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NOTICE OF REGULAR MEETING AND TENTATIVE AGENDA i
City of Jefferson Historic Preservation Commission
Tuesday, May 10, 2022, ~ 6:00 p.m.
John G. Christy Municipal Building, Council Chambers, 320 E. McCarty Street
Virtual Option-WebEx
https://jeffersoncity.webex.com/jeffersoncity/j.php?MTID=m173912bc5024865bc818502e98aad8d8
Password: 1234
Join by Phone: +14043971516 US Toll
Access Code: 2484 815 5514
TENTATIVE AGENDA
1.Introductions and Roll Call
2.Procedural Matters
•Determination of quorum
•Call for cases
•Receive and review requests for continuance
•Receive requests for reordering the agenda
•Format of hearing
•List of exhibits
3.Adoption of Agenda (as printed or reordered)
4.Approval of April 12, 2022, Regular Meeting Minutes
5.Demolition Review
a.112 Pierce Street
6.Old Business
7.New Business
a.Historic Legacy District
8.Other Business
a.Code Revision Update
b.Draft Historic Context Review
c.E. Capitol Avenue Update
d.Preservation Month-May 2022
i.Facebook Page Posts
e.Missouri Preservation Conference- June 13-15, 2022
f.National Alliance of Preservation Commissions-Cincinnati, OH, July 13-17, 2022
9.Public Comment
10.Dates to Remember
a.Next Regular Meeting Date, June 14, 2022
11.Adjournment
City of Jefferson Historic Preservation Commission Minutes
Regular Meeting – Tuesday, April 12, 2022
Council Chambers – John G. Christy Municipal Building
320 E. McCarty Street/Virtual WebEx Meeting
Commission Members Present Attendance Record
Donna Deetz, Chairperson (via WebEx) 4 of 4
Alan Wheat, Vice Chairperson 4 of 4
Gail Jones 4 of 4
Tiffany Patterson 4 of 4
Michael Berendzen 4 of 4
Commission Members Absent Attendance Record
Steven Hoffman 0 of 4
Brad Schaefer 3 of 4
Council Liaison Present
Laura Ward
Staff Present
Rachel Senzee, Neighborhood Services Supervisor
Karlie Reinkemeyer, Neighborhood Services Specialist
Ryan Moehlman
Guests Present
Eric Hubbard, Dick Otke Construction
Nathan Muessing, Muessing Construction/Show Me Assets
Rena Kuster, Mid Mo Earth Movers
Nicole Roberts-Hillen, News Tribune
Ryan Mertens, Show Me Assets
Cole Lodge
Call to Order
Mr. Wheat called the meeting to order at 6:15 p.m.
Adoption of Agenda
Ms. Patterson moved and Ms. Jones seconded to adopt the agenda as printed. The motion passed
unanimously.
Approval of Regular Meeting Minutes
Ms. Patterson moved and Mr. Berendzen seconded to approve the minutes from March 8, 2022, regular
meeting as written. The motion passed unanimously.
Demolition Clearance Public Hearing (Over 100 Years Old)-918 W. McCarty Street
Ms. Senzee gave an overview of the staff report and explained that the request is to demolish a
single-family residence at 918 W. McCarty Street. The structure was built in 1910. The property
is located in the W. Main Phase II Survey Area. According to David L. Taylor, Historic Preservation
Consultant, this structure can be deemed “contributing” due to its association with George David
Warburton. Mr. Warburton was a blind musician who provided music lessons for children and he
also sold brooms. Ms. Senzee explained that the staff recommendation is the approval of the
demolition clearance application of 918 W. McCarty Street.
Mr. Berendzen moved and Ms. Jones seconded to approve the demolition clearance application
for 918 W. McCarty Street. The motion carried three votes in favor of the motion and two votes
against the motion.
Aye: Alan Wheat, Mike Berendzen, and Gail Jones
Nay: Tiffany Patterson and Donna Deetz
Demolition Clearance Public Hearing (Over 100 Years Old)-920 W. McCarty Street
Ms. Senzee gave an overview of the staff report and explained that the request is to demolish a
single-family residence at 920 W. McCarty Street. The structure was built in 1910. The property
is located in the W. Main Phase II Survey Area. According to David L. Taylor, Historic Preservation
Consultant, this structure can be deemed “non-contributing” due to its pop-up addition. Ms.
Senzee explained that the staff recommendation is the approval of the demolition clearance
application of 920 W. McCarty Street.
Mr. Berendzen moved and Ms. Jones seconded to approve the demolition clearance application
for 920 W. McCarty Street. The motion carried three votes in favor of the motion and two votes
against the motion.
Aye: Alan Wheat, Mike Berendzen, and Gail Jones
Nay: Tiffany Patterson and Donna Deetz
Demolition Clearance (Over 100 Years Old)-901 Jefferson Street
Ryan Mertens, the property owner of 901 Jefferson, gave his testimony regarding the demolition of 901
Jefferson Street. Mr. Mertens stated that cost estimates to repair the structure reached $1-1.5 million.
Mr. Mertens explained that the building looks good from the outside, but the inside is in disrepair and
unsafe due to a fire burn.
Ms. Senzee gave an overview of the staff report. Ms. Senzee explained that the structure located at 901
Jefferson was constructed in 1889. Ms. Senzee explained that the structure suffered from a fire burn. The
property was declared “dangerous”. Mr. Mertens submitted the demo permit and the declaration came
after the demo application was received. The property does not hold sufficient historical significance. Ms.
Senzee explained that the staff recommendation is the approval of the demolition clearance application
for 901 Jefferson Street.
Mr. Berendzen moved and Ms. Jones seconded to approve the demolition clearance application
for 901 Jefferson Street. The motion carried four votes in favor of the motion and one vote against
the motion.
Aye: Alan Wheat, Mike Berendzen, Gail Jones, and Donna Deetz
Nay: Tiffany Patterson
Demolition Review (Under 100 Years Old)- 510 Boonville Road
Ms. Senzee gave an overview of the staff report and explained that the request is to demolish a
single-family residence at 510 Boonville Road. The structure was built in 1955. The property
owners outlined in the application that the foundation is failing and the interior is extremely
outdated. The property owners plan to redevelop a single-family home. The property does not
hold sufficient historical significance. Ms. Senzee explained that the staff recommendation is the
approval of the demolition review application for 510 Boonville Road.
Ms. Patterson asked how far out this property is compared to the ongoing survey work of the W. Main
area. Ms. Senzee explained that it is quite a way away from the ongoing survey work. Ms. Senzee explained
that the surrounding properties were built around the same time and are ranch-style homes.
Mr. Berendzen moved and Ms. Jones seconded to approve the demolition review application for 510
Boonville Road. The motion passed unanimously.
Aye: Donna Deetz, Gail Jones, Tiffany Patterson, Alan Wheat, and Mike Berendzen
Nay: None
New Business
A. Section 106: Adams-Hickory Sidewalk
Ms. Senzee explained that anytime federal funds are used an environmental reveiew must be
completed. A component of the environmental review is Section 106. Ms. Senzee explained that
the project is to repair and construct new Adams-Hickory sidewalks.
Ms. Patterson motioned and Mr. Berendzen seconded that adequate documentation has been
provided and there will be no historic properties affected by the current project and is approved
by this commission. The motion passed unanimously.
B. Section 106: 101 Jackson Street
Ms. Senzee explained that anytime federal funds are used an environmental review must be
completed. A component of the environmental review is the Section 106. Ms. Senzee explained
that the project is to rehabilitate 101 Jackson Street. Transformational Housing will completely
rehab the structure and once completed it will provide low-moderate income housing.
Mr. Berendzen motioned and Ms. Patterson seconded that adequate documentation has been
provided and there will be no historic properties affected by the current project and is approved
by this commission. The motion passed unanimously.
C. Resolution 2021-05: Architectural/Structural Assessment Report for E. Capitol Avenue Properties
Ms. Senzee explained that a supporting Resolution from the Commission is required for the Historic
Preservation Fund grant application.
Ms. Senzee explained that the project is to hire a consultant to produce an Architectural/Structural
Assessment Report which will evaluate threatened contributing buildings in the Capitol Avenue Historic
District; and the grant, if awarded, would provide approximately $16,800 for the project to the City for
the purposes stated above; and the grant would require the City to provide 40% match by means of cash.
Ms. Senzee explained that the last three historic preservation fund grant projects all came in under
budget. The remaining funds have to be spent by September. Ms. Senzee explained that city staff and
Dept. of Natural Resources staff are checking to see if the remaining funds can be spent on this project.
Ms. Deetz motioned and Ms. Patterson seconded to support Resolution 2021-05. The motion passed
unanimously.
Other Business
A. Code Revision Committee Update
Ms. Senzee explained that the committee has reviewed the criteria for nomination of a local historic
district and the committee has determined that local landmarks will be honorary and will have no land-
use regulations. These are recommendations and the decisions are not final. Ms. Senzee explained that a
proposal for a “historic heritage district” be included. Ms. Senzee explained that a historical heritage
district would identify boundaries of places where structures no longer exist and document them in the
historical records. The Foot and Lafayette area is an example. There will be no land use regulations for a
historic heritage district.
B. E. Capital Avenue Update
Ms. Senzee explained that the City Council approved a supplemental appropriation for the acquisition and
potential demolition of the Barbara Buescher properties on E. Capitol Avenue. Ms. Senzee stated that this
does not mean the buildings will be immediately demolished. The ordinance that was passed requires city
staff to come up with a plan for redevelopment. Ms. Senzee explained that the City is currently trying to
obtain HPF funding to hire a structural engineer to examine some properties and give a good assessment
and see what kind of condition the properties are in.
C. Urban Redevelopment Corporation, Chapter 353
Mr. Moehlman explained what Chapter 353 is. He stated that Chapter 353 is a redevelopment tool. Mr.
Moehlman stated that one of the powers of Chapter 353 is the ability to grant tax abatements, effectuate
tax abatements, and acquire blighted properties through any authorized acquisition, including the use of
the eminent domain. Mr. Moehlman said the Urban Redevelopment Corporation can be used for the
acquisition of blighted properties. Properties must be declared blighted by City Council.
D. Preservation Month-May 2022
Ms. Senzee explained that the City now has access to the Historic Preservation Commission’s Facebook
Page. Ms. Senzee encouraged commissioners to let staff know of any posts they would like shared during
Preservation Month. Ms. Senzee said Nancy Arnold may give a presentation on cleaning tombstones in
the future.
E. Missouri Preservation Conference- June 13-15, 2022
Ms. Senzee explained that Jefferson City is hosting the Missouri Preservation Conference. If
commissioners are interested in going, please contact city staff.
Ms. Senzee explained that the Frank Miller Historic District was officially listed on the National Register.
Public Comment
No public comments.
Dates to Remember
A.Next Regular Meeting Date-May 10, 2022
Adjournment
Mr. Berendzen moved and Ms. Patterson seconded to adjourn the meeting at 7:12 p.m. The motion
passed unanimously.
