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HomeMy WebLinkAbout11-12-2013 b1 historic context statement FROM: Derek Johnson, Community Development Director Prepared By: Phil Dunsmore, Senior Planner SUBJECT: ADOPTION OF HISTORIC CONTEXT STATEMENT RECOMMENDATION As recommended by the Cultural Heritage Committee, adopt a resolution approving the Citywide Historic Context Statement document and find that the project is exempt from CEQA in accordance with Public Resources Code 15306. DISCUSSION Background Since March 22, 2012, the City has been enrolled in the Certified Local Government (CLG) program. The benefits of CLG status, beyond recognition of commitment to historic preservation, include assistance and advice from Office of Historic Preservation (OHP) staff, training and networking opportunities, and eligibility for Historic Preservation Fund grants. Shortly after CLG certification, staff moved quickly to obtain Cultural Heritage Committee and City Council support to apply for a grant to prepare a historic context statement. In July, 2012 the City was awarded a grant of $22,500 to assist with the preparation of the context statement. Historic context statements provide the foundation for preservation planning and are critical for understanding, identifying, and evaluating historic resources. Based on one or more themes, a geographical area, and periods of significance, context statements describe the broad patterns of historical development of a community or region that are represented by the physical development and character of the built environment; identify important associated property types; and establish eligibility criteria and integrity thresholds. Context based surveys make it possible to evaluate resources for land use planning purposes without needing to research each individual property. OHP encourages communities to prepare historic context statements as one of the primary components of a comprehensive historic preservation program. The CHC included the completion of the context statement as one of their goals for 2013-2015. Following receipt of the grant, the City reviewed proposals from qualified consultants and selected Historic Resources Group (HRG) as the consultant to prepare the context statement. HRG was selected because of their experience preparing historic contexts and their recent accomplishments in assisting the City of Paso Robles with a similar effort. A team of volunteers from the Cultural Heritage Committee, staff, student interns, and community residents assisted the consultants with the project. Since the grant requires a 40% match from the City, the staff and volunteer time contributed to the project qualifies as the “in-kind” match. Because the effort is tied to a grant, it Meeting Date Item Number November 12, 2013 B1 - 1 Historic Context Statement Page 2 must adhere to strict milestones and all of the work that was funded by the grant was to be completed within the grant period between October 1, 2012 and October 1, 2013. At their regular hearing on August 12, 2013, the CHC incorporated final edits to the document and recommended the Council endorse the Historic Context Statement following incorporation of the amendments from the consultant. On September 9th, the consultant completed the final draft which was delivered to OHP for final approval. The document has been posted on the City’s website at http://www.slocity.org/communitydevelopment/longrange.asp and is included in the Council Reading File. Historic Context Statement Description Context statements describe the broad patterns of historical development of a community that are represented by the physical development and character of the built environment; identify important associated property types; and establish eligibility criteria and integrity thresholds. The context identifies specific themes of development (with associated building types), social patterns, and significant historic aspects that are associated with the community. It is one of the key elements currently missing from the City’s historic preservation program. A thorough context statement will add a greater level of guidance to decision makers when determining the potential historic significance of properties. Although it is not a policy document, it is a valuable reference document to assist with understanding the components of local historic preservation. The document will act to help staff and the public determine what buildings or sites are historic and why. OHP has prepared a helpful description of context statements (Attachment 1). Workshops/Outreach Two public workshops and six public hearings before the CHC were held to gather information, build consensus and help outline the Historic Context Statement. The first workshop on February 6, 2013 was designed to introduce the project and gather broad information that was utilized to establish the project outline. The second workshop on May 6, 2013 utilized an outline and a draft context statement to gather additional comments and continue building the context. Both workshops were held at the Senior Center in Mitchell Park. A series of public hearings before the CHC were then utilized to continue the dialogue and discuss the details of the context statement. The context outline and each draft of the context were published on the City’s website to allow for continued collaboration and feedback. The final result is a context statement that has been built by community consensus, while utilizing state standards and a qualified consultant to tie it all together. The Document The context statement is intended to be a working document that is designed to help us understand the significance of the historic and architectural resources in the City by placing them within a thematic context and by describing their significant features. It is not intended to be a comprehensive history of the City of San Luis Obispo. Rather, its purpose is to highlight major trends and patterns critical to the understanding of the built environment. Ultimately, it is meant to serve as a guide to enable citizens, staff, and decision-makers to evaluate the relative significance