Minutes - September 20, 2019

Minutes of the State Historic Preservation Review Board Meeting

September 20, 2019, 10:00 A.M.
Lake Michigan Room, Michigan Economic Development Corporation
300 North Washington Square, Lansing, Michigan

BOARD MEMBERS PRESENT

Kemba Braynon, Lane Demas, Misty Jackson, Janet Kreger, Brian Rebain, Krysta Ryzewski, Grace A.M. Smith

BOARD MEMBERS ABSENT

Rhonda Baker, Dale Gyure

STAFF MEMBERS PRESENT

Amy Arnold, Brian Conway, Alan Higgins, Debra Johnson, Katie Kolokithas, Martha MacFarlane-Faes, Nathan Nietering, Denise Slate, Stacy Tchorzynski, Diane Tuinstra, Todd Walsh

MEMBERS OF THE PUBLIC PRESENT

Bob Christensen, Abigail Gautreau, Alicia Whitcome, Tiffany Rakotz, Elaine Robinson, Ruth Mills, Saundra Little, Rev. Diallo Brown, Rev. Gary Bennett

CALL TO ORDER

Rebain called the meeting to order.

APPROVAL OF AGENDA

Motion to approve the agenda of the September 20, 2019 regular board meeting
Motion: Smith
Second: Kreger
Vote: 7-0

APPROVAL OF MINUTES – MAY 31, 2019

Motion to move approval of May 31, 2019 minutes.
Comments: Minor grammatical corrections from Kreger sent to Nietering to be incorporated.

Motion: Smith
Second: Ryzewski
Vote: 7-0

STAFF REPORTS

BRIAN D. CONWAY, STATE HISTORIC PRESERVATION OFFICER

SHPO is transitioning to the Michigan Strategic Fund/Michigan Economic Development Corporation, per executive order 2019-13 effective August 11, 2019. Welcoming the Board to MEDC today is Amanda Bright McClanahan, MEDC COO, who added:
- MEDC is pleased to have SHPO join and move to the MEDC building as part of Community Development (CD). SHPO will fit in well with an existing integrated CD strategy. MEDC executive leadership regularly attends the various board level meetings and will plan to attend future State Preservation Review Board meetings. Other MSF/MEDC board meetings are scheduled on michiganbusiness.org and are open to the public.
Moving boxes arrived at the beginning of the week. MEDC was surprised with the quantity of material that comes with our staff. It is expected that SHPO staff will arrive on September 30 but not everything will arrive at once, and it will take some time to get organized.
Alan Higgins has joined SHPO staff as the Certified Local Government (CLG) program coordinator; he previously worked as a consultant in cultural resource management. He has already begun visiting our 30 CLG communities and starting to build a plan for the future of the program. Also, Jessica Yann, an archaeology student assistant for 9 years will be leaving at the end of this month following her graduation and the award of her doctorate.
Lighthouse and CLG grant deadlines are approaching for FY2020 awards.
Section 106: Isle Royale NPS planning is coming to a controversial point between the wilderness areas and significant cultural resources, including Tobin Harbor, a very recently listed National Register historic district. The result of this case will set a national precedent. NPS is now looking at the cultural resources only within the cultural area, not within the wilderness area, but SHPO’s concern is how holistic this view is and will it still be in compliance with Section 106. Also, at Fort Wayne in Detroit, the fort property was largely transferred to the city some time ago but NPS maintained a vested interest. NPS has now decided they want to pull out entirely via abrogation. SHPO is asking that a preservation covenant be maintained in the revised deeds. Moving ownership to the city will allow for new uses to be considered while still following the Secretary’s Standards.
Amy Arnold has been working on the new statewide 5-year preservation plan and we have received an extension from NPS until Feb. 15 as a result of the move to a new state department. We also just received a $500,000 African American Civil Rights Grant to assist the King Solomon Baptist Church in Detroit with roof replacement. The church is a nationally-significant Civil Rights site and several important civil rights leaders spoke here during the 1960s. This is the second Civil Rights-related grant from NPS MISHPO has received.
There is also a recent NPS program in its second round seeking non-profits or SHPO/THPOs to put together subgrant programs to assist rural communities of less than 50,000 population, known as the Historic Revitalization Subgrant Program. MISHPO is considering applying to create a subgrant program to focus on rural maritime resources. This follows a recently completed Michigan Maritime Heritage Special Resources Study produced by NPS. This Study can be accessed via https://parkplanning.nps.gov/projectHome.cfm?projectID=34026 and clicking on the ‘Document List’ link near the top.
Kreger inquired about a status of Fishtown. Fishtown is a National Register-listed site perhaps of national significance at Leland, which is the only remaining traditional fishing village on Lake Michigan, and due to the high water levels is frequently inundated with flooding and may be severely damaged by ice over the upcoming winter. MacFarlane-Faes summarized that SHPO has been approached by the Army Corps of Engineers about flood control and damage, but they have not yet formally submitted anything to begin the 106 process. The desire is to totally rebuild three of the historic fishing shanties and associated docks; what will need to be assessed is how much of the building/dock material is going to be outright replaced, which would typically qualify as an adverse effect. They have not even begun to consider archaeological concerns or treatment. Kreger indicated that this Fishtown situation is indicative, adding that the boat shed at Bay View is also suffering from rising water level inundation and damage.
Jackson inquired about the status of the letter discussed at the previous Board meeting regarding the issue of the now-demolished log cabin in Detroit/Hamtramck. Conway indicated that the letter is not yet complete largely due to the transition but will be addressed.

