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Items & Issues HPC Jan 2005 Special Retreat
WILMINGTON HISTORIC PRESERVATION COMMISSION SPECIAL RETREAT MEETING JANUARY 28, 2006 MASONBORO ROOM, THIRD FLOOR MAIN BRANCH, PUBLIC LIBRARY
9:15 AM Introductions and Opening Remarks Lloyd Rohler 9:25 AM Overview – Historic Preservation Goals Tom Mitchell 9:35 AM Historic Resources Achievement Report Maggie O’Connor 10:35 AM Suggested HPC Goals
Expansion of local districts Janet Seapker Signage Janet Seapker Staff Expansion Tom Mitchell Other Staff, Commissioners 11:30 AM Break 11:45 AM Policy and Procedural Issues Fences Staff Roofs Staff Paint Colors Staff Bypass Procedures Tom Mitchell Revision – New Construction Guidelines Staff Other Staff, Commissioners 1:00 PM Adjournment OVERVIEW -- HISTORIC PRESERVATION GOALS Prepared for the Special Retreat Meeting, January 28, 2006
ISSUES
-- Should the HPC adopt long-range programmatic goals for its activities, or simply plan ad hoc for occasional activities?
-- If the HPC adopts long-range programmatic goals -- What should those goals be? -- How should they relate to the City’s Land Use Plan?
BACKGROUND
Planning: the General Process
-- Set goals (broad, general statements of desired states of affairs) -- Define Objectives (specific, measurable instances or examples of the goals) -- Choose strategies (courses of action designed to accomplish objectives)
Historic Planning in Wilmington
Current Status
-- City required by law to adopt a plan for land use (zoning, etc.) -- City has adopted a Land Use Plan containing a section dealing with historic resources. -- The HPC -- has not discussed, recommended nor endorsed the plans adopted by the City -- has not adopted its own goals and strategies
Possibilities for the Commission
-- Endorse the plans adopted by the City in the Land Use Plan without further comment -- Endorse the City plan and recommend further elaboration of the plan by -- setting priorities among the goals -- specifying details, such as which areas to recommend for expansion of local districts or which topics on which to have public workshops -- Adopt its own goals different from those in the Land Use Plan -- Elaborate on the City Plan and also adopt its own goals not included in the Land Use Plan
Feasibility Considerations
-- Staff resources are limited -- the staff is already overworked -- the staff must give first priority to the Land Use Plan adopted by City Council -- the staff does not report to the Commission
-- Commissioners can work on projects, e.g., -- prepare publications -- survey resources -- develop public-relations efforts -- conduct educational programs HISTORIC RESOURCES ACHIEVEMENT REPORT July, 2005 through January, 2006
I. SUMMARY
This section summarizes the status to date (January, 2006) of each of the “Strategies” specified in Chapter II-B of the Wilmington Land Use Plan. (Items marked with an asterisk (*) are scheduled for completion at future dates. A lack of activity on these items is consistent with the schedule provided in the Plan.)
COMPLETED
1.3.2 Local landmark designation reports 1.4.2 Copies of National Register and local historic resource inventories made available to the public 1.4.5 Historic preservation information made available on City’s web site 1.4.6 Library of technical information on preservation made available to the public
IN PROGRESS *1.2.1 Survey and designation reports completed for local historic districts 1.4.1 Promoting awareness of National Preservation Month 1.5.1 Establishment of Historic Preservation Fund 1.5.4 Review use of CBDG and HOME funds in preservation areas 1.6.1 Meet regularly with Code Enforcement about preservation-related issues 1.6.3 Monitor re-zonings in historic districts 1.6.4 Liaison with neighborhood organizations maintained by regular meetings 1.6.5 Liaison with downtown organizations regarding private projects 1.6.7 Work with Financial Institutions regarding financing of preservation projects
NO ACTIVITY 1.1.1 Apply for grant to fund National Register District surveys 1.1.2 Nominate new areas for National Register Designation 1.2.2 Establish conservation districts in areas not eligible for local historic districts *1.2.3 Establish an archeological district downtown 1.3.1 Partner with non-profits to support National Register and local landmark designations 1.4.3 Make information on tax credits, etc., available to the public 1.4.4 Update databases of historic properties 1.4.7 Conduct at least 1 historic preservation workshop per year *1.4.8 Put distinctive street signs in historic districts 1.5.2 Partner with non-profits on private corporation grants for preservation 1.5.3 Assist Wilmington Downtown, Inc. with Facade Improvement Grants 1.6.2 Coordinate with County Building Inspection Department 1.6.6 Consult architects concerning updates to Guidelines
II. GOAL AND OBJECTIVES This section summarizes in brief form the goal and objectives stated in Chapter III-B, “Historic Resources,” of the Wilmington Land Use Plan.
