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8.0. SR 10-13-2003TO: FROM: DATE: SUBJECT: Item 8. MEMORANDUM Mayor, City Council and Heritage Preservation Commission Stephen Rohlf, Building and Environmental Administrator October 13, 2003 Joint Meeting Topics Included with this packet is a copy of the Section of the Elk River City Code of Ordinances that establishes the Heritage Preservation Commission (HPC) and spells out its powers and duties. Also attached is a brief written history of Elk River. The following comments have been provided to give a brief background for the discussion items for the joint City Council/Heritage Preservation Commission: Archaeological Modeling and Literature Search As the Council is aware, the HPC received a federal grant through the State Historic Preservation Office to conduct citywide archaeological modeling and an associated literature search. The contract for this work has been awarded to St. Cloud State University. Professor Richard Rathaus of St. Cloud State will be at Monday night's meeting to discuss this work. Much like a context study is the foundation for compiling a written history of the city, the archaeological modeling and literature search is the foundation for preservation planning and any further investigation of archaeological site in Elk River. The long-term hope is to partner with St. Cloud State in investigating the remains of the city's original milling site by the dam. A context study and an archaeological modeling/literature search are the two basic building blocks of all future historical work. Attached to this memo is a copy of the State Preservation Plan goals, which the city is charged with accomplishing within its jurisdiction. Archaeological modeling and an associated literature search help in accomplishing goals 2 and 5 of that plan. Oral Interviews/Written History Due to a lack of funds and time, the HPC had to prioritize their efforts. The availability of grant money and the tremendous development pressure the city is facing, made the archaeological modeling and literature search more urgent than compiling a written history. This latter project is not forgotten however, just postponed. The HPC has learned of an extensive set of audiotapes from interviews of prominent local figures, many of who are now deceased. A former Elk River teacher, Art Hennington, had his student do these interviews for class credit. Mr. Hennington is willing to provide these tapes to the HPC. These tapes will be a great asset to the HPC, when they return to the task of compiling a written history of Elk River. Downtown Revitalization Project To date, the HPC has made recommendation to the HRA on the historic significance of the buildings included in the study area for Downtown Revitalization Project. Their recommendation was based on the findings in the City of Elk River context study and local significance. The HPC has also provided comments on the Downtown Architectural Standards and proposed language regarding the Downtown Area in the city's Comprehensive Plan. Staff feels it is appropriate for the City Council and the HPC to discuss any future HPC involvement in this process. Historic Designation One of the dudes of the HPC is to make recommendations to the City Council regarding designation of Historic Preservation Sites. It would be good for the Council and HPC to discuss what designation means and what sites might be appropriate for designation. ADMINISTRATION § 2-214 Sec. 2-135. Applicability of state and fed- eral law. Nothing in this division is intended to violate, supersede, or conflict with any applicable state or federal law regarding conflicts of interest in pub- lic employment or disclosure requirements. (Ord. No. 99-33, § 2(220.08), 12-20-1999) Secs. 2-136--2-160. Reserved. ARTICLE IV. FINANCE* (RESERVED) Secs. 2-161--2-190. Reserved. ARTICLE V. BOARDS AND COiVIM/SSIONS DMSION 1. GENERALLY Secs. 2-191--2-210. Reserved. DIVISION 2. HERITAGE PRESERVATION COMMISSION1 Sec. 2-211. Established. A heritage preservation commission for the city is hereby established. (Code 1982, § 215.00) State law reference-Heritage preservation commission authorized, Minn. Stats. § 471.193. Sec. 2-212. Membership; officers. The heritage preservation commission shall consist of seven members appointed by the city council for terms of three years. The last day for the term of office of each member shall be the last day of February; however, all members may con- tinue service until either reappointed or replaced by the city council. Avacahcy shall be filled by the *Cross references--Any ordinance promising or ~uaran- teeing the payment of money or authorizing the issuance of bonds or other instruments of indebtedness saved from repeal, § 1-12(5); taxation, ch.70. State law reference--City taxation and finance gener- ally, M_inn. Stats. § 412.241 et seq. tState law reference--Municipal heritage preservation, Minn. Stats. § 412.193. city council for the remainder of the term. The members of the heritage preservation commis- sion, by a majority vote, shall elect one of the appointed commissioners at the first meeting of the year to serve as chair and one to serve as vice-chair. Commission members must be persons with demonstrated interest or expertise in his- toric preservation and must reside within the city. The heritage preservation commission shall in- clude, if available, a member of the Sherburne County Historical Society. (Code 1982, § 215.04) State law reference--I-Ieritage