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HomeMy WebLinkAboutbocc.res.005.2021RESOLUTION OF THE BOARD OF COUNTY COMMISSIONERS ("BOCC") OF PITKIN COUNTY, COLORADO, ENDORSING THE EMMA STORE BUILDINGS FUTURE USE RECOMMENDATION. RESOLUTION NO. 005-2021 RECITALS WHEREAS, Pursuant to Section 2.8.4 (Actions) of the Pitkin County Home Rule Charter ("HRC"), all matters not required to be acted upon by ordinance or formal resolution may be acted upon by informal resolution, and; WHEREAS, The Voters of Pitkin County and the Pitkin County Commissioners established an Open Space and Trails Fund for the purposes of preserving and providing open space and trails resources, and established an Open Space and Trails Board of Trustees to guide the expenditure of those funds. WHEREAS, The Open Space and Trails Program is charged with protecting open space, habitat, scenic view planes, water rights and recreational resources. WHEREAS, The Emma Store Buildings and Town Site represent an important part of Pitkin County's history, built in 1898 (approximately) and which the County acquired as an open space property in 2008 (ORD 019- 2008). WHEREAS, The Emma Store Buildings are the only Victorian -era commercial buildings within the County, and have retained a high degree of integrity and level of architectural detail leading to their designation to the Pitkin County Historic Register in 2009. WHEREAS, The preservation and stabilization of the three town site buildings (the store/east building, warehouse/west building and accessory building) has been further advanced using both County Open Space and Trails funding as well as State Historical Fund Grants to stabilize the building's exteriors, while the interior of the buildings unfinished for a future use. WHEREAS, The Emma Open Space Master Plan was approved by the Open Space and Trails Board in 2017, which included direction to assemble a Steering Committee of interested community members to formulate a recommendation for the future use of the town site buildings. WHEREAS, The Steering Committee, consisting of nine members of the public, has drafted a recommendation for the future use of the buildings, which has been recommended for endorsement by the Open Space and Trails Board at their January 4, 2020 meeting. The BOCC finds that it is in the best interests of the citizens of Pitkin County to approve this Resolution. NOW, THEREFORE, BE IT RESOLVED bx the Board of County Commissioners of Pitkin County, Colorado that it hereby adopts a Resolution Endorsing the Emma Store Buildings Future Use Recommendation and authorizes the Chair to sign the Resolution and upon the satisfaction of the County Attorney as to form, execute any other associated documents necessary to complete this matter. INTRODUCED AND ADOPTED ON THE 27TH DAY OF JANUARY, 2021. ADOPTED AFTER FIRST READING AND PUBLIC HEARING ON THE 27TH DAY OF JANUARY 2021. PUBLISHED BY TITLE AND SHORT SUMMARY, AFTER ADOPTION, IN THE ASPEN TIMES WEEKLY ON THE 11TH DAY OF FEBRUARY, 2021. POSTED BY TITLE AND SHORT SUMMARY ON THE OFFICIAL PITKIN COUNTY WEBSITE (www.pitkincounty.com) ON THE 4TH DAY OF FEBRUARY 2021. ATTEST: BOARD OF COUNTY COMMISSIONERS By ,jt4 tt,& jbvut-S Jeanette Jones Deputy County Clerk APPROVED AS TO FORM: John Ely, County Attorney Revised 01-01-2021 By: 2z27.,/„6 71111 - Kelly McNicholas Kury, Chair Date: Jan -31-2021 MANAGER APPROVAL Phylis Mattice for Jon Peacock, County Manager 2 EMMA STOR BUILDINGS Attachment 2 Future Use Recommendation January 2021 Recommended for BOCC adoption by the Open Space and Trails Board - January 7, 2021 TABLE OF CONTENTS 1. INTRODUCTION 1.1 EXTENT AND PURPOSE 1.2 HISTORY 1.3 PLANNING PROCESS / STEERING COMMITTEE 1.4 EXISTING CONDITIONS 2. SUMMARY OF STRENGTHS, CHALLENGES & OPPORTUNITIES 2.1 SITE STRENGTHS 2.2 SITE CHALLENGES AND POTENTIAL SOLUTIONS 3. STEERING COMMITTEE RECOMMENDATIONS 3.1 PARAMETERS FOR FUTURE USE(S) 3.2 PARTNERSHIPS 3.3 A PATH FORWARD 4 5 10 12 20 22 26 29 30 APPENDIX A. OST MISSION AND HISTORIC STRUCTURES POLICY B. EMMA OPEN SPACE MANAGEMENT PLAN C. EMMA CAUCUS MASTER PLAN D. 2013 TRAFFIC STUDY E. HISTORIC BUILDING INFORMATION F. EMMA STORE SNOW DEBRIS PROTECTION BARRIER TECHNICAL MEMORANDUM (SGM) G. BUILDING MOVE ISSUES H. CDOT LETTER / INFORMATION I. UCD ARCHITECTURAL STUDIO PROJECT SUMMARY J. PUBLIC INPUT ON DRAFT RECOMMENDATIONS Emma Townsite 1 Table of Contents iii 1. INTRODUCTION 1.1 EXTENT AND PURPOSE During the 2017 Emma Open Space Management Planning process, there was much discussion about the Emma Store buildings and the variety of future management options. At that time, it was decided that this was too large a conversation to be accomplished during the management planning time frame and that it deserved its own discussion and process. Therefore, the 2017 Management Plan included an Action Item that specifically called for the formation of a committee to focus on developing a recommendation for a future management strategy and programming of the store buildings. The purpose of the Emma Town Site Future Use Recommendation is to capture the discussion and recommendations from the Emma Store Building Steering Committee for the future management of the store buildings. These recommended parameters will serve as a guide for staff and the Open Space and Trails Board, and ultimately, the Board of County Commissioners, when making decisions regarding future management of the buildings. The recommendations contained in the following document are meant to focus on the Emma Store buildings and the immediately adjacent environment. Any management questions regarding other structures on the Emma Open Space or land management should refer to the most recent Emma Open Space Management Plan. QUICK FACTS: Property Acquisition: Emma Townsite (12.5 acres), July 2008 for $2.65 million (Ord. No. 019, Series of 2008). OST reserved the option to convey interest not essential for the preservation of the open space, including the existing structures and immediately surrounding lands Funding Partners: Town of Basalt Grants Received: State Historic Fund grants for exterior stabilization of the Emma Store buildings and accessory building Original Construction of Emma Store buildings: Approx. 1898 Historical Significance: Only existing Victorian -era commercial examples in the County; the buildings retain a high degree of integrity and represent a high level of architectural detail Easements, Covenants & Encumbrances: • Designated to the Pitkin County Historic Register in 2009 (Resolution No. 018A-2009) — any alterations to the structures are governed by the Pitkin County Historic Preservation Guidelines. The buildings were granted benefits under the land -use code, including: Alternative Building Code compliance (may be exempted from Energy Code and Efficient Building Program), variances, priority for participation in County programs and expedited review. • State Historical Fund Grant, Colorado Historical Society 20 -year Covenant (Resolution No. 102-2009) — this covenant ensures the preservation of the property and requires written permission from History Colorado for any activity that would alter the architectural appearance of the property or encroach on the property's open land. The covenant requires compliance with Secretary of the Interior's Standards for the Treatment of Historic Properties and the Guidelines for Preserving, Rehabilitating, Restoring, and Reconstructing Historic Buildings. Emma Townsite 1 Introduction 4 1.2 HISTORY Two distinctive brick buildings, constructed side by side more than a century ago, stand today as an historic marker for one of the first settlements to gain prominence in the Roaring Fork Valley. Basalt and Carbondale were not yet names on a map when Emma was established, serving first as a stagecoach stop and then as a station on the Denver and Rio Grande Railroad. The settlement was already a burgeoning epicenter of commerce and social activity when East Coast native Charles H. Mather arrived in Emma in the late 1880s and constructed the brick mercantile buildings that have defined the unincorporated outpost west of Basalt ever since. Mather came west in 1888 to seek his fortune, but quickly abandoned ranching to pursue what he knew best — merchandising. He took over as Emma's post master and storekeeper, replacing the original log buildings at the junction of Emma Road and the railroad line with a set of landmark