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HISTORIC PRESERVATION /�,iV� /������10�i�"�
Context
n 2o18, New Orleans will celebrate 300 years as a unique and vibrant urban place with an extensive
and living historic character rivaled by few American cities. New Orleans' appealing historic character
is not confined to the French Quarter, Garden District and St. Charles Avenue—the areas that
tourists most commonly visit. For residents of the city's many walkable neighborhoods of shotguns,
cottages and bungalows on both banks of the river,the city's history is part of everyday life. More than
house forms and architectural details,much of the appeal of these neighborhoods comes from their
settings—buildings rhythmically sited on streets lined with canopies of river oaks,parks and neutral
grounds.Together,they make up the historic character of the city in which residents live their lives.
Residents of New Orleans are fiercely attached to the historic character of their neighborhoods.The need
to preserve that character was a top priority at many Master Plan meetings.The city's physical connection
to its historic roots is part of the identity of New Orleanians. Perhaps because it is so ubiquitous,the city's
architectural character is not generally recognized as potentially one of its strongest economic assets for
growing a robust 21st century economy.Among the city's business, economic development and political
leadership,historic preservation is sometimes viewed as an obstacle to progress and a barrier to the city's
growth,rather than an economic asset.
For New Orleans to achieve the vision of 2030,its image will be critical in competing globally for talent,
business and private investment.Today and for the next decade or more,the convergence of market forces
and demographics is putting cities that have historic neighborhoods and"main streets" of local shops
and amenities in the forefront of exciting places to live and do business. Historic preservation is at the
root of retaining this character and has been the foundation of neighborhood revival in cities all over the
country.Viewing historic preservation as a key component in a comprehensive,integrated approach to
neighborhood revitalization,rather than as an isolated function,will enable the city's historic character—
so beloved by residents—to be harnessed more consciously towards a future where innovation and
preservation are linked.
11 II,R Designated Il IIIl staIril''11 Assets
New Orleans'historic resources include federally-designated districts and landmarks on the National
Register of Historic Places,locally-designated historic landmarks and local historic districts, and
neighborhoods outside historic districts that contain a wide variety of buildings dating from more than
50 years ago that are protected from demolition without a historic review because they lie within a
Neighborhood Conservation District.
National Register Landmarks and Districts
As of June, 2oog, New Orleans had over 140 landmarks and ig districts listed on the National Register
of Historic Places.The entire Vieux Carre (French Quarter)has been designated a National Historic
Landmark. National Register districts and landmarks are designated by the US Department of the
Interior and are administered by the State Historic Preservation Office in Baton Rouge. National Register
designation is an honor—designation as a national landmark is the highest historic honor—but does
not have any effect on a property owner's right to modify or even demolish his or her property.There
are approximately 37 000 buildings in the National Register Districts in New Orleans.After Hurricane
PLAN FOR THE 21ST CENTURY:NEW ORLEANS 2030,ADOPTED AUGUST 2010 1 6.1
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Katrina, FEMA funded a very detailed historic survey with extensive photos of a number of New Orleans
neighborhoods: Carrollton, Central City, Lower Garden District, Marigny, Parkview, Mid City,Treme, and
Esplanade Ridge. Expansion of this survey would provide New Orleans with an unparalleled resource.
Local Historic Landmarks and Districts
City-designated historic resources are administered by the Vieux Carre Commission (VCC)—which has
jurisdiction over the French Quarter—and the Historic District Landmarks Commission,which has
a ii-member commission focused on four downtown historic districts (CBD HDLC),and a 15-member
commission with jurisdiction of all the other locally-designated historic districts (HDLC).These
commissions also have jurisdiction over locally-designated landmarks.The Commissions review proposals
in local historic districts that seek to change any part of the exterior of a building that is visible from a
public way for historic appropriateness.They have a similar but more extensive regulatory power over
landmark buildings,where any exterior surface—not just those visible from the public way—is subject
to review.The Commissions also offer technical assistance to property owners and may issue citations
for demolition by neglect (failure to maintain a building to such a degree that it is in danger of becoming
uninhabitable).The historic fabric that comprises its historic districts has been professionally ranked
according to significance. HDLC's Buildings Rating Guide has six categories.The preservation plan for the
Vieux Carre uses these same categories.
