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HomeMy WebLinkAboutresolution.apz.007-86RESOLUTION OF TIE ASPEN PLANNING AND ZONING CONNISSION FORNARDING THE ASPEN AREA COMPREHENSIVE PLAN: HISTORIC PRES~RViqTION ELENI~T FOR I~OR~ENEI~F OF THE HISTORIC PRESERVATION CONNITTEE AND CITY COUNCIL Resolution No. Planning and Zoning Commission periodically review, elements of the WHEREAS, the Aspen after "Commission") is authorized to amend and extend in greater detail Comprehensive Plan; and (herein- revise, Aspen Area Council for their endorsements. BE 1~ FUl~fH~R RESOLVRD that Preservation Committee and City Area Plan: Comprehensive subsequent to formal Hi~oric Council endorsement, the Aspen Historic Preservation Element will WHEREAS, the Commission is presently in the process of updating the 1973 Aspen Area Comprehensive Plan; and WHEREAS, the Commission held public meetings on February 12, December 2, April 1, 1986 and April 22, 1986 to work on develop- ing the Historic Preservation Eleaent; and WHEREAS, the Commission has revised in detail the Historic Preservation Element and has made revisions to it which are incorporated in the current draft. NOW, THEREFORE, BE 1T RESOLVED by the Commission that the Aspen Area Comprehensive Plan: Historic Preservation Element be forwarded to the Historic Preservation Committee and to City Resolution No. 86- ~ Page 2 return to the Commission for public hearing and adoption. APPROVED by the Commission at its regular meeting on April 22, 1986. Kim Wilhoit Deputy City Clerk ASPEN PLANNING AND ZONING C0~ISSION Chairper son~ SB.21 MEMORANDUM TO: Aspen City Council THRU : Ron Mitchell, Acting City Manager FROM: Steve Burstein, Planning Office RE : Aspen Area Comprehensive Plan: Historic Preservation El eme nt DATE : May 6 , 1986 BACKGROUND: Attached for your review and comment is the Asper. Area Comprehensive Plan : Historic Preservation Element . This is the second draft which we have prepared and it is the result of a series of meetings with the Planning and Zoning Commission during which time revisions were made. Also attached is Planning and Zoning Commission Resolution No . 86-7 forwarding the Plan Element to Council and to the Historic Preservation Committee . The Historic Preservation Committee, which hs been involved in the process throughout , is scheduled to review the Plan Element on May 27 , 1986 . PROPOSED MOTION: "Move to endorse the Plan Element and direct the Planning Office to prepare a Resolution formalizing this action. " SB.14 ASPEN AREA COMPREHENSIVE PLAN HISTORIC PRESERVATION ELEMENT Second Draft May, 1986 Prepared by The Aspen/Pitkin Planning Office Alan Richman Planning and Development Director Glenn Horn Assistant Planning Director Project Planner Steve Burstein Project Planner Janet Raczak Nancy Crelli Word Processing/Layout TABLE OF CONTENTS Page LIST OF FIGURES AND TABLE iv Resolution of Aspen Planning and Zoning Commission v Adopting Aspen Area Comprehensive Plan: Historic Preservation Element INTRODUCTION 1 CHA PT ER I . PLANNING PROCESS 3 II . GOALS AND OBJECTIVES Introduction 6 Historic Preservation Goals and 6 Objectives III. BACKGROUND Introduction 12 History of Aspen' s Built Environment 12 Existing Conditions 21 Provisions of the Aspen 22 Municipal Code 1980 Inventory of Historic Sites 28 and Structures Role of National Register of 31 Historic Places Aspen Historical Society 33 IV. ISSUES AND CONCERNS Introduction 35 Architectural Quality and 35 Compatibility Evaluation and Inventory of Historic 36 Sites and Structures Floor Area Ratio 36 Restoration and Renovation Know-How 38 i i TABLE OF CONTENTS continued . . . Pa cue Local Historic Preservation Review (HPC) 39 Review Authority of Historic 39 Preservation Committee Review and Application Procedures 41 Expiration of HPC Revies 41 Historic District Development 42 Guidelines Demolition and Moving Review 43 Individual Historic Designation 43 Expansion of Historic Districts 44 Growth Management Quota Exemption for 45 Historic Preservation Historic Structures on Main Street 46 Capital Budgeting for Historic 48 Preservation Maintenance and Improvements to 49 Public Building Street Narrowing 50 Tree Planting Program 5 1 Commemorative Placque Program 51 Facade Easement Dedication 52 Revolving Loan Fund 52 State and Federal Incentives for 53 Historic Preservation Open Space and Land Use 53 V. IMPLEMENTATION PLAN Introduction 54 Code Amendments 54 Color and Illumination 54 Demolition and Removal Review 55 Floor Area Ratios 55 Individual Historic Designation 55 Historic District Expansion 55 Conditional Uses in Office Zone 56 ii TABLE OF CONTENTS continued . . . Page Historic Preservation Committee Opera- 56 tions and Procedures Development Guidelines 56 Review and Application Procedures 56 Capital Budgetting 57 Public Building 57 Street Narrowing 57 Tree Planting 57 Commemorative Placques 58 Informational Program 58 Update City Inventory of Historic 58 Sites and Structures Restoration and Renovation Know-How 58 Assistance to the Aspen Historical 58 Society Historic Preservation Studies 59 Main Street 59 Expansion of the Historic District 59 to Encompass the Aspen Townsites and Early Additions Facade Easements, Transfer of 59 Development Rights and Resolving Loan Fund iii LIST OF FIGURES AND TABLE Pa ige Figure 1 Aspen Area Comprehensive Plan: Historic :Z Preservation Element Study Area Figure 2 Aspen Original Townsite and Subsequent 1.5 Subdivisions Table 1 Aspen Register of Individually-Designated 25 Historic Structures and Sites Figure 3 Map of Historic Inventory 3 iv r D Z z z G)0 n m INTRODOCT ION In the Aspen Area, historic preservation has long been considered a particularly important factor contributing to the quality of the environment . The subject has received high priority in the City Council and Planning Commission ' s statement of community goals and objectives. Few comprehensive plans include a separate element on historic preservation. Given the importance of our heritage to understanding the community today, and the absence of recent studies of our history and how we can best protect what remains of our past , the Aspen Area Comprehensive Plan: Historic Preservation Element has been prepared. The Aspen Area Comprehensive Plan: Historic Preservation ]Element represents a subsection of the Aspen Area Comprehensive Plan. The study area is defined as the original townsite of Aspen and the subsequent additions created prior to 1900 . As shown in Figure 1, the study area is generally bordered by Castle Creek, the Roaring Fork River and Aspen Mountain. This Element is part of an on-going effort to update the 1973 Aspen Area Comprehensive Plan. The Historic Preservation Element represents one of nine elements which make up the Aspen Area Comprehensive Plan. Other elements are: o Land Use o Transportation o Growth Policy 1 INSERT FIGURE 1 - ASPEN AREA COMPREHENSIVE PLAN: HISTORIC PRESERVATION ELEMENT STUDY AREA 2 • o Housing o Parks/Recreation/Open Space/Trails o Utilities o Annexation o Public and Institutional Facilities To date, Aspen Area Comprehensive Plan Task 1: Existing Condi- tions in the Aspen Area, the Growth Policy Element and Parks/Re- creation/Open Space/Trails Element have been completed, while the Transportation Element and Annexation Element are also presently underway. The Historic Preservation Element consists of the following Chapters: I . Planning Process I I. Goals and Objectives III. Background IV. Issues and Concerns V. Implementation Plan The Historic Preservation Element has been prepared on a coor- dinated basis by the Aspen Historic Preservation Committee, Aspen Planning and Zoning Commission and the Aspen City Council . PLANNING PROCESS The work program for the Historic Preservation Element included stages which are briefly summarized below: 3 A. Goals and Objectives - In September of 1984 , the Aspen Planning and Zoning Commission gave preliminary approval to the Goals and Objectives of the Aspen Area Comprehensive Plan which formed the basis for the development of the Historic Preservation Element . B. Collecting Background Information - During the second half of 1985, the Planning Office researched local history and the existing conditions of historic preservation in Aspen. The Aspen Planning and Zoning Commission and the Historic Preservation Committee assisted in the development of the resultant chapters during several meetings through that period of time. C. Issues and Concerns - In December of 1985 , the Aspen Planning and Zoning Commission presented for public discus- sion the staff ' s annotated list of issues and concerns for historic preservation. The purpose of the Issues and Concerns section is to identify the strengths and weaknesses of the historic preservation system in place and to explore further efforts to improve historic preservation . The Historic Preservation Committee held similar meetings from November 1985 through January 1986 to identify problems from their perspective. 