structures that endure to this day. "I pre-empted a small plot of land consisting of eight acres, which had a log cabin and log store building upon it," Mather offered in a 1937 recounting of his Colorado venture. "I opened the store with a cash capital of $150 and borrowed at that. Having a large territory to draw from, some of my customers came 21 miles to get their goods. I naturally had an opportunity to expand and by practicing rigid economy, gradually was able to get ahead." Top: A log store building predated the brick buildings (bottom) built by Charles Mather. Among the signs on the original storefront is "D&RG Ticket Office." Isabel Harvey Collection Emma's elevation, however, proved a hardship to his wife, and they returned to the East in 1901. By that time, Mather had constructed a two-story brick house, a brick barn, a main store and a two-story warehouse "filled with a stock of merchandise valued at not far from $20,000 and every dollar of it paid," he recounted. His legacy includes the side-by-side store and warehouse, a small brick building, and the brick Victorian home just to the west. The structures, along with an old, one -room schoolhouse located across Hwy. 82 from the former Mather property, stand as reminders of Emma's former conspicuity. Before returning to Connecticut, Mather sold his holdings to Harry A. Pinger, who ran both the Emma Store and one in Basalt under the name Pinger Mercantile Co. A continuing succession of proprietors ran the store business, though none, apparently, with Mather's flair. In 1943, Basalt resident Ernest Gray wrote a letter to George Mather, grandson of Charles H. Mather. Gray's father, Elbert, had long been a clerk at Mather's store. The business that flourished under Mather's ownership floundered under his successors, according to Ernest Gray. He wrote: "For you see since Charley Mather left Emma that business has never prospered....As far as I know the brick buildings Charley erected have stood empty, except for an occasional dance or farmers meeting, for some twenty years." In his heyday at Emma, Mather did as much as $80,000 a year in receipts, drawing business from many miles around, Gray claimed. Emma Townsite 1 Introduction 5 WOW • • a ■i■ , • t 4111140. ,.I • r r Kr a EMMA TOWNSITE VISION: The Emma Store Buildings will honor their historic agricultural roots, the natural environment and character of Emma, and provide a space that is accessible to the community and celebrates the innovative spirit of this location. alriK • tr. 41+414164.1116 amormoivalmoy so rinP. Mew YAWNS el VIA 1.6 i ,odi d wr isioa 1- 4 Emma Townsite 1 Introduction 6 The Emma crossing, marked by the store business, schoolhouse and railroad depot, was a community focal point and the goings-on at Emma in Mather's day often made the pages of Aspen's newspapers. By the 1920s, the store building was no longer being used for a commercial enterprise but it was the site of well -attended community dances and meetings, while the back of the building was used as a residence. While the mercantile store had long been shuttered, a small general store/gas station and post office operated to the west of the vacated brick store and warehouse. It burned down in early 1949 and postal services were run out of the Victorian house for a time before the postal operation was permanently transferred to Basalt. By the mid -20th century, Emma was a quiet spot along a country road. The store building stood vacant but for an occasional social event or meeting, while the ranching family living on the property used the warehouse for potato storage and sorting. The demise of railroad service, meanwhile, was a long, drawn-out affair that began with the end of passenger service to Aspen in 1949. The railroad sold off the Emma depot, which was dissembled for lumber. The railroad water tower, which had been retired in 1942, collapsed. Freight service ceased in 1969, though the Rio Grande Railroad continued to serve a coal loadout at Woody Creek into the 1980s. Emma Store and railroad tracks 1952: By the mid -20th century, the Emma store buildings saw little use. The Denver and Rio Grande Railroad tracks are visible in the foreground. Isabel Harvey Collection The Basalt Bypass — a new, four -lane reroute of Hwy. 82 — cut a wide swath through the heart of old Emma and sliced Emma Road into two disconnected pieces. The bypass, completed in 1988, brought the historic buildings of Emma into prominent view for motorists but the asphalt, regrettably, came within spitting distance of Charles Mather's once -handsome brick edifices. The busy highway compromised the old buildings, rattling bricks loose, exposing their facades to the ravages of plowed snow and highway deicer, and making access to the property challenging. The store and warehouse, along with the Mather House, counted various owners over the decades, some of whom floated plans to repurpose the old buildings. None tried harder than the late Owen Minney, who purchased the Emma townsite buildings in 1998. He resided in the Mather House and dreamed of revitalizing the store and warehouse, though proposals to repurpose the structures were ultimately rejected by Pitkin County as too intensive for the site. Frustrated, Minney obtained a permit to demolish the historic buildings in 2008. In 2000, the Emma Store buildings were nominated and listed on Colorado's Most Endangered Places by Colorado Preservation Inc. (CPI) to bring awareness to the threats to the integrity and condition of the buildings. Ultimately, the Pitkin County Open Space and Trails program purchased the 12.5 -acre Emma Townsite from Minney, with a contribution of funds from the Town of Basalt. The county quickly initiated work to stabilize the deteriorating mercantile buildings and stave off their collapse. Two more restoration projects followed with help from the State Historic Fund. All of the buildings have been placed on the Pitkin County Historic Register. These actions led CPI to declare the buildings "saved" and removed from "alert" status on the Endangered Places list. Emma Townsite 1 Introduction 7 Historic Designation and Building Stabilization Timeline e 1988 - Highway 82 bypass constructed. Federally mandated Section 106 Evaluation found the buildings to be historically significant and they were saved from demolition 2000 Townsite was listed on Colorado Preservation Inc's Most Endangered Places List. Originally listed on the "alert" status, the buildings have since been re- classified as "saved." The collapsed roof on the east building was removed in the first phase of stabilization. The accessory building in 2008 before stabilization. • The collapsed west building roof in 2008 before stabilization. 2008 Emma Townsite purchased by Pitkin County Open Space & Trails / Phase 1 Stabilization. Immediate structural needs were addressed for all three buildings to prevent their imminent collapse. 2009 Store, Accessory Building, and Mather House added to Pitkin County Historic Inventory. The remaining east building shared wall with removea roof framing, phase 1. The east building east wall with plywood protection in place, phase 1. The interior of west building, roof removed, upper floor partially remains, phase 1. Emma Townsite 1 Introduction 8 2010 - Phase 2 - Work completed on roof and masonry repairs to east and west store buildings New structural walls and a new roof installed on both buildings. The State Historic Fund awarded a grant to fund the Phase 2 permanent protection of the buildings. The total construction cost was $477,819. The east building east wall repaired, phase 2. The west wall with rebuilt masonry, phase 2. The interior of the east building with new roof structure and stabilized floor, phase 2. The north wall of both buildings with repaired masonry and new roof edge. Repaired main facades, with restored metal fascia. 