GOAL 1. Identify, protect, and promote historic resources
OBJECTIVES 1.1 Expand existing or establish additional National Register Historic Districts 1.2 Expand and establish locally zoned historic districts 1.3 Recommend local historic landmark designation to City Council by 2015 for 25% of properties on the Local Historic Landmark Study List 1.4 Develop active public outreach program to increase community interest in and support for Wilmington’s historic resources 1.5 Identify and promote funding resources for historic preservation of structures 1.6 Establish new organizational relationships that will result in new proactive policies for historic preservation
III. OBJECTIVES AND STRATEGIES This section provides the full text of all objectives and strategies in Chapter III-B, “Historic Resources,” of the Wilmington Land Use Plan. The status of each strategy (accomplished, in progress, no activity) is stated and where appropriate is briefly elaborated.
Objective 1.1 Expand existing or establish additional National Register Historic Districts.
Strategy 1.1.1 Apply each year for a federal Historic Preservation Fund Grant through the State Historic Preservation Office for National Register Historic District surveys, establishment and expansions.
STATUS: No applications submitted in FY 2005. No applications submitted to date in FY 2006
Strategy 1.1.2 Utilize an Historic Preservation Fund Grant if awarded to nominate to the National Register areas southeast of the existing Wilmington National Register District, areas west of the existing Carolina Heights National Register District, and the Chestnut Heights, Brookwood, and Audubon
STATUS: No grants awarded because no applications submitted
Objective 1.2 Expand and establish locally zoned historic districts to preserve historic character and establish conservation overlay districts to protect neighborhood character.
Strategy 1.2.1 Budget for a survey and designation report by the year 2008 for local historic district expansion of the Downtown Commercial and the Carolina Heights Historic Overlay Districts or creation of new districts as merited.
STATUS: Two reports completed by consultant: 1. 800 block Chestnut, 200 block North 9th 2. Third and Fourth Streets near Castle
Strategy 1.2.2 Establish conservation overlay districts to protect neighborhood character for areas that do not possess sufficient architectural integrity to become local historic districts for at least two areas such as Greenfield Lake, or North 4th Street areas by the year 2010.
STATUS: No activity
Strategy 1.2.3 Apply for a Historic Preservation Fund Grant to initiate a process to require site investigation and documentation for archaeological resources in designated areas prior to land development. Pursue a grant to establish an archaeological district within the Central Business District by the year 2010.
STATUS: No activity on grant application.No activity on establishment of archeological district
(One archeological project: Excavation on Church Street in HDR required by covenants related to original land Acquisition by federal funds)
Objective 1.3Recommend local historic landmark designation to City Council by 2015 for at least 25% of properties listed on the Local Historic Landmark Study List and the Historic Preservation Commission’s High Priority List based on the Local Historic Landmark Designation Policies.
Strategy 1.3.1 Support the nomination of individual properties to the National Register and the designation of local historic landmarks by partnering with and encouraging participation from non-profits such as UNC-Wilmington, Historic Wilmington Foundation, Residents of Old Wilmington, Wilmington Downtown Incorporated, Lower Cape Fear Historical Society and various neighborhood organizations.
STATUS: No activity
Strategy 1.3.2 Budget for at least one local historic landmark designation report each fiscal year for those properties listed on the Historic Preservation Commission’s High Priority List.
STATUS: No report in FY 2005. One report, FY 2006 (Firehouse at 17th & Wrightsville Ave)
Objective 1.4 Increase community interest in and support for preserving Wilmington’s historic resources by developing an active public education outreach program to promote awareness.
Strategy 1.4.1 Collaborate with Historic Wilmington Foundation, Bellamy Mansion, Lower Cape Fear Historical Society, Cape Fear Museum, Wilmington Downtown Incorporated, NorthSide Neighborhood Association, Castle Street Business Association, Carolina Heights Neighborhood Association, Sunset Park Neighborhood Association, Residents of Old Wilmington, Downtown Wilmington Association, UNC-Wilmington or other interested parties in order to promote awareness during National Historic Preservation Week.
STATUS: FY 2005 and 2006 -- planning meetings with HWF, Bellamy Mansion, AIA, CCFC, Affordable Housing Coalition concerning juried competition held in RFY 2007 for historically-appropriate affordable housing. HPC has formally endorsed the competition.
Strategy 1.4.2 Make information on National Register and local historic resource inventories and designation reports more widely available to the public by 2005 by providing copies for distribution in the offices of the City Manager, the Lower Cape Fear Historical Society, the Historic Wilmington Foundation, the Board of Realtors and other locations such as the main County library.
