Pat,Igo, Steve Trimble, Carole Kralicek, Shari Taylor
Wilsey, Susan Bartlett Foote, Mark Thomas and Diane Trout-Oertel. Amy
Spong Christine Soulware, and Cory Rucker, Department of SafeTy and
Inspections staff. Larry Soderholm, Planning Administrator; Lucy Thompson,
and Sonja Butler, Department of Planning and Economic Development staff.
I. Chair's Announcements
Chair Alton said that he was pleased the Heritage Preservation Commission (HPC) and the
Planning Commission could have this joint mee5ng on the Historic Preservation Plan. Chair
Alton then ask all the commissioners to introduce themselves, and announced upcoming
meetings.
II. PlanningAdministrator'sAnnouncements
Larry Soderholm said that he had received a requestfrom the Metropolitan Council for people
who would like to be on Station Art Committees to advise them on public art installations at
Central Corridor Stations. (The HPC was specifically asked for representatives because of the
Lowertown and University-Raymond historic districts.)
IV. PUBI.IC HEARING: Historic Preservation Chapter—Item from the Comprehensive Planning
Committee. (Lucy Thompson, 651/266-6578 or Amy Spong, 651/266-9079)
Chair Alton announced that the Saint Paul Planning Commission and the Heritage Preservation
Commission aze holding a joint pub(ic hearing on the Historic Preservation Chapter of the
Comprehensive Plan. Notice of the public heazing was published in the Legal Ledger on
October 9, 2008, and was mailed to the citywide Early Notificafion System list, preservation
advocacy organizations and agencies, and other interested parties.
Amy Spong, FIPC staff, said how exciYed she is to be at this point. T'he need for a I�istoric
Preseroarion Plan has been fialked about for many years. This is the first time one will be adopted
as pazt of the Comprehensive Plan. To do this Plan, the City received a$17,000 grant from the
State Historic Preservation Office, which it matched with cash and staff in-ldnd services.
Anne Ketz, from the 106 Group, the City's consultant on the Plan, gave a brief overview of the
planning process, key guiding principles, and how the Plan is envisioned to be used. In terms of
process, there was a community-based task force, as well as a Ciry staff team. The task force
consisted of a broad range of perspectives—residents, preservation advocacy groups, tradespeople
working on preservation projects, and presetvarion experts. A Core Team from City departments
was used to ensure that the strategies in the Plan have City buy-in, and are politically and
financially_ feasible. Ms. Ketz stated that the Plan is not intended to be prascriptive, but to
establish a philosophy of preservation for the city. R is a vision for the city on how to make
preservation work with economic development, sustainability, quality of life, and maintaining a
sense of place. The City has done a lot of preservation over the years, but efforts have been very
inconsistent. With this Plan, there will be a shared vision.
Lucy Thompson, PED staf� reviewed the seven strategies in the p2an. The Preservation Plan
serves two "masters." WhiYe it is a Comprehensive_Plan Chapter that will guide planniag policy
for the City of Saint Paul, it is also a strategic plan for the Heritage Preseryarion Commission.
Ms. Thompson said she received three written comtnents on the Plan, which were included in the
Commissioners' packets.
Chair Alton read the rules of procedure for the public hearing.
The following people spoke:
1. Ms. Karen Reid, Neighbor Development Alliance, 401 South Wabasha, Saint Paul, NIN.
55107. Ms. Reid's concem is that the Plan needs to come to grips with tfie true cost of its
implementation. She said that in affordable housing projects, there cau be trade-offs
b@tween e�erior preservation work and improvements that reduce ongoing household
operating costs. Ms, Reid suggested changes to Appendis 2 to clarify the goal of the
District del Sol revitalizarion effort and the nature of ethnic immigration on the West .
Side.
2. Andrew Hine, a resident ofthe historic brewery neighborhood, and Secretary of Historic
Saint Paul (HSP), a non-profit organization dedicated to preserying and enhancing Saint
Paul's cultival and architectural resowces. Mr. Hine said that HSP believes preservation
is more than feel-good activism; it huly is an economic driver. It is hard to imagine Saint
Paul without the Glockenspiel, Happy Gnome, Landmazk Center, University Club and
other historic places. While modern architectiue is appreciated and construction of new
buildings is encouraged, saving vaivabte assets is the sensible and prudent tfiing to do.
Historic Saint Paul looks fonvazd to helping the City idenfify and preserve wfiat we have.