4 a D. Implementation Plan - As the Aspen Planning and Zoning Commission and Historic Preservation Committee analyzed the staff ' s work and heard public comments, the Plan began to take shape. The Commission, Committee and staff developed a list of actions to implement the Plan. These actions were established to give decision-makers guidance in both short- term and long-term implementation of the Historic PrE-serva- tion Plan. 5 • • 0 D r D z 0 0 m n m r Introduction The Goals and Obj ectives for the Aspen Area Comprehensive Plan: Historic Element are intended to provide the basic direc- tion to the staff and Planning and Zoning Commission in develop- ing the Historic Preservation Element of the Plan. Goals are defined as ends toward which the City ' s planning is directed ; they are usually general in form and express ideals. Objectives are intermediate milestones on the way towards a goal ; they are in a form that is measurable and achievable. Historic Preservation Goals and Objectives The following Goals and Objectives are intended to serve as general guides for land use planning with respect to Historic Preservation. 1 . Education Goal : To improve upon the historical knowledge of Aspen and Pitkin County for the enjoyment and education of residents and visitors. Objectives : a . Provide information that allows members of the -public to use the built environment of Aspen as an historical teaching device . 6 • b. Give recognition to the structures, sites, districts, and urban design qualities of Aspen that have contri- buted to the historic evolution of the community . C. Identify and preserve records of the people and events that have or are making special contributions to the community . d. Study Aspen ' s historical environmental forms to identify old qualities that are superior to standard contemporary forms, and encourage new development to be equal to or better than the historical development . e. Assist the Aspen Historical Society in its efforts to preserve and display historical artifacts and provide cultural and educational programs for residents and visitors. f. Create a ski museum to give recognition to the contri- butions Aspen has made in the evolution of the sport and the role skiing has played in Aspen' s history . g. Make mine tours available in the summer and winter for the enjoyment and education of residents and guests. 7 2 . Quality of the Environment and Architecture Goal : To maintain the high quality natural and man-made environment which attracts both residents and visitors to Aspen. Objectives: a. Encourage renovation and maintenance of historic structures through development review incentives and economic benef its. b. Encourage productive and economically attractive uses of historic structures. C. Encourage faithful restorations of historic structures evaluated to be excellent and exceptional in the 1980 Inventory of Historic Sites and Structures. The review of proposed renovations should be based upon the criteria of Aspen' s historic preservation guidelines, design acceptability and economic considerations. d. Discourage demolition of significant historic :struc- tures identified and evaluated in the 1980 Inventory of Historic Sites and Structures. 8 e. Allow historic designated structures to be moved if demolition appears to be the only alternative. f. Encourage new contemporary commercial and residential buildings to be complementary to neighboring historic buildings, in scale, form, materials and other ele- ments. g. Study Floor Area Ratios in all zoning districts to protect the historic scale appropriate to each dis- trict . h. Maintain a balance between the preservation of Aspen ' s old buildings and traditional settings and community change in response to new lifestyles and economic activities. i. Preserve and encourage timely replanting of cottonwood trees and other species of the urban f orest that contribute to the streetscape beauty and historic scale of buildings in relation to vegetation. j . Utilize streetscape guidelines to guide the development of new landscaping, sidewalks, and malls in order to allow pedestrians to better appreciate Aspen' s visual environment . 9 • k. Continue the review function of the Historic PrE-serva- tion Committee regarding exterior changes to existing structures and building of new structures in the Historic Overlay Districts. 1. Provide greater incentives for rehabilitation of structures on Main Street . M. Study the formation of an architectural review commit- tee which reviews all projects in the City. n. within the City ' s capital improvements program, budget for tree planting, road narrowing, sidewalk and mall improvements, upkeep of public buildings such as City Hall and Wheeler Opera House, rehabilitation loans, and other City financed programs that promote historic preservation. 3 . Resort Amenities Goal : To maintain Aspen' s unique small town character and scale as one of its major attractions to residents and visitors. a. Develop recreational and cultural opportunities 10 associated with Aspen' s past which attract visitors to the community. b. Enhance the pedestrian and mass transit experience and discourage use of automobile. C. Encourage the preservation of Aspen ' s community scale and small town building massing through open space, growth management and land use regulations. 11 D C7 000.7 6) DOO C 0 R Introduction Presented in this chapter are two sections : a history of Aspen' s development and a discussion of Existing Conditions with regard to how historic preservation is presently treated in Aspen through municipal and private efforts. History of Aspen's Built Environment In this section a brief history of Aspen is presented in order to identify the major historic periods evidenced in our architec- ture. Buildings and other artifacts from each era of our history have survived throughout the dramatic transformations undergone . The understanding of Aspen ' s past is the foundation for our efforts in historic preservation. This is not intended to be a definitive study of Aspen's past, but rather an overview of the main eras that have left their marks on the community . A bibliography is provided for more complete historical informa- tion. The earliest known inhabitants of Aspen and Pitkin County were the Ute Indians. They made hunting and fishing trips through the Roaring Fork Malley, and it is doubtful that they resided here year-round. Arrowheads and pottery shards are indications of their presence . In the summer of 1879, prospectors first came into the area from Leadville. "A dozen log cabins at the foot of Aspen Mountain " 12 were built; and Henry Tourtellotte built his cabin in the aspen grove of Tourtellote Park. Following the Meeker Massacre in that year, nearly all prospectors and hunters returned to Leadville, as "Ute City" was part of Indian territory. Following a truce called by Chief Ouray later in 1879, the prospectors returned with the promise held of peace with the Indians, mountains laced with veins of silver, an agreeable mountain climate and splendid scenery. The community quickly grew as the center of one of the foremost silver mining districts in the state. Other mining settlements in the Roaring Fork and Crystal Valleys included Independence, Ashcroft, Highlands, Lenado, Crystal , Schofield and Aspen Junction (Basalt ) . The community of Redstone, containing many outstanding historic buildings, was built between 1901 to 1903 in conjunction with the development of nearby coal mines and the coke oven operation. Redstone and Marble were both built at the turn of the century, twenty ( 20) years and another era after the silver mining camps were first settled. By 1887 , even before the railroads (Denver and Rio Grande and the Midland ) served Aspen, the population of Aspen reportedly reached 6, 000 people. In the years 1890 to 1892, the town had a building boom, bringing the population to over 11 ,000 . This short period produced most of the fine brick and red sandstone buildings located in the Commercial Core. Elegant residences of mining 13 entrepreneurs and merchants, and the well proportioned miner ' s cottages were also built during this boom. Some outstanding buildings that have survived the period include the Lincoln Block/Chitwood (1891) , Webber Block/Isis Theatre (1892) , City Hall ( 1892) , County Courthouse (1891) , St . Mary ' s Catholic Church (1891) , Brand Building (1891) , Cowenhoven Building/Ute Banque ( 1890 ) , and the Atkinson/Sardy House (circa 1890 ) . In 1891 alone, at least 75 buildings were under construction. De- velopment of the mining, milling, roads and railroad facilities of the era added to what must have been a phenomenal level of activity in this confined, remote valley . Aspen was a prosperous and opulent town built with all the symbolic features of the best mining communities : a large and varied business district, fancy hotels, attractive schools and churches, and stone and brick construction throughout the community. Aspen was a proud outpost on the mining frontier . Investors primarily from the east were educated and affluent people. Harper 's Weekly described Aspen in the 1880s as a town of "unyielding respectability and force of character. " However, at the same time a sizeable red light district of saloons and brothels on Durant Street caused upright Aspen matrons to avoid riding the Colorado Midland train, as they would have had to pass down Durant Street to reach the station. 