Locally-designated historic landmarks are typically located outside of local historic districts, except in
the case where landmarks were designated before a local historic district was created.They include
houses,neighborhoods, churches, cemeteries,public plazas,statues,monuments, college and university
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YDLCIS BUILDI ► _ ►
Buildings of National Importance building retains its original architectural details and makes a
These nationally important buildings include important works notable contribution to the over-all character of a particular area
by architects having a national reputation, buildings or groups of the City.
of buildings designated as National Historic Landmarks by the
National Park Service, or unique examples illustrating American Important Buildings that have been Altered
architectural development. This category includes important buildings that have had much
of their exterior architectural details removed or covered,but still
Buildings of Major Architectural Importance contribute to the overall character of an area.
Buildings in this classification include outstanding examples of
works by notable architects or builders; unique or exceptionally Buildings that Contribute to the Scene
fine examples of a particular style or period when original These buildings generally date from the late nineteenth
details remain; buildings which make up an important, intact century or twentieth century and are typical examples of an
grouping or row;and noteworthy examples of construction architectural period or style.
techniques.
Unrated Buildings
Buildings of Architectural or Historical Importance Buildings that have not been given a specific architectural
This category includes buildings that are typical examples of rating are generally twentieth century structures that have no
architectural styles or types found in New Orleans,when the real architectural value.
campuses,the St.Charles streetcar line, and two steamboats.,A number of local landmarks are also
national landmarks.There are q o 6 properties that are designated or nominated local historic landmarks as
of mid-zoos. Once a building is nominated,exterior changes are subject to review by the HDLC.The HDLC
must prepare a study on the nominated buildings before they are formally designated.
In addition to the French Quarter,there are rq local historic districts. Most local historic districts are also
within National Register Districts,though there are a few cases where the borders of the local districts do
not coincide with National Register Districts and include additional buildings.
Neighborhood Conservation District
The Neighborhood Conservation District(NCD) encompasses an area generally south of I-610 on the East
Bank,the historic districts on the West Bank,and all present and future National Register historic districts.
The purposes of the NCD are: i)to attempt to preserve buildings of historic or architectural value as defined
by the HDLC or that contribute to overall neighborhood character,z)to preserve and stabilize neighborhoods;
3)to promote redevelopment that contributes to historic character,q)to discourage underutilization of
property;5)to advise the City Council as needed on issues related to the conservation of neighborhoods
within the NCD.The NCD Committee (NCDC) is located within the Department of Safety and Permits and is
made up of five community representatives from each City Council district and one representative each from
the Office of Code Enforcement,the HDLC,the CPC and the Department of Health.
The primary role of the NCDC is to review demolition applications for properties within the NCD using
as criteria:current condition; architectural significance;historic significance;urban design significance;
neighborhood context; overall effect on the block face;proposed length of time a vacant site would remain
undeveloped if demolition were granted;proposed plan for redevelopment;and public comment from
neighbors,neighborhood associations or interested organizations. If a demolition permit is denied,
the property owner cannot apply for another on the same building for a year,but can appeal to the City
Council. Exemptions from review include: single story accessory structures not visible from the public
way; demolition of less than 50 percent of the floor area and not including the front facade; structures
within the jurisdiction of the HDLC or otherwise subject of demolition review;structures deemed to be in
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1 For a complete list of designated and nominated landmarks,visit http://cityofno.com/pg-99-28-landmarks.aspx.
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imminent danger of collapse.The Neighborhood Character Area Study prepared for this plan can be used to
inform demolition decisions by the NCDC(see Appendix).
In other cities, Neighborhood Conservation Districts (NCDs) often include design guidelines based on an
evaluation of neighborhood characteristics, so that additions,renovations and new development is reviewed
for compatibility with existing neighborhood character. Design guidelines in NCDs are more lenient than in
local historic districts and in many cases are developed with neighborhood participation, so that the level of
regulation and type of regulation is acceptable to local property owners.
Illustrated Design Guidelines
The HDLC received a federal Preserve America grant (to be matched with CDBG funds) in summer 2009
to develop new historic preservation design guidelines with illustrations.This publication will bring New
Orleans up to date with comparable cities in providing guidance to owners of historic properties.
