Quasi Judicial Memo

City of Boulder City Council Quasi-Judicial Agenda Item Meeting Date: August 20, 2026 Agenda Title Introduction, first reading and consideration of a motion to order published by title only Ordinance 8766 designating the property at 844-850 12th St., City of Boulder, Colorado, to be known as the Heilman–Bedell–Stepanek Property, as an individual landmark under Chapter 9-11, “Historic Preservation,” B.R.C. 1981; and setting forth related details.

Staff Contact  

Marcy Gerwing, Principal Historic Preservation Planner, Planning and Development Services Brad Mueller, Director of Planning and Development Services

Draft Motion Language Motion to introduce and order published by title only Ordinance 8766 designating the property at 844-850 12th St., City of Boulder, Colorado, to be known as the Heilman– Bedell–Stepanek Property, as an individual landmark under the City of Boulder Historic Preservation Ordinance; and setting forth related details.

Executive Summary This item is consideration of an owner-nominated landmark designation application for the property at 844-850 12th St. The property includes two houses constructed in 1920 and circa 1928. On July 1, 2026, the Landmarks Board voted unanimously (5-0) to recommend that the City Council designate the property at 844-850 12th St. as a local historic landmark, to

be known as the Heilman–Bedell–Stepanek Property, finding that it meets the standards for individual landmark designation in Sections 9-11-1 and 9-11-2, B.R.C. 1981. The purpose of this agenda item is for City Council to consider first reading of an ordinance designating the property at 844-850 12th St. as an individual landmark under the city’s Historic Preservation Ordinance. The council must determine whether the proposed individual landmark designation of the property meets the purposes and standards of the Historic Preservation Ordinance (Sections 9-11-1 and 9-11-2, B.R.C. 1981). This includes that the landmark designation: 1. Will promote the public health, safety, and welfare by protecting, enhancing, and perpetuating buildings, sites, and areas of the city reminiscent of past eras, events, and persons important in local, state, or national history or providing significant examples of architectural styles of the past. 2. Will develop and maintain appropriate settings and environments for such buildings, sites, and areas to enhance property values, stabilize neighborhoods, promote tourist trade and interest, and foster knowledge of the city’s living heritage. 3. Will draw a reasonable balance between private property rights and the public interest in preserving the city’s cultural, historic, and architectural heritage by ensuring that demolition of buildings and structures important to that heritage will be carefully weighed with other alternatives and that alterations to such buildings and structures and new construction will respect the character of each such setting, not by imitating surrounding structures, but by being compatible with them. The property owner is in support of the designation. If approved, Ordinance 8766 would result in the designation of the property as an individual landmark. The findings are included in the ordinance. A second reading for this designation will be a quasi-judicial public hearing.

Council Action Options Option

Outcome

Approve the application

If the application is approved Ordinance 8766 would result in the designation of the property as an individual landmark.

Approve the application with additional conditions

City Council may modify the landmark boundary and landmark name. Council would need to draft any modifications to the draft motion language and approval, based on the criteria for review.

Deny the application

If the application is denied the property would not be designated as an individual landmark.

Key Issues N/A

Background Property Description & Site Context The property at 844-850 12th St. is located midblock between Aurora Avenue and Cascade Avenue on 12th Street. The rear of the property abuts an unnamed alley. The property includes two structures: the primary house (850 12th St.) faces west onto 12th Street and has a traditional setback from the street; the accessory house (844 12th St.) faces west and is set back toward the alley. The property is located within the identified potential University Hill Historic District. The property includes two dwellings that are significant for their connection to first owner and long-term resident Elizabeth Heilman, who was a key volunteer for Boulder’s Red Cross during the First World War. In 1920, she commissioned fellow Red Cross volunteer and architect David H. Holmes to design the front house on the property. She added the rear house in 1927 and lived here until her death in 1942. Subsequent owners, Grace and Florence Bedell, are also historically significant. The sisters, both professors in Home Economics taught nutrition and other scientific subjects essential for families struggling through the Great Depression. The front house is additionally significant for its architecture as Boulder’s only extant representation of David Hull Holmes’ more modest vernacular work in the Southwest Mediterranean Style.

