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Home My WebLink AboutHistoric Resource Survey ProposalCommunity Development Historic Resource Survey Proposal 14 February 2018 Prepared by: Phillipe Gonzalez Historic Preservation Specialist Table of Contents iFebruary 14, 2018 TABLE OF CONTENTS EXECUTIVE SUMMARY ��3 Next Steps ��5 INTRODUCTION ��7 Uses of the City of Bozeman Historic Resource Survey ��8 Why Undertake a Historic Resource Survey? ��8 NCOD & Survey Reports ��10 Adoption of Survey Results ��12 Certified Local Government ��12 Public Communication and Education ��13 Montana State University ��14 UDC: Sec� 42�1365� – Historic Structure ��12 ATTACHMENT 1 - REFERENCE IMAGES ��15 City of BozemanHistoric Resource Survey Proposal City of Bozeman Historic Resource Survey Proposal ii Table of Contents February 14, 2018 City of Bozeman Historic Resource Survey Proposal February 14, 2018 Request for Proposal 3 EXECUTIVE SUMMARY Historic Preservation in the city of Bozeman began in the early 1980’s where community members became interested in the historic resources of their community. Coming to together in a grass roots organization community members began working with a historic architect to survey and document the historic core of their city. This historic resource survey conducted in 1983 by the community of Bozeman was the beginning of a nearly 35 year preservation program. The survey sparked the active involvement of the city and its neighborhood residents, paving the way for the creation of 10 historic districts and 47 individually listed properties, rejuvenated neighborhoods and a prosperous historic downtown. The survey documented the value of the neighborhood’s built heritage, hundreds of late-nineteenth and early-twentieth century properties that led to the rehabilitation of a number of diverse historic neighborhoods that has been a driving force behind Bozeman’s livability and popularity. The use of this initial survey has served as the basis for all preservation work within the city and was further supported with the creation of the Neighborhood Conservation Overlay District (NCOD) in 1991. The historic inventory cards that were created as a result of the survey have been continually used to guide many planning decisions within the NCOD and largely responsible for the preservation successes in Bozeman. However, after nearly 35 years the inventory cards have been found to lack necessary information or are outdated for modern land-use planning, prompting a need for an updated historic architecture survey. As Bozeman continues to grow into a micropolitan with an expanding population it is important to update and maintain a current historic architecture inventory. The ability to locate new historic resources will facilitate discussion of the management and investment in the city’s valuable heritage assets. Properties that potentially did not have historic integrity during the initial survey may have become historic with investment into the community over the years and additionally, it will allow properties that have lost their historic integrity to be redeveloped and to maximize their potential. City of Bozeman Historic Resource Survey Proposal 4 Request for Proposal February 14, 2018 A historic architecture survey is a substantial project that requires investment and commitment from a city and community to achieve, though the results can help to define the ongoing cultural fabric of a community. This proposal outlines the need and significance of a systematic but flexible framework for conducting a historic architecture survey. This is done by evaluating properties, using professional standards, engaging the public, and ensuring access to survey information for property owners, the community and city departments. Outlined below are three initial historic survey plans that can be implemented. In using these options, it is anticipated that a large number of high priority properties can be researched, identified, evaluated, and recorded within a reasonable period of time at a reasonable cost. These survey options were determined based on various GIS models, research and working with Cultural Resource Firms to determine goals and costs. These options serve as a guide to support the beginning of a comprehensive and thorough inventory survey. Option 1: Survey 500 Critical Properties within NCOD Cost: $75,000-$100,000 A narrow and in-depth inventory survey, compiled by staff, of the 500 critical properties in areas within the NCOD. Survey would be comprised of properties residing in high development areas, highly visible and within historic districts that were previously non-contributing. This option would offer a significant return on resources spent, previous inventory cards would be updated minimizing costs and historic district nominations can be updated, providing strong public results. Option 2: All properties within the NCOD that have not been surveyed, approx. 