STACY TCHORZYNSKI, ARCHAEOLOGY

Michigan Archaeology Day is Oct. 19, and SHPO co-hosts an event at the Michigan History Center with MHC and DNR. In recent years, over 1,100 people attend where over 150 presenters and volunteers join together to educate the public. This is a great event for families and people of all ages.

TODD WALSH, NATIONAL REGISTER COORDINATOR

Two religious properties (Transfiguration Church and St. Joseph Seminary) from last meeting were recently accepted for listing by NPS. The Grosfield and Reeber building nominations on Michigan Avenue in Detroit were returned by NPS due to significance and integrity issues. The path forward for nominating these properties will be that they would need to be included in a district, which was a consideration that the board discussed at length at the May meeting. The district would only be about two blocks long, and all on the south side of the street.
Coming up: a consultant is preparing district nominations for Wayland, Ishpeming and Negaunee, possibly for the January meeting. These are funded by our new parent agency MEDC via the Main Street Program. The Charlotte downtown nomination is nearly ready to go back to NPS for listing with revised maps and content. The Parkwyn District nomination of the Usonian Frank Lloyd Wright and Norm Carver homes in Kalamazoo is moving forward. Modern related: the Reynolds Metals Building preliminary questionnaire was received. Among other new preliminary questionnaires received is a unique Prairie Style funeral home in Coldwater was sits between several existing commercial and residential districts. There are a lot of nominations and projects in the works.

NATIONAL REGISTER NOMINATIONS

Site: Highland Cemetery, Ypsilanti, Washtenaw County
Presented by: Robert Christensen
Moved for Approval: Kreger
Seconded: Braynon
Vote: 7-0
Criteria: A, C, d
Level of Significance: Local

Comments: Kreger: This cemetery is such a standout. I like that this emphasizes the work of James Lewis Glenn, who is often unsung for his broad and diverse work across Michigan. Christensen: this is particularly lush and intact in terms of landscape features and trees. Demas - on pg. 40 in the discussion of the origins of Memorial Day, the text indicated southern women decorating graves were the origins of Decoration Day, but Demas might add that there is some uncertainty as to the origin. Jackson: Will there be a topographic map to help us associate this landscape within the community - yes there will. Smith: Including the site plans makes this meaningful and linking the photos with the landscape in the text helps give this understanding. She also noted a great introduction of what is contributing vs. what is non-contributing and then following that format throughout. One item that might need clarification is the architect Gerganoff - stating that he practiced through 1968, but then later that he died in 1966, so perhaps on pg. 18 this should be verified.

