Staff Report

City Council Report
Date: November 2, 2026
To: City Council
Through: Marc Heirshberg, Assistant City Manager
From: Nana Appiah, Development Services Director
Mary Kopaskie-Brown, Planning Director
Rachel Phillips, Assistant Planning Director
Matthew Kriegl, Historic Preservation Officer
Meghan Eaton, City Archaeologist
Subject: Mesa Historic Preservation Design Guidelines. (Citywide)
Recommendation
Staff recommends that the Mesa City Council adopt the proposed updates to the Mesa Historic
Preservation Design Guidelines (“Updated Guidelines”).
At the September 1, 2026 meeting, the Historic Preservation Board unanimously recommended
that the City Council adopt the Updated Guidelines with conditions that staff revise the introduction
to Chapter 7 (Mesa’s Historic & Architectural Context) and add additional language regarding
Heritage Neighborhoods to Appendix E (Heritage Neighborhoods & Other Heritage Places) (6-0).
At the September 9, 2026 meeting, the Planning & Zoning Board unanimously recommended that
the City Council adopt the Updated Guidelines with conditions that staff revise the introduction to
Chapter 7 (Mesa’s Historic & Architectural Context) and add additional language regarding
Heritage Neighborhoods to Appendix E (Heritage Neighborhoods & Other Heritage Places) (7-0).
City staff has since satisfied the conditions of the Historic Preservation Board and the Planning
and Zoning Board, revising both Chapter 7 (Mesa’s Historic & Architectural Context) and
Appendix E (Heritage Neighborhoods & Other Heritage Places).
Purpose
In 1996, the City published Historic Homes of Mesa: An Architectural and Preservation Guide
(Guide) to provide guidance for the preservation, rehabilitation, and maintenance of historic
properties. The guide was updated in 2001 and has since served as a valuable resource for
property owners, design professionals, City staff, and the Historic Preservation Board.
Since that time, Mesa's Historic Preservation Program has grown substantially. When the Guide
was updated in 2001, Mesa had four locally designated historic districts. Today, Mesa is home to
eight locally designated historic districts, numerous historic landmarks, and a broader range of
historic resources requiring thoughtful stewardship.
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The City of Mesa is a Certified Local Government (CLG), a designation established under the
National Historic Preservation Act for local governments with an established historic preservation
program. CLGs are responsible for maintaining a qualified preservation board, an inventory of
historic resources, opportunities for public participation, and appropriate State or local regulations for
the designation and protection of historic properties.
As Mesa’s historic preservation program evolved, City staff, the Historic Preservation Board,
preservation professionals, property owners, and the development community identified
opportunities to update the Guide to improve its organization, clarity, usability, accessibility, and
content reflecting current historic preservation practices and the full breadth of Mesa's historic
resources.
The Updated Guidelines provide guidance for the review of changes to locally designated historic
properties and provides clear direction for property owners, applicants, staff, and the Historic
Preservation Board while supporting the City’s ongoing CLG responsibilities.
The Updated Guidelines were developed in conjunction with, and are intended to complement, the
proposed Historic Preservation Text Amendments to the MZO. The Updated Guidelines provide
practical, user-friendly guidance for property owners, architects, contractors, designers, City staff,
and the Historic Preservation Board by organizing information around common project types and
providing a consistent framework for evaluating preservation projects.
The Updated Guidelines also modernize the document by transitioning from a scanned hard-copy
publication to a searchable digital document featuring keyword searches, internal navigation,
hyperlinks, and updated photography. These improvements significantly enhance accessibility
while making the document easier to use during project planning and review.
Together, the proposed Historic Preservation Text Amendments to the MZO and the Updated
Guidelines modernize Mesa’s Historic Preservation Program by improving clarity, organization, and
usability of its preservation standards and guidance while continuing to promote the preservation of
historic resources, compatible new construction, and high-quality design that respects the character
and integrity of the city's historic districts and landmarks.