2,,,, Stakel,,,idlders and Resmirces
In addition to the HDLC and VCC,there are several preservation organizations active in New Orleans.
Preservation Resource Center(PRC).The
Preservation Resource Center is a non-profit
founded in 1974 as an advocacy organization
which has expanded into programs to rehabilitate
historic houses. Its 45 staff members provide
technical assistance,rebuilding assistance,
advocacy on larger citywide preservation issues,
and some financial assistance to community- 11110
based restoration efforts to encourage renovation IMAGE PRESERVAMN RESOURCE CENTER.WWWPRCN0.0RG
of historic houses in New Orleans. PRC programs
include:2
• Operation Comeback:Purchase,renovation, and resale of vacant historic properties since 1987,with
heightened focus since Hurricane Katrina.A revolving fund provides continued resources for new
projects, and the Adopt a House program seeks donations to support more housing rehabilitation.
The program works with the City's first time homeowner programs to provide affordable housing in
rehabilitated historic proper-ties.
• Rebuilding Together.An affiliate of a national organization, Rebuilding Together brings volunteers to New
Orleans to assist in repair and renovation of homes for low-and moderate-income homeowners who are
elderly,disabled, or first responders. From 20o6 to mid-2009,21g housing units have been repaired in
New Orleans,with 38 in progress,using the labor of over ii,000 volunteers.The program works with
neighborhood associations to identify eligible homeowners.
• Prince of Wales Building Crafts Apprentices program:Through the PRC, applicants who meet certain criteria
(such as enrollment in Delgado Community College-Louisiana Technical College,or active membership
in certain unions,or permanent residency in the Lower 9th Ward) can apply to receive stipends allowing
them to attend the Prince of Wales program in England.
• Ethnic Heritage Preservation Program:The PRC developed this program with the African American
Heritage Preservation Council through a partnership with Dillard University.A database of jazz-related
sites is being developed and two plaques have been installed on buildings associated with jazz artists.
• Preservation Easement Program:Owners of historic properties can donate an easement on the property's
facade to the PRC in return for a tax donation.The easement gives the PRC the authority to approve or
disapprove changes to the facade.
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2 For more information,visit www.prcno.org.
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i
Purpose Encourage the preservation of historic Encourages the preservation of historic Encourage taxpayers to preserve and
buildings through incentives to support buildings through incentives to support improve their homes by offering a tax
the rehabilitation of historic and other the rehabilitation of historic and older credit on rehabilitation costs
older buildings buildings
Eligibility Income producing property individually Income producing property that is a An owner occupied building that is a
listed on the National Register(NR)or a contributing element within a Downtown contributing element to a NR District,
contributing element within a National Development District or Cultural District a locally designated historic district,a
Register Historic District of Historic Preservation Main Street District,a Cultural District,
or a DDD;a residential structure that is
listed or is eligible for listing on the NR;
or a vacant and blighted building at least
50 years old
%of Credit 20%of construction costs and fees 25% 25%credit=AGI less than or equal to
GO Zone-26%for costs incurred from $50,000.
August 28,2005 through December 31, 20%credit=AGI$50,001—$75,000.
2009 credit 15%credit=AGI$75,001—$100,000.
10%credit=AGI$100,001 plus.(Avail-
able only for vacant and blighted resi-
dential buildings at least 50 years-old.)
Minimum The rehabilitation must exceed the $10,000 $20,000
Expenditure adjusted basis of the building.If adjusted
basis is less than$5,000,the rehabilita-
tion cost must be at least$5,000.
Credit Cap None $5 million per taxpayer within a particu- $25,000 per structure
lar DDD
Application Submitted to DHP and forwarded to NPS Submitted to DHP.Part 1 certifies the Preliminary Application—A establish
with recommendation.Part 1 certifies building as historic.Part 2 describes the initial eligibility.Proposed Rehabilitation
the building as historic.Part 2 describes proposed rehabilitation.Part 3 is final Application—B determines if the
the proposed rehabilitation.Part 3 is final certification of completed work. proposed rehabilitation is consistent
certification of completed work. with the Standards.Certificate of
Completion—C is the final certification.