Site: Flint Municipal Center, Flint, Genesee County
Presented by: Elaine Robinson, Commonwealth Heritage Group
Moved for Approval: Kreger
Seconded: Smith
Vote: 7-0
Criteria: A, C
Level of Significance: Local

Comments: Smith: Sites vs. objects when considering resource count. SHPO will carefully review NPS guidance on this in order to get an accurate count. Kreger: What was the period of significance? This document lists 1957-1969, but it could be earlier, 1955 as that is when the plan was finalized. We need to double check the consistency to ensure these all match. The oral comments differ from the text dates. This municipal campus is impressive, like a "baby" GM Tech Center. Demas: The open housing movement was mentioned in the text but could be elaborated on slightly to better describe what happened to the neighborhood or what is beside the neighborhood at the time of its development. Kreger: Is there a sense in Flint that they know what they have with this complex? Robinson: yes, a third public presentation will be given next week to showcase the results of this research and nomination. Conway mentioned he could not think of any other complex like this - could this actually be state level of significance? It seems unique. Braynon added that there was a similar thoughtful planning process undertaken in Detroit with the city council building and Hart Plaza, which were equally unique with the campus development idea with large broad grass areas. Kreger: What would it take to make it State level? Walsh replied that it is mostly a function of capacity - there is a good case for this, but it would be outside of the scope of this contract for nomination.

Site: Twentieth Century Civil Rights Sites in the City of Detroit, 1900-1976 Multiple Property Documentation Form
Presented by: Ruth Mills, Quinn Evans Architects
Moved for Approval: Jackson
Seconded: Smith
Vote: 6-0 (Abstain: Braynon)
Criteria: N/A
Level of Significance: National

Note: This, and the subsequent Civil Rights-related nominations, are all the result of an NPS grant award to MISHPO, which was passed through to Quinn Evans Architects to undertake. The Multiple Property Documentation Form (MPDF) will allow other related sites to be nominated in the future.

Comments: Jackson: the category that I did not see included was 'D,' for potential to yield future information, why was this not included? Also, municipal boundaries and neighborhood maps would be useful to give context to this material and help non-Detroiters know what part(s) of the city is being discussed. The municipal boundaries were fluid at different times in the period of significance. Ryzewski added that there will, at some point, be archaeological components that relate to this. Kreger wondered if there could be space holder language to indicate that as new research is completed, it is likely there will be future below-ground resources discovered and researched which will be able to add to this documentation. Stacy: we specifically chose to have an archaeological survey undertaken at the Brewster-Douglass Housing Projects during demolition since this is one of the few sites strictly affiliated with the 20th century African American community. Braynon added that she wanted to commend Quinn Evans' work on this nomination that provides an excellent broad sweep of the story which will allow for future nominations. She continued that she appreciated the discussion of integrity, including potential loss of integrity, and the specific references that some sites, even with loss of integrity, should still be considered due to significance.

Demas: the periods of significance were defined by the NPS framework document, right? Mills responded that is correct. Demas: The statistics of the 1963 March really helped make the case for the national level of significance and role that Detroit played. Later, pg. 15, Motown was key in promoting the racial integration of music in the 1960s, but is this accurate? Maybe the 'integration of the audiences listening to the music' might be more accurate. Also, where "block busting" is used, typically that is seen as a single word. Jackson: Since this is an introductory document, it would be helpful to have some key dates added to help us understand how related sites and events fit in. Rebain asked will photos be included? Mills responded that no, but maps will be included with the final product, which will help provide geographic reference.

