HRAB 11-18-08 Meeting AgendaTO:
FROM:
RE:
DATE:
MEMORANDUM
Historic Resources Advisory Board
Amber Powers, Planner I
November Meeting Agenda
November 12, 2008
COUNTY of FREDERICK
Department of Flanni._g aad De elopme �t:
540-/665-5651
FA 540/665-6395
The Frederick County Historic Resources Advisory Board (HRAB) will be meeting on Tuesday,
November 18, 2008 at 6:30 p.m., in the Board of Supervisors Executive Session Room* in
the Frederick County Administration Building, 107 North Kent Street, Winchester, Virginia.
The HRAB will discuss the following items:
AGENDA
1. August Minutes
2. Comprehensive Policy Plan Amendment
Please contact this office if you will not be able to attend the meeting. Thank you.
*PLEASE NOTE MEETING LOCATION
Access to this building is limited during the evening hours. Therefore, it will be necessary to
enter the building through the rear door of the Board Room. I would encourage Committee
members to park in the County parking lot located behind the new addition (accessible off of
Cameron Street).
ALP/bad
Attachments
107 North Rent Street, Su.te 202 • Winchester, Virginia 220601-5000
Frederick County Historic Resources Advisory Board (HRAB)
August 19, 2008
Board of Supervisors Executive Session Room of the County
Administrative building
107 North Rent Street Winchester, VA
Members Present: Rhoda Kriz (Chairman), Elizabeth Fravel (Vice Chairman), Gary Oates, Stacey Yost, Martin
Killingbeck Claus Bader
Members Absent: Mary Turner
Staff Absent: Maral Kalbain
Staff Present: Amber Powers
Agenda Items: Route 50 Commercial Development Property Rezoning application, Shenandoah Mobile CUP
Application, and Route 11 North Study Area's Potential Historic Preservation Priorities.
Call to order at 6:30 PM. The minutes of April 15, 2008 were unanimously approved with the addition of Mary
Turner's name to the attendance list.
Item One: The first item presented was the request for comments regarding the Route 50 Commercial
Development Property Rezoning application. Specifically, the HRAB was to evaluate the rezoning proposal's
possible impact on the potentially -significant historic properties immediately to the North of the property's frontage
along Sulphur Springs Road.
Major Points.
• The property's northern section runs along Sulphur Spring Road and lies across from the Carper — Wynn
House (04-1129) — identified as potentially significant and the Carper -Cunningham House (#34-1130).
These two homes are identified in the Rural Landmarks Survey Report for Frederick County Virginia.
* The applicant included a non -proffered GDP illustration of the property's potential design which showed
multi -tenant commercial spaces, however the applicant acknowledged that the property may also be
developed for a single tenant.
o It is noted that the proffers for this proposed rezoning were being revised and that the HRAB had not yet
seen these proffers. During the meeting, the applicant's representative submitted a copy of the proffers
which were not yet officially approved by the owner of the property, but would soon be.
• Chairman Kriz, with the support of other HRAB members pointed out that the HRAB would not be in a
position to issue a comment until members had received and reviewed an official copy of these proffers.
Concerns were voiced regarding the visual impact of this development on the historic sites immediately to
the North, and the impact on the visual character of Sulphur Spring Road itself. Despite the proffer to
protect the woodlands along Sulphur Spring Road with a preservation easement, the property's terrain is
such that the area to be developed may still be visible due to its elevation above the road's level. The
unofficial draft of the proffers presented at the meeting did include the designation of an additional
landscaped and fenced buffer as a means of addressing this possible issue.
• Ms. Krempa with some support from the group pointed out her preference to see the proffers include an
assurance of a multitenant design, and also stated her desire to see the development's buildings shifted
closer to the edge of Millwood pike in order to improve the streetscape.
After some discussion, HRAB members agreed that should the proffer official statement include the
woodland and stream preservation easement area as shown on the drawing, and should the landscaped
buffer with a fence also be included, the Board would be able to support the rezoning proposal. The
applicant agreed to supply staff with an official copy of the proffers as soon as they were available. Staff
would then forward the proffer language to the Board for review and approval via email.
