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HomeMy WebLinkAboutHPAB 12-13-2016 minutes Historic Preservation Advisory Board December 13, 2016 6:00 pm City Hall, Madison Room 121 N. Rouse Ave., Bozeman, Montana A. 06:09:17 PM (00:00:59) Call meeting to order and Roll Call – Present were: Marty Matsen, Community Development Director Chris Saunders, Community Development Tom Rogers, Community Development Pat Jacobs Cassidy Cook Michael Walner Vicki York Richard Canfield, citizen Rob Edwards, citizen Ellen Stevens, citizen Cyndy Andrus, Commissioner Liaison B. 06:10:04 PM (00:01:46) Changes to the Agenda. Chris Saunders requested that an item 2.1 be added for Tom Rogers to give a status update on the project that is nearing completion. C. 06:10:23 PM (00:02:05) Disclosure of Ex Parte Communication. No ex parte communication was identified. D. 06:10:31 PM (00:02:13) Public Comment. No comment was received under this agenda item. E. 06:11:27 PM (00:03:09) Approval of Minutes of November 16, 2016. Due to the lack of a quorum, no action was taken on the minutes. G. Action Items 1. 06:11:42 PM (00:03:24) Introduction of Community Development Director Martin Matsen and discussion of Historic Preservation staff recruitment. Marty Matsen introduced himself to the Board, noting that he is working to fill vacant staff positions. He has an offer out for one planner position; and he is working to fill three other positions that have been funded including an administrative assistant position, a senior planner and a historic preservation officer. His intent is to revise the historic preservation officer position, rename it to historic preservation specialist, and prepare a class specification for it within the City structure. He distributed a draft of the class specification for board member review, asking for feedback from those present. His vision is to have someone with a background in architectural and design features to do community outreach and education. He recognized the regulatory aspects that come with historic preservation but stressed the importance of having expertise on staff to look at development proposals and offer the historic perspective. He reviewed the process that will be followed in filling the position, noting he hopes to begin advertising for the position before the end of the year and having someone hired by this spring. 06:24:27 PM (00:16:09) Richard Canfield stated he purchased an old rundown house in the BonTon District and went through the certificate of appropriateness process, noting the historic preservation officer at that time was the definitive source of what to and not to do. He found that function extremely important in protecting the integrity of the property. 06:29:10 PM (00:20:52) Richard Canfield asked Chris Saunders what percentage of time the historic preservation officer spends in evaluating applications and interacting with architects. Chris Saunders responded it has varied over the years, noting the most recent officer worked with planning staff to review applications from the historic perspective and serve as an internal resource. At Chris Saunders’ request, Tom Rogers reviewed how the former officer assisted him in reviewing the application for the East Willson residences. 06:33:56 PM (00:25:38) Chris Saunders noted that the City staff is obligated to consider an application based on objective criteria and cannot take an advocacy role for a project. He noted the City is considering working with citizen groups that could possibly fill that position. 06:35:38 PM (00:27:20) Pat Jacobs asked about the proposed change in the title of this position. Marty Matsen responded that the offices he has worked in have had preservation planners and he is striving to identify what is different from that typical position because it focuses more on outreach and education. 06:39:46 PM (00:31:28) Cassidy Cook voiced her support for historic preservation specialist because it more accurately reflects the wide range of duties involved. 06:41:24 PM (00:33:06) Pat Jacobs noted that infill development, particularly in the neighborhood conservation overlay districts, is becoming an issue in the community, and a strong concept of historic preservation is essential in reviewing those projects. She then stated the relationship between architecture and historic preservation is critical. Marty Matsen recognized that this community has many gems to be protected and he is interested in hiring the expertise necessary to do so. 06:45:31 PM (00:37:13) Pat Jacobs forwarded a suggestion that someone from an advocacy group be included on the scoring panel. Marty Matsen responded that he has considered the possibility of including someone from this board and someone from an advocacy group to participate on the scoring panel in addition to City staff members. He stressed the importance of finding people who can serve through the entire process. 06:47:42 PM (00:39:24) Richard Canfield voiced his support for the suggestion to include someone from the community who has expertise in the area of historic preservation and architecture. 2. 06:50:44 PM (00:42:26) Presentation by Tom Rogers on upcoming revisions to the Unified Development Code relating to infill, accessory dwellings, and other topics relevant to the Board and discussion by the Board. Tom Rogers gave an overview of the proposed revisions to the UDO, noting that his presentation is limited to those issues relevant to this board. Staff is reviewing and evaluating the development code, which includes several documents in addition to the Unified Development Code. He stated the current zoning code has been in essentially in effect for thirty years, and it is important to bring it up to current standards and to meet the goals and objectives of the growth policy. He noted there are over 150 proposed changes to the code, ranging from punctuation and grammar changes to infill policy and developing improved processes. He stated this project is in the second phase of a several phase process. He stated that infill development is a key issue and a very complicated