HomeMy WebLinkAboutZ14090_430 South Tracy Demolition SkCOA_StaffReportZ-14090, Staff Report for the DEMOLITION OF 430 SOUTH TRACY AVE.
Project Description: A Sketch Plan Certificate of Appropriateness requesting approval for demolition of the residence
at 430 South Tracy Avenue. The application proposes further development of the site as a vacant lot with landscaping, to be offered for sale for future residential construction. The
property is listed on the National Register of Historic Places as part of the South Tracy/ South Black Historic District.
Project Location: 430 South Tracy Avenue
Recommendation: Denial
Report
Date: August 13, 2014
Staff Contact: Courtney Kramer, Historic Preservation Officer & Planner I
EXECUTIVE SUMMARY
Unresolved Issues
There are no unresolved issues for this application.
Project Summary
This application proposes demolition of the historic residence at 430 South Tracy Avenue, and to subsequently landscape the lot and offer the parcel for sale. The demolition
of historic residences is considered under Sec. 38.16.080 of the Bozeman Municipal Code. This Section requires that in order to approve demolition of a historic property all sections
of the criteria for approval are satisfied.
Alternatives
The Review Authority could:
1) Deny the application as recommended by Staff; or
2) Make alternate findings based on the application
materials and data within the Staff Report to approve the sketch plan Certificate of Appropriateness.
TABLE OF CONTENTS
EXECUTIVE SUMMARY 1
Unresolved Issues 1
Project Summary 1
Alternatives 1
SECT
ION 1 - MAP SERIES 3
SECTION 2 - STIPULATIONS 3
SECTION 3 - CODE REQUIREMENTS REQUIRING PLAN CORRECTIONS 4
SECTION 4 - FINDINGS OF FACT AND APPEAL PROVISIONS 5
SECTION 5 - STAFF ANALYSIS
AND FINDINGS 6
Standards for Certificates of Appropriateness, Section 38.16.050, BMC 6
Neighborhood Conservation Overlay District Review Criteria 13
Demolition or Movement of Structures
or Sites Within the Conservation District - Section 38.16.080. 14
FISCAL EFFECTS 20
ATTACHMENTS 20
APPENDIX A – PROJECT SITE ZONING AND GROWTH POLICY 21
APPENDIX B – DETAILED PROJECT
DESCRIPTION AND BACKGROUND 21
APPENDIX C – NOTICING AND PUBLIC COMMENT 22
APPENDIX D - OWNER INFORMATION AND REVIEWING STAFF 22
APPENDIX E- SANBORN FIRE INSURANCE MAPS FOR 430 SOUTH
TRACY AVENUE 23
APPENDIX F- SANBORN FIRE INSURANCE MAPS FOR THE S. TRACY/ S. BLACK HISTORIC DISTRICT 28
APPENDIX G- HISTORIC PRESERVATION ADVISORY BOARD MINUTES FOR JUNE 2014 32
APPENDIX
H- HISTORY OF 430 SOUTH TRACY AVENUE 34
Homes built by Andrew J. Svorkmoe 34
Construction of 424 and 430 South Tracy Avenue 36
First owners of 430 South Tracy Avenue 39
Residential Multiple
Dwelling Unit zoning 43
Listing on the National Register of Historic Places 44
EXECUTIVE SUMMARY 1
Unresolved Issues 1
Project Summary 1
Alternatives 1
SECTION 1 - MAP SERIES 3
SECTION 2 - STIPULATIONS 3
SECTION 3 - CODE REQUIREMENTS REQUIRING PLAN CORRECTIONS 4
SECTION
4 - FINDINGS OF FACT AND APPEAL PROVISIONS 5
SECTION 5 - STAFF ANALYSIS AND FINDINGS 6
Standards for Certificates of Appropriateness, Section 38.16.050, BMC 6
Neighborhood Conservation
Overlay District Review Criteria 13
Demolition or Movement of Structures or Sites Within the Conservation District - Section 38.16.080. 14
FISCAL EFFECTS 20
ATTACHMENTS 20
APPENDIX A
– PROJECT SITE ZONING AND GROWTH POLICY 21
APPENDIX B – DETAILED PROJECT DESCRIPTION AND BACKGROUND 21
APPENDIX C – NOTICING AND PUBLIC COMMENT 22
APPENDIX D - OWNER INFORMATION AND
REVIEWING STAFF 22
APPENDIX E- SANBORN FIRE INSURANCE MAPS FOR 430 SOUTH TRACY AVENUE 23
APPENDIX F- SANBORN FIRE INSURANCE MAPS FOR THE S. TRACY/ S. BLACK HISTORIC DISTRICT 28
APPENDIX
G- HISTORIC PRESERVATION ADVISORY BOARD MINUTES FOR JUNE 2014 32
APPENDIX H- HISTORY OF 430 SOUTH TRACY AVENUE 34
Homes built by Andrew J. Svorkmoe 34
Construction of 424 and 430 South
Tracy Avenue 36
First owners of 430 South Tracy Avenue 39
Residential Multiple Dwelling Unit zoning 43
Listing on the National Register of Historic Places 44
SECTION 1 - MAP SERIES
/
Vicinity Map showing adjacent zoning
SECTION 2 - STIPULATIONS
Please note that these conditions are in addition to any required code provisions identified in
this report. These conditions are specific to the sketch plan Certificate of Appropriateness.
STIPULATIONS:
Prior to any demolition of the building, whether independently or in association
with a redevelopment of the site, documentation of the property shall be completed prior to issuance of a Demolition Permit. The City’s established practice for documentation is to acquire
any available drawing sets produced in relation to considering rehabilitation of the structure as well as photographs consistent with a Historic American Buildings Survey, Level II.
One digital copy of the large format photography required with HABS II documentation shall be provided to Bozeman’s Historic Preservation Officer for review prior to approval of the
demolition permit. The final packet of HABS II recordation, including three paper copies and two digital copies, shall be submitted to the Department of Community Development prior to
issuance of an Occupancy Permit. One copy will remain with the City of Bozeman and the two remaining paper copies distributed to public repositories of information which may include
the Montana Historical Society and Montana State University’s Special Collections and Archives.
SECTION 3 - CODE REQUIREMENTS REQUIRING PLAN CORRECTIONS
A. None have been identified at this time.
SECTION 4 - FINDINGS OF FACT AND APPEAL PROVISIONS
Project Name: Demolition of 430 South Tracy Avenue
File: Z-14090
A) PURSUANT to Chapter 38, Article 19, BMC, and other applicable
sections of Chapter 38, BMC, public notice was given, opportunity to submit comment was provided to affected parties, and a review of the sketch plan and Certificate of Appropriateness
described in this report was conducted. The applicant presented to the City a proposed sketch plan and Certificate of Appropriateness to demolish the existing residence at 430 South
Tracy Avenue and develop the property with landscaping, and then list the property for sale as a residential building site. The purposes of the site plan review were to consider all
relevant evidence relating to public health, safety, welfare, and the other purposes of Chapter 38, BMC; to evaluate the proposal against the criteria of Section 38.19.100 BMC, and the
standards of Chapter 38, BMC; and to determine whether the plan should be approved, conditionally approved, or denied.
B) It appeared to the Director of Community Development that all
parties and the public wishing to examine the proposed site plan and offer comment were given the opportunity to do so. After receiving the recommendation of the relevant advisory bodies
established by Section Chapter 38, Article 33, BMC, and considering all matters of record presented with the application and during the public comment period defined by Chapter 38, BMC,
the Director of Community Development has found that the proposed sketch plan does not comply with the requirements of the Bozeman Municipal Code. Therefore, being fully advised of all
matters having come before her regarding this application, the Director of Community Development makes the following decision.