Item Two: The second item presented was the request for comments regarding the Shenandoah Mobile CUP
Application for a 195 foot Cell Phone Tower on Redbud Road. Specifically, the HRAB was to evaluate the CUP
proposal's potential impact on the State -designated Scenic Byway: Redbud Road and on the surrounding area which
is designated as a Developmentally Sensitive Area (DSA) in the Eastern Frederick County Long Range Land Use
Plan, and is within view of protected portions of the Third Winchester battlefield.
Major Points:
r The applicant has completed a phase I archeological survey of the property, and received a comment from
DHR indicating that the tower would not cause any of the currently qualifying historic site's from no longer
qualifying for state or nation historic registry designations -
0 The group spent a great deal of time discussing the potential benefits of the tower in terms of added service
levels, while also the sensitivity of the proposed location.
0 Members did agree that an alternative location would be preferable to the currently proposed site. The
applicant's representative pointed out that the appropriate location for the tower was limited to a small area
and that there were no feasible alternative co -location sites. The group then inquired about the Millwood
High School site, but the applicant indicated that that site was beyond the radius that Shentel had defined as
a potential tower location area.
0 Puts. Krempa voiced here concerns about the visibility of the tower from protected battlefields, and
members also inquired as to whether there were any limitations on locating the tower along a scenic byway
or within the redbud agricuitural district. Staff pointed out that there were in fact no specific County
restrictions on the location of a tower within the agricultural district or along a scenic byway.
0 The group considered possible design options that could assist in minimizing the visual impact of the
tower, including paint colors, reduced height, and the option of disguising the tower as a flag pole. It was
decided by members that the flag pole option was not desirable.
0 Staff recommended that the Board consider the proposal in two parts, first, deciding whether a tower
should be located at the proposed site in light of the potential impact it may have on the surrounding area.
Then, staff suggested, if the Board should decide that the benefits of added service outweigh these impacts,
the HRAB should include a set of recommendations regarding the tower's height and design.
0 Members then further discussed the possible benefits of adde4d service, considered the applicant's ser4vice
improvement illustrations as well as the viewshed analysis documents. Some disagreement remained about
the appropriateness of the tower at the proposed location.
Action: Ms. Krempa recommended a vote on the motion stating that "the benefits, in terms of additional coverage
levels as shown in the applicant's coverage map, did not warrant the cost of the proposed tower's impact on the
area's viewshed." The motion was seconded, and passed by a majority vote. Based on this decision, the Board
forwent any further discussion on regarding methods of mitigating the visual impact of the proposed tower.
Item Three: The third item presented was a review of the Route 11 North Study area's potential historic
preservation priorities. In reviewing this area's long-range plan, the County requested the Board's opinion regarding
which sites should be identified as priorities for preservation in the future. HRAB members marked -up a large map
of the area, selection about half -a -dozen historic sites identified within the rural lands study which remain relatively
intact and particularly worthy of preservation.
Following this discussion, members briefly addressed the need for a meeting in the month of September, and agreed
that unless an application was submitted for review, the Board had no pressing need to meet.
Meeting was adjourned at 8:30.
Item # 2
Comprehensive Policy Plan .Amendment
Please find attached a copy of the revised Comprehensive Policy Plan amendment. This version
reflects the changes made as of October 27, 2008.
HISTORIC RESOURCES
CURRENT CONDITIONS
Frederick County has shifted in recent years from an agrarian community to one
that has seen strong residential growth and an expanding business base. As a
consequence of development and diversification, landscapes in Frederick County
have changed more dramatically during this period more than any other. New
residential communities have emerged in what were once rural areas, and
architectural styles have become more uniform. The number of historic properties
in Frederick County has declined as natural elements have degraded delicate
structures and materials and as population and development demands have
increased.
