Body
Department of Community Development
Reference: Downtown Historic District
To: Mayor Richard N. McLean and Members of City Council
Through: Holly Prather, AICP, Community Development Director
Marv Falconburg, AICP, Assistant City Manager of Development
Philip Rodriguez, City Manager
Prepared By: Aja Tibbs, Long Range Planner
Jolie Diepenhorst, Historic Preservation Coordinator
Date Prepared: November 21, 2017
PURPOSE
In order to proceed with the designation of a downtown historic district, the City Council shall review the nomination and application for designation as a historic district, conduct a public hearing, and approve an Ordinance for designation.
BACKGROUND
Staff’s initial involvement on this project began when several business owners within the Downtown Partnership requested additional information regarding the formation of a downtown business district. At that meeting, staff presented the basic requirements for establishing a district, some recommendations on how it might be pursued, and the basic outcomes of a local historic district (benefits and restrictions). In response, the group committed to create the application and gather ownership consent, if the city staff would support them with assistance in drafting design standards. The standards will provide an outline for how the properties will be regulated upon the establishment of the district.
Based on this discussion, staff drafted an ownership consent form which listed all of the current property owners within the proposed district boundary, as well as an informational pamphlet that addressed common questions regarding the formation of the proposed downtown district. A copy of the pamphlet has been attached for reference.
Application
On June 13, 2017 staff received an application for the proposed Downtown Historic District, submitted by Mr. Wayne Scott. The application included an ownership consent form, providing 52% of property owner consent within the proposed boundaries. The prospective district will include the first two blocks of Main Street north of Bridge Street. The boundaries of the proposed district are Bridge along the south, Cabbage Avenue along the east, Freedom’s Way along the north, and 1st Avenue along the west. A map of the proposed district and the established consent forms have been attached for reference.
CRITERIA BY WHICH COUNCIL MUST CONSIDER THE ITEM
Sections 17-52-30(a) and 17-52-30(b) of the Land Use and Development Code set forth the process and requirements for designating a local historic district. Section 17-52-30(a) establishes the categories of significance that a property may qualify as a historic resource, and section 17-52-30(b) establishes additional criteria required for establishing a historic district.
HISTORIC DISTRICT SUMMARY
Overview
The City of Brighton has long been recognized for its agricultural contributions to the state of Colorado, for its rich soil, and for its high yielding crops. However, Downtown Brighton is the heart of the city and for more than one-hundred years it has linked town and country together by providing citizens with a trade and commerce district. Rich with built heritage, the collection of historic buildings downtown connects residents, business owners, and visitors to the history of Brighton, while providing an exciting place to live and work. Preserving these resources is vital to set the stage for a dynamic future for the City of Brighton.
The downtown area features a variety of nineteenth century building types and architectural styles including Italianate one and two-story commercial blocks, single storefronts, and double storefronts with uses that incorporate retail and residential uses. The significance of the buildings tells the stories of Brighton’s history using architectural styles and details that demonstrate how architecture and culture have changed since its early inception. Preserving Brighton’s built heritage while providing opportunities to incorporate new life into the downtown area will promote investment, a walkable district, and potential for higher densities. Refer to the attached design standards for a full historic account of the evolution of downtown Brighton.
Period of Significance
Based on the historic context of the area proposed to make up the Downtown Historic District, the period of significance for the district will be 1880-1945. Two types of architectural style are prominent in the commercial downtown area: “one-part commercial blocks” or “two-part commercial blocks.” Both building types originated in the 19th century and generally exhibit an Italianate style. However, many buildings from this era feature various styles not related to Italianate. The one-part commercial block can exhibit several types of facades including: a single storefront building with one entrance; a double storefront with two or more entrances; a corner building with a diagonal entrance and an entrance on each side. The façade generally features a recessed entrance, large display windows with kick plates; and window and door transoms. The roof is generally flat and the roofline typically features one or more of these elements: ornate cornices, brackets, decorative panels, parapets, or finials.
Building Analysis
Historic assessments were performed of each building by comparing the existing building with each of the categories of significance (Section 17-52-30(a)). A table which demonstrates each building within the proposed district, how it meets the criteria, and the resulting category of significance required for each building within the proposed district has been attached. Staff found that thirty-two of the properties meet the exceptional significance category by being within the period of significance for the district, and meeting more than two categories of significance. Because the district has such significance within the community, all structures that date within the period of significance and have retained some historic elements are meeting at least two categories of significance. Only buildings which have retained a high level of integrity have been listed as complying with the architectural category of significance under criteria (1) c. Demonstrates superior craftsmanship or high artistic value.