City of Jefferson
Department of Planning & Protective Services
320 E. McCarty St
Jefferson City,MO 65101
1 Phone: 573-634-6410
icplanning@ieffcitymo.org
www.jeffersoncitymo.gov
APPLICATION FOR DEMOLITION REVIEW/CLEARANCE TO THE
HISTORIC PRESERVATION COMMISSION
In accordance with Section 8-43 of the City Code
Property Owner(s): Joshua & Jamie Heidbrink (contact Emma Burnett in place of owners)
Email Address: emmajburnett87@gmail.com
Phone Number:573-301-0463
Property Address:112 Pierce St, Jefferson City, MO 65101
Date of Construction: 1920
1. The undersigned hereby request(s):
Demolition Review (Application fee $55.00) -For properties that meet the following criteria:
Structure(s) age 50-99 years old; or
Structure(s) listed on the National Register of Historic Places; or
Structure(s) designated as a Local Landmark.
Demolition Clearance (Application fee $108.00) -For properties that meet the following
criteria:
.Structure(s) age 100+ years old; or
.Structure located within local historicdistrict.
2. The application is filed for the following described real estate:
A. Current address:112 Pierce St, Jefferson City, MO 65101
B. In 1969, the City updated their addressing system.Did this property have a different
address prior to 1969? YesNo If so, what was it? Unsure
C. Number of structures to be demolished:
D. Local Historic District Name:
E. Landmark Designation Name: Not applicable
F. National Register Name: Not applicable
G. Recent uses:Single family dwelling/rental
H. Structure Vacant? Yes No If yes, for how long? Sy4ss
YesNo 3. Will any architectural features and/or fixtures be preserved, donated or recycled?
If so, explain:
Individuals should contact the ADA Coordinator at (573) 634-6570 to request accommodations
or aternative formats as required under the Americans with Disabilities Act.
Please allow three business days to process the request.
Demolition Application Tips:
1. Photos-Digital photos are required to be submitted as part of the application. Photos must
have been taken within the past 90 days at the time of the application.
a. Photos must include all_ exterior sides,interior rooms and stairwells.
b. Photos must show all areas and characteristics of the structure, not just those areas in
disrepair.
C. If multiple structures or addresses, the photos must be labeled to distinguish between
structures.
2. Research-Simple check of the following websites and documents will aid answering questions
within the demolition application regarding the structure.
a. National Register Listings -https://dnr.mo.gov/shpo/cole.htm
b. Landmark Designation Listings-
www.jeffersoncitymo.gov/live play/history heritage/landmark awards.php
C. Land and propertyrecords-original abstracts for the property holds information on
construction date, designer or architect, who originally owned the property, profession,
and associated information. If the original abstract is not available a simple deed or title
search can tell you who previously owned the property.
d. Look up local census data- Census records can provide information about the lives of
the previous owners,like the number of children, cost of home, and more.
e. City Directory-A precursor to the modern phone book, offers more details on previous
occupants. Missouri River Regional Library has City Directories for Jefferson City in the
Genealogy Section.
f. Sanborn Map-The Sanborn Map Company was a publisher of detailed maps of US
cities.Maps were originally created for fire insurance companies.
https://dl.mospace.umsystem.edu/mu/islandora/obiect/mu%3A138834
3. Attendance It's strongly encouraged to attend the Historic Preservation Commission meeting
for when the demolition application is reviewed. The Commission may have questions
regarding the application. A staff report will be presented based on Review Criteria as outlined
in Section 8-43 (F) of City Code.
4. Public Hearing-As part of a Demolition Clearance Application process includes a public hearing
before the Historic Preservation Commission. The format of the hearing is as follows:
After introduction of the application (request) by city staff, the applicant or their
consultants will provide information on the request. The opening presentation by the
applicant is limited to 10 minutes unless additional time is granted by the Commission.
.The Commission will then ask to hear from supporters of the request.
The Commission will then ask to hear from opponents of the request.
The Commission will then ask to hear from anyone else who wishes to speak on the
request.
.Testimony is limited to 3 minutes each unless additional time is granted by the
Commission.
City staff will then make their recommendations on the request. In order to reduce the
time necessary to hear an application, reference to printed material, including staff reports
and applicable findings, is not be read into the record unless directed by the Commission.
.The Commission will close testimony from the floor.
.The Commission will then diseuss the proposal, and then publicly make its determination
with reasons.
DEMOLITION PROCEDURES: Chapter 8, Article IV, Section 8-43
Applications to demolish or remove a structure that meet one or more of the following criteria are
subject to application requirements, regulations and review by the Historic Preservation Commission.
Demolition Review:
Structures greater than 50 years old.
Structures designated as a Local Landmark.
Structures listed on the National Register or located within a National Register District.
The Building Regulations Division will not issue a demolition permit until the Historic Preservation
Commission has approved the Demolition Review Application or the expiration of the 75 day review
period,whichever occurs first.The approval of application is valid for one year from date of approval by
the Historic Preservation Commission.
Demolition Clearance:
Structure greater than 100 years old.
Structure located within a Local Historic District.
Demolition Clearance applications requires a public hearing in accordance with Section 8-47 of the City
Code; which is determined by the date of submittal of completed application. Approximately 10-15 days
prior to the public hearing,the property will be posted with sign in the yard notifying the public of the
date and time of the public hearing.
The Historic Preservation Commission may request information regarding the state of deterioration or
disrepair or structural unsoundness of the structure, and the practicability of rehabilitation. In addition,
plans for the preservation or salvage of notable historic or architectural features and historic fixtures.
Appeal. Demolition Clearance Applications denied by the Historic Preservation Commission may be
appealed to the City Council.Awritten request for appeal to the City Council must be submitted to the
Neighborhood Services Division within 30 days of notice to applicant of the Historic Preservation
Commission decision.
Conditions. The Historic Preservation Commission or City Council may impose conditions on the
approval of a Demolition Clearance Application that may include,but not limited to:
a. Salvage or preserve notable historic or architectural features or historic fixtures that contributed
to the finding of a notable structure.
b. Structure found to be a notable structure and approved for demolition clearance is properly
documented for posterity.
Partial demolition of a structure found to be notable structure does not result in establishment C.
of an exterior finish that is out of character with the structure.
d. Other conditions that the Historic Preservation Commission or City Council may deem
appropriate to reduce the impact of the demolition with respect to the applicable revieww
criteria.
The Building Regulations Division will not issue a demolition permit until the Historic Preservation
Commission has approved the Demolition Clearance Application. The approval of application is valid for
one year from date of approval by the Historic Preservation Commission or by City Council,as
applicable.
4. Digital photos are required to be submitted electronically as part of the application. Photos
must have been taken within the last 90 days of all exterior sides,interior rooms and stairwells.
Photographs must show all areas and characteristics of the structure, not just those areas in
disrepair. If multiple structures or addresses, the photos must be labeled to distinguish
between structures. Photos submitted via USB Drive CD Dropbox Other
Criteria Review:
1. Base on research of the property or to the best of your knowledge,is the property:
a. Associated with history of the City of Jefferson, Cole County,State of Missouri or the nation?
Yes I No Explain:.
b. Associated with persons of significance in the history of City of Jefferson, Cole County, State
of Missouri or the nation?YesNo Explain:
C. A representation of particular type, design,period or method of construction (i.e. bungalow,
four square,etc.)?Yes No Explain:
d. Represents the work of a master designer or architect or possesses high architectural value.
YesNo Unknown
e. An example of cultural, political, economic, social or historic heritage of the city?
Yes No Unknown
f.Contains elements of design,detail,material or craftsmanship which represent a significant
construction innovation. Yes No Unknown
8. tis part of or related to a square,park or other distinctive area that was or should be
developed or preserved according to a plan based on a historic or architectural motif.
Yes No Note:Here is an example of architectural motif
h. Itis an established and familiar visual feature of a neighborhood or of the entire community.
Yes No Unknown
i. It has yielded, or islikely to yield archeological artifacts and/or information. Yes No
2. Will the demolition be detrimental to:
a. The visual or spatial relationships to designated landmarks, National Register Sites,or the
streetscape of a local historic district or National Register District. Yes No Unknown
b. The architectural, cultural, historic or contextual character of property designated as a local
historic landmark, local historic district, or building or area listed on the National Register of
Historic Places.Yes No Unknown
3. Why can't the property be rehabilitated or restored with reasonable economical return?Attach
additional pages if necessary.
Property is dilapidated and falling apart.Part of it has fallen into a sink hole. Wild animals live in it and it is reducing
Tie vaiuE OT SuTouTOimg properies, TUIs alsoTISEU ON Ue Ciues ist ol avaneonouiangs.Tere Ts TiO nstonical
significance to this property The cost to rebuild wouldoutwelgh any posslble return by a landslide
CERTIFICATION:
Ihereby certify that I am the owner of the named property, or that the requested Demolition
Review/Clearance is authorized by the owner of record and I have been authorized by the owner to
make this application as his/her agent.
Signature: Date:4-22-22
Please check: Property Owner Authorized Agent Licensed Contractor Other Soon to be owner
Property is currently owned by Josh and Jamie Heidbrink. We Josh and
Emma Burnett)have a contract to buy the property. We are purchasing to
extend our property at 114 Pierce St, and get rid of the abandoned house to
improve property value and decrease pest and hazards.
Emma Burnett
112 Pierce Street
Demolition Review
112 Pierce Street
Demolition Review
112 Pierce Street
Demolition Clearance/Review
112 Pierce Street
Demolition Review
ARTICLE IV. PRESERVATION AND CONSERVATION
Jefferson City, Missouri, Code of Ordinances Created: 2022-03-14 10:53:55 [EST]
(Supp. No. 11)
Page 1 of 21
ARTICLE IV. PRESERVATION AND CONSERVATION
Sec. 8-39. Statement of purpose.
A.The purposes of this article are to promote the educational, cultural, economic, and general welfare of the
community by:
1.Providing a mechanism to identify and preserve the distinctive historic, archaeological and
architectural characteristics of the City of Jefferson which represent elements of the City's cultural,
social, economic, political and architectural history;
2.Fostering civic pride in the beauty and noble accomplishments of the past as represented in the City's
landmarks and historic districts;
3.Conserving and improving the value of property designated as landmarks or within historic districts;
4.Providing for economic benefits to encourage business and residential owners to locate and invest in
historically significant properties;
5.Protecting and enhancing the attractiveness of the City to home buyers, tourists, visitors and shoppers,
and thereby supporting and promoting business, commerce and industry, and providing economic
benefit to the City;
6.Fostering and encouraging preservation, restoration and rehabilitation of the City's historic structures,
areas and neighborhoods;
7.Promoting the use of historic districts and landmarks for the education, pleasure and welfare of the
people of the City; and
8.Promoting the identification, evaluation, protection and interpretation of the prehistoric and historic
archaeological resources within the corporate limits of the City.
Sec. 8-40. Relationship between districts.
A.An application for a designated district shall be evaluated on a sliding scale, depending upon the designation
of the building, structure, site or object in question. The application shall be evaluated on the following
criteria:
1.Most careful scrutiny and consideration shall be given to applications for designated landmarks and
historic districts;
2.Slightly less scrutiny shall be given to applications for designated conservation districts;
3.Properties designated conservation district shall receive a decreasing scale of evaluation upon
application; and
4.The least stringent evaluation is applied to the neighborhood conservation planned district where the
design standards are advisory in nature.