Application Description The Landmarks Board recommends the property be known as the Heilman–Bedell– Stepanek Property to recognize the to recognize the achievements of the original and subsequent long-term residents, Elizabeth Heilman, Grace D. Bedell and Florence J. Bedell, and long-term owners, Joseph and Caroline Stepanek. This is consistent with the Landmark Board’s Guidelines for Names of Landmarked Structures and Sites (1988) and the National Register of Historic Places Guidelines for Designation. See Guidelines for Names of Landmarked Structures and Sites (link). The Landmarks Board recommends that the boundary be established to follow the property lines of the lot, consistent with current and past practices and the National Register Guidelines for establishing landmark boundaries. This boundary is supported by the property owners.

Application History On July 1, 2026, the Landmarks Board voted unanimously (5-0) to recommend that the City Council designate the property at 844-850 12th St. as a local historic landmark, to be known as the Heilman–Bedell–Stepanek Property, finding that it meets the standards for individual landmark designation in Sections 9-11-1 and 9-11-2, B.R.C. 1981.

Public Comment At the Landmarks Board public hearing, three members of the public spoke regarding the designation. Prior to the public hearing, three members of the public wrote to the Landmarks Board regarding the designation.

Criteria for Review Applicable Boulder Revised Code Sections Section 9-11-6(b), Council Ordinance Designating Landmark or Historic District, of the historic preservation ordinance specifies that in its review of an application for local landmark designation, the council must consider “whether the designation meets the purposes and standards in Subsections 9-11-1(a) and Section 9-11-2, City Council May Designate Landmarks and Historic Districts, B.R.C. 1981, in balance with the goals and policies of the Boulder Valley Comprehensive Plan.” The City Council shall approve by ordinance, modify and approve by ordinance, or disapprove the proposed designation. 9-11-1, Legislative Intent, B.R.C. 1981 states: (a) The purpose of this chapter is to promote the public health, safety, and welfare by protecting, enhancing, and perpetuating buildings, sites, and areas of the city reminiscent of past eras, events, and persons important in local, state, or national history or providing significant examples of architectural styles of the past. It is also the purpose of this chapter to develop and maintain appropriate settings and environments for such buildings, sites, and areas to enhance property values, stabilize neighborhoods, promote tourist trade and interest, and foster knowledge of the city’s living heritage. (b) The City Council does not intend by this chapter to preserve every old building in the city but instead to draw a reasonable balance between private property rights and the public interest in preserving the city’s cultural, historic, and architectural heritage by ensuring that demolition of buildings and structures important to that heritage will be carefully weighed with other alternatives and that alterations to such buildings and structures and new construction will respect the character of each such setting, not by imitating surrounding structures, but by being

compatible with them. (c) The City Council intends that in reviewing applications for alterations to and new construction on landmarks or structures in a historic district, the Landmarks Board shall follow relevant city policies, including, without limitation, energyefficient design, access for the disabled, and creative approaches to renovation. 9-11-2, City Council may Designate Landmarks and Historic Districts, B.R.C. 1981 states: (a) Pursuant to the procedures in this chapter the City Council may by ordinance: (1) Designate as a landmark an individual building or other feature or an integrated group of structures or features on a single lot or site having a special character and historical, architectural, or aesthetic interest or value and designate a landmark site for each landmark; (2) Designate as a historic district a contiguous area containing a number of sites, buildings, structures or features having a special character and historical, architectural, or aesthetic interest or value and constituting a distinct section of the city; (3) Designate as a discontiguous historic district a collection of sites, buildings, structures, or features which are contained in two or more geographically separate areas, having a special character and historical, architectural, or aesthetic interest or value that are united together by historical, architectural, or aesthetic characteristics; and (4) Amend designations to add features or property to or from the site or district. (b) Upon designation, the property included in any such designation is subject to all the requirements of this code and other ordinances of the city.

Applicable Plans and Guidelines N/A

Analysis Summary of Significance To assist in the interpretation of the historic preservation ordinance, the Landmarks Board adopted an administrative regulation in 1975 establishing Significance Criteria for Individual Landmarks (link). For additional information on the history of the property, see the July 1, 2026 Landmarks Board Memorandum (link).