Chad Kulas representing the Saint Paul Area Chamber of Commerce. Mr. KuLas. said that
the Chamber recognizes the importance of historic preservarion. Eazlier this yeaz, they
conducted discussions about downtown Saint Paul. Over 1 QO business awners, residents
2
D� /�!�
and other community members people participated, and all spoke of the importance of
maintaining the old, beautiful buildings we have throughout downtown. Historic
preservafion plays a very important role, but there aze many other factors to consider
when it comes to development. On page 8 of the Historic Preservation Plan, 1.11 states
"to give preference to projects with historic preservation components when considering
all capttal improvement funding requests." The wording in that section leads one to think
historic preservation should have a preference over otherfactors, such as economic
vitality, job creation or transit-oriented development. Saint Paul has a reputafio� of
making it azduous to redevelop, and the Chamber does not want to see that reputation
grow. Saint Paul has a history of doing great work when it comes to histaric
preservation. The Chamber believes it will continue that tradition, and wants to ensure it
is done with a balanced approach.
4. Patricia Lindgren from Councilmember Thune's Oftice said Dave Thune is very excited
about the Plan. He reaTizes how important our historic assets are, but that is not why she
came. Ms. Lindgren was sent by the Executive Director of the District 5 Planning
Council to state that they strongly recommend a role for district councils before the
demolition of historic properties. On East 7`� Street, the cunent demolition of an
enormous number of historic assets is causing great concern for Districts 4 and 5.
C6mmissioner Spaulding wanted clariFication from two of the individual's testimonies regarding
the mention of preferential treatment for historic issues within the capital improvement budget.
Amy Spong said the intent is to put preservation on an "even playing field" when decisions are
being made. HPC Chair Lazson added that the issue over the yeazs has been whether an existing
building is looked at as a resource, prior to any new development.
MOTION: Commissioner ponnetly-Cohen moved to close the public hearing, leave the record
open for written testimony unti14:30 p.m. on Monday, Novembet 10, 2008, and to refer fhe
matter back to the Comprehensive Planning Committee for review and recommendation.
Commissioner Wencl seconded the motzon. The motion carried unanimously on a voice vote.
HPC Commissioner Carey asked for a description the process as the Plan moves forwazd towazd ,
adoption.
Larry Soderholm, PED staff, said there aze six cityrvide chapters of the Comprehensive Plan that
are moving through the Planning Commission. The Compreheasive Planning Committee of the
Commission is reviewing public testimony on each of the chapters. The committee will make a
recommendation to the full Planning Commission, which in turn expects to recommend them to
the Mayor and the City Council in December and January. The City Council can choose whether
it wants to hold its own public hearings on the chapters. Then the Cauncil will adopt them,
contingent on approval by the Metropolitan Council. The deadline for the City to send a fully
complete Comprehensive Pian, which meets legal requirements, to the Met Council is May 25,
2009.
HPC chair Larson said the HPC will want to provide its comments to the Planning Commission,
and can also sent its separate recommendation to the Mayor and the City Council.
Lucy Thompson stated that this step--a Preserva6on Chapter for the Comprehensive Plan--is an
important moment for the City. To be able to consider preser'vation in the context of the other
XI.
Comp Plan chapters will strengthen its role in making Saint Paul a great place to live, work and
play. Also, this effoR has brought together the Planning Commission and HPC, and commits
them fo work together on implementarion, which is another big step
Adjoummenb
Meeting adjoumed at b22 p.m.
Recorded and prepared by
Sonja Butler, P[anning Commission Secretary .
Planning and Economic De4elopment Department,
City of Saint Paul '
Respectfully submitted,
�+'
Larry S d holm, AICP .
Plannin dministrator
Approved � � 6 �
- ate�
Mazi[ orter
Secre ofthePlanning ommission
B Wer�FlemingWovember 6, 2008
Public Hearing - Historic Preservation Chapter of Comp Pian
�i-/9�
Page 1 of 2
Amy Spong - Public Hearing - Historic Preservation Chapter of Comp Plan
-�.,,.�A ._��,�.-F� �_��_. �_.��:���ti-_���:_ ._ _ ��.� �,. _. _
From:
To:
Date:
Subject:
CC:
Attachments:
"Warns, Benita B - Eagan, VfN" <benita.b.wams:�usps.gov>
<thompso n(a�)ci. stpaul.mn. us>
10/20/2008 3:07 PM
Public Heazing - Historic Preservation Chapter of Comp Plan
'Zarry Soderholm" <Lany.Soderholm@cistpaui.mn.us>,
<lucy.thompson@ci.stpaul.mn.us>, "Russ Stark" <Russ.Stark@cistpaul.mn.us>
Picture 038.jpg; Picture 037.jpg
Please enter this e-mail into the official record for the public hearing on the Historic Preservatlon Chapter of the
City of St. Paul Comprehensive Plan.
