Research Regarding Options for the Development of a Historic Preservation District for the City of Oregon, Illinois Subm

Research Regarding Options for the Development of a Historic Preservation District for the City of Oregon, Illinois Submitted by Mark Herman

Background:

In 2003, the City of Oregon adopted the first city master plan in over 40 years. This plan, developed by Teska and Associates, recommended that the city develop a historic district for the downtown in an attempt to maintain the character of the area around the courthouse square and the shopping district along Washington Street.

Shortly after the new city master plan was adopted, IDOT proposed a plan to upgrade Route 2 and Route 64, which included widening the Route 2 and Route 64 intersection. Several plans were proposed that called for the demolition or partial removal of at least two of the larger buildings near the courthouse square. After much debate the City of Oregon rejected the IDOT plans.

A local citizens group, Save Scenic Oregon, was formed during this period. They asked the City of Oregon to consider setting up a historic district for Oregon's downtown, develop a local historic preservation ordinance and have Oregon become an Illinois Historic Preservation Agency Main Street Community. Save Scenic Oregon has raised the funds to hire a historic preservation consultant to research 45 buildings in the city's downtown area and prepare the paperwork needed to make the area eligible for the National Park Service's National Register of Historic Places.

In July 2005, the City of Oregon hired Mark Herman as a part-time consultant to research what the benefits and drawbacks would be for the City of Oregon, local businesses and property owners for 1) developing a National Park Service National Register of Historic Places historic district, 2) developing a local historic building preservation ordinance and 3) developing a Main Street program for downtown preservation and economic development.

Research Procedures:

For the past few months, the consultant has interviewed state and local officials, visited towns with historic districts, visited towns that are Illinois Main Street Communities and interviewed two dozen Oregon business owners and property owners in the downtown area. Meetings have also been held with members of the Oregon City Council, Ogle County Economic Development Committee, the Oregon Area Chamber of Commerce and Save Scenic Oregon.

When meeting with a local business or property owners, it was explained to them what it would mean to have their building on the National Register of Historic Places. A building owner who chooses to be included in a historic district has the right to maintain the building in any way he sees fit and can even have the structure modified or torn down unless there is a strict local building preservation ordinance. There are federal and state

tax benefits for property owners located in historic districts for the exterior building restoration costs if they follow the guidelines set forth by the National Park Service. If their building is included in a historic district they have the right to have it excluded from the list by writing a simple letter of protest.

Having a town accepted as an Illinois Main Street Community by the Illinois Historic Preservation Agency for a community of less than 5,000 residents requires a survey of th historic buildings in the downtown area and the development of a local historic building preservation ordinance. It also requires the hiring of a full or part time Main Street Program Manager and the support of local elected officials and volunteer civic groups.

Many northern Illinois communities such as Batavia, Belvidere, Dixon, DeKalb, Elgin, Genoa, Harvard, Prophetstown and St. Charles are Main Street Communities. This mak< these communities eligible for federal and state grants and consultation services from the State of Illinois for economic development and historic preservation. There are currently 59 active Main Street communities in Illinois and over 40 other states participating in the program nationally. The City of Rockford has recently become a Main Street Community

As part of the interview with local business and property owners the following questions were discussed:

1. A historic building district would be good for Oregon.

Strongly agree Agree Not sure Disagree Strongly disagree

2.1 would be interested in having my building be part of a historic building district.

Strongly agree Agree Not sure Disagree Strongly disagree

3. The city should set up funds for a building fa9ade restoration program to
help owners of downtown historic buildings.

Strongly agree Agree Not sure Disagree Strongly disagree

4. If a fa9ade program existed would you be interested?
Yes No Unsure

5. The development of riverfront area is important to Oregon's future.
Strongly agree Agree Not sure Disagree Strongly disagree

6. Which is more important historic building preservation or development of the riverfront area?

7. What types of businesses should the city try to attract to the empty downtown buildings.

8. Would your business be willing to contribute funds to support a town historic preservation plan or Main Street economic development type program?

9. What obstacles could keep the City of Oregon from developing a historic district?

10. The Oregon community has a strong arts history with Lorado Taft and tb Eagles Nest Art Colony. The arts should continue to be a part of Oregon's future development.

