HomeMy WebLinkAboutItem 5 - Strategic-Historic-Plan_Final-8-2009 Strategic Historic Preservation Plan
San Antonio, Texas
Prepared for:
City of San Antonio
Prepared by:
The Lakota Group
Urban Development Services
Adopted August 20, 2009
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San Antonio Strategic Historic Preservation Plan
Contents
Plan Contents
ACKNOWLEDGEMENTS
EXECUTIVE SUMMARY.........................................................................1.1
INTRODUCTION
PLANPURPOSE......................................................................................................2.9
PLANNING PROCESS...........................................................................2.12
HISTORIC CONTEXT
CITY ARCHITECTURE+HISTORIC RESOURCES....................................3.17
•SETTLEMENT+THE SPANISH COLONIAL PERIOD.............3.18
•THE GILDED AGE.................................................................................3.19
•EARLY 20TH CENTURY........................................................................3.20
•MODERNISM...........................................................................................3.21
STATE OF THE CITY
SANANTONIO TODAY.......................................................................................4.25
BENEFITS OF HISTORIC PRESERVATION..................................................4.27
OPPORTUNITIES+CHALLENGES..............................................................4.30
•SURVEY+DESIGNATIONS..............................................................4.30
• DESIGN REVIEW.................................................................................4.36
• CITY PLANNING.................................................................................4.38
• CITY ZONING.......................................................................................3.48
• ECONOMIC DEVELOPMENT.......................................................4.56
• INCENTIVES..........................................................................................4.59
• CITY COMMISSIONS + AGENCIES..............................................4.67
• EDUCATION + ADVOCACY............................................................4.72
• OTHER PRESERVATION PLANNING ISSUES...........................4.75
.HISTORIC PRESERVATION PLAN
■ OVERVIEW..............................................................................................5.78
■ CITY PLANNING STRATEGIES....................................................5.82
■ CITY ZONING STRATEGIES..........................................................5.90
■ ECONOMIC DEVELOPMENT STRATEGIES...........................5.97
■HISTORIC RESOURCES STRATEGIES........................................5.102
■REHABILITATION INCENTIVES STRATEGIES.....................5.107
■EDUCATION+ADVOCACY STRATEGIES...............................5.115
IMPLEMENTATION MATRIX......................................................6.122
San Antonio Strategic Historic Preservation Plan
Acknowledgements
CITY COUNCIL Yvette Thomas, Planner King IUilhamAssoaation
Julian Castro,Mayor Chris Sills, Planner Brad Shaw
Mary Alice Cisneros Molly Matthews, Planner
Maria Villalobos,Executive Lavaca Neighborhood Association,
Ivy Taylor Seahn Lobb
Jennifer Ramos Secretary
Philip Cortez STEERING COMMITTEE Los Compadres de San Antonio
David Medina,Jr. Missions National Historical Park
Ray Lopez AIA-San Antonio Chapter, Susan Chandoha
Histonc Resources Committee
Justin Rodriguez William A. DuPont Monte Vista Historical Association
W. Reed Williams
Chris Raba
Elisa Chan Alamo City Black Chamber of
John G. Clamp Commerce Monticello Park
Gwendolyn Robinson Rob Sipes
Sheryl Scully City Manager American Planning Association
TC Broadnax,Assistant City Brian Chandler Olmos Park Terrace
Manager Betty Eckert
Bexar County Historical
HISTORIC AND DESIGN REVIEW Commission Paseo Del Rio
COMMISSION Virginia Nicholas Kevin Donohue
Xavier Gonzalez, Chair
Central Texas-Balcones Chapter of Planning Commission
Tim Cone, Vice Chair US Green Building Council Marcello Martinez
David Beyer Heather DeGrella
Ed Cabel Professional Engineers in Private
Eva Esquivel Dignonity Hill Neighborhood Practice
Sam Luna Association Garland Burch
Bianca Maldonado Nettie Hinton
Alex Nava Real Estate Council
GovernmentHillANance Larry Helmer
Terry Palmer Florence Alcoser
OFFICE OF HISTORIC River Commission
Greater San Antonio Builders Lori Houston
PRESERVATION Association
Shanon Peterson Wasielewski, Becky Oliver San Antonio Conservation Society
AICP, Histonc Preservation Officer (SACS)
Greater San Antonio Chamber of Marcie Ince, Rollette
Kay Hindes, City Archaeologist Commerce
Schre ckengho s t-Smith
Larry Gutierrez,Senior Planner Darryl Byrd
Elizabeth Porterfield, Senior San Antonio Hispanic Chamber of
gCommerce
ManagementAnalyst Historic and Desi Revieav
Commission Ramiro A. Cavazos
Anna Glover,Planner Tim Cone,Xavier Gonzalez
San Antonio Strategic Historic Preservation Plan
CITY DEPARTMENTS Planning and Community
Development Department
Capital Improvements Management
Services Sylvia A. Cortez;Patrick B.
Howard,AICP; Corry Lime,
John Cantu,Rodney Dziuk, Chris Looney, Ernest Martinez,
Rueben Guerrero,PE,James M. Nina Nixon-Mendez,AICP;
LeFlore, George Rodriguez,Pat Richard L. Milk,AICP.
Schneider,John Wolters
Public Wlorks
Convention and Visitors Bureau Anthony Chukwudolue, Kent
Scott L. White, Robert Salluce Hickingbottom, Richard
Mendoza,PE;Eloy Rosales
Department of Cultural Affairs
Felix Padron Vestside Development Corporation
Emma Hersh
Department of Community Initiatives
Dennis J. Campa TEXAS HISTORICAL COMMISSION
Department of Doxntopm Operations Larry Oaks,Executive Director
Lincoln St, George,Paula X. and State Historic Preservation
Stallcup, Colleen Swain Officer
Mark Wolfe, Chief Deputy
Economic Development Department Executive Directorl Deputy State
Ed Davis,Adrian Perez Historic Preservation Officer
Dr. Terry Colley, Deputy
Housing and Neighborhood Services Executive Directorl Deputy State
Department Historic Preservation Officer
David D. Garza,Liz Garcia, Derek Satchell, State Coordinator,
Adrian Lopez Certified Local Program Government
Program
Office of City Attorney
Bratten Thomason,Director of
Audrey Zamora Johnson, Savita History Programs
Rai,Joe Nino
Office of Environmental Policy PHOTO CREDITS
W. Laurence Doxsey
COSA Office of Historic
VIA Metropolitan Transit Preservation
Christine Vina Urban Development Services
Parks and Recreation Department
Lyn Kinton, Sandy Jenkins,
Krystal Strong
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P
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EXECUTIVE SUMMARY
San Antonio Strategic Historic Preservation Plan
Section 1: Executive Summary
Executive Summary
In 2009, the City of San Antonio initiated a public planning process to
develop a Strategic Historic Preservation Plan. The Plan's central purpose
was to create a set of achievable goals and strategies for strengthening
the City's historic preservation program. Specific objectives of the
Plan include promoting historic preservation as a tool for revitalizing
neighborhoods and commercial districts, enhancing tourism and cultural
arts activities,creating new jobs and businesses,and managing effectively
the overall design and development of areas and districts within the City
of San Antonio. Most of all, the Plan's overall objective is to inspire
different stakeholders, including residents, business owners, developers,
economic development groups, civic organizations and neighborhood
associations,to share in a common ethic and belief that preservation is an
essential element to the future growth and prosperity of San Antonio.
Plan Approach
A comprehensive approach to assessing the strengths and weaknesses
of the current historic preservation program and in devising solutions
and strategies for short and long-term actions was utilized by the City
for this planning process. Current preservation planning activities and
the operations of the Office of Historic Preservation (OHP) and the
Historic and Design Review Commission (HDRC) were examined along
with how preservation policies were integrated within the City's planning
and economic development initiatives. Opportunities for strengthening
existing partnerships and forging new ones among private sector
advocacy groups, civic organizations and neighborhood associations
were also explored. More novel strategies to achieve preservation
planning goals and objectives were also discussed and tested during the
planning process. For example, form-based zoning was examined as a
useful, practical tool in addressing the issue of encouraging compatible
development in and around historic districts. Last, the consultant team
conducted research and comparative analysis with other major U.S. cities
to measure and assess the relative strengths and weaknesses of San
Antonio's preservation program
In terms of public engagement, the City of San Antonio conducted
a series of workshops and stakeholder group interview sessions to
gauge attitudes and opinions regarding preservation issues and potential
planning strategies. A Steering Committee was also appointed by the City
to help guide the Plan's development and provide critical feedback on
potential planning goals and strategies. A broad range of viewpoints and
stakeholder interests were represented on the Committee,which provided
useful insights and perspectives on significant issues and concerns.
San Antonio Strategic Historic Preservation Plan
Section 1: Executive Summary
Current Conditions
A "State of the City" assessment of current preservation planning
activities was conducted during the first segment of the plan development
process. As part of this assessment, significant planning issues were
examined including OHP and HDRC operations,the historic preservation
provisions within the Unified Development Code, historic resources
survey and designation activities, design review processes, current
preservation incentives and disincentives, and existing education and
advocacy efforts undertaken by the OHP and other private-sector
partners. Conclusions from the State of the City assessment point to
a relatively effective preservation program, especially in terms of the
OHP's regulatory powers,but significant concerns such as various threats
to historic resources and the need to fully integrate preservation within
the City's planning and development processes need to be addressed.
There is also a recognized need to promote historic preservation as a
"growth" and revitalization strategy in San Antonio's inner-core historic
districts and neighborhoods.
Plan Goals + Strategies
Plan goals and strategies were developed during the second, "visioning
phase" of the plan development process presents two principal goals.
Presented below are the key goals and strategy areas presented in the
Strategic Historic Preservation Plan:
City Planning
Incorporating historic preservation elements, such as resource surveys
and historic district designations, into neighborhood and district plans
should be ongoing activities to ensure that historic resources are identified
and reinvestment in them encouraged. Specific strategies include:
9. Create one set of goals and objectives that become the City's official vision
and po§(ies for historic preservation. Two overarching goals and seven
planning objectives are presented to guide City and private planning
and development initiatives within San Antonio. The first goal
is to preserve and protect San Antonio's historic districts, places,
structures,buildings,landscapes, and archaeology. The second is to
strengthen the City of San Antonio's reputation and significance as
a special place of American history and culture. Seven preservation
planning objectives are also presented.
2. Incorporate historic preservation elements in all citynlide, district, and
neighborhoodplanning initiatives. The City of San Antonio has a strong
tradition of neighborhood and district-based planning and many
recent planning projects have included preservation elements.
This tradition should continue and enhanced to include activities
San Antonio Strategic Historic Preservation Plan
Section 1: Executive Summary
such as undertaking resource surveys, cataloging endangered
properties, considering historic public spaces and landscapes within
neighborhood plans, and requiring interpretation of archaeological
resources on public properties.
3. Promote preservation as a "green"and sustainable planning and development
approach. Preserving and reusing historic buildings is an effective
strategy for achieving sustainability since such resources have
measurable environmental values. Historic preservation's role in
achieving the City's sustainability goals should be promoted.
4, Plan for the future of key historic areas of the City. Several significant
historic districts need specific preservation attention and assistance
from the City. These districts include the River North neighborhood,
Market Square, the HemisFair and LaVillita districts, and the outer
edges of downtown adjacent to important historic districts such as
King William.
City Zoning
Specific recommendations are made to improve the organization,
readability and overall effectiveness of the historic preservation provisions
found within the City's Unified Development Code (UDC). Other
city zoning strategies focus on design guidelines and promoting more
appropriate development in and around local historic districts and other
important areas such as the Missions National Historical Park.
7. Revz'se and consolidate all related rules and regulations within the Unified
Development Code to improve the effectiveness of the Office of Historic
Preservation and Historic Design Revien, Commission, and the Code's overall
readabilly. Recommendations are made to consolidate and revise
San Antonio's historic preservation code such as specifying the
types of alterations, repairs, and maintenance that can be approved
administratively by the OHP, consolidating district and landmark
designation criteria, and revising owner consent requirements for
neighborhood-initiated landmark/district nominations.
2. Consolidate and create standard design guidelines to facilitate Office of
Historic Preservation and Historic Design Revien, Commission reviews of
publz'c and private development initiatives and activities. A comprehensive
set of design guidelines is needed to facilitate a review process that
ensures higher quality of rehabilitation for local landmarks and
resources within historic districts. Additional guidelines could also
be developed for individual historic districts seeking to address more
particular design management issues. Protecting viewsheds into
local historic districts could be and additional design management
element within design guidelines.
San Antonio Strategic Historic Preservation Plan
Section 1: Executive Summary
3. Ensure Zoning in neighborhoods and commercial districts promotes the
preservation of and reuse of historic resources. Various zoning provisions
within the UDC should be revised where necessary to ensure that
they do not conflict with adopted preservation goals and guidelines
within a historic district.
4. Considerform-based.Zoning nlithin and nearby local historic districts. Form-
based zoning can be potential tool in encouraging more appropriate
development in and around historic districts and resources. The
implementation of a form-based code within the River North
district is an important test to determine if such zoning can facilitate
development that respects historic resources and the surrounding
environment.
Economic Development
Historic preservation should receive an equal or comparable consideration
in all City-driven economic development initiatives. Furthermore,
implementing historic preservation-based economic development
initiatives should be high priorities for revitalizing the City's inner-core
neighborhoods and commercial districts.
7. Increase public aavareness that historic preservation contributes to the City's
economic development. Communication activities that promote historic
preservation's economic impact to the public at large should be
undertaken. Publishing an economic impact study is one such
activity.
2. Considerpreservation actions asintegral components of existing and-potential
business district and neighborhood revitalz'.Zatzon programs. Existing City-
sponsored initiatives that encourage historic preservation-based
economic development should be expanded and enhanced. On
such initiative is the Neighborhood Commercial Revitalization
program; expanded efforts in heritage and cultural tourism is
another. Historic preservation activities should also be incorporated
in priority reinvestment planning areas that have been designated by
the City's Planning and Development Services Department.
3. Create near preservation initiatives that facilitate rehabilitation and reuse
of historic resources, revitali.Zation of neighborhoods and commercial districts,
and creation of near jobs and small businesses. Consideration should be
given to assisting local neighborhood associations, housing groups
and development corporations in undertaking self-initiated building
rehabilitation and reuse projects. Such assistance can include
providing gap financing or in assembling the financing package
needed to make a development deal viable. Potential partnerships
with housing development groups should also be explored.
San Antonio Strategic Historic Preservation Plan
Section 1: Executive Summary
Historic Resources
Understanding which existing resource inventories need updating and
what new areas of San Antonio should be inventoried are important
priorities for the City and the Office of Historic Preservation.Additional
historic and cultural contexts that have not been considered in past
surveying activities should also receive high priority along with identifying
endangered and distressed properties that need intervention. Making
survey information available through on-line portals and published
documents for public access should also be high priorities..
7. Update existing surveys and conduct near inventories of historic resources
throughout the City. An ongoing survey and inventory program is
critical to gaining a clear understanding of the number of historic
and archaeological resources that should be protected, especially if
they are and threatened. Specific strategy recommendations include
incorporating survey work within neighborhood or district planning
activities,prioritizing existing surveys for re-evaluation and re-survey,
and undertaking additional thematic surveys that document historic
and cultural contexts not explored before.
2. Use the near information to designate additional districts and target publz'c
and private resources. To reduce uncertainty for property owners,
developers, and City agencies regarding the eligibility of historic
resources for designation, a list of eligible historic resources should
be maintained and promoted by the City. The City should also
prioritize eligible historic resources for designation.
3. Use the near information to create an "early avarning" system to increase
awareness and action regarding endangered sites, buildings, landscapes, and
viemsheds. Identifying and cataloging historic resources that are at
risk for demolition or loss should be a high priority for the City of
San Antonio. Implementing effective intervention actions identified
through the cataloging process will also need to be collaborative
effort among relevant City agencies, such as Code Compliance, the
Fire, Police and Health Departments, the Dangerous Structures
Determination Board, and other civic and non-profit partners.
4.Make surveys more accessible to the pub§c to promote a greater understanding
of significant historic resources. Survey information should be made
more widely available to the public through online access and
published survey documents.
Incentives
Incentives play an important role in encouraging the rehabilitation
and reuse of historic resources. Existing incentive programs should
be enhanced and new ones created to address specific preservation
issues such as endangered properties or to facilitate the adaptive use of
San Antonio Strategic Historic Preservation Plan
Section 1: Executive Summary
"white elephant" buildings. Disincentives should also be understood
and eliminated as obstacles to achieving preservation and revitalization
goals.
9.Enhance the effectiveness of existing histoncpreservation incentives and create
additional programs that encourage reinvestment in historic resources. Several
new incentive programs are recommended for possible development
and implementation. These include a special incentive fund for
endangered historic resources, a city-wide facade improvement
program,permit fee waivers and leveraging the use of tax-increment
finance monies to encourage historic building rehabilitations.
2. Streamline and expandpromotion of preservation programs and incentives to
property opmers, builders, developers, and investors. Information brochures,
workshops and other marketing materials should be developed to
inform property owners and developers on available incentives.
3. Determine and remove disincentives and obstacles to preserving and reusing
historic resources. It appears that some City requirements, such as
various permit and right-of-way closure fees for building projects
for instance, can act as disincentives to investment in historic
resources. A review of possible preservation disincentives should
be undertaken by City agencies.
Education + Advocacy
Promoting the importance of historic preservation in safeguarding
the City's unique heritage and in revitalizing neighborhoods should be
ongoing activities. Implementing a comprehensive program of education
and advocacy initiatives can also be opportunities to forge critical
partnerships with other non-profit groups and civic organizations.
1. Undertake a comprehensive outreach effort to increase aavareness of the
tremendous value of San Antonio's architectural, cultural, and archaeological
resources, along nlith the benefits of historic preservation. Several outreach
initiatives are recommended including the development of a
preservation lecture series, contractor training in green preservation
practices,and"rehabarama"home showcases. Establishing a history
museum to be a repository for City archives, artifacts, and other
items,is another key strategy recommendation.
2. Harness public and private resources to market the numerous incentives and
programs available to property opmers, builders, and developers. Recognizing
the value of historic, archaeological and cultural resources within
San Antonio is one way in which to encourage their long-term
preservation. Strategy recommendations include organizing an
annual historic preservation conference, developing walking tours
and podcasts, and creating various educational materials programs
for the local schools.
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INTRODUCTION
San Antonio Strategic Historic Preservation Plan
Section 2: Introduction
Plan Purpose
The City of San Antonio and its Office of Historic Preservation (OHP)
engaged the consultant team of The Lakota Group based in Chicago, '" ,
Illinois, and Urban Development Services of San Antonio, Texas, to ; t -
J l aiir '
undertake the development of a Strategic Historic Preservation Plan.
The primary purpose of the Plan is to create a long-term vision and a set
of practical,achievable strategies and programs for improving the City's
historic preservation program while building a more broad-based historic
preservation ethic within the San Antonio community at-large. The Alamo- a central story of San
The Plan also seeks to build on past successes by acknowledging what Antonio.
roles historic preservation will play going forward in shaping the City's
urban form and character, in contributing to the City's overall economic
development, and in sustaining a high quality of life for all San Antonio
residents,businesses,and visitors.
The historic preservation movement has a long history in San Antonio.
Its early preservation efforts centered on the protection of its most
prized architectural and cultural resources, most notably those of the
Spanish Colonial period and its famous missions, including the Mision
San Antonio de Valero - the Alamo.
Over the years,as preservation efforts focused on protecting other historic
resources, such as important commercial and residential structures both
within the Downtown district and the surrounding neighborhoods,
the City, along with private sector partners such as the San Antonio
Conservation Society, have had to develop new tools and mechanisms
to preserve such resources. One such tool was the adoption of San
Antonio's first historic preservation ordinance in 1939,which protected
La Villita,an original Spanish civilian settlement associated with Mission
Valero,from demolition. This makes San Antonio's historic preservation
program one of the oldest in the nation since the first municipal historic
preservation ordinance was adopted by the City of Charleston, South
Carolina,in 1931.
Today, the Office of Historic Preservation manages and oversees 25
local historic districts, and approximately 2,000 individually designated
local landmarks and over 1,900 archaeological sites. Furthermore, the
roles and responsibilities of Historic and Design Review Commission
(HDRC) and OHP have expanded beyond historic resource protection
and management and into urban design review of new development
along San Antonio's other most well-known historic and environmental
resource - the Riverwalk. The HDRC also conducts design review for
the City's public art and design enhancement program.
Interestingly,the City of San Antonio has not adopted nor implemented
a comprehensive historic preservation plan, even with the overall
development of its historic preservation program over the decades
San Antonio Strategic Historic Preservation Plan
Section 2: Introduction
and its worldwide reputation as a historic city. Therefore the process
'
of creating the City's first historic preservation plan represents a
timely, unique opportunity ortunit for the San Antonio Office of Historic
Preservation and its private-sector partners to assess the effectiveness of
the current program and to craft a set of action strategies that address
critical preservation planning, resource protection, and urban design
management issues. Adopting a historic preservation plan will place San
Antonio in the forefront with several major U.S. cities that have recently
This Place Matters-part of
the National Trust for Historic developed plans that integrate historic preservation within overall
Preservation campaign to highlight planning, economic development, and revitalization initiatives.
historic resources throughout the
country, Clearly, the integration of historic preservation within planning and
economic development practices is a central challenge in most American
cities seeking to promote and sustain quality neighborhoods and
commercial districts. Protecting historic resources from demolition
and loss through policy and regulatory means should certainly be
a fundamental preservation planning strategy for any municipality.
However, a city seeking a more comprehensive approach to preserving,
rehabilitating and reusing its historic resources must go beyond just
the usual municipal-led preservation planning practices and look
toward engaging broader segments of the community in various other
initiatives related to economic development,education and advocacy,and
partnership building. For example, can partnerships with other entities
be forged to undertake specific educational and outreach efforts? Can
such partnerships guide the development of a tailored set of incentives
to encourage the adaptive use of downtown historic skyscrapers or the
rehabilitation of threatened residential and commercial buildings in a
historic district? These and other questions should be addressed through
a well-researched and prepared historic preservation plan.
A new historic preservation plan for San Antonio is an important
opportunity for the City to address the following:
• Review and assess historic resource surveys and inventories
to determine and prioritize new historic district and individual
landmark designations.
• Identify future survey and preservation planning activities that
address other historic contexts and information about properties
or resources that share a common historic, architectural, and
archaeological significance,geographic area or time period.
• Improve the operations of the Historic and Design Review
Commission and the Office of Historic Preservation, including
staffing and budget levels and designation and certificate of
appropriateness review procedures.
San Antonio Strategic Historic Preservation Plan
Section 2: Introduction
• Suggest revisions to the San Antonio Unified Development Code, °
especially Article VI: Historic Preservation and Urban Design,
and other related provisions within the City Code.
r
• Identify potential partner organizations and entities and determine
possible roles and responsibilities in implementing broader,more
encompassing historic preservation education and advocacy
initiatives.
• Establish a set of sound historic preservation goals and policies Joske Pavilion, Brackenridge Park
that can be better integrated within the City's planning, economic
development, and code enforcement operations.
• Develop new incentives that encourage and facilitate the
rehabilitation and adaptive use of historic commercial buildings,
homes and other buildings and structures.
• Identify the need for additional design guidelines and other design
management tools to encourage appropriate changes to historic
resources and appropriate new developments within historic
districts.
• Create an implementation strategy that prioritizes specific actions
to be taken to change, strengthen, and promote the historic
preservation program. The implementation strategy should
identify parties responsible for each action as well as potential
mechanisms to fund implementation.
Downtown San Antonio, approximately, 1880s.
San Antonio Strategic Historic Preservation Plan
Section 2: Introduction
Planning Process
The planning process for this Strategic Historic Preservation Plan
Its
involves three distinct phases: an assessment of the current historic
preservation program, a "visioning" phase where preliminary strategies
and preservation planning recommendations are developed and tested,
and a final lan-makin hase in which final lamm� oals strate es
P g P planning goals, �
and implementation steps are determined and adopted by the City of
San Antonio.
Lone Star Brewery Complex
Phase One: City Assessment
The first phase, which began in February 2009, is a comprehensive
assessment of the current historic preservation program. The Office of
Historic Preservation, Strategic Plan Steering Committee and consultant
team have reviewed relevant preservation planning documents and
policies, identified potential new historic contexts and themes, assessed
the effectiveness of existing incentive programs, identified potential
partnership opportunities with other groups and organizations, and
defined challenges and opportunities in achieving historic preservation
planning goals. The first phase also included various focus group and
stakeholder interview sessions as well as a community workshop to
gain public input and consensus regarding critical preservation planning
issues. Document analyses and results of the interview sessions meetings
were incorporated into a "State of the City Kepovt;which summarized the
current condition of historic preservation in San Antonio. Planning
activities to date have included the following:
Project Start Meeting (February 10, 2009)
A meeting with City Staff and the Strategic Plan Steering Committee
was conducted to initiate the planning process, define preservation
planning challenges and opportunities, and define initial planning
goals. The Strategic Plan Steering Committee is comprised of 30
members representing various City offices and agencies,civic groups and
professional organizations, neighborhood associations and other non-
profit historic preservation advocacy groups.
Reconnaissance Tour (February 11-12, 2009)
The consultant team, along with City Staff, conducted a reconnaissance
tour of various existing and potential historic districts around San
Antonio. Key sites such as the San Antonio Missions National Historical
Park,Pearl Brewery redevelopment,and Riverwalk were also visited.
Interview Sessions (February 11-12, 2009)
Several interview sessions were conducted with various City Departments,
including Capital Improvements Management Services, City Manager's
San Antonio Strategic Historic Preservation Plan
Section 2: Introduction
Office, Downtown Operations, Housing and Neighborhood Services,
and Parks and Recreation. Additional interviews were conducted with
Office of Historic Preservation staff and members of the Historic and
Design Review Commission.
Community Workshop #1 (March 11, 2009)
A community workshop was conducted with approximately 80 civic
leaders, residents, and business/property owners providing input and
feedback regarding historic preservation issues.
Interview Sessions (March 12-13, 2009)
The Lakota Team conducted additional interview sessions with various
stakeholder groups,including the Strategic Plan Steering Committee,San
Antonio Conservation Society and City Public Works and Environmental
Policy Departments. The Team also conducted an interview session
with the State Historic Preservation Officer and other Texas Historical
Commission staff
Interview Sessions (April 9-10, 2009)
Additional interview sessions were conducted with various stakeholder
organizations and entities including various neighborhood associations,
the San Antonio Missions National Historical Park, Visitors and
Convention Bureau,Board of the San Antonio Conservation Society and
the Office of Historic Preservation staff
State of the City Report
Following the completion of the Phase 1 analysis and assessment, the
Lakota Team prepared the State of the City Repovt,which summarized the
strengths,challenges and constraints to the existing San Antonio historic
preservation program.
Phase Two: Visioning
The second phase of the planning process, the "visioning" phase
was conducted to explore ideas and concepts for specific historic
preservation planning strategies and initiatives including the identification
of landmarking and historic districting priorities, enhancements to
OHP and HDRC operations, new financial incentives, partnership and
e
outreach activities, and economic development initiatives.
Interview Sessions and Community Workshop #2
(April 29-30, 2009) °
i
The Lakota Team conducted meetings with City department directors,
the Steering Committee, and Office of Historic Preservation staff to 01mos Park Terrace Historic District
San Antonio Strategic Historic Preservation Plan
Section 2: Introduction
discuss critical historic preservation planning issues and preliminary plan
strategies. A community workshop was conducted with approximately
40 community stakeholders providing input and suggestions regarding
preliminary preservation planning strategies and recommendations.
Phase Three: Plan Development
The third and final phase of the planning process was the development of
HemisFair Park the formal plan document that describes preferred historic preservation
planning goals and strategies based on the community's vision and
consensus for a strengthened and enhanced City of San Antonio historic
preservation program.
Interview Sessions and Community Workshop #3
(June 30, 2009)
The Lakota Team conducted meetings with various City department
directors, the Steering Committee, and Office of Historic Preservation
staff to discuss the preliminary historic preservation plan, goals, and
strategies. A community workshop was conducted with approximately
80 community stakeholders providing input and suggestions regarding
preliminary preservation planning strategies and recommendations.
Draft Plan and B Session Presentation
The Lakota Team completed a draft Historic Preservation Plan on July 25
for Steering Committee review and was posted in the project website for
public comment. A second draft was prepared on July 29 for distribution
to the San Antonio City Council. A presentation on the Plan's major
goals and strategies was given to the City Council during the August 5,
2009,B Session by OHP staff and members of the Lakota Team.
Final Strategic Plan
The final Strategic Historic Preservation Plan was adopted by the City
Council on August 20, 2009.
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HISTORIC CONTEXT
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San Antonio Strategic Historic Preservation Plan
Section 3: Historic Context
City Architecture and Historic Resources
In the preface to the 1986 edition of the Guide to San AntoniosArchitecture,
i/
the editors assert, in a rather emphatic manner, that San Antonio's
architecture is imbued with a unique, "epic" dimension, one that is
not found nor measured in any other major American city. Epic is
one word to describe the profound uniqueness of the architectural and
archaeological resources that have been preserved and maintained over
the decades by the citizens of San Antonio, such as the Alamo and the
other Missions that are physical testaments to the birth of the City.
Alternatively, perhaps it is the dramatic forces of history that have Mission Concepcion
transformed the City from its early settlement as a frontier military and
missionary outpost to a modern metropolis of almost 1.4 million people
that best reflects the epic quality of San Antonio's architecture and
built resources. For others, it is the diverse, exotic amalgam of nations ,
and cultures —Hispanic, German, French, American - the people that
settled and developed San Antonio that should be celebrated in the
preservation of significant architectural and archaeological resources.
Still, many more believe it is the craftsmanship and distinctiveness of
the architectural design itself,perhaps a high-style Victorian house in the
Mission San Juan
King William Historic District for example,that contributes to the City's
significant architecture.