Overali I feel that this task force has done a good )ob in crafting a plan that piaces value on not just our historic
structures but their context. There are a few items that I wouid like to see addressed in a more detailed manner
than in the current plan
First is the issue of design guidelines for infill housing. This issue is very important, especially in older
neighborhoods. I want to see stronger language Yhat would ensure that new housing that is built on infill lots is
architecturally compatible with the existing housing. lnfill housing must also be compatlble with existing housing
with respect to mass, height, and setback. There are many instances where infill housing in styles from the
1950s, 60s, or even 70s is built between rivo houses that date from the early 1900s The result is incongruous
and is not aestheticaily pleasing. Although landscaping and tree growth over time can soften the impact of these
jarring juxtapositions, they still cause visual conflict that makes a block less invi4ing. Corner lots are even more
problematic. There are many examples where small houses are built on corner lots with the main entrance facing
the side streek, whi4e the home's address is on the mam blockiace. One universal design guideline should I�e to
prohibit the main entrance of a home to be on a side street uniess the address is also on that side street. 7he
height of the new housing should also match the predominant height of the majority of the housing on the block
face
Another issue caused by lack of design guidelines is placement of manufactured (mobile homes) housing on infill
lots, especially in neighborhoods Built in the early 19QOs. These structures are plopped down on lots without
providing basements, and they look substantially different and are far smaller than anything else on the block. A
primary example of this problem exists on the southwest corner of Sherburne Ave. and Simpson Street. A
"double-wide" was placed on a vacant corner lot and its main entrance faces the side street (Simpson). The
address of this property is on Sherburne Ave The structure is one story high and made with modern,
prefabricated ma4erials. The surrounding homes are all two stories or more high and built with wood frame
construction in the styles of the early 1900s. This type of infill housing should be strictly prohib�ted. See the
attached photos.
Second is the issue of preservation of architecturaily attractive buildings that may not be of historic signficance
but do provide an historic context with the adjacent neighborhoods. I see this becoming an acute probiem along
University Avenue due to the Central Corridor project and the new rules governing the adjacent overlay districts
7here are some very attractive buildings with brick facades and intense detaihng that should be preserved
However, the reuse potential for such structures is not dense enough to satisfy overlay district requ�rements, and I
fear that many of these attractive buildings will be torn down in order to build more of the modern, pseudo-vintage,
high-density "people warehouses" currently cropping up in various places around town. i am also very concerned
about the impact such new structures wi{I have on ad}aceni vintage single-fam+ly homes that share an a44ey with
properties on University Avenue. I believe that the City should conduct an inventory of such structures and write
specific preserva4ion objectives into the Central Corridor Overlay District rules to prevent the structures from
demolition and inappropriate replacements. This step is needed to ensure that the attractive vintage architectural
feel that attracts people to buy homes in the area is not compromised.
Another �mportan4 issue is preserving vintage infrastructure to wmpliment vintage housing. Specifcally I am
file:/1C:\Documents and Settings\spongamy\Local Settings\Temp\XPgrpwise\48FCE75F... 12/15l2008
Public Hearing - Historic Preservation Chapter of Comp Plan
t�r-r9�
Page 2 of 2
talking about sidewalks, steps and retaining walls. We need a City program to offer matching funds on a sliding
scale to encourage property owners to replace crumbling retaining walls and steps with architecturally appropriate
ones. There are many homes with these outdoor elements that have outlived their useful lives and are now close
to failure These are the smal4 details that e+�hance architectural cohesion between ad'}acent structures and give a
crisp, cared-for appearance to a neighborhood. When these elements are in disrepair, it makes a neighborhood
appear in decline, even if technically it is not. Related to this issue is pubhc sidewalks and boulevards, or ihe lack
thereof. ft is not appropriate in pre-Worid War it neighborhood to aiiotiv property owners to opt-out of getting
sidewalks. Lack of sidewalks suggests a suburban conte# rather than an urban one, and gaps in the sidewalk
gnd pattern discourage walking. Sidewaiks should be required on all side streets when they are in an RSVP
(Residential Street Vitality Program) reconstruction area. As for boulevards, the City needs to enforce the rules
concerning heights of boulevard piantings. There are many places where plantings are 3 to 4 feet tall and block
sight 4ines for motorists, pedestrians, and bicyclists. These oversized plantings make it seem like an urban }ungle
rather than providing examples of fine urban gardening.