STATUS: Information packets prepared and distributed to City Manager’s Office, Historic Wilmington Foundation, and New Hanover Public Library.
Strategy 1.4.3 Make information more widely available to the public by 2005 on Federal Rehabilitation Tax Credits, historic district and landmark designation, special loan programs, easements and the general economic benefit of historic preservation by providing information packages for distribution in the offices of the City Manager, the Lower Cape Fear Historical Society, the Historic Wilmington Foundation, the Board of Realtors and other locations such as the main County library.
STATUS: No activity
Strategy 1.4.4 Continue to update databases of inventoried properties, National Register properties, and local historic district and local historic landmark properties.
STATUS: No activity
Strategy 1.4.5 Add historic preservation information to the City of Wilmington internet site by 2005 and include information on Historic Preservation Commission design review process, Federal Rehabilitation Tax Credits, local historic district and landmark designation, special loan programs, easements and the general economic benefit of historic preservation
STATUS: Accomplished in FY 2005. (Links to information added to City’s web site.)
Strategy 1.4.6 Organize an historic preservation technical resource library by 2006 that is accessible to the public in order to facilitate rehabilitation projects.
STATUS: Accomplished -- print resources available to the public in the Development Services Office
Strategy 1.4.7 Develop and conduct at least one Historic Preservation Commission preservation rehabilitation workshop per fiscal year, oriented to the needs of district property owners, residents, and other stakeholders to demonstrate appropriate preservation techniques or to discuss preservation philosophy.
STATUS: No workshops held in FY 2005 or to date in FY 2006. No workshops planned for FY 2006
Strategy 1.4.8 Budget for a capital improvement project by 2007 for distinctive street signs for the City’s national and/or local historic districts to be installed by 2012. Explore the feasibility of funding sources including but not limited to Housing and Urban Development funds to install identification signs for national and/or local historic districts in qualifying areas.
STATUS: No activity
Objective 1.5 Identify and promote funding sources for historic preservation of structures.
Strategy 1.5.1 Establish an Historic Preservation fund with the major source of funding being the City for the mothballing, rehabilitation, relocation, adaptive reuse, marketing or purchase of historic properties. Determine the eligibility requirements and funding amount needed by the year 2005, with fund establishment occurring in fiscal year 2006-2007.
STATUS: Preliminary staff discussions held Strategy 1.5.2Coordinate with UNC-Wilmington, Historic Wilmington Foundation and other nonprofits to conduct private corporation grant searches for pertinent funding and to partner on completion of grant applications.
STATUS: No activity
Strategy 1.5.3 The Historic Preservation Commission should assist Wilmington Downtown, Incorporated by making recommendations for the Facade Improvement Grant Program to encourage adaptive reuse of historic buildings.
STATUS: No activity
Strategy 1.5.4 The Historic Preservation Planner shall review and make recommendations on the use of the Special Needs Historic Preservation Grant fund administered by the Community Development Division for renovation that is subject to environmental assessment as a result of the use of Community Development Block Grant Funds and HOME Funds.
STATUS: Staff reviewed 3 projects in FY 2005. Staff did 66 reviews of expenditures of HUD and CDBG and CHAF funds
Objective 1.6 Establish new organizational relationships that will result in proactive policies for historic preservation.
Strategy 1.6.1 Meet regularly to coordinate with the City Community Services Department code enforcement/rehabilitation staff regarding the application of the minimum housing code to historic resources and other code enforcement issues.
STATUS: Ongoing meetings held as needed. Approximately one meeting per month.
Strategy 1.6.2Coordinate with County Building Inspections Department to encourage support of the implementation of existing sections of the state building code that allow flexibility in the interpretation of the code requirements for historic resources.
STATUS: No activity
Strategy 1.6.3 The Historic Preservation Planner will review and monitor all rezonings and land use proposals related to historic properties.
STATUS: In progress. Staff reviews applications for rezonings and land use in historic districts as they are submitted. Strategy 1.6.4City staff will act as liaison to neighborhood associations (such as NorthSide Neighborhood and Castle Street Business Associations) and other interested organizations in historic areas to help keep them informed of potential historic resource impacts of any government or private projects submitted to the City for official review and to provide technical information as requested.
STATUS: Met monthly in FY2005 with North-Side Organization Met monthly in FY 2005 and FY 2006 with HWF
Strategy 1.6.5 City staff will act as liaison to Wilmington Downtown, Incorporated and other organized downtown groups to help keep them informed of potential historic resource impacts of any government or private projects submitted to the City for official review and to provide technical information as requested.
STATUS: Staff distributed COA applications to parties planning projects in the historic districts
Strategy 1.6.6 Utilize members of the American Institute of Architects as resources for input on updates to the Wilmington Design Guidelines for Historic Districts and Landmarks and for any design regulation amendments to the City’s ordinance.
