Meeting Date: March 13, 2024
Responsible Staff: Sheila Bashiri
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SUBJECT: |
Sectional Map Amendment MAP2024-00125, to Rezone Property at 4 Courthouse Square from MXTD (Mixed Use Transit District) to MXTD (HD) to Place the Property in the Historic District Zone; Historic District Commission of Rockville, Applicant |
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RECOMMENDATION (Include change in law or Policy if appropriate in this section): |
Staff recommends that the Planning Commission find that the proposed Sectional Map Amendment MAP2024-00125, which would add the Historic District overlay zone to 4 Courthouse Square, is consistent with the Comprehensive Plan and in conformance with the purpose of the Historic District zone. |
Planning Commission Staff Report:
Sectional Map Amendment MAP2024-00125,
4 Courthouse Square, Farmers Banking and Trust Building
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MEETING DATE: |
March 13, 2024 |
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REPORT DATE: |
March 6, 2024 |
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RESPONSIBLE STAFF: |
Sheila Bashiri, Principal Planner Comprehensive Planning Division 240.314.8236 sbashiri@rockvillemd.gov |
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SUBJECT: |
Sectional Map Amendment MAP2024-00125, an application to rezone property at 4 Courthouse Square from MXTD to MXTD HD (Historic District) |
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Recommendation:
Staff recommends that the Planning Commission find that the proposed Sectional Map Amendment MAP2024-00125, which would change the zone for 4 Courthouse Square from MXTD to MXTD HD (Historic District), is consistent with the Comprehensive Plan and in conformance with the purpose of the historic district zone.
Site Description
Comprehensive Plan Land Use: Office, Commercial and Residential Mix
Zoning District: Mixed Use Transit District (MXTD)
Existing Use: Commercial
Property Area: 4,902 square feet
Subdivision: Rockville Town Center, Parcel 5-A (Lot N282)
Building Floor Area: 6,058 square feet
Dwelling Units: 0
Surrounding Land Use and Zoning
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Zoning |
Planned Land Use |
Existing Use |
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North |
MXTD |
Residential Flexible |
Commercial and Residential |
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East |
MXTD |
Office, Commercial and Residential Mix |
Commercial and Residential |
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South |
MXTD (HD) |
Civic and Public Institutional |
Montgomery County Grey Courthouse |
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West |
MXND |
Office, Commercial and Residential Mix |
Commercial |
Historic District Commission
Evaluation of Significance
The Farmer’s Banking and Trust Building was listed in the National Register of Historic Places as part of the Montgomery County Courthouse National Register Historic District in 1986. The Courthouse Square Historic District, which includes the 1891 Red Brick Courthouse, the 1931 Grey Courthouse, and the 1938 Post Office, was locally designated in 1979. However, the subject building was not included within the local historic district boundaries and is therefore not locally designated.
At the October 19, 2023 Historic District Commission (HDC) meeting, Peerless Rockville Preservation, a nonprofit, community-based organization founded in 1974 to preserve buildings, objects, and information important to Rockville’s heritage, requested the HDC consider expanding the boundaries of the Courthouse Square Historic District to include the bank building. Expanding the boundaries would require local designation of the bank. At their November 16, 2023, the HDC voted to file an application nominating the property for local historic designation. The HDC filed a Nomination of Property for Local Historic Designation Application on December 15, 2023. In accordance with Section 25.14.01 of the Zoning Ordinance, and section 5-96(3) of the Rockville City Code, the Historic District Commission may file an application nominating a property for historic significance.
On January 18, 2023, in accordance with Section 25.14.04.d of the City of Rockville Zoning Ordinance, Rockville’s HDC conducted an Evaluation of Significance to determine whether to recommend that the Mayor and Council designate the property for historic designation. The staff report for the HDC meeting is provided as Attachment A.
The HDC based the nomination on its finding that the property meets Historic Significance Criteria a) and Architectural, Design, and Landscape Significance Criteria a), d) and e) of the adopted HDC criteria for historic designation.
