Department of Community Development
Reference: Pioneer Cemetery Historic Landmark Designation
To: Mayor Gregory Mills and Members of the City Council
Through: Michael P. Martinez, City Manager
Prepared By: Emma Lane, Senior Planner - Historic Preservation
Date Prepared: October 18, 2022
PURPOSE
To consider the designation of Pioneer Cemetery as a historic landmark. In order to proceed with the designation of this property as a historic landmark, the City Council shall review the nomination and application for designation as a historic landmark, conduct a public hearing, and approve an ordinance for the designation of the property as a historic landmark.
The Land Use & Development Code (the “LUDC”) outlines review criteria upon which the decision should be made. An ordinance to designate the site must be approved by City Council at two readings. City staff collects and analyzes application materials, and after a thorough review, presents their findings to the Historic Preservation Commission and, thereafter, City Council. Requests to nominate a historic landmark are brought before the Historic Preservation Commission for their recommendation prior to review and final determination by the City Council.
STRATEGIC FOCUS AREAS
● Recognizable and Well-Planned Community
● Facilities, Amenities, and Open Space
BACKGROUND AND HISTORY
The subject property was originally owned by James Blundell, a friend and business partner of Thomas Donelson. At the time of the gold rush, the Blundell and Donelson families made their way to Colorado from the Midwest. In 1860, James Blundell staked claim on the N ½ of the NW ¼ of Section 13 while Thomas Donelson staked claim in the S ½ of the NW ½ of Section 13 and the SW ¼ of Section 13. Mary Blundell, who died in 1863 was the first burial in the nearby cemetery. One year later, Laura Donelson died and was buried in the same cemetery. During this time, Mary E. Black owned the cemetery. There is no record of the transition of ownership from the Blundell family to Mary Black. In 1891, she sold the cemetery to Thomas Donelson. The land was officially annexed into the City in 1987. There is little documentation of the ownership of the property from 1891 until 2002. The James and Hattie McCoy family, descendants of Thomas Donelson, sold the cemetery land to the City of Brighton for $10.00 in 2002. At that time, a fence was placed around the property and a plaque was installed.
There is question about how many deceased people are actually interred in Pioneer Cemetery, but the known burials are as follows: Mary Laura Gillham Blundell (1823-1863), Laura Aiken Donelson (1827-1864), James E. Donelson (1860-1869), James Blundell (1815-1884), Louisa M. Talbot (1854-1893), Mary A. Donelson (1838-1905), Mary Blundell Carlson (1871-1905), Mrs. Belle Houle (died 1906), William Blundell (1843-1911), Mary M. Blundell (1852-1917), Pearle L. Houle (died 1918), Hugh Blundell (1880-1918), Julius Houle (died 1926), Hugh McMillan (1919-1933), Alice McMillan (1891-1935), and William T. Donelson (1834-1935).
The City of Brighton submitted a nomination application for the Pioneer Cemetery, addressed as 1633 West Bromley Lane, as a historic landmark. The owner of the property is the City of Brighton, and it have consented to the nomination of the structure as a historic landmark.
CRITERIA BY WHICH THE CITY COUNCIL MUST CONSIDER THE ITEM AND STAFF ANALYSIS
POLICY AND INTENT OF SECTION 10.03 OF THE LUDC:
Policy. It is the Policy and intent of the City Council to protect and enhance the use of cultural resources having historical and architectural significance for the City’s cultural, artistic, environmental, social, economic, political, architectural, historic or other heritage.
Intent. This Section is intended to promote the public health, safety and welfare of the citizens of the City while also providing for the orderly and appropriate preservation, protection, development and redevelopment of cultural resources, including historically significant properties, structures and districts in the City. It is also the intent of this Section to create a reasonable balance between private property rights and the public interest in preserving the City's unique historical character.
● Part of the community since 1863, the Pioneer Cemetery has been a constant in the midst of a growing City. Protecting the cemetery will allow future generations to explore and appreciate the heritage of the area’s first settlers. Designating the City-owned property advances the policy and intent of this section of the Land Use & Development Code.
COMPREHENSIVE PLAN:
The future land use portion of Be Brighton, the Comprehensive Plan, has designated the Property as Parks & Open Space, which is consistent with the current and future use of the land as an historic cemetery.
The proposed historic landmark designation meets other policies and strategies of the Comprehensive Plan. Under Chapter Two: Current Context and Values, Heritage is the first. The section states that the historic properties within Brighton, “...are a valuable resource that contribute to the fabric of the community and are an asset that the City should strive to retain…” The historic Pioneer Cemetery retains value not only in its heritage as the site of final rest for many of Brighton’s first settlers, but also in the architectural style of the headstones present, which changed over time from the first interred in 1863, to the last in 1935.
Within the Comprehensive Plan Chapter on ‘Citywide Principles, Policies & Strategies’, the proposed Historic Landmark Designation advances these goals:
Policy 9.2 - Educate Tourists and Residents on the Availability of Tourism Activities
● With help from the Parks and Recreation Department, the Pioneer Cemetery can be used as an educational tool and an attraction for residents and visitors. The cemetery will be a place where people can learn about the beginnings of Brighton and its early settlers, some of whom are buried there.
Policy 10.1 - Encourage and Support Historic Preservation and Reuse of Existing Structures
● The designation of the Pioneer Cemetery as a local historic landmark preserves the heritage of agriculture at the City’s beginnings, and also preserves the physical nature of the cemetery. The designation will encourage celebration of the City’s historic resources as a City-owned site, and will open the site up to historic preservation funding sources to maintain and preserve the history and the site.