Site: Birwood Wall, Detroit, Wayne County
Presented by: Ruth Mills, Quinn Evans Architects
Moved for Approval: Ryzewski
Seconded: Braynon
Vote: 6-0 (Abstain: Braynon)
Criteria: A
Level of Significance: National

Comments: Jackson: It is shocking that this exists - do people who live in the neighborhood actually know the history and significance of the wall? Mills responded that the wall has received increasing awareness and significance over the past 10 years, and a book on the topic was recently published. Braynon: There were good quotes in the nomination acknowledging that this is the last fully intact wall for this purpose, how did the community support this designation? Mills responded that the neighborhood is generally in support of the designation and tourism aspect, and want to share this story, even though it reflects a troubling and sad era. Kreger added that you almost don't even see it because it is so innocuous. Demas stated that this is a great example of why the history of Civil Rights in the north is so much more difficult to describe, because so few physical structures remain or existed in the first place. Ryzewski noted it is interesting because the wall runs along the property line, but is essentially on private property. It's interesting how some of the individual property owners curate their own portion of the wall within their own property. Braynon inquired what entity owns it? Mills responded that it is not known, but they will check because it will affect future maintenance and protection. .

Demas asked if there was intentional discussion of using 'Birwood Wall' as opposed to an alternate name. Mills replied that this is how members of the neighborhood refer to it most commonly. Kreger noted that at some point portions of this wall will need maintenance, and decisions will need to be made about how to deal with graffiti. What will the treatment path(s) be? Ryzewski added there will likely be archaeological potential for this area, the wall site, at the Alfonso-Wells Memorial Park, and elsewhere within 8 Mile-Wyoming. Walsh added it would be easy to add a paragraph discussing the potential for sites to be present and that there will be more to learned from this area about its history. Jackson wondered if there is more oral history put into this document for the site? Mills responded that no additional oral histories were planned. Ryzewski inquired about the choice of 1950 as the cutoff date for significance? Mills responded it was the sense that in 1950, someone moved beyond the wall "color" barrier, and it began a trickle of integration. It showed the evidence of the futility of the wall and its purpose. Braynon asked if there is any interest in designating this as a local historic district? Mills replied that is not known at this time.

Site: New Bethel Baptist Church, Detroit, Wayne County
Presented by: Ruth Mills, Quinn Evans Architects
Moved for Approval: Smith
Seconded: Kreger
Vote: 6-0 (Abstain: Braynon)
Criteria: A, B, a
Level of Significance: National

Comments: Rebain mentioned it looked like Nathan Johnson was not included under architect/builder, but this may have been an inadvertent omission. Rebain also pointed out that it's hard to not mention Aretha Franklin right up front, and he sensed some restraint in the text. Mills responded it was difficult to consider whether this should be included using criterion B, but by the time of the period of significance here, Aretha was living elsewhere and would only come back occasionally. Kreger and Demas agreed with the treatment as presented in the nomination. Demas added that Rev. Franklin had national prominence before and separate from Aretha's musical renown.

Site: Rosa (McCauley) and Raymond Parks Flat, Detroit, Wayne County
Presented by: Ruth Mills, Quinn Evans Architects
Moved for Approval: Jackson
Seconded: Smith
Vote: 6-0 (Abstain: Braynon)
Criteria: B
Level of Significance: National

Comments: Smith asked if in the documentation, is it clear that the upper level is included for nomination along with the lower flat which the Parks actually occupied? She pointed out that it should be clear why little is being discussed about the upper level. The integrity is outstanding and this should be better highlighted in at least a statement. Rebain noted there is one statement about high level integrity. Kreger noted text references to "West Side" neighborhood vs. "Old West Side," and this should be reviewed for consistency. Ryzewski added that the neighborhood nomenclature is sometimes difficult to interpret. Demas asked if there was thought about listing both Rosa and Raymond Parks in the name, or just Rosa Parks. Walsh explained that the convention for the Register is to list both names, with the more prominent name listed first. The gender angle is really important in terms of female activism and is constantly being overlooked. Demas continued that the narrative often discusses how militant or radical black nationalism something may have been. The threads of it vary. One example, on Pg. 18 - how "radical?" Kreger asked if that discussion of the radical side is something that comes from NPS material? Mills explained that there is discussion of multiple approaches in primary sources. Demas stated black nationalism and the black power movement were not one and the same. The specter of violence maybe a better division for bifurcation. Walsh agreed there is need here for clarification.