C) The sketch plan and Certificate of Appropriateness have
been found to not meet the criteria of Chapter 38, BMC, and is therefore denied. The evidence contained in the submittal materials, advisory body review, public testimony, and this report,
justify the denial of the application in light of the application’s failure to satisfy all applicable criteria of Chapter 38, BMC.
On this ______ day of ____________, 2014, Wendy Thomas,
Director of Community Development, deny this site plan for and on behalf of the City of Bozeman as authorized by Section 38.34.010, BMC.
As a result of the denial, a stay of demolition
or moving permit shall be enacted in conformance with Sec. 38.16.080.A.4 BMC.
D) This Director of Community Development project decision may be appealed filing a notice of appeal with
the Clerk of the Commission for the City of Bozeman, within 10 working days after the date of approval as evidenced by the Director’s signature, by following the procedures of Section
38.35.030, BMC.
_________________________________________________
Wendy Thomas, Director of Community Development
SECTION 5 - STAFF ANALYSIS AND FINDINGS
Analysis and resulting recommendations are based
on the entirety of the application materials, municipal codes, standards, and plans, public comment, and all other materials available during the review period. Collectively this information
is the record of the review. The analysis in this report is a summary of the completed review.
Standards for Certificates of Appropriateness, Section 38.16.050, BMC
Section 38.16.050
specifies the required standards for granting Certificate of Appropriateness approval for proposed alterations.
A. All work performed in completion of an approved Certificate of Appropriateness
shall be in conformance with the most recent edition of the Secretary of Interior’s Standards for the Treatment of Historic Properties with Guidelines for Preserving, Rehabilitating,
Restoring and Reconstructing Historic Buildings (Published 1995), published by U.S. Department of the Interior, National Park Service, Cultural Resource Stewardship and Partnerships,
Heritage Preservation Services, Washington, D.C. (available for review at the Department of Planning).
This application proposes demolition of a structure which contributes to the
South Tracy/ South Black Avenue Historic District in order to develop the lot in a “yard like condition,” while the parcel is listed for sale as a developable residential lot.
The
Secretary of the Interior’s (SOI) Standards for Rehabilitation, codified as 36 CFR 67, are the appropriate criteria through which to consider the project. The Rehabilitation Standards
acknowledge “the need to alter or add to a historic property to meet continuing or changing uses while retaining the property's historic character.” A link to the National Park Service’s
website for the SOI Standards for Rehabilitation is available here: http://www.nps.gov/tps/standards/rehabilitation.htm The Standards also encompass related landscape features and the
building’s site and environment as well as attached, adjacent, or related new construction.
The SOI Standards for Rehabilitation are:
Rehabilitation Standard #1: A property shall be
used for its historic purpose or be placed in a new use that requires minimal change to the defining characteristics of the building and its site and environment.
Rehabilitation Standard #2: The historic character of a property shall be retained and preserved. The removal of historic materials or alteration of features and spaces that characterize
a property shall be avoided.
Rehabilitation Standard #3: Each property shall be recognized as a physical record of its time, place, and use. Changes that create a false sense of historical
development, such as adding conjectural features or architectural elements from other buildings, shall not be undertaken.
Rehabilitation Standard #4: Most properties change over time;
those changes that have acquired historic significance in their own right shall be retained and preserved.
Rehabilitation Standard #5: Distinctive features, finishes, and construction
techniques or examples of craftsmanship that characterize a historic property shall be preserved.
Rehabilitation Standard #6: Deteriorated historic features shall be repaired rather
than replaced. Where the severity of deterioration requires replacement of a distinctive feature, the new feature shall match the old in design, color, texture, and other visual qualities
and, where possible, materials. Replacement of missing features shall be substantiated by documentary, physical, or pictorial evidence.
Rehabilitation Standard #7: Chemical or physical
treatments, such as sandblasting, that cause damage to historic materials shall not be used. The surface cleaning of structures, if appropriate, shall be undertaken using the gentlest
means possible.
Rehabilitation Standard #8: Significant archeological resources affected by a project shall be protected and preserved. If such resources must be disturbed, mitigation
measures shall be undertaken.
Rehabilitation Standard #9: New additions, exterior alterations, or related new construction shall not destroy historic materials that characterize the
property. The new work shall be differentiated from the old and shall be compatible with the massing, size, scale, and architectural features to protect the historic integrity of the
property and its environment.
Rehabilitation Standard #10: New additions and adjacent or related new construction shall be undertaken in such a manner that if removed in the future,
the essential form and integrity of the historic property and its environment would be unimpaired.
A rehabilitation of this historic structure would likely utilize the remaining materials
and division of space to rehabilitate the structure in a manner consistent with its transformation
into a multiple dwelling unit structure in the late 1930’s. This would retain the most historic fabric, while also keeping the structure consistent with the South Tracy/ South Black
Historic District’s period of significance (1872-1939).
Larger parcels did historically exist in the South Tracy/ South Black Historic District, though not in association with a residence.
The 1912 Sanborn Fire Insurance Map indicates that the Langhor Flowerland business owned a large parcel on the west side of the 200-300 block of South Tracy Avenue. This large parcel
provided space for the business’ extensive greenhouses. Other larger parcels are in reflection of the presence of a watercourse, as shown on the 1904 Sanborn Map. Once these physical
impediments were removed or ameliorated, regularly spaced residential development occurred.
A lengthy history of 430 South Tracy is available in Appendix H (link). As evidenced by
the history of the properties at 424, 430 and 436 South Tracy Avenue, a large yard area did not historically exist between 424 and 436 South Tracy Avenue. This development would not
restore a historic setting condition for the east side of the 400 block of South Tracy Avenue, as shown in the Sanborn Fire Insurance Maps of the area included with this Staff Report
in Appendix F (link).
The described subsequent development and treatment of the property is inconsistent with the Secretary of the Interior’s Standards for the Treatment of Historic
Properties. The proposed treatment of the site into a “yard like setting” is in direct contradiction with SOI Rehabilitation Standard 1, 2, 3, 4 and 9.
Staff finds that the application
does not satisfy this criteria.
B. Architectural appearance design guidelines used to consider the appropriateness and compatibility of proposed alterations with original design features
of subject structures or properties, and with neighboring structures and properties, shall focus upon the following:
The application materials propose grading and landscaping of the
property to create a “yard-like” condition subsequent to the demolition of the residence.
1. Height;
Not applicable.
2. Proportions of doors and windows;
Not applicable.
3. Relationship of building masses and spaces;
Please see additional commends below, under Criteria 38.16.050.C.
4. Roof shape;
Not applicable.
5. Scale;
Not applicable.
6.
Directional expression;
Not applicable.
7. Architectural details;
Not applicable.
8. Concealment of non-period appurtenances, such as mechanical equipment; and
Not applicable.
9. Materials and color scheme.
Not applicable.
Staff finds that the proposed development of a “yard-like area” is not appropriate or compatible in the context of the neighboring structures
and adjoining properties. Please see additional comments below, under Criteria 38.16.050.C.
C. Contemporary, non-period and innovative design of new structures and additions to existing
structures shall be encouraged when such new construction or additions do not destroy significant historical, cultural or architectural structures, or their components, and when such
design is compatible with the foregoing elements of the structure and the surrounding structures.