ANALYSIS:

A. Would the designation protect, enhance, and perpetuate a property reminiscent of a past era(s), event(s), and person(s) important in local, state, or national history in Boulder or provide a significant example of architecture of the past? Staff considers, and the Landmarks Board found, that the proposed designation of the property at 844-850 12th St. will protect, enhance, and perpetuate a property reminiscent of a past era of history and preserve an important example of Boulder’s historic architecture.

B. Does the proposed application develop and maintain appropriate settings and environments for such buildings, sites, and areas to enhance property values, stabilize neighborhoods, promote tourist trade and interest, and foster knowledge of the City’s living heritage? Staff considers, and the Landmarks Board found, that the proposed designation will maintain an appropriate setting and environment for the building and site, and enhance property values, stabilize the neighborhood, promote tourist trade and interest, and foster knowledge of the city’s living heritage. HISTORIC SIGNIFICANCE: Summary: The property located at 844-850 12th St. meets the following historic significance criteria. 1. Date of Construction: 1920 (850 12th St.) and c. 1928 (844 12th St.) Elaboration: Boulder County records show the year of construction of both houses as 1920. However, the rear house was not completed until 1928. 2. Association with Persons or Events: The property at 844-850 12th St. has had a number of stewards over the last century. The first owner, Elizabeth Heilman, was a key volunteer for Boulder’s Red Cross during the First World War. Elizabeth bought lots 11 and 12 (the two northernmost lots) in May 1919. She commissioned fellow Red Cross volunteer and architect David H. Holmes to design and build 850 12th St. She purchased the adjacent lot to the south (844 12th St.) in 1923 and built the smaller house in 1927. She lived there until her death in 1942. Subsequently, Grace

and Florence Bedell purchased the property. Grace and Florence were sisters, both retired professionals who had both worked in the new field of Home Economics. 3. Distinction in the Development of the Community: As mentioned in the survey of the University Hill neighborhood in 1992, the area is important to the “historic development of Boulder, reflected in such aspects as its streetcar system, the university campus, boarding houses and the houses of fraternities and sororities, and University Hill school and business district.” 4. Recognition by Authorities: Front Range Research Associates, Inc.; National Register Nomination for 720 11th St. (David Hull Holmes House) Elaboration: The house addressed 850 12th St. was surveyed in 1991 and 2001 and found to be representative “of the many dwellings constructed in the University Hill neighborhood of Boulder during the 1920s, and reflects early 20th Century architectural influences through its gabled roof with overhanging eaves and exposed rafters; smooth stuccoed wall cladding; and multi-light windows.”[i] The National Register Nomination for 720 11th St. (David Hull Holmes House) notes that “the house Holmes designed at 850 12th Street in 1920 [is] in-keeping with the white stucco-clad homes he designed during the latter part of his career in Tucson. … notable for their clean, bold lines, deep roof overhangs and stripped-down simplicity. … The integrity of 850 12th Street is high and the home is currently owned by Holmes’s grandniece, Caroline Stepanek, and her husband Joseph.[ii] The house addressed 844 12th St. was surveyed in 1991 and 2001. The survey states that “This small dwelling reflects vernacular architecture, as well as early 20th Century influences, through its gabled roof, shingled walls, and multi-light windows. A number of back lot houses were constructed in Boulder neighborhoods and were often rented to students.”[iii] Further research has identified that students were not primarily residents of the houses. ARCHITECTURAL SIGNIFICANCE: Summary: The building at 844-850 12th St. meets the following architectural significance criteria. 1. Recognized Period or Style: Southwest Mediterranean Elaboration: The Tucson Historic Preservation Foundation credits David Hull Holmes with creating Tucson’s iconic Southwestern Mediterranean style, featuring thick stucco walls, deep overhangs, efficient ventilation and natural cooling, and Mediterranean styles and motifs without excesses of ornamentation. 2. Architect or Builder of Prominence: David Hull Holmes Elaboration: Elizabeth Heilman commissioned David H. Holmes to design and built the house at the front of the lot (850 12th St.). Elizabeth and David worked together as volunteers for Boulder’s Red Cross during the First World War. The