2012 - Phase 3 - Work completed on accessory building roof and masonry repairs. This work included substantial masonry repair, a new interior structural frame, new roof framing and new roofing. A successful application to the State Historic Fund helped fund the permanent protection of the building. The total construction cost was $141,353. The west and north sides of the accessory building, phase 3. The south and east walls with rebuilt masonry, phase 3. The interior of the main level of the accessory building, phase 3. Emma Townsite 1 Introduction 9 1.3 PLANNING PROCESS / STEERING COMMITTEE The Emma Townsite Steering Committee was appointed by the Open Space and Trails Board to develop a recommendation for the future of the Emma Store buildings. Six members of the committee were appointed from interested members of the public: Raul Gawrys, Carolyn Shipp, Harry Teague, Mitzi Rapkin, Martha Ferguson and Jason Smith. The Emma Caucus selected Liz Newman as its representative with Margaret Simmons as the alternate. The Town of Basalt had Watkins Fulk-Gray, Sara Nadolny and James Lindt take turns participating. Matt Annabell was the Historical Society liaison. Michael Kinsley participated as the Open Space and Trails Board representative and Suzannah Reid participated as the County Historic Preservation Officer. The committee began by meeting for a site tour in April 2019. In subsequent meetings, members discussed the existing conditions of the site, developed a vision statement, and discussed the site's strengths and challenges, potential future solutions, and future uses they thought would be appropriate. This information was ultimately used to develop the parameters for recommended future uses and next steps. The recommendation for future use was presented to the OSTB at their September, 2020 board meeting before being released for public comment through November 6th. The committee met on December 1st to review final revisions prior to plan adoption by the BOCC. VISION STATEMENT: The Emma Store buildings will honor their historic agricultural roots, the natural environment and character of Emma, and provide a space that is accessible to the community and celebrates the innovative spirit of this location. STEERING COMMITTEE MEMBERS • Raul Gawrys • Carolyn Shipp • Harry Teague • Mitzi Rapkin • Martha Ferguson • Jason Smith • Liz Newman, Emma Caucus • Margaret Simmons, Emma Caucus alternate • Watkins Fulk-Gray, Sara Nadolny and James Lindt, Town of Basalt • Matt Annabell, Historical Society liaison • Michael Kinsley, Open Space and Trails Board representative • Suzannah Reid, County Historic Preservation Officer. Emma Townsite 1 Steering Committee 10 STEERING COMMITTEE AND PUBLIC COMMENT PROCESS* IDSteering Committee Draft Recommendation Development 1-- - -0 April 23 and May 3 2019 - Steering Committee Site Tours r - - ♦ May 28, 2019 - Steering Committee Meeting i Committee discussed the strengths and challenges of the buildings, outlined additional questions, and developed a vision statement for the buildings. r - - ♦ August 14, 2019 - Steering Committee Meeting i Committee began brainstorming exercise for long-term future uses, uses that do not meet the vision, champions and funding. p r - - ♦ September 26, 2019 - Steering Committee Meeting 1 Committee continued discussion around long-term future uses, uses that do not meet the vision, champions and Topics to include the in 1 p funding. 1 recommendation were also outlined. I � --♦ January 21, 2020 - Steering Committee Meeting Committee reviewed, edited and commented on Draft Recommendation. 1 ---♦ July 21, 2020 - Steering Committee Meeting Committee reviews updates to the Draft Recommendation and discusses proposed 0 public process. 0Draft Recommendation Public Comment __ • September 3, 2020 - Open Space and Trails Reviews the Draft Recommendations OSTB reviews and comments on the Draft Recommendations, depending on the comments, recommendation is released for public comment. September 2020 - Community Outreach / Public Comment OST will launch an outreach process that complies with Public Health requirements to collect input on the draft recommendation. September 15, 2020 - Board of County Commissioners Work Session Update November 6, 2020 - Public Comment Closes 0 Final Recommendation Development and Adoption --• December 1, 2020 - Steering Committee Meeting Committee reviews Board and public comments, updates the recommendations. - - ♦ January 7, 2021 - Open Space and Trails Board Recommendation for BOCC Adoption "- ♦TBD - Board of County Commissioners Adoption * Subject to change Emma Townsite 1 Steering Committee 11 1.4 EXISTING CONDITIONS 1.4.1 TOWNSITE STRUCTURES The Emma Townsite parcel has four existing historic structures constructed around 1898 by Charles H. Mather. The Emma Store and Warehouse, and the accessory building have been stabilized and restored over three phases following the County's purchase of the property in 2008. Using both county funds and grants from the State Historic Fund, the exterior restoration was completed in 2012, returning the three buildings to stable, weatherproof shells with new, permanent roof structures and reconstructed portions of their exterior brick walls. Emma Store and Warehouse — The side-by-side store and warehouse (east and west) buildings are the only existing Victorian -era commercial building examples in the County, and retain an exceptionally high degree of integrity and architectural detail. The west building or warehouse is a two-story structure with an elegant brick facade and brick side and end walls with a flat roof. The west building has a 2,000 -square -foot footprint potential for a maximum of 4,000 square feet with a second floor. The east building, or store building, is a one-story structure. It abuts the west building and measures 2,250 square feet. It has a framed facade with an elaborate tin frieze and brick side walls. Both buildings have stone foundations and shallow crawl spaces for the majority of their footprint. A small, full -height basement of about 500 square feet is located in the rear of the east building. The two buildings are prominent fixtures along Hwy. 82, but have suffered from their proximity to the highway and the effects of snow and deicer. A protective facade has been used during winter months on the western building to prevent further deterioration. MAP 1: Townsite Focus Area Emma Store buildings (store and warehouse) Accessory Building Emma Townsite 1 Existing Conditions 12 In 2009, following OST's acquisition of the Townsite Parcel, the Emma Store and Warehouse and the accessory building were granted Pitkin County historic designation (Resolution No. 018A-2009). The interiors of both buildings remain unfinished. Any alterations to the structure in future phases will need to address the restoration of the windows, doors and rear walls, construction of new interior floors, and other requirements determined by their anticipated use. Accessory Building - There are a few theories as to the past use of the small square structure located to the north of the Store and Warehouse. One theory is that it was used to house explosives separately from the store building. Another theory of the building's prior use is a hop house for drying hops, or a brick barn, which Mather said he built on the property. Following the restoration of the two commercial buildings, a separate grant was awarded to focus on the accessory building's restoration. The small, two-story building has a hipped roof and a small cupola centered along the short ridge. The building has a 294 square foot footprint with a single door opening on the west side and minimal window openings. Mather House — The Mather House is also a part of the Emma Townsite, however it is not a part of this recommendation. Renovations in 2019 and 2020 restored the home so that it can continue to serve as affordable housing within the County. MAP 2: Emma Townsite Existing Site Configuration • ,N I I ����\\ 1 size size and location `\ approximate leach field • ..f ^-Ix Mather House \ • / \ �� out building two store buildings East Building — one story 2,250 sq. ft., has partial basement of additional 500 sq. ft West Building—two stories 2,000 sq. ft. per level Accessory Building — two stories 294 sq. ft. per level Emma Townsite 1 Existing Conditions 13 1.4.2 BACKGROUND INFORMATION AND EXISTING PLANS/POLICIES OST MISSION AND ARTICLE 13 The Open Space and Trails Mission and Article XIII of the Pitkin County Home Rule Charter define the purposes of the program and how the Open Space fund can be used. The overarching mission of the Pitkin County Open Space and Trails Board of Trustees (OSTB) is to acquire, preserve, maintain and manage open space properties for multiple purposes including, but not limited to, recreational, wildlife, agricultural, scenic and access purposes; and to acquire, preserve, develop, maintain and manage trails for similar purposes. Article XIII further