There is one specific strategy mentioned in the Historic Preservation plan that I oppose, which is on Page 9-
"Give preference in Capital funding for historic preservation over non-historic preservation. I object to this
because the Capital Improvement Budget process is a competitive one and historic merit should not be given any
more weight in the system than at present. On the other hand, it is appropriate 4o sub4ract points if it can be
clearly demonstrated that a project will have a negative impact on historic preservation.
Overall I think the task force has come up with a good plan, but I want to see it expanded somewhat to protect the
histonc feel of neighborhoods fike mine, not just the officialty designated historic districts. It is this quality that
makes many of St. Paul's neighborhoods so attractive to middle ciass people, and it is what wiil keep them here.
If we fail to protect the context of such neighborhoods, we will be overrun with condos and people warehouses
flled wdh one and two bedroom units and wtll become a city without a middle class and wifhout children.
Benita Wams
1440 Lafond Ave
St. Paul, MN 55104-2438
651-641-1037 «Picture 038.jpg» «Picture 037 jpg»
file://C:\Documents and Settings\spongamy\Loca1 Settings\Temp\XPgrpwise\48FCE75F... 12/15/2008
09-19�
October 29, 2008
To: St. Paul Planning Commission
Go Lucy Thompson
From: Tri Area Block Ciub
Go 1111 Abell Street
St. Paul, MN 5� 117
Re: November 6, 2008 Public Hearing on the Historic Preservation Chapter of the St. Pau]
Comprehensive Plan
The 14-square-block tri Area Block Club, located in St. PauPs North End neighborhood,
wishes to submat comment on the Historic Preservation chapter of the City Comprehensive Plan
and to acknowledge the time and effort that staff and task force members have contributed. The
concept of historic preservation should not be considared applicable to a few "selecY' structures
or neighborhoods. The proposed pla� recognizes the distinctiveness of each of St. Paul's
neighborhoods and the many facets that contribute to their history. Comments are as follows:
• Each neighborhood's "sense of place" is unique and the expanded, more inclusivc
definition of historic preservation provides for that.
o It is crucial to "preserve, protect, and enhance the character of St. Paul neighborhoods."
There is an urgency for this in Invest St. Paul neighborhoods that aze particutarly
vuinerable to neglect, decay, alteration, demolition, and redevelopment. It is imperative
to survey the ISP neighborhoods, such as the North End, as soon as possible and establish
a pian of action. Any additional investment and enhancement that rehabilitation can
initiate would greatly assist the ISP goais.
� Partnerships wiCh district councils and the eommunity are key to any efforts, particulazly
in the area of preserving neighbarhood character and related design issues.
m Ov✓ner education must be inclusive and provide for new immigrants/language barriers.
--------- -- --.��_I_�t�a
,(12/15/2008) Am Spong - Fwd. Historic Pre servation C Comments and S uppart Page 1
From: Lucy Thompson
To: Butler, Sonja; Spong, Amy
Date: ?ij3/2008 12:21 PM
Subject: Fwd: Historic Preservation Chapter Comments and Support
Comments from John Errigo. Sonja, can you please make copies tor the Commissioners to be piaced at
their seats on Thursday? Or, do you e-mail or FAX comments ahead of time? Whichever way is easier is
fine by me - j�st sa long as they have them by the time the hearing 6egins.
Thanks,
Lucy
lucy Thompson, Senior Planner
Department of Planning & Economic Development
1300 City Hall Annex
25 W. Fourth Street
Saint Paul, MN 55102
Tel: 651.266.6578
Fax:651.228.3261
lucy.thom pson@ci.stpaul.m n. us
»> '7ohn Errigo" <ierriaoCo�metroqlains.com> il/3/2008 12:04 PM »>
Lucy
I'm unable to attend the Planning Commission public hearing on November
6th regarding the Historic Preservation Chapter of St, Paul's
Comprehensive Plan. While I was fortunate and grateful to be involved
in the discussions that facilitated the development of the draft
document, I wanted to write in iYS support with just a few points for
the Planning Commission and those in attendance at the pubiic hearing to
consider.
1. The committee's intent, I believe, was to encourage historic
preservation in every way possible, but not mandate it. I think it's
fair to say that the committee's vision is that, with the City as a
leader, and education of the general public about the economic benefiCs
of historic preservation, among the other strategies in the draft
report, that most people would embrace historic preservation.