After the staff presentation, the HDC also received oral public testimony of support from the following individuals: Deborah Chalfie, Preservation Chair of the Art Deco Society of Washington, who spoke in favor of designation; Eileen McGuckian, who spoke in favor of designation; Margaret Magner, Chair of the West End Citizens Association, who spoke in favor of designation; and Nancy Pickard, Executive Director of Peerless Rockville, who spoke in favor of designation. The HDC also received 34 written testimonies from members of the public; 33 in support and one against historic designation. Howard Block, an M&T Bank representative, attended the January 18 meeting but did not indicate the bank’s position on the nomination. Written public testimony submitted regarding the bank building is attached to the HDC Staff Report, Attachment A.
After deliberation, the HDC voted 5-0 in favor of recommending historic designation for this property. As a result of that vote, HDC became the applicant for the filing of an application for a Sectional Map Amendment to recommend that the Mayor and Council place the property in the Historic District Zone. Sectional Map Amendment application MAP2024-00125 was submitted to the City Clerk on January 24, 2024, by staff representing the HDC.
The HDC’s support for historic designation was based on its finding that the following four of the adopted criteria for historic designation were met:
Historic Significance
a) Represents the development, heritage, or cultural characteristics of the City.
The Farmers Banking and Trust Building represents almost a century of banking activity in Rockville. It provided capital to residents and businesses and assisted local government with projects and fiscal management. It is one of the few commercial buildings to survive Rockville’s urban renewal.
Architectural, Design, and Landscape Significance Criteria:
a) Embodies distinctive characteristics of a type, period, or method of construction.
Farmers Banking and Trust Building is the only remaining Art Deco structure in
the City of Rockville.
d) Represents a significant architectural, design, or landscape entity in the City.
As the last remaining Art Deco building in the City, the architecture is a significant entity within the City of Rockville.
e) Represents an established visual feature of the neighborhood or City because of its physical characteristics or landscape components.
The building is an established visual feature which has stood at this corner for nearly 100 years. It is the last remaining commercial building of what was once Rockville’s main business district. It is unique in its monumental architecture and design.
The next step in the process to determine whether the City will designate the property as historic is for the Planning Commission to review this proposed zoning change for consistency with the Comprehensive Plan and provide a recommendation to the Mayor and Council in that regard. The Mayor and Council will then hold a public hearing and determine whether to apply the Historic District Zone to the property.
The proposed historic designation would be a change in zoning. Specifically, the proposed Sectional Map Amendment before the Planning Commission would change the zoning of 4 Courthouse Square from MXTD to MXTD (HD) by adding the Historic District Zone to the property. This designation would require that any alterations to the building or site be reviewed and approved by the HDC.
As with all proposed sectional map amendments, the application is referred to the Planning Commission per Zoning Ordinance Sec. 25.06.01.g, which further states that “The Commission may submit a written recommendation [to the Mayor and Council] which will be placed in the application file by the Clerk and become a part of the record on the application.”
Staff recommends that the Planning Commission consider any recommendation that it may wish to make based on two areas of analysis: whether the proposed Sectional Map Amendment would 1) be consistent with the City’s Comprehensive Plan; and 2) conform to the Purposes of Historic District Zone, which are outlined in Zoning Ordinance Section 25.14.01.a. A discussion of each is provided below.
Attachment A, the staff report for the January 18, 2024, HDC meeting, provides a detailed discussion of the property’s history and architectural features. That discussion is not repeated here but is important background to the Planning Commission’s review.
Consistency with the Comprehensive Plan
Two areas of the Rockville 2040 Comprehensive Plan (the Plan) are relevant to the analysis of consistency: the Historic Preservation Element and, because of the location of the property, the Planning Area 1 chapter.
Historic Preservation Element
Like all Elements in the Plan, the Historic Preservation Element is organized by a Vision, Goals, Policies, and Actions. This analysis will discuss consistency using those organizational categories.
The Vision (p. 213) of the Historic Preservation Element is: “Enhance the character of Rockville and contribute to its quality of life and local economy by proactively identifying and safeguarding its physical and cultural heritage to preserve the themes and periods of the city’s history and development, no matter the era.” This vision clearly sets the stage for the historic designation of properties.
Action 1.1 (p. 219) calls for Rockville to “Maintain the City’s Certified Local Government (CLG) status. Rockville’s historic preservation efforts and its HDC are recognized by the Maryland Historic Trust (MHT) as a Certified Local Government program. To remain in good standing as a CLG, the City must continue to meet certain agreed-upon requirements. The CLG agreement between the City of Rockville and the MHT states that the City will "continue to enforce state and local legislation for the designation and protection of historic properties.” The local designation of 4 Courthouse Square would be consistent with Action 1.1 by contributing to maintaining the City’s CLG status.