Regardless of how one defines the epic qualities of San Antonio's
historic resources, there is no question that the story of San Antonio
can only be experienced and understood through the homes,commercial
buildings, churches, institutions and archaeological resources that have
remained through the decades with the citizens of San Antonio.
San Antonio's story begins in the late 17th century with the exploration
of the San Antonio River area by Spanish explorers and missionaries,
an area that was once called Yanaguana — "refreshing waters" by
the Native Americans in the region. In 1691, the Teran Expedition
accompanied by Father Damian Mazanet named the river and place in
honor of San Antonio de Padua after the Saint Anthony of Padova,
Italy In 1718, Spanish missionaries and soldiers who accompanied the
Alarcon Expedition established the first mission and presidio in the area
of San Pedro Springs. Since its settlement,San Antonio has been shaped
by several design influences and historical forces that have contributed
to its overall urban form and architecture. These influences can be
summarized according to the following contexts:
• Settlement and the Spanish Colonial Period
• The Gilded Age
• Early 20th Century Urbanism
• Expansion and Modernism
San Antonio Strategic Historic Preservation Plan
Section 2: Historic Context
Settlement + Spanish Colonial Period
Soon after the establishment of the first site of the Mission of San
Antonio de Valero, known today as the Alamo, the soldiers constructed
a presidio near the site,which was later relocated to what is now Military
Plaza and built permanent structures including the captain's quarters,later
known as the Spanish Governor's Palace, to protect the settlement from
incursions and raids from the frontier. Mission San Jose y San Miguel de
Aguayo (San Jose) was founded two years later, and in 1731 three other
missions,Nuestra Senora de la Purisima Concepcion de Acuna,San Juan
Capistrano, and San Francisco de la Espada were relocated from East
M Texas to Christianize the native population. Mission San Antonio de
Valero (the Alamo) was moved to its third and final location in 1724 at
what is now known as Alamo Plaza.
Mission Espada
In 1731 the settlement of San Antonio gained royal"villa"status with the
ov. arrival of 56 Canary Islanders, settlers who represented the first civilians
to arrive in the community. San Antonio itself was planned according to
the famous Laws of the Indies,which was used by the Spanish to guide
the development of their cities around plazas,presidios,and narrow grid
streets. However, due to the lands already owned and controlled by the
missions and presidio, and the presence of the San Antonio River and
Sw ah Y1�
ruiuo�giuo��uuuuo�u� �uM�p����t;1�0 �yt,��,�G°�����`�� �� �; San Pedro Creek, the actual plan had to be adjusted to fit within the
Spanish Governor's Palace available space,resulting in a somewhat altered configuration. Much of
the grid street system is still in evidence today.
Over the next century, the fledgling settlement of Spanish soldiers,
priests, civilians and Native American converts endured the rigors and
travails of the frontier and the political struggles of rival communities
and empires. However, despite these circumstances, San Antonio grew
to a community of over 2,000 people and became the most important
Spanish settlement in Texas with its elevation to a Spanish provincial
capital. San Antonio's Spanish Colonial period ended in 1821 when
Mexico won its independence from Spain and San Antonio remained
LaVillita under Mexican rule until the Texas War for Independence in 1836 and
the famous Battles of the Alamo and San Jacinto.
Significant historic resources from the Spanish Colonial period include
the five extant Spanish Missions, the Governor's Palace, San Pedro
Springs Park, the second oldest municipal park in the United States, the
acequia systems and a corresponding aqueduct, and La Villita, the "old
Spanish town", of which the Cos House (c. 1800) is the only extant
building from the Spanish settlement period. The Missions flourished
mostly in the mid-1700s but experienced decline and abandonment in
succeeding decades as raids from neighboring Indian tribes and diseases
reduced the Missions'population. Additionally,by the late 18th century,
San Antonio Strategic Historic Preservation Plan
Section 3: Historic Context
much of the Native American population was acculturated into the
existing Hispanic population. Constructed largely of native limestone
and detailed with highly ornamental doors, vaulted ceilings, and bell
towers, four of the five Missions continue to be operating parishes of
the San Antonio Catholic Archdiocese. Acequias,man-made waterways
and canals, were also constructed as part of the Mission complex to
distribute water for farming purposes. Today,the Missions Concepcion
San Jose, San Juan and Espada comprise the San Antonio Mission
National Historical Park, which was authorized by the US Congress in
1978. The Alamo is owned by the State of Texas and is operated by the
Daughters of the Republic of Texas. a�
Other resources of the Spanish Colonial period include Alamo Plaza,
which was the Mission Valero's formerly enclosed courtyard,and Military San Fernando Cathedral
Plaza, the drilling ground of the Presidio de Bexar. Main Plaza, or
Plaza de las Islas, as it was originally named, was the scene of several
historic events including the signing of a peace treaty with the Apache
Indians in 1749. The Spanish Governor's Palace, a flat-roofed structure
constructed in stone and adobe,was completed in 1749,was purchased
from descendants of the last ad interim Spanish Governor of Texas and
restored by the City of San Antonio in 1928. San Fernando Cathedral,
located along Main Plaza,was constructed in 1738 by the original Canary
Islanders and completed in 1758. The Cathedral was completely rebuilt
around 1868 in the Gothic Revival style although the original sanctuary
walls were retained, making it one of the oldest Roman Catholic
sanctuaries in the United States.
The Gilded Age
After the Texas War of Independence and the State's admission into the �
Union in 1845, the City of San Antonio began to grow with an influx a
of immigrants from Germany and Mexico and other ethnic groups
ranging from French, Italian, English, Irish, among others as well as
other Americans from the east. Post American Civil War,the City of San
Antonio became a center for trade for the South Texas region and the old ���
Spanish city center, comprising the Alamo, the plazas and the radiating
streets,began to grow and prosper.
i9 r
Commerce and Houston Streets became important retail streets and in
the 1840s and 50s, German and other immigrants began to settle and
develop adjacent neighborhood residential areas such as Lavaca. The
King William neighborhood developed into one of the most fashionable
residential areas of the city, with homes designed and constructed in
the high Italianate and Greek Revival styles for wealthy merchants and Resources from the King William
businessmen. The King William district would later become the first Historic District.
San Antonio Strategic Historic Preservation Plan
Section 2: Historic Context
neighborhood to be designated a National Register of Historic District
'n in the State of Texas. Lavaca's primary building types and architectural
styles were more modest in scale and design than King William's with
vernacular Gothic Revival and Victorian styles predominating, housing
merchants,clerks,butchers and teamsters.
It was also in this period of the mid-to-late 1800s that a new generation
of architects practiced their profession and introduced High Victorian architecture in downtown commercial structures and residences in the
outlying residential districts. The Bexar County Courthouse, designed
in the Romanesque style in 1891 by James Riely Gordon, and the First
i National Bank Building by Cyrus L. Eidlitz, which incorporates both
Romanesque and Moorish architectural elements,are two such examples
of the rise of high style design in San Antonio during this period.
Lavaca Historic District resources The arrival of railroads in the 1877 inaugurated a new period of growth
and prosperity in San Antonio, sometimes billed as the City's "Gilded
Age." Neighborhoods around the city center began to grow dramatically
and newly available materials such as steel and plate glass made building
Wtaller structures with transparent storefronts more common in the
principal commercial districts of San Antonio. In the central core,
street-widening projects that made way for streetcars and various other
public improvements, especially along Commerce Street, often resulted
in the loss of earlier,more modest commercial buildings as well as ones
dating from the Spanish Colonial area. In essence, San Antonio was
being transformed from its frontier beginnings to a modern city eager
to capitalize on its fortunes. High-rise buildings began to penetrate the
downtown skyline and newer neighborhoods and garden suburbs began
to rise beyond the historic core of San Antonio. The Government Hill
Tobin Hill, and Laurel Heights neighborhoods were also developing
during this period.
Tobin Hill Historic District resources Early 20th Century
During the early part of the 20th century, San Antonio's Gilded Age
continued as the City grew and prospered, assisted by the electrification
of streetcar lines,the development of hospitals and power plants,the on-
going expansion of Fort Sam Houston (established in 1876) and other
military facilities,and the continued influx of new residents from around
the country. In 1910, San Antonio became the largest city in Texas with
a population of more than 96,000 people. New high-rise commercial
buildings continued to be constructed in the downtown core with
Mediterranean,Spanish Colonial Revival and Art Deco design influences.
The St. Anthony Hotel (1910), the Casino Club Building (1927), the
San Antonio Express Building (1929), the Majestic Theater (1929), and
Nurses Housing at Baptist Medical the Smith-Young Tower (1929, the current Tower Life Building) are all
Center
San Antonio Strategic Historic Preservation Plan
Section 3: Historic Context
examples of the architectural eclecticism that prevailed before the Great ,
Depression.
Outlying neighborhoods such as Monte Vista and Monticello Park came
to maturity with a diversity of residential architectural styles ranging '
from the Tudor, Craftsman, Spanish and Mission Revival,Art Moderne,
and Classical Revival, and in scale and size from simple vernacular ✓�°
versions of the styles to elegant mansions. With the onset of the Great
Depression,new construction and development ceased for several years.
Before Modernism firmly took root in San Antonio in the 1940s,50s and
60s, flamboyant Art Deco and Moderne styles, as represented in Strauss
Nayfach's Alameda Theater and in other vernacular commercial buildings
throughout the neighborhoods, continued to be designed and built.
Work on enhancing the San Antonio River also began in earnest during
this period of the 20t" Century. In response to the disastrous events of
the Flood of 1921,aby-pass channel and floodgates were constructed in
1926 to alleviate flooding in the downtown district. As plans proceeded Resources from Monte Vista
to construct the by-pass channel, the San Antonio Conservation Society Historic District
was formed as a response to protect the original City Market House from
demolition. Although the Society lost the battle to protect the Market
House from demolition,the organization has led successful advocacy ever
since for the enhancement of the San Antonio River and the protection
of other important historic resources. In 1938, a tax levy was approved
to leverage an additional $325,000 in funds from the Works Progress
Administration to start the construction of the Riverwalk. Robert H.H. ��;,,
i����
Hugman was the primary project architect. La Villita, the old Spanish , r
Town"was also reused and restored during this time period. "M/0
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Modernism
Following the Great Depression, San Antonio architecture became
increasingly influenced by Modernism and its tenets of simplifying
building form, the elimination of decorative ornament, and the austere
expression of steel and glass. One prominent architect, O'Neil Ford,
HemisFair Park
designed several important buildings and complexes including the
campuses of Trinity University and the University of Texas at San
Antonio as well as the Tower of Americas,which was the centerpiece of 111P
the 1968 World's Fair, otherwise known as HemisFair. Ford advocated
for a refined Modernist, context sensitive architecture that expressed
structural clarity and economical design while paying special attention
to local climate and site conditions. The development of the HemisFair
Plaza would prove to be controversial as the construction of the Tower raw
of the America's and other associated fair buildings would necessitate the
clearance of a 92-acre site,streets,and over 100 historic buildings. As in Volkswagan Dealership, a Recent
Past resource, North Broadway
other major US cities during this period,the experience of urban renewal street
San Antonio Strategic Historic Preservation Plan
Section 2: Historic Context
and the loss of historic resources in San Antonio would motivate various
J�
individuals and entities to seek new ways to protect historic resources
and encourage reinvestment in the City's inner core.
Other important Modernist buildings and structures of this period
include, the Intercontinental Motors Building on North Broadway, the
Dunwoody House by architect Milton Ryan,the United States Pavilion at
Hemisfair(currently known as the John H.Wood Jr.Federal Courthouse),
Historic residential resource and the United Services Automobile Association Building, also located
designed in the International on North Broadway (currently known as the AT&T Building).
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State of Texas Highway Map, from the 1940s
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STATE OF THE CITY
This page is Intentionally left blank
San Antonio Strategic Historic Preservation Plan
Section 4: State of the City
San Antonio Today
Today, the City of San Antonio has 25 local historic districts,
1 ,�I
approximately 2,000 individually designated cal landmark buildings,
sites and structures, and over 1,900 archaeological
sites. There are also
19 districts listed in the National Register of Historic Places and seven
buildings listed as National Historic Landmarks, including the Alamo,
Spanish Governor's Palace,Mission Concepcion, Espada Aqueduct, and
the Majestic Theater, among others.
The Alamo Plaza and Mission Historic Districts include some of the City Monte Vista Historic District
of San Antonio's most significant historic resources —the Mission San
Antonio de Valero (the Alamo) and lower four Missions—Concepcion,
San Jose, San Juan, and Espada, as well as the Espada aqueduct and
the only two remaining active Spanish Colonial acequia systems. These
significant resources document the City's early Spanish Colonial period.
In addition, much of the Mission District comprises the San Antonio
Missions National Historical Park,operated by the National Park Service.
Beyond these resources, other local historic districts, such as King
William,Government Hill,Monte Vista,and HemisFair,record much of
the history and development of San Antonio, from its Spanish Colonial
and Gilded Age eras to recent times of modern architecture and urban
planning.
San Antonio's historic sites and attractions draw visitors from around
the State of Texas, the United States and the world. In recent studies,
the Texas Economic Development and Tourism Department indicate
that 197 million people visited the state, with approximately 16 million
traveling to San Antonio. The number one state tourism attraction is the
Alamo, with the Texas State Capitol and the San Antonio Riverwalk, a
close second and third respectively. The San Antonio Missions National
Historical Park also attracts approximately 1.3 million people a year. The
convention industry attracts more than 500,000 people to the City,with
many organizations and businesses seeking San Antonio as a desirable
place to meet due to its historic attractions,culture,amenities,and hotels q
and restaurants. � ��
In addition to tourism, historic preservation provides many other
economic and community development benefits. In a study conducted
by the Texas Historical Commission in 2000, nine major Texas cities
with active historic preservation programs documented a measurable
increase in property values in designated historic districts and landmarks,
some as much as 20 percent. In turn,with availability of state and local
incentives,property owners have reinvested over$172 million in building
rehabilitation and adaptive use projects,which also created 4,200 jobs in
the State of Texas. Historic district designations, in essence, serve to
stabilize property values and encourage reinvestment in neighborhoods The acequia system at Mission
and commercial areas that might not have occurred. Espada
San Antonio Strategic Historic Preservation Plan
Section 3: State of the City
To develop a comprehensive,historic preservation plan,an inventory and
evaluation were undertaken of existing conditions,programs, tools, and
resources offered through the City and other public agencies. Several
key programs and resources were specifically evaluated, including the
current operations of the Historic and Design Review Commission
(HDRC) and the activities and initiatives of the Office of Historic
Preservation (OHP) and several other municipal departments including
Housing and Neighborhood Services, Planning and Development
San Pedrio Springs Park Services, Downtown Operations, Office of Environmental Policy,
Capital Improvement Management Services, Public Works, and Parks
and Recreation. In addition, the programs and resources of other
entities that have significant roles and responsibilities in historic
preservation activities such as the San Antonio Conservation Society,
neighborhood associations, community development corporations, and
other institutions and organizations were also examined. The inventory
and evaluation phase of the plan-making process produced this State
of the City summary of existing preservation conditions, critical issues,
challenges, and opportunities for action.
Bexar County Courthouse and Main Plaza, 1890s approximately.
San Antonio Strategic Historic Preservation Plan
Section 4: State of the City
Benefits of Historic Preservation
Preserving historic resources provides economic, cultural, and other
quality-of-life benefits and is an effective urban design and growth
management tool for most municipalities. In this regard,there are over
i r
2,300 municipalities across the country that have developed preservation
programs that encourage the protection of important resources through v ��
the adoption of local ordinances, design guidelines and incentives.
Therefore,historic preservation has long been recognized as a legitimate ,��
and important function of the local government. This Place Matters- a campaign
by the National Trust for Historic
Clearly,the economic benefits of historic preservation are significant and Preservation to highlight historic
contribute to the economy in the following ways: resources throughout the country,
• Stabilization and the improvement of property values in historic
neighborhoods and commercial districts.
• Job creation due to increased building rehabilitation activity and
neighborhood revitalization.
• Increased tourism and housing choices.
• Provides a focus for cultural and economic development.
• Encourages investment in a city's central core.
Attracting Investment in the New Economy
Cities and local communities recognize that historic preservation
is an essential component to developing and maintaining a strong
"sense of place, which is key to attracting today's workers in the "nex
economy". Revitalized historic commercial districts and neighborhoods
also contribute to a sense of identity, authenticity and community that
other places cannot. It is these places that attract the `creative class", the
core force of growth in the new economy going forward, who desire
authenticity, uniqueness, diversity, historic environments, and a vibrant
cultural scene. With the advent of today's communications technologies,
especially in the research and service sectors, creative class professionals
can literally locate anywhere to seek employment and establish new
businesses and enterprises.
Therefore,maintaining historic districts and commercial areas,the places
that attract the creative class,will be important to cities and communities
as they attempt to revitalize and re-establish themselves in the new
economy. San Antonio has maintained a strong sense of place and vitality
along the downtown portion of the Riverwalk, in other neighborhoods
such as the Southtown commercial district,and in fledgling areas such as
River North. Other neighborhoods and commercial areas in the inner
San Antonio Strategic Historic Preservation Plan
Section 3: State of the City
core have the potential to develop the same urban qualities that can
attract a diversity of cultural,social,and economic groups,along with the
creative class. In the end, a vibrant and robust San Antonio economy
will depend on a robust and effective local historic preservation program
along with other economic development initiatives.
Heritage Tourism
Heritage travelers visit cities and sites to experience the places, artifacts,
and activities that authentically represent, through cultural, historic and
archaeological resources, the stories and people of the past and present.
Historic resources are the `backdrops on the stage"that allow the stories
to be told and experienced. In terms of economic impact, heritage
travelers spend approximately $615 per trip and stay an average of 4.7
Military Plaza/City Hall days, while other travelers spend $425 and stay 3.3 days per trip (source:
Travel Industg Association of Amenca). Therefore, heritage travelers stay
and spend almost 50 percent more in historic places in comparison to
other forms of tourism. Heritage tourism is an essential component
of the San Antonio tourism industry and expanding efforts in this area
could pay handsome dividends.
Building Rehabilitation
The rehabilitation of historic buildings requires more skilled and unskilled
workers than new construction and, therefore, historic preservation
is a significant job generator. As several statewide economic impact
studies have shown, the number of jobs created through rehabilitation
compares very favorably with the number of jobs created through new
construction. A new construction project can expect to spend about
50 percent in labor and 50 percent in materials. In contrast, some
rehabilitation projects may spend up to 70 percent in labor costs—labor
that is often hired locally, which helps to keep such dollars within the
community (Donovan Rypkema. The Economics of Historic Preservation:
A Community Leader' Guide. Washington, D.C., 2007). The total dollars
of direct and indirect expenditures in regards to building rehabilitation
activity are also considerable. Direct expenditures include construction
labor and purchases of building materials and tools. Indirect expenditure
impacts are associated with industrial goods and services by firms that
provide building materials such as manufacturing labor and purchases of
raw materials such as clay,glass, and gravel.
Rehabilitation costs per square foot are often significantly less than
with new construction. In general, the costs of rehabilitating historic
buildings generally runs 25 to 33 percent less than comparable new
construction, according to recent case studies prepared by the National
Trust for Historic Preservation. In those cases where the costs are
San Antonio Strategic Historic Preservation Plan
Section 4: State of the City
equivalent, the preservation project provided greater amenities such
as time saved in construction and more building space provided in
either height or volume. These amenities frequently produced other
benefits to a developer through higher occupancy rates and rents. In
addition,rehabilitation often times bypasses lengthy development review
processes,local neighborhood opposition,and zoning delays (Thomas D.
Bever. Economic Benefits of Historac Preservation. Center for Urban Policy
Research. 1993).
Historic building rehabilitation is more environmentally friendly and cost
efficient than new construction. In addition,a government study found
that rehabilitation construction uses 23 percent less energy than new
construction, since rehabilitation is more labor intensive than material
intensive, depleting fewer natural resources. It has also been estimated
that over 40 percent of all landfill space comes from construction and
demolition debris (Thomas D. Bever).
Stabilizing Neighborhoods
Historic buildings are critical assets that play important roles in creating
value and stabilizing neighborhoods and traditional commercial districts.
Recent statewide economic impact studies in Texas, New York, South
Carolina, and Pennsylvania corroborate evidence regarding the positive
effects that historic district designations have on property values with
average increases between 5 and 20 percent. A 2000 study of South
Carolina property values show that homes in the City of Columbia's
historic districts, for example, increased in value by 21 percent greater
sale price. The benefits of district designation also appears to extend to
owner tenure with lower owner turnover than in neighborhoods that are
not designated (The Impact of Local Historic Distracts on House Paces in South
Carona,University of South Carolina's College of Business and the State
Historic Preservation Office)
i
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Houston Street from Alamo Plaza, 1940s
San Antonio Strategic Historic Preservation Plan
Section 3: State of the City
Opportunities + Challenges
'We tout ourselves as an old historicplace."
Why do people come here...it's Y)ho ave are...they come for the histo y."
'We need to keep in sight Y)hat is important to this city."
e need a collective vision."
"Our historic resources are limited...they are finite...Y)hen gone...it's gone."
King William Historic District `Mstoric preservation zs a may to manage change nith respect for heritage.""
'We need to make historic preservation easier."
'We need to make histoncpreservation more desirable."
`Economic development needs to be more in harmony nlith preservation planning."
'We need to make the development process more predictable."
`2t' about common ground...not property rights versus preservation."
—quotations taken from stakeholders duringvarious planningworkshops
and interview sessions.
The following is an initial summary of critical issues and challenges
facing the San Antonio historic preservation program. This summary is
based on the conditions observed during on-site stakeholder interview
sessions and workshops as well as research conducted by the consultant
team. Existing conditions and resources were organized around the
following issue areas:
• Survey + Designation
• Design Review
• City Planning
• Design Zoning
• Economic Development
• Incentives
• City Commission + Agencies
• Education + Advocacy
• Other Preservation Planning Issues
Survey + Designation
Currently, the HDRC and OHP oversee the process for conducting
surveys and inventories of neighborhoods and districts within the original
1852 city limits. Under San Antonio's Certified Local Government
San Antonio Strategic Historic Preservation Plan
Section 4: State of the City
status, the OHP is also responsible for conducting ongoing surveys
for cultural resources in areas outside the 1852 36 Square Mile Survey
Area. Additionally, the OHP oversees archaeological surveys, including
standing structures, required as part of the Master Development Plan
process and subdivision platting process,and includes survey work in San
Antonio's Extra Territorial Jurisdiction. The OHP has also been actively
involved in surveying, recording and designating 19t" Century Historic
Texas vernacular farm and ranch complexes including those within the
city limits and the Extra Territorial Jurisdiction. Overall,the HDRC and
the OHP are responsible for historic preservation activities in an area of
412 square miles. The Commission and OHP have actively partnered on
the survey and designation work with private-sector entities, including
the San Antonio Conservation Society.
Significant issues, challenges, and opportunities regarding surveying and
designating historic resources so they can be protected and preserved
include:
• Neighborhood/District Erosion - Real estate speculation,
development pressures, and "demolition by neglect" appear
to be eroding the character of neighborhood historic districts
and resources. Furthermore, the overall volume of historic
resources facing threats from demolition is significant and needs
to be addressed through new, comprehensive approaches to code
enforcement, education, intervention with property owners and
developers, and financial tools and resources. For example, a
current comprehensive list of endangered historic resources could
be developed to assist city agencies and private sector partners in
devising possible intervention strategies.
This is a real concern expressed in every interview and workshop
session by city officials, civic leaders, and neighborhood that
ave are pecking an)ay at our housing stock,pecking an)ay at our fr nges".
There is also some concern among residents within neighborhood
historic districts that investment in properties may lead to
significant increases in property tax assessments,thus discouraging
improvements to properties. Some residents have indicated
property tax increases of up to 200 percent on rehabilitated
homes. %!
• Designation Process Complexity-The process for designating
individual landmarks and districts is somewhat unclear within ��
Article VI of the Unified Development Code and lengthy
compared to other major U.S. cities. Owner consent provisions n
also hamper the efforts of neighborhood groups in designating
districts. Most stakeholders agree, "current designation processes are
backavard and time-consuming"and need to be rethought. Bexar County Courthouse
San Antonio Strategic Historic Preservation Plan
Section 3: State of the City
Survey Areas
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San Antonio Strategic Historic Preservation Plan
Section 4: State of the City
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San Antonio Strategic Historic Preservation Plan
Section 3: State of the City
• Historic Resource Surveys: Relevance - Over the years, a
�i. uuuuoor
i„ number of neighborhoods and districts within the 36 Square
Mile Survey Area have been surveyed and inventoried. In
many cases, these resource surveys were conducted mostly
at a reconnaissance level and in collaboration with various
organizations, including the San Antonio Conservation Society
and neighborhood organizations,as well as with paid interns and
The need for effective enforcement volunteers. Several of these existing resource surveys need to be
of demolition by neglect and updated to better reflect current conditions.
other city code provisions is
a significant concern among • Historic Resource Surveys: Gaps - There are other areas of
several stakeholder groups. the City both within and outside the 36 Square Mile Survey
Area that have historic contexts still in need of exploration
and documentation, especially San Antonio's African-American
and Hispanic communities, as well as what can be considered
"Modern/Recent Past"building resources that are fewer than 50
years old.
• Historic Resource Surveys: Availability - The dissemination
and overall accessibility of survey and historic district information
to the general public is also a critical issue identified by key
stakeholders, especially by those that are actively trying to
improve their districts or create new ones. For instance, there is
an extensive amount of survey and historic district information
within OHP's current website. The question remains whether
such information can be organized more effectively and made
more accessible through the City's internal geographic information
systems or a new online database managed by the Office of
Historic Preservation.
• Historic Resources: Code Enforcement - Uneven and
inconsistent enforcement of certificates of appropriateness,
demolition by neglect provisions and other building code
requirements is a significant issue raised by neighborhood
associations and several other stakeholder groups. There appears
to be lack of coordination between relevant code enforcement
agencies and departments within the City of San Antonio and a
clear process needs to be determined on who is responsible for
enforcing various code provisions that affect historic resources.
Historic Resource Types
San Antonio's historic resources can be defined by several types
including districts;landmark buildings;and objects, sites,and structures.
The following are definitions based upon the National Park Service and
from the Office of Historic Preservation:
San Antonio Strategic Historic Preservation Plan
Section 4: State of the City
• Districts. A historic district is defined by the UDC as an
area, urban or rural, defined as an historic district by the City
Council, the Texas Historical Commission, or the National
Register of Historic Places (National Park Service) and which
may contain within definable geographic boundaries one or
more buildings, structures or objects. Districts may also include
accessory buildings,fences and natural resources having historical,
architectural, archaeological, and cultural significance, and other
resources that,while not of special significance,nevertheless may
Aso contribute to the overall visual setting or characteristics of
other resources located within the district.
Currently, there are 25 historic districts designated by the HDRC
and the City Council including King William, Monte Vista, La
Villita, Lavaca, Main and Military Plaza, St. Paul Square and
Cattleman Square among others. There are also 19 districts
listed in the National Register of Historic Places, which is a
federal program administered in Texas by the Texas Historical
Commission in partnerships with the National Park Service.
National Register districts must have resources of significance and
meet certain designation criteria established by the National Park
Service. Unlike districts designations by the HDRC, National
Register designation provides no protection to historic resources
unless they are involved in any federally funded or licensed projects,
such as highway construction. In addition to local and National
Register designated districts,National Historic Landmark districts
(NHL's), administered again by the National Park Service, are
nationally significant historic places designated by the Secretary of
the Interior due to their exceptional value or quality in illustrating
or interpreting the heritage of the United States. There are fewer
than 2,500 historic places bear this national distinction. In San
Antonio, Fort Sam Houston is a NHL district.
• Landmark Buildings. San Antonio has more than 2,000
individually designated landmark buildings such as homes office
buildings, theaters, churches, and hotels. The Municipal
Auditorium and the Alameda Theater are just two examples
of locally designated landmarks. Local designation does noti� �
restrict the use of the property but any exterior changes and
alterations,as well as proposed demolition,must be reviewed
by the Historic and Design Review Commission. There are
also approximately 101 properties listed as individual building
in the National Register of Historic Places. Again, National
Register listing does not place any restrictions on exterior
alterations or land use unless affected b a federally funded Fort Sam Houston National
y y Historic Landmark District.
San Antonio Strategic Historic Preservation Plan
Section 3: State of the City
or licensed action. In addition to local and National Register
designations, there are also seven properties designated as
National Historic Landmarks including the Majestic Theater,
the Spanish Governor's Palace, Hanger 9 at Brooks Air
Force Base and Missions Concepcion and Espada.
• Structures/Infrastructure. These historic resources
consist of structures often used for functional uses such as
Iron Bridge at Brackenridge Park bridges, streets, canals, dams, or architectural elements, such
as bandstands, gazebos, and lighthouses. An example of a
designated historic structure is the Hays Street bridge.
• Objects. These resources are small scale,simply constructed
artwork, fountains, sculpture, monuments, and street signs
that are specific to certain historic settings or areas.
• Sites are locations of significant events or of buildings or
structures where the location itself possesses historic value due to
events,regardless of the value of any existing structure.Examples
of sites include battlefields, campsites, natural features, and
landscapes.
Design Review
Under Article VI of the Unified Development Code, the Historic and
Design Review Commission is responsible for conducting Certificate
of Appropriateness (COA) reviews for any project that seeks "to alter,
restore, vehabilz'tate, or add to a building, site or structure, designated a historic
landmark or located in a historic district..."as well as for any proposed new
construction or development within a locally-designated historic district.
The Commission also conducts reviews for proposed alterations and
new construction design of existing and newly planned municipal
buildings respectively. In addition to reviewing and issuing COA's for
individual landmarks and resources within local districts, the HDRC
conducts design review for alterations to existing buildings and new
commercial development and residential development that exceeds five
units or five acres within the River Improvement Overlays (RIO'S),which
are six separate overlay districts that extend from the San Antonio River's
northern boundary along Hildebrand Avenue to the City's southern
corporate boundary near Mission Espada. The purpose of the RIO
districts is to ensure that new development is compatible with the overall
urban design and character of the Riverwalk corridor and its immediate
surroundings.