Summary of the Design Guidelines
The Updated Guidelines are organized into seven chapters and five appendices that together
provide comprehensive guidance for preservation planning and project review. Details of the
proposed Updated Guidelines are attached in Exhibit 1 – Mesa Historic Preservation Design
Guidelines. Specifically, the Updated Guidelines:
1. Introduce the purpose, organization, and use of the Design Guidelines.
2. Clarify the Certificate of Appropriateness review process.
3. Provide guidance for preservation, restoration, and rehabilitation of historic resources.
4. Provide design guidance for additions to historic buildings.
5. Provide compatibility guidance for new construction within historic districts.
6. Establish guidance for historic signage.
7. Document Mesa's historic and architectural context.
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Five appendices are included and contain information on the City’s preservation program, review
standards, character-defining features, historic context, and details on Mesa’s cultural heritage,
and Heritage Neighborhood program.
Chapter 1: Introduction.
Chapter 1 establishes the purpose and role of the Mesa Historic Preservation Design Guidelines.
The Updated Guidelines provide practical direction for planning and designing improvements to
locally designated historic homes, buildings, sites, structures, and signs, and supplement the City’s
Historic Preservation regulations.
The Chapter also explains when and how the guidelines should be used. Property owners,
designers, and contractors are encouraged to consult them when planning improvements, while
City staff and the Historic Preservation Board can use them as a guide to evaluate projects and
communicate appropriate treatment options. The Updated Guidelines are intended to be used
alongside the City’s Historic Preservation regulations and current Building Code, with consultation
with the Historic Preservation Office recommended for property-specific questions.
Chapter 2: Certificates of Appropriateness.
Chapter 2 explains the Certificate of Appropriateness (COA) process by identifying when a COA is
required, when work is exempt from review, and how applications are processed. It also explains
the relationship between the Mesa Historic Property Register, Historic Preservation Overlay,
National Register, and how COA reviews supplement other City codes.
The Chapter further explains that COAs apply only to locally designated historic resources listed on
the Mesa Historic Property Register and historically designated signs and also introduces the
Secretary of the Interior's Standards for Rehabilitation, which serves as the foundation for
preservation decisions in Mesa. Presenting this information in one location provides applicants with
a clearer understanding of the review process.
Chapter 3: Guidelines for Preservation, Restoration & Rehabilitation.
Chapter 3 serves as the primary design guidance chapter for work involving existing historic
buildings. The Chapter emphasizes preservation best practices, including repairing rather than
replacing historic materials whenever feasible, and guidance for common building components such
as windows, doors, roofs, porches, paint, landscaping, and other character-defining features.
Rather than prescribing a single design solution, the Chapter provides practical recommendations
that help preserve the historic character and integrity of Mesa's historic resources.
Chapter 4: Guidelines for Additions.
Chapter 4 provides guidance for additions to historic buildings with an emphasis on compatibility
and preservation of the original structure.
The Chapter addresses the placement, size, scale, massing, materials, and design of additions
while encouraging contemporary design that remains subordinate to the historic building and
preserves its character-defining features.
Chapter 5: Guidelines for New Construction.
Chapter 5 provides guidance for new construction within Mesa's historic districts. The emphasis is
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on compatibility rather than replication, recognizing that new buildings should respect the
surrounding historic context through appropriate scale, massing, setbacks, materials, and overall
design without requiring imitation of historic architectural styles.
This Chapter also provides guidance for accessory buildings, accessory dwelling units, fencing,
walls, mechanical equipment, and solar systems.
Chapter 6: Guidelines for Historic Signage.
Chapter 6 provides guidance for the preservation and rehabilitation of historic signage as well as the
installation of new signage on historic buildings. The Chapter addresses methods for preserving
existing historic signs while providing recommendations for compatible new signage that supports
business visibility while contributing to the historic character of commercial districts and individual
landmarks.
Chapter 7: Mesa's Historic & Architectural Context.
Chapter 7 provides an updated historic context for understanding Mesa’s historic buildings,
neighborhoods, and architectural character. It recognizes that Mesa’s history is diverse and extends
from thousands of years of Native American occupation through the establishment of Mesa as an
agricultural community and its transformation into a large suburban city after World War II.
The Chapter provides context on O’Odham and Piipaash communities, including their longstanding
connections to the region and the role of ancestral irrigation systems and settlement patterns in
shaping Mesa’s landscape. It then traces Mesa’s development through several periods, including
Early Settlement (1877-1883), Desert Farm Town (1883-1906), Growth and Expansion (1906-
1945), and Suburban Mesa (1945-1970s).