Sec. 8-41. Definitions.
Unless specifically defined, words or terms in section 8-48 of this article shall be interpreted so as to give
them the same meaning as they have in common usage and so as to give this article its most reasonable
application.
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(Supp. No. 11)
Page 2 of 21
Sec. 8-41. Definitions.
Unless specifically defined herein, words or terms of this article shall be interpreted so as to give them the
same meaning as they have in common usage and so as to give this article its most reasonable application.
Adaptive use. The process of changing the use of a structure or property to a use other than that for which
the structure or property was originally designed or a use for a structure or property other than the use for which
it was originally designed. (Sometimes called "adaptive reuse").
Alteration. Any act or process that changes one or more of the exterior architectural features of a structure,
including, but not limited to, the erection, construction, reconstruction or removal of any structure.
Architectural attributes. Those physical features of buildings and structures that are generally identified and
described as being important products of human thought and action characteristic of a population or community.
Certified local government (CLG). A program of the National Park Service designed to promote the
preservation of prehistoric and historic sites, structures, objects, buildings and historic districts by establishing a
partnership between the local government, the State Historic Presentation Department and the National Park
Service. A certified local government carries out the purposes of the National Historic Preservation Act, as
amended. Each certified local government is required to maintain a system of ongoing surveys compatible with the
Missouri Historic Preservation Department process.
CJHPC. The City of Jefferson Historic Preservation Commission.
Commissioners. Members of the City of Jefferson Historic Preservation Commission.
Consent. The vote as cast by owners holding majority interest in a parcel of real estate. For purposes of this
article, only one vote per parcel may be cast.
Conservation district. Any area designated by the CJHPC in accordance with this section as an area containing
any physical features or improvements or both which are of historical, social, cultural, architectural or aesthetic
significance to the City and cause such area to constitute a distinctive section of the City. This overlay zone may be
used for areas which have distinctive characteristics that are worthy of conservation, but lack sufficient historical,
architectural or cultural significance to qualify as historic areas.
Contributing (or contributory). A significant building, site, structure or object which adds to the architectural
qualities, historic association or archeological value of an historic district because:
A.It was present during the pertinent historic time;
B.It possesses integrity and reflects its significant historic character or is capable of yielding important
information about the pertinent historic period; or
C. It independently meets the standards and criteria of this article.
Cultural attributes. All of the physical features of an area that, either independently or by virtue of their
interrelationship, are generally identified and described as being important products of human thought and action
characteristic of a population or community. Accordingly, the term "cultural attributes" necessarily includes
"architectural attributes" as that term is defined in this section. The term "cultural attributes" does not refer to the
characteristics or beliefs of people who may reside in or frequent a particular area.
Cultural resource. Districts, sites, structures, objects and evidence of some importance to a culture, a
subculture or community for scientific, engineering, art, tradition, religious or other reasons significant in providing
resources and environmental data necessary for the study and interpretation of past lifestyles, and for interpreting
human behavior.
Department. The Department of Planning and Protective Services of the City of Jefferson, Missouri.
Created: 2022-03-14 10:53:55 [EST]
(Supp. No. 11)
Page 3 of 21
Design criteria. A standard of appropriate activity that will preserve the historic and architectural character
of a structure or area.
Designation. Official recognition of an historic landmark, conservation or historic district by the City Council
according to the procedures and provisions in this article.
Director. The Director of the Department of Planning and Protective Services, or his or her designee.
Endangered resource. A resource under a known or anticipated threat of damage to the integrity or
existence of the resource, such as:
A.An immediate threat which will result in loss of or collapse of a structure;
B.An immediate threat or destruction by private action; or
C. Condemnation for code violations.
(Sometimes referred to as a "threatened resource").
Exterior architectural appearance. The architectural character and general composition of the exterior of a
structure, including but not limited to the kind, color and texture of the building material and the type, design and
character of all windows, doors, light fixtures, signs, and appurtenant elements.
Façade. The exterior face of a building which is the architectural front, sometimes distinguished by
elaboration or architectural or ornamental details.
Historic district. An area designated as an historic district by ordinance of the City Council and which may
contain within definable geographic boundaries one or more significant sites, structures or objects, and which may
have within its boundary’s other properties or structures that, while not of such historic and/or architectural
significance to be designated as landmarks, nevertheless to the overall virtue characteristics of the significant sites,
structures or objects located within the historic district.
Historic Legacy District. Is a geographical area of historical and cultural significance for which most of all of
the physical attributes (structures, streets, public areas, archeological features, etc.) relevant to the historical or
cultural period of significance no longer exists.
Historic preservation. The study, identification, protection, restoration and rehabilitation of buildings,
structures, objects, districts, areas and sites significant in the history, architecture, archeology or culture of the
City, State or nation.
Historically or architecturally significant. Possessing that quality present in an area, site, structure, object or
district because it:
A.Is associated with an event or events that significantly contributed to the broad patterns of the history
or architectural heritage of the City, County, State or nation;
B.Is associated with the life or lives of a person or persons significant in the history of the City, County,
State or nation;
C. Embodies distinctive characteristics of a type, design, period or method of construction;
D.Represents the work of a master designer or architect or possesses high architectural value;
E.Exemplifies the cultural, political, economic, social or historic heritage of the City;
F.Contains elements of design, detail, material or craftsmanship which represent a significant
construction innovation;
G.Is part of or related to a square, park or other distinctive area that was or should be developed or
preserved according to a plan based on an historic or architectural motif;
Formatted: Highlight
Formatted: Highlight
Formatted: Highlight
Created: 2022-03-14 10:53:55 [EST]
(Supp. No. 11)
Page 4 of 21
H.Is an established and familiar visual feature of a neighborhood or the entire community; or
I.Has yielded, or is likely to yield archeological artifacts and/or information.
Key contributing. A site, structure or object of such an outstanding quality and state of conservation that it
significantly adds to the architectural qualities, historic association or archeological values of an historic district
because:
A.It was present during the pertinent historic time;
B.It possesses and reflects its significant historic character or is capable of yielding important information
about the pertinent historic period; and
C. It independently meets the standards and criteria of the article.
Landmark. A site, structure or object designated as a landmark by ordinance of the City Council, pursuant to
procedures prescribed herein, that is worthy of rehabilitation, restoration and preservation because of its historic
and/or architectural significance to the City.
Landscape feature. Any element or component of outdoor open space including, but not limited to, fences,
walls, retaining walls, gates, sidewalks, walkways, driveways, parking lots, patios, terraces, decks, ground cover,
trees, plants, outdoor furniture, exterior light standards, fountains, statuary, detached signs, and other such
elements.
Local historic district. A historic district established in accordance with Chapter 8, Article IV of the City Code.
Marker. A sign used to label or identify a designated landmark or historic district as an architecturally
significant property.
National Register. The current National Register of Historic Places established by passage of the National
Historic Preservation Act of 1966, 80 Stat. 915, 16 U.S.C. 470 et seq. as amended.
National Register District.
National Register Property.
Noncontributing (or noncontributory). A site, structure or object that does not add to the architectural
qualities, historic association or archeological values of a landmark or historic district because:
A.It was not present during the pertinent time;
B.Due to alterations, disturbances, additions or other changes, it no longer possesses integrity nor
reflects its significant historic character or is incapable of yielding important information about the
pertinent historic period; or
C. It does not independently meet the standards and criteria of the ordinance.
Normal maintenance and repair. Any improvement or work for which a building permit is not required by
City ordinance designed to correct deterioration, decay or damage and restore, as may be practical, a structure or
property to the condition that existed prior to the deterioration, decay or damage.
Notable structure. A structure found to be notable per the review criteria listed in subsection 8-43.G.
Object. Those physical items that have functional, aesthetic, cultural, historical or scientific value and are
relatively small in scale and simply constructed. While an object may be, by nature or design, movable, it should be
located in a specific setting or environment appropriate to its significant historic use, role or character. Objects
include sculptures, monuments, street signs, fence posts, hitching posts, mileposts, boundary markers, statuary
and fountains.
Owner(s) of record. Those individuals, partnerships, firms, corporations, public agencies or any other legal
entity holding title to property, but not including legal entities holding mere easements or leasehold interests.
Commented [RK1]: Need definitions
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(May also be referred to as "property owner(s)"). Current owner(s) of record are those listed as owners on the
records with the Cole County Recorder of Deeds.
Period. A chronological division identified in the analysis of the historical development to an area or region
(i.e., Victorian, Modern).
Protection. The application of measures to defend, guard, cover or shield a building, site, structure or object
from deterioration, loss, attack, danger, or injury. In the case of buildings, structures or objects such measures
generally are of a protective nature and usually precede preservation measures. In the case of archeological sites,
the protective measures may be temporary or permanent.
Reconstruction/reconstruct. The reproduction of the exact form and detail of a vanished building, site,
structure or object or a part thereof, as it appeared at a pertinent time using both original and modern materials
and based on precise historical documentation and physical evidence.
Rehabilitation/rehabilitate. The act of returning a site, structure or object to a useful state through its repair
and/or alteration while retaining the characteristic features of the property which are significant to its historical
and architectural value.
Remodeling. Modification and modernization of a structure or property without striving to return to or
replicate the original historical and architectural character of the structure or property.
Removal. Any relocation of a structure in whole or in part on its site or to another site.
Repair. Any change to a structure or object that is not construction, removal or alteration.
Resource. Any site, structure, object or area that constitutes a source of present and future usefulness.
Restoration/restore. The act of accurately recovering the form and details, based on precise historical
documentation and physical evidence, of a building, site, structure or object as it appeared at a pertinent time
including the removal of improvements that are not appropriate and the replacement of missing or deteriorated
features.
Site. The location of a significant event, a prehistoric or historic occupation or activity, or a building or
structure, whether standing, ruined or vanished, where the location itself possesses historic, cultural or
archeological value regardless of the value of any existing structure. Examples of sites include habitation sites,
burial sites, village sites, hunting and fishing sites, ceremonial sites, battlefields, ruins of historic buildings and
structures, campsites, designed landscapes, natural textures, springs and landscapes having cultural significance.
Stable. The area is expected to remain substantially the same over the next 20-year period with continued
maintenance of the property. While some changes in structures, land uses and densities may occur, all such
changes are expected to be compatible with surrounding development.
Stabilizing. The area is expected to become stable over the next 20-year period through continued
reinvestment, maintenance or remodeling.
Standards. The Secretary of Interior's Standards for the Treatment of Historic Properties, codified as 36 CFR
68 in the July 12, 1995 Federal Register (Vol. 60, No. 133), and as revised from time to time.
Structure. Anything constructed or erected, the use of which requires permanent or temporary location on
or in the ground, including, but without limiting the generality of the foregoing: buildings, fence, gazebos,
advertising signs, billboards, backstops for tennis courts, radio and television antennas, including supporting
towers and swimming pools.
Style. The specific identifying characteristics of a building both as it appears to the eye and as it is known to
exist in design and structure.
Survey. An architectural and historical examination of historic resources to identify historic properties within
an area.