This combination of design review responsibilities for both historic
resources and general urban design along an important environmental
San Antonio Strategic Historic Preservation Plan
Section 4: State of the City
and cultural resource is unique among most historic preservation
programs in other major U.S. cities. As a consequence, the HDRC and
OHP have a relatively heavy design review workload as compared to
other cities where design review responsibilities are typically divided
between a stand-alone historic preservation commission for historic
resources and a separate urban design review entity for an overall
community, downtown or special district where historic preservation is
not a critical concern.
The actual process for property owners and small developers seeking to
alter or change a historic resource is not complicated nor long, although
there are public perceptions that it is indeed the case. However,in cases
of demolition by neglect or emergencies, the deliberation processes for
such cases is indeed complicated and cumbersome as it involves other
City departments and agencies. There is confusion as to not only how
it works but also whether the process gives neighborhood organizations
and City staff enough time to positively influence decision-making
regarding demolishing or renovating buildings. There is concern that
the process is focused mostly on demolition without clear paths for early
warning or intervention for possible preservation and rehabilitation.
Significant issues, challenges, and opportunities regarding the COA
process and design review include:
• Certificate of Appropriateness Review Process - According
to stakeholders and City staff, the COA process needs to be
"demystified"for the average property owner and local developers
as the perception of navigating the approval process has become
"intimidating nlithout professional assistance." In addition, City staff
indicates there needs to be a more proactive approach in getting
ahead of the many buildings that are deteriorating and end up in
need of demolition, as well as in early intervention with property
owners to encourage and facilitate renovation and rehabilitation.
• Design Guidelines - The HDRC currently uses an adaptation
of the Secretary of the Interior's Standards for Rehabilitation as
a base set of guidelines for reviewing COA applications for the
alteration and rehabilitation of historic resources. In contrast,
guidelinesthe
Oeetailed with specificapplications oo
standards for development
facade more dn, massing,
�°I 'iltjllVlY9 V�Ilili��glj'i��ll)
building height and signage. The design standards within the RIOf � f
districts also focus specifically on the design of new development.
While several U.S.cities use the Standards for Rehabilitation as the
primary set of standards for reviewing COA applications,a critical
concern going forward is whether more substantial, detailed
design guidelines beyond the Secretary of the Interior's Standards
should be developed and adopted for COA reviews for individual St. Paul square Historic District.
San Antonio Strategic Historic Preservation Plan
Section 3: State of the City
/,
landmarks and historic districts. Another question to be answered
J1111/0
is whether separate guidelines should also be developed to address
distinct design issues for individual historic districts, as have been
completed for the Lavaca and Government Hill Historic Districts
and Houston Street.
"" • Viewshed Overlays - Viewshed protection overlay districts have
been in place to ensure that public views and vistas to important
landmarks and resources,such as the Alamo,are not compromised
by inappropriate development. The Alamo Viewshed Overlay 1
has been in place for several years. However, the lower Missions
within the National Historical Park are not protected under
a viewshed overlay. Nearby development currently threatens
Viewsheds into the lower Missions the viewshed into the Historical Park, especially along the
are of particular concern although Roosevelt Road Corridor. The city is currently working to protect
there may be other historic districts the viewshed of Mission San .Jose with the Texas Historical
and areas where viewshed
protection should be explored. Commission in conjunction with the proposed development of
the nearby Mission Drive-In Theater property development.
• OHP Staffing- The HDRC and OHP currently review building
permits for all exterior and some interior work on individual
landmarks,public buildings,and buildings within historic districts,
including electrical and plumbing systems. Given the HDRC's
heavy review workload, there may be opportunities to reassign
some permit review responsibilities to other permit review staff
within the Planning and Development Services Department. As
noted earlier the OHP staff also reviews all new commercial and
residential development that exceeds either five units or five
acres in the combined RIO district, including vendor cart design,
signage design, and landscape design.
Additionally, OHP currently does not have on staff an architect
who is trained in preservation architecture or an urban designer/
landscape architect experienced with larger neighborhood context
and development planning. The OHP also has limited staff
resources to provide direct design assistance on a proactive basis
to individual COA applicants who would like to rehabilitate their
residential and commercial buildings.
City Planning
The preservation of historic sites, districts, and resources needs to be
addressed through a variety of methods, techniques, incentives, and
programs. Comprehensive plans, as well as plans at the district and
neighborhood levels,are vehicles to establish clear goals and policies for
encouraging historic preservation activities and ensuring that revitalization
San Antonio Strategic Historic Preservation Plan
Section 4: State of the City
and development initiatives carefully consider San Antonio's historic and
archaeological resources. The following is a review of current planning
policies and initiatives as well as the legal contexts that support planning
and historic preservation activities.
State of Texas Local Government Code
Section 213: Municipal Comprehensive Plans
Section 213 of the State of Texas Local Government Code permits
local Texas communities and cities to develop and adopt comprehensive
plans with specific elements for land use, transportation, and public
facilities. In addition,a municipality may define the relationship between
a comprehensive plan and development regulations and may provide
"standards for determining the consistency required betaveen a plan and development
regulations". Although Section 213 does explicitly require the development
and adoption of historic preservation elements to comprehensive plans,
municipalities are not limited in the ability to `prepare otherplans,po§,-ies,
or strategies as required". This Strategic Historic Preservation Plan can be
adopted as an element of the City of San Antonio's Master Plan.
San Antonio Code of Ordinances
Article IX: Planning Commission
Article IX of San Antonio's Code of Ordinances authorizes the
establishment of a municipal planning commission with the expressed
authority to create, amend and extend a city master plan to guide
the physical development of the city. Sections 121 to 123 of Article
IX outline the procedures for adopting a master plan and its legal
effects. A master plan can be adopted as a whole, in parts or in future
amendments.
San Antonio City Master Plan
The growth and development of San Antonio is guided by a variety
of plans and policies as well as a set of development ordinances
and standards. The City of San Antonio Master Plan Po§czes, which
were created in 1980 and updated in 1997, includes five historic
preservation planning objectives related to maintaining a comprehensive
inventory and survey, funding adequate staff for preservation activities,
and encouraging partnerships between the City and neighborhood
organizations.
�y,„ ww�iuiiVrP �u9/iii%r � I)Illy,
Encouraging the protection and reuse of historic resources is also
mentioned as strategic goals within the Master Plan's Vision Statement,
within Section C. Community Services, in regards to arts and cultural
development, and in Section D. Neighborhoods, in regards to the Monte Vista Historic District.
San Antonio Strategic Historic Preservation Plan
Section 3: State of the City
adaptive use and rehabilitation of historic buildings within San Antonio's
` neighborhoods and downtown district. In addition, Section F of the
Master Plan Po§(ies relates to Urban Design with the overallgoal of "...
strivingforgood urban design(that)shapes SanAntonio into a cohesive and attractive
y array of neighborhoods, commercial centers, andpub§c amenities."
City South Plan
Lavaca Historic District A City South Plan was adopted in 2003, which includes an extensive
historic preservation component. The Plan covers the southern half
of the City south of Interstate 410. The document notes, `The Plan is a
guide for future capital improvements, bond recommendations, and land development".
It addresses a vast, mostly rural area that is rich in South Texas history
including farms,ranches,cemeteries,and old bridges. The City's planning
staff is currently updating the document to reflect current conditions
with completion expected in 2009. This effort provides an opportunity
for OHP staff to update information,assess action items that have been
completed,and provide more input regarding policies and directions for
historic preservation.
The 2003 City South Plan has a specific section - Cultural & Historic
Resources - that defines two main historic preservation goals with
corresponding objectives and actions:
Goal: Preserve and protect the historic resources of the Southside
Initiative planning area.
Objective - Identify and designate historic districts and historic
landmarks.
• Perform a historic structures survey
• Identify potential historic districts and historic landmarks from
survey information
• Designate historic districts and historic landmarks
• Provide education and design assistance to owners of designated
properties
• Provide information on newly designated historic districts and
historic landmarks to the public on the Planning Department's
website
Objective - Designate a new River Improvement Overlay (RIO) District
to protect the unique environment of the San Antonio River
• Perform a San Antonio River survey of the section of the river in
the south planning area
San Antonio Strategic Historic Preservation Plan
Section 4: State of the City
• Identify defining characteristics
• Development design standards and guidelines to protect and
enhance the area's defining characteristics
• Designate a new RIO district in the planning area
• Provide education and design assistance for owners of designated
properties
Goal: Promote Heritage Tourism.
Objective - Link all historic sites through open space
• Perform an analysis of open space as it relates to historic sites
• Examine linkages between historic sites and open space
• Publish documents promoting linkages between historic sites and
open space
• Organize publicity events (i.e. home tours) for historic properties
This cultural and historic resources section of the City South Plan also
includes an overview of the area's history as well as its historic roads,
bridges,sites,buildings,and cemeteries.It concludes with a review of the
need to identify and preserve the area's unique resources through district
designations and zoning protections.
River North District Master Plan
A new master plan and development code has recently been created
for the River North district, which is adjacent to San Antonio's
central downtown district. The Master Plan introduces form-based
development standards as a means to shape the form and character of
new development as well as the operation and design of streets and other
public spaces. Historic preservation is recognized as a key planning goal
along with achieving a mix of uses,housing types and pedestrian-friendly
streets and public spaces within the River North district.
Within the Plan's Development Code,historic resources are classified within
three categories of importance in terms of overall district planning and
development goals. Resources classified within the "Local Landmark"
and "High Integrity" categories cannot be demolished or relocated.
Local landmarks are defined as HE, HS or H in the City's zoning map. '� U
The third category, "Medium Integrity", concerns historic resources
that may need rehabilitation or restoration but could be considered
for possible demolition on approval from Historic and Design Review
Commission. Apart from landmarked historic resources within the River
North district,the planning area also falls within the River Improvement Lavaca Historic District
San Antonio Strategic Historic Preservation Plan
Section 3: State of the City
Overlay districts 2 and 3, which subjects new developments under the
new Development Code to HDRC review (the development code has
not been approved as of this report's production).
Strategic Plan for Community Development
The Strategic Planfor Community Development documents overall strategies
St. Paul Square, Sunset Station for improving housing,urban environments and economic opportunities
within the City of San Antonio. The City Council adopted the Strategic
Plan in 2008. The key recommendations of the Strategic Plan include the
creation of a Community Development Advisory Committee (CDAC)
and the use of "Reinvestment Plans" to coordinate public and private
sector community development activities and resources in targeted areas
to stimulate reinvestment. The Strategic Plan appears to be supportive
of historic preservation as it lists several possible initiatives within future
Reinvestment Plans:
• Targeted disposition of city-owned properties and the
establishment of design standards through appropriate programs
such as historic and conservation district designations, the
Neighborhood Commercial Revitalization Program, targeted
historic rehabilitation credits, and a future Community Land
Trust.
• Leverage the use of national historic rehabilitation tax credits
and incentives.
• Develop a rehabilitation showcase program.
• Develop a real estate certification program to assist agents in
marketing properties in historic and neighborhood conservation
districts.
• Creation of a Community Development Fund to finance a
variety of reinvestment activities.
Neighborhood Plans
In addition to the 1980/1997 Master Plan and 2003 City South Plan,
there are numerous district and neighborhood plans that address specific
geographic areas of San Antonio and include historic preservation
policies and strategies.
These plans include:
Area/District/Neighborhood Plans
• Arena District/Eastside Community Plan
• Camelot I Neighborhood Plan Update
• Downtown Neighborhood Plan
San Antonio Strategic Historic Preservation Plan
Section 4: State of the City
• West Neighborhood Plan Update
• HemisFair Park Area Master Plan
• Five Points Neighborhood Plan
• Government Hill Neighborhood Plan Update
• Greater Dellview Area Community Plan
• Guadalupe Westside Community Plan
• Highlands Community Plan
• Huebner/Leon Creeks Community Plan
• IH 10 E. Perimeter Plan
• IH 10 E. Perimeter Plan Update
• Ingram Hills Neighborhood Plan
• Kelly / South San P.U.E.B.L.O. Community Plan
• Lavaca Neighborhood Plan
• Mahncke Park Neighborhood Plan
• Midtown Neighborhood Plan
• Near Northwest Community Plan
• Nogalitos/S. Zarzamora Community Plan
• North Central Neighborhoods Community Plan
• Northwest Community Plan
• Northwest Community Plan Update
• Northeast Inner Loop Neighborhood Plan
• Oakland Estates Neighborhood Plan
• Oakland Estates Neighborhood Plan Update
• River Road Neighborhood Plan Update
• South Central San Antonio Community Plan
• South Central San Antonio Community Plan Update
• Tobin Hill Neighborhood Plan
• United Southwest Community Plan
• Westfort Alliance Neighborhood Plan Update
Goals & Strategy Reports
• University Park Goals & Strategies Report-July 2004 �............
• Terrell Heights Neighborhood Goals&Strategies Report October Aztec Theater, 1959
1999
San Antonio Strategic Historic Preservation Plan
Section 3: State of the City
• Thompson Community Association Goals & Strategies Report
- November 1998
�i • Los Jardines Goals & Strategies Report- October 2007
7a'
Special Studies
• St. Paul Gateway District Report- Urban Land Institute (ULI)
• Avenida Guadalupe Report- Urban Land Institute (ULI)
Otto Koehler House
• Urban Land Institute Draft Report: Southside Initiative
• Five Points Neighborhood Revitalization &Design Guideline
Report
• Planning Design Report&Environmental Assessment for
Olmos Creek
Plans in Progress
• Eastern Triangle Community Plan
• Stinson Airport Vicinity Land Use Plan
• Roosevelt Corridor Reinvestment Plan
• Westside Reinvestment Plan
• Ingram Hills Neighborhood Plan
During the initial phase of the historic preservation planning process,
several stakeholders stated the need "...to look atdist�zctsmove comprehensively,
so that neighborhood plans,zoning regulations,and development review
processes are aligned with overall City and neighborhood historic
preservation goals in the downtown core and neighborhood historic
districts.
There is also a need to better address and promote the "big picture" or
larger context of a neighborhood when preserving historic resources.
Stakeholders discussed the need to enhance land use mix, building
massing, sidewalks,landscape, streetscape,and signage so an overall area
becomes more viable and more people see it as a desirable place to live or
own a business. For example, some public improvement decisions, such
as front lawn embankments and the widening of streets were considered
in some cases to have had negative impacts to the overall design character
of some historic districts.
The HDRC and OHP also need to be involved earlier and more
comprehensively in the City's planning initiatives processes, whether
they involve the downtown core, River Corridor, commercial corridors,
neighborhoods,or individual sites and properties.
San Antonio Strategic Historic Preservation Plan
Section 4: State of the City
Several neighborhood plans were reviewed to assess whether they
incorporated historic preservation goals and initiatives:
• Downtown Transportation Study Recommendations,
Appendix D, 1997 - Specific observations and recommendations
were made regarding the possible development and installation of
a historic trolley system to connect Sunset Depot to Brackenridge
Park. It was also recommended that a parking facility be developed
at Chestnut and Center Streets incorporating the preservation of
several historic structures within Ellis Alley.
• Downtown Neighborhood Plan, 1999 - Specific observations
and recommendations were made regarding the location of
local government offices in historic buildings to form a historic
government district. As part of the land use components,it was
recommended that within Dignowity Hill, residential uses should
be a maximum density of 10 units per gross acre and infill and
housing rehabilitation should be encouraged. In St. Paul Square,
the rehabilitation of the historic commercial buildings,train depot
and VIA parking facility should be considered as an entertainment
district and African American heritage complex. Within the
Riverbend area, a City museum within a historic civic center area
should be considered,along with the installation of special kiosks
and historical markers.
• East Neighborhood Plan, Long-Term Vision - Specific
observations and recommendations were made regarding the
connection of the Eastside cemeteries to University of Texas at
San Antonio campus with cultural and historical walkways. It
also recommended implementing the 1990 Old San Antonio City
Cemeteries Historic District Master Plan.
• South Neighborhood Plan, Long-Term Vision - Specific
observations and recommendations were made regarding the
development of a landscaped linear park and jogging trail that
would connect to the historic civic center initiative. Furthermore,
it recommended that the residential and historic character of
neighborhoods be maintained as well as the designation of the
Lavaca area as a local historic district. ;,
• West Neighborhood,Short Term Vision-Specific observations
and recommendations were made regarding the promotion of the
neighborhood's history through special publications and projects.
• Arena District/East Side, 2003 - Specific observations and
recommendations were made regarding the significant number of
older historic homes that could be rehabilitated and the eligibility Alameda Theater
San Antonio Strategic Historic Preservation Plan
Section 3: State of the City
of the neighborhood for designation as a local historic district
or listing in the National Register Historic District. Recreational
lands and open spaces with unique environmental or historical
value should be enhanced. Designating New Braunfels Avenue
as a Neighborhood Commercial Revitalization District is also
specified as a priority.
• Downtown West Neighborhood Plan Update, 2009 - Specific
observations and recommendations were made regarding the
proposed re-use of a historic terminal structure to function as
a VIA transit center and hub for the Bus Rapid Transit (BRT)
project,which is scheduled for a 2012 service date.
• Greater Dellview Area Community Plan, 2005 - Specific
Guadalupe Theater observations and recommendations were made regarding the
rehabilitation of dilapidated historic homes within the planning
area. It was recommended that the OHP, the Conservation
Society, and other non-profits work together to identify strategies
and funding opportunities for housing rehabilitation projects.
It was noted within Appendix A of the Plan that the Richard
McIlvain Home, circa 1890, was restored by the San Antonio
Housing Trust Foundation as a community center for Pasadena
Heights.
• Government Hill Neighborhood Plan Update,2008- Specific
observations and recommendations were made regarding the
rehabilitation of homes and structures within the historic district.
The historic commercial district along North New Braunfels
Avenue,within the Government Hill Historic District,is noted for
its intact stand of commercial buildings.
• Five Points Neighborhood Community Plan, 2000 - Specific
observations and recommendations were made regarding the
preservation of the existing housing structures individually
through historic landmark designation or through the creation of
a neighborhood historic or conservation district. In addition to
preservation, the improvement of the housing stock is possible
through rehabilitation and infill development.
• Avenida Guadalupe Westside Community Plan, 2007 -
Specific observations and recommendations were made regarding
the designation of the area as a Conservation District, as several
historically or culturally significant resources were identified during
the planning process. Maintaining the historic single-family home
development pattern and encouraging sensitive adaptive use are
also key planning goals. Interestingly, it was also recommended
that statues,plaques and historical photo exhibits of the Westside
San Antonio Strategic Historic Preservation Plan
Section 4: State of the City
could improve the corridor experience and provide information
about the area's history and culture.
• Lavaca Community Plan, 2001 - Specific observations and
recommendations were made regarding the preservation of
historic residential buildings and facilitating compatible infill
housing within the neighborhood. The Plan specifically
recommended investigating the designation of the neighborhood
as a local historic district and developing design guidelines for
new compatible infill development. In addition, a survey of
residential properties with suspected code compliance violations
and identification of available funding sources for rehabilitation
of homes along the 500 block of Leigh Street were also listed as
action steps.
• Mahncke Park Neighborhood Plan,2001-Specific observations
and recommendations were made regarding the need to preserve
individual properties of historic and cultural significance
in the neighborhood and the possibility of implementing a
Neighborhood Conservation District to establish appropriate
design standards for new commercial and residential development.
The Plan also calls for maintaining the diversity of housing types
in the neighborhood and undertaking initiatives to educate local
homeowners on the benefits of historic property designation
and available tax incentives. It also mentions that efforts should
continue on identifying the route of the historic Spanish Acequia
Madre and explore its preservation and interpretation. Mahncke
Park was successfully designated as an NCD in 2001.
• Midtown Neighborhood Plan, 2000 - The Midtown
Neighborhood Plan lists extensive planning goals and
recommendations regarding the preservation, rehabilitation and
reuse of historic residential and commercial resources. However,
the revitalization and preservation of the Blanco, Fredericksburg,
Hildebrand, Flores, and San Pedro commercial nodes appear to
be high economic development and urban design priorities within
the Plan. Undertaking architectural surveys of the neighborhood's
commercial centers,assessing their conditions,establishing design
guidelines, the development of a house paint incentive program, ^ U
and educating neighborhood stakeholders about proper building
/MW � J
rehabilitation techniques and incentives were key planning P
objectives presented within the Plan. Partner organizations
were also identified to carry out specific education initiatives -
.
including the development of a historic preservation brochure or
educational campaign and an informational restoration guide. Lavaca Historic District
San Antonio Strategic Historic Preservation Plan
Section 3: State of the City
11J1J)J�J� �� Cultural Collaborative Plan
In 2005,the City's Office of Cultural Affairs concluded a public planning
process to develop a Cultural Collaborative Plan. Several goals and
� key priorities within Plan include the preservation of the City's built
environment and the support of cultural and heritage tourism initiatives.
More specifically, the Plan recommends the development of "cultural
East Side Ice and Cold Storage districts" in which an emphasis would be placed on supporting local
arts related activities that generate jobs and facilitate the reuse of historic
resources and revitalization of specific neighborhoods. The Plan also
recommends creating an active cultural and heritage tourism program
and a series of neighborhood "discovery tours" in partnership with the
Convention and Visitors Bureau. The Office has already developed plans
for several tours that focus on the heritage resources and cultural amenities
of neighborhoods beyond the downtown district.
City Zoning
Section 211 of the Local Government Code is the zoning enabling
act for Texas municipalities and authorizes local communities to adopt
zoning regulations for the `purpose of promoting the publz'c health, safety,
morals,orgeneral yelfare andpvotectzng andpreservingplaces and areas of historical,
cultural,or architectural importance and significance". It also states that "...in the
case of designated places and areas of historical, cultural, or architectural importance
and signzficance, the governing body of a municipalz'ty may regulate the construction,
reconstruction, alteration, or ra.Zing of buildings and other structures." Section 211
allows local municipalities to adopt and implement historic preservation
ordinances to prevent the loss of historic resources, and establish
historic preservation commissions to review proposed alterations to
historic buildings and structures.
The City of San Antonio's main zoning document is its Unified
Development Code (UDC). The UDC contains the City's land use
regulations with the purpose of promoting the health, safety, morals,
and general welfare of the community. It is also meant to implement
the policies,goals, and objectives of the San Antonio Master Plan. The
UDC's General Purpose and Intent section (Section 35-102) specifies
that zoning and land use regulations should be designed to promote
the preservation and protection of places "...of historical, cultural or
architectural importance and signzficance." Similar to most municipal zoning
ordinances, the UDC regulates land use and development through base
zoning districts, overlays, special districts and development standards,
among other zoning tools. It should be noted that properties belonging
to the City of San Antonio,the City Public Service Energy utility,and the
San Antonio Water System are exempt from UDC zoning provisions.
San Antonio Strategic Historic Preservation Plan
Section 4: State of the City
Within the UDC, Article VI outlines the designation and design review
processes of the HDRC in relation to individual landmarks, historic
districts and new construction within the River Improvement Overlay
Districts. Article VI also includes provisions regarding the protection of
archaeological sites and cemeteries, the design and construction of new
public facilities, and the approval processes for the City's public art and
design enhancement program. In some respects,Article VI is the historic
preservation ordinance for the City, although there are other provisions
within the UDC that deal with other aspects of the historic preservation
program and HDRC operations. For instance,Article IV,Division 5 of
the UDC outlines general rules and procedures regarding certificates
of appropriateness and demolition permit applications. Article VIII
describes the composition and general powers and duties of the Historic
and Design Review Commission and the respective responsibilities of
the Historic Preservation Officer.
Evolution of Article VI Over Time
Article VI and other historic preservation related provisions of the
UDC are successor versions of the first historic preservation ordinance
adopted by the City of San Antonio more than 70 years ago. In 1939,
the City enacted its first preservation ordinance,primarily to protect the
La Villita district, the original Spanish Colonial settlement associated
with Mission Valero. The 1939 Ordinance marks San Antonio's historic
preservation program as one of the oldest in the United States next to
Charleston (1931) and New Orleans (1936).
Over the years, the historic preservation ordinance and the powers
of its associated historic preservation commissions and review bodies
have been amended several times. In 1967, the City revised the 1938
Comprehensive Zoning ordinance to allow for the establishment of
historic districts,creation of a Board of Review,and for new enforcement
rules regarding building permits in such districts. The following year,
1968,the City adopted Ordinance No. 36478,which established the King
William Historic District,which bears the title, "Historic District#1".
In 1974, Ordinance No 43796 was ratified, which provided additional
authorizations for the creation of historic districts and individual historic
landmarks, reconstituted the Board of Review for Historic Districts
and Landmarks, and provided additional considerations for the review
of permits to change, restore and demolish individual landmarks and
resources within historic districts. It was not until 1992 when Ordinance
No. 76514 was adopted that the current Historic and Design Review '
Commission was created as a merger between the Board of Review for
Historic Districts and Landmarks,Riverwalk Advisory Commission,and East Side-Friedrich Refrigeration
Fine Arts Commission.
San Antonio Strategic Historic Preservation Plan
Section 3: State of the City
Observations
Article VI provides the HDRC with broad powers to designate
w�oMo�u
landmarks and districts, as well as issue Certificates of Appropriateness
(COA), for landmarks and properties within historic districts and the
River Improvement Overlays. Specifically, Section 35-102 of Article VI
provides (the) "...standards for the alteration, restoration and rehabilitation of
historic structures,properties nithin historic districts, modification of archaeologic
Historic neighborhood al
sites, and development activities on city-opined pp
roperty, and n thin ub& nghts-of-
.
commercial building in Lavaca may." It is unique in that the HDRC conducts urban design review in
overlay districts that may not necessarily have historic districts. This
combined design review authority results in a relatively heavy workload
for the HDRC and OHP's as compared to other similar sized municipal
historic preservation commissions.
The UDC's Article VI, Division 2, outlines the process for historic
district and landmark designation and for obtaining a COA for new
construction, alterations to existing resources, and demolitions. In
addition,requirements for receiving the tax exemption incentive are also
specified.
In general, Article VI, Divisions 1 and 2, includes provisions that are
standard in many other municipal historic preservation ordinances. These
provisions include designation criteria and processes for landmarks and
districts, certificate of appropriateness review procedures for alterations
to historic resources and new construction, and demolition approval
processes for economic hardship and/or unusual and compelling
circumstances. It also includes additional features for the municipal
historic preservation tax exemption program,treatment of sites following
demolition, ordinary building repairs and maintenance, and standards
for signs and billboards. Respectively, Divisions 3 and 4 address the
treatment and protection of archaeological sites and publicly owned
historic resources.
Article VI is lengthy given the multiple responsibilities of the Historic
and Design Review Commission. Division 2 could be organized more
cohesively to make it more readable,especially the sections related to the
designation and certificate of appropriateness review processes. The
consolidation of Divisions 1 and 2 would also help make the designation
process more comprehensible. Other components of standard historic
preservation ordinances include a set of definitions defining important
terms such as "historic district," "rehabilitation," and "certificate of
appropriateness", as well as provisions that outline the membership,
powers and duties of a municipal historic preservation commission.
Within San Antonio's UDC, the definitions component is not included
in Article VI but rather in a different section of the UDC in Appendix
A. In addition, the composition, powers and functions of the HDRC,
San Antonio Strategic Historic Preservation Plan
Section 4: State of the City
along with the duties and responsibilities of the Historic Preservation
Officer, are outlined within the Article VIII, not Article VI. Perhaps
these components could be reorganized within Article VI so that all
provisions regarding HDRC operations can be found in one place within
the Unified Development Code.
In terms of ways to simplify Division 2 of Article VI, consideration
should be given to consolidating the sections on designation criteria
and the individual landmark and district designation processes into
one cohesive section. First, Section 35-607 of Division 2 outlines two
distinct sets of designation criteria, one for the initial evaluation of a
potential historic district or landmark and a second set used in a final
evaluation process when a property or district meets one or more of the
initial criteria. The two sets of criteria presented may not be necessary
and perhaps only one set of evaluation criteria could be developed and
used to judge the eligibility of historic resources for landmark or district
designation
Secondly, in order to streamline the designation process, consideration
should be given to eliminating the need for a Zoning Commission
hearing,as is required by provisions specified in Division 2. Instead,the
Zoning Commission could be required to submit to the HDRC a report
outlining any impacts the designation may have on any neighborhood
or district-level plans and policies. Third, perhaps the demolition and
economic hardship provisions within Division 2 could also be simplified
and consolidated.
Owner consent provisions within Article VI weaken the ability of
neighborhood groups or other entities to facilitate the designation of
local historic districts,especially in areas that can benefit from designation
to encourage reinvestment and revitalization. Current provisions require
that 51 percent of property owners within a proposed district must
approve of designation. According to criteria used to designate a district
in the National Register of Historic Places, 51 percent of property
owners must object to listing. Last, the requirement that two-thirds
of the HDRC membership must approve a designation is not standard
to most municipal historic preservation procedures. Although this
provision was recently amended in 2009 to require two-thirds approval
of HDRC members present, it is typical of most historic preservation
commissions that only a majority vote is required. A�
Division 3 of Article VI concerns archeological sites and cemeteries ,1
within the City of San Antonio and contains provisions for the review
of potential impacts on both inventoried and unidentified archaeological
sites. For projects and activities that will have an adverse impact on
identified archaeological sites, as determined through a required impact Historic commercial buildings,
study,a treatment or mitigation plan must be developed by a professional downtown San Antonio
San Antonio Strategic Historic Preservation Plan
Section 3: State of the City
archaeologist for an approval order or a Certificate of Appropriateness
to be issued by the Historic Preservation Officer or the Historic and
Design Review Commission. Regarding the discovery of unidentified
archeological sites,all activities within the site's vicinity are suspended for
30 days until a written order allowing the activity to continue is issued
by the Historic Preservation Officer. Within five days after notice of
discovery, the Historic Preservation Officer must determine whether an
impact study and possible treatment plan is needed or if the proposed
work or activity can proceed. In evaluating archeological studies and
treatment plans, the HDRC and Historic Preservation Officer will
apply review criteria established within the Texas Antiquities Code and
guidelines for the treatment of archeological resources defined by the
Advisory Council on Historic Preservation. In the most recent biennial
King William Historic District update of the UDC in January 2009, both archaeological and historic
resource survey reports will be required for master planned development
applications within the City and its Extra-Territorial Jurisdiction.
