HomeMy WebLinkAboutDiscussion with the Bozeman Historic Preservation Advisory Board.pdf1
Commission Memorandum
REPORT TO: Honorable Mayor and City Commission
FROM: Courtney Kramer, Assistant Planner for Historic Preservation
Chris Kukulski, City Manager
SUBJECT: Discussion with the Bozeman Historic Preservation Advisory Board on
the purpose, scope, and Commission direction on their duties, including the formulation of new
policy such as a Demolition by Neglect ordinance, as well as training on Historic Preservation
for the Commissioners.
MEETING DATE: July 26, 2010 This item was postponed from the June 14, 2010
Commission Agenda at the Preservation Board’s request.
AGENDA ITEM TYPE: Action
RECOMMENDATION: Conduct discussion among the Commissioners and the BHPAB.
BACKGROUND: The Bozeman Historic Preservation Advisory Board (BHPAB) is an
advisory board initially established in 1985. The BHPAB is currently working under Ordinance
1454, passed in January of 1998, which offers a broad scope of powers and duties to work from.
Given the extent of the BHPAB’s interaction with the City of Bozeman’s historic preservation
program and its staff, background knowledge of Bozeman’s preservation program is helpful in
framing this discussion.
Historic preservation began in Bozeman in the mid-1970’s with the formation of the South
Willson Historic District. Interests in historic preservation issues led the local government to
work with volunteers from the community to inventory the community’s historic and cultural
resources in 1984. Data gathered through the inventory process included construction dates,
architect and builder information, original owner information, a statement of the property’s
historic significance, and an evaluation of the property’s historic “integrity”, defined as the
ability of a property to convey its period of significance through the retention of historic location,
setting, materials, design, workmanship, association and feeling. These inventory sheets are
available at the Department of Planning and Community Development, and are available to the
public. They can be a great starting point for owners interested in researching their property.
The initial data gathered in 1984 indicated a number of potential historic districts. Additional
research in 1986 clarified the appropriate boundaries of historic districts as well as further
elucidated each potential district’s distinct historic significance. This information became a
Multiple Properties Listing nomination to the Montana State Historic Preservation Office, which
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recommended that the districts as well as individually eligible properties in Bozeman be listed on
the National Register of Historic Places by the National Park Service (NPS).
All nominations to the National Register of Historic Places must take place with the consent of
the property owner, or a majority of property owners in a district. Properties listed on the
National Register must meet a number of criteria in order to be eligible for listing. First, they
must have historic significance, as defined by the NPS as:
The reason the cultural resource, structure, complex, or landscape is important to
American history and should continue to exist.
Historic significance must relate to one of more of the following criteria:
Criteria A: The reason the cultural resource, structure, complex, or landscape is
important to American history and should continue to exist. Districts,
sites, buildings, structures, and objects that are associated with events that
have made a significant contribution to the broad patterns of our history.
Criteria B: Related to a Specific Person in our History. Districts, sites, buildings,
structures, and objects that are associated with the lives of persons
significant in our past.
Criteria C: Architecture. Districts, sites, buildings, structures, and objects that embody
the distinctive characteristics of a type, period, or method of construction, or
that represent the work of a master, or that possess high artistry values, or
that represent a significant and distinguishable entity whose components may
lack individual distinction.
Criteria D: Potential for Archaeology. Districts, sites, buildings, structures, and objects
that have yielded, or may be likely to yield, information important in
prehistory or history.
Currently, Bozeman is home to nine historic districts and 40 individual historic properties, all
listed on the National Register of Historic Places. All of the properties identified as historic by
the 1980’s effort are included in the Neighborhood Conservation Overlay District (NCOD).
Listing on the National Register of Historic Places is honorary, with protection of properties
dependent upon local ordinances.
Established in 1990, the NCOD protects historic and cultural resources while also providing the
opportunity for public comment when alterations to individually listed properties are proposed.
Previous to the adoption of Bozeman’s Design Guidelines for Historic Preservation and the
Neighborhood Conservation Overlay District, the Department of Planning relied on the
Secretary of the Interior’s Guidelines for the Treatment of Historic Properties, which identified
methods and approaches for rehabilitation, preservation, restoration and reconstruction.