LAND USE & DEVELOPMENT CODE:
10.03 B. 1. Historic Landmark Eligibility. An individual property may be designated as a historic landmark if it is at least fifty (50) years old and possesses historic and/or architectural significance. If the property is not at least fifty (50) years old, it must possess exceptional historic and/or architectural significance. The finding of historic and/or architectural significance requires that the property meets at least one (1) of the Eligibility Categories. To meet an Eligibility Category, at least one (1) of the criteria must be satisfied. In order to find that a property possesses exceptional historic and/or architectural significance, it must meet at least two (2) of the following Eligibility Categories. The criteria under which the Pioneer Cemetery is eligible are below:
a. Architectural Category: In order to be considered significant in the Architectural Category, at least one (1) of the following criteria must be met:
1. exemplifies specific distinguishing characteristics of an architectural period or style; or
■ The cemetery was active from 1863 to 1935. In this time, the design of headstones were changing. This can be seen in the change in design from those interred toward the beginning of the cemetery’s history to those interred toward its end, as well as the difference in design between the richer and poorer headstones.
2. is an example of the work of an architect or builder who is recognized for expertise nationally, state-wide, regionally or locally; or
3. demonstrates superior craftsmanship or high artistic value; or
4. contains elements of architectural design, detail, materials, construction or craftsmanship which represent a significant innovation; or
5. evidences a style particularly associated with the Brighton area.
b. Social and Historic Category: In order to be considered significant in the Social and Historic Category, at least one (1) of the following criteria must be met:
1. is the site of an historic event that had an effect upon society; or
■ This area of land, initially owned by James Blundell, was the burial ground for settlers between the years 1863 and 1935. The land was some of the first settled land in the area, and eventually aided in the creation of the City of Brighton.
2. exemplifies cultural, political, economic or social heritage of the community; or
3. represents a built environment of a group of people in an era of history; or
■ The site is representative of a group of people from a specific time. The Donelson and Blundell families, who were early settlers in the Brighton area, and were a great example of the westward expansion happening all over the west at the time.
4. has significant character, interest or value, as part of the development, heritage, or cultural characteristics of the City, State, or nation; or
5. has an association with a notable person(s) or the work of a notable person(s).
■ James Blundell, a pioneer and Black Hawk War veteran, and Thomas Donelson, a pioneer and Brighton Founding Father, are two examples of notable Brighton pioneers who are buried in the cemetery.
c. Geographic and Environmental Category: In order to be considered significant in the Geographic and Environmental Category, at least one (1) of the following criteria must be met:
1. enhances a sense of identity of the community; or
■ Brighton’s agricultural identity started in this area, which was originally settled as farmland along the river. The same agricultural identity still exists in Brighton, and is strengthened by the history of those who first farmed the area, some of whom are buried within the Pioneer Cemetery.
2. by being part of, or related to, a square, park or other distinctive area which should be developed or preserved according to a plan based on an historic, cultural, or architectural motif; or
■ As the land has functioned as a cemetery since before Brighton’s founding, this site should be kept and preserved as an historic cemetery.
3. is unique in its location of singular physical characteristics; or
4. possesses unique and notable historic, cultural or architectural motifs; or
5. is an established and familiar mutual setting or visual feature of the community.
■ As this land has been used as a cemetery since 1863, the site is familiar to all who have lived in and around Brighton since that time.
In regard to the above criteria, the Pioneer Cemetery meets more than the minimum requirements for historic designation.
STAFF REVIEW:
Applicable staff have reviewed this project and recommend approval.
Note: A complete list of comments and the agencies who made them are available upon request.
PUBLIC NOTICE AND INQUIRY
A mailing was sent to the property owner, as required by the Land Use & Development Code. The mailing was sent to the owner of the site on October 17, 2022, and included a letter describing the proposed historic landmark designation as well as the time and place for the public hearing. Also, included with the letter, was a map of the subject area. The same day, two signs were posted for the City Council Public Hearing on November 1, 2022, with one at the east side of West Bromley Lane, along the access easement, and another on the west side of the cemetery fence. A notice was published on the City’s website on the same day. As of the posting of this memorandum, staff has not received any formal inquiries regarding the project in anticipation of the public hearing. City staff will be publishing public hearing information on various forms of social media in the days leading up to the meeting.
HISTORIC PRESERVATION COMMISSION RECOMMENDATION
The Historic Preservation Commission heard the request on September 8, 2022, and recommended approval with a 4-0 vote with one (City Council Representative Ann Taddeo) abstaining. Please see the attached Resolution #22-01-HP.
SUMMARY OF FINDINGS AND STAFF RECOMMENDATION
Staff finds the Historic Landmark Designation is in general compliance with the requirements as outlined as approval criteria in Section 10.03 B. 1. Historic Landmark Eligibility, of the Land Use & Development Code and therefore recommends approval of the Historic Landmark Designation. Staff has drafted an ordinance for the approval if the City Council agrees with this recommendation.
OPTIONS FOR COUNCIL CONSIDERATION
The City Council has four options when reviewing this Historic Landmark Designation application. City Council may:
1.) Approve the Historic Landmark Designation via ordinance at first reading as drafted;
2.) Deny the Historic Landmark Designation;
3.) Approve the Historic Landmark Designation with changes to the drafted ordinance; or
4.) Continue the item to be heard at a later, specified date if the Council feels it needs additional information to ensure compliance with the approval criteria as set forth in the Land Use & Development Code.
Note: A second reading of the ordinance, if approved at first reading, will be required at a future meeting.
ATTACHMENTS
● Draft City Council Ordinance
● Aerial Map
● Nomination Application
● Nomination Questionnaire
● Copy of the Historic Preservation Commission Resolution #22-01-HP
● Property Owner Notification
● Sign Posting Affidavit and Posting Photographs
● Website Notice
● Website Publication Proof
● City Staff’s Draft Presentation