preservation commission membership, Minn. Stats. § 471.193, subd. 5. Sec. 2-213. Purpose. The heritage preservation commission is estab- lished to review and make recommendations to the city council on issues pertaining to the histor- ical, archaeological, engineering, and cultural her- itage of the city. The commission shall participate in the preservation and acquisition of the city's heritage and historical sites. (Code 1982, § 215.02) Sec. 2-214. Powers and duties. The heritage preservation commission shall prepare, hold hearings on, and recommend to the city council such plans, programs, and policies as it deems necessary to carry out the purposes of this division. Such powers shall include, but are not limited to, the study of and recommendation to the city council on the following: (1) Work for the continuing education of the citizens of the city with respect to the historic and architectural heritage of the city. It shall keep current and public a register of designated heritage preserva- tion sites and areas. (2) Conduct a continuing survey of all areas, places, buildings, structures, or similar objects in the city which the commission, on the basis of information available or presented to it, has reason to believe are, or will be, eligible for designation as her- itage preservation sites. (3) Solicit gifts and contributions to be made to the city and assist in the preparation of CD2:ll § 2-214 ELK RIVER CODE applications for grant funds to be made to the city for the purpose of heritage pres- ervation. (4) Recommend accepting the services on a permanent or part-time basis of technical experts and other such persons as may be required to perform its duties. (5) Make recommendation that an area, build- · 'lng, district or object be designated a heritage preservation site. (6) Review and make recommendations rela- tive to requests for heritage preservation site alteration permits. (7) Recommend making application to the National Re~ster or the Minnesota His- torical Society for the designation of a historic site or district. (8) Make recommendations on the acquisi- tion of sites eligible for designation as a heritage preservation site by ~ft, negoti- ation, or eminent domain as provided for in Minn. Stats. ch. 117. (Code 1982, § 215.06) Sec. 2-215. Meetings and rules of procedure. The heritage preservation commission shall meet at least four times each calendar year, at such time and place as the. commission shall determine. Notice of the commission meetings shall be communicated to the members, posted at city hall, and published in the city's official news- paper at least three days prior to the meeting. Except as provided in this division, all commis- sion meetings shall be governed and operated pursuant to Robert's Rules of Order, Newly Re- vised (ninth edition) and open to the public. (Code 1982, § 215.08) State law reference--Permissible powers for heritage preservation commission, Minn. Stats. § 471.193, subd. 3. Secs. 2-216--2-230. Reserved. DIVISION 3. P.kRK AND RECREATION COMMISSION* Sec. 2-231. Established. A park and recreation commission for the city is hereby established. (Code 1982, § 216.02) Sec. 2-232. Membership; officers; compensa- tion of members; training courses. (a) The park and recreation commission shall consist of eight members appointed by the city council for terms of three years each. All terms shall end on the last day of February; however, commissioners shall hold office until their succes- sors have been appointed. The terms of the mem- bers shall be staggered so that no more than three terms of office shall expire at one time. All ap- pointments shall be made by the city council and a vacancy shall be filled by the city council for the remainder of the term. Officers of the park and recreation commission shall consist of chair, vice- chair and secretary. The chair shall preside at all meetings of the commission if present, and per- form all other duties and functions assigned by the commission or the city council. The vice-chair shall perform these duties in absence of the chair. If a vacancy occurs in the chair office, the vice- chair shall assume the chair's duties for the remainder of the year and a new vice-chair shall be elected by the commission at the next sched- uled commission meeting. A quorum shall consist of a majority of the sitting members. Each mem- ber of the commission shall be a resident of the city. (b) The members of the commission shall serve without pay but may be reimbursed for actual expenses incurred while performing duties as a park and recreation commission member. (c) The commission members shall be encour- aged to avail themselves of training courses of- fered by the city, state, and other governmental units and agencies, and the city council shall budget for the reimbursement of expenses in- curred in training each year. (Code 1982, §§ 216.06, 216.08, 216.10) *Cross reference--Parks and recreation, ch. 54. CD2:12 A BRIEF HISTORY OF ELK RIVER By Stephen Rohlf May 17, 2000 The last glacier in Minnesota heaped up coarse materials in front of itself as it advanced across the state like a giant bulldozer. When it retreated, it left behind a band of rolling hills made up of sand and gravel running diagonally across the state from northwest to southeast. This band of hills, called terminal moraine, are forested with hardwoods. Elk River is situated in this terminal moraine, which is the reason why gravel mining is so prevalent within the city and much of the