As indicated by Bozeman Municipal Code Chapter 18.28, the intent of the conservation overlay
is: “to stimulate the restoration and rehabilitation of structures, and all other elements
contributing to the character and fabric of established residential neighborhoods and commercial
or industrial areas. New construction will be invited and encouraged provided primary emphasis
is given to the preservation of existing buildings and further provided the design of such new
space enhances and contributes to the aesthetic character and function of the property and the
surrounding neighborhood or area.” (UDO 18.28.010 C).
The NCOD protects identified cultural resources, as well as potentially historic sites, through the
Certificate of Appropriateness process, which requires review and approval by the Department of
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Planning and Community Development prior to any and all alterations other than repair on any
structure within the district. BMC 18.28.040 A specifies that “No building, demolition,
conditional use, sign or moving permit will be issued within the conservation district without a
COA.”
BMC Section 18.28.050 requires that a development project receiving COA approval be
appropriate and compatible to original design features of subject structures or properties and with
neighboring structures and properties. Specifically, staff must review the proposal’s
appropriateness for the following items:
l. Height;
2. Proportions of doors and windows;
3. Relationship of building masses and spaces;
4. Roof shape;
5. Scale;
6. Directional expression, with regard to the dominant horizontal or vertical expression of
surrounding structures;
7. Architectural details;
8. Concealment of nonperiod appurtenances, such as mechanical equipment; and
9. Materials and color schemes (any requirements or conditions imposed regarding color
schemes shall be limited to the prevention of nuisances upon abutting properties and
prevention of degradation of features on the property in question. Color schemes may
be considered as primary design elements if a deviation from the underlying zoning is
requested).
Adopted by the City of Bozeman in January of 2006, Bozeman’s Design Guidelines for Historic
Preservation and the Neighborhood Conservation Overlay District were developed to further
clarify the expectations and standards for COAs. Developed with the Secretary of the Interior’s
Standards for the Treatment of Historic Properties in mind, the Design Guidelines include
illustrated recommendations for appropriate height, materials, size, scale, massing, site use, as
well as specific recommendations for the existing historic districts. The Design Guidelines
reflect design principals commonly accepted amongst all design professions including
architecture, landscape architecture, interior design, urban design and environmental design. The
design guidelines provide defined criteria for review of applications and are available online.
As we discussed earlier this spring, BMC also establishes the procedure for demolition of
properties listed on the National Register within a district or individually. Specifically, 18.28.080
requires that demolition of properties identified as historic be approved through a publicly
noticed hearing by the City Commission. Before the hearing the Commission shall receive a
recommendation from Administrative Design Review Staff and the Design Review Board.
Notably lacking in the required review process is a recommendation from the Bozeman Historic
Preservation Advisory Board. The BHPAB has reviewed and provided comment on a handful of
major projects impacting historic properties through the past few years, largely at the request of
the Planning Director in order to provide as much information possible on high-profile projects.
After being left out of the project review for a proposal which included demolition of a property
contributing to a historic district, the BHPAB formally requested that the Planning Director give
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them the option to review all demolitions within the Neighborhood Conservation Overlay
District.
BMC 18.28.080 C gives historic preservation staff the option to review and update the Montana
Historical and Architectural Inventory Form to reflect current conditions on the site, prior to the
review of the demolition or movement proposal. Updating the inventories has become
increasingly common, as the data set from 1984 grows further outdated. The 1984 inventory is
an excellent resource, but it does have flaws reflective of its time period. A study completed in
August of 2008 by the consulting firm Renewable Technologies, Inc. noted:
“The original Bozeman historic resources inventory, along with its accompanying
design review and other programs, have served the city well for a number of
years. There is now an increasing realization, however, that the existing inventory
dada has become too dated to be an effective reference tool for city planners. In
the quarter century since the inventory was undertaken, many additional Bozeman
buildings have reached an age where their potential historic significance must be
considered. Other buildings that were found to be historic in 1983 may have been
altered or razed in the years since. The number of buildings in these categories is
very substantial, bringing into question the reliability of the city’s only database
of site-specific historic building information. This is a significant problem for
Bozeman city planners, since they are mandated to consider National Register of
Historic Places eligibility when reviewing proposed building demolitions and
remodeling.”
The 1984 inventory evaluated all properties which met the Secretary of the Interior’s standards
for eligibility to the National Register of Historic Places, starting with the benchmark that a
property must be at least 50 years old to be “historic”. Thus, 1984 minus 50 years is 1934;
meaning that any property built after about 1945 was discounted from historic designation in
1984. This is problematic, as the Planning Department now receives applications proposing
extensive alterations to 1950’s and 1960’s structures which qualify for historic designation.