Division 4 of Article VI concerns the HDRC's and OHP's role in
reviewing the design of new public facilities as well as proposed
rehabilitation and restoration plans of existing municipal buildings and
facilities including parks and open spaces. General design guidelines for
new construction and for existing facilities are specified within Sections
35-642 and 35-644. Construction within the public-rights-of-way are
also considered and the HDRC has review authority over street furniture,
drinking fountains, trash receptacles, awnings and canopies, streetscape
landscaping, and vending carts and kiosks.
Other Relevant Codes + Ordinances
Chapter 6 of the San Antonio Code of Ordinances includes various
articles related to building and housing codes and other concerns such as
dangerous and distressed buildings,retaining walls and building relocation.
According to Chapter 6, the City uses both the International Building
Code and International Existing Building Code, the latter of which
contains requirements intended to encourage reuse of existing buildings
in regards to repairs, alterations, additions, and changes of occupancy.
Article VIII of Chapter 6 enables the establishment of the Dangerous
Structures Determination Board (DSDB) and outlines the processes
and procedures related to the disposition of dangerous buildings that
go before the Board. Additionally, Section 6-158 of Article VIII allows
for the Historic Preservation Officer to sit as a member of the DSDB;
it also requires the Historic Preservation Officer to determine if cases
before the Board are eligible for landmark designation. In specific cases
where a property might pose an immediate danger to life and safety, and
there is a need to expedite repair or demolition,the Historic Preservation
Officer must also be consulted and concurrence sought for demolition of
San Antonio Strategic Historic Preservation Plan
Section 4: State of the City
historic landmarks and resources within historic districts. For emergency
demolitions, the OHP must determine the feasibility of stabilizing and
securing the building within a 72 hour time period. The OHP must
also notify the San Antonio Conservation Society and the appropriate
registered neighborhood association.
Chapter 28 of the San Antonio Code of Ordinances addresses the
permitting and construction of signs and billboards; Section 28-141
of this Chapter specifically outlaws the installation of billboards
within designated historic districts. In addition billboards constructed
within historic districts prior to their official designation receive
non-conforming status upon official designation. Article II of the
UDC includes several provisions regarding historic and archaeological
resources. For instance, in conservation subdivisions, the installation
of sidewalks and trails are not mandated if landmarked and protected
historic, archaeological or cultural resources are present. Additionally,
such historic resources currently listed or eligible to be listed in the
National Register or designated as a local landmark, shall be considered
part of the "primary conservation area" when reviewing conservation
subdivision applications.
Design Guidelines
The UDC's Article VI, Division 6 addresses the COA review and
approval process in the RIO districts. Significant text and graphic detail
regarding design guidelines has been provided to aid the HDRC in their
focused review of COA applications for new commercial and residential
construction that exceeds five units or five acres in the RIO Districts.
Although the design standards and guidelines within Division 6 are
detailed and comprehensive, they are focused on new development and
there is a lack of supporting narrative for improvements,rehabilitations,
and adaptive reuse for historically significant landmarks and buildings.
Design guidelines at an overall citywide level that include more direction
beyond the Secretag of the Interior Standards and Guide§nes for Histonc
Preservation.
. ..............................................
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Within the UDC's Article VI, Division 2, Section 35-605, Item D it
is noted that design guidelines for particular historic districts can be
developed, adopted and used by the HDRC to conduct COA design
reviews. However, Item D does not specifically require that design yF
guidelines be developed for existing and proposed historic districts, nor
does it refer to the guidelines that have already been developed for the
Lavaca and Government Hill districts. Furthermore, there is no clear
statement that additional historic district design guidelines will be used Appropriate design guidelines
in COA proceedings, other than a reference to Section 35-608 through can assist property owners in
making appropriate decisions
35-613,which are general design guidelines for new construction. regarding alterations and additions.
San Antonio Strategic Historic Preservation Plan
Section 3: State of the City
Only two of San Antonio's 25 local historic districts have specific design
guidelines, Lavaca and Government Hill. Houston Street also has a
specific set of guidelines although the majority of the street is located
in the River Improvement Overlay District 3. In general, both the
0
Government Hill and Lavaca design guidelines discuss the conservation
r of building materials and ornaments/features of older, historic homes
found in these neighborhoods.
In addition,both sets of guidelines stress affordable,low-cost options for
the restoration and rehabilitation of historic homes and resources,possibly
reflecting the income and demographic make-up of these neighborhoods
when the guidelines were written. Despite their overall strengths in
guiding historic building rehabilitation, both neighborhoods' guidelines
Houston street, do not present standards for appropriate new infill construction,which is
downtown San Antonio the opposite of the RIO guidelines that focus on new construction.
The Lavaca and Government Hill design guideline approach could be a
model for other similar neighborhoods and historic districts. Combining
this approach with standards for infill construction should also be
considered. In addition,the guidelines could be made more user-friendly,
perhaps placed on a separate "Design Guidelines" tab within the OHP
website and possibly translated into Spanish.
The number of design guidelines and the complexity of issues regarding
whether some guidelines have provisions for preservation and new
construction, and geographic gaps in the City not covered by specific
guidelines,needs to be addressed in a comprehensive manner. Ideally, a
general set of guidelines for new construction and building rehabilitations
that apply citywide should be considered for the residential blocks as well
as commercial streets within historic districts to ensure that each retain
their sense of place and identity. Specific guidelines could then be added
for areas with special characteristics and needs. The new construction
criteria for COA reviews,as currently set forth in Division 2,Section 35-
609,appear to be focused on commercial infill development. A good set
of infill guidelines would consider site development considerations along
with scale, height and massing considerations inherent in each historic
district for all land uses.
Other Policies
National Historic Preservation Act (NHPA)
Enacted by the U.S. Congress in 1966,the National Historic Preservation
Act established several programs including the National Register of
Historic Places, the Advisory Council on Historic Preservation and
the Section 106 review process for protecting historic, cultural and
archaeological resources from impacts due to federally funded or
San Antonio Strategic Historic Preservation Plan
Section 4: State of the City
licensed projects. The National Register of Historic Places is the nation's
official list of cultural, architectural and archeological places worthy of
preservation and is part of a national effort to coordinate public and
private resources to protect such resources. The National Register is
administered in Texas between the U.S. Department of the Interior/
National Park Service, the Texas Historical Commission and the San
Antonio OHP through its designation as a Certified Local Government.
In 1980, the NHPA was amended to implement the Certified Local
Government program,which allows for local communities to participate
in statewide preservation planning activities including access to grants
and resources allocated by the U.S. Congress.
Certified Local Government
Title 13, Chapter 15 of the State of Texas Administrative Code outlines
the rules and procedures for local Texas municipalities to participate in
the Certified Local Government Program (CLG). The CLG Program
is administered jointly between the U.S. Department of the Interior/
National Park Service, Texas Historical Commission and designated
CLG's of which San Antonio is one, with the central purpose of
developing a strong, effective historic preservation program at the local
level. Title 13 sets out minimum requirements for the certification of
local governments including the adoption of a historic preservation
ordinance and establishment of a local commission, the qualifications
of commission members,and an on-going program for historic resource
surveys. In addition, procedures for nominating properties to the
National Register of Historic Places and securing CLG grants are also
outlined within Chapter 15.
Antiquities Code of Texas
The Antiquities Code of Texas, passed in 1969 and amended in 1997,
requires that any action that disturbs historic or archaeological sites
on public land must be reviewed by the Texas Historical Commission.
Public land can be owned or controlled by governments or agencies at
the state, county or city levels. Projects that can be reviewed include, JAj
��
but are not limited to, reservoirs constructed by river authorities and �
water districts, construction or expansion of city recreational parks and
facilitates, energy exploration by private companies construction by a
city or county government that exceeds 5 acres or 5,000 cubic yards,
whichever comes first. If the activity occurs inside a National Register
or locally designated historic district, or affects a recorded archeological
site,it needs to be reviewed regardless of project size. 8100 Broadway, a
Recent Past resource
San Antonio Strategic Historic Preservation Plan
Section 3: State of the City
Economic Development
An issue that most cities face is the need for the public, and especially
elected and appointed officials,to consider historic preservation as a form
of "economic development". It is an awareness and understanding that
needs to be incorporated into policies, plans, regulations, and financial
incentives/programs so that preservation of a community is seen as an
important component of its economy and growth. This is especially
Riverwalk critical in cities like San Antonio, Washington, D.C., San Francisco,
Philadelphia,Paris,and London,which are branded worldwide as historic
places that are significant because of their history and culture.
Economic Development Programs
There are currently several programs and initiatives managed by the City's
Economic Development Department that relate to historic preservation
including empowerment zones, downtown development, small business
development and financial incentives. The activities and initiatives of
this Department include:
• Empowerment Zone - In partnership with the State, enterprise
zones allows the City to offer a package of local and state tax and
regulatory benefits to assist businesses in locating, expanding or
retaining jobs in economically distressed neighborhoods. Within
the City,all census tract block groups,in which at least 20 percent
of the residents have an income at or below 100 percent of
the federal poverty level, now qualify as State Enterprise Zone
areas. Designated projects are eligible for state sales and use tax
refunds on taxes paid for equipment and machinery, building
materials taxable services, and utilities used in zone business
operations. Such projects are also eligible for state franchise tax
credits based on job creation and capital investment. The use of
Empowerment Zone benefits for historic preservation should be
further explored, especially in neighborhoods where low-income
property owners cannot maintain their historic properties.
• Incentive Scorecard System - The Economic Development
Department manages the Incentive Scorecard System, which
is used to evaluate development projects seeking various City
incentives. The current scorecard evaluation system places
priority on neighborhood infill development and rehabilitation
and reuse of historic properties. However, the scoring system
places weight on large development projects of $10 million or
more. It is also unclear what current incentives can be used to
facilitate historic preservation activities. The scorecard system is
currently being evaluated to determine what additional incentives
should be created to encourage downtown and neighborhood
reinvestment as part of the overall Base Realignment and Closure
San Antonio Strategic Historic Preservation Plan
Section 4: State of the City
inner-city reinvestment strategies currently being developed by the
Planning and Development Services Department.
• Economic Development Briefing Team - The Briefing Team
provides technical assistance and troubleshooting services to
developers and investors regarding the site development and
permitting processes. Technical Assistance efforts of the Team
may be helpful to the OHP in briefing investors and developers
seeking to rehabilitate historic buildings and properties.
Other Housing + Neighborhood Development Programs
There are several program managed by the Housing and Neighborhood
Services Department that focus on housing and infrastructure
improvements and commercial district revitalization. The Department's
programs and initiatives include:
• Tax Increment Financing (TIF) - Tax Increment Financing
is a property tax based financing tool that is used to underwrite
public improvement costs associated with new development,
especially in distressed neighborhoods and vacant or under
utilized industrial areas. The areas in which TIF is being used
are known as Tax Increment Reinvestment Zones (TIRZ),which
there are currently 26 TIRZ districts in San Antonio. It appears
that only the Houston Street TIRZ uses TIF revenues for historic
preservation and facade rehabilitation purposes. Further study of
the potential of using TIF revenues more extensively to leverage
rehabilitation tax credits and other incentives in facilitating
adaptive use projects in downtown and in neighborhoods should
be considered (additional information on TIP ispvovided in the Incentives
section).
• Neighborhood Commercial Revitalization Program (NCR)
Revitalizing traditional neighborhood commercial districts within
San Antonio is the focus of the NCR Program. It appears
that four commercial districts are currently participating in
the NCR Program including the Avenida Guadalupe district,
Southtown, East Town and Commerce and the St. Mary's
University Neighborhood. At one point' outhe Sthtown district
was a participating neighborhood in the Texas Main Street
Program. It is unclear if the NCR Program provides technical
assistance services to participating organizations beyond financial �
assistance for building rehabilitation and facade improvements.
The Operation Facelift Facade Improvement Grant Program
(discussed further in the Incentives section belox) is a key element for
design enhancement in the NCR Program. Overall, the NCR
Program has resulted in $125 million in private investment in new Midtown on Blanco NCR District
San Antonio Strategic Historic Preservation Plan
Section 3: State of the City
and existing businesses. This successful program may be able to
r N be expanded to other commercial districts throughout the City
that have a substantial number of historic buildings.
• The Homeownership Incentive Program - The Department's
Homeownership Incentive Program (HIP) is designed to assist
eligible first-time buyers in purchasing new or existing homes
within San Antonio. The Program provides low-interest loans
Lavaca Historic District up to $12,000 to applicants for down payments,closing costs and
prepaid interest, amortized over 5 years, as long as the sales price
does not exceed$110,000,the"affordable home price"established
by San Antonio City Council. Applicants must be able to qualify
for an FHA,VA,or conventional loan from an institutional lender
and the applicant's total gross income cannot exceed 80 percent
of the area median income. First-time home buyers must also
receive counseling through the Department's Homebuyers' Club
and present a certificate of completion upon application.
• Rental Rehabilitation Program - Funds from Community
Development Block Grants (CDBG) and the HOME Investment
Partnership Act are used as low-interest loans to underwrite the
costs of repairs on single-family and multi-family investment rental
property. The property must have structural damage to at least
one major system component such as mechanical,electrical,roof,
foundation or plumbing. Properties must then be maintained as
residential rental property for the term of the loan and be rented
to low-income families at fair market value. This program has
been used to rehabilitate historic downtown residential buildings.
• Owner-Occupied Rehabilitation Program - Similar to the
Rental Rehabilitation Program, low-income homeowners can
seek and apply for financial assistance, through CDBG funds, to
rehabilitate and renovate their homes. Forgivable and low-interest
home improvement loans are not to exceed$35,000 or 75 percent
of the after rehabilitation appraised value are offered to eligible
applicants. A construction specialist assesses the property to
determine the repairs necessary to meet local building codes and
it must remain a residential property under the existing ownership
for the duration of the loan.
San Antonio Strategic Historic Preservation Plan
Section 4: State of the City
Incentives
There are several incentive programs used in San Antonio to encourage
the rehabilitation and reuse of historic properties and resources,
including local ad valorem tax exemptions and grant programs operated
by the San Antonio Conservation Society and the Neighborhood
Commercial Revitalization Program(NCR),which focuses on commercial
rehabilitation already summarized before.
This section summarizes a wide variety of financial incentive programs
that are available for the restoration and rehabilitation of historic
resources. Incentives are offered at the Federal, State and local levels.
Other incentives that are established to encourage other objectives, such
as economic development, but indirectly facilitate the rehabilitation of
historic resources are also summarized within this section.
Federal Incentives
• The 20 Percent Historic Preservation Tax Credit - The
Federal Historic Preservation Tax Credit lowers the amount of
Federal taxes owed on building rehabilitation expenses. The
National Park Service and the U.S. Department of the Interior
administers the program in cooperation with the Department
of the Treasury and the Texas Historical Commission (the State
Historic Preservation Office).
The 20 percent Rehabilitation Tax Credit is available for
depreciable properties rehabilitated for commercial, industrial,
agricultural, or rental residential purposes, but it is not available
for properties used exclusively as an owner's private residence. In
addition, a property must have been determined eligible by the
Texas Historical Commission for individual listing in the National
Register of Historic Places or must be located in a locally certified
historic district or in a historic district that is potentially eligible `
for listing in the National Register,may also qualify for the credit.
An application to receive the tax credits must be submitted to f
the Texas Historical Commission and work must conform to
the Secretag of the Interior' Standards and Guide§nes for Historic
Preservation.
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• The 10 Percent Historic Preservation Tax Credit - The 10
percent building rehabilitation tax credit is available for non- i
historic buildings placed in service before 1936. As with the 20 ,
percent rehabilitation tax credit,the 10 percent credit applies only 1 j
to depreciable, commercial buildings and the rehabilitation itself '
must be substantial, exceeding either $5,000 or the adjusted basis
of the property,whichever is greater. This credit applies only to Municipal Plaza
San Antonio Strategic Historic Preservation Plan
Section 3: State of the City
buildings rehabilitated for non-residential uses,thus rental housing
would not qualify. Projects undertaken for the 10 percent credit
must meet specific physical tests for retention of external walls
and internal structural framework.
State Incentives
• State of Texas Preservation Trust Fund Grants. The Texas
Monte Vista Historic District Historical Commission (THC) provides grants for a wide range
of preservation projects through the Texas Preservation Trust
Fund (TPTF). Trust Fund grants pay up to one-half of total
project costs to help preserve the State's cultural resources. Grant
funds are awarded for acquisition,development,and planning and
heritage education. Projects eligible for grant assistance include
commercial buildings,public buildings (such as schools,city halls,
libraries and museums), unique historic structures, archeological
site surveys, and training for individuals and organizations about
historic resources and preservation techniques.
The Fund itself is an interest-earning pool of public and
private monies, and the earned interest and designated gifts are
distributed yearly as matching grants to public and private owners
of eligible historic properties and archeological sites. In fiscal
year 2007, the THC reviewed more than 70 requests for grants
ranging from$2,500 to$30,000. The agency awarded 27 matching
grants totaling $477,800. While grant awards are relatively small
for use by the HDRC,projects needing financial assistance at the
local neighborhood level may benefit from securing a Trust Fund
grant.
The OHP has received in recent years, a grant from the TPTF
for kiosk signage at Main Plaza that details and illustrates the
history of the plaza based on the archaeological investigations that
occurred during the Main Plaza redevelopment.
• Certified Local Government Grants - Certified Local
Government (CLG) grants enable local Texas communities
to develop quality preservation programs and fund projects
for training for local preservation commissions, completing
or updating surveys of historic resources, producing historical
walking or driving tour materials, and preparing preservation
plans and National Register of Historic Places nominations. CLG
grants require a cash or in-kind service match from the local
community. Certified Local Government grants are funded with
money appropriated by the federal government for preservation
efforts through the National Park Service Historic Preservation
Fund "PF). By law,the THC must set aside at least 10 percent of
San Antonio Strategic Historic Preservation Plan
Section 4: State of the City
its HPF appropriation for CLG grants each year. Grants typically
range from $250 to $10,000. Over the past several years, CLG
monies have been used by the Office of Historic Preservation to
fund a homeowner's guide to historic preservation and a survey of
19th Century farm and ranch complexes in San Antonio's extra-
territorial jurisdiction area.
• History Museum Grants - The Texas Historical Commission
offers History Museum Grants to assist small museums in the
preservation of their collections. The maximum grant amount
per museum is $1,000,with grant funds payable upon completion
of the project as reimbursement for expenses incurred.
City-Level Historic Preservation Incentives
• San Antonio Historic Tax Exemption - This program waives
any increased property taxes on historic resources in three
circumstances - properties that have undergone a substantial
rehabilitation,properties located within newly designated historic
districts, and for substantially rehabilitated rental properties. For
substantially rehabilitated properties, the property shall have no
assessed value for ad valorem taxation for a period of five years.
Thereafter, the exempt property shall be reappraised at current
market value and assessed at 50 percent rate for an additional
consecutive five-year period. For new historic districts, all
residential properties occupied by the property owner will qualify
for an ad valorem tax credit amounting to 20 percent of the
assessed city of San Antonio ad valorem property taxes for up
to 10 years with an extension of an additional five years grant to
qualified property owners.
Owners of a substantially rehabilitated designated historic
landmark, either individually designated or by location within
a local historic district, that lease 40 percent or greater of all
rental units to low-income tenants, as defined by the United
States Department of Housing and Urban Development (HUD)
requirements for the San Antonio Metropolitan Statistical Area
#1 can qualify for an additional tax exemption. It should be noted
that the tax exemption is not tied to the property itself but rather `
to the owner. When the property is sold to a new owner, the
exemption does not carry forward.
• San Antonio Conservation Society Community Grant
Program - The San Antonio Conservation Society offers grants
for the restoration or rehabilitation of residential or commercial
historic structures that are at least 50 years old, with priority
given to historic resources that are architecturally significant and 01mos Park Terrace Historic District
San Antonio Strategic Historic Preservation Plan
Section 3: State of the City
endangered. Generally, all exterior work is eligible, although
interiors can qualify if they are of landmark quality.
General maintenance such as painting is considered to be the
responsibility of the property owner and is generally not eligible
for grant funding. All work must be done according to the
Secreta o the lntenor� Standards or Kehabi&ation and Guide§nes or
rJ' f f f
Kehabi&ating Histonc Buildings. Requests over $15,000 are seldom
granted under this program;the most commonly granted amount
is in the $5,000 range.
Other Local Incentives
The following are additional incentive programs offered by the City
Waterworks, Brackenridge Park of San Antonio although not directly related to historic preservation
purposes.
• City Tax Abatement Program - The City of San Antonio
Economic Development Department offers a substantial Tax
Abatement Incentive of up to 100 percent on real estate or
personal property taxes on improvement values for a maximum
term of up to 10 years. Individual Tax Abatement applications
are subject to final negotiation and approval by City Council.
Applicants must be engaged in one of the following qualifying
industries:aviation and aerospace,biotechnology,creative services,
green technology, finance, corporate and regional headquarters
activities,or downtown Urban Significant Projects.
• City Tax Increment Financing - Tax Increment Financing
(TIF) is a municipal financing tool that can be used to finance
new public improvements and infrastructure, although it is
unclear if monies can be directed to the rehabilitation of historic
buildings. Tax Increment Financing allows future ad valorem
taxes and sales tax revenues to be pledged to finance public
infrastructure improvements. In some states,TIF can be used to
underwrite facade improvement programs or equity contributions
for substantial historic building adaptive use projects.
• Community Development Block Grants - Community
Development Block Grant monies are current being used to
underwrite several programs within the Housing and Neighborhood
Services Department, including the Operation Facelift Facade
Grant Improvement Program.
• Enterprise Zone - An Enterprise Zone (EZ) is an economic
development tool that allows the community to partner with
the State to offer a package of local and state tax and regulatory
benefits to assist businesses seeking to locate, expand or retain
San Antonio Strategic Historic Preservation Plan
Section 4: State of the City
jobs in economically distressed areas. Within the City of San
Antonio,all census tract block groups in which at least 20 percent
of the residents have an income at or below 100 percent of the
federal poverty level now qualify as State Enterprise Zone areas.
In addition,the area encompassing the City's Federal Empowerment
Zone (EZ) qualifies as a State Enterprise Zone. Designated
projects are eligible for state sales and use tax refunds on taxes
paid for equipment and machinery, materials used in building a
new structure,taxable services,and utilities used in zone business
operations. Designation projects are also eligible for state franchise
tax credits based on job creation and capital investment.
Additional Incentives
The following are additional incentive programs offered by other entities,
primary governmental agencies and non-profit organizations.
• National Trust for Historic Preservation - National Trust
Preservation Funds provide two types of assistance to nonprofit
organizations and public agencies: 1) matching grants from $500
to$5,000 for preservation planning and educational efforts,and 2)
intervention funds for preservation emergencies. Matching grant
funds may be used to obtain professional expertise in areas such
as architecture, archaeology, engineering, preservation planning,
land-use planning, fund raising, organizational development and
law as well as to provide preservation education activities to
educate the public.
The Johanna Favrot Fund for Historic Preservation provides
nonprofit organizations and public agencies grants ranging from
$2,500 to $10,000 for projects that contribute to the preservation
or recapture of an authentic sense of place. Individuals and for-
profit businesses may apply only if the project for which funding
is requested involves a National Historic Landmark. Funds may
be used for professional advice, conferences, workshops and
education programs.
• National Trust Community Investment Corporation - The
11111
National Trust Community Investment Corporation, a subsidiary
of the National Trust for Historic Preservation, works with
property owners in making equity investments in substantial
building adaptive use projects that qualify for Federal Historic
Preservation Tax Credits and, when available, New Markets TaxCredits. Property owners include for-profit developers,nonprofitorganizations and local governments. The Corporation has
worked on several tax-credit projects in San Antonio over the last Homes along Ellis Alley
San Antonio Strategic Historic Preservation Plan
Section 3: State of the City
several years and even underwrote the development of Lavaca's
design guidelines publication.
• Save America's Treasures Program - Administered by the
National Park Services and the National Trust for Historic
Preservation, Save America's Treasures provides grants for
, R preservation and conservation work on cultural artifacts and
historic buildings, districts, structures and sites. Artifacts include
Keystone Park collections, documents, sculpture, and works of art. Grants are
awarded to federal,state,local,and tribal government entities,and
non-profit organizations through a competitive matching-grant
program.
• Preserve America Grants - Preserve America is a federal
initiative that supports community efforts to preserve important
historic and cultural resources. The goals of the program include
a greater shared knowledge about the nation's past, strengthened
regional identities and local pride, increased local participation
in preserving the country's cultural and natural heritage assets,
and support for the economic vitality of local communities. The
Preserve America matching-grant program provides funding to
designated Preserve America Communities to support a variety of
activities including heritage tourism, surveying and documenting
historic resources, interpreting historic sites, planning, marketing,
and training. San Antonio has been designated a Preserve America
community.
Potential Incentive Models
The following are innovative incentive programs enacted by other major
U.S. cities that could serve as models for future historic preservation
incentive programs in San Antonio.
• Chicago Streamlined Tax Increment Financing Program &
Small Business Improvement Fund (SBIF) - The Streamlined
TIF Program provides expedited access to valuable grants for
the improvement of industrial, commercial, retail or residential
mixed-use properties in Tax Increment Financing (TIF) districts
citywide. The program incorporates an easy-to-use application
form and efficient approval process to pay up to 25 percent of
renovation and rehabilitation costs.
Assistance ranges from$25,000 to $1,000,000. Grants are paid in
annual installments to participants following project completion
and do not have to be repaid. Expenses eligible for TIF grants
include: certain environmental remediation measures, building
rehabilitation and repair, permanently affixed signs or awnings,
San Antonio Strategic Historic Preservation Plan
Section 4: State of the City
rehabilitation and remodeling of existing tenant improvements,
professional fees related to the redevelopment project, and up to
30 percent of an applicant's construction period interest costs.
The Small Business Improvement Fund helps make improvements
to small business properties in select Chicago neighborhoods.
The program uses TIF revenues to help owners of commercial
and industrial properties within specific TIF districts to repair
or remodel their facilities for their own business or on behalf
of tenants. Program participants can receive matching grants
to cover up to half the cost of remodeling work, with a
maximum grant amount of $50,000. The grant does not have
to be repaid. Expenses eligible for a SBIF grant include sign
removal and replacement, tuckpointing, new heating, ventilation
and air conditioning, improvements to accommodate disabled
patrons or workers, and the purchase of adjacent property for
building expansion or parking. Grants are provided to property
owners after remodeling work is completed and all expenses are
paid. Residential property, residential components of mixed-use
buildings, and property leased to fast-food chains and certain
other businesses are not eligible for the program. Vacant business
property is eligible, but grants are not paid until the space is
occupied by a business tenant.
• Providence Preservation Society Revolving Fund- Since 1982,
the Providence (RI) Preservation Society has operated a highly
successful Revolving Fund that has invested over$3 million in more
than 154 building rehabilitation projects in several neighborhoods
including the downtown district. These investments have leveraged
over$7.8 million in additional financing from the private sector.
The Revolving Fund,which is currently capitalized at$2 million in
assets, is used to purchase endangered and abandoned properties
for resale to responsible owners. In turn, new property owners
are eligible to apply for low-interest rehab loans,especially to those
who cannot obtain conventional financing due to income level
and/or condition of building and surrounding neighborhood.
The key component of the Revolving Fund is the Neighborhood
Loan Program, which provides loans secured by a first or
subordinated second mortgage,personal guarantees,and additional i
collateral as required. Loan terms are usually determined on a
case-by-case basis. This program focuses on Providence's low and
moderate-income historic neighborhoods in need of revitalization
and stabilization. A second component, the Downcity Loan and
Grant Program, provides loan and grants to stimulate investment Hanger 9, Brooks Air Force Base
San Antonio Strategic Historic Preservation Plan
Section 3: State of the City
in historic commercial districts. Storefront loans will typically be
based on the prime rate with a term no longer than 72 months.
The Revolving Fund is managed by an 11-member board
comprised of experts in banking, real estate development, law,
wr historic preservation, architecture, and social services; three
volunteer committees advise the board on strategies for their
respective neighborhoods. Architectural design assistance and a
Neighborhood commercial material salvage service are also provided to applicants.
building in Lavaca. • Los Angeles Adaptive Reuse Ordinance- Created in 1999,the
Los Angeles Central City Association helped to sponsor a new
adaptive reuse policy, which was later adopted and implemented
through municipal ordinance. The ordinance helps to streamline
the process developers must follow to get projects approved,
resulting in substantial time savings.
The program's first component, a set of land use ordinances,
relaxes parking, density, and other typical zoning requirements.
Through construction guidelines,the program's second component
provides flexibility in the permitting process. The program was
initially geared for the central downtown but has since been
expanded citywide to focus on distressed neighborhoods. The
program is coordinated between the Office of the Mayor, the
Department of Building and Safety,and the Fire Department.
• Historic Savannah Foundation Revolving Fund - Historic
Savannah Foundation started its Revolving Fund in 1959, which
has saved historic homes and resources throughout several
neighborhoods within the City. The Foundation purchases
endangered historic structures and holds them for resale to a
new owner committed to restoration and rehabilitation. The
Foundation retains a restrictive covenant on the property to assure
its future preservation and maintenance.
In the 1990s, the Historic Savannah Foundation, with an initial
investment of $170,000 in eight threatened historic homes in
the Beach Institute neighborhood, generated a reinvestment
amount of $3 million worth of property rehabilitation. This
neighborhood, which is a mixed-income, multi-cultural area on
the eastern edge of the Savannah's famed Landmark District,has
now seen the rehabilitation of approximately 60 buildings and is
once again an attractive place to live.