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(Ord. No. 12794, Appendix A, 8-17-98, Ord. No. 15760, § 3, 1-03-18)
Sec. 8-42. Surveys and research.
The City of Jefferson Historic Preservation Commission (CJHPC), as created by section 7-51 of the City Code,
shall undertake an ongoing survey and research effort in the City of Jefferson to identify neighborhoods, areas,
sites, structures, and objects that have historic cultural, archaeological, architectural or aesthetic importance,
interest or value as part of the survey, and shall review and evaluate any prior surveys and studies by any unit of
government or private organization and compile appropriate descriptions, facts, and photographs. The CJHPC shall
systematically identify potential landmarks, and historic districts, and Historic Legacy Districts and adopt
procedures to nominate them based upon the following criteria:
A.The potential landmarks, and historic districts, and Historic Legacy Districts which are in an identifiable
neighborhood or distinct geographical area which have historic and/or cultural importance to the City;
B.The potential landmark, and historic districts, and Historic Legacy Districts are associated with a
particular prominent person, a significant event, or a historical period;
C. The potential landmarks, and historic districts, and Historic Legacy Districts exhibit a particular
architectural style or school, or are associated with a particular architect, engineer, builder, designer,
or craftsman;
D.The potential landmarks, and historic districts, and Historic Legacy Districts contain historic, prehistoric,
and archaeological features, evidence, and/or artifacts which have the potential to contribute to the
understanding of historic and prehistoric cultures; or
E.Such other criteria as may be adopted by the CJHPC to assure the systematic survey and nomination of
all potential landmarks, historic districts, and Historic Legacy Districts within the City.
(Ord. 13251, 8-20-2001; Ord. 14088, § 2, 8-7-2006)
Sec. 8-43. Review of demolition proposals by Historic Preservation Commission.
A.Purpose and intent. It is the purpose of this section to encourage and enforce the preservation of notable
historic structures and historic or notable architecture and to preserve the character of historic streetscapes
and areas.
B.Applicability. Applications to demolish or remove a structure that meets one or more of the following criteria
shall be subject to the application requirements, regulations and review by the Historic Preservation
Commission in accordance with this section. Where only Historic Preservation Commission review is
required, issuance of a demolition permit shall not proceed until after approval of the application by the
Historic Preservation Commission or the date of the expiration of the 75-day review period, whichever
occurs first, and applications for demolition subject only to the historic preservation demolition review
process may not be denied nor conditions placed upon them based on the regulations contained in this
section. Where historic preservation demolition clearance is required, issuance of a demolition permit shall
not proceed prior to issuance of historic preservation demolition clearance.
1.Demolition applications requiring Historic Preservation Commission Review.
a.Structures greater than 50 years old.
b.Structures designated as a local landmark.
c. Structures listed on the National Register or located within a National Register District.
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2.Demolition applications requiring issuance of historic preservation demolition clearance.
a.Applications to demolish or remove a structure greater than 100 years old.
b.Applications to demolish or remove a structure located within a locally designated historic
district.
C. Public hearing. For applications for demolition requiring a historic preservation demolition clearance, a public
hearing in accordance with section 8-47 shall be conducted prior to Historic Preservation Commission action
on the application. For appeals pursued in accordance with section 8-43.I, a public hearing in accordance
with section 8-47 shall be conducted prior to City Council action on the appeal.
D.Application requirements. Applications to demolish or remove a structure that is subject to this section shall
include the following:
1.Application for historic preservation demolition permit review or historic preservation demolition
clearance. The application may be submitted independently or concurrently with an application for
demolition permit.
2.Digital photographs of the structure taken within the last 90 days including photographs of all exterior
sides, interior rooms and stairwells. Photographs must show all areas and characteristics of the
principal and accessory structures, not just those areas in disrepair. Interior photographs may be
waived by the Director if the structure is determined structurally unsound.
3.Applications requiring historic preservation demolition clearance shall include the following additional
information:
a.The Historic Preservation Commission may request information regarding the state of
deterioration or disrepair or structural unsoundness of the structure, and the practicability of
rehabilitation. In order to expedite review time, said information may be submitted with the
initial application.
b.Plans for the preservation or salvage of notable historic or architectural features and historic
fixtures that may contribute to the finding of a notable structure.
E.Application processing and timeline.
1.Upon receipt of a complete application for demolition permit review or clearance by the Historic
Preservation Commission, the Director shall forward the application to the Historic Preservation
Commission for review. If a public hearing is required, the Director shall initiate notification
requirements in accordance with section 8-47. The Director shall maintain a calendar of filing deadlines
associated with the application and review process.
2.Applications requiring historic preservation demolition review. The Historic Preservation Commission
shall review applications for demolition permit review that do not require historic preservation
demolition clearance within 75 days of receipt of a complete application by the Director or within two
regularly scheduled meetings (where the application was submitted at least 10 days prior to the first
meeting), whichever is less. If the Historic Preservation Commission does not take action on the
application within the review period, the application is deemed approved.
3.Applications requiring historic preservation demolition clearance. The Historic Preservation
Commission shall review applications for historic preservation demolition clearance in accordance with
the public hearing requirements outlined in section 8-47. At the conclusion of the public hearing, the
Historic Preservation Commission shall vote to approve or deny the historic preservation demolition
clearance unless the proceedings are continued in accordance with section 8-47. If the Historic
Preservation Commission does not take action on the application in accordance with section 8-47, the
application is deemed approved.
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F.Review criteria. In reviewing an application for historic preservation demolition review or historic
preservation demolition clearance, the following criteria shall be considered:
1.Whether the structure is a notable structure with respect to historic value by reason of:
a.Its association with an event or events that significantly contributed to the broad patterns of the
history or architectural heritage of the City, County, State or nation; or
b.Its association with the life or lives of a person or persons significant in the history of the City,
County, State or nation; or
c. Its embodiment of distinctive characteristics of a type, design, period or method of construction;
or
d.It represents the work of a master designer or architect or possesses high architectural value; or
e.It exemplifies the cultural, political, economic, social or historic heritage of the City; or
f.It contains elements of design, detail, material or craftsmanship which represent a significant
construction innovation; or
g. It is part of or related to a square, park or other distinctive area that was or should be developed
or preserved according to a plan based on a historic or architectural motif; or
h.It is an established and familiar visual feature of a neighborhood or of the entire community; or
i.It has yielded, or is likely to yield archeological artifacts and/or information.
2.Whether the structure is a notable structure with respect to its demolition being detrimental to:
a.The visual or spatial relationship of the structure to designated landmarks, national register sites,
or the streetscape of a local historic district or national register district; or
b.The architectural, cultural, historic or contextual character of property designated as a local
historic landmark, local historic district, or building or area listed on the National Register of
Historic Places.
3.If found to be a notable structure with respect to item 1 or 2 above, the following shall be considered:
a.The state of deterioration, disrepair or structural unsoundness of the structure, and the
practicability of rehabilitation. The Historic Preservation Commission may request the applicant
to submit documentation or other information necessary to determine whether the property can
be rehabilitated or restored with a reasonable economic return to the owner.
b.Whether the property is located within an area identified for redevelopment within the adopted
comprehensive plan, and the nature of the intended redevelopment.
c. The nature of the surrounding area and the compatibility of the structure to existing adjacent
structures and land uses.
d.The number of similar structures that exist within the City of Jefferson.
e.Plans for the preservation or salvage of notable historic or architectural features and historic
fixtures that contributed to the finding of a notable structure.
G.Decision-maker. This Historic Preservation Commission shall review the application for demolition review or
historic preservation demolition clearance and shall approve or deny the application based on the applicable
review criteria. The decision of the Commission shall be documented and the Director shall notify the
applicant in writing of the decision of the Commission.
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H.Appeal to City Council. An application for historic preservation demolition clearance that is denied by the
Historic Preservation Commission may be appealed to the City Council. A written request for appeal to the
City Council shall be submitted to the Director within 30 days of notice to the applicant of the Historic
Preservation Commission's decision. The City Council, after reviewing the circumstances of the application
and the reasons for the denial, may vote to approve or not approve a resolution granting historic
preservation demolition clearance.
I.Conditions that the Historic Preservation Commission or City Council may impose. The Commission or
Council may impose conditions on the approval of a historic preservation demolition clearance in order to
ensure that the demolition complies with any applicable requirements of this section that include, but are
not limited to, the following:
1.To ensure that notable historic or architectural features or historic fixtures that contributed to the
finding of a notable structure are being salvaged or preserved.
2.To ensure that a structure found to be a notable structure and approved for demolition clearance is
properly documented for posterity.
3.To ensure that partial demolition of a structure found to be a notable structure does not result in
establishment of an exterior finish that is out of character with the structure.
4.Other conditions that the Commission or City Council may deem appropriate to reduce the impact of
the demolition with respect to the applicable review criteria.
Conditions imposed by the Historic Preservation Commission may be appealed to the City Council in the manner
provided for in subsection 8-43.I.
J.Validity.
1.Applications for historic preservation demolition review. Historic Preservation Commission review of
applications for demolition review that do not require historic preservation demolition clearance shall
be valid for a period of one year from the date of approval of the application by the Historic
Preservation Commission or the date of the expiration of the 75 day review period, whichever occurred
first.
2.Applications requiring historic preservation demolition clearance. An approval of historic preservation
demolition clearance shall be valid for a period of one year from the date of approval by the Historic
Preservation Commission or City Council, as applicable. In the event that the applicant fails to obtain a
demolition permit within one year of approval of historic preservation demolition clearance, the
applicant shall be required to obtain a new historic preservation demolition clearance prior to
demolition permit issuance. In the event of expiration of a demolition permit prior to demolition and
after historic preservation demolition clearance has expired, a new historic preservation demolition
clearance shall be required prior to issuance of a new demolition permit.
K. Penalty.
(Ord. 15760, § 2, 1-3-2018)
Sec. 8-44. Nomination of historic districts.
A.Application/nomination. Applications for nomination of an historic district shall be made to the CJHPC by at
least 75 percent of all owners of record. Forms and criteria for nomination will be available at the office of
the Department of Planning and Protective Services. Applications must be submitted to the Department; the
Department shall forward applications to the CJHPC. Each historic district must be nominated by a separate
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application. Each historic district must be designated by a separate ordinance. The designation of a historic
district shall in no way alter the uses permitted by the existing zoning district of the property so designated.
B.Notice. Upon receipt of an application for nomination of an historic district, the Department shall notify the
property owners within the proposed district of the application, arrange for a time and place of a meeting,
and invite all interested persons to appear and be heard.