Strongly agree Agree Not sure Disagree Strongly disagree

rhe Main Street Program:

The Illinois Main Street Program is a preservation based economic and community development program. The northern Illinois communities that were visited were pleased with the results they have seen over the past few years despite the recent lack of state grants. These communities have achieved slow but steady results in preserving their historic downtown areas while improving visitation and business development. Illinois Main Street also serves as a clearinghouse for the latest tools and techniques not only for historic preservation but total downtown development.

The Illinois Main Street Program is a four-tier system consisting of Introductory Communities, Associate Communities, Designated Main Street Communities and Main Street Premiere Communities. In 2004, the City of Oregon became an Introductory Community after Marcia Heuer, Executive Director of the Oregon Area Chamber of Commerce, applied in order to participate in basic Main Street workshops.

The next step would be to apply for Associate Community status for 2006. In order to apply, a representative must attend May 2006 training workshops and then complete a lengthy application prior to September 2006 (this is a once a year application time period) The Associate Community level prepares the community to become a Designated Main Street Community by helping with budgeting, staff training and, most importantly, developing a local historic preservation ordinance custom made for your city. If the city is unhappy with the program they need not apply for the next level.

There has been opposition in the past to have the City of Oregon become a Main Street Community because a paid Main Street Manager is required. For a city of less than 5,000 people such as Oregon, a paid manager would be required once the city achieved Designated Main Street status most likely in 2007. Even then, only a part-time paid manager is required for a city our size and this person may be funded from a variety of sources other than tax dollars.

Oregon has a large Chamber of Commerce and a new Ogle County Economic Development Organization whose goals overlap with some of the Main Street program functions. A good Main Street program with the proper manager should help with community organization and economic restructuring in order to strengthen the city and downtown base. These organizations must work together for the program to succeed.

Another option for historic preservation through the Illinois Historic Preservation Agencj is to become a Certified Local Government. This program allocates state funds each year for local participating governments that have a historic preservation commission and have demonstrated interest, knowledge and expertise in historic building preservation. The city must have a strong historic building preservation ordinance and develop a commission of local experts in history, architecture and archeology. Oregon is not prepared for this type of program and it should not be considered at this time.

Recommendations:

1). In March 2006, Save Scenic Oregon will hire Alice Novak to begin to survey approximately 45 buildings located in the courthouse square and along the business district on Washington Street. She will then apply to the Illinois Historic Preservation Agency to have the area placed on the National Register of Historic Places as a historic district in June 2006. The city should endorse this plan. The benefits to the city are many and it is entirely honorific for landowners.

2). The City of Oregon should send a representative to the Illinois Main Street training meeting in May 2006 and prepare an application to become an Associate Community prior to the September 2006 application deadline. This once a year application can only be submitted at this time.

3). After applying for Associate Community Main Street Community status the city should work closely with Main Street officials to develop an appropriate local historic preservation ordinance. They are experts in this area and it is very important that this ordinance be carefully put together. A well-balanced ordinance is the key to downtown preservation success.

4). The city needs to work closely with the Oregon Area Chamber of Commerce, Ogle County Economic Development Association, Save Scenic Oregon, the Arts Legacy, Oregon Park District and Ogle County Government to better communicate and coordinate the future changes in Oregon's downtown business and riverfront areas.

5). The city will need to hire a part time or full time staff person to coordinate the historic district and riverfront development plans and coordinate with other community groups. Economic development funds could be used for funding such a position. If the city intends in moving forward it must have a staff member who can devote a great deal of time to these projects. Do not continue to depend on volunteers to make change happen.

6). The building that the city owns at the corner of Illinois Route 2 and South 3^rd Street should not be torn down. This is a building that will be included in the historic district. Historic architect, Gary Anderson, surveyed the building and found it to be structurally sound. While the building smells bad inside it can be restored and it is in an excellent location across from the courthouse. This old dentist's office should be used as an office for the Chamber of Commerce, Main Street program or tourism information. If this cornei building is torn down it will leave a hole in the historic business district and could start a "domino effect" of one old building after another going down along Illinois Route 2. Be careful, this site would be a very expensive tiny parking lot and will better serve the city if funds are used to restore the structure.