and integrity of individual properties. B1 - 2 Historic Context Statement Page 3 The document is essentially divided into two categories, the first of which describes the broad historic overview and the general themes associated with the following specific timeframes: • Early history • Spanish Colonization and the Mission • Mexican Rule • Late 19th Century Americanization & Town settlement • Early 20th Century development • The Great Depression & World War II • Mid-20th Century Growth Under each of these themes, the document provides a brief history of events as well as photographic examples of typical property types, and a list of considerations regarding integrity and eligibility standards. The integrity considerations and eligibility standards will be utilized to evaluate properties and their significant features to determine their historic significance. The second major category of the document, “Architectural Character”, describes the historic architectural styles represented in the City that reflect each of the themes, including the origin of each style and a list of character defining features. Next Steps OHP is currently in receipt of the final version of the context statement that was endorsed by the CHC. Following OHP’s and City Council’s endorsement of the document, the document will be published for use by the Community Development Department and by the public. Copies will be available for purchase and published on the City’s website. Longer term, the context statement will be utilized to update and expand the information in the Historic Preservation Program Guidelines. ENVIRONMENTAL REVIEW Development of the Historic Context Statement is exempt from the California Environmental Quality Act (CEQA) under Public Resources Code 15306 (Information Collection) because development of the document involved collection of data and resource evaluation activities that did not result in any disturbance to an environmental resource. CONCURRENCES N/A FISCAL IMPACTS Historic Preservation was identified as a 2011-2013 Council priority “As Resources Permit” to “Continue to promote historic resource preservation opportunities and update The City’s Historic Resource Inventory.” Development of the context statement was funded by a $22,500 grant used for consultant assistance. Staff, community volunteers, interns and Cultural Heritage Committee B1 - 3 Historic Context Statement Page 4 members were utilized to meet the grant-required 40% “in kind” match. Approximately $9,000 in staff time paid by General Funds was dedicated to this project. At this time, the City has received all reimbursements associated with the grant and any additional work on this project (such as Council suggested edits to the document) can be completed by staff outside of the grant. Future alternatives for implementing the document such as amendments to the City’s Historic Preservation Ordinance, Historic Preservation Program Guidelines, or future historic surveys will need to identify alternate funding and dedicated staff time. These work items will be considered as the next Financial Plan is being developed. ALTERNATIVES 1. The context statement project has met the grant-funded requirements of the State Office of Historic Preservation however the City Council may suggest edits to the document. Specific direction to staff would need to be provided. 2. The Council may opt not to approve the Historic Context Statement. This action is not recommended because the City would need to return the $22,500 in grant funds to the state. In addition, many hours of advisory body and community work and input was dedicated to this project. Failing to approve the document would not respect the efforts by the community to develop this vital piece of the City’s historic preservation program. ATTACHMENTS 1. Guide to preparation of a Historic Context Statement by Marie Nelson 2. Resolution adopting Historic Context Statement AVAILABLE FOR REVIEW IN THE COUNCIL OFFICE Final draft of the Historic Context Statement \\chstore4\Team\Council Agenda Reports\2013\2013-10-01\Historic Context Statement (Johnson-Dunsmore)\Context Statement CAR (10-1-13).docx B1 - 4 Writing Historic Contexts Marie Nelson California Office of Historic Preservation As reiterated in the Secretary of the Interior’s Standards and Guidelines for Archeology and Historic Preservation, “the development of historic contexts is the foundation for decisions about the identification, evaluation, registration and treatment of historic properties, and surveys.” Well-developed historic contexts are critical. As you go about the work of researching and writing the themes and contexts, I encourage you to consider the following: • Historic context statements provide the basis for evaluating significance and integrity. The purpose of the context statement determines how broad or narrow the focus should be. Whether developed for a single property evaluation, a register nomination, or a survey, an adequate and appropriate context needs to be developed before making an evaluation. • The historic context (statement) is an organizing structure for grouping information about historic properties that share a common theme, place, and time. A historic context focuses on describing those historical development patterns within which the significance of a resource can be understood. • Historic context statements are a specialized form of historical writing with specific goals and requirements. They are not intended to be a chronological recitation of a community’s significant historical events or noteworthy citizens or a comprehensive community history. Nor are they intended to be academic exercises demonstrating prodigious research, the ability to cite a myriad of primary and secondary resources, and write complex and confusing prose comprehensible only to professionals in the field. Rather, historic context statements need to be direct, to the point, and easily understood by the general public. • Historic context statements are intended to provide an analytical framework for identifying and evaluating resources by providing focusing on and concisely explaining what aspects of geography, history