• Savannah Mayor's Alliance to Save Historic Houses - The
Mayors Alliance to Save Historic Houses (MASHH) is an initiative
by Savannah Mayor Otis Johnson,the City of Savannah Property
Maintenance Division, and the Historic Savannah Foundation
San Antonio Strategic Historic Preservation Plan
Section 4: State of the City
to eliminate blight, improve public safety, promote economic
development,support better land use,and foster better community
relations. The Foundation and the City are monitoring and
developing strategies to save the historic properties on the Mayor's
100 Worst Properties list, which was first issued in September
2007.
The partners meet quarterly to review progress and share
information to put these buildings to productive use, which is
critical to the sustainability of Savannah's eight residential National
Register Historic Districts. Between these meetings, the Historic
Savannah Foundation works closely with the City Property
Maintenance Division on issues as they develop. The Foundation
provides weekly reports to the Mayor's Office regarding home
purchases or options made by the Foundation.
City Commissions + Agencies
The following is a listing of the City agencies and commissions that have
primary responsibilities for managing the City's historic preservation
program or have a formal or informal involvement with the Office of
Historic Preservation and the Historic and Design Review Commission.
Historic and Design Review Commission
The Historic and Design Review Commission's central mission is to
preserve and maintain the City's historic resources including districts,
individual landmarks and archeological sites. Through Article VI of the
Unified Development Code, the Commission is specifically empowered
to oversee the designation processes for individual landmarks and historic
districts, and the Certificate of Appropriateness review procedures for
alterations to historic resources as well as for new construction, both
within historic districts and in the River Improvement Overlay (RIO) and
Viewshed Protection Districts. There are currently 24 designated local
historic districts,approximately 2,000 individual local landmarks and over
1,900 archaeological sites.
ao
Office of Historic Preservation ,
The Office of Historic Preservation (OHP) is an independent agency
within the Office of the San Antonio City Manager that manages
the operations of the Historic and Design Review Commission and
other functions related to historic resource surveys, COA permit
enforcement, education and advocacy, and archeological activities. The
Office is currently staffed by nine personnel including the Historic Produce Row-Market Square
San Antonio Strategic Historic Preservation Plan
Section 3: State of the City
Preservation Officer, an Architectural Historian, a City Archeologist,
r a Senior Planner with extensive experience in Code Compliance and
Demolition procedures, four planners with expertise in Community
Planning, Community and Regional Planning with a specialty in Historic
Preservation, Environmental Design, and Public Administration as well
as an Administrative Secretary. Staff performs a wide variety of tasks
including public education and outreach,archaeological reviews,surveys,
plan and plat reviews,tax credit reviews,research,and code enforcement.
Historic resource at HemisFair Staff also conducts reviews for demolitions, repairs and maintenance,
Park billboards, banners, telecommunication towers, projects in the public
right-of-way, projects regarding the San Antonio Water System and the
CPS Utility, and utility equipment, landmark and district designations,
and reviews for other items such as bus shelters, NCAA sporting events
and other special activities.
Planning and Development Services Department
The Planning and Development Services Department is responsible
for two basic functions — the creation of both comprehensive plans
and neighborhood-level district plans as well as facilitating an efficient
development review process. Its primary goal is to implement the
planning goals and objectives as specified within the City of San
Antonio's Master Plan Policies.
TheDepartmentis dividedinto fourdivisions includingLand Development,
which handles environmental planning and engineering issues; Building
Development, which concerns itself with subdivision development
review; Specialized Planning with focus on regional planning efforts
and geographic information systems; and Comprehensive Planning.
The Comprehensive Planning Division areas of responsibility include
community development,neighborhood planning,urban design,and the
management of the Unified Development Code. The Comprehensive
Planning Division comprises two different sections, Community
Development and Neighborhood Planning and Urban Design. The
Community Development Section focuses on implementing the 2008
Strategic Plan for Community Development, which documents overall
strategies for improving housing, urban environments and economic
opportunities within the City of San Antonio.
The Neighborhood Planning and Urban Design Section's primary function
is to provide technical assistance and resources to local neighborhoods in
the development and adoption of neighborhood plans. Neighborhood
plan components include land use, housing economic development,
community facilities and transportation. It is unclear if there is a formal
policy that all neighborhood plans have to include historic preservation
elements although several neighborhood plans have detailed chapters on
San Antonio Strategic Historic Preservation Plan
Section 4: State of the City
historic resources. Every five years, neighborhood plans are reviewed
and updated, if necessary, to stay current with public improvements
and land use trends. This Section also administers the Neighborhood
Urban Design program within the existing conservation districts and
corridor overlay areas, which assists local neighborhoods create design
standards to ensure the compatibility of new development with existing
neighborhood character. Conservation districts and corridor overlays
are special planning tools used to maintain neighborhood and corridor
character while promoting appropriate infill development through the
adoption of specific design standards. In addition, the Section also
provides assistance for neighborhood organizational development and
capacity-building initiatives.
The Planning and Development Services Department is currently
drafting a set of infill development policies and strategies as a way to
encourage reinvestment in the City's historic inner-core. These strategies
include the potential development of programs and incentives that
could encourage historic preservation activity in downtown and in the
neighborhoods.
Economic Development Department
The Economic Development Department is the lead agency in
implementing various economic development activities aimed at creating
and retaining jobs and diversifying San Antonio's base of industries and
businesses. The Department operates several programs and initiatives
related to empowerment zones, downtown development, small business
development and incentives. The Department uses an incentive
scorecard system as an evaluation tool to determine the public benefit of
a proposed projects seeking city incentives.
Housing and Neighborhood Services Department
The Housing and Neighborhood Services Department has two
major functions — the implementation of housing improvement
/lf(/fifjr %%i /f j///1 %1i1 �fll
and development programs as well as the management of the Code
Compliance division which provides administrative support to the
Dangerous Structures Determination Board. Major Department
initiatives include the Neighborhood Commercial Revitalization Program
focusing on neighborhood commercial districts, and various financial
assistance programs for housing rehabilitation and new construction.
The Department also manages the City's TIRZ program. St. Anthony Hotel,
San Antonio Strategic Historic Preservation Plan
Section 3: State of the City
Dangerous Structures Determination Board
As prescribed by the Texas Local Government Code, and Chapter 6,
Article VIII of the City Municipal Code, the Dangerous Structures
Determination Board conducts public hearings regarding the disposition
of distressed and dangerous properties, in the interest of public health
and safety, and recommends actions to remediate condition including
repair and demolition. Members of the Board are designated by
the City Manager and comprised of staff from Grants Monitoring
Endangered historic and Administration, Planning and Development Services, Community
commercial building Initiatives, Fire,Historic Preservation and Public Works.
Provisions within the codes require that the OHP be informed of historic
resources and properties that come before the Board. Within 30 days of
notification, the Historic Preservation Officer is required to advise the
Board in writing whether or not the property is an individual landmark,
located within a historic district or is of historical, cultural, architectural,
or archaeological significance and eligible to be landmarked or part of
a historic district. If the property has these features, measures will be
taken to secure the property and develop a rehabilitation plan. There is
a 30-day time limit to develop a feasible rehabilitation plan. In addition,
the Historic Preservation Officer must obtain concurrence from the
HDRC within 60 days that a historic building having significance should
be designated a landmark. There is also a 180-day time limit for the
landmark designation to take place after the receipt of the initial notice
of the property's review before the Determination Board.
San Antonio River Commission
Established in 2007, the seven-member San Antonio River Commission
provides comprehensive oversight regarding development and operations
of the San Antonio River. The Commission advises the City Council,
the Historic and Design Review Commission, Planning and Zoning
Commissions, and the Board of Adjustments regarding zoning,land use
and design management issues related to both public and private projects
within the six San Antonio River Improvement Overlay Districts. The
Commission also works with the San Antonio River Authority and the
U.S.Army Corps of Engineers in the implementation of the $279 million
River Improvement Project,which seeks to restore various flood control
and recreational improvements along 13 miles of the San Antonio River
from Josephine Street to Loop 410 South.
Capital Improvement Management Services
Capital Improvement Management Services (CIMS) was formed in 2007
to manage the City's $550 million Bond Program,which will underwrite
various public infrastructure and improvement projects including the
construction of new streets,bridges, sidewalks, drainage facilities,parks,
San Antonio Strategic Historic Preservation Plan
Section 4: State of the City
athletic facilities, libraries and public health centers. Bond Program
construction projects will be funded until 2012. CIMS manages
all facets of Bond Program projects including design, construction
and inspection, and coordinates consultant selection, construction
contractor procurement,and project delivery for all capital improvement
construction projects. It works closely with the OHP on archaeological
and historic cultural resources compliance requirements and HDRC on
permitting reviews.
Public Works Department
The Department of Public Works consists of several divisions that are
responsible for the maintenance and improvement of various public
infrastructure systems including streets,storm water management,traffic
engineering and operations, rights-of-way management, rail and transit,
and accessibility. It is unclear if there are formal operational policies that
relate to the treatment of historic and archaeological resources as part
of Department projects.
Parks and Recreation Department
Organized in 1952, the Parks and Recreation Department currently
manages a parkland inventory of 193 parks totaling 15,546 acres.
Notable parks and plazas with historic resources include Brackenridge,
Mahncke, Milam, San Pedro Springs, Voelcker, Roosevelt, and Travis
Parks, among others. Within the Department's 2006 — 2016 System
Strategic Plan, the `rehabi§tation, maintenance, and operation plans for faci&ies
including, but not limited to,HemisPaiv Park,La Vilhia,Market Square,community
centers, (and) the Spanish Governor's Palace..."are strategic priorities. Another
strategic priority is the identification and documentation of `archeological,
cultural,historical, and artistic resources in San Antonio's parks".
Office of Environmental Policy ��o
The Office of Environmental Policy manages several programs and
initiatives including the Sustainability Task Force created to collaborate
on citywide efforts to integrate sustainability principles within municipal
operations, and the Mayor's Sustainable Building Task Force, which was
organized to develop and implement the Mission Verde Plan. Adopted in
early 2009,the Plan outlines comprehensive goals and initiatives to invest j
in green technologies, transportation systems and building retrofitting
programs. In particular, Initiative 6 of the Plan — `Build a Green y �%
Retrofit Program for existing homes and buildings", recommends that
a permanent source of capital be made available to home and building ]
owners wishing to undertake energy efficiency retrofits. Interestm�y�the
Plan does not recognize historic preservation as a significant and viable
sustainability strategy. The Office of Environmental Policy will also be Entrance door at Mission San
in
Jose
San Antonio Strategic Historic Preservation Plan
Section 3: State of the City
managing a new apportionment of Federal stimulus funds for a residential
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weatherization program.
Office of Cultural Affairs
The Office of Cultural Affairs operates and manages several programs
�`f o related to supporting and developing the San Antonio creative arts
community including local arts and cultural organizations as well as
Fort Sam Houston, Band individual artists. Funding for the agency's initiatives comes from the San
Building Antonio hotel accommodations tax and from the National Endowment for
the Arts and the Texas Arts Commission.The Cultural Arts Board,whose
members are appointed by the Mayor and City Council, also guides the
Office's operations. One of the main functions of the Office is to provide
financial support to cultural and arts related organizations for general
operation support, for specific arts projects, maintenance to arts-related
facilities and for professional artist development. Another important
function is to implement and manage The Cultural Collaborative, a Plan
created in 2005 to develop San Antonio's creative economy.
Other Organizations + Entities
Texas Historical Commission
Established in 1953, the Texas Historical Commission (THC) is the
state agency for historic preservation, which consults with counties,
local communities, citizens and organizations to preserve the state's
architectural, archeological and cultural resources. The Commission
manages several programs including the National Register of Historic
Places,the Certified Local Government and state archaeology programs.
Various other initiatives include heritage tourism, county courthouse
preservation, and the state Main Street program for downtown
commercial districts. The Commission also reviews project applications
for the Federal historic preservation tax credits.
Education + Advocacy
Over the decades, the San Antonio Conservation Society, one of the
oldest preservation advocacy organizations in the country, has played
a prominent role in the preservation of San Antonio's historic and
environmental resources. Neighborhood associations and civic groups
have also played significant roles in designating local historic districts and
saving various historic resources from demolition.
Despite the success of private-sector advocacy work, there still is a
feeling that "...developers and the general public do not vecogni-Ze the value of
histoncpreservation or the benefits of being in a historic district." For others,the
San Antonio Strategic Historic Preservation Plan
Section 4: State of the City
City,the OHP,and the Conservation Society need to be "...faci§tators and
educators..."rather than just the "...design po§ce".
The critical concern going forward is the need to promote historic
preservation's value in advancing neighborhood stability, green
development and sustainability, tourism and economic development.
Broader partnerships and coalitions with other entities throughout San
Antonio including developers, brokers and architects should be forged
to leverage and harness resources for on-going education and advocacy
efforts.
While the need to promote historic preservation as a City "ethic" and
stewardship on a broader scale, there is also a more specific need to
better market the resources and programs of the City and its partners.
Currently, the City web site as well as brochures and pamphlets are used
to inform the public about available incentives.
The following is a brief overview of the private sector organizations
and entities actively involved in historic preservation advocacy, outreach
and education activities. This is not an exhaustive list of existing and
potential organizations and entities that can and may play advocacy roles
in the future
San Antonio Conservation Society
Founded in 1924, the San Antonio Conservation Society is one of the
oldest and most accomplished historic preservation advocacy organizations
in the United States. The Society has been responsible for the preservation
of many significant structures, districts, and environmental resources
including the Spanish Missions,the San Antonio River,the Edward Steves
Homestead,and the King William Historic District.
Over the years, the Society has purchased various historic properties
threatened with demolition as permanent holdings of the organization,
has accepted easements on others, and has purchased, rehabilitated and
redeeded properties to other entities. The Society also conducts a variety
of educational and outreach activities such as regular bus and walking tours,
an annual awards program and seminar for secondary school teachers,
and publishes various books and materials including position papers on
important historic preservation issues. In addition, the Society maintains
two house museums and offers grants for the rehabilitation of endangered
historic properties and for educational and research purposes. The Society
undertakes various fundraising activities including its successful "Night in
Old San Antonio" (NIOSA). Municipal Auditorium
San Antonio Strategic Historic Preservation Plan
Section 3: State of the City
American Institute of Architects, San Antonio
ilmnsai
Chapter
The San Antonio Chapter of the American Institute of Architects (AIA) is
the fourth largest AIA chapter in the State of Texas and provides resources
and support services for architects and design professionals within the
22-county San Antonio region. The Chapter also carries out various
�'� education and advocacy activities including the publication of architectural
Dionicio Rodriguez-designed
guidebooks,including the recent Traditions and Visions guide,and position
bridge, Brackenridge Park statements on current design and preservation issues. A position paper on
historic building demolitions was released by the Chapter in May 2008.
Build San Antonio Green
Established in 2002, Build San Antonio GreenTM is the residential green
building program for San Antonio, co-administered with the Greater
San Antonio Builders Association. Build San Antonio Green provides
technical assistance and workshops on a variety of issues, including green
building technologies and energy efficiencies. It also certifies "Green-Built
Homes"in San Antonio.
San Antonio Missions National Historical Park
Established in 1983 and managed by the National Park Service, the
San Antonio Missions National Historic Park encompasses the four
Spanish Colonial Missions, as well as the 84 separate historical sites along
the southern branch of the San Antonio River. Portions of the four
missions are owned by the Archdiocese of San Antonio and are still run
as active parishes. The Park Service conducts regular educational and
outreach activities, including archeology open houses, Dia de los Muertos
celebrations,and guided tours and field trip opportunities for local schools.
Over 1.2 million tourists visit the missions annually with an economic
benefit of $32 million.
Los Compadres de San Antonio Missions
Established in 1983,Los Compadres is a private membership organization
that raises funds and provides volunteer support for special projects within
the San Antonio Missions National Historical Park. Over the years,it has
raised over$4 million for the National Park.
Neighborhood Associations
There are an estimated 200 neighborhood associations in San Antonio,
many of which have been active in local preservation efforts. Various
neighborhood associations have advocated for the development and
adoption of new neighborhood plans, design guidelines, and historic
district designations. There is potential for engaging the neighborhood
San Antonio Strategic Historic Preservation Plan
Section 4: State of the City
associations in the variety of planning, education and advocacy activities
that build a historic preservation ethic within San Antonio.
University of Texas at San Antonio
The University of Texas at San Antonio currently offers professional
degree and certificate programs in historic preservation and has an active
Center for Archaeological Research, which conducts field schools and
various grant and research related work. In addition, the San Antonio
Conservation Society has endowed a professorship within the University's
School of Architecture. The University recently partnered with the Office
of Historic Preservation in the summer of 2009 to present an educational
workshop on historic window rehabilitation and maintenance.
Other Preservation Planning Issues
The strategic planning process for historic preservation in San Antonio
initiated with this report is focused on policy and process issues at a
citywide level. Local issues related to specific historic sites or districts are
not a component of this work scope and will be addressed at a late date
or in a separate planning process. For record purposes, the following
issues and ideas were discussed during community workshops regarding
the La Villita and HemisFair districts.
• The HemisFair District - Built to hold the 1968 World's Fair,
the 15-acre HemisFair Park contains 24 historic homes original to
the site including the 750-foot tall Tower of the Americas. The
HemisFair site is also the largest piece of undeveloped land in
inner-city San Antonio (100 plus acres). Current planning issues
for the district include the pending vacation of the United States
District Court facility, the former United State Pavilion during the
Fair. There has also been interest in securing a master developer
to redevelop the site with a dense mixed-use project to activate
the area. Although a master plan for HemisFair was developed in
2004, a new planning process in currently underway to determine
future revitalization and redevelopment scenarios. It is unclear
how historic preservation will be incorporated within future plans
for the district.
• La Villita—The La Villita District is the original Spanish Colonial its
settlement associated with Mission Valero and is sometimes called
San Antonio's first neighborhood.. Today,La Villita is managed as
a shopping and arts village district through the City's Downtown
Operations Division. A new planning process is being considered
to determine potential management and reuse strategies for the
district as retailers have struggled to be successful in recent years.
One possible reuse strategy is to recreate the district as an arts La Villita
college.
HISTORIC PRESERVATION PLAN
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San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
Overview
The City of San Antonio has one of the oldest municipal preservation
programs in the country and is recognized worldwide as a special place of
history and culture. The City has achieved many successes including the
designation and protection of 24 historic districts, over 2,000 individual
Ilk
landmarks,and 1,900 archaeological sites. There is no question that San
Antonio's historic preservation efforts have contributed to enhancing
the livability and economic vibrancy of neighborhoods and commercial
districts as well as its famous Missions and River Walk. San Antonio is
This Place Matters-Dignowity promoted and considered as an important travel destination for those
Hill Historic District seeking to experience an authentic sense of place, a multi-cultural city
with historic urban, suburban, and rural settings.
However,as noted in the preceding comprehensive analysis of the City's
historic preservation efforts, there are significant issues that need to
be addressed to ensure that San Antonio's past is seriously considered
in its future. Going forward, the City and its preservation partners
have distinct challenges as well as opportunities to establish historic
preservation as a more powerful tool for shaping quality environments,
strengthening neighborhoods, and facilitating economic development.
The following Historic Preservation Plan presents key goals, strategies,
and action items that address critical preservation issues and aims to
better integrate preservation into citywide planning, development, and
sustainability initiatives.
The implementation of the Historic Preservation Plan will require strong
and effective partnerships between the Office of Historic Preservation,
Historic and Design Review Commission, elected officials, City
departments, and other entities such as the San Antonio Conservation
Society,civic groups,and real estate and professional organizations. It is
only with strong partnerships that a truly comprehensive and successful
city historic preservation program can be realized.
This Strategic Plan is intended to bring together in one place or document,
the many and diverse initiatives, programs, needs, opportunities, goals,
and principles related to the preservation of San Antonio. The Plan can
be used as a work program to change and streamline current historic
preservation efforts, as well as a guideline for future planning and
development efforts. As a stand-alone document it should represent
the City's official policies toward preservation. As community areas are
surveyed, and historic and cultural resources further identified, it could
be incorporated as a chapter in a future update of the City's 1997 Master
Plan Policies.
Following is a summary of the key strategies presented in this San
Antonio Historic Preservation Plan. They are organized according to
six categories: City Planning, City Zoning, Economic Development,
Historic Resources, Incentives, and Education and Advocacy.
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
A. City Planning Strategies
7. Create one set of goals and objectives that become the City's official tision and
po§cies for historic preservation.
2. Incorporate historic preservation elements in all citygide, district, and
neighborhoodplanning initiatives.
3. Promote preservation as a "green"and sustainable planning and development
approach.
4. Plan for the future of key historic areas of the City.
The City of San Antonio has developed numerous citywide and area
plans over the years that included preservation goals and strategies, such
as the implementation of resource surveys and designation of additional
historic districts. The City should continue incorporating preservation
elements into its plans, but should also consider additional initiatives
that encourage reinvestment in and reuse of landmark buildings and
districts.
B. City Zoning Strategies
7. Kevise and consolz'date all related rules and regulations nlithin the UDC to
improve the effectiveness of the OHP and HDRC and the Code's overall
readabi&y.
2. Consolidate and create standard design guidelines to faci&ate OHP and
HDRC reviews of pub§c and private development initiatives.
3. Ensure Zoning in neighborhoods and commercial districts promotes the
preservation of and reuse of historic resources.
4. Consider form-based.Zoning githin historic districts.
San Antonio's historic preservation code has evolved over time and in
some respects is a fairly strong preservation ordinance compared to
other major US cities. However, there are still ways in which the UDC „
can be strengthened in regards to the HDRC powers/procedures and the � pi�
document's overall organization and readability.Design review procedures
can also be enhanced to "demystify" the certificate of appropriateness
approval process and streamline the overall workload of OHP staff and
the Commission. Consolidated and additional design guidelines can also '
help the HDRC, neighborhood groups, property owners, developers,
and designers make more effective decisions regarding improvements to Keystone Park Historic District
historic buildings and new infill development in historic districts.
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
C. Economic Development Strategies
t t
Increase public awareness that hzsto�zc preservation contributes to the City
economic development.
2. Considerpreservation actions as integral components of existing and potential
business district and neighborhood revitalz'�atzon programs.
3. Create near preserwatzon initiatives that facilz'tate rehabilz'tatzon and reuse of
Pearl Brewery, 1940s historic resources, revitah.Zation of neighborhoods and commercial districts,
and creation of near jobs and small businesses.
Historic preservation should be viewed as an important growth strategy
for revitalizing the historic fabric of the City from downtown to outlying
neighborhoods and commercial districts. It should not be seen as a
negative alternative choice to new development. Historic preservation
already plays a significant role in the City's vibrant tourism economy and
in neighborhoods and districts such as Lavaca and Southtown. The City
can build on these successes by expanding existing initiatives, such as its
Neighborhood Commercial Revitalization program, increasing efforts
to promote heritage tourism, and supporting other community based
activities to rehabilitate and reuse historic resources.
D. Historic Resource Strategies
7. Update existing surveys and conduct near inventories of historic resources
throughout the City.
2. Use the near information to designate additional districts and tar
getpublz'c and
pnvate resources.
3. Use the near information to create an "early warning" system to increase
awareness and action regarding endangered sites, buildings, landscapes, and
viewsheds.
4. Make surveys more accessible to the pub§c to promote a greater understanding
of significant historic resources.
Much of the City's 36 Square Mile Survey Area has been inventoried,
although mostly at a basic reconnaissance level. Other areas need to be
surveyed and additional historic and cultural contexts explored so that
associated building and archaeological resources can be documented.
Additionally, some survey information is available online to the public,
but in most cases, only histories and context descriptions are provided.
Going forward, the City should prioritize which existing resource
inventories need updating and what new surveys should be undertaken
in other areas and neighborhoods. Efforts should also be undertaken to
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
integrate survey information within the City's geographic information
systems and publish surveys for public review
E. Incentives Strategies
7. Enhance the effectiveness of existing historicpreservation incentives and create
additionalprograms that encourage reinvestment in historic resources.
2. Streamlz'ne and expand promotion of preservation programs and incentives to
property onmers, builders, developers, and investors.
3. Determine and remove disincentives and obstacles to preserving and reusing
historic resources.
There are currently three historic preservation incentives that are
offered at the local level: the City's Historic Tax Exemption Program
and Operation Facelift Grant Program, and the Conservation Society's
Community Grant Program. Each of these programs is effective in their
own way but other incentives are needed to address specific historic
preservation objectives such as large-scale adaptive reuse projects and
early intervention with endangered properties. Incentives must also
be marketed and promoted more effectively so that all segments of
the community are aware of their availability and how to use them.
Consideration also needs to be given to preservation incentives that
facilitate property rehabilitation by low-income owners.
F. Education/Advocacy Strategies
7. Undertake a comprehensive outreach effort to increase aavareness of the
tremendous value of San Antonio's architectural, cultural, and archaeological
resources, along nlith the benefits of histoncpreservation.
2. Harness public and private resources to market the numerous incentives and
programs available to property opmers, builders, and developers.
Neighborhood associations and organizations such as the San Antonio
Conservation Society have played significant roles in advocating for
the preservation of important historic resources throughout the City.
These entities will need to continue such efforts. However, additional
education and outreach activities should be undertaken to demonstrate
the role historic preservation can play in achieving the City's economic
development,neighborhood revitalization, and sustainability goals. Such
efforts could include workshops, seminars, training, school programs,
and other outreach activities using the latest technologies and various San Antonio River
forms of media and communication.
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
City Planning Sq trategies
The preservation and enhancement of historic and archaeological
resources is affirmed as an important goal within the City's 1997 Master
Plan Policies (Section F, Urban Design). Policy statements within that
document focus on maintaining a comprehensive inventory of historic
resources, developing incentives, encouraging building rehabilitation and
adaptive use, augmenting staff of the OHP, forming partnerships with
other municipal agencies and non-profit groups,and promoting the City's
history through various design enhancement projects and educational
initiatives. The policy statements were intended to provide guidance in
shaping the City's historic preservation program and future decision-
making regarding important preservation planning and design issues
Going forward, the 2009 Strategic Historic Preservation Plan builds on
Leon Springs Historic District the City's 1997 Master Plan Policies with a more comprehensive statement
of historic preservation planning goals and policies that provide clear
direction to protecting and maintaining San Antonio's historic resources
Beyond the Master Plan Policies, the City has developed and adopted
various neighborhood and district plans that have incorporated historic
preservation elements, goals and action steps. Neighborhood and
district plans have been the preferred method for implementing citywide
planning goals since the City does not have a comprehensive plan with
typical land use, economic development, housing, and transportation
elements. Neighborhood plans have an advantage in that localized
historic preservation issues can be examined and addressed more
precisely. Additionally, preservation goals can also be better integrated
into broader land use, transportation, economic development, housing,
and open space elements. The 2003 City South Plan is one such example
of how historic preservation can be organized and integrated as a distinct
plan element.
Issue Summary
Community stakeholders and City staff have consistently stated the
need for historic districts to be examined "more comprehensively" so
that plans, zoning regulations, and other improvement and development
initiatives are aligned with historic preservation goals. There is also a
need to address the larger context of historic districts such as enhancing
land use mix, building massing, and streetscape and signage elements to
make neighborhood and commercial areas more desirable for residents,
businesses, shoppers,and visitors.
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
City Planning Strategy 1 : Create one set of goals and
objectives that become the City's official vision and
policies for historic preservation.
To guide future public and private planning and development initiatives
within San Antonio, the following are the City's goals and objectives for
historic preservation.
Citywide Preservation Goal 1. Preserve and protect the historic
districts, places, structures, buildings, landscapes, archaeology, culture,
and stories of San Antonio.
Citywide Preservation Goal 2. Strengthen the City of San Antonio's
worldwide reputation as a special place of American history and culture.
• Preservation Objective 1
Actively promote to the San Antonio region the value
of balanced historic preservation and its link to economic
development and environmental sustainability.
• Preservation Objective 2
Actively promote to property owners,builders,and developers
the numerous preservation resources available in the public
and private sectors.
• Preservation Objective 3
Establish planning processes and urban design standards that
integrate and preserve historic, archaeological and cultural
resources with planning for public facilities, infrastructure,
transportation,parks,and economic development.
• Preservation Objective 4
Compile and maintain a comprehensive historic resource
inventory of federal, state, and local landmarks, districts and
archaeological sites, which is accessible to City departments
and the public at large. - —-- �
• Preservation Objective 5
Encourage property rehabilitation as a first choice and priority
through streamlined City initiatives, existing and new financial r
incentives, and leveraging of preservation resources. » „
• Preservation Objective 6
Promote partnerships between public agencies and civic San Antonio City Hall
organizations to increase the volume, pace, and quality of prior to a 1927 renovation
historic preservation initiatives.
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
• Preservation Objective 7
Establish the City as the leaden by example for considering historic
preservation in the planning and designing of public properties,
L facilities, spaces, and infrastructure.
�I/G�r�6ww�,u s
City Planning Strategy 2: Incorporate historic
preservation elements in all neighborhood, district,
` and citywide planning initiatives.
The Planning and Development Services Department has a tradition of
s m m developing neighborhood plans with historic preservation elements. This
should continue and future area plans should include historic preservation
Historic fencing and other
elements such as resource surveys, identification of special streetscape/
landscaping features should be landscape elements, and an assessment of land use, transportation,
documented during surveying infrastructure,and development character issues that may impact historic
activities. resources.
Recommendation 2.1 - Require historic resource surveys.
Resource surveys should be undertaken as part of neighborhood planning
processes, including existing surveys that need updating. The surveys
could be completed at a reconnaissance or intensive level if necessary.
A summary and map of the survey data should be incorporated into a
neighborhood plan within a historic preservation chapter that includes
strategies and recommendations. If resources are available,the full survey
data could be made available on-line as a separate technical document.
Recommendation 2.2 - Catalog endangered properties.
While historic resource surveys are undertaken during neighborhood
planning processes, properties with code violations or experiencing
demolition by neglect should be cataloged. Such "red-flagged"properties
should then be incorporated as part of an endangered property list
maintained by the OHP, and shared with various City departments,
including Housing and Neighborhood Services and other organizations.