7). Look into implementing a building fagade improvement program for downtown businesses. There was great interest in this area from both building and business owners depending on how the program is set up and funded.

8). Oregon appears ready to take advantage of its historic downtown buildings ana neglected riverfront area to help improve the local economy. Use the master plan that was adopted in 2003 to allow historic preservation to attract new business, new families, and more tourism to the greater Oregon community.

Survey results of 24 random interviews with local business and property owners located within the proposed historic business district.

1. A historic building district would be good for Oregon.

Strongly agree Agree Not sure Disagree Strongly disagree

8 11 4 1 0

Strong favorable response in theory.

2.1 would be interested in having my building be part of a historic building district.

Strongly agree Agree Not sure Disagree Strongly disagree

8581 1

Many were unsure what restrictions might be put on them and the costs involved

3. The city should set up funds for a building fa9ade restoration program to
help owners of downtown historic buildings.

Strongly agree Agree Not sure Disagree Strongly disagree

11 8 5 0 0

Strong favorable response.

4. If a fa9ade program existed would you be interested?

Yes No Unsure

20 4

Strong favorable response.

5. The development of riverfront area is important to Oregon's future.

Strongly agree Agree Not sure Disagree Strongly disagree

10 10 3 1 0

Most see this as a chance for new development for tourism and recreation.

6. Which is more important historic building preservation or development of
the riverfront area?

Building preservation Riverfront development Both equal

10 68

Preservation is important, but so is the riverfront.

7. What types of businesses should the city try to attract to the empty
downtown buildings.

Responses included service businesses for courthouse, tourist novelty shops, good ice cream shop, upscale restaurant, another pharmacy, clothing stores, shoe store, Lands End type outlet, bicycle shop, Conover Mall type shops, luxury condominiums upstairs, artist studios, shops with unique identity to attract tourism, put in fiber optics to attract internet businesses.

8. Would your business be willing to contribute funds to support a town
historic preservation plan or Main Street economic development type
program?

Two people said yes, four said maybe and the rest said probably not.

9. What obstacles could keep the City of Oregon from developing a historic
district?

Responses included short sided business owners and city officials who expect big gains on short term efforts; attitudes: pessimism; non-local landlords; not having a good leader for the program; fear of government control; individual property owners not being supportive; lack of money; poor parking places; disinterest by public; business/landlords wanting immediate returns on restoration costs; tax increases to cover program; perceptions of restrictions; lack of downtown infrastructure; history of city not following through with promises and poor marketing by the city.

10. The Oregon community has a strong arts history with Lorado Taft and the
Eagles Nest Art Colony. The arts should continue to be a part of Oregon's
future development.

Strongly agree Agree Not sure Disagree Strongly disagree

8672 1

There is an overall positive response, however some do not think the expense of creating art is going to attract people to their business. New statues are controversial.

THE FOUR POINTS

The Main Street comprehensive commercial district revitalization strategy has been widely successful in towns and cities nationwide. Described below are the four points of the Main Street approach which work together to build a sustainable and complete community revitalization effort.

Organization involves getting everyone working toward the same goal and assembling the appropriate human and financial resources to implement a Main Street revitalization program. A governing board and standing committees make up the fundamental organizational structure of the volunteer-driven program. Volunteers are coordinated and supported by a paid program director as well. This structure not only divides the workload and clearly delineates responsibilities, but also builds consensus and cooperation among the various stakeholders.

Promotion sells a positive image of the commercial district and encourages consumers and investors to live, work, shop, play and invest in the Main Street district. By marketing a district's unique characteristics to residents, investors, business owners, and visitors, an effective promotional strategy forges a positive image through advertising, retail promotional activity, special events, and marketing campaigns carried out by local volunteers. These activities improve consumer and investor confidence in the district and encourage commercial activity and investment in the area.

Design means getting Main Street into top physical shape. Capitalizing on its best assets — such as historic buildings and pedestrian-oriented streets — is just part of the story. An inviting atmosphere, created through attractive window displays, parking areas, building improvements, street furniture, signs, sidewalks, street lights, and landscaping, conveys a positive visual message about the commercial district and what it has to offer. Design activities also include instilling good maintenance practices in the commercial district, enhancing the physical appearance of the commercial district by rehabilitating historic buildings, encouraging appropriate new construction, developing sensitive design management systems, and long-term planning.