14 s • FIGURE 2 - ASPEN ORIGINAL TOWNSITE AND SUBSEQUENT SUBDIVISIONS 15 In 1893 , the Sherman Silver Purchase Act was repealed, demonetiz- ing silver . The young community suddenly saw the virtual collapse of its economic base after reaching a peak population of 12 , 000 people. While Aspen never completely folded up in the tradition of other boom and bust mining camps, population began its decline and very little new construction occurred. The community survived on scaled-down mining operations and a shift to an agricultural economy during the years of 1894 to 1947 often referred to as "the quiet years. " The population was reported to be approximately 700 in 1920 . Victorian buildings were largely preserved because there was minimal environmental change during this inactive period. As a result, Aspen has a substantial inventory of buildings from the mining era. It is perhaps remarkable that of the fifty-eight ( 58) non-mining structures denoted in the 1893 Bird's Eye View of Aspen, at least twenty-six (26) remain today . The mining era also left its imprint on Aspen ' s settlement pattern (see Figure 2) . The original townsite of Aspen was platted in 1880, establishing the northwest-southeast orienta- tion, block and street pattern, dimension of lots, right-of-way widths, and sections of town within the relatively flat valley floor . By 1890 , the East Aspen Townsite, North Aspen, Connors Addition, Eames Addition, Capitol Hill Addition and Ute Addition were established (if not properly platted in all cases) . The 16 settlement was contained within the boundaries of the Roaring Fork River, Castle Creek gorge, and the mountain edge. This area remains the primary urban area , today and contributE!s the sense of our community scale. Other environmental form features have evolved from historic econcmic and environmental circumstances. The Commercial Core is clustered at the base of Aspen Mountain, almost equal distance from the once-thriving Aspen Mountain and Smuggler Mountain mines. The Midland and Rio Grande Railroads enveloped the main body of the settlement and their depots also reinforced the Commercial Core. Linear commercial development along Main Street made little sense. Fortunately, it never occurred, leaving Aspen a pedestrian community . Main Street has always been the major thoroughfare through town for all non-rail transportation as it is the easiest and shortest route to the east and west . Irriga- tion ditches that served farmers in both the immediate area and Down Valley, as well as watered the rows of street trees in town, played a very important role in Aspen' s sustenance and urban environment . Furthermore, the presence of south slope spruce and pine forests for building materials and nearby meadows for grazing animals allowed for the community to take form and grow. Although many buildings built prior to 1900 survived the "quiet years, " from photographs of Aspen taken in the 1940 ' s, it can be seen that the building stock was greatly reduced from the 17 1890 ' s. Aspen lost much of its original construction through the " ghost town effect " of natural decay, fires, pillaging for building materials, and moving structures to locations Down Valley. In all districts of the settlement , there remain structures from the mining days ; however, the majority of historic structures are located in the commercial core, along Main Street and in the West End and Hallam Addition neighborhoods (see Figure 2) . Less original construction in the East Aspen and Shadow Mountain neighborhoods has survived because of the dismantling of the mining and railroad facilities in those areas and the demolition that preceded lodge construction at the base of Aspen Mountain. It appears from the 1893 Bird' s Eye View of Aspen and photographs from the early era that there were primar- ily small houses, and industrial and commercial structures in these worker/industrial sections of the settlement . The "quiet years" of Aspen ended when two events occurred that brought on a new era. Walter Paepcke, Chairman of the Container Corporation of America, and his wife Elizabeth came to Aspen and took an interest in creating a cultural/spiritual/recreation center here. At about the same time, Ted Ryan, Andre Roch, and other individuals interested in creating a ski resort discovered the Aspen Area. The beginning of the early cultural and ski era corresponds with the end of World War II . 18 During the years 1945 to 1948 Walter Paepcke acquired signif icant properties in Aspen. The Aspen Company was formed by Paepcke in order to lease , modernize and refurbish the Hotel Jerome and purchase auxiliary real estate holdings. Herbert Bayer was retained by Paepcke to work on many of Paepcke ' s ideas for a physical transformation of the community. Paepcke and Bayer envisioned bringing the quiet community back to life through modernizing it from within. The best architecture of the inherited past was to be saved and new construction would be built to be compatible in scale with the old. Paepcke also bought 120 acres known as the Aspen Meadows . Most of the buildings of the Aspen Institute and Meadows were built between 1953 and 1959 . It should be noted that Bayer was one of the forces behind the creation of the Aspen Historical Societe when he decried the loss of Victorian architecture in the 1960s. In 1949 the international bicentennial of Goethe ' s birthday, organized by Paepcke, was held in Aspen. This establishE!d the town as a cultural and intellectual center. Shortly thereafter the Aspen Institute began a regular series of programs for businessmen, intellectuals and leaders in a variety of fields. By 1938, the first ski runs had been opened, along with the "boat tow" and a ski jumping hill. With construction of the Lift 1 Chairlift in 1946 , and development of various Aspen Mountain Ski Trails, Aspen saw a number of new ski dormitories and remodeling 19 of houses. Lodge development was mostly concentrated at the base of Aspen Mountain, although numerous facilities were also located along Main Street and scattered south of Main Street . A popular architectural motif of the 50s was the Swiss mountain village style. The Skier ' s Chalet, built in 1952, is an example of that style which has received local historic designation. Beginning in the early 1960s Aspen began to grow dramatically . A series of annexations and subdivisions surrounding the original townsite and first additions have been approved since 1963 . Of equal importance to expansion is the substantial amount of in- fill which has occurred throughout all areas of the City . Most modern construction has used contemporary design elements, adding to the eclectic quality of the built environment while remaining generally within a small-town scale . The present day mix of architectural styles from the different eras is a fundamental characteristic of the City. With the new growth pressure on the community, it was recognized that we needed a plan to guide a future development. The first Aspen Area Comprehensive Plan, prepared in 1966 , and its subsequ- ent update, prepared in 1973, both recognized the importance of our historic resources . The 1966 Aspen Area General Plan recognized the emerging trend whereby early Aspen residential structures were being replaced with contemporary housing and tourist accommodations. The Plan did not, however, recommend any 20 actions intended to preserve open spaces and historic structures or discourage development on hillsides. Despite the lack of guidance from the Plan, by 1972 the City had implemented an historic overlay district and designated the Historic Preserva- tion Committee as the board to review development activities in the District. The 1973 Aspen Land Use Plan, prepared during a time of high growth, was significantly more concerned with protective measures against the threat of losing community resources. Policy No . 1 of the 1973 Plan was to preserve the buildings and sites recom- mended by the Historic Preservation Committee for historic designation. Preservation of historic sites and structures as well as tree planting in the commercial center and single-family residential areas was encouraged . This plan provided a much clearer foundation upon which to build a historic preservation program in the community, as discussed in the following section. Existing Conditions In the twelve years since the last plan was completed, much progress has been made to implement the Historic Preservation goal. At the same time, various issues have arisen which require increasing attention and new planning strategies if we are to maintain a unique victorian character which sets Aspen apart: from other resort communities. The purpose of the following sections is to describe the conditions which make up our current strategy 21 for our historic environment, and then to identify various issues and concerns affecting that environment. In the existing conditions section a number of current programs dealing with historic preservation are discussed. These programs include Aspen' s Municipal Code provisions that regulate and give incentives for historic preservation, the 1980 Inventory of Historic Structures and Sites, the role of the National Registry of Historic Trust in Aspen and the Aspen Historical Society . Together , these programs are the framework through which the community promotes preservation of historic architecture and gives guidance to new design effecting the traditional qualities of the built environment . Provisions of the Aspen Municipal Code Of central importance to the promotion of historic preservation in Aspen are the following Sections of the Municipal Code : o Historic Designation (Section 24-9) o Exemptions from the Growth Management Quota System for Structures with City Historic Designation (Sections 24- 11 .2 (b) 4- 11 .2 (b) and 24-11 .3 (d ) ) o Conditional Uses Allowed for Historically Designated Structures in the Office Zone (Section 24-3 .2) o Limited Enlargement of Non-conforming Structures with Historic Designation (Section 24-13 .3) o Flexibility in the requirements of the Uniform Building Code for Historic Designated Structures (Section 7-141) The basic purpose of the various Code provisions is to provide incentives to preserve our inventory of historic structures . 