This application proposes demolition of the structure at 430 South Tracy Avenue. The
property is listed on the National Register of Historic Places as a contributing element of the South Tracy/ South Black Avenue Historic District, which has a period of significance
from 1872-1939. The nomination form for the South Tracy/ South Black Avenue Historic District is available here: http://www.preservebozeman.org/pdf/BozemanSouthTracy-SouthBlackHD.pdf
. The property’s 1984/86 Montana Historical and Architectural Inventory Form is attached to this Staff Report. An expanded history of 430 South Tracy Avenue is available in Appendix
H of this document.
Staff finds that the application proposes the destruction of a historically significant structure.
The nomination form for the South Tracy/ South Black Avenue Historic District describes
the district character as, “The South Tracy/ South Black Avenue Historic District consists of 93 diverse, vernacular houses lining S. Tracy and S. Black Avenues between Olive and Alderson
Streets, as well as a large school building, and a neighborhood grocery store. It is distinct from the two large, adjacent residential historic districts in Bozeman due to its greater
building density and its high concentration of significant architecture of generally more modest scale and ornamentation…”
The historic district boundary description and justification
speak to the district’s pattern of development. It says, “Bordering the entire western boundary of the modest scale, middle class South Tracy- South Black Historic District is the Bon
Ton Historic District, with its affluent spatial arrangement and larger houses. The alley between S. Willson and S. Tracy Avenues marks a clear visual break between the two districts,
which are distinctly different in character. To the east is S. Bozeman Avenue, a street that is similar in scale to this district but is not included within the boundaries of the South
Tracy- South Black Historic District due to loss of overall integrity.”
The introduction of a large vacant parcel would adversely affect the historic integrity of adjoining properties,
including the integrity of the South Tracy/ South Black Historic district’s setting of an “Overall, a continuous rhythm of regularly spaced houses along tree-lined streets acts as a
strong unifying element in the district.”
The alley between South Willson and South Tracy is an important demarcation of the change in neighborhood and Historic District. The residences
lining South Tracy, South Black and South Bozeman Avenues were developed in a modest manner, and with higher residential density, than those on South Willson, South Grand and South Third
Avenues (now in the Bon Ton Historic District).
1943 Sanborn Fire Insurance Map of the South Tracy/ South Black Historic District (highlighted in orange), and the Bon Ton Historic District (highlighted in green). Please note that
lines indicate ownership boundaries, not underlying lot lines.
This district also has a strong pattern of substantial structures at the “terminus” of an east-west street. South Tracy Avenue is the dividing line between Alderson’s Addition, to the
west, and Black’s Addition, to the east. Due to the alignment of these additions, West Story, West Koch and West Dickerson Streets “jog” about 100 feet to the south in Black’s Addition.
The demolition of one of these terminus houses would leave a visually jarring hole in the neighborhood’s character as one entered from West Story Street.
/
Staff finds that the proposed
development is not compatible with the foregoing elements of the surrounding structures. The proposed development would adversely affect the setting, feeling and character defining features
of the South Tracy/ South Black Historic District.
D. When applying the standards of subsections A-C, the review authority shall be guided by the Design Guidelines for the Neighborhood
Conservation Overlay District which are hereby incorporated by this reference. When reviewing a contemporary, non-period, or innovative design of new structures, or addition to existing
structure, the review authority shall be guided by the Design Guidelines for the
Neighborhood Conservation Overlay District to determine whether the proposal is compatible with any existing or surrounding structures.
The Design Guidelines have been incorporated into
the comments on the previous page addressing the architectural appearance design guidelines.
E. Conformance with other applicable development standards of this title.
Property is
presently zoned R-2, “Residential, Medium Density.” Given the parcel’s size and the presence of an alley to the west, the parcel could be developed with multiple dwelling units in a
manner consistent with the current City of Bozeman Municipal Code. If the parcel were totally vacant, and if all vehicular access were taken from the alley to the rear, a two-dwelling
structure could be developed as the principal use. An accessory structure with a second floor Accessory Dwelling Unit could be developed in addition to the two units in the principal
building, bringing the potential number of legal dwelling units on the property to three.
As outlined in the property history in Appendix H, the principal building has been used as
at least three dwelling units since 1937. The property, therefore, falls under Sec. 38.32.010 “Non Conforming Uses” of the Bozeman Municipal Code, which allows “Any use lawfully existing
upon the effective date of the ordinance from which this chapter or any predecessor title or code is derived may be continued at the size and in the manner of operation existing upon
such date except as hereinafter specified, or in the case of signage as specified in article 28 of this chapter.”
Given that a substantial modification to the building has not occurred,
there has not been a change of use sufficient to require the property to come into complete conformance with modern zoning code requirements. Three of dwelling units in the residence
are lawfully conforming to zoning code.
F. Tax abatement certificate of appropriateness applications are also reviewed with the procedures and standards established in chapter 2,
article 6, division 2.
The application does not request tax abatement.
Neighborhood Conservation Overlay District Review Criteria
Given the property’s location and listing on the National
Register of Historic Places, Chapter 1, Chapter 2, Chapter 3 and Chapter 5 should be used in reviewing any Certificate of Appropriateness for this property.
The Design Guidelines generally
anticipate new construction and do not provide an extensive list of guidelines for landscaping. The applicable guidelines have been included below.
Chapter 2. Design Guidelines for
All Properties
A. Topography
1. Minimize cut and fill on a site.
3. Minimize the visual impacts of cut and fill on a site.
B. Street Patterns
1. Respect historic settlement patterns.
D. Streetscape
1. Maintain the
variety of street paving designs.
2. Maintain the variety of sidewalk designs.
3. Continue the use of planting strips.
4. Continue the pattern of street trees in a block. Because street
trees serve various aesthetic and practical functions, they should be maintained.
E. Landscape Design
1. Preserve and maintain mature trees and significant vegetation within all corridors.
Chapter
3. Guidelines for Residential Character Areas
A. Hierarchy of Public and Private Space
1. Provide a front yard similar in character to its neighbors when possible.
2. Provide a walkway
from the street to the building.
3. Orient the front porch to the street.
4. Clearly define the primary entrance by using a front porch.
F. Fences and Retaining Walls
1. A new fence
should be in character with those seen traditionally.
2. A new retaining wall should be in character with those seen traditionally.
Chapter 5. District-Specific Descriptions
H. South
Tracy/South Black Historic District
1. Reflect the district character when building within the district.
Staff finds that the proposed modifications are inconsistent with the applicable
Design Guidelines.
Demolition or Movement of Structures or Sites Within the Conservation District - Section 38.16.080.
Given the property’s listing on the National Register of Historic
Places, the property is subject to review under item 1, 3, 4, 5, and 6 listed below.
A. The demolition or movement of any structure or site within the conservation district shall be subject to the provisions of this article and section. The review procedures and criteria
for the demolition or movement of any structure or site within the conservation district are as follows:
1. Applications for the demolition or movement of structures within the conservation
district will not be accepted without a complete submittal for the subsequent development or treatment of the site after the demolition or movement has occurred. The subsequent development
or treatment must be approved before a demolition or moving permit may be issued.
The application includes a written description of the subsequent treatment of the site, “to be landscaped
in a residential fashion.” As described in the review above, the proposed subsequent development does not satisfy the criteria for issuing a COA as found in Sec. 38.16.050 BMC
Staff
finds that the application does not satisfy this criteria.