details the roles and responsibilities of the Open Space and Trails program. In regard to historic properties such as the Emma Store buildings, Article XIII supports preserving cultural, historic and archeological resources located within properties that are otherwise acquired for their customary open space characteristics. There are parameters for how much OST funds can be used on historic preservation and what the fund can be spent on to support the reuse of historic buildings. These parameters are outlined in the 2018 Historic Structures Policy. Uses or improvements to the buildings that do not meet the purposes stated in the charter and that are outside the OST mission are allowed, however they will need to have additional funding sources. OPEN SPACE AND TRAILS HISTORIC PRESERVATION POLICY The Open Space Historic Preservation Policy was adopted by the Open Space and Trails Board on November 1st, 2018 to guide expenditure of funds on historic assets (included as Appendix A). The policy outlines four management options for historic structures on OST properties. The Emma Store buildings, due to their historic significance and architectural quality, have been actively stabilized to exterior restoration historic standards, fulfilling management Option 3 in the policy. However, the preferred management outcome, when financially feasible and appropriate, is Option 4 - to preserve structures for continued use. This management option states, it is "appropriate for historic structures that can Open Space Definition: "Open Space" shall be defined as primarily undeveloped lands and waters which meet one or more of the following criteria: Within public scenic view planes; bounding or within urbanized areas; incorporating or protecting significant wildlife habitat; preserving historic agricultural and ranching activities; protecting riparian or wetlands areas; protecting other public lands from the impacts of development, and preserving cultural, historic and archeological resources lying within properties which are otherwise acquired for their customary Open Space characteristics. be preserved and maintained in active use including, but not limited to, reservation to sell consistent with the County Charter and leasing consistent with County regulations." The Historic Preservation Policy limits the amount of money the OST fund can spend on historic structures, on all open space properties, over the life of the fund to 2% of the annual revenue between 2017 and 2040. Spending in an individual year may exceed the 2% target as long as the 20 -year average complies with the policy. Grants, gifts and other outside funding sources can complement outlays from the Open Space fund. Emma Townsite 1 Existing Conditions 14 MAP 3: Project Location Map - Open Space Context t STATE WILDLIFE AREA (CPW) TOWN OF BASALT EMMA OVERLOOK EMMA TOWNSITE OPEN SPACE Heritage Orchard CDOT ROW East Access GRACE OPEN SPACE LIGHT HILL (BLM) Emma Store Building "Planning Area" Open Space (fee simple) Agricultural Lease Areas Paved Trails Soft Surface Trail (foot / horse only) Irrigation Ditch 1-1 O' 0 160 320 640 1Feet Emma Townsite 1 Existing Conditions 15 2017 EMMA OPEN SPACE MANAGEMENT PLAN* The Emma Open Space Management Plan was developed through a public process and adopted by the Open Space and Trails Board in 2017. The plan covers both the Emma Open Space parcel (to the south and east of the Emma Schoolhouse) and the Emma Townsite Parcel, which includes the Emma Store buildings, the Mather House, the historic orchard and the Osprey nest, as well as frontage along the Roaring Fork River. The plan provides an extensive history of the Emma area and its role as an agricultural and commercial hub in the valley, and details about the existing conditions and the preserved structures on the site. Management action 4.3.1, "Emma Store Buildings," set the framework for a planning process specific to the Emma Store buildings. The plan seeks to identify a management strategy and programming to facilitate the future use of the buildings, guided by the recommendations of a Steering Committee. The complete plan is included as Appendix B. 2016 EMMA CAUCUS MASTER PLAN* Pitkin County caucus master plans are used as guidance to elected and appointed officials when reviewing planning and development proposals within caucus boundaries. The 2016 Emma Caucus Master Plan was developed by residents of the Emma Caucus area and outlines the vision and goals for the neighborhood. The goal for any proposed future of the Emma Store buildings is to align with the Emma Caucus Master Plan whenever possible. The complete caucus Master Plan is included as Appendix C. The principal goal of the Master Plan is that "the dominant agricultural, open space and rural residential character of the Emma Caucus Area be preserved and enhanced." Section 8 of the Master Plan specifically addresses historic preservation, with the goal to "Preserve the unique rural/agricultural heritage of the Emma Caucus area as expressed by the existing historic structures that embody the historic ranching and farming community." Section 8.1.3 states, "The County should work with property owners to find solutions and incentives for the preservation and possible adaptive re -use of existing historic structures." Section 8.1.5 specifically addresses the historic Emma Emma Caucus Vision Statement: "The Emma area will continue to be a low-density residential area with on-going farming and ranching operations prevalent. Agricultural lands will continue to be used as such, or preserved by the use of conservation easements or other preservation options, and will not be further subdivided; and water rights will be protected. Fields and pastures will be the predominant views, wildlife will continue to be a strong presence due to the preservation of riparian corridors and other habitats, and the night sky will continue to be visible without light or air pollution. Residents and guests will enjoy public trails and lands; a neighborhood feeling of common goals will exist, and residents will have a sense of community." Townsite as the area's main historic structures and the Caucus' support for preserving the structures. The plan recommends that, as funds become available, the County continue efforts to preserve the historical integrity of the buildings and that any future use of the property be compatible with preservation and the goals and objectives of the Caucus Master Plan. A few sections of the Master Plan are particularly relevant to the future use of the Emma Townsite structures, including: 1.3 Commercial/Institutional Goal: "New commercial, institutional and other intense, high -traffic -generating uses are considered incompatible with the rural residential character and the basic infrastructure of the Caucus Area and should not be allowed." Appropriate uses, which include minor activities that do not create inappropriate community impacts on traffic, energy, light and noise, are supported. The "Roads" section of the plan includes a recommendation for the west access point to the Emma Townsite buildings. Item 5.1.11 states, "Methods other than signalization should be identified, with input from CDOT and OST, to improve the safety and functionality of the Emma Road/ Hwy. 82/Rio Grande Trail intersection. The Caucus *Note that plans are updated periodically and the most recently adopted plan or policy will apply to the Emma Townsite. Emma Townsite 1 Existing Conditions 16 MAP 4: Emma Caucus Area El Jebel Willits Pe Glassier - Red Ridge Eagle County Pitkin County Basalt Townsite Emma Caucus Lazy Glen Bionaz Gulch b _ j Pitkin County Boundary L —j Emma Caucus Area - Open Space (fee simple) Conservation Easement Town Limits 0 0.25 0.5 1 Miles Schoellkopf Open Space Oxamer C i we Aing„cr Offio Emma Townsite 1 Existing Conditions 17 MAP 5: Project Location and Highway Access Emma Townsite 1 Existing Conditions Emma Store Building "Planning Area" Open Space (fee simple) Agricultural Lease Areas Paved Trails 0 1 I_ I Feet 0 45 90 180 recommends roadside intersection reflectors be installed at the intersection to improve the safety of nighttime turning movements. The Caucus opposes the installation of overhead streetlights." It also supports improvements to the pedestrian underpass connecting Emma Road to Emma Trail and the park- and-ride facility via the bike and pedestrian bridge. PITKIN COUNTY ZONING* The Emma