22 • Each provision is discussed in detail below. Historic Designation. Historic Desianation (Article IX, Section 24-9 of the Municipal Zoning Code ) was written and adopted in 1973 . The purpose of this Article was to establish a municipal role in "the preservation and continued existence of historic structures, combination of structures, sites and areas within the City (Section 24-9 .1) . The main components of Article IX are: o The creation of the Historic Preservation Committee; o Standards and procedures for designation of H- Historic Overlay Districts; and o The procedure for HPC review of remodeling, reconstruc- tion, removal, construction and demolition of struc- tures in the designated Historic Overlay Districts. Designation of historic structures and districts has been an on- going function of the City since 1973 . Designation is accomp- lished through ordinance amending the zoning district map and requires participation of the HPC, Planning Commission and City Council . The first three historic designations were the Wheeler OF-era House, Ute Cemetery, and the Stallard House, accomplished in 1973 . The Commercial Core Historic Overlay District was designated in 1974; and the Main Street District received designation in 1976 . Every designated site and structure is placed in a category of notable, excellent or exceptional . The criteria for desig:zation are based primarily on the evaluations made in the 1980 inventory 23 and are discussed below in this report . During the period of 1973 to 1977, the main effort by the City was to obtain designa- tions for those structures and sites in the Excellent and Exceptional categories. Following a six month moratorium in 1981 on the issuance of permits to demolish or remove structures identified in the 1980 inventory, there were cycles of desig- nations encompassing larger numbers of structures in all categor- ies . Table 1 lists all structures designated at the time of writing (November, 1985) . Exemptions from the Growth Management Quota System. There are two subsections of the Growth Management Quota System of the Zoning Code pertaining to historically designated sites and structures. Section 24-11 .3 (d ) states that any project needing HPC approval ( i . e . , individual designated or in a Historic Overlay District ) must receive conceptual approval from the committee prior to submitting an application for GMP development allotment. This means that the Historic Preservation Committee has early input into the design of a new project , before it goes before the Planning Commission and City Council for their review of the GMP application. 24 TABLE 1 ASPEN REGISTER OF INDIVIDUALLY-DESIGNATED HISTORIC STRUCTURES AND SITES KEY: a- Exceptional Structures/Sites •- Excellent Structures/Sites •� Notable Structures/Sites I. MAIN STREET A 128 E. Main (Sardy House) • 202 E. Main • 208 E. Main • 216 E. Main • 221 E. Main ■ 330 E. Main (Jerome Hotel) ■ 506 E. Main (Pitkin County Courthouse) A 533 E. Main (St. Mary's Church) A Paepcke Park Gazebo • 125 W. Main • 135 W. Main • 211 W. Main A 328 W. Main (Copper Horse) e 332 W. Main • 400 W. Main ■500 W. Main (Mesa Store) •612 W. Main o 627 W. Main • 633 W. Main Jr. COMMERCIAL OJRE ■ 420 E. Cooper (Red Onion) ■501 E. Cooper (Independence Building) ■ 303-309 S. Galena (Aspen Block) 4L Owl Cigar Sign at 300 E. Hyman ■328 E. Hyman (Wheeler Opera House) •413 E. Hyman ■ 501 E. Hyman (Ute City Banque/Cownhoven Block) ■590 N. Mill (Visual Arts Center) ■Lift it (Boat Tow, Tower, Bullwheel, Skier's Chalet) ■Ute Cemetery A104 S. Galena A 201-207 S. Galena (Brand Building) 130 S. Galena (Armory/City Hall) •312 S. Galena 204 S. Mill (Aspen Hardware) •208 S. Mill (Sabbatinis Sports) ♦201 E. Hyman ■300 E. Hyman •426 E. Hyman III. WEST ASPEN MDUM'AIN •118 E. Cooper •135 E. Cooper • 113 E. Hopkins •208 E. Hopkins A 302 E. Hopkins 41222 W. Hopkins •205 S. Third Avenue IV. WEST END •212 N. Monarch • 500 W. Francis 0 218 N. Monarch • 305 W. Smuggler 0126 E. Bleeker s 400 W. Smuggler ■200 E. Bleeker (Community • 513 W. Smuggler Church) • 610 W. Smuggler Unit C •214 E. Bleeker • 715 W. Smuggler •131 W. Bleeker • 500 North Street 0 333 W. Bleeker • 101 Lake Avenue ■ 442 W. Bleeker (Pioneer • 206 Lake Avenue Park) (Shaw House) • 513 W. Bleeker o 210 Lake Avenue ■620 W. Bleeker (Stallard • 320 Lake Avenue House) • 311 Gillespie (Chatfield Ski 0 123 E. Hallam Barn Residence) •131 E. Hallam s 330 Gillespie m 23 E. Hallam (Glidden • 414 N. First (Paepcke House) Residence) A 100 W. Hallam ■ 525 N. Second Avenue e 320 W. Hallam • 610 N. Third Avenue &530 W. Hallam ♦ 714 N. Third Avenue (Gay 0 135 W. Francis 906) ♦201 W. Francis O 319 N. Fourth Avenue 234 W. Francis • 121 N. Fifth Avenue •432 W. Francis 0 505 N. Eighth Avenue See Figure 3 - Map of Structures Source: Aspen/Pitkin Planning Office; March, 1986 25 Section 24-11 .2 (b) states that "the enlargement of, or change of use in a structure which has received individual historic designation" shall be exempted from complying with the GMPallot- ment procedures. An example of this exemption is the Sardy House proj ect . The Sardy House received approval in 1985 for a change in use from residential to a bed and breakfast and also to build an addition and annex. Twenty ( 20) guest units have been created without competing for GMP allocation ; and these units have been deducted from the L-1/L-2/CC/CL and Other zone district quota . This special ability to re-develop a property without having to compete in GMP competition is an incentive to find an appropriate and usually more economically productive use of an historic property if its integrity can be left intact . The GMP exemption appears to be one of the strongest incentives in the Municipal Code for preservation of existing structures and should be maintained as a- tool for the foreseeable future. Conditional Uses in the Office Zone District . In the Use Tables for the Office Zone District a series of conditional uses are allowed only for structures which have received individual historic designation. Most of the uses are relatively low- intensity service commercial uses that have traditionally existed within the Office Zone District and particularly along Main Street . Examples are bookstores, restaurants, art galleries and boarding houses. 26 Main Street is of special significance in issues of historic preservation because it contains some of Aspen' s finest old residences and there remains an image of a tree-lined, largely residential avenue. The street is the main entrance into our community and does much to enhance the feeling that Aspen is a distinguished, victorian, small town. The City has attempted to preserve the historic character of Main Street through its planning and zoning regulations. A Main Street Plan was p;-epared by John Stanford in 1975, from which the current conditional uses were established. The conditional uses for designated structures are an incentive to preserve our historic properties by allowing a variety of commercial uses to be placed in them, which would otherwise be restricted. Limited Enlargements of Non-Conforming Structures. Accord- ing to Section 24-13 .3 (a�j ,- an individually historically desig- nated single-family house or duplex that is non-conforming with respect to allowable floor area may be enlarged by 500 square feet . This exception applies only to historically designated structures and represents another advantage of designation . Other structures non-conforming in floor area are not allowed to expand without approval from the Board of Adjustment . Flexibility in Requirements of the Uniform Building Code. Section 7-141 of the Municipal Code amends the Uniform Building Code, 1979 Edition, to allow the building official to authorize 27 0 • "repairs, alteration and additions necessary for the preserva- tion, restoration or continued use of a building or structure (designated historic) without conformance to all the requirements of this Code, provided that : o Unsafe conditions are corrected; and o The restored building or structure will be no more hazardous than the existing building. This provision allows greater flexibility from the requirements of the UBC for work performed on historic structures. For example, stairways and size of rooms not meeting UBC requirements may be allowed. It is another incentive to make improvements to historic buildings while not compromising the architectural integrity of those buildings. 