STATUS: No activity in FY2005 or to date in FY 2006
Strategy 1.6.7 Work toward an enhanced relationship between area financial institutions and historic preservation entities in order to promote a common understanding of the benefits of as well as the financial market concerns about investing in historic properties.
STATUS: Staff attended monthly meetings of Affordable Housing Coalition on which financial institutions are represented. THE WILMINGTON HPC: POLICY AND PROCEDURAL ISSUES Prepared for the Special Retreat Meeting – January 28, 2006
FENCES Suggestion:
-- Amend the Land Development Code ((18-96(c)(2)c.) and the Design Guidelines (pp. 15 and 16) to remove fences from the list of minor works that can be approved through the administrative bypass procedure.
Rationale: -- A fence almost always affects an adjacent property owner. Under the bypass procedure the adjacent property owner is not notified and has no opportunity to comment on the work done on a fence.
-- The issue of whether a fence or wall is on a property line or to one side of the property line, and the issue of who owns the fence, are significant issues that deserve to be aired in public hearing.
-- There are differences in language between and among the provisions of (a) the Land Development Code, (b) the Guidelines, and (c) the application forms for bypasses regarding which fences are bypass items.
--- The Land Development Code (18-96(c)(2)c.): fences are bypass items “except on corner lots;” i.e. no fences on corner lots are bypass items.
--- The Guidelines: “Fences in rear yards of corner properties” given as an example of an item that must go to the Commission (p. 15) vs. fences are bypass items “except on corner lots,” not distinguishing between rear and front yards (p. 16).
--- The “Administrative Bypass Information Sheet” distributed with applications for bypasses: “Fences for rear yards” are bypass items, implying that no fences for front or side yards are bypass items.
Suggestions:
-- Until the LDC and Guidelines can be amended, stop giving bypasses for fences and bring all fence requests to the Commission for public hearing.
Rationale: --- The reasons for removing fences from bypass review are compelling and urgent.
--- The Ordinance does not require the staff to handle minor works through the bypass procedure. It is optional, at the discretion of the staff.
--- LDC 18-96(c)(2) says that COAS “may be granted by the secretary of the commission.” The ordinance is permissive, not mandatory;
ROOFS Suggestion:
--- For the present, refer to the Commission all applications to replace formed-on-site standing seam metal roofs with pre-formed metal roofs.
Rationale:
--- The staff is not confident in making the judgment of whether a pre-formed metal roof should be regarded as an “in-kind” replacement for a standing-seam metal roof that had been formed on-site.
--- Minor works may be brought to the Commission at the discretion of the staff (see citations above in the rationale for bringing fences to the Commission).
--- Consideration by the Commission of requests to install pre-formed metal roofs will provide the experience needed to decide:
--- which types of pre-formed metal roofs are “ïn-kind materials”
--- whether the LDC and Guidelines should be amended to exclude metal roofs from staff determination of in-kind materials, or whether the Commission can issue a policy interpretation to guide staff in making bypass decisions concerning metal roofs.
PAINT COLORS Suggestion:
--- Adopt a palette of historically-appropriate colors, including specifications of how colors may be combined with each other and which combinations may be used for trim and body colors. Grant bypass COAs for colors and combinations on the palette. Refer all other color requests to the Commission for consideration.
Rationale:
--- The lack of clear standards for color choices makes it difficult for applicants to know what colors they can choose from.
--- The lack of clear standards leads to protracted disagreements between the staff and applicants, causing delay for the applicants and dissatisfaction with the process.
--- Immediate referral to the Commission of requests for colors not on the palette will safeguard the rights of applicants to speedy consideration of requests that can’t be approved through the bypass procedures.
BYPASS PROCEDURES Suggestion:
--- Read into the minutes of each monthly meeting the address and the brief description of the work for each bypass granted in the previous month.
Rationale:
--- In past years bypasses were recorded in the minutes of the Commission.
--- It is now very difficult to get information about bypasses that have been granted.
--- Inclusion in the minutes provides a record of bypasses that is easily-accessible to the public, in accord with the policy of the State regarding public records.
Suggestion:
--- Designate a committee of the Commission to review at least annually the records of bypasses that have been granted to ensure that bypasses are granted in accord with the Guidelines.
Rationale:
--- Bypasses are granted in the name of the Commission, but the Commissioners have virtually no knowledge of those actions taken in their name.
--- Periodic review or audit is in keeping with sound practices and policies of both public and private bodies regarding administrative actions regarding property rights
--- For actions taken by the Commission oversight by the interested public is accomplished by conducting business at public meetings |