2. The committee also discussed new construction in the context of
historic preservation. I don't think the intent is to always have the
City's neighborhoods look as if it's still 1920. There will continue to
be new investment in our neighborhoods. The City should encourage new
construction to be sympathetic to the existing historic fabric. This
doesn't mean that new homes or commercial buildings should look like
their turn-of-the-century counterparts. This might mean that setbacks
a�d massing are similar to the surrounding nei9h6orhood, but materials
could be modern. Our neighborhoods are great, in part, because of the
eclectic mix of structures. We should recognize that, in 50 or 100
years, structures built today will be historic.
3. People generally think of structures when they define historic
places. The committee intended to aiso define forested lands, open
------- - ____ --._------
____t�i-���__.
;(12/15/2005) Amy Spong - Fwd Historic Preservation Chapter Comments and Support_ __ _ Page 2.
vistas, and streetscapes as historic resources. Think of the
Mississippi River as a historic resource and a community asset that's
worth protecting.
Thanks very much for the opportunity to express my comments and support.
Regards,
John J. Errigo
METROPIains, LLC
This email has been scanned by the MessageLabs Email Security System.
For more information please visit htto://www.messagelabs.com/email
oy-r� �
1661 Portland Avenue
Sa4nt Paut, MN 55 i 04
November I0, 2008
Amy Spong (by email)
Lucy Thompson (by email)
Plaiuiing Commission
City of Saint Paul
Saint Paul, Minnesota
RE: Preservation chapter of the Saint Paul Comprehensive Plan
Dear Amy and Lucy:
I am writing to you as staff of the Saint Paui Heritage Preservation Commission
{the "HPC") and Saint Paul Plamiing Commission, Thank you for your work with the
task force which drafted the preservation chapter under consideration for inclusion as part
of the SainY Paul comprehensive plan.
The City of 5aint Paul wilt experience more economic success if it values and
supports its historic resources. The neighborhoods of Saint Paul, as well as its
downtown, are prized by its xesidents and by visitors for theix unique c�aracYerisrics.
Homogeneity wil] not enhance the future of the City or its ability to attracf taacpayers,
developers, and visitors. For these reasons, preservation must be a key value in fhe
comprehensive plan, and should inform every decision the City and its staff {and related
parties, including the Port AuthoriYy and the Housing and Redevelogment Authority)
make in applying the zoning code, the building code, and planning the future of our City.
The chapter drafted over the last nine months by the task force represents many
compromises by the members of the task force. It is not a radical document. Instead, it
develops seven sh�ategies which will aliow the HSP to inventory and evaluate the historic
properties in the Czty, preserve and protect those resources, and use preservation tools as
a eommuccity, economie development, and sustainability resource. Our Ciry will be
strengthened by its recognition of ihe value of its historic resources. As a City, we will
be benefited by the consensus which comes from ineiuding the preservation chapter in
the comprehensive plan, and can use the document to educate City residents about the
history and legacy of our City, based on the evidence in the built environment. We can
heip staff throughout the various City departments recognize and value historic resources
in assessing decisions about the built environment of the City, on a property by pmperty
basis. At this time, our Ciry faces a crisis ftom the many foreclosures which are
0 �I-l�i�p
Amy Spong
Lucy Thompson
November 10, 2008
Page 2
occurring. T'he imporfance of the preseroation chapter as part of the comprehensive plan
is highlighted by Yhe risk our neighborhoods face in Ioss of hoasing stock and fabric; only
by identifying the lustoric resources aad recognizing their unique vaIues will we be able
to offset the loss the City otherwise will face. Some of these foreclosed properties will
almost certainly become City assets, and the City, even more than private parties, must
vaIue and retain such historic properties.
I am sorry I was unable to attend the pubiic hearing held on Thursday, November
6 Tf I had been in attendance, I would have thanked both of you, the other members of
the task force, the HPC, the Planning Commission, the Mayor, aad City Council far the
leadership shown in considering the nnportance of historic preservation in the futiue of
our City. Please aliow tlus letter to become part of the pub3ic record as an expression of
my thanks. The inciusion of the historic preservation chapier as a part of the
comprehensive plan is a very important first step in instu�ing a sirong Saint Pau1 for the
future.
Ptease eontact me if you have any questions about my comments, or if you want a
clearer statemen4 of my position.
Very truly yours,
V�I✓�- �vY���
Virguiia Anne Housum
ce: Nfichael Margulies, Esq.
3ohn Manning
Paul Lazson
Russ Stark
Historic Saint Faul
Andrew Hine
Philip Waugh
c�i—e 9�
November 10, 2008
Memo
To: St. Paul Planning Commission, Chair Brian Alton
From: Kazen Reid
Re: Historic Preservation Plan/Public Comment
cc: Lucy Thompson
These are brief written comments based on my testimony pro��ided at the public hearing
on November 6, 2008.