2. The demolition or movement of conservation district principal and accessory structures or sites, which are designated as
intrusive or neutral elements by the state historical and architectural inventory, and that are not within recognized historic districts or in other ways listed on the National Register
of Historic Places, shall be subject to review per articles 19 and 34 of this chapter, and the standards outlined in 38.16.050. The state historical and architectural inventory form
shall be reviewed and, if necessary, updated by a qualified professional acceptable to the state historic preservation office to reflect current conditions on the site, prior to the
review of the demolition or movement proposal. The review authority for the demolition or movement of structures or sites described within this section shall be coordinated with the
larger project when demolition or movement is proposed in conjunction with a deviation, variance, conditional use permit or planned unit development application.
The application proposes
demolition of a structure classified as “contributing” to the South Tracy/ South Black Avenue Historic District, which is reviewed under Sec. 38.16.080.A.3 below. Therefore, this criteria
is not applicable to review of this application.
3. The demolition or movement of conservation district principal and accessory structures or sites, which are designated as contributing
elements by the state historical and architectural inventory, and all properties within historic districts and all landmarks, shall be subject to public notice. Notice shall be provided
in accordance with article 40 of this chapter.
The Department of Community Development issued the appropriate public notice for this project, as described in Appendix C.
4. Prior to any final action on the application the review authority shall receive a recommendation from the historic preservation office; and if the demolition does not conform to the
criteria below a recommendation from the historic preservation advisory board. The state historical and architectural inventory form shall be reviewed and, if necessary, updated by a
qualified professional acceptable to the state historic preservation office to reflect current conditions on the site prior to the review of the demolition or movement proposal. The
review authority for the demolition or movement of structures or sites described within this section shall be coordinated with the larger project when demolition or movement is proposed
in conjunction with a deviation, variance, site plan, conditional use permit or planned unit development application. The review authority shall base its decision on the following:
This
Staff Report serves as a recommendation from the Historic Preservation Officer (HPO).
The Bozeman Historic Preservation Advisory Board reviewed the item on June 19, 2014. The BHPAB’s
minutes are included in Appendix G of this Staff Report. The BHPAB declined to make a formal recommendation for this application during their June meeting because the third party cost
estimates were unavailable for consideration. The Department of Community Development received the needed cost estimate on August 12, 2014 and forwarded the information to the BHPAB
on August 14, 2014 with an invitation to further comment on the information.
The applicant updated the Montana Property Record Form to reflect current conditions on the site prior to
the review of the proposal. The updated Property Record Form asserted that modifications to the property have obliterated the property’s historic integrity. The Bozeman HPO asked the
Montana State Historic Preservation Office (SHPO) to review the updated Property Record Form and concur or object to the findings in the updated Property Record Form. The SHPO provided
comment on August 7, 2014, and agreed with the Bozeman HPO by saying that the modifications were made during the period of significance for the S. Tracy/ S. Black Historic District,
and thus do not adversely affect the property’s historic integrity. The SHPO’s letter is included as an attachment to this staff report.
The Director of Community Development is the
review authority for this project, per Sec. 38.34.010.B.
a. The standards in 38.16.050 (Criteria for a Certificate of Appropriateness) and the architectural, social, cultural and historical
importance of the structure or site and their relationship to the district as determined by the state historic preservation office and the planning department.
As identified in the review
above, the proposed development of the property does not satisfy the standards for issuance of a Certificate of Appropriateness found in Sec. 38.16.050 BMC.
As outlined in Appendix H, and verified by the Montana State Historic Preservation Office and the Department of Community Development, the property conveys historic significance for
its association with the residential development of South Tracy Avenue. The property’s historic integrity conveys an association with the closing years of the period of significance
for the South Tracy/ South Black Historic District, which is listed on the National Register of Historic Places. The property is also historically significant for its association with
Bozeman builder Andrew J. Svorkmoe.
b. If the review authority finds that the criteria of this section are not satisfied, then, before approving an application to demolish or remove,
the review authority must find that at least one of the following factors apply based on definitive evidence supplied by the applicant, including structural analysis and cost estimates
indicating the costs of repair and/or rehabilitation versus the costs of demolition and redevelopment:
1. The structure or site is a threat to public health or safety, and that no reasonable
repairs or alterations will remove such threat; any costs associated with the removal of health or safety threats must exceed the value of the structure.
The property has not been identified
by the City of Bozeman as a “public nuisance,” as defined in Sec. 16.02.040.A.4 BMC. The structure at 430 South Tracy has not been identified by the Chief Building Official as an unsafe
building as provided in section 116 of the International Building Code. The structure remains weather tight and secure.
2. The structure or site has no viable economic or useful life
remaining.
The application materials include an assessment of the value of the existing structure, which is placed at $124,000. The application materials include a cost comparison to
rehabilitate the existing structure, which the applicants estimate to be $323,000.
The application materials include an estimate of $22,000 to demolish the existing residence. The application
materials estimate construction of a new residence with the exact same square footage as $272,470 (2,477 square feet X $110 per square foot). The application estimates the total cost
of demolition and replacement to be $294,470.
A member of the Bozeman Historic Preservation Advisory Board, who recently rehabbed another Svorkmoe house at 702 South Grand Avenue,
questioned the $110/ square foot estimate for construction in downtown Bozeman. Unfortunately, objective and reliable factual data is unavailable which could give an average per square
foot cost for new residential construction in downtown Bozeman.
The Department of Community Development commissioned a third party verification of the costs to rehabilitate the existing
structure, which is included as an attachment to this report. The Director of Community Development has this authority under Sec. 38.34.020.B (BMC):
The planning director may in the
administration of this chapter consult with other persons having expertise in relevant subject areas as in the planning director's opinion is necessary
for the review of the proposed development or administration of the chapter. When an authority other than the planning director is assigned responsibility for a particular standard that
authority shall coordinate with the planning director in administration of that standard.
The third party contractor was provided the categories in which to provide an estimate, as well
as the structural engineering reports for the residence included in the application materials. The third party contractor was not provided with the applicant’s cost estimates, in order
to prevent undercutting of the estimate. The contractor visited the site with the City’s Chief Building Official, and was asked to provide two cost estimates. First, the contractor was
asked to estimate the cost to rehabilitate the existing structure into three or four dwelling units. Second, the contractor was asked to estimate the cost to rehabilitate the structure
into a Single Household Dwelling. The contractor’s estimate included a category for contracting fees, which is not included in the application materials. Staff has removed this number
from the following cost comparisons in order to ensure consistency in evaluation.
The third party cost estimate revealed a substantial difference in estimated costs to rehabilitate
the structure into a single household residence:
Difference between estimates to rehabilitate into a single household dwelling
Applicant's estimate
$ 323,000.00
Third party contractor's estimate
$ 277,000.00
Difference in estimates:
$ 46,000.00
A full breakdown of the estimated cost
is as follows:
Estimated costs to rehabilitate 430 South Tracy and bring the property fully up to code
Item
Applicant estimate
Third party estimate
Exterior partial demolition
$ 30,000.00
$ -
Interior demolition
$ 25,000.00
$
25,000.00
Lift and reset house
$ 20,000.00
$ 30,000.00
New foundation
$ 35,000.00
$
20,000.00
Brick restoration
$ 30,000.00
$ 37,000.00
Structural restoration
$
40,000.00
$ 38,000.00
Replace windows and doors
$ 30,000.00
$ 21,000.00
Interi
or work
$ 18,000.00
$ 20,000.00
Electrical and lighting
$ 25,000.00
$
24,000.00
Plumbing
$ 25,000.00
$ 26,000.00
Heating
$ 25,000.00
$
25,000.00
Insulation
$ 20,000.00
$ 21,000.00
Estimated cost to rehabilitate into three or four dwellings
$ 323,000.00
$ 287,000.00
Less cost to rehabilitate into a Single Household Dwelling
$
-
$ (10,000.00)
Estimated cost to rehabilitate into a Single Household Dwelling
$ 323,000.00
$ 277,000.00
Estimated cost of demolition
$ 22,000.00
N/A
Est. cost of new construction (2,477 square feet X$110/ squ')
$ 272,470.00
N/A
Total estimated cost of demolition and
replacement
$ 294,470.00
N/A
Cost to rehabilitate into three or four dwellings
N/ A
$ 287,000.00
Cost of demolition
and replacement
$ 294,470.00
$ 294,470.00
Costs difference to rehab. Into three or four dwellings
$
(7,470.00)
Cost to rehabilitate into a single household
$ 323,000.00
$ 277,000.00
Cost of demolition
and replacement
$ 294,470.00
$ 294,470.00
Cost difference for rehabilitation into a single household
$
28,530.00
$ (17,470.00)
This data indicates a cost savings of $17,470 to rehabilitate the structure into a single household dwelling that
is fully compliant with modern Building Code.