350 properties. See Attachment. Cost: $60,000-$70,000 The survey of properties that were not included in the initial 83/84 survey though exist within the NCOD, these areas are mostly contiguous towards the south portion of the NCOD along W Lincoln, W Hayes St., W. Garfield St. and along the northern portion of the NCOD along E. Aspen St. and W. Aspen St. Option 3: Survey 827 properties outside of historic districts in large swaths within high development areas, mostly north of Main St. and along western portion of the NCOD. See Attachment. Cost: $150,000 Survey large swaths north of Main St. within the NCOD and along the West Side of the NCOD. Areas contain large portions of properties that could be potentially contributing as significant investment in these areas has occurred over the past few decades. All options are based on estimates and a hierarchy of needs; all options presented include a certain number of overlapped properties. The selected option or combination of options would lead to the creation of a detailed list of all properties that would be surveyed as part of a Request for Proposal. These options are a potential preliminary survey, ideally leading to a comprehensive historic architecture survey of all properties older than 50 years and within the city limits over the course of several years. These options can serve as a pilot program, as staff experience increases working with consultants, the public and refining administrative procedures, staff can expect to increase survey parameters. City of Bozeman Historic Resource Survey Proposal February 14, 2018 Request for Proposal 5 Next Steps Funds are available to support one of the three options listed above, money is allocated from the NCOD fund. Once an option is selected by staff will prepare a Request for Proposal and begin working on a survey project. Below is a Sample Schedule of Proposed Project: EVENT DATE Option Selected with Allocated Funds May 1, 2018 RFP Written and Noticed June 1, 2018 Consultant Selected July 15, 2018 Contract Award & Execution August 1, 2018 Deliverables Due for City Review and Edits February 1, 2019 Commission Presentation February 15, 2019 Close out of Contract February 28, 2019 City of Bozeman Historic Resource Survey Proposal 6 Request for Proposal February 14, 2018 City of Bozeman Historic Resource Survey Proposal February 14, 2018 Request for Proposal 7 INTRODUCTION A historic resource inventory survey is a critical tool for a community to recognize and support their historic and cultural resources and support development in critical areas. A historic inventory survey is raw data collection of properties and an investigation through rigorous standards of historic significance by qualified professionals. Historic integrity is the physical elements that give properties their significance and are critical to determining a properties historic status. A survey involves the visual examination and in-depth historic research of a select area or a group of properties to make professional recommendation of historic status. Historic inventory surveys evaluate individual properties but also neighborhoods and communities for broad historic themes or contexts to support the historic significance of individual properties or districts. Surveys provide the baseline information for evaluating applications for the Certificate of Appropriateness for properties located within the NCOD, providing valuable information on the history of the lot, existing structures, architectural styles and the elements that contribute or detract from the historic status of the property. Accurate and up to date survey information is vital to a well-functioning preservation program in a variety of ways. Surveys help to inform decisions regarding development, support an effort to maintain areas of high concentrations of historic resources, and areas where no historic integrity exists, allowing owners to maximize the potential land use. This applies not only to decisions specifically affecting historic properties, such as Certificates of Appropriateness, it also includes rezoning, subdivisions, conditional uses, the creation of character conservation areas and any other type of land use activity that might affect a historic building or site. In such situations, it is vital to have up-to-date survey information to ensure that historic resources are considered as development continues in our community. A new historic inventory will serve as the basis for future preservation program related policies and decisions. This would include an updated Preservation Plan, measuring the success of the preservation program as a whole over the last 35 years. As Bozeman’s reputation as a world class city grows and develops it is crucial that preservation be a significant component of city planning. An updated inventory will serve as the basis for preservation within city for the foreseeable future. City of Bozeman Historic Resource Survey Proposal 8 Request for Proposal February 14, 2018 Uses of the City of Bozeman Historic Resource Survey 1. City Departments, elected officials, board and commission members, for use in planning, housing and redevelopment, regeneration of neighborhood and supporting adaptive reuse and the recycle of historic resources. 2. Homeowners and neighborhood organizations, maintaining the character and value of historic homes and neighborhoods. 3. Heritage tourism, promoting the city’s historic buildings, homes, and neighborhoods as attractions next to outdoor recreational tourism. 4. Real estate professionals, help to identify historically valuable properties and marketing them to clients and Investors. 