In Providence, we have seen Historic Districts lose properties to fire, lack of maintenance and neglect, developer speculation, or just the forward march of progress. As the saying goes, “You don’t know what you’ve got ‘til it’s gone.” When one or two historic properties are removed from a neighborhood, we may not feel it immediately. But how many buildings need to be removed before a neighborhood (or city) loses its sense of identity?
In Fox Point, residents are struggling with that question. In 2021, an over 200-year-old colonial house, which was the location of a restaurant called Duck and Bunny, was hastily demolished by its owner. There was no local historic district protection for the building or demolition delay to notify neighbors and abutters of this action. Three years later, the lot is still empty.
Later, in 2023, a proposal to demolish two structures for a new five-story apartment building at the corner of Wickenden and Brook Streets came before the City Plan Commission (CPC) for approval. The meeting was packed with neighbors and constituents opposed to the size and scale of the proposal within a relatively low-height but high-density neighborhood. Because the current buildings were listed as “non-contributing” in the College Hill Historic District, new construction plans did not need the Historic District Commission (HDC) approval.
The Fox Point neighborhood is exploring a new historic overlay district in 2024, gathering the signatures of residents within the boundary. According to Ward One Councilman John Goncalves, the protection of a local historic district is the best way to save its historic look and feel. Concerned residents agree as they hope to slow development and promote more resident involvement in proposals for demolitions and new construction.
A “Historic District” designation means there is a concentration of buildings, structures, objects, or other sites that are related either historically (tied to a particular person or event) or aesthetically (designed in a similar style or built at the same period). Historic Districts have two forms: National and Local.
National Historic Districts (NHD): Some benefits, but no protections
In 1966, the National Historic Preservation Act created the National Register of Historic Places which documents those that are significant to the country’s history. The list is maintained by the National Park Service and there are more than 2,300 National Historic Districts across the United States. Over 790 sites (individual properties or districts) are located in Rhode Island. The College Hill Historic District in Providence has almost 1000 properties, the largest number in the state.
Inclusion in an NHD offers some benefits, mostly related to income-producing properties (think of a hotel or mill conversion into apartments). They can access Federal tax credits to defray the cost of building upkeep, and often, buildings within a district command premiums over those that are not. However, contrary to popular belief, inclusion in a federally recognized NHD, like the College Hill National Historic District, does not protect the buildings within it from demolition. In Providence, 28% of the city is within a designated National Historic District. Local Historic Districts represent a much smaller 7% of the city.
Many properties have used Federal (and State) Historic Tax Credits to drive redevelopment from one use to another. Clockwise from top left: The Masonic Temple during its conversion to the Mariott Renaissance Hotel, the reimagined interior of the South Street Power Station and the renovated Pearl Street Lofts (former New England Butt Company).
Local Historic Districts (LHD)
As the name implies, Local Historic Districts are managed by individual municipalities and local governments. In Rhode Island, the state legislature empowered cities and towns to adopt historic district zoning. Municipalities get support from state-level entities like the Rhode Island Historic Preservation and Heritage Commission (RIHPHC) but enact and enforce it independently.
Enforcement of a LHD is accomplished through a Historic District Commission (HDC). In the City of Providence, districts are overseen by the Providence Historic District Commission (PHDC). The commission’s membership comprises no more than 12 citizens who live in the city and tend to include those with architectural design or urban planning backgrounds, though that is not a requirement. 10 are appointed by the mayor and 2 are City Council members.
Unique to Rhode Island, in 2022 the General Assembly required training for planning boards, zoning boards, and members of HDCs. All members, regardless of tenure, must receive a 3-hour introductory training course followed by a 1-hour refresher every year they serve. R.I. Statewide Planning convenes the Advisory Committee for Education to offer this training through the “Making Smart Land Use Decisions” course and through the Commission Assistance and Mentoring Program led by the National Alliance of Preservation Commissions.
The PHDC has one set of guidelines for all districts, but they are not required. Local districts can have more flexibility in what they can protect and regulate. One neighborhood representing an intact architectural style might have protections for important construction and design details, while another might focus more on the scale and massing of the neighborhood’s streetscape. The Providence Landmarks District, for example, follows two sets of guidelines: one for residential properties, and another for former industrial or commercial properties.
There are 8 designated Local Historic Districts in Providence and the PHDC has maps and boundary descriptions on their website.
Stronger protections and limited monetary benefits
Local Historic Districts offer protections and enforce them at the city and state level via public comment periods and design review processes. LHDs generally enforce design restrictions on major alterations like siding, roofing, and window material selection, or scale and massing. (Paint colors are NOT something that LHDs regulate in Providence.) The commission oversees the design of home additions and new construction within a district. When demolition is proposed, it is the LHD that enforces a demolition delay mechanism, and Providence has recently strengthened its language.
There is a fine line to walk when restricting the freedom of homeowners. To be clear, there have been rapid demolitions in historic districts voted in favor by HDCs when homeowners or developers make a case that existing conditions contain “blight.” Enforcement by committee means that human subjectivity is at play, and in Providence, the PHDC has frequently voted in favor of higher-density new construction instead of retaining smaller historic homes. The system is not perfect, but it is the system we have.
Homeowners cannot always do exactly what they want when their property is under the review of an HDC, but most commissions offer ways to compromise between the homeowner’s desires and the quality of the district. For the most part, HDCs try not to be suppliers of red tape. Rather, they aim for a collective alignment with the historic nature that all who live and own within a district found valuable when they first moved there.
In Rhode Island, State Tax Credits have been used for many large-scale income-producing projects, like hotels, cultural centers, and residential mill conversions. Grant programs are typically reserved for non-profit or public entities, but if a privately owned home is listed on the State Register of Historic Places, there are a few opportunities to find financial support.