1980 Inventory of Historic Sites and Structures A comprehensive inventory of historic sites and structures within the City limits was conducted in 1980 . The study was sponsored by the Colorado Historical Society and the City of Aspen in order to establish base data on historic resources in Aspen. Research included photographing individual historic properties, establishing the dates of construction, physical alternations, and changes in ownership through public records, and documenting the historic significance of structures. Existing sites and structures were also evaluated for historical significance . Numerical scores were given for each structure 28 within the following six categories : o Historically associated with events of significance to the locale, region, state or nation. o Historically associated with individuals or groups which are significant to the locale, region, state or nation. o Embodies distinctive characteristics of a type o;, style of architecture or construction, period of architecture or method of construction. o Represents the work of a significant craftsman, builder or architect at the local, state or national level. o Is a noteworthy surviving example of a style bE'coming rare in the locale or is identified with a street scene or other landscape . o Possesses high artistic value . Combined scores were established to determine the overall historical significance of Aspen' s sites and structures. Each 29 INSERT FIGURE 3 - MAP OF HISTORIC INVENTORY 30 historic resource was evaluated and placed in one of the three categories of significance : o Notable; o Excellent ; and o Exceptional . The historic inventory has been catalogued and mapped. Figure 3 identifies each of the significant structures and the five potential historic districts . Files are available in the Aspen/Pitkin Planning Office and the Aspen Historical Society Archives. As already stated, the inventory has been the basis for the City' s designation system. The inventory has also been useful for giving out information to the public upon inquiry and valuable reference in HPC reviews. Role of National Register of Historic Places Within the City of Aspen at the present time are seven stru-tures on the National Register : o Pitkin County Courthouse o City Hall o Wheeler Opera House o Community Church o Brand Building o Stallard House o Sheely Bridge (connects Rio Grande to Art Museum) 31 The Hotel Jerome has been nominated and may soon be listed as well . In Pitkin County, the townsites of Independence and Ashcroft, the Maroon Creek Bridge, Redstone Inn and Osgood Mansion (the Redstone "Castle" ) are' also on the Register. National Register properties are distinguished by having been documented and evaluated according to the Department of Interi- or ' s uniform and strict standards . Properties and districts having this designation are given national recognition and status . Listing serves as a principal educational tool . Registered properties are eligible for preservation assistance through tax incentives, easement donations, and federal grants when available. In addition, consideration is given to regis- tered sites in the planning for federally assisted projects and issuance of surface coal mining permits. The investment tax credit, available for historic commercial structures has spurred a great deal of rehabilitation activity in Aspen during 1985 . Private investment in such renovation projects as the Hotel Jerome, Brand Building and Sardy House has- been asbeen facilitated by the tax credit . The City of Aspen has received a Colorado Historical Society grant to prepare a multi-resource nomination of the City to the National Register. The objective of the project is to nominate 32 • i to the National Register approximately twenty individual proper- ties within a city-wide multi-resource district. The project is scheduled to begin in April of 1986 . Aspen Historical Society The Aspen Historical Society was founded in 1963 as a non-profit corporation for the purpose of promoting historic preservation in Aspen and Pitkin County . The Society serves a very important role in displaying and interpreting local history for the benefit of all interested parties. Functions of the Historical Societv include a publications program, operating the Stallard House Museum and archives, operating the ghost towns of Independence and Ashcroft, house tours and a variety of local cultural activities . The Society ' s Board of Directors is developing a plan for the growth of the museum into a comprehensive facility. Areas of history to be covered are the Utes,,,mini ng; agriculture, the resort and the post-1970 era. The City and Historical Society have cooperated on various pro- jects. For example, the City has contributed to the Society' s acquisition of the Stallard House and operating budgets. The Historical Society has provided museum tours for students and made available archive information to City staff and appl f cant s for HPC review. The group has also played a major role from time-to-time in historic preservation issues brought before the City through land use reviews . In order for the Historical 33 Society to grow into a comprehensive museum and take on other activities suggested for the Historical Society in this plan, further City-society cooperation and support is needed. 34 .cl) CD c n Cl)D z G Ci O z C) m DD z Introduction This chapter provides a detailed discussion of issues and concerns in historic preservation in the City of Aspen. The issues and concerns section of this element is important because it provides the basis for the recommended actions. The chapter focuses on the following seven main issues and concerns: o Architectural Quality and Compatibility o Local Historic Preservation Review o City Incentives for Historic Preservation o Historic Structures on Main Street o Capital Budgeting (for Historic Preservation) o State and Federal Incentives for Historic Preservation o Open Space and Land Use Architectural Quality and Compatibility The broadest issues of historic preservation in Aspen can be stated in the following two questions: (1) How do we evaluate, appreciate and preserve those elements of the built environment that are extraordi- nary in their contributions to Aspen? 35 ( 2) How do we encourage the construction of new buildings which are compatible with the old and enhance the quality of the community? These questions raise three particular issues and concerns, identified as the 1980 Inventory, Floor Area Ratio and Restora- tion Know-How, each of which is discussed below. Evaluation and Inventory of Historic Sites and Structures Evaluation of our town's buildings has been largely accomplished through the 1980 Inventory of Historic Sites and Structures. However, there are a number of sites and structures which are not adequately documented and evaluated. This valuable resource tool should be updated and completed. Additional research finalizing unfinished evaluations and inventory forms, and periodically checking on the state of inventoried structures so to record chances are tasks that should each be accomplished. Floor Area Ratio Another mechanism besides FAR should be considered to regulate bulk using such standards as ceiling heights, volumes and the amount of transparency . One of the elements of architectural compatibility that has not always been honored is the bulk of a new residential structure in relation to surrounding houses. The zoning code restricts bulk through Floor Area Ratio ( FAR ) standards . In 1982 , the FARs within Residential zone districts 36 were revised, but comments are still made by many people that new buildings are still out of character with community values. The FAR limitations should be studied again in residential zones so that new single family or duplex structures are not allowed to dwarf surrounding Victorians. As an alternative or complimentary approach to changing FARs, if new historic districts are formed (discussed below) , then building size, massing and other design elements closely related to FAR could be subject to HPC review. This architectural review , conducted with the aid of appropriate development guidelines, may be able to accomplish much of the same objectives as reducing FAR. Open Space Requirements in the Commercial Core Zone District A typical element of the historic commercial core streetscape is a street-level storefront abutting the front lot line . It has been argued that the 25 percent required open space in the commercial core zone district discourages retaining this store- front characteristic. The sunken pit, garden level storefronts, and concrete patios are design solutions that have been used on most of Aspen' s recent commercial structures, in some cases to the detriment of streetscape aesthetics and activity level . A code amendment should be considered to either delete the open space requirement or make reduction of the required open space subject to special review. 