The list should be used to prioritize which properties should receive
immediate attention and intervention (see Historzc Resources Suvveg section
regarding endangered properties program). While historic survey information
as noted earlier would be used to help guide long-range initiatives of a
neighborhood plan,the endangered property list would be aimed at short-
term, "early warning" of properties in critical need of intervention.
Recommendation 2.3 - Consider public space and streetscape/
landscape features.
Several existing plans, such as the recent Lavaca Neighborhood Plan,
incorporate recommendations for maintaining significant and contributing
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
streetscape and landscape features, as well as structures and buildings in
existing and potential historic districts. These features include garages,
outbuildings, carriage houses, curb cuts, street lamps, embankments,
special signage, street paving materials,landscape,and gateway elements.
Going forward, future neighborhood and commercial district plans
should consider special and historic public spaces and features and
include specific initiatives to ensure that public improvements are context
sensitive to the historic resource or district.
Recommendation 2.4 - Prepare design guidelines.
Design guidelines should be prepared as part of neighborhood/district
plans where needed to address architectural and historical elements
unique to an area. As discussed later, a standard set of design guidelines
should be established as a base for all area planning throughout the City,
with specific additional standards incorporated for unique areas
Recommendation 2.5—Consider preservation in other planning initiatives.
All City departments and affiliated agencies should work together to
ensure that the preservation goals and strategies included in this Historic
Preservation Plan are addressed and incorporated in other relevant City
plans and policies including departmental strategic and operating plans
and future bond programs and projects.
Recommendation 2.6 — Involve Office of Historic Preservation in
relevant decision-making processes.
The Office of Historic Preservation should be regularly engaged in the
decision-making processes of City agencies involved in construction,
development, finance, operations, and maintenance to provide on-
going consultation regarding short-term and long-range preservation „.,.....
matters. These agencies include, but are not limited to, City Manager,
'
Planning and Development Services, Economic Development, Housing t
and Neighborhood Services, Public Works, Downtown Operations,
Cultural Affairs, San Antonio River Commission, Capital Improvementx
Management Services, Convention and Visitors Bureau, Office off
Environmental Policy,and Parks and Recreation.The OHP should review
departmental decisions that may impact designated landmarks, districts
and archaeological sites. It is recommended that City departments engage Historic preservation should
the OHP in the early stages of design to avoid or minimize impacts to be considered in all planning
known architectural, archaeological or cultural resources. processes conducted by
municipal departments and
Recommendation 2.7 —Allocate resources to the OHP to expand affiliated agencies
its preservation planning initiatives and activities. -a vacated neighborhood
Consideration should be given to adding planning and design staff and school building.
other resources to the office assist in:
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
( • Managing surveys of historic districts.
� ;,ouMdlu �j
• Participating in neighborhood and commercial district planning
with other departments.
• Implementing and coordinating actions recommended in area
plans.
Old Post office Building • Consolidating and crafting citywide and neighborhood specific
design guidelines.
• Assessing deteriorating properties and determining if they merit
rehabilitation or demolition actions.
• Assisting property owners and developers with rehabilitation and
reuse strategies.
• Assisting property owners and developers with COA applications
and design review
• Conducting educational and training workshops and other outreach
activities.
Professional education and training as well as office technology should
also be addressed to increase staff effectiveness and capabilities,including
planning software programs.
Recommendation 2.8—Establish an advisory council to the Office
of Historic Preservation.
A permanent council comprised of one representative from each of the
local historic districts should be established to advise the OHP, HDRC,
and other City departments on planning and development activities
and impacts, public works and management issues, and overall historic
preservation policies. In turn the OHP should provide updates on City
initiatives and other activities such as available grant opportunities and
educational workshops. Meeting on a regular basis with neighborhood
groups could improve information exchange, facilitate implementation
of plan recommendations and reduce OHP staff time required for
community outreach and liaison activities.
Recommendation 2.9 — Require interpretation of archaeological
resources on publicly owned property.
Significant archaeological resources located on property owned by the
City or other public agencies should be interpreted where feasible. The
OHP and other agencies should work together to develop an approach
for documenting and interpreting archaeological resources, especially
linear resources such as the City's acequia system. Interpreting these
resources can promote public awareness of such resources as well as tell
new and compelling stories of San Antonio's early history
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
Recommendation 2.10—Install specially designed historic district signage.
All local historic districts should be marked by signage that denotes each
area as a special place. Signage could include identity signs at gateways
or along streets, decorative street signs, and directional signs leading to
a district or place. To ensure that signs are professionally designed and
constructed with high quality materials, they should be paid for and
installed by the City.
City Planning Strategy 3: Promote preservation as
a green and sustainable planning and development
approach.
The City's recently adopted Mission Verde Plan provides an exciting new
vision for how San Antonio can achieve long-term sustainability through
green technologies,energy conservation,efficient transportation systems,
and retrofitting existing buildings. However, historic preservation and
the critical need to reinvest in the City's historic inner core is not
mentioned as a sustainability strategy within the Plan. Maximizing the life
cycle of historic buildings, sites, and districts is an effective strategy for
achieving sustainability. Historic preservation's role in achieving green
and sustainability goals should be promoted. Sustainability is also one of
the goals of the City's strategic organizational plan.
Recommendation 3.1 — Consider rehabilitation and reuse of
historic buildings as sustainable.
The rehabilitation and reuse of buildings should be considered the
ultimate in achieving sustainability as it extends the lifecycle of built
resources, promotes more culturally and socially diverse neighborhoods,
saves resources from being used in new construction, and keeps
significant construction waste out of landfills. A historic preservation
element should be incorporated within the Mission Verde Plan, which a.
outlines how preservation can promote reinvestment in neighborhoods,
contribute to the green economy,and foster a culture of reuse among the
citizens of San Antonio Historic preservation should also be considered
in other future planning policies and programs related to energy
conservation and sustainability.
Recommendation 3.2—Include historic preservation criteria within
Build San Antonio Green building rating system.
The OHP should work with Build San Antonio Green to ensure that
historic building rehabilitation and reuse is considered within its green
building rating criteria.
King William Historic District
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
Recommendation 3.3 — City departments should reuse historic
buildings for municipal facilities where feasible.
The Federal Government, as well as several states, has implemented
executive orders mandating that agencies and departments consider
historic buildings first in facility and office location decisions rather
than new construction. The City should consider implementing a
similar order that mandates the same for its departments and other
agencies. Reusing historic buildings as municipal facilities is an effective
Donkey Barn, Brackenridge Park sustainable development strategy that also shows how preservation can
work effectively. City departments that cannot locate in suitable historic
buildings would demonstrate to the City Manager's office that all possible
building reuse scenarios were explored. In addition, efforts should be
undertaken to rehabilitate historic buildings already owned and operated
by the City and other public agencies according to proper standards and
guidelines.
Recommendation 3.4 — Salvage building materials from property
demolitions where feasible.
When private contractors demolish a structure they often save and
salvage building materials and fragments that would otherwise go to a
landfill and could be reused in the rehabilitation of other structures. The
City should also salvage and store materials when it needs to step in and
demolish a building. A salvage store,where materials from lost historic
buildings and residences could be resold, could also be established in
partnership with another entity. Consideration should also be given to a
mandatory program that requires a percentage of construction debris be
diverted from landfills. Such a program would encourage all public and
private construction and demolition projects to be more sustainable if
materials were recycled and reused,especially on site.
City Planning Strategy 4: Plan for the future of
several key historic areas of the City.
During the historic preservation planning process,specific areas and sites
throughout the City were discussed as needing preservation attention and
assistance. Such locations will be further addressed by the OHP and other
city planning agencies in the future as potential landmarks or districts
are surveyed and/or addressed through a neighborhood planning effort.
Several key areas warranting City involvement and planning, given their
location, size and significance, include the River North neighborhood,
HemisFair and LaVillita districts,and outer edge of downtown.
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
Recommendation 4.1—Designate landmarks and significant areas
in River North.
The City has recently prepared a master plan and form-based zoning
code for the River North area. The Office of Historic Preservation
should pursue designations of landmarks and significant areas of River
North as appropriate.
Recommendation 4.2 — Prepare a master plan for HemisFair and
LaVillita historic districts.
A detailed master plan for HemisFair and LaVillita should be prepared
that addresses building reuse and new development strategies. Land
use, building function, urban design, and property management issues
as well as development opportunities with these districts should be
planned within the larger context of the convention center and overall
downtown.
Recommendation 4.3—Prepare a master plan for perimeter blocks
around downtown San Antonio.
Consideration should be given to preparing a plan for the underdeveloped
blocks located on the perimeter around downtown to better link the
City's core to adjacent neighborhoods. It should encourage downtown
visitors to walk to outlying neighborhoods to further experience the
historic setting of San Antonio.
Recommendation 4.4 — Evaluate conservation districts as future
historic districts where appropriate.
The OHP should collaborate with the Planning and Development
Services Department to evaluate and assess which existing conservation
districts may merit future consideration as local historic districts where
appropriate. Alternatively,consideration should also be given to whether
some conservation districts could be eligible for listing as National
Register historic districts, which do not mandate design review by the
HDRC. National Register designation does provide some benefits
including rehabilitation tax credits for commercial properties. The
OHP and the Planning and Development Services Department should
work with the local neighborhood association, if one exists, to discuss
neighborhood interest and support for historic district designation. I
San Fernando Cathedral
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
City Zoning Strategies
The Unified Development Code (UDC) is the zoning, subdivision and
�I
development code for the City of San Antonio, Article VI, "Historic
dVl Preservation and Urban Design",outlines the procedures for designating
landmarks and districts,certificate of appropriateness reviews,protection
of archaeological sites, and design review in the River Improvement
Overlays. Provisions regarding the roles and responsibilities of the
Historic resource in Lavaca Historic Preservation Officer, Historic and Design Review Commission
and other review requirements related to archaeological sites are found
in other articles within the UDC. Article VI contains the majority of
necessary elements found in any standard municipal historic preservation
ordinance. Several recommendations are made in this Plan to enhance
the UDC's organization, readability and overall effectiveness. Design
guidelines are also addressed in this section.
Issue Summary
The historic preservation ordinance that governs the powers and
procedures of the OHP and HDRC are contained mostly in Article
VI of the Unified Development Code. Article VI contains designation
procedures for landmarks and districts, as well as the design review
process. Other historic preservation provisions are located in other parts
of the Code. Article VI also contains general preservation guidelines but
new construction guidelines are more in-depth and detailed, especially
those that have been developed for the River Improvement Overlay
districts. There are other design guidelines that have been produced
for individual historic districts independent of the Office of Historic
Preservation.
City Zoning Strategy 1 : Revise and consolidate all
related rules and regulations within the UDC to
improve the operational effectiveness of the OHP and
HDRC, and the Code's overall readability.
Consolidating UDC sections and provisions should ensure that all
historic preservation rules and regulations can be found in one location.
Revising and merging sections and divisions within Article VI itself will
also improve its overall organization and readability. These revisions
should also improve the operational efficiency of the HDRC allowing
for a shorter designation process,and a clearer understanding of how the
designation process works.
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
Recommendation 1.1 — Consolidate historic preservation sections
of the Unified Development Code within Article VI.
The following concern provisions that are not included in Article VI and
are located in articles and sections of the Unified Development Code.
• Article VIII Provisions. Article VIII includes provisions regarding
the composition,powers and functions of the Historic and Design
Review Commission as well as the roles and responsibilities of
the Historic Preservation Officer. Most logically,these provisions
should be located or consolidated within a revised Division 1 or 2
of Article VI.
• Article II Reference. Provisions within Article II of the
UDC, regarding conservation subdivisions and the installation of
sidewalks and trails when historic resources are present,should be
referenced within Division III of Article VI.
• Article IV, Division 5. Relocate all related HDRC certificate of
appropriateness and demolition permit application and review
procedures to Division 2 of Article VI.
• Appendix A. Appendix A includes definitions to a variety
of planning and zoning terms found throughout the Unified
Development Code, not just those mentioned within Article VI.
In fact, the listing of terms in Appendix is fairly comprehensive.
However,it is recommended that a definitions section of historic
preservation terms be included within Article VI, perhaps at the
beginning of a newly reconstituted Division 2. Other historic
preservation definitions can also be added if currently missing
within Appendix A, such as "historic resource survey", "river
improvement overlay district", or "major" or "minor sign".
• Penalty provisions. Relocate the enforcement, violations and
penalties provisions of Article IV, Division 11, Section 35-491
related to historic resources and landmarks to Article VI.
Recommendation 1.2 — Specify types of alterations, repairs, and p
maintenance that can be approved administratively. p�
Division 2 of Article VI does not specify what types of repairs,alterations
and maintenance projects should be approved by Historic Preservation
Office administrative action only,although provisions do define ordinary o
repair and maintenance for historic resources. A section within Division
2 should be added that defines and explains what projects can be
approved administratively by HDRC staff Section 35-452 of Article
IV states that the Planning Director conducts administrative review of
certificates for ordinary maintenance. This should be revised to allow the San Antonio Riverwalk bridges
Historic Preservation Officer to conduct such reviews.
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
Recommendation 1.3 -Article VI Introduction.
The introduction to Article VI lists eleven specific goals for the San
Antonio historic preservation program. Three historic preservation
Master Plan Policy Goal Statements are also listed as an introduction to
Division 2 of Article VI. The introductory goals, as well as those that
are introductionin totDolArto 1e2should be combined and revised as one new
Mission Espada
Recommendation 1.4 -Article VI, Divisions 1 and 2.
Both Divisions 1 and 2 include provisions for the designation of
landmarks and districts as well as for certificate of appropriateness review
procedures. Section 35-602 of Division 1, "Administration", should be
incorporated within Division 2, Section 35-605 "Designation of Historic
Districts", so that it is more clearly understood that notification of
affected property owners is required for a district designation.
Recommendation 1.5-Consolidate Historic District Designation Criteria.
Currently, within Division 2, there are two distinct sets of designation
criteria,one for preliminary evaluation,which is based on criteria for the
National Register of Historic Places,and a final criteria set specifically for
local historic, architectural, cultural and environmental resources. The
final evaluation criteria are well detailed and comprehensive,which makes
the initial criteria somewhat redundant and unnecessary. Consideration
should be given to keeping the second set of criteria as the only set to be
used in the landmark or district designation or a new set is developed as
an amalgam of the two existing ones. Consideration should also be given
to eliminating the Historic Exceptional (HE) and Historic Significant
(HS) designations,which are not necessary.
Recommendation 1.6 - Revise owner consent requirements for
neighborhood initiated landmark/district nominations.
Section 35-602 of Article VI states that `a request for historic district
designation requires concurrence of a majority of the property onmers nlithin the
district,avhile designation of an historic landmark requires concurrence of the property
onmer." It is stated in Division 2 that 51 percent of the property owners
within the boundaries of a proposed historic district must concur with a
designation request. It is recommended that this requirement be replaced
with the standard used for district designations for the National Register
of Historic Places. For National Register district nominations,51 percent
of owners must say no to the designation. In this way, the burden of
contesting the designation falls to those who oppose it rather than those
who favor it.
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
Recommendation 1.7-Revise two-thirds majority vote for landmark
and district designations.
Several provisions within Division 2 require that two-thirds of the
HDRC members are needed for any actions including landmark or
district designations. A January 2009 revision to the UDC now specifies
that two-thirds of HDRC members present at any given meeting must
approve a landmark or district designation. This requirement should
be revised to require only a majority vote of the commissioners present
at any meeting to grant approval for a recommendation to designate a
landmark or district.
Recommendation 1.8-Consolidate sections regarding designation process.
In general, the various sections between Divisions 1 and 2 that describe
the designation processes for both landmarks and districts should be
merged or consolidated into one cohesive, complete section. This
consolidation should make the designation process more straightforward
to readers of Article VI.
Recommendation 1.9 - Increase training for HDRC members.
Article VII, Section 35-803 of the Unified Development Code outlines
the composition and qualifications of members for the Historic and
Design Review Commission and basic rules and procedures for the
selection of officers and the conduct of meetings. Chapter 2, Article
IX of the Code of Ordinances recommends that new members of City
boards and commissions receive an orientation session and participate
in any on-going training and education, if such a program has been
established by a department. Training requirements for new and current
HDRC members should be outlined within the HDRC's rules and
procedures document. An orientation session, developed and delivered
by OHP staff,should be conducted for all new commissioners with topics
on HDRC rules and procedures,basic preservation principles, state legal
issues, and current historic districts and landmarks. Commissioners
should also be required to attend any additional training sessions
developed by the OHP or that are offered by other organizations such
as the Texas Historical Commission, Preservation Texas, National Trust
for Historic Preservation National Alliance of Historic Preservation
Commissions San Antonio Conservation Society, and University of
Texas at San Antonio. �r �
Recommendation 1.10 1.10 - Consolidate UDC sections regarding
economic hardship.
Section 35-614 of Article VI describes the processes and requirements
for applicants to receive a certificate of economic hardship. A general
set of criteria to prove economic hardship is presented in Item B of ' "
Section 35-614; a second set for unusual and compelling circumstances Old Ursiline Convent
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
is outlined in Item C. In general, Item's B and C should be revised and
consolidated so that there is one cohesive section on the certificate for
economic hardship process. A hearing and appeals process should be
added to the language of this revised section to ensure that applicants are
fully aware of the certificate approval process.
Recommendation 1.11- Require documentation for buildings to be
�._ demolished.
w � Currently the UDC does not require Historic American Building Survey
documentation be undertaken for any demolition permits that are
approved for significant historic resources. Consideration should be
given to enforcing this requirement for important designated landmarks
n U
and historic resources.
San Pedro Springs Park
Recommendation 1.12 - Allow the HPO to initiate rezoning
proceedings for landmark or district proceedings.
Currently, under the UDC, rezoning proceedings can only take place
through the property owners or through City Council resolution.
Allowing the HPO to initiate the proceeding can and will streamline the
designation process.
City Zoning Strategy 2: Consolidate and create design
guidelines to facilitate OHP and HDRC reviews of
public and private development initiatives.
Section 35-610 outlines a basic set of guidelines for the rehabilitation
of historic resources, which have been adapted from the Secretag of the
Intenor� Standards for Rehabitation. As noted, standards and guidelines are
much more extensive for billboards and signs and for new construction
within Division 2 than they are for historic resources. Only a few major
cities use just the Secretag of the Interior Standards for Kehabi§tation for
design review purposes while most others have adopted more detailed,
descriptive guidelines in addition to the Secretag of the Interior Standards
both at a citywide level and for individual historic districts.
San Antonio stakeholders noted that a more comprehensive and
consolidated set of design guidelines that can be used across the city are
needed. Such guidelines would help facilitate a higher level of quality
for both the rehabilitation of existing structures and new development.
Specific guidelines that address particular district design issues would be
created as needed.
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
Recommendation 2.1 - Develop a set of design guidelines that
apply to all designated historic resources and districts.
Review and assess all existing design guidelines and standards to determine
gaps and overlaps regarding preservation and new construction within
historic districts. Craft one set of well illustrated, descriptive guidelines
that can apply to land uses and historic districts across the city.
Such guidelines could be established as a stand-alone City document that
is references within Article VI, a consolidated division within Article
VI itself, or as a new but separate UDC article. Historic preservation
guidelines should expand upon the basic standards presented in Article
VI. They should cover preservation issues such as additions, building
materials, maintenance, windows, doors, roofs, signs, porches, garages,
and commercial storefronts. Other features could also be included such
as placement of solar panels and satellite dishes, walkways, curb cuts,
landscaping,retaining walls, and color palettes.
Recommendation 2.2 - Create design guidelines for individual
historic districts as needed.
The Lavaca and Government Hill neighborhood historic districts have
developed their own distinct design guidelines. For Lavaca, guidelines
were produced upon recommendation of the neighborhood plan and the
initiation of the neighborhood association. Article VI, Item D. Section
35-605 permits the OHP and the HDRC to develop specific guidelines
for historic districts. Individual district-based design guidelines can
provide additional detail and substance to address local design issues.
For instance, such guidelines could explore specific color palettes and
special features such as retaining walls,more thoroughly than the citywide
historic preservation guidelines. The need for additional historic district-
based guidelines should be determined through neighborhood plans, at
the request of a neighborhood association or at the discretion of the
Office of Historic Preservation. Design guidelines crafted for a specific
neighborhood should be added to the overall set of city design guidelines
as addenda to make them easy to find and use.
Recommendation 2.3 - Revise design review within the RIO
districts.
Within Division 6, Article VI, design standards and guidelines are
outlined for the River Improvement Overlay Districts. Certificates
of appropriateness are required for new construction and alterations
to historic resources located within the overlays. The RIO design
guidelines are quite comprehensive for new construction and for other
improvements including signage, menu boards, awnings/canopies, trash
storage, carts, and boats. The review of these improvements by the
HDRC sometimes results in a heavy workload, although the HPO can
approve some items, such as incidental signage, administratively. These Monte Vista Historic District
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
review mandates seem reasonable given the scope and intent of the RIO
overlays,but an alternative design review procedure should be considered
to lighten the HDRC's workload and improve operating efficiency. For
instance, the design of incidental signage, such as menu boards and
non-commercial speech signs, garbage and trash receptacles, portable
carts and boats,barges and water taxis, could be addressed with concise
design guidelines that would allow administrative approval by the Office
of Historic Preservation.
Downtown San Antonio
Recommendation 2.4 - Incorporate green design methods and
techniques within design guidelines.
Sustainable design practices should be incorporated into design guidelines
wherever feasible and needed, especially to assist property owners
understanding of how a historic building's energy performance can be
improved. These guidelines could address issues such as the location
of solar panels and what types of green building materials should be
considered for additions. Some guidelines can be in the form of simple
tips regarding heating and ventilating systems, window glazing and
weather-proofing,and conducting basic energy efficiency audits.
Recommendation 2.5 — Incorporate historic viewshed restrictions
into standard design guidelines.
Consideration should be given to incorporating historic viewshed
restrictions into the citywide and/or individual historic district guidelines.
This would consolidate another development requirement into one easy-
to-use document and facilitate design review Viewsheds to historic
resources and between individual historic resources should also be
considered in conservation subdivision requirements.
City Zoning Strategy 3: Ensure zoning in neighborhoods
and commercial districts promotes the preservation of
and reuse of historic resources.
Zoning use limitations can sometimes discourage historic preservation.
The UDC's base zoning requirements should be revised where necessary
to ensure that they do not conflict with adopted historic preservation goals
and guidelines within a historic district. In addition,new development in
historic areas should be planned to preserve significant sites, structures,
landscapes,and local development patterns.
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
City Zoning Strategy 4: Consider form-based zoning
within historic districts.
In recent years, form-based zoning codes have been implemented by
cities across the country to promote more cohesive, compatible, and
predictable development. Form-based codes address the relationship
between buildings and the public realm, the form and mass of buildings
in relation to one another, and scale of blocks and streets. The River
North District Master Plan and Development Code are the first instance
in which the City is implementing a form-based approach instead of
conventional zoning as the preferred method for managing the shape
and character of new development. Form-based zoning could be a viable
tool for guiding new development so that it is more compatible within
an overall neighborhood or historic district context. Form-based zoning,
along with design guidelines, would also provide more effective tools
for the OHP and HDRC and could help streamline the design review
process.
Economic Development Strategies
Today, historic preservation is no longer just concerned with saving
and maintaining significant historic buildings and resources. It is also
regarded as an effective and powerful economic development tool for
revitalizing commercial districts and neighborhoods, supporting the
cultural arts,creating jobs and incubating small businesses and promoting
tourism. Additionally,the rehabilitation of historic buildings for housing, <
commercial,institutional and civic uses is alegitimate growth strategy that i
contributes to the City's economic vitality and long-term sustainability.
Historic preservation should no longer be viewed as a distinct and
different alternative to new development as the primary vehicle driving
economic growth—it should receive equal consideration in all City-led
economic development and revitalization strategies and initiatives.
Issue Summary
Stakeholders have consistently stated that historic preservation should
become an accepted tool to revitalize neighborhoods and commercial
districts, which in turn should promote affordable housing and the
creation of new jobs and businesses. San Antonio's tourism industry A significant expansion plan
is based on the City's most significant resources — the Alamo and the will extend the Riverwalk from
Riverwalk—although to some, the City could strengthen its tourism by its original portion south to the
implementing a more extensive heritage tourism component. Despite Missions National Historical Park
by 2014. This expansion should
these viewpoints and challenges, some programs and resources are in enhance the City's heritage tourism
place to encourage historic preservation-based economic development and economic development efforts.
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
ilP�l ' Economic Development Strategy 1 : Increase public
17 awareness that historic preservation contributes to
the City's economic development.
Ongoing public relation activities and professional studies documenting
the economic impact of historic preservation within San Antonio
could be some of the activities that are undertaken to communicate
preservation's economic value to the public at large. These activities
Majestic Theater could be organized jointly between the Office of Historic Preservation,
the San Antonio Conservation Society and other organizations.
Recommendation 1.1-Undertake an economic impact and benefits
study.
In recent years, several states, including South Carolina, Tennessee,
Oklahoma, and Nebraska have undertaken studies documenting the
economic impact of historic preservation activities. The Texas Historical
Commission commissioned a study in 1999. In addition, the cities
of Philadelphia, Pennsylvania; Richmond, Virginia; and Galveston,
Texas have also undertaken such studies in the past. The purpose of
commissioning a study is to assess how historic preservation contributes
to stabilizing neighborhoods and property values, creating jobs and
incomes, increasing tourism, and revitalizing central downtown and
neighborhood commercial districts. A study can also document the
impact of the City's current property tax-based preservation incentives.
The study could be conducted jointly between the OHP,the Conservation
Society, the UTSA and other organizations.
Recommendation 1.2 - Publish Yearly Investment Statistics.
Once a year, in a special year-end newsletter edition or a separate
report, the OHP should publish statistics on investment activity in
the local historic districts and for individual landmarks. Statistics can
include total dollar amounts in building rehabilitation and restoration
projects, total number of projects, and the amount of investment that
has been leveraged with the use of incentives and the Federal historic
preservation tax credit. Tracking such statistics and publicizing them can
be one effective way in which to demonstrate how historic preservation
generates investment activity in the neighborhoods and commercial areas.
The report could be modeled after others that have been developed by
Neighborhood Commercial Revitalization Program, which summarizes
reinvestment data from its Operation Facelift Program.
Recommendation 1.3 —Establish a benchmarking program.
Collecting yearly investment statistics can assist the OHP in establishing
a benchmarking system that can track the progress of the City's historic
preservation program. Benchmark reports could be issued by the
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
OHP every two, three or five years documenting whether or not certain
benchmarks have been met. Some of the benchmarks or performance
indicators that could be tracked could include:
• Number of buildings, archaeological sites and districts that were
designated by the HDRC;
• Number of designated or eligible buildings, archaeological sites
and districts that were lost;
• Number of surveys conducted and oral histories recorded;
• Number of endangered historic properties saved;
• Private capital leveraged from Federal Historic Preservation Tax
Credit projects;
• Private capital leveraged from all direct historic preservation
incentives offered at the local level including the Tax Exemption
Program;
• Number of market rate and affordable housing units leveraged
through tax credits and local incentives;
• Funding levels for the Office of Historic Preservation;
• Number of "hits" on a heritage tourism website and tours taken
through local historic districts;
• Number of educational workshops conducted;
• Leveraged financial and volunteer resources through partnerships
with other organizations and entities.
Economic Development Strategy 2: Consider
preservation actions as integral components of existing
and potential business district and neighborhood
revitalization programs.
There are several existing City programs that have encouraged historic
preservation-based economic development. These programs should
continue to be supported and expanded so economic and historic
preservation benefits can be realized.
Recommendation 2.1 - Expand the Neighborhood Commercial t
Revitalization Program.
The Neighborhood Commercial Revitalization Program(NCR),managed
by the Center City Development Office,is a critically important program Fairmont Hotel, downtown San
to assist neighborhood stakeholders and leaders in developing strong Antonio
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
and effective commercial district revitalization programs,modeled much
° !' after the National Trust for Historic Preservation's successful Main Street
program. Nine neighborhoods have or are currently participating in NCR
and Operation Facelift,the facade grant program,which is the key design
improvement and historic preservation component of the program. The
program should be carefully expanded going forward in neighborhoods
that need assistance in revitalizing their historic commercial districts
and have demonstrated some organizational capacity to undertake such
efforts. However,the NCR program should be expanded in terms of the
technical assistance services it can offer participating neighborhoods. Such
services should include training in basic building design improvements
and maintenance, signage and awning design, storefront merchandising,
and more advance topics such as using historic preservation tax credits,
adaptive use and navigating building code issues. Additionally, for more
Historic resources within the mature NCR program neighborhoods,new financial incentives should be
Midtown on Blanco (above)and developed to facilitate more large-scale adaptive use projects for "white
southtown NCR districts(below). elephant"buildings and other significant historic resources.
Recommendation 2.2 - Expand heritage tourism initiatives.
Collaborative efforts should be developed between the OHP, the
Conservation Society, the Office of Cultural Affairs, Public Art San
Antonio, and the Convention and Visitors Bureau on identifying
opportunities to strengthen and expand heritage tourism efforts. Some
of the initiatives that could be considered include expanding the number
of tour itineraries that reach other districts, neighborhoods and sites;
developing a San Antonio historic tour maps with podcasting, installing
more effective wayfinding signage systems to districts, and supporting
continued development of the Neighborhood Discovery Tours as part
The Cultural Collaborative program. It is also recommended that a
heritage tourism development study be undertaken by the Convention
and Visitors bureau to fully explore additional ways in which an effective
heritage tourism program can be developed. Furthermore, the OHP,
the Office of Cultural Affairs and the Convention and Visitors Bureau
should partner on the implementation of additional cultural districts
to advance heritage tourism initiatives, facilitate historic preservation
projects, and promote cultural development activities. Other partnership
activities that could be undertaken include initiatives with Public Works
on improving appearances and removing clutter within important historic
attractions, promoting better wayfinding and leveraging resources with
other organizations to promote specific sites and attractions.