C. Criteria for nomination. The criteria for nomination shall apply to applications for designation of historic
districts and landmarks. The CJHPC shall, after such investigation as it deems necessary, make a
determination as to whether a site, structure, object or area qualifies for nomination pursuant to one or
more of the following criteria:
1.Its character, interest, or value as part of the development, heritage or cultural characteristics of the
community, county, state or nation;
2.Its location as a site of a significant local, county, state or national event;
3.Its identification with a person or persons who significantly contributed to the development of the
community, county, state or nation;
4.Its embodiment of distinguishing characteristics of an architectural style valuable for the study of a
period, type, method of construction or use of indigenous materials;
5.Its identification as a work of a master builder, designer, architect, or landscape architect whose
individual work has influenced the development of the community, county, state or nation;
6.Its embodiment of elements of design, detailing, materials, or craftsmanship that render it
architecturally significant;
7.Its embodiment of design elements that make it structurally or architecturally innovative;
8.Its unique location or singular physical characteristics that make it an established or familiar visual
feature; or
9.Its character as a particularly fine or unique example of a utilitarian structure, including, but not limited
to, farmhouses, gas stations, or other commercial structures, with a high level of integrity or
architectural significance.
Any site, structure, object, or area that meets one or more of the above criteria, shall also have sufficient integrity
of location, design, materials and workmanship to make it worthy of preservation or restoration.
D.Appeals. A decision by CJHPC to deny an application for nomination may be appealed to the planning and
zoning commission in accordance with the provisions of chapter 35 of the Code of Jefferson City.
E.Expansion of established historic district. Once a historic district is established by ordinance under this
section, such historic district may be expanded by application of the owners of record of parcels seeking to
be added to an established district. Such additional parcels shall be within reasonable proximity to, and share
historical features in common with, the established local historic district. When an area containing ten or
more parcels seeks to be added to an established historic district, the application shall contain at least 75
percent of all owners of record of the parcels seeking to be added to the established district. Applications to
expand a historic district shall be reviewed under the same criteria set forth in subsection C above and under
the same procedures applicable to original establishment of a historic district. A historic district shall not be
expanded until approved by ordinance and any design criteria applicable to the originally approved historic
district shall apply equally to any expanded area, provided that design criteria may be amended by ordinance
following review by the CJHPC and notice and hearing applicable to original enactment of design criteria.
(Ord. 15816, § 1, 8-20-2018)
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Sec. 8-45. Nomination of landmarks.
A.Application/nomination. Applications for nomination of a site, structure or object as a landmark shall be
made to the CJHPC. Forms and criteria for nomination will be available at the office of the Department of
Planning and Protective Services. Each landmark must be nominated by a separate application. Each
landmark must be designated by a separate ordinance. The designation of a landmark shall in no way alter
the uses permitted by the existing zoning district of the property so designated.
B.Notice. Upon receipt of an application for nomination of an historic landmark, the Department shall notify
the property owners within the proposed district of the application, arrange for a time and place of a
meeting, and invite all interested persons to appear and be heard.
C. Public owner. Applications for nomination of a public landmark shall be made by the City or other owner.
D.Private owner. Applications for nomination of a private landmark shall be made by 100 percent of the
owner(s) of the property or structure.
Sec. 8-46. Procedure for review following designation of landmark or historic districts.
A.Building permit standards. After a landmark or historic district is designated by ordinance each, application
for building permit within the area so designated shall be referred to the CJHPC for review at a regularly
scheduled CJHPC meeting. Applications shall be submitted a minimum of ten days prior to the meeting of the
Commission. If the CJHPC makes no report within 45 days of receipt of the application, it shall be considered
to have made a report approving the application.
B.Design criteria. The CJHPC shall prepare and adopt specific design criteria as it deems necessary to
supplement the provisions of this ordinance. Within each of the designated categories, the design criteria
will be applied more stringently to properties of greater significance than those with lesser significance as
determined by their respective designation. The CJHPC may from time to time amend and supplement to the
criteria used for review of historic districts and landmarks. The CJHPC must first approve additional design
criteria not listed in this chapter, and any changes thereto, before the criteria or changes shall become
effective.
(Ord. No. 12794, § 1, 8-17-98).
Sec.
Sec. 8-47. Public hearing procedures.
A.Public hearing. the following notification requirements and public hearing procedures shall apply for matters
requiring a public hearing before the Historic Preservation Commission and such matters forwarded by the
Historic Preservation Commission and requiring a public hearing before the City Council:
1.Notification requirements.
a.Property sign. The Director shall post one or more distinctive signs, with minimum dimensions of
24" × 24" giving notice of the date, time and place of the hearing and of the action requested.
The signs on the subject property shall be posted at least ten calendar days but not more than 15
calendar days prior to the hearing in conspicuous places visible from every street along the
frontage of the subject property. The signs shall remain posted on the property until after the
close of the public hearing. The failure to post signs upon the property or retain notification signs
upon the property shall not be grounds for invalidating any action taken by the responsible
decision making body.
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b.Agenda notice. Notice of all public hearings shall be posted at City Hall at least 24 hours prior to
any public hearing.
2.Public hearing procedures.
a.Purpose. The purpose of a public hearing is to allow the applicant and all other interested parties
a reasonable and fair opportunity to be heard, to present evidence relevant to the application,
and to have input into the process.
b.Conduct of the hearing.
(1)Any person or persons may appear at a public hearing and submit evidence, either
individually or as a representative of an organization. Each person who appears at a public
hearing shall state, for the record, his or her name, address, and if appearing on behalf of
an organization, the name and mailing address of the organization.
(2)The order of proceedings shall be as follows:
(a) The Director or appropriate staff member shall present a description of the
application and required findings, if applicable. The findings shall address each
applicable factor required to be considered prior to action or approval of the
application;
(b) The applicant may present any information that the applicant deems
appropriate;
(c) Public testimony shall be heard first in favor of the proposal, then in opposition
to it;
(d) The Director or other staff member may respond to any statement made by the
applicant or any public comment;
(e)The applicant may respond to any testimony or evidence presented by the staff
or public; and
(f)The body conducting the hearing shall close the public portion of the hearing
and conduct deliberations prior to acting on an application.
c. Record of proceedings.
(1)The body conducting the hearing shall record the proceedings by any appropriate means as
prescribed by rule and consistent with City Code and other applicable laws and regulations.
(2)Testimony and statements of opinions, the minutes of the secretary, applications, exhibits
submitted, all staff and advisory body reports and recommendations, and the decision and
report(s) of the body before which the hearing is heard, shall constitute the record.
(3)The record shall be open for inspection at reasonable times and upon reasonable notice.
(4)The body conducting the hearing shall appoint, by rule, a custodian of records.
d.Continuance of Proceedings.
(1)Any applicant or authorized agent of an applicant shall have the right to one continuance
before the Historic Preservation Commission or City Council, provided that a written
request is filed.
(2)The hearing body may grant one continuance for good cause shown. All motions to grant a
continuance shall state the date on which the matter is to be heard. A majority vote of
those members in attendance shall be required to grant a continuance. The record shall
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indicate the reason such continuance was made and any stipulations or conditions placed
upon the continuance.
(3)If a public hearing is continued, the Historic Preservation Commission or City Council may
direct the Director to renotify property owners or repost public notice on the property, if
such notice was required in the first instance.
(Ord. No. 15760, § 3, 1-03-18)
Sec. 8-48. Nomination of Historic Legacy Districts.
A.Application/Nomination. Applications for a nomination of a Historic Legacy District shall be made to the
CJHPC. Forms and criteria for nomination will be made available at the office of the Department of
Planning and Protective Services. Applications must be submitted to the Department; the Department
shall forward applications to the CJHPC. Each Historic Legacy District must be nominated by a separate
application.
B.Notice. Upon receipt of an application for a Historic Legacy District, the Department shall notify the
property owners within the proposed Historic Legacy District of the application, arrange for a time and
place of a meeting, and invite all interested persons to appear and be heard.
C.Criteria for nomination. The criteria for nomination shall apply to applications for the designation of a
Historic Legacy District. The CJHPC shall, after such investigation as it deems necessary, make a
recommendation as to whether an area qualifies for nomination pursuant to the following criteria:
1. Most of all of the physical attributes (structures, streets, public areas, archeology, etc.) relevant to the
historical or cultural period of significance no longer exist; and
2. Its character, interest, or value as part of the development, heritage, or cultural characteristics of the
community, county, state, or nation; or
3. Its location as a site of a significant local, county, state, or national event; or
4. Its identification with a person or persons who significantly contributed to the development of the
community, county, state, or nation.
A.D. Action on the recommendation of CJHPC. A recommendation by CJHPC to approve an application for
nomination as a Historic Legacy District shall be forwarded to the City Council. A recommendation by
CJHPC to deny an application for nomination as a Historic Legacy District shall only be forwarded to the
City Council upon written request of the applicant. Each Historic Legacy District must be designated by a
separate ordinance. The designation of a Historic Legacy District shall in no way alter the uses permitted
by existing zoning, land use, or future development of the property so designated.
B.E. Expansion of an established Historic Legacy District. Once a Historic Legacy District is established by
ordinance under this section, such Historic Legacy District may be expanded by application of the owners
of record of parcels seeking to be added to an established Historic Legacy District.. Applications to expand
a historic district shall be reviewed under the same criteria set forth in subsection C above and under the
same procedures applicable to the original establishment of a historic district. A Historic Legacy District
shall not be expanded until approved by ordinance.
Formatted: Not Highlight
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Sec. 8-49. Public hearing procedures for the nomination of a Historic Legacy District.
A.Public hearing. The following notification requirements and public hearing procedures shall apply for
matters requiring a public hearing before the Historic Preservation Commission and such matters
forwarded by the Historic Preservation Commission and requiring a public hearing before the City Council.
1. Notification requirements.
a.Notice. Upon receipt of an application for a Historic Legacy District, the Department shall notify
the property owners by mail within the proposed Historic Legacy District of the application,
arrange for a time and place of a meeting, and invite all interested persons to appear and be
heard.
2.Public hearing procedures.
a.Purpose. The purpose of a public hearing is to allow the applicant and all other interested parties a
reasonable and fair opportunity to be heard, to present evidence relevant to the application, and to
have input into the process.
b.Conduct of the hearing.
1)Any person or persons may appear at a public hearing and submit evidence, either
individually or as a representative of an organization. Each person who appears at a
public hearing shall state, for the record, his or her name and if appearing on behalf of
an organization, the name of the organization.
2) The order of proceedings shall be as follows:
a)The Director or appropriate staff member shall present a description of the
application and required findings, if applicable.
b)The applicant may present any information that the applicant deems
appropriate;
c)The Director or other staff member may respond to any statement made by the
applicant or any public comment;
d)The applicant may respond to any testimony or evidence presented by the staff
or public; and
e)The body conducting the hearing shall close the public portion of the hearing
and conduct deliberations prior to acting on an application.
c.Continuance of Proceedings.
1)Any applicant or authorized agent of an applicant shall have the right to one
continuance before the Historic Preservation Commission or City Council, provided that
a written request is filed.
2) The hearing body may grant one continuance for good cause shown. All motions to
grant a continuance shall state the date on which the matter is to be heard. A majority
vote of those members in attendance shall be required to grant a continuance. The
record shall indicate the reason such continuance was made and any stipulations or
conditions placed upon the continuance.
3) If a public hearing is continued, Director not be required to renotify property owners or
repost public notice on the property.
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Sec. 8-48. Definitions.
Unless specifically defined words or terms of this article shall be interpreted so as to give them
the same meaning as they have in common usage and so as to give this article its
most reasonable application.
Adaptive use. The process of changing the use of a structure or property to a use other than
that for which the structure or property was originally designed or a use for a
structure or property other than the use for which it was originally designed.