The Rural Landmarks Survey of Frederick County, a survey of the majority of
structures built prior to 1940 in Frederick County, was completed in 1992. It
documents over 1800 properties, concluding that many are historically significant.
Archaeological sites in the County have also been inventoried. Many of the
historically significant properties are recognized on the local, state, and national
levels. In 1992, Frederick County instituted an Historic Plaque Program that
recognizes local properties of historic significance. The County's Historic Resources
Advisory Board (HRAB) accepts nominations for the Plaque Program and chooses
new recipients based upon criteria adapted from the National Register of Historic
Properties criterion. Many of these properties are also listed on the Virginia
Landmarks Register and the National Register of Historic Places. The box to the
right provides a list of these structures which are recognized on the National and
State levels.
In addition to the many structures in Frederick County, six Civil War battlefields of
great national importance are located in the Frederick County and Winchester area.
More than 12,000 acres of battlefield lands maintain high historic character and are
enhanced by several fortifications and entrenchments. A partnership involving
Winchester and Frederick County government, the Kernstown Battlefield
Association, the Cedar Creek Battlefield Foundation and others is underway to
protect local battlefield sites and create a battlefield park network. The Frederick
County -Winchester Battlefield Task Force completed the Frederick
County -Winchester Battlefield Network Plan in 1996. The Frederick County Board
of Supervisors and the Winchester City Council adopted the plan.
The Historic Overlay Zoning District has been developed as an option for owners
who seek to protect the historic resources on their property. This option provides a
more regulated approach to the preservation of structures and may be appropriate
in areas seeking to establish a historic district. Currently the County has four
recognized historical districts: Newtown/Stephensburg, Opequon, Middletown, and
Bartonsville.
FREDERICK COUNTY COMPREHENSIVE PLAN
September 9, 2008 1
HISTORIC RESOURCES
The County has also identified rural community centers (villages) throughout the
County that have a strong rural and historical character. (See RURAL COMMUNITY
CENTERS. )
AGENCIES/C044',9ITTEES INVOLVED
Frederick County Board of Supervisors created the Historic Resources Advisory
Board (HRAB) to monitor, plan, Gid review the County's historic structures and
resources. The HRAB reviews all re -zonings and new developments within or near
any historic resource and recommends to the Planning Commission and Board of
Supervisors actions to protect these resources. Additionally, HRAB works to raise
awareness, gather information, and seek funding opportunities along with other
partnership groups involved in preservation work. They include:
Kernstown Battlefield Association
• Cedar Creek Battlefield Foundation
• Frederick County -Winchester Battlefield Task Force
• Shenandoah valley Battlefield Foundation
• Winchester -Frederick County Convention & Visitors Bureau (CVB)
• McCormick Civil War Institute of Shenandoah University
Fort Collier Civil War Center, Inc.
• Civil War Preservation Trust
• Winchester -Frederick County Historical Society
• Frederick County Cooperative Extension Service
• Frederick County Farm Bureau
FOCUs/DIRECTION FOR THE FUTURE
The next twenty years should see the remainder of unidentified historic sites and
archeological resources discovered and recorded. Sites that qualify as historic will
be added to an on-going inventory. Such an inventory will include archeological
surveys of properties surrounding known battlefields, encampments, trenches, and
cemeteries.
During the same period, priority sites for preservation will be identified and efforts
begun to preserve those of highest need. Methods and criteria for the preservation
of historic resources will have been developed.
Heritage tourism will be a strong component of Winchester -Frederick County's
tourism program, and efforts to develop the battlefield park network will be
FREDERICK COUNTY COMPREHENSIVE PLAN
September 9, 2008 2
HISTORIC RESOURCES
underway in partnership with the Shenandoah Valley Battlefield Foundation and
others.
The economic and cultural importance of historic resources will be promoted. In
combination with historic preservation and heritage tourism efforts, HRAB will
partner with local agencies, organizations, and other appropriate groups to provide
education sessions concerning preservation methods and programs.