Out of the forty-two properties within the proposed district, seventy-six percent (76%) of the properties qualify as having exceptional significance, which far exceeds the required twenty-five percent (25%) for exceptionally significant resources and the fifty percent (50%) requirement which demonstrates exceptional significance for a proposed district. Furthermore, only ten (10%) percent of the structures fall under the non-contributing category within the proposed district, which is also well below the maximum twenty-five percent (25%) requirement for non-contributing buildings.
Note: Refer to the attached Historic Preservation Commission Staff Memorandum which includes a detailed table of each property, and the categories of significance. Additionally, the attached Property Category List provides an image of each building, the category to which it has been assigned, the date of construction, and a list of the historic architectural elements that contribute to the district.
PUBLIC ENGAGEMENT AND INPUT
Public Meetings
Since receiving the application for the district, staff has worked with the business and property owners, and the general public to obtain feedback on the draft design standards, as per their request. During this process, three meetings were held. The first, was a presentation to the business and property owners at a Downtown Partnership meeting on July 27, 2017 (all property owners received a mailed invitation to attend). At this meeting staff provided a brief background of the district history, invited a guest speaker to discuss the benefits of a district, and obtained initial feedback on elements to be included in the district. On August 9, 2017, staff held a public open house where similar information was provided. In addition to the public open house, staff created a video about the proposed historic district which invited general feedback and participation. Lastly, staff held another meeting with the business and property owners to review the proposed draft standards, and receive feedback on each of the draft elements within the standards. A summary of the feedback received from all three meetings has been attached for reference.
Draft Design Standards
The formation of a historic district does not require the formal adoption of design standards. However, the property and business owners have requested that a set of standards be adopted with the formation of the proposed historic district in order to further clarify and outline what types of improvements will be acceptable within the district. Through the engagement and feedback process previously described, staff has drafted design standards which generally include the following:
1) Historic Context of the Downtown Historic District
2) Description of the Period of Context and its purpose within the district formation
3) Property Category List - category classification for each property within the district
4) Design Standards for each property category - the following elements are addressed
a. Alterations to existing properties
i. General Standards
ii. Colors
iii. Materials
iv. Storefronts (general, entrance, windows, cornices and parapets)
v. Existing Additions
vi. Awnings, Signage, and Public Art
vii. Interior
viii. Energy Improvements
b. New Construction (including additions)
c. Accessory Structures
d. Optional Restoration
5) Supplemental Information
a. Historic preservation briefs
b. Sustainability of preservation
Public Hearing Notice
Notice of the public hearing regarding the nomination of the Downtown Historic District was published in the Brighton Standard Blade no less than fifteen (15) days prior to the date of the public hearing (published 11/15). Secondly, notice of the public hearing was mailed to all building owners within the proposed district not less than fifteen (15) days prior to the date of the public hearing (mailed 11/14). Though not required by code, staff additionally posted two public hearing signs on the south and north sides of the district fifteen (15) days prior to the public hearing (posted on 11/16). As of the date this report was published, staff has not received any formal public comments for this hearing.
HISTORIC PRESERVATION COMMISSION
Staff presented this application request before the Historic Preservation Commission at a public hearing on November 9th, 2017. After hearing testimony from the public, staff and the applicant, the Historic Preservation Commission made a recommendation to the City Council for approval of the proposed downtown historic district, and the draft design standards. The HPC Resolution 17-03 is attached for reference without exhibits. Exhibits to the approved Resolution are attached separately to this staff report and remain unchanged from the drafts reviewed by the Historic Preservation Commission.
STAFF RECOMMENDATION
Staff has found the proposed Downtown Historic District to be in compliance with the requirements of the Land Use and Development Code. The application for the downtown historic district meets the minimum requirements for ownership consent, and has established a proposed boundary which complies with the requirements of historic significance within the proposed district as outlined in Section 17-52-30.
OPTIONS FOR COUNCIL CONSIDERATION
• Approve the Ordinance as drafted;
• Approve the Ordinance with specific changes; or
• Deny the proposed Ordinance with specific reasons for the denial
ATTACHMENTS
• Downtown Brighton Colorado Historic District Pamphlet
• Ownership Consent for the District (Original & Added Signature)
• Ownership Consent Property Map
• Property Category List
• Public Feedback Summary
• Draft Design Standards
• Historic Preservation Commission Staff Memorandum (w/out exhibits)
• Historic Preservation Commission Resolution 17-03 (w/out exhibits)
• Draft City Council Ordinance