(Sometimes called "adaptive reuse").
Alteration. Any act or process that changes one or more of the exterior architectural features of
a structure, including, but not limited to, the erection, construction, reconstruction or
removal of any structure.
Architectural attributes. Those physical features of buildings and structures that are generally
identified and described as being important products of human thought and action
characteristic of a population or community.
Certified local government (CLG). A program of the National Park Service designed to promote
the preservation of prehistoric and historic sites, structures, objects, buildings and
historic districts by establishing a partnership between the local government, the
State Historic Presentation Department and the National Park Service. A certified local
government carries out the purposes of the National Historic Preservation Act, as
amended. Each certified local government is required to maintain a system of ongoing
surveys compatible with the Missouri Historic Preservation Department process.
CJHPC. The City of Jefferson Historic Preservation Commission.
Commissioners. Members of the City of Jefferson Historic Preservation Commission.
Consent. The vote as cast by owners holding majority interest in a parcel of real estate. For
purposes of this article, only one vote per parcel may be cast.
Conservation district. Any area designated by the CJHPC in accordance with this section as an
area containing any physical features or improvements or both which are of historical,
social, cultural, architectural or aesthetic significance to the City and cause such area
to constitute a distinctive section of the City. This overlay zone may be used for areas
which have distinctive characteristics that are worthy of conservation, but lack
sufficient historical, architectural or cultural significance to qualify as historic areas.
Formatted: Section
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Contributing (or contributory). A significant building, site, structure or object which adds to the
architectural qualities, historic association or archeological value of an historic district
because:
A.It was present during the pertinent historic time;
B.It possesses integrity and reflects its significant historic character or is capable of
yielding important information about the pertinent historic period; or
C.It independently meets the standards and criteria of this article.
Cultural attributes. All of the physical features of an area that, either independently or by virtue
of their interrelationship, are generally identified and described as being important
products of human thought and action characteristic of a population or community.
Accordingly, the term "cultural attributes" necessarily includes "architectural
attributes" as that term is defined in this section. The term "cultural attributes" does
not refer to the characteristics or beliefs of people who may reside in or frequent a
particular area.
Cultural resource. Districts, sites, structures, objects and evidence of some importance to a
culture, a subculture or community for scientific, engineering, art, tradition, religious
or other reasons significant in providing resources and environmental data necessary
for the study and interpretation of past lifestyles, and for interpreting human
behavior.
Department. The Department of Planning and Protective Services of the City of Jefferson,
Missouri.
Design criteria. A standard of appropriate activity that will preserve the historic and
architectural character of a structure or area.
Designation. Official recognition of an historic landmark, conservation or historic district by the
City Council according to the procedures and provisions in this article.
Director. The Director of the Department of Planning and Protective Services, or his or her
designee.
Endangered resource. A resource under a known or anticipated threat of damage to the
integrity or existence of the resource, such as:
A.An immediate threat which will result in loss of or collapse of a structure;
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B. An immediate threat or destruction by private action; or
C. Condemnation for code violations.
(Sometimes referred to as a "threatened resource").
Exterior architectural appearance. The architectural character and general composition of the
exterior of a structure, including but not limited to the kind, color and texture of the
building material and the type, design and character of all windows, doors, light
fixtures, signs, and appurtenant elements.
Façade. The exterior face of a building which is the architectural front, sometimes distinguished
by elaboration or architectural or ornamental details.
Historic district. An area designated as an historic district by ordinance of the City Council and
which may contain within definable geographic boundaries one or more significant
sites, structures or objects, and which may have within its boundaries other
properties or structures that, while not of such historic and/or architectural
significance to be designated as landmarks, nevertheless to the overall virtue
characteristics of the significant sites, structures or objects located within the historic
district. historical and cultural significance for which most of all of the physical
attributes (structures, streets, public areas, archeological etc.) relevant to the
historical or cultural period of significance no longer exist.
Historic preservation. The study, identification, protection, restoration and rehabilitation of
buildings, structures, objects, districts, areas and sites significant in the history,
architecture, archeology or culture of the City, State or nation.
Historically or architecturally significant. Possessing that quality present in an area, site,
structure, object or district because it:
A. Is associated with an event or events that significantly contributed to the broad
patterns of the history or architectural heritage of the City, County, State or nation;
B. Is associated with the life or lives of a person or persons significant in the history of
the City, County, State or nation;
C. Embodies distinctive characteristics of a type, design, period or method of
construction;
D. Represents the work of a master designer or architect or possesses high architectural
value;
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E. Exemplifies the cultural, political, economic, social or historic heritage of the City;
F. Contains elements of design, detail, material or craftsmanship which represent a
significant construction innovation;
G. Is part of or related to a square, park or other distinctive area that was or should be
developed or preserved according to a plan based on an historic or architectural
motif;
H. Is an established and familiar visual feature of a neighborhood or the entire
community; or
I. Has yielded, or is likely to yield archeological artifacts and/or information.
Key contributing. A site, structure or object of such an outstanding quality and state of
conservation that it significantly adds to the architectural qualities, historic
association or archeological values of an historic district because:
A. It was present during the pertinent historic time;
B. It possesses and reflects its significant historic character or is capable of yielding
important information about the pertinent historic period; and
C. It independently meets the standards and criteria of the article.
Landmark. A site, structure or object designated as a landmark by ordinance of the City Council,
pursuant to procedures prescribed herein, that is worthy of rehabilitation, restoration
and preservation because of its historic and/or architectural significance to the City.
Landscape feature. Any element or component of outdoor open space including, but not
limited to, fences, walls, retaining walls, gates, sidewalks, walkways, driveways,
parking lots, patios, terraces, decks, ground cover, trees, plants, outdoor furniture,
exterior light standards, fountains, statuary, detached signs, and other such elements.
Local historic district. A historic district established in accordance with Chapter 8, Article IV of
the City Code.
Marker. A sign used to label or identify a designated landmark or historic district as an
architecturally significant property.
National Register. The current National Register of Historic Places established by passage of the
National Historic Preservation Act of 1966, 80 Stat. 915, 16 U.S.C. 470 et seq. as
amended.
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Noncontributing (or noncontributory). A site, structure or object that does not add to the
architectural qualities, historic association or archeological values of a landmark or
historic district because:
A. It was not present during the pertinent time;
B. Due to alterations, disturbances, additions or other changes, it no longer possesses
integrity nor reflects its significant historic character or is incapable of yielding
important information about the pertinent historic period; or
C. It does not independently meet the standards and criteria of the ordinance.
Normal maintenance and repair. Any improvement or work for which a building permit is not
required by City ordinance designed to correct deterioration, decay or damage and
restore, as may be practical, a structure or property to the condition that existed prior
to the deterioration, decay or damage.
Notable structure. A structure found to be notable per the review criteria listed in subsection 8-
43.G.
Object. Those physical items that have functional, aesthetic, cultural, historical or scientific
value and are relatively small in scale and simply constructed. While an object may
be, by nature or design, movable, it should be located in a specific setting or
environment appropriate to its significant historic use, role or character. Objects
include sculptures, monuments, street signs, fence posts, hitching posts, mileposts,
boundary markers, statuary and fountains.
Owner(s) of record. Those individuals, partnerships, firms, corporations, public agencies or any
other legal entity holding title to property, but not including legal entities holding
mere easements or leasehold interests. (May also be referred to as "property
owner(s)"). Current owner(s) of record are those listed as owners on the records with
the Cole County Recorder of Deeds.
Period. A chronological division identified in the analysis of the historical development to an
area or region (i.e., Victorian, Modern).
Protection. The application of measures to defend, guard, cover or shield a building, site,
structure or object from deterioration, loss, attack, danger, or injury. In the case of
buildings, structures or objects such measures generally are of a protective nature
and usually precede preservation measures. In the case of archeological sites, the
protective measures may be temporary or permanent.
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Reconstruction/reconstruct. The reproduction of the exact form and detail of a vanished
building, site, structure or object or a part thereof, as it appeared at a pertinent time
using both original and modern materials and based on precise historical
documentation and physical evidence.
Rehabilitation/rehabilitate. The act of returning a site, structure or object to a useful state
through its repair and/or alteration while retaining the characteristic features of the
property which are significant to its historical and architectural value.
Remodeling. Modification and modernization of a structure or property without striving to
return to or replicate the original historical and architectural character of the
structure or property.
Removal. Any relocation of a structure in whole or in part on its site or to another site.
Repair. Any change to a structure or object that is not construction, removal or alteration.
Resource. Any site, structure, object or area that constitutes a source of present and future
usefulness.
Restoration/restore. The act of accurately recovering the form and details, based on precise
historical documentation and physical evidence, of a building, site, structure or object
as it appeared at a pertinent time including the removal of improvements that are not
appropriate and the replacement of missing or deteriorated features.
Site. The location of a significant event, a prehistoric or historic occupation or activity, or a
building or structure, whether standing, ruined or vanished, where the location itself
possesses historic, cultural or archeological value regardless of the value of any
existing structure. Examples of sites include habitation sites, burial sites, village sites,
hunting and fishing sites, ceremonial sites, battlefields, ruins of historic buildings and
structures, campsites, designed landscapes, natural textures, springs and landscapes
having cultural significance.
Stable. The area is expected to remain substantially the same over the next 20-year period with
continued maintenance of the property. While some changes in structures, land uses
and densities may occur, all such changes are expected to be compatible with
surrounding development.
Stabilizing. The area is expected to become stable over the next 20-year period through
continued reinvestment, maintenance or remodeling.
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Standards. The Secretary of Interior's Standards for the Treatment of Historic Properties,
codified as 36 CFR 68 in the July 12, 1995 Federal Register (Vol. 60, No. 133), and as
revised from time to time.
Structure. Anything constructed or erected, the use of which requires permanent or temporary
location on or in the ground, including, but without limiting the generality of the
foregoing: buildings, fence, gazebos, advertising signs, billboards, backstops for tennis
courts, radio and television antennas, including supporting towers and swimming
pools.
Style. The specific identifying characteristics of a building both as it appears to the eye and as it
is known to exist in design and structure.
Survey. An architectural and historical examination of historic resources to identify historic
properties within an area.