My primarily concerns aze in three areas:
1) Prioritization: In Strategy 1: Be a leader for Historic Preservation in St. Paul the
following recommendations were listed:
110 Give preference to historic preservation projects over projects without historic
preservation component when City action, involvement or funding is rec�uested or
required.
1.11 Give preference to projects �vith historic preservation component when considering
a11 capital improvement funding requests.
I think these are too broad statements in a time of diminishing resources when we are
facing housing crises both in the areas of affordability and in areas of disinvestment in
the neighborhoods. When we pxioritize City funds, we need to look at the breadth of
needs that these limited resources must address. Economic — long-term job creation --
and affordable housing investment should not be derailed to focus on historic
preservation. Historic preservation should be one of the components when reviewing
capital improvements and investments aY the citp; not the top.
2) Funding: In the Appendix the report listed a variety of funds including the Community
Development Block Grants. These grants are important tools for both economic and
affordable housing pxojects across the city. These funds have been dropping steadily
over the last 10 years (that Pve been watching the budgets). St. Paul has been barely able
to scratch the surface of affordable housing needs with these funds. With the foreclosure
crises and declining real estate values, this is not the time to expand St. Paul's focus on
usin� CDBG for historic preservation purposes. What is needed is new funds that are
not tied to affordable housing and economic redevelopment. St. Paul would do better to
work on a nationai level to identify historic preservation needs across the nation and seek
new funding sources, not trying to parse a limited local budget. Other sources are listed
in the appendix. But not surprisingly they are probably inadequate to the preservation
needs. AII funding is inadequate to our needs for affordable housing, economic
U-'l-1G�a
development, and transportaxion. To start shifting around a diminishing pot of funds is
not the answer to this "new" prioriTy.
3) In Appendix II the section on "Immigrant and Ethnic Communities" was surprising in
its insensitivity and wholesale ignorance of the breadth of and length of time the Ethnic
and Racial communities have lived in St. Paul. In particulaz (because I v,�ork on the West
Side) the comment ".... and parts of the West Side have been adopted by Mexican
immigrants and named "District del Sol." District del Sol is a marketing slogan
developed under the auspices of Riverview Economic Development Association to attract
visitors to the commercial section of the neighborhood along then Concord Avenue (now
Cesar Chavez). This slogan was adopted less then 10 years ago.
Mare disturbing is the paragraph goes on to say "All immigrant communities, along with
the second and third generations of Americans...." The Mexican immigrants have been
on the West Side for over 80 years. They are second and third and fourth generation
Americans. And of course forgotten is the African-American population, which is ironic
since the Harriet Island Pavilion and the Hibhland Pazk Tower aze listed in the appendix
as on the National Register of Historic Places and were designed by a St. Paul African-
American.
Thank you for the opportunity to comment on this proposed new section of St. Paul's
Comprehensive P1an
Page 1 of 3
�ri�i�
Amy Spong - Historic Preservation Chapter - St Paul Comp Plan - comments from PAM
=_�w� ,.,,Y -��;,�_ �.�� a,��,.� :�� � �--�-a�-.�t�-��<���, _. _._� _ ;- . < ., ,:
From: "Erin Hanafin Berg" <ehberg�ipreservation.org>
To: "'Amy Spong'" <Amy.Spong@cistpaul.mn.us>, <lucy.thompson�cistpaul.mn.us>
Date: 11/10/2008 3:51 PM
Subjest: Historic Preservation Chapter - St Paul Comp Plan - comments from PAM
CC: "'Bonnie McDonald'" <bmcdonald@mnpreservation.org>
Dear Ms. Spong and Ms. Thompson:
I have read through the draft historic preservation chapter for the Saint Paut comprehensive plan and will
provide my comments below. As the Field Representative for the Preservation Alliance of Minnesota, which
advocates for preserving, protecting, and promoting historic resources all across the state, and as a longtime
resident of Saint Paul, I think you have done an excellent job on this chapter of the plan. You make a very
compelling case for engaging historic preservation in all aspects of pianning and economic development. I am
encouraged by the principles and straCegies you have outlined and hope that the city starts taking measurable
steps to bring them to fruition.
Comments:
I admire the boldness with which the plan states, on page 1, that "preservation efforts have been hampered by a
lack of consistent leadership and supportive City policy." It is necessary to identify the obstacles before
overcoming them, I think, and the plan does a good job of spelling out those stumbling blocks. I also appreciate
the definition of historic preservation at the bottom of that page.