and culture significantly shaped the physical development of a community or region’s land use patterns and built environment over time, what important property types were associated with those developments, why they are important, and what characteristics they need to have to be considered an important representation of their type and context. • By focusing on property types rather than on individual buildings or architectural styles, and providing clear criteria for evaluating significance and integrity, a good context provides a template for identifying, evaluating and developing plans for the treatment of historical resources even in the absence of complete B1 - 5 2 knowledge of individual properties. “Property types” is the concept that links history with the built environment. • In discussing property types associated with important themes, the context statement needs to answer such questions as: What facet of history does the property represent? Why is that facet of history significant? Is the property type important in illustrating the context? How does the individual property illustrate that facet of history? • Information included in historic contexts need to pass the “so what” test. When researching or writing, it helps to ask, “So what information does this sentence, paragraph, or section provide to help explain how land use patterns developed or why the built environment looks the way it does today?” Wars, fires, expositions, arrivals of the rail roads and street car lines, visits by presidents, and other such events generally serve as historical markers or frame time periods. But unless a connection is made between that information about what happened in the past and how it shaped today’s built environment, then “so what.” For example, a description of what native peoples ate, wore or made their houses from hundreds of years ago will not pass the “So what” test unless it is connected with where they collected or processed their resources and how their land use patterns shaped those of later inhabitants. • Land use patterns and the built environment are expressions of the ideas and cultural practices of individuals and groups in response to the climate, geography, economy, politics, technology, and available resources in a particular locale. Only when the context writer makes an explicit connection between the history and the extant land use patterns or built environment, will the historic context pass the “so what” test and be a useful tool for integrating historic preservation into land-use planning. • More information on how to develop context statements is available in The Secretary of the Interior’s Standards and Guidelines for Archeology and Historic Preservation, and in National Register Bulletins, especially How to Complete the National Register Multiple Property Documentation Form, Historic Residential Suburbs, Guidelines for Evaluating and Nominating Properties that Have Achieved Significance Within the Past Fifty Years, and bulletins focused on evaluating particular property types. B1 - 6 R ______ RESOLUTION NO. _____ (20xx Series) A RESOLUTION OF THE CITY OF SAN LUIS OBISPO APPROVING THE CITYWIDE HISTORIC CONTEXT STATEMENT WHEREAS, The City of San Luis Obispo is now a participant in the Certified Local Government program with the State Office of Historic Preservation effective March 22, 2012; and WHEREAS, the City does not currently have a comprehensive context statement; and WHEREAS, the preparation of a context statement will assist current and future historic preservation efforts in the City; and WHEREAS, the Cultural Heritage Committee of the City of San Luis Obispo conducted a series of public hearings beginning in March, 2012 to consider the context statement and on August 12, 2013, recommended the City Council approve the context statement; and WHEREAS, the City Council conducted a public hearing on October 1st, 2013 to consider adoption of the final draft of the context statement; and WHEREAS, notices of said public hearings were made at the time and in the manner required by law; and WHEREAS, the City Council has duly considered all evidence, including the testimony of the applicants, interested parties, and the evaluation and recommendations by staff, presented at said hearing. NOW, THEREFORE, BE IT RESOLVED by the Council of the City of San Luis Obispo as follows: SECTION 1. Findings. 1. The Context Statement accurately reflects the general historic themes and architectural styles currently recognized throughout the City. 2. The Context Statement meets the requirements set forth by the Office of Historic preservation for the preparation and content of the historic context statement. 3. The document will assist the City with determining the significance of historic resources, preparing surveys, and documenting physical characteristics of resources. 4. The document, or portions thereof, will be incorporated into the City’s Historic Preservation Guidelines to assist with resource identification. 5. Historic listing and resource evaluation is exempt from environmental review (CEQA Guidelines Section 15308, Resource Protection, and Section 15306, Information Collection, because the historic context statement contains information about city history and architecture and will aid City staff, advisory bodies, and decisions makers in making informed decisions regarding policy and projects that have the potential to impact historic resources. B1 - 7 Resolution No. _____ (20xx Series) Historic Context Statement Page 2 SECTION 2. Action. The City Council does hereby adopt the Historic Context Statement, a certified official copy of which shall be maintained in the Office of the City Clerk. Upon motion of _______________________, seconded by _______________________, and on the following roll call vote: AYES: NOES: ABSENT: The foregoing resolution was adopted this _____ day of _____________________ 20xx. ____________________________________ Mayor Jan Marx ATTEST: ____________________________________ City Clerk APPROVED AS TO FORM: _____________________________________ J. Christine Dietrick City Attorney Context Resolution (10-1-13).docx B1 - 8