(Ord. No. 12794, Appendix A, 8-17-98, Ord. No. 15760, § 3, 1-03-18)
DRAFT HISTORIC CONTEXT
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Owen & Eastlake Ltd City of Jefferson Historic Context
Contents
Statement of Context....................................................................................................................... 4
Background History ........................................................................................................................ 4
Theme ............................................................................................................................................. 4
Geographic Parameters ................................................................................................................... 4
Temporal Limits.............................................................................................................................. 5
Local Context .................................................................................................................................. 5
Antebellum Neighborhood and Community Development .................................................... 5
Antebellum African American History ................................................................................... 9
Post-Bellum Community Development Neighborhoods ........................................................ 9
Post-Bellum Nineteenth Century African American History ............................................... 13
Early Twentieth Neighborhood Community Development ................................................. 15
Early Twentieth African American History .......................................................................... 21
Post-War Community Development ..................................................................................... 22
Post-War African American History .................................................................................... 26
Conclusions and Recommendations ............................................................................................. 32
Conclusion ................................................................................................................................ 32
Recommendations ..................................................................................................................... 32
National Register Listed Properties & Associated Property Types ............................................. 33
National Register Historic Districts ...................................................................................... 34
Moreau Drive Historic District ............................................................................................. 34
Frank Miller Green Berry Historic District .......................................................................... 35
Lincoln University Hilltop Campus Historic District ........................................................... 35
Hobo Hill Historic District.................................................................................................... 35
The Capitol Avenue Historic District ................................................................................... 35
Missouri State Capitol Historic District ................................................................................ 35
Lewis Bolton House .............................................................................................................. 36
The Gertrude and Nelson Burch House ................................................................................ 36
The Mary H. and Oscar G. Burch House .............................................................................. 36
Philip Hess House ................................................................................................................. 36
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East End Drugs ..................................................................................................................... 36
H. E. Gensky Grocery Store ................................................................................................. 37
Claud D. Grove and Bernice Sinclair Grove ........................................................................ 37
Herman Haar House .............................................................................................................. 37
International Shoe – East End Factory.................................................................................. 37
Ivy Terrace ............................................................................................................................ 37
J. B Bruns Shoe Factory........................................................................................................ 38
Jefferson City Community Center ........................................................................................ 38
Jefferson City National Cemetery ......................................................................................... 38
Kaullen Mercantile Company ............................................................................................... 38
Lansdown-Higgins House ..................................................................................................... 39
Lincoln University Hilltop Campus ...................................................................................... 39
Lohman’s Landing Building ................................................................................................. 39
Missouri Governor’s Mansion .............................................................................................. 39
Architectural Surveys................................................................................................................ 39
National Register Evaluation ................................................................................................ 40
Criteria Considerations ......................................................................................................... 40
Integrity ................................................................................................................................. 41
Seven Aspects of Integrity .................................................................................................... 41
Bibliography ................................................................................................................................. 43
Newspapers ........................................................................................................................... 44
Figure 1. Jefferson City with surrounding towns............................................................................ 4
Figure 2. !857 Stone Arch bridge. (Historic American Engineering Record, Creator, and William
Armstrong Davison. Jefferson Street Bridge, Spanning East Branch of Wears Creek, Jefferson
City, Cole County, MO. Jefferson City Cole County Missouri, 1968. Historic American
Engineering Record, Library of Congress. ..................................................................................... 6
Figure 3. An 1859 veduta-style etching of Jefferson City. (Missouri State Historical Society) .... 7
Figure 4. Map of the Capitol East Historic District (Jane Rodes Beetem) ................................... 11
Figure 5. The 1896 Jefferson Bridge Company bridge over eh Missouri River in c. 1900.
Photograph shows the pivot point on which the bridge rotated to allow river traffic to pass. ..... 12
Figure 6. Cyclists on the Missouri River Bridge in Jefferson City, in 1900. ............................... 13
Figure 7. View of downtown and the Capitol in 1910 from the Courthouse. (Missouri State
Historical Society, Dr. Arnold G. Parks Collection) .................................................................... 15
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Figure 8. Jefferson City Bridge in 1914 with streetcar. (Missouri State Historical Society, Bob
Priddy Collection) ......................................................................................................................... 16
Figure 9. Missouri State Capitol in flames in 1911. (Missouri State Historical Society, Dr.
Arnold G. Parks Collection) ......................................................................................................... 17
Figure 10. An 1896 Kansas City Star editorial headline. ............................................................. 18
Figure 11. Missouri State Penitentiary Band in 1926. (Missouri State Historical Society, Bob
Priddy Collection) ......................................................................................................................... 20
Figure 12. Municipal electric plant in the Millbottom in 1976 before urban renewal with State
Capitol in the background. (United States Army Corps of Engineers)......................................... 24
Figure 13. Marcel Boulicault State Office Building rendering before modifications. ................. 25
Figure 14. Marcel Boulicault building before facade alteration. .................................................. 26
Figure 15. Prince Hall Capitol City Lodge No. 9.(Rory Krupp) .................................................. 28
Figure 16. East End Drug Store. (Rory Krupp) ............................................................................ 29
Figure 17.Historic districts and individual sites in Jefferson City ................................................ 33
Figure 18. Sketch map of the Broadway Dunklin Historic District showing contributing and non-
contributing properties. (Jane Rodes Beetem) .............................................................................. 34
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Statement of Context
The Jefferson City Historic Context will the Community Development and Planning theme and
Ethnic History theme to examine Jefferson City’s historic and current built environment. The
context pertains to local significance.
Background History
Jefferson City was chosen by committee to be the capitol of Missouri in 1821. The area was
sparsely settled when chosen. The state capitol was the first major building, opening in 1826.
The Missouri State Penitentiary was the second major building project. Efforts to reduce state
expenditures resulted in leasing the facility (and the prisoners’ labor) to the private market. The
State Penitentiary, while enriching some families, stunted Jefferson City’s growth
Theme
The historic context’s theme are factors that affected Jefferson City’s development and its built
environment. These include immigration, state government, industry, and African American
history. All of these themes and their effects on the built environment are analyzed to ascertain
how and why Jefferson City’s built environment has evolved to the present day in its current
form.
Geographic Parameters
The historic context’s parameters are Jefferson City’s present and historic city limits.
Figure 1. Jefferson City with surrounding towns.
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Temporal Limits
The historic contexts time frame ranges from 1821, when the city was chosen to be the capitol. It
provides a context for the region and then details events after the Jefferson City’s founding.
Background information about slavery in Missouri is also provided.
Local Context
Antebellum Neighborhood and Community Development
In 1818, Missourians sent a statehood petition to Congress. It came out of committee in 1819,
but not before Congressman James Tallmadge of New York added an amendment stipulating
that “the further introducing of slavery or servitude be prohibited.”1 This upended an already
tenuous process. Granting statehood to Missouri would upset the balance of free and slave states.
Missourians were generally outraged that the federal government would decide a question that
they felt could be resolved at the state level, beginning a long disillusionment with federal
authorities.2
The 1820 Missouri Constitution stipulated that the state capitol be located on the Missouri River
within forty miles of the Osage River. In 1821, the state legislature selected a site at the mouth of
Weir’s Creek on the Missouri River for the new capitol. While two other sites were considered,
Jefferson City was chosen because of competing title claims on the other sites. Almost
immediately three well-known land speculators contested ownership, citing their purchase of the
New Madrid land claim of Baptiste Deliste. This claim and subsequent settlement soured the
1 Kremer, 56.
2 Kremer, 58-59.
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legislature. The capitol building construction started in 1823 and it opened in 1826. The sale of
lots, which was supposed to finance building the capitol, brought in less than expected.3
Governor Miller advocated for the streets, grading, and penitentiary, all in a bid to settle in
people’s minds that Jefferson City was the capitol.4 The penitentiary was constructed in 1836.
The original 1826 capitol burned down in November 1837; the new capitol, built of limestone
quarried nearby, was occupied in 1840.
Figure 2. !857 Stone Arch bridge. (Historic American Engineering Record, Creator, and William Armstrong Davison. Jefferson
Street Bridge, Spanning East Branch of Wears Creek, Jefferson City, Cole County, MO. Jefferson City Cole County Missouri,
1968. Historic American Engineering Record, Library of Congress.
The letters of Henriette Anna Elizabeth Geisberg Bruns, born in 1813 in Westphalia, Germany
and married to Dr. Bernhard Bruns, provide insight into the day-to-day life of a German
immigrant in Jefferson City. Originally, the family moved to Westphalia, Missouri. When
farming proved not to be her husband’s forte, they moved to Jefferson City in 1853. The family
constructed a house on High Street and entered the mercantile trade. Bruns’s letters provide a
3 Floyd Shoemaker, “This Week in Missouri History,” The Chillicothe Constitution Tribune, December 28, 1925, 6.
4 Shoemaker, 6.
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valuable insight to life in Jefferson City. The family landed there in the midst of the Know-
Nothing movement against immigrants and Catholics.5
The Brunses’ house is pictured in an 1859 etching in the veduta style. The pastoral etching, an
idealized landscape of Jefferson City, in the style of artwork that promoted European Grand
Tours, was probably not entirely correct in about the town’s bucolic nature. However, the
architecture illustrated does give a good representation of building styles and types in Jefferson
City’s antebellum period. Bruns’s High Street home was a three-story brick or stone I-House, a
common architectural form at the time. Natural light was prominent, coming in through the 6
over 6 pane double hung windows. Bruns complained that the cost of labor was high: a carpenter
fetched two dollars a day.6
Figure 3. An 1859 veduta-style etching of Jefferson City. (Missouri State Historical Society)
In 1836, in a bid to make Jefferson City economically attractive, and therefore assure that it
would remain the state capitol, Missouri constructed a state penitentiary. However, it was
expensive to house and feed inmates. In 1839, in order to slow the economic drag on state
coffers, the state began to lease the prison and the new managers leased the inmates’ labor to
businesses in town.7 This naturally caused hard feelings on the part of wage laborers--free labor,
in historical parlance. The situation was thought to have deterred Jefferson City’s economic
development, as people refused to move to a town where they competed with cut-rate prison
labor.8 The prison was accused of driving away artisans and mechanics, harming the town’s
growth.9
5 Henriette Bruns, Hold Dear As Always, edited by Adolf E. Schroeder and Carla Schulz-Geisberg (Columbia:
University of Missouri Press, 1998), 164.
6 Bruns, 164.
7 International Shoe National Register Nomination, NPS, Section 8, p. 12.
8 International Shoe National Register Nomination, NPS, Section 8, p. 12.
9 Kremer and Gage, 423-424.
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The railroad began to supplant the Missouri River as a primary means of transportation. There
were wharfs at Monroe Street near the prison and an 1847 wharf at Jefferson Street.10 However,
it did not have an auspicious beginning. The first train that was supposed to come to Jefferson
City, the Pacific Railroad, was wrecked when the Gasconade River Bridge collapsed in 1855 on
its official inaugural run. The collapse’s backstory is complex. Jefferson City, and the country in
general, had been plagued by cholera outbreaks in the 1840s and 1850s. Jefferson City’s 1849
cholera outbreak, linked to a steamboat, made national news although it is unclear whether the
news interest was because the steamboat had mainly Morman passengers during a period when
Missouri rejected their presence. The 1849 cholera outbreak affected the rail line when contracts,
materials and labor were constrained by outbreaks. But with officials loath to miss the inaugural
deadline, a span of the bridge which was not yet completed was hurriedly constructed in a
slapdash fashion. A train loaded with gravel was sent over in the morning at a slow speed, but
when the train of dignitaries from St. Louis crossed the bridge at between 15-30 miles per hour,
the span collapsed. The entire train went into the river with the exception of the last car and the
engine. The car of dignitaries, right behind the engine, went first. The engine, still on the bridge,
collapsed the next span and crushed the wrecked car in the river. Of the approximately 600
passengers, 31 died. The line would not open for another four months.11 The Pacific Railroad, as
it was then called, was serviced by a station near the present brick building in 1855.