How are the principles, as stated in the sidebar on page 1, tied in with the strategies beginning on page 6?
Strategy 1 starts with a reiteration of "Historic Preservation is a core commu�ity value," but none of the other
strategies are directly linked to a principle. I think either they all should make that connection or none of them
should. I do think the discussion paragraphs at the beginning of each strategy section are interesting and
informative, though.
In that first paragraph on page 6, about midway through, I think the cext should be reworded from "Similarly,
the City can impede. ..." to "Conversely, the City can impede. ..." The phrase "encourage the demolition of
historic resources' is very awkward and confusing, given the purpose of this chapter!
On page 3, I am not sure that "Aging building stock and infrastructure" is a"key trend." If it is, perhaps it needs
additional explanation or an example or two? In comparison with the other statements in that section, this one
seems brief and unsupported.
On page 4, I would have liked to see an expianation that these seven strategies (which I think should be
numbered, as they are in the next section) are summarized here and explained in greater detail beginning on
page 6
Page 7, strategy 1.4.a., should start with "Pursue CLG grants" and then inciude "provide matching funds from
the City's General Fund" (or wherever) to show the commitment on the part of the HPC and the city
administration.
Page 7, strategy 1.9:a., is this a reference to City-owned properties designated as heritage preservation sites?
Page 8, strategy 1.13, are there City-owned districts? And would the entire district be up for sale by the City?
file:l/C:\Docuxnents and Settings\spongamy\Loca1 Settings\Temp\XPgrpwise\4918587Em... 12/15/2008
Page 2 of 3
l�/9�
Sidebar page 9, state that D51 is responsible for stoffing and supporting (or administering) the HPC.
I'm surprised that Strategy 2 did not more expliciily call for increased staff (but did add to the HP office�'s
responsibilities by making him/her the coordinator of ail of St. Paul's historic preservation activities.) From my
experience, a city the size of St. Paul should have at least 3 full-time historic preservation professionals to staff
and administer the HPC and related programs, as well as dedicated administrative staff. Perhaps a mention of
the staffing levels in peer cities would help to emphasize the point?
Great list of future historic context study areas in the discussion of Strategy 3. I heartily agree that Post-WWII
development and Modernism are much-needed study areas.
Also, I strongly support the strategies listed on page 15, which provide interim protection for undesignated
historic resources. Demolition is a terminal condition, and all parties must be fully informed before deciding
whether demoliYion is appropriate. Could strategy 4.5 also reference other city agencies, such as an economic
development departmenY, Community Development Corporations, other neighborhood stabilization funds or
initiatives, etc.?
Perhaps sprink{e in some good examples throughout the document? (Great photos, by the way.) For example, I
wanted to see a mention of Grand Avenue in the discussion about Strategy 5. Grand Ave. has to be one of the
most successful commercial corridors in the country, and its mix of historic resources is a good reason behind
that.
I appreciate the complete and forward-thinking list of possible financial incentives. We at PAM are also working
towards some of these initiatives at the statewide and Iocal policy levels.
I am supportive of the conservation district model. I worked with 2 very large conservation districts (of 11
locally-designated districts) while I was a preservation planner in Memphls, TN, and they were very successful.
Will the public have an opportunity to comment on the implementation section in the future?
Thanks for taking my comments into consideration in preparing the final draft of the Saint Paui Comprehensive
Plan. Piease let me know if you have questions about my comments or if I can help in any way.
Best regards,
Erin Hanafin Berg
Field Representative
Preservation Alliance of Minnesota
219 Landmark Center
75 West Fifth Street
Saint Paul, MN 55102
(651) 293-4047
www.mn preservation.org
The Prese�vation Alliance of Minnesota's Ovtreach and Field Servires are funded by a grant from the National Trust for
Nistoric Preservation and generous contnbutians by individual donars throughout Minnesota. The Preservafron AiNance rs
Minnesata's state-wide, non-profit arganization dedicated to preservmg, protecting and promoting ourhistoric resources.
Please consider demonstrating you� support for tbe servrces we provide by/mning the Preservatian ADionce today.
6ttp://www, mnpreservation. org/get-invalved/join/
file://C:\Documents and Settings\spongamy\Local Settings\Temp\XPgrpwise\49J8587Em... 12/15/2008
Page 1 of 1
0% l�l�
Amy Spong - Historic Preservation Chapter
.r-._�_ ,___. _ a,._�. t_�.�����a��,...-_.x.�� -��-�_���. �k..�-�=��r ,_„. -...