COMMUNITY BENE=ITS
The value of protecting our historical resources is immeasurable. Once lost, historic
structures and areas cannot be replaced. They provide a sense of who we are and
where we have been. Our community benefits from a balance between surviving
historic resources and the new development occurring in this area. Community and
economic benefits follow a well-balanced development plan.
A battlefield park network in Frederick County and Winchester will provide
substantial economic and educational benefits and will create a much desired
avenue for heritage tourism. Battlefield parks act as a means of meeting the
County's growing need for green space and parkland by providing the opportunity
for recreational facilities within the Parks and Recreation Department.
Archeological sites, generally defined as areas 50 years old or older and having
physical remains of past human activities, are important to the development of
public education and heritage tourism programs. Further, they provide a more
detailed story of Frederick County's history.
Preserving battlefields and historic sites provides open spaces and scenic vistas.
Incorporating trails, such as the five miles linking Route 661 to the Regency Lakes
Community and Millbrook High School at the Third Battle of Winchester,
complements the pedestrian and bike component of our Transportation Plan.
Heritage tourism is designed to promote historic preservation and areas of natural
beauty in order to stimulate economic development through tourism. Heritage
areas are envisioned as discrete geographic areas or regions with a distinctive
sense of place embodied in their historic buildings, neighborhoods, traditions, and
natural features. Several areas in the County contain clusters of historic structures
and battlefields. Walking and driving tours provide connections among these
features and present visitors with a comprehensive approach toward understanding
the county's history. A link between the past and the present is formed by blending
these connections with new developments, specifically those that include additional
FREDERICK COUNTY COMPREHENSIVE PLAN
September 9, 2008 3
HISTORIC RESOURCES
buffers, pedestrian trails, interactive educational centers, and adaptive reuse of
historic properties.
Many structures exist throughout the county that could provide advantageous
cultural and recreational elements for residential and business developments alike
(See SUPPORTING MATERIALS.)
POLICIES% IMPLEMENTATION
As commercial and residential developments continue to locate and expand in
Frederick County, there is a need for balance to maintain the historic integrity, both
structurally and scenically, between surviving historic resources and landscapes and
new development. This balance can be achieved by recognizing both the current
development needs of the community and the historic and rural character of
Frederick County's past.
The County's role is to support protection, promotion, and preservation of the
existing and future inventory of Historically Designated Sites and Districts
(HDS&D), including historic battlefields, through ,planned and proposed
development(s), long range land use planning, economic development, incentives,
and enforcement.
POLICY: IDENTIFY AND RECOGNIZE HISTORIC RESOURCES IN THE LONG-RANGE PLANNING
EFFORTS OF THE COUNTY.
IMPLEMENTATION:
The Historic Resources Advisory Board (HRAB) will provide in developing
community area plans.
Use the Rural Landmarks Survey as a primary source for determining
properties and districts that qualify for official recognition.
Update and maintain the Rural Landmarks Survey regularly in order to keep
current the inventory of structures older than fifty years.
Develop, update, and maintain an inventory of archaeological sites and
cemeteries in Frederick County.
Require archaeological surveys to be conducted prior to development,
particularly any that involve battlefield areas, homesteads, Indian
encampments, and waterways.
FREDERICK COUNTY COMPREHENSIVE PLAN
September 9, 2008 4
HISTORIC RESOURCES
io Initiate and complete the application process for properties that are
potentially significant according to the criteria set forth by the National
Register of Historic Places Federal Program Regulations. (See SUPPORTING
IATERIALS. )
POLICY: COMPLEMENT ECONOMIC AND RESIDENTIAL DEVELOPMENT THROUGH THE PROTECTION
AND PRESERVATION OF THE COUNTY'S HISTORIC PROPERTIES, STRUCTURES, AND LANDSCAPES.
IMPLEMENTATION:
The Historic Resources Advisory Board (HRAB) will assist the Frederick
County Planning Departm ent by reviewing specific development proposals for
potential impact on historic components of the development site and
surrounding areas and making recommendations regarding mitigation.