Given the property’s legally nonconforming status, it is possible to rehabilitate the existing multi-dwelling unit structure in a manner
consistent with Municipal Code. The data indicates a smaller cost savings of $7,470 to rehabilitate the structure as a multi-unit dwelling. This cost could be offset by the additional
rental income from multiple dwelling units.
Staff has not calculated the potential additional savings to a property owner who used the City’s Tax Abatement for Historic Preservation,
which is available to property owners who rehabilitate a property in an established historic district.
The cost estimates included in review of this application are to fully rehabilitate
the structure. Much less work may be necessary in order to rehabilitate the structure to the point of receiving an occupancy permit. Neither the applicant nor the contractor’s estimates
contemplate the cost associated with the removal of public health or safety threats.
Because the data shows the economic viability of fully rehabilitating the structure to a single
household dwelling, we conclude that the lesser extent of rehabilitation necessary to receive an occupancy permit would also be viable.
Staff finds this criteria is not met. Staff finds
that the cost of repair is less than the cost of demolition and reconstruction on the site. Staff finds that multiple avenues remain available to economically rehabilitate this historic
structure.
5. If an application for demolition or moving is denied, issuance of a demolition or moving permit shall be stayed for a period of two years from the date of the final decision in order
to allow the applicant and city to explore alternatives to the demolition or move, including, but not limited to, the use of tax credits or adaptive reuse. The two-year stay may be terminated
at any point in time if an alternate proposal is approved or if sufficient additional evidence is presented to otherwise satisfy the requirements of subsection 2 or 3 of this section.
Staff
recommends denial of the requested demolition and subsequent implementation of a two year stay of demolition. During the stay period, a number of alternate proposals could be submitted
which satisfy the criteria, including rehabilitation of the residence as a single or multi-household dwelling. Approval of any application found to meet the standards of the Municipal
Code would end the stay of demolition.
6. All structures or sites approved for demolition or moving shall be fully documented in a manner acceptable to the historic preservation planner
and administrative design review staff prior to the issuance of demolition or moving permits.
Under any circumstance which would lead to the demolition of the structure, documentation
shall be created prior to issuance of a Demolition Permit. The City’s established practice for documentation is to acquire any available drawing sets produced in relation to considering
rehabilitation of the structure as well as photographs consistent with a Historic American Buildings Survey, Level II. Please see Section 2 for additional information.
Should demolition
of the structure occur, Staff recommends that the residence be documented in a manner consistent with level II of the Historic American Buildings Survey.
FISCAL EFFECTS
No unusual fiscal
effects have been identified. No presently budgeted funds will be changed by this Sketch Plan Certificate of Appropriateness.
ATTACHMENTS
The full application and file of record can
be viewed at the Community Development Department at 20 E. Olive Street, Bozeman, MT 59715.
The applicant’s submittal materials and a digital copy of related documents are available
in the City’s Laserfische record management, by following this link:
http://weblink.bozeman.net/WebLink8/Browse.aspx?startid=64405&dbid=0
1984/86 Montana Historical and Architectural
Inventory for 430 South Tracy Avenue
Correspondence between HPO Kramer and the Montana State Historic Preservation Office regarding the updated Montana Property Record Form
Third party estimate of costs to rehabilitate
the structure
APPENDIX A – PROJECT SITE ZONING AND GROWTH POLICY
Zoning Designation and Land Uses:
The subject property is zoned R-2. The intent of the R-2 residential two-household
medium density district is to provide for one- and two-household residential development at urban densities within the city in areas that present few or no development constraints, and
for community facilities to serve such development while respecting the residential quality and nature of the area.
Adopted Growth Policy Designation:
The property is designated as
“Residential” in the adopted growth policy. This category designates places where the primary activity is urban density dwellings. Other uses which complement residences are also acceptable
such as parks, low intensity home based occupations, fire stations, churches, and schools. High density residential areas should be established in close proximity to commercial centers
to facilitate the provision of services and employment opportunities to persons without requiring the use of an automobile. Implementation of this category by residential zoning should
provide for and coordinate intensive residential uses in proximity to commercial centers. The residential designation indicates that it is expected that development will occur within
municipal boundaries, which may require annexation prior to development.
The dwelling unit density expected within this classification varies between 6 and 32 dwellings per net acre.
A higher density may be considered in some locations and circumstances. A variety of housing types can be blended to achieve the desired density. Large areas of single type housing are
discouraged. In limited instances the strong presence of constraints and natural features such as floodplains may cause an area to be designated for development at a lower density than
normally expected within this category. All residential housing should be arranged with consideration of compatibility with adjacent development, natural constraints such as watercourses
or steep slopes, and in a fashion which advances the overall goals of the Bozeman growth policy. The residential designation is intended to provide the primary locations for additional
housing within the planning area.
APPENDIX B – DETAILED PROJECT DESCRIPTION AND BACKGROUND
Project Description: The application proposes demolition of an existing residential structure
to enable the installation of landscaping on the lot and eventual sale of the parcel.
Project Background: An application requesting demolition of the structure was received in November 2013 and found to be unacceptable for review because the application materials were
incomplete. Specifically, the application materials lacked a full design for the subsequent development on the site, and the updated Montana Property Record Form needed revision. The
revised application materials were received on May 15, 2014.
APPENDIX C – NOTICING AND PUBLIC COMMENT
Public notice of the application was completed in conformance with Sec. 38.40 BMC.
A notice was posted on site, posted on the City’s website and emailed to the Inter Neighborhood Council.
The Department of Community Development received no public comment on the application
at the time this Staff Report was drafted.
APPENDIX D - OWNER INFORMATION AND REVIEWING STAFF
Owner: GHT Investments, LLC, 424 South Tracy Avenue, Bozeman, MT 59715
Representative:
Intrinsik Architecture, 111 North Tracy Avenue, Bozeman, MT 59715
Report By: Courtney Kramer, Historic Preservation Officer/ Planner I
APPENDIX E- SANBORN FIRE INSURANCE MAPS FOR 430 SOUTH TRACY AVENUE
Sanborn Fire Insurance Maps indicate the evolution of a building’s footprint over time. Colorized versions of the map
indicated materials used in construction which would arrest or feed a fire.
/
/
/
/
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APPENDIX F- SANBORN FIRE INSURANCE MAPS FOR THE S. TRACY/ S. BLACK HISTORIC DISTRICT
The 1904 Sanborn Fire Insurance Map shows the footprint of strucutres along South Tracy Avenue.