Recommendation 2.3 — Implement reinvestment plans as part of
neighborhood plans and in priority historic districts.
The City's 2008 Strategic Plan for Community Development specifies the
use of reinvestment plans to coordinate and leverage public and private
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
resources to stimulate investment activities in certain areas of the City.
A CommunityDevelopment Advisor Committee has been established
P y
to carry out the Strategic Plan and to determine what sectors of the
i
City should be addressed with the first reinvestment plans starting in
2010. The OHP should work with the Advisory Committee to advocate
and determine what existing or potential historic districts should be
addressed through reinvestment plans. Clearly, historic districts in need
of revitalization and reinvestment should receive high priority for
reinvestment programs. " • -� %
' r
Perhaps as part of he reinvestment planning in priority historic districts,
a "model block" program, similar to the program managed by the San
Antonio Housing Authority as well as the Housing and Neighborhood
Services Affordable Showcase for Homes initiative,should be considered
to facilitate a "critical mass" of historic home rehabilitations. This
approach is also similar to neighborhood "rehabaramas", which
is recommended in the Strategic Plan (see Education and Advocagg,
Recommendation 9.9 for fuvthev detail on rehabaramas) A model block program
could concentrate available incentives and resources to rehabilitate five
to ten homes on a particular block. In addition,designated reinvestment I^
planning areas will be receiving a neighborhood sweep as part of the
services provided through this initiative. The City's Neighborhoodtf
Sweep Program is a clean-up and beautification initiative conducted in
distressed neighborhoods. Perhaps the sweeps could be undertaken The resources of La Villita,
concurrently with neighborhood rehabaramas. Potential corporate HemisFair and King William historic
partners or "neighborhood buddies" could be sought to underwrite the districts-major anchors for the San
home rehabilitations,rehabaramas and neighborhood sweeps. Corporate Antonio heritage tourism market.
partners may also bring other resources including employees as volunteer
resources for the sweeps and other reinvestment planning activities.
Economic Development Strategy 3: Create
preservation initiatives that facilitate rehabilitation
and adaptive use of historic resources, revitalization
of neighborhoods and commercial districts, and
creation of new jobs and small businesses.
The following are specific initiatives that encourage historic preservation-
based economic and community development.
q
W
Recommendation 3.1 — Encourage community-initiated
development activities.
Community-initiated development is a process in which neighborhood
Historic districts in need of attention
organizations, in particular non-profit commercial district revitalization should be high priorities for
organizations or community development corporations,take the initiative reinvestment planning
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
in reinvesting and reusing vacant or underutilized buildings when they
private sector fails to do so. Such organizations assemble the means and
i% financing necessary,including historic preservation tax credits,grants and
other sources of money,to purchase and rehabilitate the property for new
uses. The Economic Development, Center City Development Office,
the Community Development Division of Planning and Development
Potential community-initiated Services, and the Housing and Neighborhood Services Department
development project in Cattlemen should assist commercial district revitalization programs and community
Square. The focus of such
initiatives is to rehabilitate and development corporations in such initiatives by providing gap financing
reuse such buildings with active for projects or in assembling the financing package needed to make a
participation from community development deal viable. At the least, training in community-initiated
development corporations, housing
groups, neighborhood associations development should be provided to local revitalization groups and
and commercial district community development corporations, so that they can gain the
revitalization organizations. technical knowledge needed to undertake such projects.
Recommendation 3.2 - Explore partnerships to encourage
affordable housing initiatives in historic districts.
Potential partnerships should be explored between the OHP,Housing and
Neighborhood Services,the San Antonio Housing Trust Fund and other
local community housing development organizations on encouraging
the rehabilitation of historic homes as affordable housing units. Forging
such partnerships should assist local housing development organizations
secure the financing, including historic preservation and low-income
housing tax credits,in which to rehabilitate distressed properties within
historic districts.
Historic Resources Strategies
Significant parts of the 36 Square Mile Survey Area have been inventoried
while other areas of the City need to be surveyed. Additional historic
and cultural contexts also need to be explored so that associated building
and archaeological resources can be documented. Additionally, some
survey information is available online to the public, but in most cases,
only histories and context descriptions are provided. Going forward,
the City should prioritize which existing resource inventories need
updating and what new surveys should be undertaken in other areas and
neighborhoods. Efforts should also be undertaken to integrate survey
information within the geographic information systems (GIS) of the
City, publishing surveys for distribution to the public and finding ways
in which survey data can be available online. Identifying endangered and
distressed properties and devising intervention strategies should also be
considered a high priority.
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
Issue Summary
More than 70 different historic resource surveys have been undertaken by
the OHP and other entities over years, mostly at a reconnaissance level.
Some existing surveys will need re-evaluation while additional ones will
need to be undertaken in portions of the 36 Square Mile Survey Area that
have not been inventoried. Public access to survey information is also a
key issue to raise awareness of valuable historic resources. Finding ways
to preserve endangered historic properties through a more proactive
approach is also a significant priority.
Historic Resources Strategy 1 : Update existing surveys
and conduct new inventories of historic resources
throughout the City.
Thematic groups have surveyed at the neighborhood and corridor levels
and significant portions of the City's 36 Square Mile Survey Area. A
majority of the neighborhood and corridor surveys were conducted at
a reconnaissance level. Others were completed by outside parties and
organizations as part of neighborhood planning and historic district
designation processes. Although the historic resource survey staff
position is currently vacant, the OHP has initiated a process to develop
a survey database, which is an immediate priority. The OHP hopes to
restart its survey program in the year ahead with a goal to gather more
complete information about potential landmarks and districts, which
should provide greater certainty to the City on future designations and
for property owners and developers contemplating major investment
decisions. The long-term goal then is to undertake a more comprehensive
and ongoing, historic resources survey program. The OHP should
also explore how other partner agencies and organizations, such as the
Conservation Society and students at the University of Texas at San
Antonio,can assist in the survey effort or in developing a logical plan for
undertaking surveys in phases as appropriate.
Recommendation 1.1 — Include resource o art as surveys
P
neighborhood plans.
As recommended in the City Planning and Policies section of this Plan,
historic resource surveys and inventories should be integral components
to neighborhood and district plans when needed and warranted. The
OHP should partner with the Planning and Development Services
Department to schedule new surveys, or updates existing ones, as a part
of upcoming neighborhood planning projects. Bird's eye of downtown San
Antonio, 1890s
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
Recommendation 1.2— Prioritize surveys for re-evaluation.
Historic resource surveys that need to be re-evaluated ora dated due to
�i missing data and information, or simply to reassess the significance of
/ , ,, ✓' ���,ii/'/�
certain properties, should be prioritized. If they cannot be scheduled as
part of neighborhood planning projects, the OHP should find ways to
secure resources for high priority surveys from CLG grants, the City, or
in partnership with the Conservation Society, the UTSA, neighborhood
associations, foundations and other organizations. The OHP should
�JwVWX!!" � "' "�!%���� �� , also apply for Certified Local Government grant funds to underwrite the
costs of resource survey activities.
Recommendation 1.3 - Prioritize other areas and districts.
Other areas of the City that have not been surveyed at all should be
" prioritized and conducted by the OHP, either as part of a neighborhood
planning project or as a separate survey activity initiated by the OHP or
with other organizational partners.
Recommendation 1.4 - Continue thematic survey approach.
The OHP should continue to use historical and architectural resources
themes if it determines that is the most efficient way to inventory and
document resources across the City. Ethnic and racial groups have also
been the subjects of past thematic studies and additional ones should be
explored going forward including the African and Hispanic American
communities and other cultural and ethnic groups whose stories need
to be told. These survey efforts could be conducted alongside the
development of cultural districts as recommended in The Cultural
Recent past resources-Luby's Collaborative Plan (2005).
Cafeteria(top);Non-Commissioned
Officers Association(middle)and
T. Frank Murchison Memorial Recommendation 1.5 - Conduct an inventory of Recent Past
Tower, Trinity University(below). resources.
While preservation of significant resources from the Spanish Colonial
period and the 19th and 20th centuries should remain priorities,buildings
and sites from the more recent past, from the years 1940 to 1970, are
somewhat less appreciated and are often not considered important
preservation priorities. In some respects, these resources can be
threatened with alteration and demolition before they are evaluated for
their significance. Going forward,the OHP and other partners including
the UTSA and the Conservation Society should join forces to conduct a
thorough survey, context study and evaluation of Recent Past resources
in San Antonio. In addition, a symposium or conference on the City's
recent past resources should be organized by the partner entities already
mentioned.
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
Recommendation 1.6—Collect written and oral histories as part of
survey activities.
As part of historic resource survey and research work, written and
oral histories of ethnic, majority and minority communities should be
collected and documented as feasible. The OHP should seek assistance
from other organizations and entities that can help in identifying written
and oral histories as well as establishing a system for recording and
depositing them where they can be accessible to the public.
Historic Resources Strategy 2: Use the new information
to designate new districts and target public and
private resources.
The OHP should publish and maintain a list of properties identified
through surveys and other efforts as potentially eligible for historic
designation, thereby reducing uncertainty for City agencies, property
owners,real estate developers and the general public. The list should be
updated regularly and made available on the OHP website. The OHP
should prioritize eligible resources for designation and inform owners of
eligibility and the benefits of designation. The priority list should also
become part of the HDRC designation work program.
Historic Resources Strategy 3: Use the new resource
information to create an "early warning system" to
increase awareness and action regarding endangered
sites, buildings, landscapes, and viewsheds.
The purpose for an early warning system is to identify and catalog
historic buildings, viewsheds and archaeological resources that are at
risk for demolition or loss and to devise and implement intervention
strategies before it is too late to preserve such resources. This initiative
should be developed and maintained in partnership between the OHP
and other City agencies such as Code Compliance,Fire,Police and Health
Departments, the Dangerous Structures Determination Board, and
other possible private-sector partners such as the Conservation Society.
In its basic form, the early warning system would be comprised of the
following two elements:
Endangered Properties List
Historic resources that are either designated or eligible for designation,
that are exhibiting signs of deterioration and neglect, are threatened '
with demolition from development pressures, or have received multiple
building code violations should be"red flagged"and included in a list that Endangered historic resource
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
is shared and distributed between relevant City departments and agencies
including the OHP, or outside organizations as deemed appropriate as
necessary. The list should also be posted in the OHP's or Conservation
Society's websites for public access. The list can be compiled from the
following sources:
t
• Cataloged from historic resource and archaeological surveys and
neighborhood planning processes;
• Citizen call-ins to the OHP regarding threatened resources;
• Demolition permit applications;
• City inspections of properties and resources.
The inventory should be updated on a regular basis with inventories
of other districts and areas added as time allows or when surveys are
completed as part of neighborhood planning processes. Once the
Threatened historic resources, inventory is completed, resources could be rated to the degree of
Tobin Hill Historic District deterioration and neglect such as "highly endangered",or"susceptible to
further neglect".
Intervention Strategies
Buildings receiving the most endangered ranking would clearly receive
priority for intervention. Intervention strategies and solutions will
largely be determined by a variety of factors including the condition
of the property, the availability of certain financial incentives and
staff resources, the willingness of the property owner to cooperate,
the significance of the resource itself, and the possibility of alternative
solutions. Intervention activities can include,but are not limited to, the
following:
• Providing condition assessments and multiple estimates for
property stabilization and repair;
• Providing design and technical assistance to property owners;
• Purchasing the resource through a revolving fund or offering
grants to address immediate stabilization issues and building code
violations;
• Providing advice on other incentive programs.
Other strategies recommended in this Plan, such as developing a
revolving fund and other incentives and programs, will be critical needs
for executing effective intervention efforts. Other actions could also
be implemented to discourage demolition such as increasing demolition
permit fees or prohibiting new construction on demolished sites for
a certain period of time longer than two years. Increased demolition
permit fees could perhaps be allocated to a special fund used for financial
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
assistance to owners of historic homes or to protect archaeological
resources. Other major U.S. cities prohibit ground level parking lots on
demolished sites. To ensure an early warning system is effective,the major
partners and stakeholders involved will have to work closely and schedule
routine meetings to discuss intervention actions for priority endangered
resources and which partner could take the lead in implementation.
Recommendation 3.1 — Pursue initiatives that enforce historic
preservation provisions of the Unified Development Code.
Enforcement of certificates of appropriateness and demolition by neglect
provisions need to be addressed in a comprehensive fashion. All relevant
City Departments including Planning and Development Services, Code
Compliance and the OHP will need to work collaboratively to develop
specific solutions to enforcement issues. Perhaps an internal task
force among the departments can be formed to discuss ways in which
COA and demolition by neglect inspections and timely notification of
infractions to the OHP can be carried out more effectively. There is also
a need to synchronize and update database and information management
systems so that all relevant departments in the enforcement process have
the most current information on properties with violations.
Historic Resources Strategy 4: Make surveys more
accessible to the public to promote a greater
understanding of significant historic resources.
Maintain and distribute the inventory of landmarks and historic districts
depicting their location of historic in formats that are readily available to
the public. Improve the value and effectiveness of the inventories as an
educational tool by creating an interactive internet version with photos
and descriptive information on all properties. If financial resources are
available, consider publishing surveys and historic context research as
formal documents that could be distributed to the public. Ideally, an
interactive GIS-based version that is accessible to the public should be
developed as a high priority for the Office of Historic Preservation.
4
Rehabilitation Incentives Strategies 1
The City of San Antonio already has two historic preservation incentive
programs, the Historic Tax Exemption Program for historic residential
and commercial properties and the Operation Facelift Program for Villa Finale, a historic property
of the National Trust for Historic
participating neighborhoods in the Office of City Center Development's Preservation, King William Historic
NCR Program. Although there are only two municipally sponsored District.
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
incentive programs, there are other financial resources such as tax-
increment financing that should be used to leverage other incentives,such
„- as the federal Historic Preservation Tax Credits,to facilitate adaptive use
a' lbs and rehabilitation projects. From the non-profit sector,the San Antonio
Conservation Society offers small building rehabilitation and restoration
grants through its Community Grant Program.
Two primary goals going forward are to increase the effectiveness of
Clifford Building, H.H. Hugman,
Alamo Plaza Historic District existing incentives sponsored by the City and to create others that can
facilitate specific historic preservation, economic development and
neighborhood revitalization objectives. Ideally, a menu of historic
preservation incentives should be created taking the form of direct
financial assistance such as grants, administrative relief from zoning or
building code requirements, or deferred City revenues such as waiver of
building permit fees. Just as important, active efforts to promote and
market available incentives must take place and become an important
priority for the City, the OHP and its various partners. Last, there is an
opportunity with reinvestment plans to target a variety of incentives,
not just ones developed specifically for historic preservation, but those
that focus on the revitalization of historic commercial districts and
neighborhoods and preserving and reusing distressed and endangered
properties.
Issue Statement
Existinglocal incentives have been effective in facilitating the rehabilitation
and maintenance of historic resources. However,there is a need to create
new incentives that can encourage additional reinvestment activities
in the downtown core and in historic neighborhood commercial and
residential districts. Other City resources should be accessed to create
such incentives. There is also a need to market and promote all available
incentives at the local, state and federal levels to all segments of the San
Antonio community.
Incentives Strategy 1 : Enhance the effectiveness of
existing historic preservation incentives and create
additional programs that encourage reinvestment in
historic resources.
Recommendation 1.1 - Enhance the effectiveness of City Historic
Preservation Tax Exemption Program.
Within Section 35-618 of Article VI,there is no definition or requirement
of the minimum investment that is needed to qualify for one of the
exemptions. The section should be revised to require at least $5,000 or
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
25 to 30 percent of the resource's assessed valuation be invested in a
rehabilitation project, whichever is greater. This requirement should
encourage reinvestment in historic resources.
Recommendation 1.2 - Create a new division on incentives within
Article VI of the Unified Development Code.
The section describing the available Historic Preservation Tax Exemption
Programs is located at the end of Division 2, which is somewhat lost
among the Division's other sections. A new division within Article VI
should be created for the exemption programs, as well as any other
Preservation incentives that may be created in the future. Consideration
should also be given to rewriting the tax exemption provisions in a
clearer, concise manner so owners of historic resources can readily
understand how the exemptions work as well as the application and
certification processes.
Recommendation 1.3 - Create special incentive program for
endangered historic properties.
Historic resources that are placed on the endangered list should be
made eligible for special stabilization grants to help address building
code violation issues or immediate and feasible repairs for resources
damaged by fire or other means. Grants could range from $5,000 to
$10,000. In some instances,grant proceeds should be used to maintain
properties for a limited time until the proper repairs are made or a
new buyer is found. Additionally, consideration should be given to
allocating collected demolition permit fees for use in a historic building
stabilization fund.
Recommendation 1.4 - Develop a citywide facade grant program
or expand Operation Facelift.
Without doubt Operation Facelift, which is a component of the
Neighborhood Commercial Revitalization Program, has facilitated
building facade rehabilitations in the Southtown, Avenida-Guadalupe,
Deco and EastTown commercial districts, among others. Although
Operation Facelift targets grant resources in its participating
neighborhood districts, consideration should be given to developing a
new but limited facade improvement program that can be extended to
other neighborhoods, especially historic commercial buildings that may
be located in local historic districts. Grant proceeds could range from
$500 to$10,000 and be offered on a matching basis. Design assistance to
r�
applicants could be delivered through a OHP senior planner or designer.
It is also recommended that facade improvements funded through this
incentive should follow citywide historic preservation design guidelines 1. & G.N. Depot, Cattleman
whether they are eligible for landmark designation or not. square Historic District
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
oil
Recommendation 1.5 - Utilize tax increment financing to leverage
large-scale building rehabilitation and adaptive use project.
Several major U.S. cities use TIF revenues to underwrite facade
rehabilitation programs and as loans or equity contributions to major
historic building rehabilitation and adaptive use projects. In other cities,
TIF can be useful as gap financing to facilitate the adaptive use of
significant historic buildings,especially high-rise office buildings,theaters,
Tower Life Building and hotels, where multiple sources of financing are needed. The gap
financing can come in the form of outright grants to the developer or in a
low-interest loan. Additionally,in order to receive TIF monies,a developer
would be required to first secure a certificate of appropriateness from the
HDRC and approval to use Federal Historic Preservation Tax Credits
from the Texas Historic Commission, and, as a possible alternative,
donate a facade easement to the City or a local non-profit organization
capable of accepting and monitoring easements. Grants or loans from
TIF could be also be used for other rehabilitation expenditures such as
environmental remediation, soft cost and professional fees, and other
tenant improvements. Nonetheless, TIF revenues should be more
extensively used in San Antonio for historic preservation purposes and
should be a source of revenues to underwrite various incentives that
encourage investment in historic commercial properties in particular.
Recommendation 1.6 - Implement an adaptive use ordinance.
The City should adopt an adaptive use ordinance,similar to the one in use
by the City of Los Angeles, to encourage and facilitate the rehabilitation
and reuse of underutilized or vacant industrial or commercial buildings.
The ordinance would relax certain zoning and building code requirements,
such as height,parking, setbacks, disabled access, and residential density
in order to streamline the development review process and to lower the
costs of adaptive use project itself. Such an ordinance would be useful
in downtown San Antonio and in other areas of the city where larger
buildings can be converted to new uses such as rental apartments, live/
work spaces and hotels. An interdepartmental team from Planning and
Development Services, the Office of Historic Preservation and the Fire
Department should be formed to implement the provisions of such an
ordinance, to determine how the International Existing Building Code
JEBC) can be integrated within such an ordinance, and to facilitate
and assist projects that may seek to use the ordinance to undertake an
adaptive use project.
Recommendation 1.7 -Adopt permit fee waivers.
Property owners seeking to apply and use one of the tax exemption
programs should also qualify for exemption from building permit fees.
Alternatively,permit fees should be waived for any building rehabilitation
projects over a certain amount of expenditure.
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
Recommendation 1.8 - Develop and operate a historic preservation
revolving fund.
A revolving fund, which purchases properties and resells them to
others on condition that they will be rehabilitated, can be a significant,
promising program to preserve historic resources that are endangered
by demolition by neglect or through other reasons. Ideally, the program
could be operated by the City of San Antonio in partnership with other
entities and organizations. Beyond the initial purchase and reselling of
the property, low-interest loans or outright grants could be offered to
owners who may have only secured a smaller first mortgage or are using
another form of collateral or personal guarantee. Architectural or design
assistance could also be provided by a staff architect employed by the
revolving fund or through the Office of Historic Preservation. Other
staff, especially people with real estate and financing experience, would
need to be hired to manage the fund on behalf of the organization or
entity that will house and operate it.
Recommendation 1.9-Partner with equity and tax-credit syndication funds.
The National Trust Community Reinvestment Corporation, formerly
known as the Community Partners Program of the National Trust for
Historic Preservation, has actively participated in historic tax credit
syndication projects in San Antonio, most recently the rehabilitation of
the historic Heimann Building in Cattlemen Square. The Corporation
could be active partners in tax credit syndication projects in other historic
districts throughout the City. There are other tax-credit and equity fund
programs operated by the Local Initiatives Support Corporation and the
Enterprise Community Partners Foundation.
Recommendation 1.10 - Include archaeological sites and historic
resources as critical areas for transfer of development rights.
Article III of the UDC allows the City to use transfer of development
rights as a way to protect natural resources, agricultural land, and
environmentally sensitive areas within the unincorporated parts of
Bexar County or other municipalities within the County. Transfer
of development rights are used in several cities across the country to
promote preservation and protection of land and critical resources by
giving landowners the right to transfer the unused development rights of
one parcel to another parcel in a designated receiving zone. Surveyed and �b
designated historic and archaeological sites and areas known to contain w
archaeological resources could be classified asotential sending sites
P g 114
within the unincorporated municipal areas of San Antonio. Historic
farms and ranches are other particular historic resources that could be 1
protected through transfer of development rights. Further study will
be needed to determine the feasibility of a TDR approach for historic Downtown San Antonio
resources.
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
Recommendation 1.11 - Create a historic preservation fund as part
of the City's density bonus program.
Within Article III of the UDC a developer is allowed to receive density
bonuses whether in the form added residential units to a subdivision
of added height to a new development, if open space and parks are
created or housing units within a development project are set aside for
low-income housing. A historic preservation fund should be established
as another density bonus option for developers in which a financial
Military Plaza, 1850s contribution to the fund can be made in exchange for the bonus. Funds
could be used by the HPO for a variety of preservation activities.
Recommendation 1.12—Create an energy efficiency incentive.
The OHP should partner with CPS Energyorthe Office of Environmental
Policy to consider developing an incandescent light bulb replacement
program or a special incentive to encourage window rehabilitation rather
than replacement.
Recommendation 1.13 — Leverage incentives for priority historic
resources.
It is recommended that existing incentives such as Operation Facelift and
the federal Historic Preservation Tax Credit program can be leveraged to
achieve reinvestment objectives in neighborhoods or districts addressed
by reinvestment plans. The reinvestment plans should target distressed
properties including historic homes and significant "white elephant"
commercial buildings in need of rehabilitation and adaptive use. For
instance, the OHP, Planning and Development Services, Economic
Development, or the Housing and Neighborhood Services Department
should work with owners of "white elephant" properties to package
additional incentives, such as TIF and grants from the Operation Facelift
program, to leverage the use of historic preservation tax credits to spur
building rehabilitation and reuse. A dedicated stabilization fund could
also be developed from Community Development Block Grant funds
to assist in securing and stabilizing distressed properties in residential
historic districts.
Incentives Strategy 2: Streamline and expand
promotion of preservation programs and incentives to
property owners, builders, developers and investors.
Promote the use of historic preservation tax credits and other incentive
programs that facilitate historic preservation. Presented below are
several means in which current and future incentive programs should be
promoted and marketed to developers, property owners and other San
Antonio stakeholders.
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
Recommendation 2.1— Revise and develop information brochures
and materials.
Revising the existing OHP incentive brochure to summarize all direct
historic preservation incentives that are offered at the local level should
be a priority. The current brochure,which can be downloaded from the
OHP's website, describes the City's tax exemption programs in detail
with some information regarding the federal historic preservation tax
credits. A revised brochure should include additional incentive programs
including the Conservation Society's Community Grant Program, the
NCR's Operation Facelift commercial facade improvement program,
and perhaps the State of Texas Preservation Trust Fund Grant. Grant
programs should be summarized concisely within the brochure with
references or web links added to refer readers to additional information.
The brochure should be professionally formatted and designed and
distributed widely to other City departments, neighborhood groups and
other preservation advocacy organizations. Spanish language versions
should also be developed.
Recommendation 2.2—Revise Website.
The OHP website should be updated to briefly describe all available
incentives in addition to the current web links to the National Park Service
and their federal Historic Preservation Tax Credit Program. Additional
information should include the Conservation Society's Community Grant
Program,the NCR's Operation Facelift commercial facade improvement
program, the State of Texas Preservation Trust Fund Grant, and the
National Trust Community Investment Corporation. Web links to these
incentive programs should also be added.
Recommendation 2.3 — Conduct workshops and information
sessions.
Educational workshops devoted to discussing available financial incentives
should be developed and organized by OHP staff in partnership with
other organizations and entities and undertaken on an annual basis or by !
request from community and neighborhood groups. Workshops on how
to use the federal preservation tax credits should also be developed and
targeted specifically to real estate developers and investors. The National
Trust Community Investment Corporation should be invited to co-
develop the workshop. Additionally,the OHP should offer to conduct an
incentives workshop as part of the Planning and Development Services Historic resources within
the Historic District
Department Lunch and Learn Series.
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
Recommendation 2.4 — Conduct a preservation lecture series
session on incentives.
Historic preservation incentives and their use in facilitating local adaptive
use and rehabilitation projects should be a topic of a Lecture Series
discussion session (see Education and Advocacy section).
Recommendation 2.5 —Develop newsletters and publications.
Information regarding historic preservation incentives should appear on
other City of San Antonio newsletters and publications when appropriate
and feasible. For instance, the Planning and Development Services
produces an electronic newsletter. Highlights of historic preservation
incentive programs should be featured within the newsletter.
Recommendation 2.6 — Promote conservation subdivisions as a
method for preserving historic and archaeological resources.
The UDC includes provisions for the use of conservation subdivisions
as an alternative to standard subdivision design requirements. Current
provisions allow for archaeological and cultural resources to be protected
as part of a subdivision's primary and secondary conservation areas. This
important land management tool should be used more frequently and
whenever possible to promote the preservation of significant historic
resources in areas of the City undergoing residential development.
Incentives Strategy 3: Determine and remove
disincentives and obstacles to preserving and reusing
historic resources.
The OHP, in collaboration with other City departments and agencies,
should identify and assess what disincentives or obstacles may exist to
preserving and rehabilitating historic resources. Some disincentives
may include building and zoning code provisions and enforcement
procedures, and permit and right-of-way closure fees for building
rehabilitation projects.
1 11
Shotgun homes, West Ashby Place
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
Education + Advocacy Strategies
A highly engaged and informed public that understands the values and
benefits of historic preservation is a critical component in the foundation
of a strong and successful local historic preservation program. Ongoing
efforts to educate the citizens of San Antonio about the aesthetic, social
environmental and economic values of historic preservation will be
important to promote public and private sector support for a variety of San Pedro Library
historic preservation activities and initiatives. In return,the preservation
of historic and archaeological resources should also contribute to the
cultural enrichment of San Antonio citizens and visitors alike. Strong
partnerships between important organizations and the City should be
forged and developed over time so that resources can be leveraged to
mount a powerful and effective education and advocacy effort.
Issue Summary
San Antonio has a long history of successful public and private sector
historic preservation education and advocacy efforts. For instance, the
OHP, neighborhood associations and various other organizations and
entities have been active in education and advocacy efforts, especially
in the establishment of historic districts and designation of landmarks.
Since its founding, the San Antonio Conservation Society has been the
leading private-sector advocate and has established several outreach
programs and initiatives. Key stakeholder concerns involve the need
to undertake a more sustained, comprehensive effort in educating the
citizens of San Antonio on the benefits that historic preservation can
provide to residents,businesses, investors, developers and visitors.
Education/Advocacy Strategy 1 : Undertake a
comprehensive outreach effort to increase awareness
of the tremendousvalue of San Antonio's architectural,
cultural, and archaeological resources and the benefits
of historic preservation.
The San Antonio City Council recently established a Historic Preservation
Academy to provide hands-on training and public education regarding a
variety of historic preservation issues and policies. The Academy will
be an excellent vehicle in which to communicate the value of historic
preservation to the community at large. Other training activities could
be organized jointly between the Office of Historic Preservation, the
Conservation Society and other organizations.
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
Recommendation 1.1 - Conduct an annual State of Historic
Preservation Address.
- � During National Historic Preservation Month in May, the OHP should
organize and deliver a yearly public presentation or `State of Historic
�r Preservation Address", summarizing historic preservation activity within
pill i�
San Antonio with a special emphasis on investment statistics and other
economic impacts. The yearly investment and historic preservation
Commander's House,Arsenal report could also be distributed during the presentation. The OHP
Historic District should lead this activity.
Recommendation 1.2 - Update OHP website.
A new section should be developed for the OHP's website that provides
information on the general economic impacts of historic preservation
as well as yearly investment statistics. A synopsis or highlights from the
"State of Historic Preservation Address" should also be included and
updated on a yearly basis.
Recommendation 1.3 -Develop OHP newsletter and Facebook page.
The OHP has restarted the production of a regular newsletter, which
provides updates on OHP operations and on-going projects. The
newsletter is a perfect mechanism to inform stakeholders and property
owners on revitalization statistics,trends,significant historic preservation
initiatives, and educational workshops and seminars developed by
the OHP or by other organizations. The OHP should also develop
a Facebook page that citizens can access to learn the latest updates
regarding the OHP.
Recommendation 1.4 - Develop a Preservation Lecture Series.