5. Preservation organizations, educating the public about the city’s historic resources and historic preservation. A renewed survey program will serve as an investment in city resources and time over a significant period of time. The capital investment into the survey will be offset over time by the time and money saved in planning review procedure and limit litigation as a result of establishing a predictable and updated inventory for efficient decision making. Why Undertake a Historic Resource Survey? A historic resource survey at its most basic function is a method of gathering raw data and information needed to plan for long range use of a communities resources. A Historic Resource Survey includes an in-depth historic research and analysis of buildings, sites, structures, and objects. A visual analysis along with photographs is crucial to the survey though all work is performed from the right-of-way, private property is never entered without permission. It is important to recognize that not all old structures are historic, but a survey can determine what is important to our history and culture. The process of evaluating resources for historic status is guided by the Secretary of the Interior’s National Park Service standards and best practices. This national program creates standards that are used by all municipalities across the country creating uniform results and expectations. All consultant firms that undertake architecture surveys are approved by State Historic Preservation Office to ensure consultants meet the necessary education and experience requirements to perform architecture surveys. City of Bozeman Historic Resource Survey Proposal February 14, 2018 Request for Proposal 9 83/84 Inventory A comprehensive survey was completed by the city of Bozeman in 1983-84. Approximately 2,688 properties were surveyed in what was considered the historic core of the city; consisting of residential areas and the commercial core of Main St. The surveyed area roughly conforms to the Neighborhood Conservation Overlay District (NCOD), which was not passed until 1991. The inventory forms that were used to evaluate properties are a shortened version of what is commonly used today to evaluate historic integrity. A minimal analysis of a property’s history and architectural description was recorded. Details of elements that illustrated the historic significance was usually not provided. All forms were give a description regarding the properties historic significance, and whether the property was contributing to a potential district or not. The 83/84 inventory forms additionally gave a historic designation of ‘neutral’ to some properties, a designation that unfortunately is considered obsolete in modern preservation planning and is currently equated with a non-contributing status. This has created a decade’s long period of time where properties that possibly could have been considered historic were labeled neutral and would have been allowed to go through significant alterations thereby losing their historic integrity. Additionally, the 83/84 inventory surveyed many properties that were not yet a minimum of 50 years old and were recorded as being non-contributing. Properties that would have been eligible would have been constructed up to the early 1930s. Inventory cards were not marked whether the age of the structures was the primary factor the property was determined to be non-contributing or if there was a lack of historic integrity. As a result of the limitations of information obtained from the 83/84 inventory future inventories should prioritize properties previously inventoried that were designated ‘neutral’ and properties that were not inventoried within the NCOD totaling approximately 1,143 properties. City of Bozeman Historic Resource Survey Proposal 10 Request for Proposal February 14, 2018 NCOD & Survey Reports Multiple documents and reports have been authored that give guidance on the need to resurvey the NCOD. The 2015 Neighborhood Conservation Overlay District Report made several recommendations regarding the current and future goals of the NCOD. KLJ and ARCHitecture trio, Inc. were hired to analyze the effects of the NCOD and the current status of the Bozeman preservation programs. According to the NCOD Report, 74% of the properties within the NCOD had been inventoried for eligibility, the result was the creation of 10 historic districts. The inventory forms use today is limited and could not be used for the creation of future historic districts. The NCOD Report primary recommendation was to dissolve the NCOD and to create additional historic districts and individual and specialized buffer districts around historic districts, creating areas of transition between historic districts while maximizing growth in other areas that were previously hindered by historic development trends. As a result the basis for much of the future of the NCOD should be informed by the data collected from a comprehensive survey. The 2008 Bozeman Montana Historic Buildings Inventory: Status Analysis and Update Recommendations, written by Renewable Technologies, Inc., reported more in depth the limitations of the current inventory cards and need for a complete re-survey of the NCOD. A sample of the author’s noteworthy recommendations included: 1. Adapt and reuse as much of the 1983-84 inventory data as is practical a. Much of the original survey can be recycled as the basis for the modern survey including the changes the property has undergone since the mid 1980’s. This information may likely bring down the cost of a per property survey as a portion of the historical research has been completed. 