It also indicates the change in neighborhood character that occoured in the alley between South Tracy and South Willson Avenues. Residences along South Willson Avenue developed at a
lower density than those along South Tracy and South Black Avenues.
/
The 1912 Sanborn Fire Insurance Map shows the increase in residential construction along South Tracy Avenue between 1904 and 1912, especially between the West Koch Street terminus and
the West Story Street terminus. Residences along South Willson Avenue continued to be developed at a lower density than those along South Tracy and South Black Avenues.
/
The 1927 Sanborn Fire Insurance Map shows the continued residential construction along South Black, South Tracy and South Willson Avenues.
/
The 1943 Sanborn Fire Insurance Map shows the footprint of strucutres in what is now the South Tracy/ South Black Avenue Histoirc District four years after the end of the district’s
period of significance (1872-1939). Homes along Willson Avenue are now part of the Bon Ton Historic District, which has a similar period of significance, but is a distinct district due
to the scale of residences and their yards constructed in the Bon Ton District.
/
APPENDIX G- HISTORIC PRESERVATION ADVISORY BOARD MINUTES FOR JUNE 2014
Minutes of the June 19, 2014 meeting Members Present: Lora Dalton, Lisa Verwys, Jessie Nunn, Steven Keuch, Jillian
Bowers, Mark Hufstetler, Ryan Olson, Matthew Kennedy, Courtney Kramer (Staff Liaison)
Members Absent: Bryce Ledbetter
Call to order- meeting was called to order at 6:33 pm
Approval of
prior minutes- Minutes from April were unanimously approved as presented
Public comment- none
Ex parte communication- none
Invited Guests
Board applicants Merri Ketterer and Michelle
Morgan attended
Rob Pertzborn representing demolition project at 430 S. Tracy
Rachel Theising- recently purchased home at corner of Willson & Koch
Action Items- board discussion of Application
Z14090, COA proposing demolition of residence at 430 S. Tracy
Staff Liaison (CK) introduction
residence is in S. Tracy/S. Black Historic District
has been unoccupied for 7-8 years
unclear
when the home was divided in to apartments
Comments from project representative (RP)
Residence is a brick home with poorly done addition, carved into apartments
Owner (George Talbot)
would like to see a new home constructed that fits the character & rhythm of neighborhood and is willing to put restrictions on sale to that effect
Board discussion
JB- $110/square foot
is not representative of costs of historic detailing, increase in cost would affect demolition calculations
LV- request for clarity regarding historic significance of structure. CK-
residence is a contributing structure listed in National Register. Applicant provided updated inventory form determining that the structure is no longer contributing, but city opinion
does not agree with this determination.
MH- residence would still qualify as contributing home. Concerned that owner purchased residence and left it unoccupied, allowing it to continue
deteriorating Engineering report not quantifiable and based on a walk through; engineer or builder with more historic experience would likely come to a significantly different conclusion.
Economic conclusions are not specific which is problematic. City should develop a mitigation policy for contributing properties.
JN- concurs that structure is contributing. An open lot
can’t replicate the character of the residence.
JB and LD question why owner would purchase property and allow it to fall into neglect. LD- some neglect comes from lack of city policy
protecting historic structures. MK- demo by neglect not necessarily malicious and may have happened regardless of occupancy.
Board requests to see third party cost analysis. No recommendations
from the board at this time.
Committee Reports
Preservation awards (May 2015) will need new chair/new committee. RO will email LD the current plans for the awards.
Chair’s Report
Board
membership
JN and RO will not be returning to the board, the board thanks them for serving.
New appointments and reappointments will go before the city commission on July 7. The board
should continue thinking about leadership and governance.
Staff Liaison Report
Working with city web developer on preservation website, planning on August completion
Walking tours (Extreme
History Project) are going well
B3 survey going well
Emerson Cultural Center has declined SAT funding. The Masonic organization is interested in rehabilitating their building, may be
able to take advantage of SAT funding and tax credits for historic preservation. They are working with Lesley Gilmore and with the city.
Meeting adjourned at 7:50.
End of Minutes
Secretary:
Lisa Verwys
APPENDIX H- HISTORY OF 430 SOUTH TRACY AVENUE
This application proposes demolition of the structure at 430 South Tracy Avenue. The property is listed on the National Register of Historic
Places as a contributing element of the South Tracy/ South Black Avenue Historic District, which has a period of significance from 1872-1939. The nomination form for the South Tracy/
South Black Avenue Historic District is available here: http://www.preservebozeman.org/pdf/BozemanSouthTracy-SouthBlackHD.pdf . The district’s National Register nomination lists the
property as a vernacular residence constructed sometime between 1898 and 1904.
Deed records indicate that Bozeman contractor Andrew J. Svorkmoe built 430 South Tracy Avenue in 1902-1903.
Homes
built by Andrew J. Svorkmoe
Census records indicate Svorkmoe was born in Norway on July 17, 1851 and immigrated to the United States sometime between 1878 and 1881. He married fellow
Norwegian immigrant Mary in 1893. A mason by trade, Svorkmoe acted as the general contractor for a number of Bozeman residences. An obituary published after Svorkmoe’s death in 1925
noted, “He had built a great many houses in Bozeman during his residence here and was a hard working man. He remarked to one of his neighbors recently that he had built more than 60
houses in Bozeman. A man who has known him many years says he built nearly 80 houses here.”
In addition to acting as the general contractor, deed records indicate that Svorkmoe built
a number of residences as speculative investments. On November 11, 1898, Svorkmoe paid $150 for lots 17 & 18 of block 8 of the Fairview Addition to Bozeman, otherwise addressed as 608
South Grand Avenue. Svorkmoe constructed a brick residence which he sold to W. S. Davidson on January 21, 1899 for $1,500. This residence was listed on the National Register of Historic
Places as a contributing element in the Bon Ton Historic District. The residence was dismantled in 2008 following a lengthy demolition process which began in 2007.
Deed records indicate
that Svorkmoe owned three other properties on the east side of South Grand Avenue, on which he constructed residences between 1899 and 1901.
/
608 Souyth
608 South Grand Avenue, constructed by A.J. Svorkmoe in 1898-99. Dismantled 2008. The porch was removed prior to this photograph.
/
702 South Grand Avenue, constructed
by A.J. Svorkmoe in 1900, prior to extensive remodel in 2013. This house retained the original porch’s footprint, though is missing some components.
/
622 South Grand Avenue, built by A.J. Svorkmoe in 1900. The residence retains its original porch, which Svorkmoe likely repeated on other residential projects.
All of the homes thus
far attributed to Svorkmoe during this time period fit within the Colonial Revival style. According to A Field Guide to American Houses, the asymmetrical roof form was particularly popular
between 1880 and 1910. McAllester wrote, “About 10 percent of Colonial Revival houses have asymmetrical facades, a feature rarely seen on their Colonial prototypes. These asymmetrical
examples range from rambling free-form houses resembling the free classic Queen Anne style to simple boxes with asymmetrical window or porch arrangements. Prior to 1900 this subtype
accounted for about one-third of all Colonial Revival houses.”
Most of Svorkmoe’s residences were built of brick, and generally built in pairs or within a few lots of each other. It
appears the Svorkmoe built variations of the same floorplan, with small modifications to suit the site, such as mirroring the floor plan to address a street corner. Those that retained
their original porch design have a full width front porch, with a hipped porch roof and gablet above the porch entrance to shed water away from the walkway. This porch design is so ubiquitous
on Svorkmoe’s homes of the era, it’s logical to conclude that this is the original porch design for 430 South Tracy Avenue.