area is not considered good farmland. The finer materials deposited to the south of the terminal moraine, called an outwash plain, is typified by prairie habitat. Elk River is located on the edge, between the woods and the prairie. This natural boundary between prairie and woods was also the boundary between Indian nations. As the Dakota retreated southward from the advancing Ojibwa nation, clashes occurred. Two battles between these enemies took place where the Elk River meets the Mississippi River in 1772 and 1773. Both tribes ceded the area of land that includes present day Sherburne County to the United States in 1837. The English translation of the Ojibwe name for the Elk River is "Double River", so named because it paralleled the Mississippi River. Whites called it the St. Francis River. Nicollet's map of 1843 called the Elk River's northern most tributary the St. Francis River, as it is known today, and used the Ojibwe name for the Elk River. Because of the large herds of woodland elk in the area, Zebulon Pike named it the Elk River. From 1850 on the river has been called the Elk River. In 1846, David Faribault built a trading post on a bluff north of the Elk River over looking the Mississippi River. In 1848, Pierre Bottineau bought the trading post from Faribault. The site was a good location for business being at the conjunction of two rivers and with a branch of the Red River Trail passing nearby. Ard Godfrey, a native of Orono Maine, saw the potential of the waterpower in Elk River and built a dam and saw mill in 1851. The lake resulting from this dam extended from approximately the present dam to Orono Cemetery Point and was called the Mill Pond. Pilings from what is believed to be part of the original dam or an associated bridge can be seen just down stream from the present dam. Gristmills and also a starch factory that took advantage of the potato fields to the west of Elk River were built to serve the burgeoning agricultural economy in the latter half of the 19th century. In 1855, the area by the dam was platted and the town of Orono (known as Upper Town) was created. With the military road to Fort Ripley passing nearby the population continued to grow. Between 1849 and 1857, the population expanded from 7 people to 134 and the first schoolhouse was built. In 1872, the Village of Elk River, which included the original town of Orono, became the Sherburne County seat. The Orono-Elk River area continued to grow until it reached a population of 723 in 1860. The Civil War slowed this growth, but it exploded afterward. By 1870 the population had swelled to 2,050. The early settlers coming to Elk River were typically from New England. The trend after 1870 was toward settlers from Northern Europe. Around this same time, the recently completed railroads began to compete with the rivers as the main focus of transportation and Lower Town (the present historic business district of Elk River) became the focus of commerce. By the mid-1870's, Lower Town had approximately 18 businesses along State Street, a two block stretch paralleling the north side of the tracks in the approximate location of today's Railroad Drive. Lower Town suffered a series of fires during the 1880's and 1890's, including a major fire in 1898. In an attempt to avoid future fires, the "Brick Block" was built. This is the area between present day US Trunk Highway 10 and Main Street on the west side of Jackson Avenue. With the Brick Block, what is now considered the historic downtown area of Elk River became the center of commerce In the 1890's, another ethnic group moved to Elk River Township. The Hungarians settled in the area north of the Village of Elk River near what is now US Trunk Highway 169 giving it the unusual distinction of being the only documented Hungarian farming community in the United States. The Mill Pond dam was destroyed in an ice storm in 1912. By this time agriculture had replaced lumber as the basis of Elk River's economy. However, hydropower gave a new incentive to dam the Elk River. A new dam was completed late in the year 1915, which created the four lobes of Lake Orono as we know it today. In early 1916, the Village of Elk River received electricity for the first time. However, it would not be until after World War II that the entire Township of Elk River would receive electricity. The Red River Trail crossing the Elk River in the location of the dam became the Jefferson Highway in the early 1920's. The Sherbume County Star News (now the Elk River Star News) reported that on Labor Day in 1920, more than 4,000 cars passed over a newly constructed bridge next to the dam. Being a major route between the Twin Cities and the lake country to the north and west, the Jefferson Highway was one of the first paved highways in the state. Charles Babcock, a native son of Elk River and also the first Commissioner of Highways for the state, implemented a visionary plan to "get Minnesota out of the mud". His plan was to build a network of paved roads throughout the state to improve transportation and consequently the state's economy. His plan became a model for the rest of the nation. The military road to Fort Ripley stayed north of the Elk River until it crossed it at a rapids near Big Lake Township. Also in general vicinity of this crossing, a man named A. W. Jesperson did massive amounts ofrerouting of the Elk River in the mid 1920's. His vision was to create a recreational resort area and he platted the Camp Cozy Additions. Cement