Townsite parcel is 12.5 acres and is zoned AR -10, agricultural/residential with a 10 -acre minimum lot size. Both single-family dwellings and agricultural uses are allowed by right. There are a number of additional uses that are permitted as "special review uses." These uses require a one-step review by the Board of County Commissioners and are subject to compliance with the applicable standards in Chapter 4 of the land -use code. Special Review uses must be implemented within three years following the date of approval of a development permit and may be required to submit annual reports attesting to the continued conformance of the use to the conditions of approval. This parcel is not within the urban growth boundary of Basalt and it is not anticipated to be included in the urban growth boundary during the 2019 Master Plan update, which began in 2019. There is currently no commercial or institutional zoning in the Emma Caucus Area. 2013 TRAFFIC IMPACT STUDY Vehicular access to the Townsite parcel is currently one of largest impediments to public use. In 2013, OST commissioned a Traffic Impact Study (completed by McDowell Engineering) to help evaluate the potential future uses for the Emma Store buildings, given the limitations based on the State Highway Access Code. Appendix D includes the full Traffic Impact Memorandum. Traffic and trip generation will need to be re-evaluated before final programming for the buildings is implemented. Vehicular Access: The 2013 study looked at the west access at the intersection of Emma Road and Emma Spur and the east access at Emma West Road (which provides access to the Mather House). Existing conditions at both access points do not meet CDOT's Access Code Standards. The preferred access point to the store buildings is the west access, which has better sight distances and turning lanes to accommodate potential land uses. Traffic Generation and Use: The study evaluated the potential land uses with the existing highway constraints and traffic capacity with the assumption that no additional turning lanes would be added. Potential land uses are therefore restricted to approximately 10 vehicles per hour. Based upon the trip generation calculations, the following land use alternatives are examples of what is possible: • 6 -acre open space park • 7,000 -square -foot administrative building • 5,700 -square -feet of commercial retail • 7,500 -square -foot community center (recreation center) • 22,000 -square -foot museum Parking: Parking considerations will need to be addressed in the future for the selected alternative. CDOT owns a small, triangular parcel directly west of the buildings for the purpose of preserving access to the buildings (see Appendix H), which was truncated during the expansion of Hwy 82. This parcel might also be used for a small parking area if approved by CDOT. *Note that the County Land Use Code and other plans are updated periodically and the most recently adopted plan or policy will apply to the Emma Townsite. Emma Townsite 1 Existing Conditions 19 2. SUMMARY OF STRENGTHS, CHALLENGES AND OPPORTUNITIES 2.1 SITE STRENGTHS The Steering Committee discussed the strengths of the Emma Store buildings and immediate site during committee meetings. The following is the identified list of strengths that can be built upon in the reuse of the buildings. THE HISTORIC BUILDINGS • The buildings themselves are amazing historic assets, which deserve to be celebrated and preserved within the community. They have maintained historic integrity and are a truly unique community asset that does not exist elsewhere in the County. • There is room for multiple uses within the existing structures, which could be built out to have over 7,000 square feet of leasable space. There could be scenarios where the two store buildings, which are currently separated by an internal wall, are connected. • Architectural flexibility — The restoration of the exteriors have left a blank canvas for the interiors and back wall of the buildings. There are a number of potential strategies to repurpose the buildings - for example, the stabilization efforts left open the option to have the future entry from the back of the site rather than the front of the buildings, where the site is more constrained. There is potential to add more light from the back (river -facing) side of the buildings, or add skylights. LOCATION, LOCATION, LOCATION • The visibility of the site and the buildings from the highway. The view of the buildings from the highway should be preserved in any future -use scenario. • The location between Old Town Basalt and Willits along the Emma Trail — One of the goals of the Basalt Master Plan is to have better connectivity/cohesiveness between Old Town and Willits (1.5 miles to Old Town Basalt, 2.3 miles to Willits Town Center on the bike path). • Connections to recreation and established commuter trails. Located on the Emma Trail The east building is framed with an elaborate tin frieze facade that remains in good condition. multi -use path and across the highway from the regional Rio Grande Trail (linked by the Emma underpass). Approximately 0.5 miles from the CDOT park-and-ride on Two Rivers Road. • Located along the Roaring Fork River, though there is a vertical separation of approximately 50 feet from the bench where the buildings are located down the steep hillside to the river. HISTORY OF THE SITE • The story of Emma. The push and pull between the Old West and the New West exhibited in the transition from horse and wagon to rail to highway transportation through the Roaring Fork Valley, and the symbolism of the changes and the stories of loss and gain and grit. • The agricultural/ranching history of Emma and present-day land conservation. The Emma area has preserved its agricultural history and there is forward momentum in preserving the agricultural roots of the community. OPPORTUNITY TO FILL A COMMUNITY NEED • This site could fulfill a community need or niche that is not currently fulfilled elsewhere in the community. Emma Townsite 1 Strengths, Challenges and Opportunities 20 EI J hnl Rd Willits Town Center 0 x parkq W '. 2.3 Miles to Willits \ Town Center 1I rr Emma West Rd Grate Church of the Raffling Fork Valley Emma Townsite 1.S Miles to Old Town Basalt Ter* Rleers Rd Basait Sol4h31d0 Pork Smolt High School Basan. Elementary Scheel Ba:al Cemetery /Roaring Fork Club MAP 6: Emma Townsite is 1.5 miles from Old Town Basalt and 2.3 miles from Willits Town Center on the Emma Trail. MAP 7: Emma Townsite is located on the Emma Trail multi -use path and across the highway from the regional Rio Grande Trail. Emma Townsite 1 Strengths, Challenges and Opportunities 21 2.2 SITE CHALLENGES AND POTENTIAL SOLUTIONS While the historic buildings and surrounding open space have a number of strengths and the potential for adaptive reuse, there are a number of challenges that will need to be addressed to facilitate most uses. The level of mitigation required is likely to depend heavily on the type of use/uses proposed for the buildings and therefore the following is only a preliminary list of challenges and potential solutions that the Steering Committee discussed. Underlying each of the potential solutions or mitigation strategies is the cost of implementation and how the improvements will be funded. Open Space and Trails funds are limited both in the amount of funding available, as determined by the Historic Preservation Policy, and to improvements that are within the program's mission. Any appropriations from the OST fund would be part of the annual budgeting process subject to OSTB and BOCC approval. 