2. Comprehensively inventory within the boundaries of a congruent survey a. A National Register District must have all properties within the district surveyed, as a result it is important to inventory all properties within a congruent boundary. This will help to clearly define neighborhood boundaries and the historic and non-historic resources within them. 3. Choose a boundary for the inventory area to include all neighborhoods with concentrations of potentially-eligible buildings, allowing for a “time buffer”. a. The author of the report correctly states that National Register guidelines specify that most properties cannot be evaluated for historic eligibility until they reach an age of 50 years. Further this inventory should be expanded beyond the borders of the NCOD, though the NCOD should not necessarily be expanded. b. Additionally, the time buffer was suggested to include buildings constructed up until 1970. As this report was presented almost a decade ago a current cutoff year should be 1980 to allow for properties that will become historic in the near future. City of Bozeman Historic Resource Survey Proposal February 14, 2018 Request for Proposal 11 Preservation Plan A Preservation Plan is a proactive comprehensive planning document establishing city wide preservation goals. The plan should reconcile policies and procedures regarding the community’s historic resources into a coherent whole. The majority of plans in local municipalities require a historic inventory survey to give guidance and a platform in which to develop lasting preservation policies and obtainable goals. The elements that comprise a successful preservation plan will look at a variety of components within preservation including housing, heritage tourism, tax codes, livability and public and private responsibilities. Currently the City of Bozeman use The 2009 Bozeman Community Plan, Ch. 5 Historic Preservation, as a guiding document of the preservation program. Subsection 5.4 Future Historic Preservation Needs lists updating the Outdated Historic Inventory as a priority, “The existing inventory data will soon become too dated to be an effective reference tool for City Staff. A comprehensive update should occur and include a digital database. The completion of a full update to Bozeman’s historic inventory is a major, complex undertaking, requiring both a strong logistical commitment from the City and a substantial financial investment… A Project of this scale would require a phased, multi-year commitment by a qualified cultural resource coordinator.” As the Bozeman Community Plan will soon be ten years old it is clear that the prediction that an updated inventory would be critical to all future planning exists and should serve as a significant motive behind the development of a modern survey. Additionally, as the Community Plan begins to age and as the public becomes more interested in the future of historic preservation of Bozeman as development increases, a focus on creating a standalone Preservation Plan for the City is becoming more of a priority. All preservation plans are built upon the results of a historic resource survey, the survey provides the community with a baseline information regarding the historic resources within their community and into a focus of the implementation of the goals and objectives of the preservation plan. City of Bozeman Historic Resource Survey Proposal 12 Request for Proposal February 14, 2018 Adoption of Survey Results Recent administrative procedures have been drafted guiding the adoption of Historic Inventory Forms. The process would inform the property owner before and after the survey occurs. The property owner would be given a designated amount of time to comment on their property card to report errors or issues that were not considered during the survey evaluation. Once the period of comment has expired property cards will be used by the planning office to evaluate COA’s and become a record of historic status. Property owners can appeal their historic status by submitting an updated historic property form. The form author is required to meet the NPS’s Qualification Standards for Historic Architecture. Certified Local Government The City of Bozeman for a number of years has participated as a Certified Local Government (CLG), a grant program run by the State Historic Preservation Office (SHPO). The CLG program exists in every state in the U.S. and has enrolled hundreds of communities into a national program to offer assistance and guidance to developing successful local preservation programs. Assistance to local governments come in a variety of forms including providing the framework for updating and maintaining a historic inventory survey. As a result the SHPO becomes a partner with local governments, supporting a survey by acting as a third party to review and comment on individual property cards. Additionally, as a Certified Local Government the City of Bozeman is encouraged to “maintain survey and inventory information on historic and prehistoric properties: 1. The CLG must begin or continue to identify historic and prehistoric properties within its jurisdiction. The survey program must be approved and coordinated with the SHPO. This survey undertaken by the CLG must be approved by the SHPO and consistent with the SHPO’s statewide survey methods and processes. 