The Chapter concludes with a visual architectural reference that explains the distinction between
architectural style and building type and identifies common residential styles and building types
found in Mesa’s historic districts. It emphasizes that historic districts may contain a variety of
architectural styles and building types and that proposed changes should consider both the
individual building and the character of the surrounding district.
Appendices.
The Updated Guidelines include five appendices that supplement the guidance contained
throughout the document.
Appendix A – The City of Mesa Historic Preservation Program
Provides an overview of Mesa's Historic Preservation Program, including the City's preservation
tools, historic districts, historic landmarks, Heritage Neighborhood Recognition Program, and the
importance of historic preservation within the community.
Appendix B – COA Review Standards
Includes the review standards used during the Certificate of Appropriateness review process,
providing applicants with a transparent understanding of how preservation projects are evaluated.
Outlines the standards for demolition.
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Appendix C – Character-Defining Features
Introduces one of the most significant additions to the Updated Guidelines by identifying and
explaining character-defining features commonly found on historic properties. Understanding these
features helps property owners make informed decisions that preserve the historic significance of
their buildings while accommodating appropriate improvements.
Appendix D – Historic Districts and Historic Landmarks
Provides more in-depth historic context for Mesa's locally designated historic districts and historic
landmarks, including descriptions of their historical significance, architectural characteristics,
defining features, and photos.
Appendix E – Cultural Heritage & Heritage Neighborhoods
Recognizes that Mesa’s cultural heritage extends beyond designated historic properties to include
archaeological resources, cultural landscapes, traditional cultural places, Heritage Neighborhoods,
and the stories, traditions, and practices that connect communities to place. It highlights Mesa’s
long and diverse history, including the enduring cultural connections of O’Odham and Piipaash
communities and the archaeological resources associated with ancestral O’Odham communities.
The appendix provides brief context on significant archaeological and cultural resources, including
Sce:dagĭ Mu:val Va’aki and Thoa Vahkoan, and emphasizes their continued cultural significance and
stewardship.
It also introduces Mesa’s Heritage Neighborhood Program, which recognizes neighborhoods with
significant historic, social, or cultural character that are not formally designated as historic districts.
The program is honorary and community-driven, supporting neighborhood identity, documentation,
education, and preservation awareness without imposing additional zoning requirements.
Citizen Participation
Preservation Historic Preservation Board (Introduction) - August 1, 2023
Staff presented an initial draft of the proposed Updated Guidelines to the Historic Preservation
Board for discussion and public input.
Community Outreach Meeting - August 24, 2023
The public was invited to attend a community outreach meeting to review and discuss the
proposed Historic Preservation Text Amendments and draft of the proposed Updated Guidelines.
Attendees shared with Staff their comments on the Updated Guidelines including consistency in
references, the need for additional cultural context, the inclusion of the Heritage Neighborhoods,
more about Midcentury Modern architectural style, and information about materials.
Staff has since addressed these comments and incorporated them into the Updated Guidelines.
Historic Preservation Board – September 5, 2023
Staff presented the draft Historic Preservation Design Guidelines to the Board. The Board had
several questions regarding their purpose and intention. There were questions about historic events
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versus historic structures, and that the history and historic events are considered at time of
designation, so those events are already captured. There were also questions about what the focus
of the Design Guidelines are, which staff clarified as locally designated landmarks or properties
withing districts, although all historic property owners are encouraged to use the guidelines. The
Board ultimately voted to continue the item to the October 3 meeting so that the Board could
communicate with staff and bring specific ideas to the next meeting.
Historic Preservation Board – October 3, 2023
During a presentation, it was discussed by staff that it would be difficult to produce the final
document, as proposed by the Board, because it was planned to go to City Council on November 6,
and there would be insufficient time for the Historic Preservation Board to meet again before that
date. Staff was hoping to get the Board’s recommendation to move forward based on the proposed
forthcoming changes. Nevertheless, the Board members recommended the Updated Guidelines
move forward to Council with the changes that staff proposed. It was mentioned that these Updated
Guidelines may be adjusted later and worked through as things continue to evolve. The Board voted
to recommend that the City Council adopt the proposed Updated Guidelines
Historic Preservation Board – November 1, 2023
Staff presented the proposed Historic Preservation Design Guidelines to the Planning & Zoning
Board and recommended that the item be continued to a date uncertain. It was approved by the
Planning & Zoning Board to continue the item to a date uncertain.