2.2.1 PROXIMITY TO HIGHWAY 82 As mentioned in the history section, the buildings were saved from demolition during the 1988 Hwy. 82 reroute to bypass Basalt, when a federal decision declared the buildings to be historically significant. While the buildings were saved, they weren't spared by very much, and the highway now has perhaps the greatest impact on the character of the original Townsite. A constant stream of vehicles speeds by the buildings at 65 miles per hour, passing only 20 feet from the entrance to the western building. Currently, the Emma Trail passes between the storefronts and the highway, protected by a Jersey barrier. The specific impacts of the highway include: • Vehicular Noise — The noise generated from being adjacent to the highway is significant and detracts from the experience of the buildings. • Snow and Debris from the Highway/Plowing Operations — In the winter, the spoils from snowplowing have impacted the western building and present a challenge going forward in finding a way to protect both the buildings and visitors to the site. Currently, a temporary facade is placed on the western building to protect it from further deterioration; this is not a long-term solution and regardless of the future use of the buildings, an improved barrier is needed. Mitigation Strategies/Solutions: The strategies discussed to address the impacts of being in such close proximity to the highway range from moving the buildings to improved barriers and architectural features. • Highway Barrier — A highway barrier may be able to address the snow/debris issue, as well as help mitigate the impact of vehicular noise for pedestrians outside and inside the buildings. Initial ideas have ranged from a mesh panel design to a transparent shield. Pitkin County OST commissioned a preliminary study to look into barrier options that are detailed in Appendix F, including a chain-link fence, transparent acrylic panels, and a glare -screen barrier with costs ranging from $16,000 to $140,000. Another option that may be viable is using a removable Blast -Safe Barrier Fence System that would be installed behind jersey barriers to block snowplow debris; it could be removed during the summer months. If a barrier is implemented in the future, consideration should be given to maintaining views of the buildings from the highway, drainage needs, Emma Townsite 1 Strengths, Challenges and Opportunities 22 maintenance costs and aesthetic upkeep (e.g. a clear or transparent barrier may require frequent cleaning to maintain its appearance). • Architectural Strategies — These may include soundproof windows and insulating features to dampen the noise from the highway. The main entrance could be located on the back (north side) of the buildings. • Trail Realignment — It may be desirable to reroute the Emma Trail behind the buildings to improve the trail user experience as well as allow more space for a barrier. The Town of Basalt, which manages the trail, is open to looking at realigning the trail should this be necessary. • Building Relocation — Relocating the buildings farther back on the site would address both the noise and debris issues, and could bring a number of additional benefits. On the other hand, there are a number of compelling reasons to leave the buildings in their historic location, which would need to be weighed against the benefits and cost of moving the structures. Reasons to leave the buildings in place include preserving their historic location and maintaining the integrity of the subgrade space, as well as the expense of moving the structures. A preliminary summary of what would be required to move the buildings is included as Appendix G. • Lowering Highway 82 - The highway expansion through Emma dramatically changed the character of the community and the continuing increase of highway traffic makes access increasingly challenging, creates a real barrier for both residents and wildlife, and impacts both the structures themselves and the experience of being in or around the buildings. Grade separating the highway could help reduce some of these impacts, though the feasibility of this type of a project has not been evaluated and is likely to be cost prohibitive. The buildings' proximity to the highway and access constraints present significant challenges to the buildings' future use. Emma Townsite 1 Strengths, Challenges and Opportunities 23 2.2.2 SITE ACCESS FROM HIGHWAY 82 AND TRIP GENERATION LIMITS As described above in the Traffic Impact Study summary, one of the most limiting factors influencing the future use of the Townsite buildings is the CDOT access regulations/ requirements from Hwy. 82 and the safety of vehicular access to the site. Improving the configuration of the intersection is not within CDOTs existing capacity and no improvements are planned at this time. In past discussions, CDOT has ruled out the addition of a traffic light - a determination that has been supported by the Emma Caucus. Limited Vehicular Trip Generation - The conclusion from the 2013 Traffic Study was that future use of the buildings, via the west access at Emma Spur Road, cannot exceed 10 vehicles per hour per the State Highway Access Code. The Emma Caucus is also wary of adding more congestion at the intersection due to the safety concerns. Mitigation Strategies/Solutions: The committee discussed strategies that may expand the potential land -use options through creative problem solving and alternative transportation options such as shuttles and bicycles. The proximity of the buildings to the trail network and population centers may allow for more non -motorized trips and uses that capture the interest or serve the needs of existing trail users. Shuttle/bus — A shuttle or bus might be an effective way to transport people to the site without significant vehicular trip generation. Shuttles might be used for events or everyday operations/visits from downtown Basalt, Willits or the park-and-ride lot at Two Rivers Road. For example, on a busy night or for small events, visitors could take a shuttle to the site rather than their personal vehicles. The use of Emma Trail (which was once a road) for vehicular access is not an option at this time; its width is too narrow to accommodate both vehicles and other modes safely. 2.2.3 BUILDING SYSTEMS AND CRITICAL INFRASTRUCTURE Septic and On-site Wastewater Treatment System (OWTS) (aka: Leach Field): A new OWTS was installed in the fall of 2018. The system is engineered to allow it to serve the 3 -bedroom Mather House and future undetermined expansion of the Emma Townsite. Connection to this OWTS for future use of the Townsite structures will require the installation of additional tank(s) and permits from the Pitkin County Environmental Health Department. The OWTS is sized to accommodate 1,999 Gallons Per Day (GPD), allowing for design flow of the Emma Townsite building(s) not to exceed 1,549 GPD. (C1368 OWTS Design Packet 4 21 18.pdf) Water Well: A functioning water well, with a pumping rate of 15 gallons per minute, is located approximately 400 feet east of the Mather House. Currently, the well is only permitted to serve the Mather House for "residential water for one single-family unit as well as the unit's lawn and garden (about 17,100 square feet)." The well does not have previous history of, nor is it currently permitted to be used for the watering of domestic animals/poultry/livestock. In the fall of 2018, OST installed a new waterline that connects from the well to the Mather House. At that time, a "Y" in the line was incorporated which runs to a frost -free hydrant on the west side of the Mather House lawn. Once plumbed, the Emma Townsite building could easily connect to the "Y" (via the frost -free hydrant) for its water supply. A new well permit would need to be filed with the Colorado Division of Natural Resources in order to do so. This would not require an additional water pump system; the Mather House's system should be sufficient to run both buildings. Emma Townsite 1 Strengths, Challenges and Opportunities 24 West Access Emma Townsite Tor Open Space 'gzaoo Accessory Building Warehouse/ ``iMather' West • F'House mma Store • /East • Heritage Orchard CDOT ROW East Access Emma Schoolhouse Parking: There are a few options for parking vehicles on the site that would comply with Historic Preservation Standards. There is a triangular CDOT parcel that has been specifically identified for building access and parking to serve the store buildings, as well as additional space in the rear of the buildings. If additional parking is needed, there may be potential to park vehicles at the Two Rivers Road park-and-ride or within Old Town Basalt and have people walk, bike or shuttle to the buildings. Using the park- and-ride facility, however, would require discussion with RFTA. MAP 8: The building systems and critical infrastructure would need to be addressed depending on the buildings' future use. Emma Townsite 1 Strengths, Challenges and Opportunities 25 3. STEERING COMMITTEE RECOMMENDATIONS The Steering Committee spent multiple meetings discussing ideas for future use of the buildings, the implications of those uses and, ultimately, what uses would and would not be compatible with a successful future in the buildings. The Vision Statement, drafted by the committee, was considered as a guide during all discussions and was referred to many times as the committee wrestled with the balance of historic roots, Emma character and community spirit. The following is a list of the parameters for future use(s) resulting from the work of the Steering Committee and the existing conditions/ constraints described in Section 2.1 and 2.2. Additional supported and non -supported uses are included as examples from the visioning process and Steering Committee discussions. The Steering Committee wants to encourage creative reuse of the buildings, but also ensure that any potential future uses are fiscally sound, sustainable and have a viable management structure. Open Space and Trails does not have the capacity on its own to renovate the buildings and/or manage tenants. 