one. He noted that most development in Bozeman is subject to the provisions of only Chapter 38, so staff is proposing that all of those concepts apply to all property in the city. 07:01:40 PM (00:53:22) Pat Cook asked if the design objectives plan criteria are to be incorporated into the code; Tom Rogers responded they are. Chris Saunders stated the design objectives plan gave a good example and clarity of how to meet the expectations of how a project will fit within an area. Tom Rogers stated that the historic preservation regulations will still apply; and the design objectives plan will be applied throughout the community based on block frontage. He noted this will allow for different character of development throughout the community. He stated the existing streetscape on a block frontage will dictate what type of development will be allowed on a specific site. Chris Saunders stated this process will allow for identifying what types of development and elements of design will work in a certain area but allow some flexibility within specific sideboards. 07:15:48 PM (01:07:30) Tom Rogers stated staff asked the Commission four major questions, noting the third and fourth ones are technical in nature. He noted in 1975 the population was approximately 17,000 and today it is approximately 43,000. Much of that growth has occurred through annexation, and the cost of community services are expensive. The growth policy encourages development at a certain density while being respectful to the western community; however, the current density is lower than the identified density. One of the key issues is to find ways to increase the density while being sensitive to existing development. In general, the minimum lot size is 5,000 square feet; and the Commission has indicated a willingness to decrease that requirement in the higher density residential zoning districts with standards to ensure compatibility. He stressed that any change in the requirements within a zoning district apply throughout the community, including neighborhood conservation overlay districts and historic districts; however, those districts have additional design considerations to help ensure compatibility. Tom Rogers turned attention to accessory dwelling units, noting the City allows them under certain criteria. They must be located above a garage and must be on a minimum 6,000-square-foot lot. The Commission has expressed a willingness to consider allowing an accessory dwelling unit on the ground floor under certain requirements and a willingness to allow a reduction in lot size for an accessory dwelling unit above a garage. Tom Rogers noted one of the overarching objectives is to provide a variety of housing, including single- family, townhomes, apartments and attached multi-family units. He stated that in most areas of the community, housing is fairly homogenous; and to allow varying lot sizes may help to encourage more varied housing types. 07:25:52 PM (01:17:34) Responding to Pat Jacobs, Tom Rogers stated a detached accessory dwelling unit could be located on the same lot as a duplex as long as the lot size is adequate. Pat Jacobs suggested that an accessory dwelling unit in a carriage house type structure could fit well within a historic district. Chris Saunders noted that the lots in the older parts of the community are long and narrow with alleys and could support this type of development, as long as the zoning is R-2 or above. 07:30:08 PM (01:21:50) Tom Rogers stated the last conversation with the Commission was about transitions and strategies to deal with them. He recognized there are a few areas in the community where conflicts could arise as development transitions from intense commercial development to low- density residential. He stated there are different ways to address those issues as they arise and limit impacts on adjacent properties. He noted the current zone code identifies areas of use and not the scale of a structure. 07:36:31 PM (01:28:13) Pat Jacobs asked about places where current zoning is in direct contradiction to historic development patterns, such as the BonTon and Cooper Park historic districts, and the impacts that proposed changes in the R-4 zone like decreased lot sizes might have on the area. She noted the Story Mansion with the carriage house on a large lot and asked if the NCOD should include some additional considerations for historic development patterns to allow development where it is appropriate and not where it isn’t. Chris Saunders stated the Commission has the ability to create new zoning districts, and noted that a specific district could be created for a historic district. Tom Rogers stated there is becoming less differentiation between the zoning districts, noting the zoning may need to evolve. He stated the original downtown and neighborhood conservation overlay districts are comprised of an incredible number of very small lots that were designed to be aggregated as needed for development. Pat Jacobs suggested proportional relationship of scale and massing to a primary residence for an accessory dwelling unit in a historic district. Marty Matsen noted that in the historic context, retrofitting a structure may be appropriate but it may not fit within zoning regulations. 07:47:23 PM (01:39:05) Chris Saunders noted there are nuances to the proposed revisions, noting staff is seeking feedback on changes the board feels are appropriate and those that are not. 07:48:16 PM (01:39:58) Responding to Pat Jacobs, Tom Rogers stated that an adoption schedule is included on the website, noting that he is anticipating adoption in the spring 2017. Proposed revisions should be completed by the end of January, which will trigger the public review process and public hearings before the various advisory boards and the Commission, followed by adoption of the ordinance implementing the amendments. 