Economic Restructuring strengthens a community's existing economic assets while expanding and diversifying its economic base. The Main Street program helps sharpen the competitiveness of existing business owners and recruits compatible new businesses and new economic uses to build a commercial district that responds to today's consumers' needs. Converting unused or underused commercial space into economically productive property also helps boost the profitability of the district.

Coincidentally, the four points of the Main Street approach correspond with the four forces of real estate value, which are social, political, physical, and economic.

THE MAIN STREET PHILOSOPHY - EIGHT PRINCIPLES OF SUCCESS

Experience in helping communities bring their commercial corridors back to life has shown time and time again that the Main Street Four-Point Approach succeeds. That success is guided by the following eight principles, which set the Main Street methodology apart from other redevelopment strategies. For a Main Street program to be successful, it must whole-heartedly embrace the following time-tested Eight Principles.

Comprehensive: No single focus — lavish public improvements, name-brand business recruitment, or endless promotional events — can revitalize Main Street. For successful, sustainable, long-term revitalization, a comprehensive approach, including activity in each of Main Street's Four Points, is essential.

Incremental: Baby steps come before walking. Successful revitalization programs begin with basic, simple activities that demonstrate that "new things are happening " in the commercial district. As public confidence in the Main Street district grows and participants' understanding of the revitalization process becomes more sophisticated, Main Street is able to tackle increasingly complex problems and more ambitious projects. This incremental change leads to much longer-lasting and dramatic positive change in the Main Street area.

Self-help: No one else will save your Main Street. Local leaders must have the will and desire to mobilize local resources and talent. That means convincing residents and business owners ol the rewards they'll reap by investing time and money in Main Street — the heart of their community. Only local leadership can produce long-term success by fostering and demonstrating community involvement and commitment to the revitalization effort.

Partnerships: Both the public and private sectors have a vital interest in the district and must work together to achieve common goals of Main Street's revitalization. Each sector has a role to play and each must understand the other's strengths and limitations in order to forge an effective partnership.

Identifying and capitalizing on existing assets: Business districts must capitalize on the assets that make them unique. Every district has unique qualities like distinctive buildings and human scale that give people a sense of belonging. These local assets must serve as the Foundation for all aspects of the revitalization program.

Quality: Emphasize quality in every aspect of the revitalization program. This applies to all elements of the process — from storefront designs to promotional campaigns to educational programs. Shoestring budgets and "cut and paste" efforts reinforce a negative image of the commercial district. Instead, concentrate on quality projects over quantity.

Change: Skeptics turn into believers and attitudes on Main Street will turn around. At first, almost no one believes Main Street can really turn around. Changes in attitude and practice are slow but definite — public support for change will build as the Main Street program grows and consistently meets its goals. Change also means engaging in better business practices, altering ways of thinking, and improving the physical appearance of the commercial district. A carefully planned Main Street program will help shift public perceptions and practices to support and sustain the revitalization process.

Implementation: To succeed, Main Street must show visible results that can only come from completing projects. Frequent, visible changes are a reminder that the revitalization effort is under way and succeeding. Small projects at teh beginning of the program pave the way for larger ones as the revitalization effort matures, and that constant revitalization activity creates confidence in the Main Street program and ever-greater levels of participation.

It should be noted that communities completing the application will be referred to as Introductory communities or programs. The term "Illinois Main Street" is only intended for use in public relations or educational communication, but not for marketing materials or promotional tools, as this could misleadingly convey that the community has achieved full IMS designation - a hard won benefit of competitively selected communities.