37 Two Separate Structures on Parcels Zoned for Duplexes Within Aspen ' s historic neighborhoods there are many small old houses on parcels with sufficient land area to allow duplexes. There are also many carriage houses that were converted to residential use prior to zoning code regulations and possess a status of an existing non-conforming use, not allowing any enlargement . Additionally, there are carriage houses that are not residential and may have historic significance but can only be used for accessory purposes. In the interest of providing an alternative that may result in better site design and more appropriate massing of structures, as well as to encourage preservation of historic outbuildings, it may be appropriate to allow two separate structures on parcels with historic designa- tion and zoned for duplex use. A study should be done to analyze the effects of allowing such development for individual historic designated properties, based on HPC approval and Planning Commis- sion special review approval . Restoration and Renovation Know-How There are a variety of specialists within the restoration and renovation community including : restoration craftsman and builders, building material suppliers, restoration architects, interior decorators, landscape architects, historian; and preservation consultants. 38 The Aspen Historical Society , HPC and Planning Office should assist the public with pertinent information and referring those with inquiries to the appropriate sources. By having a cohesive local network of individuals knowledgeable in historic preserva- tion, we should achieve a higher quality of restoration and renovation in Aspen. The Aspen Historical Society archives is the most complete and best indexed collection of information on how old buildings originally appeared in Aspen. The Society is perhaps in the best position to take on the responsibility of creating a reference library of information on restoration techniques and materials, and keeping a photographic record of restoration and renovation projects in Aspen. The Planning Office is assembling an historic preservation library pertaining mainly to planning, the 1980 Inventory, architectural guidelines, and current referral services. Local Historic Preservation Review (HPC) The City of Aspen' s most fundamental system for promoting and regulating historic preservation is encompassed in the Historic Preservation Committee and the Committee' s review responsibili- ties. Areas for improvement discussed below include : o Review authority of the Historic Preservation Commit- tee; o Review and Application Procedures; o Historic District Development Guidelines; o Demolition review; 39 • i o Individual historic designation; and o Expansion of Historic District . Review Authority of the Historic Preservation Committee Through Section IX of the Municipal Code, HPC review power extends over aspects of exterior remodeling and new construction, including, but not limited to, architectural style, design, materials, texture, type and style of windows, lights, signs and fixtures. Not included in this grouping of architectural features is color or building illumination, although the present development guidelines generally address color . There is some interest in giving the HPC full power to review both colors and illumination, as they significantly effect the appearance of a building. At the present time, applicants typically discuss colors with the HPC and voluntarily commit to use the colors that have been represented. However, if an applicant chooses not to discuss colors with HPC, then there is no obligation in this regard. The issue of color and illumination should be raised tefore Council through an HPC-initiated Code amendment . The problem in taking on review authority in these areas is that there may be no objective criteria to demonstrate how the general public good is protected and promoted by review of such building features. If choices are subjective, then the current advisory function may be appropriate while regulation is not appropriate . If it can be 40 shown that the general welfare is served, and standardized criteria can be developed for color and illumination, then the review powers for the HPC should be increased through a Code amendment and thoroughly described in the development guidelines. Review and Application Procedures The Committee' s review function would be improved if both the applicants and Committee members were better prepared to address the criteria of HPC' s evaluation. A statement of procedures and an application form clarifying what information is requested should be developed. Each application form would be included in the bi-weekly packet for HFC members, giving the members a chance to review the issues in more detail. Applications with signifi- cant imlzact s should be publicized in the newspaper in advance of the HPC meeting, to inform the public of pending decisions. This procedure should be in addition to the standard public notice as a means of getting advance information to interested citizens so to improve their input opportunities. Expiration on HPC Approvals In the process of reviewing a proposal the HPC considers compa- tibility of design with the existing conditions of surrounding properties . If the surrounding area changes in the interim between HPC final review approval and construction of the project , then the approved design may no longer be as suitable as it had been. A sunset clause ( i. e. , three year time limit ) on 41 HPC approvals within which time plans must be submitted to the Building Department sufficient for issuance of a building permit should be implemented. 1 Historic District Development Guidelines The HPC' s guidelines for rehabilitation and new construction need to be updated to give better guidance to both the HPC and property owners applying for review. The HPC and Planning Office are presently revising the guidelines with the help of the University of Colorado ' s Graduate Architecture Program. The revised guidelines will address in greater detail the various architectural elements within the groupings of : a. new buildings in the historic commercial areas; b. existing buildings in the historic commercial areas; C. new buildings in historic residential areas; and d. existing buildings in the historic residential arE!as. Due to the diversity of architecture in Aspen and the continuing philosophy to discourage replication of Victorian architecture, such guidelines should given better direction for the type of restoration, renovation and new construction considered most appropriate. The new guidelines format will also be better suited for HPC review if historic districts are expanded. A number of specific restoration and renovation issues will need to 42 0 • be discussed in the context of the guideline statements prior to their adoption by the Historic Preservation Committee. For example, the issue of authentic restoration versus renovation for certain classes of structures should be addressed. Demolition and Moving Review There are a number of structures inventoried in 1980 but not designated that have been demolished. Five structures listed in the 1980 Inventory were identified to have been demolished as of March, 1986 . This loss has not been monitored or reviewed and represents a large threat to Aspen' s old buildings in the future due to the large number of structures not designated. A permit for demolition or moving a structure to another site should not be issued for any structure evaluated to have notable, excellent or exceptional significance on the 1980 Inventory, as updated, without HPC review. This change could be accommodated through a code amendment to Section 24-9 . Individual Historic Designation The 1980 Inventory of Historic Sites and Structures has been very useful in developing the Historic Designation system which includes 85 individually designated structures and two districts. There are still a large number of inventoried properties not designated ; and the number of structures designated should be increased. The present Municipal Code only gives property owners the incentives for rehabilitation if structures are individually 43 listed as historic. The HPC needs to look at some of the outstanding modern residences by Bayer, Benedict and other :recent architects for designation to ensure preservation. Expansion of Historic Districts Through the discussions with the Historic Preservation Committee, Planning Commission and City Council, the notion of expanding the historic overlay districts has received considerable attention, including both support and opposition. Limited expansion into mainly historic residential neighborhoods has significant implications for the review of renovation to old buildings, whether the owners desired designation or not . Review could be accomplished for all new structures "in-filling" the blocks of the West End or other neighborhoods brought into historic districts. Expansion of HPC review to a Citywide function would totally transform the reviewing body' s present mandate to examine for historic preservation objectives, into overall architectural review. It is likely that a new architectural review body would need to be created to accomplish this task. This body would need to be fully integrated into the overall land use review process in Aspen, and would have significant time and cost effects on the development community. In either case, more study is necessary to evaluate the effects of district expansion. The discrete expansion into residential neighborhoods can be examined in the context of a proposed amendment to the zoning map. The City-wide architectural review concept requires a