Construction of 424 and 430 South Tracy Avenue
Walter Cooper,
an influential entrepreneur and real estate developer, owned Lots 14, 15, 16, 17 and 18 of Block F of Hoffman’s Addition in the spring of 1902. On April 10, 1902,
Cooper sold Lots 17 & 18 to Bozeman builder Andrew J. “A.J.” Svorkmoe for a price of $200.
On May 23, 1902, Cooper sold Svorkmoe lot 16 of Block F of Hoffmans for $100. The same day,
Svorkmoe turned around and sold the property to J.V. Bogert for $1,700. Bogert was elected as Bozeman’s first Mayor, and served a number of terms, including from 1897-1899, 1891-1892,
1887-1890 and 1883-1885.
The increase in cost for the property likely reflects some kind of arrangement between Cooper and Svorkmoe, whereby Svorkmoe had constructed a residence on
the parcels. Bogert presumably wanted lot 16 in order to increase his yard area, and for some reason chose to route the purchase through Svorkmoe rather than buy directly from Cooper.
/
424 South Tracy Avenue. Built by A.J. Svorkmoe in 1902 and sold to first owner J.V. Bogert in 1902. Demolished 2006.
In 2006 the Department of Planning issued approval George Talbot,
who also owns 430 South Tracy, to demolish the structure at 424 South Tracy Avenue, which had been turned into a two-dwelling unit property. The COA approval enabled demolition of the
the two-dwelling unit property and construction a single household dwelling with accessory structure and accessory dwelling unit on May 1, 2006.
On September 22, 1902, Cooper sold
Svorkmoe the property immediately to the south of 424 South Tracy Avenue. Svorkmoe again paid $200 for the two lots. Svorkmoe must have
constructed the present structure at 430 South Tracy Avenue between September 1902 and July 1903, as he sold the property to Ida Kelly for $2,600 (with a mortgage of $1,700) on August
1, 1903.
/
The residence at 430 South Tracy is larger than Svorkmoe’s similarly-designed homes built on South Grand Avenue at this time. Where the South Grand homes had living space
to only one side of the entry, the South Tracy home has living space to either side of the entry. The house’s footprint is consistently of this size, which indicates that 430 South Tracy
was among Svorkmoe’s larger construction projects of this era. This may explain why the Kellys paid more for the residence than other Svorkmoe buyers.
/
Svorkmoe is also accredited as the builder of four residences in the Cooper Park Historic District, including 221 and 224 South 6th Avenue, both of which were built of brick the Colonial
Revival and Queen Anne styles, respectively. A complete survey of buildings constructed by Svorkmoe has not been completed at this time.
First owners of 430 South Tracy Avenue
James
N. Kelly was born in Wisconsin in March 1844. Ida Kelly was born in Wisconsin in April 1855. The date and place of their marriage is unclear, however, the 1885 Minnesota State Census
finds them in Owatonna Township, Steele Minnesota, with their daughter Grace (age 9), son James Clifford (age 6), and daughter Lucy (age 1 month). A third daughter, Helen, was born in
Minnesota in 1886. It’s unclear when the Kellys arrived in Montana.
The 1904 Polk Directory gives James Kelly, a receiver for the US Land Office, as the occupant of 430 South Tracy Avenue.
By 1908, the Polk Directory listed JN Kelly & Son as sheep ranchers with 709 acres with an assessed value of $8,560 located along the Gallatin River west of Bozeman.
/
In addition to ranching and working on behalf of the Land Office, James N. Kelly filed a patent in 1909 for a combined step ladder and ironing board. He was awarded patent number
967,198, serial No. 517,927 for the device by the United States Patent office.
/
The 1910 census found Ida and James Kelly living in Bozeman’s 4th Ward, with their daughter Helen Kelly Wright, son in law Clark Wright and granddaughter Eloise Wright. The 1910 Polk
directory identified Kelly as a rancher but by 1912 he was working as a real estate agent.
The 1920 Census recorded Ida Kelly, age 64, and James Kelly, age 75, living in Ward 4 of Bozeman
with their granddaughter Jessie Webster. The census also noted that they owned the property. The Kelly family lived in the residence through at least 1922. The 1925 Polk directory notes
that James Kelly died on June 24, 1924. It’s unclear when or where Ida Kelly died. The Kelly heirs included son James Clifford Kelly, who lived in San Francisco, and daughters Grace
K. Webster and Hellen K. Wright, who lived in Seattle.
Conversion of 430 South Tracy to multiple dwelling units
The Polk directories indicate the use of the property as a rental with at least two units by 1929, when Beecher and Ocea Huffine,
as well as Gray and Stella Keene lived in the house. The Huffines may have rented or otherwise gained control of the property during this time period. A 1931 warranty deed transfers
claim to 430 South Tracy, as well as land in the City of Livingston, from Beecher to Ocea. This document may have been part of a divorce settlement, as Ocea moved into the property
in 1937 and by which time Beecher was remarried and living on East Mendenhall Street.
Ocea Huffine formally purchased the property from the heirs of James N. and Ida M. Kelly sold
on July 10, 1934. The selling price was $1, though the deed notes “This conveyance is made subject to any unpaid taxes or installments of assessments levied or which have become due
since the year 1925, and subject to any encumbrances or liens which second party many have suffered or permitted to attach to the said real estate and premises.”
Polk Directories indicate
that Ocea Huffine lived at 430 South Tracy between 1937 and 1940. Given the listing of Ocea and two other sets of tenants, it’s likely when the house was renovated into three units at
this time. Sanborn Maps indicate modification of the front porch between 1927 and 1943, a change which likely coincided with the application of stucco over the brick, as reported on
the 1984 Montana Historical and Architectural Inventory.
Deed records indicate that Ocea Huffine sold the property to Rae and May Whitmore on September 22, 1941. Deed indexes indicate
that the Whitmores owned a number of residential properties in downtown Bozeman, likely as rental investments.
A number of houses in the neighborhood were converted to multiple dwelling
units at this time, as indicated on the Sanborn Fire Insurance Maps. These modifications reflected the community’s changing economy during Bozeman’s Nationalization phase of development,
as outlined in the Bozeman Historic and Architectural Context (2008). Owners capitalized on a housing shortage cause by Bozeman’s steady economy by constructing new dwelling units
and remodeling existing larger homes to offer multiple apartments. The adjacent property, at 436 South Tracy, is identified as “4 Apts” on the 1943 Sanborn Map. In some cases, new multiple
dwelling unit structures were added on vacant parcels in existing neighborhoods, as at 305/ 307 South Tracy Avenue.
The modification of 430 South Tracy from a single dwelling unit into
a two dwelling unit occurred sometime between 1922 and 1927, and a third dwelling was added before 1937. These modifications all occurred within the South Tracy/ South Black Historic
District’s period of significance, and thus do not impinge upon the property’s historic integrity.
Residential Multiple Dwelling Unit zoning
In response to the tensions associated with increased density, the City of Bozeman adopted the community’s first zoning code in August of 1934,
with Ordinance 661. The property at 430 South Tracy was zoned an “Residential- A District,” which allowed single family residences and multiple family residences, with the caveat that
each dwelling unit offer at least 1,000 square feet of living area. Ordinance 661 also included a definition for a “Two Family Dwelling: A detached building having accommodations for
and occupied by not more than two families.”