From: <MSThomasMD@aol.com>
To: <Amy.Spong@ci.stpaul.mn.us>
Date: 11/10/2008 2:40 PM
Subject: Historic Preservation Chapter
CC: <Lucy.Thompson@ci.stpaul.mn.us>
Amy,
I have these comments about the plan:
1 I wou�d propose that, somewhere in the document, there be a section on acquisition of historic resources,
as weil as what entity or entities should hold land, historic easements, etc. Should this be 4he city, Historic
Saint Paul, the district councils, or another non-profit created specifcally to hold such easements and
property.
2 There should be some element of "monitoring" of the condition of historic resources, monitoring of
easements, etc, on an ongoing basis
3. There should be a suggestion that a research function be added somewhere in the program over time
i.e., research into the effect of resources upon various community assets, such as public health.
Page 1 Introduction, last paragraph, line 6' I think the term "visual aesthetics" would work weil here
Page 5, paragraph 5 I think the term "visual aesthetic resources" might have a place here.
Page 7 1 5, add d psomote communrcatson with residents through more active engagement with distnct
councils.
Page 19, last paragraph, line four adding "visual aesthetics" might he good.
Thanks for your coneideration
Mark Thomas
AOL Search: Your one stop for directions, recipes and all other Holiday needs. Search Now
fi1e:1/C:\Documents and Settings\spongamy\Loca1 Settings\Temp\XPgtpwise\491847C7... 12/15/2008
0�-/�(�
Hello. My name is Andrew Hine and I am a resident of the historic Brewerytown
neighborhood and the current Secretary of Historic Saint Paul, a non-profit organization
dedicated to preserving and enhancing Saint Paul's cultural and architectural resources.
Thank you, Planning Commission, and thank you HPC, for this opportunity to comment
on this important plan. We appreciate the effort that went into this fine draft and aze
excited to help Saint Paul put these recommendations into regular practice.
We believe that preservation is more than just feel-good activism — it truly is an
economic driver. It's hard to imagine a Saint Paul without the Glockenspiel, the Strip
Club, the Happy Gnome, the Landmark Center, the University Club, and other historic
places. That is not to say we do not appreciate modern architecture — we certainly do and
encourage the construction of new buildings that will be saved by our great-great-
grandchildren — but we do agree that a throw-away society is a wasteful one, and that
saving valuable assets is the sensible and pnzdent thing to do.
As Joni Mitchell said, "You doirt know what you've got `ti] it's gone," and HSP looks
forward to helping the City identify what we've got before someone who doesn't care
tears it down. We are good at hitting the streets and scrutinizing the fabric of our
neighborhoods, knowing full well that some structures need to come down.
So please, don't hesitate to keep HSP in mind when the City and its citizens could use our
help.
Thanks again. Are there any questions?
Commissioner Alton: "Any coincidence that most of those places you mentioned are
bars?"
Secretary Hine: "Not much of coincidence, really, Brian."
Respectfully submitted
11/08/08
Andrew M. Hine
757 Armstrong Avenue
Saint Paul, Minnesota
55102-3813
ph 651.292.0660
0��11(�
Item 31, 09-196
(The following was fonvarded from Lucy Thompson. —Mary E.)
»> "John Errigo" <errigo(�metroplains.com> 2/17/2009 10:57 AM »>
Lucy
Hello! Thanks for the heads-up. I can't be there in person tomorrow,
so I'd appreciate it if you could share my comments below with the City
Council and those in attendance.
As you know, the City is preoccupied with fallout from the subprime
mortgage mess, including a large and growing number of vacant houses.
These are all over the City, but primarily in the care neighborhoods
around the downtown area. While progress is being made, efforts to date
have been reactive rather than proactive in nature. This isn't a
function of poor planning. It's a function of the shear magnitude of
the problem that few people, if any, saw coming.
I'm thankful that the City is taking a leadership role in two areas that
will prove critical as further progress occurs. One is infill design
standards, which will have an enormous and positive impact as
reinveshnent accelerates. The other is the new Historic Preservation
chapter of the City's Comprehensive Plan. While most people think of
historic preservation as involving grand old homes, the committee that
originated the draft chapter was also concerned with a broader
definition that includes streetscapes, natural areas, and structures
that might not be officially designated as "historic" but which
contribute to the historic fabric of our City. Together, the new
Historic Preservation chapter and the infill design standards will guide
redevelopment efforts, in a way that promotes livable, vibrant, and
amactive neighbarhoods. These ideas arrive at a critical time for our
City, and i fully support both of them.
Thanks for your time and consideration.
Regards,
John J. Errigo
1234 Palace Avenue
St. Paul, MN 55105