3.1 PARAMETERS FOR FUTURE USE(S) 1. Advances the Vision Statement - "The Emma Store Buildings will honor their historic agricultural roots, the natural environment and character of Emma, and provide a space that is accessible to the community and celebrates the innovative spirit of this location." 2. Compatible with Traffic Generation Limits / Safety Requirements for Vehicular Access/Egress - Any proposed future use must be compatible with the traffic generation limits established by the State Highway Access Code and described in Section 1.4.2. The land use/transportation context within the mid -valley has changed since the initial Traffic Impact Study was completed in 2013 and a new study evaluating any proposed use(s) is likely to be required. Creative ideas for how to use non -motorized or alternative transportation options to access the site are encouraged. Other ideas might include improvements to the pedestrian underpass to access the other side of Highway 82 or a pedestrian bridge over the highway. Limits on the number of vehicles accessing the site and the lack of parking will be important considerations in determining the type and scale of future uses. 3. Compatible with Emma Caucus Master Plan - Appropriate uses for the adaptive re- use of the historic structures are supported by the Caucus as long as they do not create inappropriate impacts on traffic, energy, nighttime light impacts or noise. Some of the uses generally supported by the committee may not fit perfectly within the Caucus' plan, such as those that would attract more people/visits. Such uses would need to adequately address impacts and manage the Caucus' concerns regarding access to the site and traffic safety, as well as limited night lighting, fencing and signage. In general, "new commercial, institutional or other intense, high traffic -generating uses are considered to be incompatible with the rural residential character and the basic infrastructure of the Caucus area" (Emma Caucus Master Plan). 4. Preference for a Multi -Use Space - The Steering Committee believes that for the Emma Store buildings to have the most successful repurposed future, a variety of uses should be housed together in a complementary and mutually supportive manner. The multiple levels in the buildings and the accessory building allow for spaces to be separated and programmed for different functions under the same roof. Multiple uses Emma Townsite 1 Steering Committee Recommendations 26 1 1 PARAMETERS FOR FUTURE USE: Advances the Vision Statement "The Emma Store Buildings will honor their historic agricultural roots, the natural environment and character of Emma, and provide a space that is accessible to the community and celebrates the innovative spirit of this location." 4 Compatible with Traffic Generation Limits / Safety Requirements for Vehicular Access/Egress Any future use must be compatible with the traffic generation limits established by the State Highway Access Code. The land use/ transportation context in the mid - valley has changed since the 2013 Traffic Impact Study and a new study evaluating proposed use(s) is likely to be required. Creative ideas for how to use non -motorized or alternative transportation options to access the site are encouraged. Other ideas might include improvements to the pedestrian underpass to access the other side of Highway 82 or a pedestrian bridge over the highway. Preference for a Multi -Use Space 1 The Steering Committee believes that for the Emma Store buildings to be a success, a variety of uses should be housed together in a complementary and mutually supportive manner. The multiple buildings and levels allow for spaces to be separated and programmed for different functions. A variety of uses could also help to serve a broader community audience than a singular use. It is possible that a single use for the buildings that meets the Vision Statement and adds value to the community and the site would be supported. A dynamic space is the key to success. ■ Compatibility with the Site/ Infrastructure Constraints There are a number of challenges inherent to the buildings themselves and the surrounding infrastructure, including limitations of the septic and water systems, parking area constraints, and proximity to the highway. These are described more specifically in Sections 2.2.1 through 2.2.3. A Compatible with Emma Caucus Master Plan Appropriate uses for the adaptive re -use of the historic structures are supported by the Caucus as long as they do not create inappropriate impacts on traffic, energy, nighttime light impacts or noise. In general, "new commercial, institutional or other intense, high traffic -generating uses are considered to be incompatible with the rural residential character and the basic infrastructure of the Caucus area" (Emma Caucus Master Plan). Potential uses that would attract more people/visits would need to address impacts and manage concerns regarding site access, traffic safety, night lighting, fencing and signage. 6 Historic Building Requirements Future uses must comply with Pitkin County Historic Preservation Guidelines and maintain the building's exterior per the requirements of the State Historic Grant. Emma Townsite 1 Steering Committee Recommendations could also allow for activating the spaces during different times of day or times of year. A variety of uses could also help to serve a broader community audience than a singular use. It is not assumed that all of these uses must occupy the buildings all at the same time, but that the successful future of the buildings involves a diversity of the uses working together. It is possible that a single use for the buildings that meets the Vision Statement and adds value to the community and the site would be considered and supported. A dynamic space is the key to success. 5. Compatibility with the Site/Infrastructure Constraints - There are a number of challenges inherent to the buildings themselves and the surrounding infrastructure, including limitations of the septic and water systems, vehicle access limitations, parking area constraints, and proximity to the highway. These are described more specifically in Sections 2.2.1 through 2.2.3. 6. Historic Building Requirements - Future uses must comply with Pitkin County Historic Preservation Guidelines and maintain the building's exterior per the requirements of the State Historic Grant. EXAMPLES OF POTENTIAL FUTURE USES The following examples represent uses considered by the Committee that might fit the above parameters for future uses, although most involve limitations due to the site challenges described in Section 2.2. Additional uses may also be considered. • Art/Heritage Crafts Center/Studio(s) — an artist's co-op, a place to learn heritage arts, and/or artist's live/work spaces, for example. • Agricultural -Related Community Uses—classes, dinners, local agricultural product processing (no meat), limited farm product sales, for example. • Museum — history, ranching, farm equipment, or living agricultural museum and teaching center, for example. The committee has concerns that a museum would not be a successful stand-alone use and would become stagnant, but that it is something that could be a portion of a more dynamically programmed variety of uses. • Small-scale Community Gathering Space — a space that is available for community gatherings, small events (with creative solutions to transportation/ access that do not rely on individual vehicle use), education classes or book clubs. • Housing