® Development should include a comprehensive approach to historic
preservation that will result in a system of sites and battlefields dedicated or
protected in a coordinated fashion, such as the Battlefield Park Network that
preserves key sites, attracts tourists; and supports education.
Design standards for new construction should accommodate the historic
character of the villages while still promoting growth in the rural community
centers. Methods to protect, enhance and preserve the especially significant
sites should be incorporated in new development:
➢ Whenever possible, development materials should resemble those of
the historic properties nearby.
➢ Building materials, architectural features, open space, and landscaping
should seek to create a harmonious blend of new development
relevant to the historic setting.
➢ Adaptive reuses of historic structures located within the proposed
development should be considered.
➢ Monuments or historic markers may be appropriate on properties
where only the remnants of structures remain.
FREDERICK COUNTY COMPREHENSIVE PLAN
September 9, 2008 5
HISTORIC RESOURCES
POLICY: INCREASE THE REHABILITATION, ADAPTIVE REUSE, OR RESTORATION OF HISTORIC
STRUCTURES.
IMPLEMENTATICN:
• Study, develop, and adopt methods and criteria to identify historic resources
in need of preservation.
Develop regulations for reuse and rehabilitation of historic structures to
maintain character of community, both residential and business.
• Create incentives for private land owners to comply voluntarily with
Secretary of Interior's Standards for Rei iabiiitation. (See SUPPORTING
MATERIALS.) Incentives allowed by law for the rehabilitation, adaptive reuse,
or restoration of historic structures in the Historic Overlay Zoning District
should be considered.
• Utilize and promote Federal, State, and Local tax credits to encourage
rehabilitation of historic structures.
• Assist property owners in the application process for tax credits and listing on
the appropriate registers.
• Create land dedication methods, regulations, policies, and documents.
POLICY: CONSIDER DESIGNATION OF VOLUNTARILY OFFERED RURAL HISTORIC DISTRICTS THAT
CAN BE DEFINED AS SCENICALLY COHESIVE RURAL AREAS CONTAINING WELL-PRESERVED
COLLECTIONS OF HISTORIC BUILDINGS.
TLMPLEMENTATION:
Organize a comprehensive approach to analyzing and registering Historically
Designated Sites and Districts (HDS&D).
• Partner with Conservation Easement Authority to identify, protect, and
promote HDS&D.
• Create identifiable GIS coordinates for each HDS&D to assist with future
development planning.
• Create zoning, impact analysis and engineering requirements, conservation
easements, and tax incentives for voluntary and required protection of
privately owned HDS&D.
FREDERICK COUNTY COMPREHENSIVE PLAN
September 9, 2008 6
HISTORIC RESOURCES
Promote educating the public about the tax benefits of voluntarily submitting
privately -owned sites into historic districts and easements.
Identify HDS&D eligibility for State and/or National register(s). HRAB shall
assume leadership in making application to the appropriate register(s).
POLICY: INCORPORATE HISTORIC RESOURCE DEVELOPMENT IN AN EFFORT TO STRENGTHEN
HERITAGE TOURISM.
} MPLEMENTATION:
• Developments should incorporate and/or convert historic properties into
recreational elements, including pedestrian trails, parks, and museums.
Develop the Battlefield Park Network as a major heritage tourism component.
• Create dedicated pedestrian -sensitive trails, sites, and routes of interest that
will not adversely impact private property owners, as well as develop public
scenic byways.
® Permit events, reenactments, tours, and exhibits to attract visitors.
SUPPORTING MATtERIALS/RESOURCES
1. Historic Resources Advisory Board
2. Frederick County Historic Plaque Program
3. Virginia Landmarks Register (VLR)
4. National Register of Historic Places (NRNP)
5. National Register of Historic Properties
6. Rural Landmarks Survey of Frederick County (RLS) (1988-92)
7. Frederick -Winchester Battlefield Network Plan (1996)
8. Secretary of the Interior's Standards for Rehabilitation
FREDERICK COUNTY COMPREHENSIVE PLAN
September 9, 2008 7