Historic Preservation Board (Introduction) - May 5, 2026
Staff presented a revised Updated Guidelines to the Historic Preservation Board for review and
public comment. These changes were made to reflect the additional discussion that had taken
place over the intervening three years.
The Board provided extensive comments regarding the organization, clarity, and usability of the
document, with discussion focusing on simplifying technical language, improving guidance for
property owners, expanding references to historic landmarks and districts, incorporating additional
historic context, clarifying preservation guidance for windows, fences, mechanical equipment, and
signage, and including references to the original 2001 Design Guidelines and other supporting
resources. Board members also suggested additional photographs, captions, architectural
terminology, and information related to archaeology and historic preservation incentives.
Overall, the Board expressed strong support for the document and noted that, with the
recommended revisions, it would serve as a valuable educational resource and improve the
preservation review process.
Staff incorporated the Board's comments and recommendations into subsequent revisions of the
proposed design guidelines.
Historic Preservation Board (Study Session) - July 7, 2026
Following revisions, staff presented the draft Updated Guidelines to the Historic Preservation Board
for additional review and public comment.
One member of the public was in attendance and discussed the current guidelines being
incorporated into the revised guidelines.
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Board discussion focused on the purpose of the update, coordination with the Arizona State Historic
Preservation Office (SHPO) and other stakeholders, the community outreach process, clarification
of historic landmarks and character-defining features, building code considerations, and
opportunities to further improve the document's accessibility and educational value. The Board also
expressed that the design guidelines would have benefited many previous preservation projects by
providing clearer expectations for applicants and encouraging voluntary compliance.
Community Outreach Meeting - July 21, 2026
A second community outreach meeting was held to present the revised historic preservation text
amendments and the Updated Guidelines.
The general assessment of the document by the attendees was positive. Questions about how to
use the document, additions, and new construction were raised. Specific project questions
regarding materials, roofs, and windows were also discussed. Other comments simply
complimented the organization and simplification of the document. There was no opposition to the
changes.
Planning and Zoning Board (Study Session) - July 22, 2026
Staff presented the Updated Guidelines at the Planning & Zoning Board study session. Overall, the
response from the Board was positive, with a question about Tribal Historic Preservation Office
(THPO) coordination. The Updated Guidelines were provided to the Salt River Pima Maricopa
Indian Community (SRPMIC) and Gila River Indian Community (GRIC) THPOs, and staff did
additional coordination to incorporate the feedback from the THPOs.
One member of the public attended the Study Session but did not provide comments on the
proposed Updated Guidelines. Board comments and questions have been addressed by staff.
Historic Preservation Board (Action) - September 1, 2026
Staff presented the Updated Guidelines to the Historic Preservation Board for discussion and
recommendation to City Council.
The Board voted unanimously (6-0) to recommend that the City Council adopt the proposed
Updated Guidelines, including the revised Mesa historical context and Heritage Neighborhood
language to be incorporated into Chapter 7 and Appendix E by staff prior to going to City Council,
without requiring the document to return to the Board for additional review.
Planning and Zoning Board (Action) - September 9, 2026
Staff presented the Updated Guidelines to the Planning and Zoning Board for discussion and
recommendation to City Council.
The Board voted unanimously (7-0) to recommend that the City Council adopt the Updated
Guidelines, including the revised Mesa historical context and Heritage Neighborhood language to be
incorporated into Chapter 7 and Appendix E by staff prior to going to City Council, without requiring
the document to return to the Board for additional review.
Additional Outreach and Coordination
In addition to these public meetings, staff coordinated extensively with the Arizona SHPO and the
Mesa Preservation Foundation throughout the development of the Updated Guidelines. Staff also
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coordinated with the SRPMIC THPO and the GRIC THPO regarding Mesa’s cultural setting, historic
development context, and their connections to Mesa’s Heritage Neighborhoods.
Information regarding the Updated Guidelines has also been made available on the City's website
to provide additional opportunities for public review and comment. No comments have been
received by staff.
Implementation
Staff recommends the resolution adopting the Mesa Historic Preservation Design Guidelines
(Updated Guidelines) to become effective 30 days from the date of City Council approval.
Exhibits
Exhibit 1 – Mesa Historic Preservation Design Guidelines
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