Given the extent to which the Department of Planning relies on the inventories, the City of
Bozeman has considered updating the inventory of historic places various times through the last
decade. A status analysis and update recommendations was completed in August of 2008,
followed in September of 2008 by a historical and architectural context which discussed
Bozeman’s development history through the mid-1960’s. Generally, a new inventory of only the
Neighborhood Conservation Overlay district is anticipated to cost between $300,000- $400,000.
In order to raise the funds needed for such an inventory, the Department of Planning has charged
a fee with every new COA application that is deposited directly to a fund for inventory updates.
Planning Staff has prepared and submitted two applications for federal matching funds through
the Preserve America program to assist in funding a new inventory. An application submitted
this spring proposed to match $76,831 generated locally through COA savings, staff time, and
research time donated by the Pioneer Museum to Preserve America funding to fund an update of
inventories for Bozeman’s B-3 or Commercial Core zoning area. Preservation Planning Staff
anticipates a response from the Preserve America grants application in mid-June of 2010.
In the meantime, the Department of Planning has been working closely with the GIS Department
and three volunteer interns to work on an inventory pilot project, using the North Tracy Historic
District as a lab. Interns entered the existing data into a layer for GIS, using a color coded system
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to indicate which properties were identified as “Contributing”, “Non-Contributing”, or
“Intrusive” into a new data layer. Once the 1984 data is entered, staff will work with the interns
to re-inventory each property, creating a new site form, current photography, and a current
evaluation of historic significance and integrity. These site forms will be checked by the
Montana State Historic Preservation Office, and linked to a GIS map with a 2010 update layer.
The intent is to make all the information available to the public, using the map as a point and
click to find information about the history of properties.
The BHPAB recognizes the need for a new inventory to continue with the City of
Bozeman’s current approach to historic preservation, and regularly includes advocacy for
a new inventory in their annual goals. The Preservation Board meets annually in January
to discuss and identify their projects and goals for the upcoming year in order to narrow
their focus and increase productivity. The BHPAB’s bylaws establish the following
Mission Statement and Vision, as well as Powers and Duties:
Mission Statement:
Recognizing the value of preserving and protecting Bozeman’s rich cultural and architectural
heritage, the Bozeman Historic Preservation Advisory Board is committed to ensuring a dynamic
historic legacy for present and future generations. The BHPAB engages the community through
education and advocacy to cultivate awareness, appreciation and stewardship of our historic
resources.
The Vision:
Our pride in where we live rests, in part, on our understanding and appreciation of the past
inherent in the surviving historic buildings, structures, landscapes, streetscapes, and
archeological sites that surround us. We envision a Bozeman in which every citizen knows
about and appreciates his or her community’s unique contribution to Montana’s heritage, and
takes pride in maintaining and protecting that heritage and in which governmental agencies at all
levels set the example of good stewardship and support their citizens’ efforts.
Powers and Duties:
The Bozeman Historic Preservation Advisory Board shall have the powers and duties to:
A. Assist the Historic Preservation Officer in the maintaining, updating and expanding a
system for the survey and inventory of recognized and potentially eligible historic
districts, sites, and/or structures within the City of Bozeman, and make this information
available to the public upon request.
B. Create a list of historic sites and districts in Bozeman that do not meet the criteria for
listing on the National Register of Historic Places, but which are, nevertheless,
considered to be historically and/or architecturally significant, and worthy of the attention
of the Historic Preservation Advisory Board. This list will be made available to the
public upon request.
C. Assist the Historic Preservation Officer in the process of nominating properties to the
National Register of Historic Places according to the Montana State Regulations for
Certified Local Governments, Section VI (B). This includes the capability of reviewing
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and commenting on any National Register nominations on property within the City of
Bozeman.
D. Review and comment on planning programs or documents undertaken or drafted by the
City of Bozeman, City Planning Board, City Zoning Commission, or other city-related
entities, as well as state or federal agencies which relate to historic resources such as land
use, zoning regulations, municipal improvements, housing, and other public programs.
This review and comment shall be scheduled within time lines in place for whatever
action is being taken.
E. Review and comment on public construction proposals prepared by professional
consultants or city, county, state or federal agencies, which have potential impact on
historic resources, when requested by the person or agencies making the proposal, by the
Historic Preservation Officer, the Administrative Design Review Staff, the Department of
Planning and Community Development, the Design Review Board or City Commission.