introductory communities
Benefits
Workshops and Conferences	Can attend basic workshops and the State Conference to gain information on key downtown development topics.
Local Visits	State staff available as resources permit to do a "walk about" visit and provide downtown revitalization input to local organization.
Telephone Consultation	State staff available for phone consultations.
Newsletter	The "Word on the Street" e-newsletter helps keep a community abreast of the latest downtown news, tools, and techniques.
Eligibility for Annual Awards i	Introductory programs would not be eligible to submit nominations for the annual "Excellence in Downtown Revitalization Awards" program.
Use of Main Street Name, Logo	Because they do not meet the National standard, Introductory programs would be ineligible to use the words "Main Street" in their organization's name or logo.
Requirements
Have a Broad-Based Revitalization Organization	The organization does not have to be an independent non-profit and mav
Have a Broad-Based Revitalization Organization	include ' Chambers of Commerce, economic development entities, neighborhood programs, local government or other structures.
Focus on a Pedestrian-Oriented Commercial District	Introductory programs should be focused on a pedestrian-oriented commercial area with a large number of locally owned businesses.
Take Time to Learn About the Main Street Approach™ and Historic Preservation	This is the foundation of all Illinois Main Street assistance.
Attend Trainings	A community delegate must attend at least one training per year to retain active Introductory status.
Submit an Annual Update	Complete and submit a brief report on the community's downtown revitalization efforts.

How to Apply

Communities may apply by completing an extensive application after attending an Application Workshop. Intake at this level is based on the resources available and the readiness of the communities. Applications are judged for merit by the staff and approved by the Illinois Main Street Advisory Council.

Communities seeking Main Street designation will first participate as an Associate Community. Associate program services help communities build an appropriate organizational and funding base for a comprehensive downtown program as well as help prepare them for Main Street designation.

Communities should expect to work as an

Associate Program for twelve to fifteen months.

Communities must actively participate and build organizational readiness to remain an Associate

Program. If a community does not reach readiness to proceed to Designation within that time, they

will be asked to step down. Communities may reapply for participation at this level as appropriate.

associate communities
Benefits
Workshops and Conferences	May attend all workshops and training sessions offered by Illinois Main Street
Planning Visit	Initial visit after selection to include a start-up checklist and discussion of plans to complete designation requirements.
Organizational Training	Available for Mission/Vision Statements, Workplans, Board Training, Committee Training and New Manager Training.
Additional Assistance	As needed for passing a Historic Preservation Ordinance, forming a not-for-profit corporation or hiring a new manager.
Telephone Consultation	State staff available for phone consultations.
Newsletter	The "Word on the Street" e-newsletter helps keep a community abreast of the latest downtown news, tools, and techniques.
Eligibility for Annual Awards	Associate programs would not be eligible to submit nominations for the annual "Excellence in Downtown Revitalization Awards" program.
Use of Main Street Name, Logo	Because they have not yet achieved the National designation requirements, Associate programs would be ineligible to use the words "Main Street" in their organization's name or logo.

associate communities
Requirements
Ongoing Training	Required to attend State Conference and semi-annual Managers' Meetings
Complete Application; Acceptance	Communities must complete an extensive application which will be judged for merit. Selection will be made by the Illinois Main Street Advisory Council, and accepted Associate Communities notified.
Form a Downtown or Neighborhood Commercial District Revitalization Organization	Associate communities must be willing to form a separate, nonprofit organization with the sole mission of revitalizing the downtown or neighborhood commercial district and serving as an advocate for the "heart and soul" of the community. While not the preferred structure, in communities with a minimal population base, IMS may consider applications where the downtown program is a branch of another organization such as EDC, Chamber of Commerce, or local preservation organizations, providing certain conditions are met.
Work in a Traditional Main Street district	Main Street districts must be a physical setting conducive to applying the Main Street Approach™, including a sufficient mass of buildings and businesses within a compact pedestrian-oriented core area.
Use of the Main Street Approach™	It is a requirement of initial and on-going designation.
Develop Sustainable Funding	Associate programs must be willing to work towards developing sustainable funding for their organization through a variety of sources.
Employ a Program Manager	Associate programs are not expected to employ staff, but must be working towards it.
Monthly Reports	Once a Manager has been employed, complete and return required monthly reports to the State Program.
Submit Designation Binder	A binder proving the accomplishment of the National Main Street Center's Designation Criteria, must be submitted to Illinois Main Street by the last day of the year following the community's acceptance at the Associate level.

designated communities
Benefits
Workshops and Conferences	May attend all available training for the Manager, Board and volunteers. A variety of workshops on downtown revitalization and organizational training will be offered on a regional basis.
Design Assistance