Historic Districts and the Updated Comprehensive Plan
The draft update to Providence’s Comprehensive Plan has many people wondering about the future of the city’s built environment. The historic character of the city is an enormous asset and there is no doubt that increased density across the City will change the character of some historic neighborhoods. It is also a fact that the city needs more housing at a variety of price points to support the needs of the people who want to live here.
One of the concerns (as noted in the article “Gentle Density: How to Have Both Preservation and Population Growth in Providence”) is that some already-dense areas are designated as “Enhanced Growth.” This means the plan recommends zoning changes that will allow for higher-density dwellings. In these areas, when there are few empty lots or buildings to be converted from non-residential use, there seems to be no ability to increase residential density without demolishing smaller homes.
As Providence is rich with historic character, it is also rich in designated historic districts. Losing small-to-medium-size houses in these areas in favor of larger, taller, and denser apartment complexes will degrade these historic districts, and in turn, gradually degrade the architectural quality of the city.
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Before and after of 382 Brook Street and 116 Waterman, two late-19th century houses razed for a denser, taller apartment building with ground floor retail in 2023.
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Another before and after, this one for an 1896 house demolished in 2022 for a new 4-story apartment building with ground-floor retail.
Should my neighbors and I create a new Local Historic District?
As the “Gentle Density” article noted, “Is it fair that just 7% of irreplaceable resources are protected? And the rest of the city is not?” The Comprehensive Plan wants to achieve higher density but also higher sustainability. Using as much as possible of the existing housing stock is the most sustainable development approach, and repurposing once-industrial buildings for housing rather than tearing them down is also in line with that approach.
Local Historic Districts have previously favored the history of the powerful, not the disenfranchised. With construction projects like the Federal highway system and widespread “Urban Renewal” projects in the mid-20th century, many neighborhoods that deserved protections were intentionally erased.
Historians are doing more to report and recover some of what was lost, like this story of 215 Meeting Street, owned by a Civil War Veteran and prominent members of the Providence Black Community. Recently, additional documentation was approved by the National Park Service for the College Hill Historic District and others to include documentation for properties associated with African Americans and Cape Verdeans to emphasize their significance to the history of College Hill. Federal and Local Historic Districts make this research and documentation possible.
With the Comprehensive Plan nearing finalization, it is the perfect time to assess the significance of our neighborhoods. They deserve oversight, consideration, and what protections we can give them without placing an undue burden on the rights of homeowners. While new local historic districts require work, coordination, and many conversations, they are a worthwhile investment in the character of the neighborhoods we all love so much. Most importantly, we may be able to document or even save a property that tells a different story than the places that have already been given that privilege.
J. Hogue is a web designer by day and amateur photographer and historian on nights and weekends. He donates his time to maintain and build ArtInRuins.com, which documents the architectural changes of almost 400 properties in and around Providence.
Get Involved: To understand what is involved with creating a new local historic district, start with the National Trust for Historic Preservation’s article 10 Steps to Establish a Local Historic District. Local consultants and subject matter experts include the Providence Preservation Society, Preserve RI, and the office of Councilman John Goncalves.
Additional Reading
- Historic Districts, the Providence Preservation Society
- How Historic Districts Work, Molly Edmunds, How Stuff Works
- National Historic Landmarks: Frequently Asked Questions, National Park Service
- National vs. Local Historic Districts: What’s the Difference? Scott Sidler, The Craftsman Blog
- 10 Benefits of Establishing a Local Historic District, National Trust for Historic Preservation
- 10 Tax Benefits of Owning a Historic Property, Garth Sundem, How Stuff Works
National Historic Districts in Providence, RI
There are 31 National districts in the City along with 8 local districts. Overlap with Local Historic Districts is noted, though not all the same individual properties are included in both.
- Andrew Dickhaut Cottages Historic District
- Blackstone Boulevard Realty Plat Historic District
- Blackstone Boulevard-Cole Avenue-Grotto Avenue Historic District
- Blackstone Park Historic District
- Bridgham-Arch-Wilson Streets Historic District
- Broadway-Armory Historic District, overlaps with the local “Armory Historic District” (PHDC Map, PDF) and the “Broadway Historic District” (PHDC Map, PDF)
- College Hill Historic District, overlaps with the local “College Hill Historic District” (PHDC Map, PDF)
- Customhouse Historic District
- Downtown Providence Historic District, overlaps with the local “Providence Landmarks District” (PDHC Map, PDF)
- Doyle Avenue Historic District
- Elmgrove Gardens Historic District
- Elmwood Historic District, overlaps with the local “North Elmwood Historic District” (PDHC Map, PDF) and the “South Elmwood Historic District” (PDHC Map, PDF)
- Freeman Plat Historic District
- Hope-Power-Cooke Streets Historic District
- Oakland Avenue Historic District
- Olney Street-Alumni Avenue Historic District
- Parkis-Comstock Historic District
- Pekin Street Historic District
- Pine Street Historic District
- Power Street-Cooke Street Historic District, overlaps with the local “Power-Cooke Street Historic District” (PDHC Map, PDF)
- Providence Jewelry Manufacturing Historic District, overlaps with the local “Jewelry Historic District,” no longer under purview of the PDHC
- Rhodes Street Historic District
- Roger Williams Park Historic District
- Smith Hill Historic District
- Stimson Avenue Historic District, overlaps with the local “Stimson Avenue Historic District” (PDHC Map, PDF)
- Summit Historic District
- Trinity Square Historic District
- Wanskuck Historic District
- Wayland Historic District
- Wesleyan Avenue Historic District
- Westminster Street Historic District
Search for documentation for these districts at this search page on the National Park Service website or visit the state’s list of National Register Properties.