F. Consult with city, state, and federal agencies on all applications, environmental
assessments, environmental impact statements, and other similar documents that have
been prepared by others and reviewed by the appropriate agencies pertaining to historic
districts, individually listed sites, or neighboring properties within the City of Bozeman.
Comments by the Bozeman Historic Preservation Advisory Board shall be sent to the
State Historic Preservation Office and other appropriate agencies. This is an advisory
role that does not preclude other responsibilities of the State Historic Preservation Office
which are mandated by federal law.
G. Review local zoning regulations for their applicability to the characteristics of finalized
National Register or Neighborhood Conservation Overlay District properties, and make
appropriate recommendations to the Department of Planning and Community
Development, the Bozeman Zoning Commission, and/or the Bozeman City Commission
concerning and changes or modifications to the zoning regulations and zoning district
boundaries.
H. Make recommendations to the Department of Planning and Community Development
and/or the City Commission regarding variance or deviation applications within the
Neighborhood Conservation Overlay District, established historic districts, or other
historically significant areas within the City of Bozeman.
I. Render advice and guidance upon request of the property owner as to the restoration,
alteration, decoration, landscaping, or maintenance of properties within the
Neighborhood Conservation Overlay District. The Bozeman Historic Preservation
Advisory Board may create voluntary design guidelines and/or other educational
documents or meetings which will be made available to the public for assistance in
historic preservation projects.
J. Develop, participate in, promote, and conduct public information, educational and
interpretive projects and/or programs pertaining to historic preservation.
K. Act in an advisory capacity to the City of Bozeman, Gallatin County, the State Historic
Preservation Office, and other agencies or individuals in matters pertaining to historic
preservation in Bozeman.
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L. Seek grant monies and other means of financial or technical assistance for the facilitation
of appropriate historic preservation projects in the Bozeman area.
M. Assist the Historic Preservation Officer in developing, administering, and supervising
internships with Montana State University and other appropriate entities.
N. Participate and, when appropriate, provide Staff support to the Community
Transportation Enhancement Steering Committee, and other city-related entities, as
needed.
O. Seek to develop increased economic, regulatory and other incentives for historic
preservation activities in Bozeman. The BHPAB will also encourage the removal of
economic, regulatory and other disincentives for local historic preservation efforts.
P. Strive to encourage and facilitate improved coordination of historic preservation efforts
by and among state agencies, Gallatin County, the City of Bozeman, and the private
sector.
Q. Promote increased heritage tourism in Bozeman and throughout Gallatin County.
R. Advocate and seek positive solutions for the maintenance and/or preservation of
threatened historic resources in the Bozeman area. The BHPAB shall inform and advise
the general public regarding historic properties which may be modified or adversely
impacted through action or neglect. The Board shall organize public gatherings and in
other ways facilitate public input on such matters as necessary.
S. Administer the Bozeman Tax Abatement Program, as defined/described in Commission
Resolution No. 2766.
The BHAPB meets at 6 pm on the fourth Thursday of each month at the Human Resources
Development Council. Their bylaws state:
The Bozeman Historic Preservation Advisory Board shall consist of up to fifteen (15) members
as follows:
A. At least three (3) but not more than four (4) members with professional expertise
in the disciplines of history, planning, archeology, architecture, architectural
history, historic archeology, or other historic preservation related disciplines such
as cultural geography or cultural anthropology. Retired professionals shall be
given consideration equal to that of practicing professionals. Residency within
the city shall not be a prerequisite for membership as a professional
representative.
B. At least two (2) but not more than four (4) members shall be residents of Nation
Register Historic Districts or owners of properties individually listed on the
National Register of Historic Places in Bozeman. As new members are chosen to
replace those whose terms have expired or resigned, an effort shall be made to
ensure adequate representation among the districts.
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C. One (1) member shall represent the commercial/industrial area of downtown
Bozeman. This representative shall operate a business or own property in the
Main Street commercial area of downtown Bozeman.
D. At least four (4) but no more than six (6) members shall be at-large
representatives. Residency within the city shall not be a prerequisite for
membership as an at-large representative.
E. Quorum. A quorum shall be comprised of a minimum of fifty percent (50%) of
the members, of which at least two (2) shall be professional members.