The OHP, the Conservation Society, UTSA, neighborhood associations
and development corporations, and the San Antonio Chapter of the
AIA, should work cooperatively to develop a monthly lunchtime or
early evening lecture series that can discuss various historic preservation
topics. Recent historic preservation or adaptive projects that contributed
to the revitalization of a neighborhood or commercial district should be
featured as a lecture series discussion topic. The lecture series could be
held at the AIA's new Center for Architecture located within the Pearl
Brewery district, at the Conservation Society headquarters or other
appropriate facilities.
Recommendation 1.5 - Workshops on sustainable preservation
practices.
The OHP should develop a seminar for the Build San Antonio Green
workshop series specifically for historic homeowners regarding greening
methods and techniques for weatherization,building material replacement
and energy systems.
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
Recommendation 1.6 - Train contractors in green historic
preservation practices.
The Build San Antonio Green programs has already developed a system
for training contractors qualified in designing and constructing buildings
that meet green building guidelines. A historic preservation component
should be added as part of the curriculum for training local contractors
and designers.
Recommendation 1.7 - Develop preservation greening toolkit.
In cooperation between Build San Antonio Green, the Office of
Environmental Policy, UTSA and the Conservation Society,an education
toolkit should be developed to educate property owners on retrofitting
and greening homes. A brief pamphlet should also be developed for
historic building owners on how greening can be achieved within the
context of the Secretary of the Interior's Standards for Preservation.
Recommendation 1.8 — Establish a San Antonio history museum
or facility.
There is a significant need for a venue to showcase San Antonio's history
and significant artifacts. A history museum or similar facility can serve
many purposes such as interpreting and illuminating the City's rich
past to San Antonio citizens and promoting the need for preserving
architectural, archaeological and cultural resources. A history museum
can also be a repository for City archives, artifacts, survey information
and many other items, which can assist scholars and residents alike
conduct research on San Antonio history,homes, archaeology and other
resources. Establishing such a facility will clearly take long-term planning
but it should remain an important priority for the City and other major
institutions and stakeholders.
Recommendation 1.9 - Organize a rehabarama home showcase
event.
"Rehabarama" events were first pioneered in Dayton, Ohio, more than
15 years ago as a way to catalyze investment in low to moderate-income
historic districts. Community Development Block Grant funds and
other sources of moneywere used b the Ci of Dayton to rehabilitate
y p y
five to ten historic homes for resale. Other sponsors, such as local
homebuilders, home furnishing and appliance stores donated items to
furnish the homes. Homes were showcased as part of organized tours
and neighborhood special events;lenders were on hand to provide special
financing to qualified buyers. Today, private-sector sponsors largely
underwrite rehabarama events. Rehabaramas are similar to the Affordable
Showcase of Homes event organized by the Housing and Neighborhood
Services Department and is recommended as a revitalization strategy
within the City's Strategic Plan for Community Development. Espada Aqueduct
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
Recommendation 1.10—Organize realtor open houses and training
activities.
The San Antonio Board of Realtors should be engaged to organize
special open houses that feature homes for sale in neighborhood historic
m districts. In addition, a training program to educate San Antonio area
/ realtors on the City's historic districts and preservation procedures,
available incentives and the overall benefits of historic preservation
Craftsman bungalows with
should be organized as a joint venture between the OHP, the Board of
Mahncke Park Realtors, and various neighborhood associations.
Recommendation 1.11—Develop a property owners handbook.
The OHP should create a brief educational handbook, pamphlet or
brochure that could be distributed to owners of historic properties, or
those located within historic districts. The pamphlet or brochure could
include concise information on the OHP and the HDRC, the certificate
of appropriateness review process,good maintenance and rehabilitation
tips, available incentives and local resources for assistance. In addition
to providing the pamphlet or handbook to those who contact the OHP
directly, they should also be distributed to local realtors, neighborhood
associations and other groups who may have first contact with new
homeowners.
Recommendation 1.12—Create educational materials and programs
regarding the preservation and rehabilitation of San Antonio's
historic Craftsman and bungalow homes.
The significant number of historic Craftsman homes merit special
attention and appreciation as a distinctive housing type in San Antonio.
Educational materials and workshops that describe and encourage the
sympathetic and sustainable rehabilitation of such homes should be
developed and undertaken.
Education/Advocacy Strategy 2: Harness public and
private resources to market the numerous incentives
and programs available to property owners, builders,
and developers.
Recognizing and promoting the value of historic, archaeological and
cultural resources within the City of San Antonio is one way in which to
encourage their long-term preservation. Educating San Antonio citizens
on the diversity and significance of its resources represents important
opportunities to partner organizations to collaborate on various initiatives
and to encourage different groups to communicate with each other
regarding preservation issues. Ultimately, by working together, the
citizens of San Antonio can build a strong historic preservation ethic.
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
Recommendation 2.1 - Organize an annual historic preservation
conference.
An annual one or two-day San Antonio historic preservation conference
or summit should be organized with the specific purpose of bringing
owners of historic properties, preservation advocates, developers
and investors, City departments and other organizations and groups
together to take part in educational sessions and discussions about key
preservation issues. Educational sessions can range in topics from home
maintenance and greening tips, applying for incentives, and how to
research a historic property and write a National Register nomination.
The Conservation Society's annual award program could be conducted
during a formal dinner as part of the conference. Potential partners in
organizing the conference include the OHP, other City Departments,
the Conservation Society, UTSA, the Missions National Historical Park,
and other neighborhood associations. The conference would also be an
excellent opportunity to educate the public on the respective resources
and responsibilities of the OHP, the Conservation Society and other
entities within the City's historic preservation program.
Recommendation 2.2 - Develop historic district educational
materials.
Information brochures,pamphlets and online materials are just some of
the ways in which the history and architecture of particular San Antonio
historic districts can be promoted. At the least, concise brochures
explaining the historic contexts and significant architecture of each
district should be developed in both print and online formats.
Recommendation 2.3 —Develop walking tours and podcasts.
The Conservation Society has developed a walking tour brochure of
the King William neighborhood. Tour brochures for other historic
districts should be developed along with companion podcasts. These
walking tours could be developed in cooperation with neighborhood
associations.
Recommendation 2.4 - Develop preservation curriculum and
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programs.
The Conservation Society, the OHP and UTSA may be ideal partners
to work with the San Antonio Independent School District and other
private schools on developing a San Antonio history and architecture
curriculum or program that educates students on the significance of the
City's historic and archaeological resources. The Conservation Society's
existing heritage education tours and seminars for students and teachers
can easily be incorporated as part of an ongoing historic preservation
State marker commemorating
curriculum. Ensure that special programs covering archaeology are the El Camino Real in San Pedro
included within the curriculum such as lectures,slide shows and hands-on Springs Park
demonstrations of Spanish Colonial technologies and lifeways.
San Antonio Strategic Historic Preservation Plan
Section 5: Historic Preservation Plan
Recommendation 2.5 — Develop a web-based community
calendar.
The OHP or the Conservation Society should develop a comprehensive
1 C calendar of historic preservation-related events, neighborhood fairs,
seminars,and workshops that can be posted online. A significant number
of events including archaeology fairs,festivals,and history-related events
, occur throughout the year but they are not promoted or advertised in one
Monticello Park Historic District location that can be accessed by the public.
Recommendation 2.6 — Conduct hands-on workshops on
preservation methods and practices.
The OHP and other partners should continue to organize and conduct
hands-on workshops focused on building preservation methods and
issues such as masonry repointing and maintenance,additions,roofs,and
material conservation.The OHP has already conducted one workshop in
partnership with the UTSA on window repair and restoration.
Recommendation 2.7—Establish a design assistance center.
A design assistance center that provides technical assistance to
homeowners and neighborhood groups regarding rehabilitation projects
and other planning and design needs could be established in partnership
with the University of Texas at San Antonio. Workshops and seminars
on a variety of preservation, home rehabilitation and green design
issues could also be organized and offered through the design assistance
center. The UTSA architecture and preservation programs are significant
resources, which could be leveraged through a design assistance center
to promote the importance of preservation,good design and the quality
of living in historic San Antonio neighborhoods. The center could be
housed at USTA or possibly a building in one of the historic districts.
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IMPLEMENTATION MATRIX
San Antonio Strategic Historic Preservation Plan
Section 6: Implementation Matrix
The following implementation matrix is a suggested list of actions steps and program partners in carrying
out the strategies and recommendations made in this Stategic Historic Preservation Plan..
City of San Antonio:Strategic Historic Preservation Plan
Strategies lAction Steps lPotential Participants
A.CITY PLANNING STRATEGIES
1.Create one set of goals and objectives that process plan for HDRC approval.
become the City's official vision and policies for OHP,HDRC,City Council
historic preservation. Process plan for City Council approval.
2.Incorporate historic preservation elements in all
cit wde district and neighborhood planning.
initiatives.
Recommendation 2.1-Require historic resource Require surveys to be prepared for future planning initiatives.
surveys.
Assign OHP staff to future planning initiatives. PDSD,OHP,OCA,PDSD
Review existing plans to determine follow-up survey work needed.
Require creation of"Endangered Properties List"when surveys conducted. OHP,PDSD,City Attorney,CC,DSDB,
Recommendation 2.2-Catalog endangered properties.Establish"Early Warning"forum for regular review of lists. Fire Dept.
Recommendation 2.3-Consider public space and Require inventories of spacesffeatures during future planning initiatives. OHP,PDSD
streetscapeAandscape features. Address spacestfeatures from historic and urban design perspective in plans.
Review existing urban design guidelines to determine gaps and overlaps.
Recommendation 2.4-Prepare design guidelines. Consolidate information into one set of citywide guidelines. PDSD,OHP,Neighborhood Associations
Prepare additional guidelines to address gaps.
Prepare district-based historic preservation guidelines when appropriate.
Recommendation 2.5-Consider preservation in other Require City agencies to consider preservation policies/guidelines in all City II City Departments/Agencies
planning initiatives. plans. School and Utility Agencies
Meet with other public agencies to establish preservation approach.
Recommendation 2.6-Involve Office of Historic All City Departments/Agencies
Preservation in relevant decision-making processes. Regularly involve/consult OHP staff in decisions affecting preservation. School and Utility Agencies
Recommendation 2.7-Allocate resources to the OHP Assess OHP staffing,professional development,and technology needs.
o expand its preservation planning initiatives and Identify resources to expand preservation planning initiatives. OHP,City Manager,SACS,UTSA
activities. Meet with Conservation Society and UTSA to review resources.
Recommendation 2.8-Establish an advisory council to Establish advisory council with neighborhood association reps.
he Office of Historic Preservation. Identify and appoint first members to advisory council. OHP,PDSD
Establish meeting schedule and conduct first meeting.
Recommendation 2.9-Require interpretation
archaeological resources on publicly owned property.
Prepare standards for interpreting archaeological resources on public property. OHP,PDSD,PW,CIMS,CCDO
Recommendation 2.10—Install specially designed Develop historic district signage program with design approach.
historic district signage. Allocate resources to fund first sets of historic signage. OHP,PDSD,PW,SACS
Install first sets of signage.
3.Promote preservation as a"green"and
sustainable planning and development aroach.
Recommendation 3.1—Consider rehabilitation and Incorporate historic preservation element in Mission Verde Plan. OHP,OEP,other City departments
reuse of historic buildings as sustainable. Incorporate historic preservation elements in other green policies and plans.
Recommendation 3.2—Include historic preservation
criteria within Build San Antonio Green building rating Develop historic preservation rating criteria. OHP,BSAG,AIA,UTSA
system.
San Antonio Strategic Historic Preservation Plan
Section 6: Implementation Matrix
Recommendation 3.3—City departments should reuse
historic buildings for municipal facilities where feasible. Require consideration of historic buildings for municipal facilities. OHP,City Manager,City Attorney.
Recommendation 3.4—Salvage building materials Establish salvage program for City demolitions. OHP,DSDB,City Manager,City Attorney,
from property demolitions where feasible. Study feasibility of construction waste diversion. OEP
4.Plan for the future of key historic areas of the
Com.
Recommendation 4.1—Designate landmarks& Assess inventory of historic resources in River North Plan.
significant areas in River North. Conduct additional inventory if needed. OHP,DPS,CCDO,HDRC
Prepare appropriate sites/blocks for designation approval.
Recommendation 4.2—Prepare a master plan for Establish Planning Committee. OHP,PDSD,CCDO,DO,DA,ED,PW,
HemisFair and LaVillita historic districts. Create new master plan for combined HemisFair&LaVillita districts. HNS,SACS
Recommendation 4.3—Prepare a master plan for OHP,PDSD,CCDO,DA,Parks,PW,ED,
perimeter blocks around downtown San Antonio. Establish planning process for perimeter blocks with links to neighborhoods. SACS
Recommendation 4.4—Consider changing existing [Evaluate conservation districts eligibility for designation.
conservation districts to historic districts where ork with local neighborhood associations to determine support. OHP,PDSD,Neighborhood Associations
appropriate. termine schedule for future designations.
B.CITY ZONING STRATEGIES
1.Revise and consolidate all related rules and
regulations within the UDC to improve the
effectiveness of the OHP and HDRC,and the 'S
Code's overall readability.
Recommendation 1.1—Consolidate historic
preservation sections of the Unified Development Code Incorporate related UDC provisions in Article VI. OHP,PDSD,City Attorney
within Article VI
Recommendation 1.2—Specify types of alterations,
repairs,and maintenance that can be approved Determine administrative approvals and revise Article VI. OHP,PDSD,City Attorney
administratively.
Recommendation 1.3-Article VI Introduction. Revise Article VI Introduction.
OHP,PDSD,City Attorney
Recommendation 1.4-Article VI,Divisions 1 and 2. Merge sections regarding administration and COA procedures.
OHP,PDSD,City Attorney
Recommendation 1.5-Consolidate Historic District OHP,PDSD,City Attorney
Designation Criteria. Revise designation criteria and eliminate HE and HS designation classifications.
Recommendation 1.6-Revise owner consent
requirements for neighborhood initiated Revise owner consent provision in Article VI,Section 35-602. OHP,PDSD,City Attorney
landmark/district nominations.
Recommendation 1.7-Revise two-thirds majority vote OHP,PDSD,City Attorney
for landmark and district designations. Revise Division 2 to require simple majority on HDRC actions.
Recommendation 1.8-Consolidate sections regarding OHP,PDSD,City Attorney
designation process. Merge designation processes found in both Division 1 and 2 of Article VI.
San Antonio Strategic Historic Preservation Plan
Section 6: Implementation Matrix
Recommendation 1.9-Increase training for HDRC Assess HDRC training needs.
members. Conduct training and orientation sessions. OHP,HDRC
Allocate resources for commissioner attendance at relevant conferences.
Recommendation 1.10-Consolidate UDC sections
regarding economic hardship. Merge relevant sections on economic hardship. OHP,PDSD,City Attorney
Recommendation 1.11-Require documentation for OHP,PDSD,City Attorney
buildings to be demolished. Determine policies and procedures regarding documentation.
2.Consolidate and create standard design
guidelines to facilitate OHP and HDRC reviews of %
public and private development initiatives
Recommendation 2.1-Develop a set of design Review and assess all existing design guidelines to determine gaps and
guidelines that apply to all designated historic overlaps. PDSD,OHP
resources and districts. Create citywide urban design guidelines,including historic preservation.
Recommendation 2.2-Create design guidelines for Determine need for neighborhood level preservation design guidelines. OHP,PDSD,Neighborhood Associations
individual historic districts as needed. Create neighborhood preservation design guidelines as appropriate.
Recommendation 2.3-Revise design review within the Assess/determine design review items that can be approved administratively. OHP,DO,CCDO,City Attorney
RIO districts. Develop standards as needed(signage,vendor carts,etc.).
Recommendation 2.4-Incorporate"green"design
methods and techniques within design guidelines. Create"green preservation"standards within citywide design guidelines. OHP,PDSD,OEP,BSAG
Assess viewshed needs in existing/potential historic districts.
Recommendation 2.5—Incorporate historic viewshed OHP,PDSD,Neighborhood Associations
restrictions into standard design guidelines. Incorporate viewsheds into citywide and neighborhood guidelines.
Incorporate into conservation subdivision code.
3.Ensure zoning in neighborhoods and OHP,PDSD,Neighborhood Associations
commercial districts promotes the preservation of Review and assess base zoning in historic districts as needed.
and reuse of historic resources.
.Consider form-based zoning within historic
districts. Assess need and potential or form-based zoning in historic districts. OHP,PDSD,Neighborhood Associations
C.ECONOMIC DEVELOPMENT STRATEGIES
1.Increase public awareness that historic
reservation contributes to the City's economic %
development.
Recommendation 1.1-Undertake an Economic Secure resources to undertake study. OHP,PDSD,CVB,ED,CS,
Benefits Study. Conduct study to establish baseline data. SACS,UTSA
Distribute and publicize study results.
Recommendation 1.2-Publish Yearly Investment Collect relevant investment statistics/data.
Statistics. Prepare summary similar to NCR program summary. OHP,ED
Distribute and publicize data.
Recommendation 1.3—Establish a benchmarking Determine benchmark measurements for preservation investment. OHP
program. Assess progress and distribute results.
2.Consider preservation actions as integral
corn onents of lar er business district and
nei hborhood revitalization strategies.
San Antonio Strategic Historic Preservation Plan
Section 6: Implementation Matrix
Recommendation 2.1-Expand the Neighborhood Assess historic preservation and technical service needs in NCR neighborhoods. OHP,CCDO,PDSD
Commercial Revitalization Program. Determine neighborhoods that could benefit from program.
Continue development of Neighborhood Discovery Tours.
Recommendation 2.2-Expand heritage tourism Determine wayfinding/signage needs for districts. OCA,CVB,OHP,PDSD,PW,
initiatives. Prepare a heritage tourism study. Neighborhood Associations
Consider additional cultural districts where appropriate.
Recommendation 2.3—Implement reinvestment plans Consider"showcase/model block"program to concentrate reinvestment efforts. OHP,PDSD,HNS
as part of neighborhood plans and in priority historic Determine"priority"historic districts for reinvestment plans.
districts. Coordinate neighborhood sweeps with"rehabaramas".
3.Create new preservation initiatives that facilitate
rehabilitation and reuse of historic resources
revitalization of nei hborhoods and commercial districts
and creation of new mobs and small businesses.
Recommendation 3.1—Encourage community-initiated Provide training in community-initiated development to local organizations. OHP,HNS,ED,PDSD
development activities. Collaborate with CDC's,CHDO's and other groups to determine projects.
Recommendation 3.2-Explore partnerships to Identify CDC's,CHDO's and other entities for potential partnerships. OHP,HNS,PDSD,ED
encourage affordable housing initiatives in historic Identify resources for housing and historic preservation initiatives.
districts.
D.HISTORIC RESOURCE STRATEGIES
1.Update existing surveys and conduct new
inventories of historic resources throughout the
Ci
Recommendation 1.1—Include resource surveys as Require surveys to be prepared for future planning initiatives.
part of neighborhood plans. Assign staff to future planning initiatives. PDSD,OHP,OCA
Review existing plans to determine follow-up survey work needed.
Recommendation 1.2-Prioritize surveys for re- Evaluate existing surveys and prioritize survey update needs. OHP,PDSD,
evaluation. Assess and secure resources to update surveys. UTSA,Conservation Society,AIA
Recommendation 1.3-Prioritize other areas and Review and prioritize areastneighborhoods that have not been surveyed. OHP,PDSD,UTSA,SACS,AIA
districts. Assess and secure resources to conduct surveys.
Recommendation 1.4-Continue thematic survey Determine"thematic"or special surveys that may need to be conducted. OHP,PDSD,OCA,CVB,
approach. Assess and secure resources to conduct surveys. UTSA,SACS,AIA,
Recommendation 1.5-Conduct an inventory of Review"Recent Past"sites/areas to determine locations for surveys. OHP,PDSD,HNS,OCA
"Recent Past"resources. Conduct surveys.
Recommendation 1.6—Collect written and oral
histories as part of survey activities. Require written and oral histones as part of resource surveys. OHP
2.Use the new information to designate additional Prioritize/designate historic sites and districts based on updated and new
districts and target public and private resources. surveys. OHP,HDRC
Maintain and publish priority survey/property information.
3.Use the new information to create an"early""'
warning"system to increase awareness and action
regarding endangered sitesbuildings,landscapes,
and view sheds.
Recommendation 3.1-Pursue initiatives that enforce Formalize Early Warning System for endangered properties.
historic preservation provisions of the Unified Establish City departments task force to regularly address endangered OHP,PDSD,City Attorney,CC,DSDB,
Development Code properties. Fire Dept.
Develop/maintain Endangered Properties List.
San Antonio Strategic Historic Preservation Plan
Section 6: Implementation Matrix
.Make surveys more accessible to the public to
romote a reater understandingof significant Develop consolidated/accessible formats for public review of surveysAists. OHP,HDRC
historic resources.
E.INCENTIVE STRATEGIES
1.Enhance the effectiveness of existing historic ,,;,,,...
Preservation incentives and create additional 'r""'
programs that encourage reinvestment in historic
resources.
Recommendation 1.1-Enhance the effectiveness of Assess need for a lower"minimum"investment requirement.
City Historic Preservation Tax Exemption Program. Assess change to"applicability"provisions to extend exemption to the property OHP,City Attorney
rather than the owner.
Recommendation 1.2-Create a new division on
incentives within Article VI of the Unified Development Draft new incentives division in Article VI when warranted. OHP,City Attorney
Code.
Determine and secure financial resources to create incentive.
Recommendation 1.3-Create special incentive OHP,PDSD,CC,DSDB,
program for endangered historic properties. Develop incentive program guidelines and procedures. HNS,SACS
Prepare information and marketing materials.
Recommendation 1.4-Develop a citywide facade Assess current capacity and funding needs for Operation Facelift. OHP,CCDO,PDSD
grant program or expand Operation Facelift. Assess need and possible funding sources for new citywide grant program.
Recommendation 1.5-Utilize tax-increment financing
o leverage large-scale building rehabilitation and Review current,or develop new policy,for use of TIF in historic preservation OHP,HNS,ED,PDSD
adaptive use project. projects.
Recommendation 1.6-Implement an adaptive use Determine need for revising codes to encourage adaptive use projects. OHP,PDSD,City Attorney,
ordinance. Revise codes or draft an adaptive use ordinance. Fire Department,Downtown Alliance.
Recommendation 1.7-Adopt permit fee waivers. Create fee waivers for preservation projects as feasible. OHP,PDSD,HNS
Secure capitalization monies.
Recommendation 1.8-Develop and operate a historic Create program guidelines and procedures. OHP,City Attorney
preservation revolving fund. Consider other technical assistance needs.
Prepare information and marketing materials.
Recommendation 1.9-Partner with equity and tax- Maintain list of potential tax-credit projects and/or vacant properties.
credit syndication funds. Undertake developer workshops with participation from syndication funds. OHP,NTCIC,LISC,Enterprise,ED,HNS
Develop and maintain working relationships with syndication funds.
Recommendation 1.10- Include archaeological sites
and historic resources as critical areas for transfer of Revise UDC to include archaeological sites as critical areas. OHP,PDSD,City Attorney
development rights. Research possible transfer value of archaeological sites.
Recommendation 1.11-Create a historic preservation
and as part of the City's density bonus program. Revise UDC to include historic preservation fund within density bonus program. OHP,PDSD,City Attorney
Recommendation 1.12—Create an energy efficiency Determine type of energy incentive program.
incentive. Create program guidelines and procedures. OHP,OEP,Utilities
Prepare information and marketing materials.
Recommendation 1.13—Leverage incentives for Target distressed properties through reinvestment planning. OHP,PDSD,HNS,ED,CDC's
priority historic resources. Consider building stabilization fund.
2.Streamline and expand promotion of
reservation programs and incentives to property
owners builders developers,and investors.
San Antonio Strategic Historic Preservation Plan
Section 6: Implementation Matrix
Recommendation 2.1—Revise and develop Determine revisions to existing brochures. OHP
information brochures and materials. Create,produce,distribute new brochures and electronic copy.
Recommendation 2.2—Revise Website. Determine and undertake revisions to OHP website regarding incentives. OHP
Recommendation 2.3—Conduct workshops and Schedule workshops. OHP
information sessions. Prepare special information materials as needed.
Recommendation 2.4—Conduct a preservation lecture Schedule presentation. OHP,SACS,AIA,UTSA
series session on incentives. Prepare special information materials as needed. Neighborhood Associations.
Recommendation 2.5—Develop newsletters and Create special newsletters and publications regarding preservation incentives OHP,PDSD,SACS,
publications. as needed. Neighborhood Associations
Recommendation 2.6—Promote conservation
subdivisions as a method for preserving historic and Organize developer workshops and instructional sessions. PDSD,OEP,Build San Antonio Green,
archaeological resources. Develop special brochures,materials and website information. SACS,OHP,ASLA
3.Determine and remove disincentives and
obstacles to reservin and reusin historic el Conduct assessment of disincentives preservation. OHP,PDSD,H CC
resources.
Determine strategies and solutions to eliminating disincentives. City Attorney,DAA
F.EDUCATION/ADVOCACY STRATEGIES
1.Undertake a com rehensive outreach effort to increase
awareness of the tremendous value of San Antonio's
architectural cultural and archaeological resources and
he benefits of historic preservation.
Recommendation 1.1-Conduct an annual"State of Compile investment statistics and prepare address and report. OHP,SACS
Historic Preservation Address". Determine venue and date.
Recommendation 1.2-Update OHP Website. Determine and undertake general revisions to the OHP website. OHP
Recommendation 1.3-Develop OHP newsletter and Create format and production schedules for OHP newsletter.
Facebook page. Maintain distribution list for newsletter. OHP
Develop and maintain Facebook page.
Recommendation 1.4-Develop a Preservation Lecture Conduct an organizing meeting with partner agencies and groups. OHP,SACS,UTSA,AIA,
Series. Determine funding needs and secure funding sources. STAR,ASLA.
Develop and undertake marketing program.
Recommendation 1.5-Workshops on sustainability Develop"green"preservation workshop outline and materials. OHP,BAG,OEP,
and green preservation. Schedule workshop with Build San Antonio Green. UTSA
Recommendation 1.6-Certify green contractors with Develop historic preservation component to Build San Antonio Green. OHP,BAG,OEP,UTSA
raining in historic preservation. contractor certification program.
Recommendation 1.7-Develop preservation greening Determine components of toolkit. OHP,UTSA,SACS,
toolkit. Assess funding needs and secure funding source. OEP,BAG
Produce and distribute toolkit.
Recommendation 1.8—Establish a San Antonio history Form task force of major stakeholders to assess need and interest. OHP,OCA,SACS,
museum or facility. Secure resources to conduct feasibility study. UTSA,STAA,Missions NHP,
Form organizational entity to undertake planning and development. Texas State Historical Society
San Antonio Strategic Historic Preservation Plan
Section 6: Implementation Matrix
Recommendation 1.9-Organize a"rehabarama"home Evaluate and determine potential rehabarama neighborhoods or blocks. OHP,PDSD,HNS,Neighborhood
showcase event. Schedule rehabaramas as part of reinvestment planning activities. Associations,SACS
Identify and secure resources and/or sponsors for rehab activity.
Recommendation 1.10—Organize realtor open houses Develop training materials and schedule training sessions. OHP,Real Estate Council,Neighborhood
and training activities. Organize and schedule open houses. Associations,SACS
Recommendation 1.11—Develop a property owners Determine format and draft property owner handbook. OHP,PDSD,HNS,SACS,
handbook. Promote and distribute handbook. Neighborhood Associations,BAG
Recommendation 1.12—Create educational materials
and programs regarding the preservation and Assess educational and technical assistance needs OHP,HNS,PDSD,SACS,
rehabilitation of San Antonio's historic Craftsman and Seek partner organizations. Neighborhood Associations,AC,UTSA
bungalow homes. Develop educational materials and conduct workshops.
2.Harness public and private resources to market
he numerous incentives and programs available to
property owners builders and developers.
Recommendation 2.1-Organize an annual historic Seek partner organizations and secure financial resources. OHP,various City departments,UTSA,
preservation conference. Develop conference theme,secure presenters and facility,draft schedule. SACS,AIA,ASLA,STAR
Market and publicize conference.
Recommendation 2.2-Develop historic district Assess current educational and informational materials. OHP,SACS,UTSA,AIA,
educational materials. Develop plan for producing new information resources. ASLA,STAR
Seek partner organization and financial resources.
Recommendation 2.3—Develop walking tours and Assess need for additional tours and develop podcasts and other media forms CVB,OCA,OHP,SACS,
Neighborhood Associations,Missions
podcasts. as needed. NHP
Recommendation 2.4-Develop preservation Form task force to evaluate and determine preservation and local history OHP,School District,UTSA,STAR
curriculum and programs in local schools. curriculum needs. SACS,OCA
Recommendation 2.5—Develop a web-based OHP,SACS,UTSA,
community calendar. Determine host,coordinator and developer of website. AIA,ASLA
Recommendation 2.6—Conduct hands-on workshops Compile and evaluate potential training topics. OHP,UTSA,AIA,ASLA,SACS,various
on preservation methods and practices. Seek partners,potential speakers and trainers and schedule workshops. City Departments
Recommendation 2.7—Establish a design assistance Establish task force or committee to determine purpose and feasibility. OHP,UTSA
center. Secure funding and location.
OHP-OffceofHistoricPreservation DSDB-DangerousStructures Determination Board
HDRC-Historic and Desi gn ReviewCommission OEP-Office of Environmental Policy CC-Code Compliance
PDSD-Planning and Development Services CIMS-Capital Improvements Management Services DA-Downtown Alliance
OCA-Office of Cultural Affairs ED-Economic Development Department BAG-Build San Antonio Green
CVB
-Convention&Visitors Bureau IA-American Institute of Architects-San Antonio Chapter NTCIC-National Trust Community Investment
CCDO-Center City Development Office SACS-San Antonio Conservation Societ Cor oration
PW-Public Works STAR-Southern Texas Archaeological Association LISC-Local Initiatives Su ort Corporation
DO-Downtown Operations UTSA-University of Texas at San Antonio Mission NHP-Mission National Historical Park
HNS-Housin &Neighborhood Services DC's-community development coorations