Site: Shrine of the Black Madonna of the Pan African Orthodox Christian Church, Detroit, Wayne County
Presented by: Ruth Mills, Quinn Evans Architects
Moved for Approval: Kreger
Seconded: Ryzewski
Vote: 6-0 (Abstain: Braynon)
Criteria: A, B, a
Level of Significance: National

Comments: Smith pointed out that in both of this meeting's church nominations, it discusses the excellent job churches did to bring the intellectual discussion and inspiration to their congregations and really to the entire city. This was well-captured in the nominations. Kreger asked about referring to the July 1967 activities as "the rebellion." Braynon indicated this was the direction Quinn Evans received from the African American Advisory Board as generally accepted, and the nomination follows this convention of using 'rebellion' instead of 'riot.'

Site: WGPR-TV, Detroit, Wayne County
Presented by: Ruth Mills, Quinn Evans Architects
Moved for Approval: Smith
Seconded: Baker
Vote: 6-0 (Abstain: Braynon)
Criteria: A, g
Level of Significance: National

Comments: None.

Lunch (Board and Staff) Motion to break for lunch at 1:12. Reconvene at 1:36.

LOCAL HISTORIC DISTRICT STUDY COMMITTEE REPORTS

AMY ARNOLD, STATE HISTORIC PRESERVATION OFFICE

Aretha Franklin Amphitheatre/Chene Park Local Historic District, Detroit, Wayne County
Comments by Arnold:

In our opinion, this report does not show how Chene Park has exceptional significance and meets NPS Consideration G. In 2002, the SHPO adopted rules which state that local communities must follow the Secretary of Interior's Standards for the National Register when establishing local historic districts. The park is just 35 years old. That does not seem to provide enough time to gain "sufficient historic perspective" to determine the historic significance. Nor does the report supply "the scholarly research and evaluation" required to make a determination of exceptional significance.
There were many plans to redevelop Detroit and its riverfront. Enough time has not elapsed to indicate that the Linked Riverfront Park Project was more outstanding than any of the others and the report does not include sufficient information to show that it does. Nor does the report place Chene Park within the larger context of new planning theories and important planners/landscape architects who emerged after World War II, especially those related to riverfront development to show this park's exceptional significance.
The report indicates that Chene Park was just one park in a system of three parks. Why was just one of the parks selected for protection?

Board Comments: Kreger asked what the motivation was for this local district? Arnold responded that the amphitheater was recently named in Franklin’s memory and the local designation may be another way to commemorate this legacy. Ryzewski added that a major archaeological component was ignored. Rebain pointed out that the Indigenous era through early settlement and shipbuilding/industry are not mentioned.

Boundary Modification, Jorgensen Houses 51160 & 51161 Cherry Hill Road, Canton Township, Wayne County
Comments by Arnold:
The report title should include the addresses of the resources not just Old and New Jorgensen houses.
A site map should clearly show the location of the two parcels under discussion and indicate which of the parcels is to be removed. A map that clearly shows the new boundary for the entire historic district, once that parcel is removed, needs to be included in the report
For this to be a standalone report, on page two, there should be more clarifying information about the old and new Jorgenson houses i.e., what year were they were built, what style they are, and their integrity? Photographs of the houses and of the parcel that is being removed should also be included.
We take issue with the last sentence of paragraph 2 on page 1. Historic designation would not “jeopardize the use of the land,” rather it would protect the integrity of the historic district requiring any new construction to be reviewed by the historic district commission to ensure it did not negatively impact the overall historic district. For example, buffer plantings could have been required by the HDC to preserve the setting and feel of the historic district.

Board Comments: Jackson stated that since the Board didn’t receive a good map, we don’t have a good understanding of if the land is where the outbuildings once were and what archaeological resources there may be/have been. This proposal is basically a done deal. Jackson asked what the Board can do? Arnold responded that the Board can provide comments on what the report is lacking and provide guidance on what the process should be. This development threat has been a repeated issue for the Cherry Hill Local Historic District.

DATES OF NEXT MEETINGS

January 17, 2020

ADJOURNMENT

Motion to adjourn: Smith
Seconded: Braynon
Vote: 7-0
Meeting adjourned at 1:52 p.m.

Prepared by Nathan Nietering