The BHPAB currently has 10 of 15 positions filled, and the group is divided into two
subcommittees who also meet once a month. A Planning and Policy group works with the
Commission to create and reform policy, like the Tax Abatement for Historic Preservation as
well as the Demolition by Neglect draft ordinance. The Education and Outreach group plans
events like the spring seminar, Preservation Days, summer walking tour series, and fall lecture
and cemetery tour. The group works together to host the Preservation Awards, held annually in
November.
As a Certified Local Government, the City of Bozeman receives $5,500 annually from the
Montana State Historic Preservation Office; $3,000 of which funds staff salaries, leaving the
remaining $2,500 to pass through the City of Bozeman to the BHPAB to support their efforts.
These finds primarily pay for advertising and events.
Minutes from BHPAB meetings, as well as agendas, photos of previous events, and calendar of
upcoming events, are available at the board’s website: www.preservebozeman.org.
UNRESOLVED ISSUES: This agenda item is for discussion purposes and no specific action
is required.
ALTERNATIVES: This agenda item is for discussion purposes and no specific action is
required.
FISCAL EFFECTS: This agenda item is for discussion purposes and no specific action is
required. No fiscal effects are expected from this item.
Attachments:
A. - images of inventory update pilot project
B. Map of Bozeman’s historic districts,
C. 1984 basic inventory,
D. 1986 expanded inventory for historic districts,
E. modern inventory, BHPAB 2010 work plan
F. design guidelines example
G. BHPAB member list
Report compiled on: June 9, 2010
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Figure 1: GIS map of the Neighborhood Conservation Overlay District. Red dots indicate data that has not been entered yet. See
the sidebar on the left regarding what the colored dots indicate.
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Figure 2: View of the south central historic districts. Data input for the Cooper Park District and the Bon Ton Historic District
remains incomplete.
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Figure 3: The B-3 zoning district will be completed this summer, in hopes that Bozeman receives a matching funds grant from the
Preserve America program.
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Updated July 21, 2010
Name Member Type Date Appointed Expiration Sub-committee
Anne
Sherwood
Secretary
At-Large, lives in Cooper
Park Historic District
7/9/2007 6/30/2011 P & P
Boone Nolte Professional, Architect 12/14/2009 6/30/2012
Crystal Alegria At-Large, Archaeology 3/17/2008 6/30/2011 E & O
Dale Martin At-Large 3/8/2010 6/30/2011 E & O
Jane Davidson
Klockman- E
& O Chair
Bon Ton Historic District 7/25/2005 6/30/2011 E & O
Lesley
Gilmore
Professional,
Architecture/ Historic
Preservation
7/1/2008 6/30/2012 P & P
Lora Dalton Historic District, Cooper
Park
12/16/2008 6/30/2012
Mark
Hufstsetler-
Chair
Professional,
Architectural Historian
3/27/2006 6/30/2012 P & P; E & O
Michael
Neeley
Professional,
Archaeology
1/22/2007 6/30/2012 E & O
The Bozeman Historic Preservation Advisory Board (BHPAB) is created under Chapter 2.80 of the Bozeman Municipal
Code. Board members are appointed to staggered two-year terms. The Board is to be comprised of up to fifteen
members: (1) three or four professional members, (2) two to four members from historic districts, (3) one member from
the Main Street commercial district, who "shall operate a business or own property in the neighborhood described as
Main Street" and (4) four to six at-large representatives. Residence within the city shall not be a prerequisite for
professional members or at-large representatives. This Board is considered advisory, although it is generally responsible
for overseeing the operations of the Bozeman Historic Preservation Program. Meetings: Fourth Thursday of the month at
6:00 pm in the HRDC building. Dates and times are posted on the City of Bozeman website at www.bozeman.net.
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Ryan Olson Main Street Historic
District
1/22/2007 6/30/2012 E & O
Paul Reichert At Large 6/14/2010 6/30/2012
Vacancy At-Large 6/30/2012
Vacancy At-Large 6/30/2012
Vacancy Historic District 6/30/2011
Vacancy Historic District 6/30/2012
Courtney
Kramer
20 E. Olive Street, PO
Box 1230, Bozeman, MT
59771-1230
406-582-2260 ckramer@bozeman.net Planning Staff
Liaison
Carson Taylor PO Box 1230, Bozeman,
MT 59771-1230
ctaylor@bozeman.net Commission
Liaison
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