The City continued to refine the zoning laws through the 1930’s. Ordinance 664, passed in December 1935, expanded the allowable uses in
the “Residential- A District,” but maintained a requirement for 1,000 square feet per dwelling unit. Ordinance 665 introduced a definition for “Multiple Family Dwelling: A building designed
for, or occupied as the home of, two or more families living independently of each other.” This ordinance also listed “Apartment Houses” listed as an allowable use in “Residential- B
District,” but the ordinance failed to define Apartment House.
Ordinance 682, passed in July 1938, further clarified allowable densities in Residential districts. It included a definition
for Multiple Family Dwellings and Apartment Houses in A and B Districts. They were defined as, “A building designed for, or occupied as the home of two or more families living independently
of each other.”
Ordinance 682 also refined the definition of Multiple Family Dwellings in the R-A district. It introduced a sliding scale for the square footage requirement. Less square
feet per dwelling unit were required as the zoning moved from R-A to R-B to R-C and R-D.
Ordinance 699, passed in June 1940, was intended to clarify and distinguish between “Apartment
Houses” and “Multiple Family Dwellings.” This legislation included a definition for “Apartment House” as, “A building under one roof but divided into separated living accommodations
of one or more rooms for human occupation; access to any such apartment being from a hall or corridor for the common use of two or more tenants, and the building having one or more entrances
from the street or grounds for the common use of two or more, or all, tenants of the apartments, each apartment to be complete in itself and each with cooking equipment and bathroom
and toilet facilities.”
Ordinance 199 also included a definition for Multiple Family Dwelling: “A building of not more than four units under one roof, having two or more separate single
rooms or sets of rooms or apartments for human occupation, each set having a separate entrance from the street or from the grounds on which the building is erected; and each separate
living unit to be complete in itself, with separate cooking equipment, bathroom and toilet facilities.”
In this manner, the property at 430 South Tracy Avenue was in legal use as a
three-household dwelling by 1940. It’s unclear when the fourth dwelling, in the third floor on the rear of the building, was added. The walls in the stairway are a combination of lathe
and plaster
construction and Masonite wallboard. Lathe and plaster generally went out of use in the late 1940’s. Sanborn Fire Insurance Maps of 430 S. Tracy, included in Appendix E of this document,
indicate a different footprint at the rear of this structure in almost each intervening map.
The property at 430 South Tracy changed ownership a number of times through the middle 20th
century. Multiple tenants are listed in Polk Directories of the era, indicating a continuous use of the property as three or four rental until its purchase by GHT Investments in 2006.
Listing on the National Register of Historic Places
In 1984 the City of Bozeman partnered with the Montana State Historic Preservation Office to conduct a cultural resource survey
of about 2,000 properties in Bozeman. The initial survey used the Montana Historical and Architectural Inventory Forms to record each property’s historic significance, date of construction
and create an architectural description of the primary structure on each property. Accessory structures were sometimes mentioned but not recorded in detail.
The 1984 Inventory describes
the structure at 430 South Tracy Avenue as a “detached two-story single family residence” with “an ell-shaped plan with an open, shed roofed front porch supported by wooden posts and
with a gablet. The two-bay façade is asymmetrical and consists of an off-center front entrance with fixed and 1/1 double-hung windows. Two pair of 1/1 double-hung windows are featured
in the upper level, one pair in each bay. The frame construction is finished in brick veneer and wood shingles. The cross-gable roof is covered with asphalt shingles and features a front-facing
shed-roofed dormer with overhanging eaves. There are two brick chimneys on the ridgeline.”
Each Inventory included a small photograph taken on film. The film archives, unfortunately,
are not extant.
/
The 1984 Inventory must have recorded the property in the early spring of 1984, before modifications to the front porch were completed. A Building Permit was issued on May 30, 1984 to
“remodel present 4-plex, new porch and steps, minor work as needed.” This is likely when the current front porch, which matches the footprint shown on Sanborn Maps between 1904 and
1927, but not the 1943 Sanborn Map, was “reconstructed.” This porch remains on the structure’s west (front) façade.
/ /
Beginning in 1986, the 1984 Inventory data was used to develop
new historic district nominations to the National Register of Historic Places. Using the Federal standards created in the National Historic Preservation Act of 1966, an architectural
historian expanded the 1984 data by creating a historic context for the area’s history, identifying the geographical boundary of a historic district and by researching the history of
each property in a potential historic district. In most cases, the additional data was typed directly on the 1984 Inventory forms, as evident by the change in type face.
As part of
the South Tracy/ South Black Avenue Historic District nomination, the contract architectural historian Matthew Cohen wrote, “This well-preserved vernacular house is an important element
in this contiguous historic streetscape. The stucco was probably applied around 1930.”
Cohen further recorded, James N. Kelley, a receiver for the US Land Office and later a real estate
salesman, was probably the original occupant here, listed at this address from about 1904 to 1916. In 1927, Grace B. Cobler, a “helper” employed by Mrs. Collie Rogers, who ran a cafeteria
at 33 South Black, was living here.”
The City of Bozeman’s Building Department issued a Building Permit for 430 South Tracy to James Cowan, for electrical work, in 1997. A permit
was issued to the Olson Family Limited Partnership in 2005 for a new roof. The last permit was issued in 2006 to Stuart
Mitchell, on behalf of the current owner George Talbot, for the demolition of a shed at the rear of the property.
In 2013, the Department of Community Development approved a Subdivision
Exemption for Boundary Line Adjustment which moved the property line between 424 and 430 South Tracy Avenue six feet to the south. This modification had no impact on the residence’s
historic integrity; the original setting, design and location for the residence were not adversely affected.
WORKS CITED
Bozeman Daily Chronicle. "Andrew J. Svorkmoe Building Contractor
Died at Hospital." Bozeman Daily Chronicle, January 27, 1925: 4.
Bozeman Department of Community Development, 20 East Olive Street, Bozeman, MT. "Certificate of Appropriateness Application
Z06038." Bozeman, May 1, 2006.
Bozeman, City of. "Ordinance 661." Zoning ordinance. 1934.
—. "Ordinance 664." Zoning Ordinance. December 1935.
—. "Ordinance 682." Zoning Ordinance .
July 1938.
—. "Ordinance 699." Zoning ordinance. July 1940.
"Building Permit: 430 South Tracy Avenue." Bozeman, Montana: City of Bozeman, 1984.
"Buliding Permit: 430 South Tracy Avenue."
Bozeman: City of Bozeman, 1997.
Clerk, City of Bozeman. "Mayors, Commissioners and Council Members of the City of Bozeman." 2014.
"Demolition Permit: 430 South Tracy Avenue." Bozeman:
City of Bozeman, 2007.
Kelly, James N. Combined Ironing-Board and Step Ladder. United States Patent 517,927. August 16, 1910.
MacDonald, James. "Montana Historical and Architectural
Inventory: 430 South Tracy AVenue." Cultural Resource survey, Bozeman, 1984.
McAlester, Virginia Savage. A Field Guide to American Houses, Secon Edition. New York: Knopf, 2014.
Polk.
"1900 Polk Directory for Bozeman, Gallatin County, Montana." 1900.
Polk, R. H. "1904 Bozeman [Montana] City Directory; Including Gallatin County." 1904.
—. "1908 Bozeman [Montana] City
Directory; Including Gallatin County." 1908.
R.H. Polk. "1925 Bozeman [Montana] City Directory; Including Gallatin County." 1925.
—. "1929 Bozeman [Montana] City Directory; Including
Gallatin County." 1929.
R.H. Polk. Bozeman [Montana] City Directory; Including Gallatin County. City Directory, Bozeman, Montana: R. H. Polk, 1937-38.
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