more thorough study of 44 the ramifications on land use, scale, aesthetics and necessary revisions to Aspen's development guidelines and review proce- dures. Growth Management Quota Exemption For Historic Preservation The Growth Management Quota System exemption (b ) of Municipal Code Section 24-11 .2 allows for the enlargement of, or change in use of a structure having individual historic designation. This exemption has been an effective positive incentive for making improvements to historic structures, but has been an issue of controversy . The incentives for Historic Preservation provided by this GMP exemption are two-fold : 1 . The structures are exempt from competition for additions or changes in use ; and 2 . The exempted project is not subject to Planning and Zoning Commission or City Council review unless some other review process applies (i. e. , conditional use, PUD amendment ) . The first incentive has played a very positive role in encourag- ing restoration and renovation activity . There are clear procedural and economic benefits available for owners of individ- ually designated historic buildings not needing a GMP allocation to accomplish a project . The second incentive - absence of Planning Commission or Council review - may encourage historic 45 preservation at the expense of other land use consideration. An historic preservation project might entail environmental, neigh- borhood compatibility , public service and other impacts that would not be addressed. While some favorable treatment in development impact mitigation might be appropriate for historic structures, the absence of Council or Planning Commission review may deny the opportunity for any chance of such mitigation, and this seems contrary to the intent of the GMP system. Even the employee housing GMP exemp- tion, which is another incentive for a high priority community goal , requires a two-step P&Z/Council approval process. The historic preservation exemption may be too broad and should include review by at least one of the two bodies. The consensus of the Planning and Zoning Commission was that change to the GIMP exemption is not appropriate, and therefore no action is recom- mended . Historic Structures On Main Street West Main Street has a predominant underlying zoning of 0-Office with some L-3 lodge zones and the Public zone (Pitkin County Library) . The Main Street Historic Overlay District (see Figure 3) incorporates all of West Main Street from Monarch to SE�venth Streets. Sixteen (16) structures have been individually desig- nated, while some thirty-five (35) structures in total were evaluated to have historic significance in the 1980 Inventory . 46 It is obvious that Main Street is one of the areas of greatest historic importance in the City, and that the historic structures contribute a great deal to maintaining the mixed residential boulevard feeling of the street . The historic character of Main Street is increasingly threatened by such factors as: loss of cottonwood trees, dilapidation of Victorian houses, discordant commercial and lodge facilities, excessive traffic, dust, and lack of continuous sidewalks for convenient pedestrian access. Nonetheless, Main Street remains visually one of the most interesting streets in Aspen and contains some of our finest Victorian and modern architecture. It may be appropriate to examine the expansion of conditional uses allowed in the Office zone . Appropriate rehabilitation of historic structures and greater economic vitality to help reverse trends towards deterioration should be encouraged. For example, bed and breakfasts, mixed commercial/residential uses, public and quasi-public buildings, small theaters, camera shops, music stores and small groceries could be considered. The Office zone conditional uses are the collection of existing uses at the time of rezoning in 1975-1977 . Other low-impact commercial uses may be equally appropriate, provided that Main Street is not turned into a commercial shopping district , with attendant traffic, parking and visual impacts. 47 Expanded uses and the transfer of development rights for out- standing architectural structures should be looked at when the Land Use Element of the Comprehensive Plan is developed. An update of the Main Street study of the 1970 ' s should be completed to develop a detailed plan for the future image of our entrance to town. The code listing of permitted and conditional uses should be analyzed in the Code Simplification effort underway . Landscape improvements should be studied in conjunction with land use, transportation, and historic preservation. Street lighting, decorative lighting of trees and buildings, signage and outside uses are other important factors that shape one ' s impressions of Main Street, worthy of further study and possibly revised regula- tions and plans. It seems clear that the long-standing policy of preventing Main Street from becoming a commercial strip should be maintained. It also appears reasonable to maintain current restrictions regard- ing FAR, set-backs, height restrictions, and requirements pertaining to off-site parking. Capital Budgeting for Historic Preservation Local government should take an active investment role to help realize the community ' s objectives of historic preservation. The following discussion deals with maintenance of and improvement to public buildings, street narrowing, a tree planting program, 48 commemorative placques program, facade easement dedication and a revolving loan fund. Maintenance and Improvements to Public Buildings Restoration of the Pitkin County Courthouse, on-going since the early 1970s, is one of the most authentic and highest quality restorations in the community. It is appropriate that this outstanding structure has been so carefully treated as the Courthouse is a symbol of the City and County ' s history . Internal renovation is continuing to occur so to better serve the needs of the County and joint City/County operations. The present high level of maintenance given the Courthouse should be a high priority budgeting item for the years to come. The Wheeler Opera House is another excellent restoration in Aspen, recently accomplished through City of Aspen funding and private contributions. This structure also deserves commitment for continued high level maintenance. Plans for the renovation of City Hall are being developed at this time. Privatization of the building and construction of an annex are being considered. While the main objective is better internal space utilization, the exterior of the building should be restored to ensure its structural stability . 49 • 0 The Stallard House is an important property owned by the Aspen Historical Society. The Society has identified restoration. needs for this structure and is working on a master plan for the site to accommodate more buildings for museum functions. A Ski Museum would be a major historical, cultural and tourist resource for the community. This museum should be built on the Lift 1/Willoughby Park site or on the Stallard House grounds, as is determined to be the most appropriate place. Street Narrowing Prior to the 1960s, there were no paved streets in Aspen except for Main Street . Rights of way generally consisted of relal_ively narrow dirt streets and a wider band of vegetation. Cottonwoods fed by irrigation channels composed many streetscapes . Since that time, streets have been widened and paved throughout the community. This innovation allowed for more traffic and parking and easier snow removal, however, it generally detracts from the small town or village scale of streetscape. Many streets do not presently carry (or are expected to carry) so much traffic as to require the present street widths. Whenever consistent with other community transportation and land use plans, wide street pavement should be narrowed, the irrigation ditches restored, and cottonwood trees planted. Neck-downs and planter islands can achieve some of the same purpose. It may be possible to experi- ment with neckdowns on a temporary basis. Street narrowing plan 50 i • should be consistent with transportation, bicycle trail and land use plans. Tree Planting Program Cottonwoods and spruces appear to be the trees historically planted in Aspen. They have both grow well here and contribute a great deal to the sense of scale and ambience of the community . At the present. time the City Parks Department operates a small nursery and planting program for placement of trees on the Golf Course and other City property. There should be an expanded cottonwood and spruce nursery and planting program for public rights-of-way as well as replacement of old trees on private property . Consultation should be sought regarding what type, if any, irrigation is necessary to keep the trees healthy . This program is necessary because of the loss of trees over the past several years. Commemorative Placque Program A number of outstanding restorations and some modern buildings have recently been completed in Aspen which the Historic Preser- vation Committee would like to commemorate . Brass placques could be placed on those buildings to show the community' s appreciation for the good work . This small act would do a great deal to demonstrate the City's commitment to historic preservation and provide an important education service . 