Fees Initial fee requested by NPS of$250 with $250 with Part 2 $250 with Proposed Rehabilitation
Part 2;final fee is scaled to the size of Application—B
the rehabilitation
Program Secretary of the Interior's Standards for Secretary of the Interior's Standards for Secretary of the Interior's Standards for
Standards Rehabilitation Rehabilitation Rehabilitation
Taking the Credit is claimed for the year the project Credit is claimed for the year the project The tax credit is divided into 5 equal
Credit is completed and has received an is completed and has received an ap- portions,with the first portion being used
approved Part 3.Unused Credit can be proved Part 3.Any unused credit may be in the taxable year of the completion
carried back one year and forward for carried forward for up to 5 years.This date,and the remaining portions used
20 years. credit may be sold to a third party. once a year for the next four years.If the
full credit for one year cannot be taken,
the owner will receive that amount as
a refund.
Recapture If the owner sells the building within 5 If the owner sells the building within 5 If the building is sold during the five-year
years of the rehabilitation,he loses 20% years of the rehabilitation,he loses 20% credit period,all unused credit will im-
of the earned credit for each year short of the earned credit for each year short mediately become void.
of the full 5 years. of the full 5 years.
Phone:(225)342-8160 Website:www.louisianahp.org
SOURCE.,LOUISIANA DEPARTMENT OF OULTURE,RECREATION AND TOURISM.HTTP://WWWCRTS'rATCe.LA.USIHPITAXOREDI F.ASP X.RETRIEVED
AUGUST2009.
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Main Streets. Main Street programs,mentioned earlier in
Chapter 5—Neighborhoods and Housing,were first developed to
revitalize historic commercial districts and their program structure
continues to serve as a strong foundation for preservation of
historic commercial areas.
The Green Project.The Green Project is a nonprofit organization
that operates a warehouse store which resells high-quality salvaged
building material,much of which comes from historic structures
that have been deconstructed rather than demolished)
The national Main Streets pro-
Tourism.While some of the city's tourism promotion efforts gram provides resources to assist
capitalize on the city's historic character and image, and there are communities in revitalizing historic
a few tours of historic sites and districts offered by guide services, commercial districts.
many New Orleanians see historic preservation as focused on the
more traditional tourist areas of the city,particularly the French
Quarter and the Garden District. However,there is significant
potential for expanding tourism activity into some of the other
historic areas of the city,which could lengthen the visitors' stay,
and would benefit residents and neighborhood-serving restaurants
and businesses as well as visitors.
Cultural preservation linked to historic preservation.
The African American community tends to be less active in
preservation organizations and initiatives,though many of New
Orleans'historic buildings were constructed and inhabited by the
city's African American working class. Moreover,these historic
neighborhoods are the birthplaces of jazz (Trem6 and others) and
cultural traditions that are integral to New Orleans identity.
3 11,, II1 lilstarilc IIBLi Ilii ldIlia ngS
The ambiance created by the ensemble of historic buildings in There is significant potential for
neighborhoods—rather than monumental public buildings—is expanding heritage tourism activity
what attracts many people to New Orleans. Much of this vernacular into historic areas of the city that
historic housing in New Orleans was built for working people and currently do not benefit from the
for residents of modest means. Building rehabilitation practices tourist trade.
mandated by historic district regulations are perceived as expensive
and a barrier to historic renovation by low and moderate income
owners. For developers and landlords,the gap between renovation costs and market sales or rental rates
can be a deterrent, adding to the potential for continued disinvestment
in some neighborhoods with historic building stock or, alternatively,
rehabilitated buildings become unaffordable to the workforce for whom they
7 T were originally intended. Over time,the socioeconomic diversity of entire
neighborhoods—and integral part of the"historic character"that so many
New Orleanians seek to preserve—is eroded.
In 2oo8, Louisiana Act 431 created the Magnolia Street Residential
Neighborhood Enhancement Program,within the Department of Culture,
Recreation, and Tourism.The Magnolia Street program,which is modeled
after a successful program in Pennsylvania,is similar to the Louisiana Main
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3 www.thegreenproject.org.