Goal #2 (p. 219 of the Plan) calls for Rockville to “Preserve and recognize significant examples of architectural periods, historic themes and the diversity of Rockville’s history and historic resources through local historic designation.” It distinguishes the difference between national and local historic designation. Goal #2 discusses the fact that in Rockville there are overlapping national and local historic districts, with slight variations in boundaries, but also larger differences. While designation on the National Register of Historic Places is an honorary recognition, local designation regulates alterations and demolitions to historic properties. The Courthouse Square Historic District, which includes the 1891 Red Brick Courthouse, the 1931 Grey Courthouse, and the 1938 Post Office, was locally designated in 1979. The Farmer’s Banking and Trust Building was listed part of the Montgomery County Courthouse National Register Historic District in 1986. However, the building was not locally designated and is not within the boundaries of the locally designated historic district.
Designating 4 Courthouse Square as historic would be consistent with the Comprehensive Plan. Goal #2 includes, on p. 221, a full endorsement of all the criteria that the HDC uses in its Evaluations of Significance review. Relevant to this property, the Plan specifically mentions the four criteria on which the HDC made findings that were the basis for its recommendation for historic designation, which states:
“Rockville values buildings, structures, sites, landscapes, viewsheds, and objects that:”
• “Represent the development, heritage, or cultural characteristics of the city;”
• “Embody distinctive characteristics of a type, period, or method of construction;”
• “Represent a significant architectural, design, or landscape entity in the city; “and,
• “Represent an established visual feature of the neighborhood or city because of its physical characteristics or landscape components.”
Staff determined, in its report to the HDC, that these criteria were met for 4 Courthouse Square; and the HDC found the same. Therefore, making a recommendation for historic designation based on these criteria is consistent with the Plan.
Policy #8 (p. 227) calls on Rockville to “Support the synergistic connection between historic preservation and environmental sustainability.” The text for that policy endorses “the retention of older buildings” because they preserve “the materials, energy, and human capital already expended in their construction.” Designating 4 Courthouse Square would be consistent with Policy #8, especially with respect to retaining the older building and the site.
Planning Area 1
The Planning History of Town Center is discussed in Planning Area 1 (p. 255). It states:
“Creating an active downtown has been a major goal in Rockville for decades. In the early 1960s, Rockville was the second community in the state to initiate a federally-supported urban renewal program to construct a new downtown. The Mid-City Urban Renewal Area sought to position Town Center competitively with nearby suburban shopping centers by providing amenities that would draw people into Rockville’s downtown. Urban renewal resulted in the removal of some then-existing streets and businesses, which were at the time considered by the municipality to be in need of redevelopment, and the construction of the 350,000-square-foot Rockville Mall. However, the renewal project was not successful in its goal and, by 1990, the mall had closed. Forced to find a solution for its redevelopment, the City approved a new development plan for the mall site, and in 1996, it was demolished. Demolition of the mall paved the way for a reconnected street grid and a new 100,000-square-foot retail pavilion of restaurants and a movie theater on East Montgomery Avenue.”
The Farmers Banking and Trust Building is the last remaining commercial building of what was once Rockville’s main business district. The building survived the Mid-City Urban Renewal program, which involved the demolition of numerous streets, businesses, and buildings, the construction and later demolition of the Rockville Mall, and the development of the existing Town Square. The building has survived all the transformations the Town Center has experienced since it was erected in 1930. Its continued existence is a tribute to the building’s importance to the community. While the chapter for Planning Area 1 does not address historic preservation or the future historic character of the area, it is not required because the importance of the historic district has already been established. The local designation of the Farmers Banking and Trust Building will maintain the historic character and identity of the Montgomery County Courthouse National Register Historic District and the Courthouse Square Historic District. Historic designation will continue to celebrate and display the rich history of Planning Area 1, Town Center.
Conformance with the Purpose of Historic District Zones
Historic District (HD) zoning is an overlay zone that does not change the underlying zoning, and requirements for “Use” and “Development Standards” are not affected or changed. The purpose for the HD Zone is outlined below, with staff’s assessment of how the proposed Sectional Map Amendment conforms with the provisions of the purpose.