pillars and other works can still be seen amongst the many backwaters of the Elk River that resulted from Mr. Jesperson's work. In the late 1930's, work began to reroute the Jefferson Highway, now as US Trunk Highway #10. Heading east to west, Old Highway 10 followed the same route it does now until it reached 4th Street by the Dairy Queen. It then followed 4th Street to Main Street and crossed the Elk River at the dam bridge. This work was postpone due to World War II and was not completed until 1948. Jackson Avenue north of Highwayl 0 used to be the location of US Trunk Highway 169. The former intersection of Highways 10 and 169 was the only one in the city with a stoplight. On major travel weekends the traffic would back up towards Anoka as far as the weigh station. Work on bypassing Elk River with Highway 169 began in 1961. In 1968, work began on the new route for Highway 101 between Elk River and Rogers. Prior to this new route, Highway 101 snaked through the countryside and had many sharp turns. The construction of Interstate 94 through Rogers and the recent upgrading of Highway 101 to four lanes will increase Elk River's growth rate. In 1978, the Village of Elk River and the Township of Elk River consolidated to create the City of Elk River. The result was one of the largest land based cities in the state at 44 squar.e miles. The City of Elk River had a mild building boom in the late 1960's/early 1970's. The city's population growth then slowed until the mid-1980's, when it exploded. The City of Elk River now has a population of over 17,000 people. Once again, transportation is dictating where commercial growth takes place as new businesses spring up along the Highway 169 corridor. Besides transportation, energy has always played a major role in shaping Elk River. The first rural nuclear power plant in the United States went on line in 1960 at the current Great River Energy site in Elk River and the city was nicknamed "Atomic City". Intended only as a demonstration site the power plant was shut down and dismantled after several years of successful operation. The Great River Energy power plant was converted to burn refuse derived fuel in the late 1980's. This innovative source of energy being located in Elk River was one of the factors that help the city receive the designation of "Energy City" from the Minnesota Environmental Initiative in October of 1997. As such, the city will be the geographical focal point for the energy industry to demonstrate renewable energy and energy efficient technologies that are on the cutting edge of science. The distinction of Energy City is unique in the world to Elk River. Elk River is the fastest growing community in the fastest growing county per capita in the state. It will be a challenge in the future to preserve Elk River's small town atmosphere and its unique heritage. Working Together: A Preservation Plan for Minnesota's Historic Properties GOALS AND STRATEGIES FOR 2000-2005 Education. Partnerships. Relevance. Those words characterize the priorities embodied in this statewide preservation plan: · education, because greater public awareness and understanding are key to addressing the critical needs of preservation in Minnesota today; · partnerships, because historic preservation is everyone's responsibility and its success depends on working together to advance a shared agenda; · relevance, because historic preservation speaks to broad issues facing the state in the years ahead--building healthy, livable communities; promoting smart growth; protecting the environment and our cultural resources. The general goals set in the 1995 plan remain valid. With some modification, they will continue to guide our work over the next five years. Those goals, and some strategies for achieving them, are outlined below. Strategies from the earlier plan that have proven effective will continue to be pursued; other strategies have been updated to reflect new priorities. These strategies are intended not as an exhaustive list but as suggestions to clarify direction and identify possible roles for Minnesota's many preservation partners. It is up to each of us with a stake in preserving our historic resources to share in advancing this preservation agenda for Minnesota. For some of us, that may mean shaping our work plans to include additional strategies, specific objectives and measurable outcomes. For others, it may mean simply participating in programs initiated by other preservation partners. In any case, accomplishing the crucial work of historic preservation will call for a redirection of human and financial resources and continued diligence by every preservation partner in addressing Minnesota's preservation needs. 1. increase community awareness of the value of Minnesota's historic resources. A. increase the visibility of historic preservation by such means as National Historic Preservation Week and Minnesota Archaeology Week, an annual statewide conference, recognition of successful preservation efforts and cultivation of relationships with the media. B. Develop and promote programs that encourage preservation education and reach new audiences--particularly elected officials at the county, municipal and township levels; people in the building trades; property owners and students of all ages. C. Promote use of the National Register of Historic Places by educators, communities and history professionals as a means to educate the public about the built environment. D. Strengthen the historic preservation ethic already present in many communities through interpretive programs. For example, hedtage tourism initiatives that tell the stodes behind our cultural resources can help build support for their preservation. E. Use the intemet and other new technologies to share information about the state's historic resources and historic preservation activities and accomplishments. 