2. The CLG must maintain a detailed inventory of the identified historic districts, sites, landscapes, structures and objects under its jurisdiction.” UDC: Sec. 42.1365. – Historic Structure 1. Listed in the state or National Register of Historic Places 2. Designated as a historic property under local or state designation law or survey; 3. Certified as a contributing resource within a National Register listed or locally designated historic district; or 4. Eligible, as determined by the city, to be listed on the National or State Register of Historic Places either individually or as a contributing building to an existing or potential historic district. City of Bozeman Historic Resource Survey Proposal February 14, 2018 Request for Proposal 13 Public Communication and Education The initial survey was a significant and comprehensive study into the historic built environment of Bozeman. It was the genesis of the preservation movement within the city and led to several Historic Districts, heritage tourism and widespread support and pride. This support for local preservation encourages property owners to contribute to their community, maintain the historic integrity of their properties and share in their collective heritage. The City of Bozeman contains a diverse group of people and histories; a significant portion are transplanted from other cities and states. Care must be taken to ensure that views reflective of the city heritage are heard and incorporated into all aspects of the survey from worker housing to Victorian mansions. All future historic architectural surveys must contain a significant portion of public outreach and communication to maintain strong and positive ties to the communities that are being surveyed. This can be achieved by developing a Survey Outreach Plan to include strategies: 1. Utilize Existing Communications and Public Outreach Resources: City Commission, Community Development a. Use outreach including local newspapers articles, social media websites, hold meetings and public hearings to ensure the public can access decision makers in a variety of ways. b. The Community Development and Planning and the Historic Preservation program both have web pages where a frequent board of questions can be held. A separate page within the Preservation programs website can be devoted to a Historic Inventory Survey and can serve as an outpost for all media or public questions. 2. Historic Preservation Advisory Board City of Bozeman Historic Resource Survey Proposal 14 Request for Proposal February 14, 2018 a. The Historic Preservation Advisory Board is an advocacy group, representing members of the public and a conduit from the public to the city of Bozeman. The HPAB board can work to support the dissemination of information regarding the survey through regularly held meetings and special meetings within communities where the survey is taking place. 3. Engage Media a. Early contact with news outlets editorial boards such as The Chronicle and Bozeman Magazine may generate interest, support and publicity for the survey. Local news outlets have previously been interested in work completed by MSU and would likely take an interest in a large scale inventory. 4. Historic Survey Results a. The Historic Architecture Survey will result in significant historical data and information that should be presented to the public. This could include public presentations in specific neighborhoods, presentations to the Historic Preservation Advisory Board and the City Commission. Additionally, updated historic context and additional documents can be produced by consultants and hosted on the preservation web page to further disseminate valuable historic information to the public. b. Additionally, the city’s preservation web page is currently hosting a GIS portal that will allow property owners and the public to search for new Historic Inventory Cards. This will give access to information that since has only been available in person at the City of Community Development office. The B-3 Inventory completed in 2016 is currently the test-pilot for this new procedure. Montana State University For the previous two academic years Community Development and the MSU Architecture Department have partnered to spend a day with students completing a simplified survey of various areas of the city. This partnership allows students to get familiar with various building styles within their community and provides basic but valuable information for the Community Development Preservation Program. The survey information gathered by students serves a foundation for future survey work and does not serve as a determination of a properties historic status. The main goal of the partnership is to provide a pool of information that will assist future survey contractors and potentially bring down an overall cost of survey work to the city. Future collaborations are planned both with the MSU Architecture Department to continue surveys of the city, as well as more in-depth class projects with the MSU History Department Cultural History courses. These partnerships will continue to help students understand the historic built environment around them while providing valuable data for the city. City of Bozeman Historic Resource Survey Proposal February 14, 2018 Attachment 1- Reference Images 15 ATTACHMENT 1 - REFERENCE IMAGES City of Bozeman Historic Resource Survey Proposal 16 Attachment 1- Reference Images February 14, 2018 City of Bozeman Historic Resource Survey Proposal February 14, 2018 Attachment 1- Reference Images 17 121 North Rouse Ave Bozeman, MT 59771 www.bozeman.net