51 J 1 Facade Easement Dedication A facade easement program by which historic facades are donated to the City of Aspen, the Aspen Historical Society, or another preservation organization set up for such donations, should be investigated. By donating a preservation easement, the property owner may qualify for significant tax benefits, such as a charitable contribution deduction for federal income tax pur- poses . Property owners may continue to use or live in the structure or convey it to a successive owner, notwithstanding the conveyance of the easement interest in the property . The holder of the easement benefits by being granted the right to enforce in perpetuity the owner ' s maintenance of the property in accordance with specified standards at the owner' s expense. Revolving Loan Fund The City or an assignee of the City could establish a revolving loan program for the purpose of financing restoration work that meets specific program criteria of historic preservation. The mechanics of such a program as well as the availability of local and non-local funding should be investigated. An attractive feature of both the facade easement and revolving loan fund programs is that they give positive incentives to residential rehabilitation. Most of the City Zoning Code incentives and the federal tax incentive program apply mainly to commercial struc- tures. 52 State and Federal Incentives for Historic Preservation The Colorado Historic Society is a major force in the State behind historic preservation and offers technical assistance and grants. State legislative action would be necessary to allow for either state of local government tax incentives for preservation. Eligibility for benefits and special consideration in federal programs generally depend upon listing on the National Registry of Historic Sites and Places. At the present, the income tax credit is one of the main federal tax incentives, although the credit has dropped from previous years from 25 to 20 percent . The City is coordinating a National Registry nomination project which should help avail more properties to the advantages of being listed, as well as promote local preservation. Open Space, Transportation and Land Use It has been demonstrated through this Element that there are numerous associations between historic preservation, transporta- tion and open space and land use issues. The historic scale of Aspen is defined in large part by the surrounding mountain edge and meadow open space and should be protected. Street narrowing and cottonwood planting suggestions are also open space provi- sions. Land use in the commercial core and on ruin Street needs to be further analyzed considering historic preservation objec- tives . bjec- tives . In short, the Open Space, Transportation and Land Use Elements need to be coordinated with this Element . 53 � � 'rte a Z r Introduction The implementation chapter of the Historic Preservation Element includes recommended actions to address the existing and future needs of the community regarding historic preservation. The actions described in this section are broken into the categories of : Code amendments, HPC Operations and Procedures, Capital Budgeting, Information Programs, and Historic Preservation Studies. This plan has become focused on specific implementation efforts because of the relative coherence of the tools in place at the present time . In effect , the Plan is to continue most of the present programs, and to fine-tune the City Code, HPC functions and information systems. Capital budgeting suggestions introduce some new activities for the City of Aspen and should be consi- dered in the Land Use Element and Capital Improvements Plan. To the extent that local historic districts are expanded, the City may need to increase staffing to HPC and rework the composition, responsibilities and compensation to the Committee. Code Amendments Color and Illumination The Historic Preservation Committee wishes to initiate a Code amendment to Section 24-9 of the Municipal Code to add exterior colors and illumination to the HPC review and approval authority . 54 c The HPC Guidelines would also need to be amended to include the criteria of review. Demolition and Removal Review A Code amendment should be initiated to give the HPC authority to review any plans to demolish or move buildings identified on the 1980 Inventory of Historic Sites and structures (as updated) prior to the Building Department issuing a demolition permit . In effect, this amendment would give all structures on the Inventory a first level designation status for demolition review only. Floor Area Ratio Revision of the FAR calculation or implementing another mechanism to limit bulk of new single family or duplex structuees should be studied to determine if a higher degree of neighborhood compati- bility can be achieved . Individual Historic Designation More structures on the inventory and some outstanding :modern structures should be individually designated in order to protect these structures and provide the incentives available to those properties. Historic District Expansion With a track record of success, expansion into more areas should be undertaken. Limited expansion into the Hallam Lake/Community 55 Capital Budgeting Public Buildings As part of the general renovation project , City Hall ' s exterior should be restored as acceptable to the Historic Preservation Committee and the National Trust for Historic Sites and Struc- tures. Exterior alterations to the County Courthouse should continue to reinforce the building' s fine historic appearance . Plans for a ski museum should be developed. Street Narrowing Neck-downs of selected streets in Aspen' s historic residential neighborhoods should be implemented at first on a trial basis, if found through the land use and transportation elements. If the trial project is successful, the narrowing of streets program should be accomplished through special improvement districts. Tree Planting A cottonwood and spruce nursery should be financed by the City, or such services contracted to private farmers, for the replace- ment of old trees on public rights-of-way and private property . Irrigation ditches and other systems should be constructed and maintained as necessary . The City Parks Department should be responsible for this program. 57 Commemorative Placques City Council should appropriate funds for the purchase of brass placques to be placed on outstanding historic buildings as selected by the Historic Preservation Committee. As an alterna- tive, paper certificates of appreciation for framing could be issued by the HPC to be hung inside the building. Informational Programs Update City Inventory of Historic Sites and Structures The Planning Office and volunteers from the community should update the 1980 Inventory of Historic Sites and Structures. This update is particularly important if the basis of demolition review is whether or not the structure is listed in this inven- tory. Restoration and Renovation Know-How The Aspen Historical Society should create in its archives a reference library of restoration techniques and materia7Ls to assist local homeowners, builders and architects. Assistance to the Aspen Historical Society The City of Aspen should provide increased financial assistance to the Historical Society as compensation for research assistance and for maintaining this public amenity. 58 Church residential area should be a short-term priority, so to protect the changing character of this neighborhood. Recommended in 1980 were three additional historic districts beyond the Commercial Core and Main Street. They are West Bleeker/Hallam Street, Hallam Lake and Community Church (see Figure 3) . These districts should be reexamined and considered for implementation by phases. Conditional Uses in Office Zone The conditional uses for individual historic structures in the Office zone should be examined for the objective of giving more use options for the preservation of vain Street historic build- ings. Historic Preservation Committee Operations and Procedures Development Guidelines The HPC should use the suggested guidelines prepared by the University of Colorado student team as a basis to revamp the Development Guidelines . The new Guidelines should then be adopted by the Committee. Review and Application Procedures An application form with instructions for applicants should be developed to the satisfaction of the HPC and routinely distri- buted to applicants by the Planning Office . 56 Historic Preservation Studies Main Street The Land Use Element of the Comprehensive Plan should include a detailed study of Main Street, taking account of historic preservation objectives and needs as discussed in this Element . Expansion of the Historic District to Encompass the Aspen Townsite and Early Additions A study of major historic district expansion should be conducted to examine the review criteria, review body set-up, staffing, and land use implications associated with the proposal . Facade Easements, Transfer of Development Rights and Revolving Loan Fund Further study is needed to determine the need, financial require- ments, and implementing organization for a local facade easement, revolving loan, or transfer of development rights program . x.hpc 59