2. Encourage integration of historic preservation at all levels of planning. A. Assist federal, state and local agencies in becoming responsible stewards of the histodc resources in their care or those affected by their activities. Example: foster the development of comprehensive cultural resource plans that promote the consideration of histodc properties. B. Establish or strengthen state statutes and local ordinances to require a role for historic preservation in project planning. C. Urge planners and planning agencies to address historic preservation concerns throughout the course of their work, using consultations, participation in workshops and conferences, and committee representation at the state and local levels. D. Implement the management plans developed for special categories of histodc resources, such as Minnesota's underwater resoumes, agricultural histodc landscapes and University of Minnesota properties. 3. Expand the statewide network of organizations and individuals engaged in historic preservation. A. Strengthen the preservation advocacy role of statewide and local nonprofit organizations, from the Preservation Alliance of Minnesota to county and local historical societies to the growing number of grass-roots organizations tackling preservation issues. B. Encourage the creation of local hedtage preservation commissions and expand participation in the Certified Local Government program. C. Use new technologies to improve communication among organizations and individuals interested in histodc preservation. D. Strengthen consultation with Amedcan Indian people. Encourage tdbes to establish historic preservation programs and develop preservation expertise. E, Develop information and programs for owners of histodc properties to increase their participation in the preservation community. 4. Promote historic preservation as an economic development tool and provide economic incentives that encourage it. A. Gather and disseminate information to target audiences (e.g., state and local government officials, property owners, developers) about the cultural and economic benefits of histodc preservation, featuring preservation success stories. B. Foster a "preservation-friendly" environment for development projects involving historic properties, through public policy and education initiatives at the state and local level. Example: Work to amend the state's uniform building code to include provisions for historic building conservation. C. Promote use of existing incentive programs such as federal investment tax credits and facade easements. D. Initiate and support efforts to establish tax incentives at local, state and national levels by educating lawmakers and identifying leaders to carry forward a coordinated agenda. E. Expand and diversify histodc preservation funding sources, including nongovernmental sources, that will supplement increasingly limited public funds. Use education and outreach as a means to this end. F. Identify potential funding sources and a future home for a state revolving fund for histodc preservation. Properties particularly at dsk or those in pdvate hands where other assistance may not be available would benefit from such a program. 5. identify, evaluate and designate significant historic and archaeological resources. A. Conduct surveys at the state and local levels to address emerging issues and gaps in existing surveys. For example, the SHPO will concentrate its efforts on traditional cultural properties and historic landscapes both urban and rural. B. Designate histodc properties, including historic districts, to national, state and local registers to increase recognition and protection for the resources. Use Certified Local Govemment grant funds to conduct surveys and designate eligible properties at the local level. 6. Encourage appropriate management and treatment of historic resources. A. Promote use of the Secretary of the Interior's Standards and Guidelines for the Treatment of Historic Properties, particularly among property owners and those in the buildin.9 industries. B. Identify new uses for vacant or underused resources. The reuse study model employed by the SHPO explores the preservation potential for threatened resources within a realistic community and economic context. C. Use new technologies as well as traditional training methods to increase access to technical information and assistance in cadng for structural and archaeological properties, targeting owners of historic properties both public and pdvate. D. Encourage protection of histodc resources through tools such as preservation easements, cultural resource management plans, historic structures reports and design guidelines for local histodc districts. E. Advocate archaeological data recovery, historical documentation and/or architectural and engineering recordation as a means of preserving important information in cases when destruction of a histodc property cannot be avoided. Minnesota State Historic Preservation Office. Working Together: A Preservation Plan for Minnesota's Historic Properties. St. Paul: Minnesota Historical Society, 2000.