house at 850 12th St. shares elements of David’s signature Mediterranean style, including its horizontal form, exposed raftertails, arched opening, stucco and divided lite windows. However, the house is unique in its modest size and detailing that reflect the client’s desires and budget. The architect for the rear house (844 12th St.) is unknown. 3. Artistic Merit: None identified 4. Example of the Uncommon: A rare modest, vernacular work of architect David H. Holmes demonstrating his use of rounded arches and simple façade in the iconic southwest Mediterranean style more common in Tucson, Arizona. 5. Indigenous Qualities: The stone cladding at the chimneys are likely locally sourced. ENVIRONMENTAL SIGNIFICANCE: Summary: The building located at 844-850 12th St. meets the following environmental significance criteria. 1. Site Characteristics: The houses are set on multiple lots and are surrounded by mature and newer vegetation. 850 12th St. is set back traditionally from 12th St.; 844 12th St. is toward the back of the lot abutting the alley. Due to the topography (the lots slope steeply to the east) there are multiple patios and stepped areas. The rear has been partially paved to allow access to the basement garages. 2. Compatibility with Site: The massing and scale of the houses and the property’s mature vegetation are compatible with its residential setting. 3. Geographic Importance: None observed. 4. Environmental Appropriateness: None observed.

5. Area Integrity: The property is located in the identified potential University Hill historic district. Elaboration: An intensive survey of the University Hill neighborhood in 1992 identified the boundaries of a potential historic district. This district was potentially eligible for the National Register (period of significance from 1892 to 1942).[iv] At the time of the survey, neither 844 12th St. nor 850 12th St. were identified as a contributing features of the

proposed district. The proposed district was noted to be “associated with significant people, many of whom were affiliated with the University of Colorado, and includes many high style homes designed by known architects as well as residences representative of particular architectural styles and methods of construction. In addition, the proposed district is significant for its association with the historic development of Boulder, as reflected in such aspects as its streetcar system, the university campus, boarding houses and the houses of fraternities and sororities, and University Hill school and business district.” [i] Front Range Research Associates. “850 12th Street historic building inventory records.” 1991-2001. Call No. 780

12th 850. Carnegie Library for Local History, Boulder. https://localhistory.boulderlibrary.org/islandora/object/islandora%3A9608 [ii] Unger, Amy. “National Register Nomination: David Hull Holmes House.” 2018.

https://www.historycolorado.org/sites/default/files/media/documents/2020/co_boulder_county_david_hull_holmes_ho use.pdf.pdf [iii] Front Range Research Associates. “844 12th Street historic building inventory records” 1991-2001. Call No. 780

12th 844. Carnegie Library for Local History, Boulder. https://localhistory.boulderlibrary.org/islandora/object/islandora%3A9568 [iv] Front Range Research Associates. “Boulder Survey of Historic Places: Local Identification Central Area: Phase II.”

1996.

Findings The Landmarks Board finds, based upon the application and evidence presented, that the proposed designation application is consistent with the purposes and standards of the Historic Preservation Ordinance, in that: 1. The designation of the property at 844-850 12th St. will protect, enhance, and perpetuate a property reminiscent of a past era of history and preserve an important example of Boulder’s historic architecture. 2. The proposed designation will maintain an appropriate setting and environment for the building, and enhance property values, stabilize the neighborhood, promote tourist trade and interest, and foster knowledge of the city’s living heritage.

Accessibility Statement The City of Boulder is committed to digital accessibility. Some content may not be fully accessible due to technical limitations or issues. For alternate formats or accommodations, please visit Accessibility | City of Boulder or contact accessibility@bouldercolorado.gov.

Attachments Attachment A – Ordinance 8766

About Quasi-judicial Items Quasi-judicial decisions before council are constrained by very specific criteria. Specifically, unlike other Council decisions, direct fiscal impact to the city organization is not an allowable consideration. Development projects are required to pay fees and taxes to cover the costs of city review and approval processes and of the development’s impacts on the city’s capital facilities. Review of the project is part of the P&DS team’s standard workplan and its impacts are incorporated into the annual revenue forecasting as part of the annual budget development.