6.6 1 PLAN FOR THE 21ST CENTURY NEW ORLEANS 2030,ADOPTED AUGUST 2010
VOLUME 3 1 CHAPTER 6 1 HISTORIC PRESERVATION
Street Program. Magnolia Street helps residential districts
near a Main Street district implement a revitalization strategy.
The program will provide residential reinvestment grants for
infrastructure and structural improvements, such as streets,
street lights,trees, exteriors of buildings, and sidewalks.The
program will also provide an assessment of educational and
recreational opportunities and facilities within an area, as well
as provide grants to market and promote urban residential
living and promoting home ownership within the residential
areas.The program is
being stewarded by the
state Department of Culture, Recreation, and Tourism and is still in
the process of getting started.4
Like many other older cities, New Orleans has a number of historic
institutional buildings that will need to find new uses,many in the
middle of residential neighborhoods.These buildings contribute
to the historic character of their surroundings.The recent School I',,.'A'A ............
Facilities Master Plan notes that: "some older school buildings will no
longer be practical for use as educational facilities," and recommends
that they be "evaluated for their historic qualities and preserved and/
or adaptively reused for housing, offices, or other community uses."
Schools, churches, convents, and similar historic assets have found
new life around the country (and in New Orleans) as housing, arts
centers,business incubators and other modern uses.
The maritime industrial heritage of New Orleans is reflected in
many historic structures on the riverfront and in its numerous
historic warehouse and factory buildings. However,many are
currently outmoded for modern industrial purposes and vacant
or underutilized.The Warehouse District,where many historic
warehouse buildings have been converted to artist studios,galleries,
offices,restaurants, and housing,provides one precedent for adaptive
reuse of industrial structures.
Cembicry
New Orleanians'sense of historic identity is linked to the remaining 18th and 19th-century buildings in
so many neighborhoods. However,buildings over 50 years old are generally considered candidates for
historic preservation status. In addition to buildings from the first half of the twentieth century, such as
the Art Deco Charity Hospital building,New Orleans also has examples of Modernist and Mid-Century
architecture and neighborhood design,whose preservation value should be evaluated,including City Hall,
several mid-century schools, office buildings and single-family homes.The architectural community has
tended to be the strongest advocate for preserving mid-century buildings.
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4 http://senate.legis.louisiana.gov/Gray/Topics/2008/julynewsletter.pdf
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Like many American cities with important historic building stock and a strong preservationist community,
New Orleans has yet to develop the easy integration of contemporary and historic architecture that is more
often found in Europe. Development of a set of guidelines for compatible contemporary design is needed
to assist property owners and developers. Guidelines and criteria for evaluation would encourage more
developers to use architects rather than engineers to design new buildings within historic contexts.
What The Public Said
Previous plans for New Orleans—particularly the Unified New Orleans (UNOP) and Neighborhood
Rebuilding Plans (Lambert)plans—placed top priority on preserving the overall character of
neighborhoods and eliminating blight. Many individual plans expressed residents' desire to ensure
renovation of historic structures wherever possible (though demolition for reasons of health and public
safety was also a high priority). Preserving New Orleans' arts and cultural heritage and the socio-cultural
diversity neighborhoods were frequently mentioned in these plans.
During the Master Plan process,public
attention focused particularly on the
following historic preservation concerns:
• Adopt a more holistic view of
preservation as not just the renovation
of physical structures but also the
restoration of social and cultural
heritage.
I,sw
• Move away from a "museum-ification”
and the "curatorial" approach to
preservation and towards a more
useful,functional, "living,breathing" °
form of preservation.
• Expand preservation initiatives to
include social and cultural heritage.
• Preserve the overall historic character of neighborhoods,including their mix of uses,walkability, density,
scale, architectural styles, and diversity of housing types.
• Preserve the character of streets and public spaces,including tree canopies,benches,landscaping, and
both formal and informal gathering places.
• Encourage historic preservation throughout the city,not only in tourist-oriented areas
• Encourage the preservation of artisan skills and trades.
6.8 1 PLAN FOR THE 21sT CENTURY:NEW ORLEANS 2030,ADOPTED AUGUST 2010