07:52:18 PM (01:44:00) ??? voiced concern about the lack of public participation at this board’s meeting. He suggested the picture is bigger than just talking to historic preservation; rather, it is important to talk to the broader public. He finds accessory dwelling units are very impactful to residential neighborhoods and suggested an outreach program that includes workshops identifying the importance of thinking about them. He suggested that a presentation on ADUs at the Friday historic preservation group luncheon would be good. Mr. Canfield showed pictures of a contributing historic structure, stating he worries the City is incapable of preventing ADUs from morphing into architectural abominations that house a bunch of students, especially close to campus. He cautioned those houses dramatically alter the character of the area. He showed several examples of changes that have been allowed in the BonTon historic district but do not fit within its character. Responding to Richard Canfield, Marty Matsen cautioned that when looking at these pictures, it is important to realize what types of regulations and criteria were available to staff for considering an application. Responding to Cassy Cook, Tom Rogers stated that a previously approved use is allowed to continue as long as it is used in the same way. Any change that is for more than fifty percent of the value, however, triggers full compliance with the code. Mr. Canfield showed a picture of an accessory dwelling unit where not adequate parking is provided. He noted it is a two-bedroom unit with five students and five cars. He stated this unit has altered the character of the area and the character of the property and detracts from the quality of life for other residents. 08:19:41 PM (02:11:23) Cassy Cook voiced her surprise that, as a university town, there is not more high-density housing. She suggested that the lack of apartments has led to the types of changes that were identified in the pictures. Chris Saunders noted that in the older parts of town, there was an average of 5.5 to 6 people per house in the 1920s; and in 2000 census, one-third of the houses in Bozeman had one person. 08:22:29 PM (02:14:11) ??? noted that the University may have 16,000 students currently but they have experienced rapid growth. He recognized that new residence halls help address the issue, but are not keeping up with that growth. Chris Saunders responded by noting that the University must seek approval from the Legislature to construct new residence halls, and the new residence hall was the first one constructed in many years while the small homes along West College Street were torn down because they had lost their viability. 08:24:22 PM (02:16:04) ??? noted the existing historic districts are over 100 years old. He asked if development south of the University will help to alleviate some of the student housing problems. Chris Saunders responded that there are sizable projects coming forward, but the University is growing every year. He noted the loss of students at the University of Montana caused developers to consider whether they wish to build more housing for students here because they want to see consistent and stable enrollments. He stated the City is also upgrading its infrastructure to support additional development on the south end of the community. He then acknowledged that the neighborhood conservation overlay district has helped to protect those areas from the types of housing for students that has been encountered in other university communities. 08:28:14 PM (02:19:56) Richard Canfield turned attention to ground floor ADUs. He noted a ground floor ADU doesn’t solve the parking problem. Chris Saunders stated that the larger lot size requirement was designed to ensure adequate parking on site. 08:29:54 PM (02:21:36) Responding to questions raised, Tom Rogers stated that, under today’s regulations, one parking space must be provided on site for an ADU unit, and the unit is limited to 600 square feet. 08:31:26 PM (02:23:08) Chris Saunders stated the MSU School of Architecture is looking at transitional housing. Students were charged with researching what would be the least square footage that would work. The units they modeled were sub-200 square feet. They are all ground floor, and he is interested in the fact that they came up with several different designs. He noted that this research and modeling shows ground floor ADUs can be architecturally interesting, and raised a question of whether they would be appropriate in all zones. 08:33:41 PM (02:25:23) Tom Rogers noted that stairs can be a challenge for some of the aging population in this community, but he recognizes the impacts of ADUs even though they are a very small percentage of the housing inventory in the community. 08:34:27 PM (02:26:09) Richard Canfield noted it is very difficult to put ADUs in Brownfield developments. He stated people buy in developed areas with a certain expectation, and the addition of an ADU can impact the character of the area. 08:35:06 PM (02:26:48) Tom Rogers stated he wanted to give a broad picture of the comprehensive changes at this meeting, but noted that discussion on specific items can be scheduled for a later date. He then responded to several questions raised by members of the board as well as the citizens in attendance. 3. 08:40:06 PM (02:31:48) Discussion of upcoming HPAB retreat in January. Chris Saunders suggested a retreat be held in a location where needed facilities are available. He will pursue this possibility further. H. FYI/Discussion 1. 08:40:47 PM (02:32:29) Staff Liaison report. Chris Saunders noted a couple of years ago the City and the Downtown Bozeman Association commissioned an update of historic records and got the report back last week. He noted they followed a standard form, but the content is variable depending on the specific site. He highlighted some of the elements on which properties were evaluated. He then stated the GIS department is looking at a pilot program to create a layer that includes the information from this report. 2. 08:49:13 PM (02:40:55) Board questions and general discussion. There was no discussion under this agenda item. I. 08:49:26 PM (02:41:08) Adjournment. There being no further business to come before the Board, the meeting was adjourned.