25.14.01 - Historic District Zones
a. Purpose -The Historic District Zone is an overlay zone. The purpose of the zone is to:
1. Safeguard the heritage of the City by preserving sites, structures, or areas which reflect elements of cultural, social, economic, political, archaeological, or architectural history;
Historic District zoning would assure long-term preservation of the historic character of this property through HDC review of exterior alterations to ensure compatibility with the historic district subject to the public review process delineated in the Zoning Ordinance. Additionally, it will preserve the rich cultural heritage of the existing Courthouse Square Historic District.
2. Stabilize and improve the property values of those sites and structures, and the adjacent
Neighborhood;
Historic District zoning would be expected to provide a measure of stability for this property as the HDC works to ensure that proposed alterations at the site are compatible with the historic significance of the property. The property is currently vacant and for sale. It is at risk of incompatible exterior alterations which will impact the existing local and National Register historic districts. The designation of the property would maintain the aesthetic quality of the existing building, which could have a beneficial impact on Town Center property values.
3. Foster civic beauty;
Historic designation inserts the HDC as a review board to ensure that the historic character of this property will be retained, even as ongoing renovations are carried out. Designation also provides an opportunity for public assistance in property maintenance through the Montgomery County Historic Preservation Tax Credit program. As such, designation of 4 Courthouse Square could foster civic beauty.
4. Strengthen the local economy; and
Heritage resources are an attraction to visitors who support the local economy (retail, restaurants, etc.). To the extent that Rockville takes advantage of its historic resources to market the City, locally designating the Farmers Trust and Banking Building, a prominent site in the center of the city, can contribute to the local economy. The building’s inclusion in the Courthouse Square Historic District can be incorporated into current and future heritage programming.
5. Promote the preservation and the appreciation of those sites and structures for the education and welfare of the residents of the City.
Historic designation provides an opportunity for residents to enjoy the City’s heritage with an authentic resource that illustrates the Town Center’s past and present development.
The HDC held their Evaluation of Historic Significance on January 18, 2024. Noticing requirements of Section 25.05.03 of the Zoning Ordinance were met. The posting of the required sign on the property occurred two weeks prior to the HDC Meeting, and postcard notices were also sent out two weeks prior to the meeting. Staff also reached out directly to the West End Citizens Association (WECA) and Peerless Rockville to inform them of the upcoming HDC Evaluation of Significance for this property. As a result of public outreach, 34 emails were received with comments on the future of the property. Four members of the community gave public testimony via WebEx at the HDC meeting.
Noticing requirements of Section 25.05.03 of the Zoning Ordinance were met as required for the March 13, 2024 Planning Commission meeting.
1) Staff recommends that the Planning Commission find that approval of the Sectional Map Amendment MAP2024-00125, to change the zone from MXTD to MXTD HD (Historic District), would be consistent with the Comprehensive Plan, based on the Historic Preservation Element and the chapter for Planning Area 1.
Specifically, staff finds that consistency derives from the Historic Preservation Element’s Vision, Action 1.1, Goal 2, and Policy 8.
Staff also finds that historic designation of this property would be consistent with Planning Area 1’s existing Montgomery County Courthouse National Register Historic District in and the Courthouse Square Historic District.
Staff also recommends that the Planning Commission finds that the proposed Sectional Map Amendment is in conformance with the provisions that constitute the Purpose of the Historic District Zone, per Section 25.14.01 of the Zoning Ordinance
The Mayor and Council will hold a public hearing on the Map Amendment, at which time they will receive testimony from the public. The Mayor and Council will then make the final decision regarding the Sectional Map Amendment that, if approved, would designate the property as historic. It will do so based on public record, the recommendations of the HDC and the Planning Commission, and any other relevant information.
Attachment A: HDC Staff Report of 1-18-24 for 4 Courthouse Square - Evaluation of Significance (PDF)
Attachment B: Peerless Rockville Statement - 4 Courthouse Square (PDF)
Attachment C: Written Public Testimony to Rockville Historic District Commission (PDF)
Attachments
HDC Staff Report 4 Courthouse Square 1.18.24 (PDF)