as an Accessory Use — artist or agricultural worker housing, for example. The Committee does not support housing as a singular or dominant use of the site; however, accessory housing that supports other uses of the site may advance the Vision Statement. • Small-scale Offices or Incubator Space — with the potential for two stories in the west building, the committee discussed how the second floor could be non-profit or small-scale, for-profit offices with a completely separate use on the first floor, for example. • Small-scale Shop / Retail Sales as an Accessory Use — The committee does not support a restaurant, cafe or retail shop as the primary use, but a small-scale shop that supports the other uses within the building or passers-by on the trail could be considered. A coffee/sandwich shop/cart or "buvette," or sales related to one of the primary uses such as a museum shop, artist co-op sales or limited agricultural sales are examples of potential complementary uses. Emma Townsite 1 Steering Committee Recommendations 28 EXAMPLES OF USES THAT ARE NOT SUPPORTED The following is a list of specific uses the committee discussed and decided would not be an appropriate fit for the space, as they do not meet the parameters for future use. The list is not exhaustive. • Restaurant — this use is prohibited under the Caucus plan, and concerns were expressed about traffic generation and demands on the septic system. A small- scale coffee/sandwich shop was supported to complement other uses in the buildings. • Brewery — concerns were expressed about the commercial use and scale, and septic limitations. • Meat -Processing Facility — no slaughterhouse, for example. This is against the Caucus plan. Other forms of local agricultural processing are supported in collaboration with other building uses. • Visitor's Center — concerns were expressed about traffic generation, parking and this not being the right location for such an amenity. • Housing as a Singular Use — concerns were expressed that if the site was only housing, it would not be available for the greater community to visit. Housing is supported if it is part of a variety of uses in the buildings. 3.2 PARTNERSHIPS Regardless of the future uses in the Emma Store buildings, partnerships for future improvements will be necessary. The scale of funding will depend on the future uses in the buildings. Opportunities to keep in mind for POTENTIAL partnerships may include, but are not limited to: • State Historic Preservation grants • Colorado Preservation, Inc. • Private foundations • Private individuals • Pitkin County Open Space and Trails, within the parameters of its Mission, Charter and Historic Structures Policy. Emma Townsite 1 Steering Committee Recommendations 29 3.3 A PATH FORWARD - NEXT STEPS At this time, the committee feels it is important to find a critical mass of the right mix of uses, or a singular use that meets the vision, coalesced around advocating for and activating the buildings, and that has the momentum and vision to manage and keep the buildings active. To continue to build upon the energy the committee has dedicated toward the future programming of the Emma Store buildings, the recommended next steps for a path forward have been broken into three areas: Inspiration and Innovation, Long -Term Future Use and Interim Use. Staff will seek out opportunities to invite the public onto the site and into the buildings during both the Inspiration and Innovation steps and the Long -Term Future Use steps as public involvement and endorsement will be essential to the building's successful future. INSPIRATION AND INNOVATION Park Amenities and Emma Trail Realignment - OST will pursue some site improvements/amenities to serve those accessing the site on the Emma Trail and encourage more people to explore the property and historic buildings in a more intimate way than just passing by. These amenities may include an enclosed port - a -potty, interpretive elements, a water fountain, seating or picnic tables, and/or a river overlook. OST will work with the Basalt Regional Heritage Society on future interpretive elements. As part of a phased approach to rerouting the Emma Trail, OST will first add a soft - surface trail to provide a way to activate the site and open it up to more public visitation without the more substantial investment of a paved trail realignment. In the future, the trail may be completely relocated in order to create room for improvements on the highway side of the buildings and bring the public through the activated site. The interim soft -surface trail will allow more people to enjoy the river side of the site and get acquainted with the quieter side of the buildings. Additionally, OST will work with the Community Development Department to evaluate the potential for a low -impact trail or stairway to connect from the buildings to the Roaring Fork River. University Partnerships - The Steering Committee recommends that Pitkin County Open Space and Trails partner with interested architectural design program(s) to help stimulate ideas and provide inspiration for the future of the Emma Store buildings. The Emma Townsite was the focus of a week-long University of Colorado, Denver Architecture design studio guided by Harry Teague Architects in May 2020. The course generated some interesting ideas for the potential reuse of the buildings and ways to activate the site (a summary of the students' work is included in Appendix J). OST will work with UCD or seek out another architectural program to execute a semester -long studio in order to provide a more in-depth/comprehensive analysis and ideas for the buildings and the site. The project could include students from multiple disciplines, or solely architectural students, with a goal of taking the parameters outlined in this document as a guide, including the "site challenges" and "potential future uses," and developing innovative site, building and access solutions. Emma Townsite 1 Steering Committee Recommendations 30 LONG-TERM FUTURE USE Initiate a Process to Generate Proposals/Partnerships to Activate the Townsite - When the timing is right, following the student design project, Open Space and Trails, with input from the Steering Committee, will develop a process to seek proposals or partnerships to activate the buildings. This could be in the form of a Request for Proposals or a Request for Concepts process, or another way to accelerate the identification of a "champion" who is passionate about the reuse and activation of the buildings in a way that is compatible with the vision statement. The right fit will be a champion who understands how important these buildings are to the valley and has the initiative and resources to execute the rehabilitation and reuse of the buildings. The County has the ability to pursue a long-term leasing strategy or to subdivide and sell the townsite buildings if or when a future coalition of uses has been identified. If the County maintains ownership of the buildings as a part of a future public/private partnership, OST funds can be utilized pursuant to the Historic Structures Policy (Appendix A) and the County can apply for additional grant funding to assist with interior finishing, windows, and other basic building improvements. Ideally, a future proposal would include multiple uses, honor the history of the site, character of Emma and the spirit of this location, and create a space that is accessible to the community. If this process does not generate responses that are viable and advance the vision statement, the Steering Committee is comfortable waiting until the timing and use are right. The Committee would like to remain engaged as future uses for the building are considered. Interior Improvements - Minor improvements to facilitate the interim use as a storage space or public tours may be pursued to provide for the safety of the users. Improvements to finish the interior space to a level that is habitable for future uses are not currently recommended; due to the uncertainty of the needs of a future use and the potential to relocate the buildings farther away from the highway. INTERIM USES In the meantime, until a champion for the space is identified, the Committee supports the continued use of the buildings as a storage area for uses/activities that fit within the Open Space and Trails mission. Emma Townsite 1 Steering Committee Recommendations 31