The State of Missouri continued to try to make the prison a viable business enterprise. The
experiment was a disaster. In 1854, the prison was returned to state control. The buildings and
prisoners alike were in dire condition. The state then authorized factories inside the prison walls.
Prisoners not employed in the factories had their labor leased to local businesses again by the
1860s.12
Slavery slowly split the town. People’s opinions became apparent as the national conversation
became louder and the Civil War approached. Democracy-minded German immigrants were
against it, arguing that the practice promoted an elite cohort in the citizenry and harmed free
labor.13 This did nothing to endear them to their Southern nativist neighbors.
Jette Bruns’s letters indicated that Lincoln’s election “caused an uproar in our slave party and
one can hear all kinds of threats.”14 A German language newspaper with Republican leanings,
the Jefferson City Demokrat, was “suppressed,” with the editor forced to leave town.15 Bruns’s
worries were valid. Unionists were driven from Rolla and Springfield and even slaveholders who
10 Gary Elliot “Cole County History: The 1849 Cholera Epidemic in Jefferson City”
https://www.newstribune.com/news/2020/apr/18/Cole-County-History-The-1849-cholera-outbreak-in-J/ Accessed
April 15, 2022.
11 Frank Griggs Jr., “The Gasconage Bridge Failure,” https://www.structuremag.org/?p=15016 Accessed April 15,
2022.
12 Bruce Reynolds, “Prison Labor, The Montserrat Experience,” Missouri Historical Review 77, no. 1 (1982), 48/
13 Kremer, 54.
14 Bruns, 176.
15 Bruns, 176.
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not ardent enough about secession, such as U.S. Representative John Phelps, were subject to
pressure.16
On April 26, 1861, two weeks after Fort Sumter was shelled, beginning the Civil War, Bruns
worried that Missouri would go with the South and mail service would be severed. In the coming
weeks, Northerners were expelled from Jefferson City 17 By 1864, Bruns’s husband had died and
one son was killed fighting for the Union at the Battle of Iuka in Mississippi. Bruns took in
boarders, legislators and their staffers, who were often of German extraction. It was referred to as
the Radical Corner, certainly a nod to their Republican tendencies.18 By January 1865, she wrote
that Jefferson City was safe but the countryside was not.19 By April the war was over. Flags were
strung around Jefferson City and there was celebratory cannon fire. Bruns wrote, “I can’t be
joyful about anything anymore, and I can only say, ‘If only our men were alive, then we could
participate more.’"20 The Civil War essentially stunted Jefferson City’s growth. In addition,
occupying troops had damaged buildings and infrastructure.
Antebellum African American History
The Jefferson City area, and Missouri, became United States territory with the Louisiana
Purchase in 1803. The 1804 Slave Code codified behavior for African Americans whether they
were free or enslaved. This included having to obey their owners, and not having freedom of
speech, assembly, the right to bear arms, or, except by explicit permission, the right to travel.
Attempting to incite an insurrection or rebellion was punishable by death.21
The earliest recorded African Americans in Cole County arrived in 1816 when John England
brought 15 enslaved people.22
Missouri’s entrance into statehood was complicated by slaveholders. The state Constitutional
Convention was designed to protect slavery, to the point of denying free Blacks the right of
entrance in case they should foment a revolt.23 This threw the territory into direct conflict with
Congress and the Constitution by barring citizens from the territory. The Second Missouri
Compromise stated that no citizens would be deprived their rights in the territory.
Post-Bellum Community Development Neighborhoods
By the end of the Civil War, Missouri had lost approximately one-third of its population.24 Years
of guerilla warfare and campaigns by each side exhausted the population. While Jefferson City’s
population may have been tired they were not done fighting it. Many residents were ready to
16 Phillips, 140.
17 Bruns, 176.
18 Bruns, 198.
19 Bruns, 198.
20 Bruns, 201.
21 “The Black Code in Missouri,” https://www.sos.mo.gov/archives/education/aahi/earlyslavelaws/slavelaws.asp
,Accessed April 15, 2022.
22 Lorenzo Green, “Freedom Documents from Cole County, Missouri,” Negro History Bulletin 32, no. 1 (1963): 11/
23 Kremer, 68.
24 Kremer, 130.
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continue to harass the other side.25 Divisions aside, by 1867, Jefferson City was growing again
with a mix of German immigrants and easterners. A second railroad line was planned and town
was “improving a great deal.”26
Census records indicate that the neighborhoods were ethnically but not racially mixed. Herman
Tanner, who would later be a Munichberg resident, lived on Jefferson Street in 1880. His
neighbors, while some were second generation Germans, included families from Kentucky,
Prussia, Saxony, Bavaria, Illinois, Pennsylvania, and Ohio.27
The prison was no more popular after the war than it was before. The Panic of 1873 resulted in
unemployment. Prisoners threatening to revolt and walking around the town caused
consternation; the fact that some were African American added a racial component, as white
residents were convinced that Black residents would readily assist them in escape.28 Prison labor
also introduced corruption. Groceries purchased for the penitentiary were sold “to families of
officials, guards, and employees.”29
In the 1880s Jefferson City installed a private city water system. Installation was slowed when
the African American “ditchers” went on strike when their demands for $1.50 a day, a raise of 20
cents, was rejected.30
Jefferson City’s residents lived in proximity to the capitol in an axial grid street system. Jefferson
City’s topography was not conducive to a grid. It was heavily dissected by streams and ravines.
Consequently, not every street connected in the grid and not every parcel was buildable.
Combined with a generous lot size Jefferson City’s development can appear sporadic on a map,
but this only reveals the geographical and topological constraints.
Early residents lived in what is now the Capitol East Historic District in close proximity to the
prison.31 Many residents, business professionals, and politicians had a close interest in the prison
and the capitol, which were often intertwined. While the earliest house, the Parson’s House, is
from 1833, the area experienced redevelopment after the Civil War with larger and more
architecturally elaborate homes. A zoning change in 1932 allowed commercial and light
industrial uses.32
25 Kremer, 129.
26 Bruns, 220.
27 1880 Census, Enumeration District 46, Jefferson City Cole County, Missouri.
28 Gary R. Kremer and Thomas E. Gage, “The Prison Against the Town,” Missouri Historical Review 74, no. 4
(1980): 421.
29 Kremer and Gage, 424.
30 “Want More Pay,” St. Louis Dispatch, August 1, 1888, 1.
31 Capitol East Historic District, Jane Rodes Beetem, National Register of Historic Places nomination, 2005, Section
8, p. 44.
32 Capitol Hill District nomination, Section 8, p. 44.
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Figure 4. Map of the Capitol East Historic District (Jane Rodes Beetem)
In 1885, Jefferson City was still not fully developed. A sorting of residential and industrial uses
downtown had not happened. A “vacant and dilapidated” ironworks sat across the street from the
state capitol with a lumberyard and paint shop down the street on Main and Jefferson Streets.
Historic lumberyards were famous fire hazards. Volatile chemicals and stacks of dry wood often
combined with a nearby railroad’s added sparks—a combustible mix. The 1885 Sanborn Fire
Insurance map noted the Jefferson City had a 40-man volunteer fire department, one Silsby
Steam Engine, 3 hose carts, one hook and ladder truck, 1,250 feet of hose, and a bad water
supply.33 Behind the lumberyard was a small African American enclave, a mix of small frame
and brick buildings. South of state house, near the 1885 Post Office, was a strip of hotels and
boarding houses. The brutally sarcastic Sedalia Weekly Bazoo described the greatest industries in
1893 as “lager beer, penicel (sic), and boarding houses.”34 “Penicel” was described as a German
card game that involved “two glasses of beer and two decks of cards.” While the Bazoo’s
publisher J. West Goodwin was undoubtedly trying to be humorous, there must have been a
kernel of truth when he described the inhabitants of the 1880s, who appear to have been largely
visiting legislators, German immigrants, and southern-leaning citizens. “The chief occupation of
the inhabitants is swapping lies, sliding down hills, entertaining people who go there by
compulsion, on link sausage, smear kase (cottage cheese), sour kraut and pine top whiskey,
which is villainous enough to force a man to make wry faces at a picture of the Virgin Mary.”35
33 1885 Sanborn Sheet 1.
34 “The Deacon’s Jargon: Trip to the Capitol and a Few Remarks Which Lead to Suggestions,” The Sedalia Weekly
Bazoo, January 17, 1893, 5. (Penicel most likely refers to the card game pinochle).
35 “The Deacon’s Jargon: Trip to the Capitol and a Few Remarks Which Lead to Suggestions,” The Sedalia Weekly
Bazoo, January 17, 1893, 5.
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In sentence, Goodwin wrapped up Jefferson City’s stereotypes and the transmission of regional
and international foodways. (Pine top whiskey was a Virginia Civil War recipe of pine needles
boiled in water and mixed with pure grain alcohol, with a predictable taste result.)36
Civic and municipal improvements continued slowly. In 1889, the House and Senate wings were
added to the capitol, as well as improvements to make the building more fireproof. In 1896, a
rotating bridge designed by J.A.L. Waddell of Kansas City and built by A. J. Tullock was
financed by subscription. Waddell was a well-known railroad bridge engineer, notable for
inventing the ‘A” truss bridge. Jefferson City’s bridge featured a rotating span to allow river
traffic. Finance was a challenge because people still thought capitol’s permanent location was
uncertain.37 This continued to hamper infrastructure improvements. It was not uncommon to see
a wagon stuck in the mud in the Millbottom area, as many if not most streets were not paved.38
However, the bridge, with its hard surface, was popular with cyclists and pedestrians.39
Figure 5. The 1896 Jefferson Bridge Company bridge over eh Missouri River in c. 1900. Photograph shows the pivot point on
which the bridge rotated to allow river traffic to pass.
Downtown Jefferson City was slowly taking shape. The Missouri Pacific railroad station was
built in 1890. Although the state capitol was encroached on by industrial use it gravitated
36 Mark Will Weber, Applejack, Soldiers, Spirits and the Civil War (Washington D.C.: Regnery History, 2017).
37 “Many Business Houses in 1896 Survive,” Jefferson City Post-Tribune, October 14, 1932, 1.
38 “Many Business Houses in 1896 Survive,” Jefferson City Post-Tribune, October 14, 1932, 1.
39 “Bridge Opened,” State Republican, April 9, 1896, 3.
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towards manufacturing. Manufacturing outside the prison walls was hastened when labor unions
and low prices for prison-manufactured goods compelled the manufacturers to not renew their
contracts around 1905. The city and the Commerce Club offered incentives in the form of vacant
lots and subsidies, and it appears abandoned property, for new factories outside the prison. Shoe
companies in St. Louis established a presence in Jefferson City seeking cheap labor.40 Shoe
factories, associated with the same families involved in prison contracting, moved across the
street from the capitol to the east.41 This set off a building boom on the edges of downtown and
in the Millbottom as the factories were constructed.
Figure 6. Cyclists on the Missouri River Bridge in Jefferson City, in 1900.
Post-Bellum Nineteenth Century African American History
Freed Blacks came to Jefferson City throughout the war and this movement increased afterwards.
The 65th Colored Infantry commander, Col. Theodore Barrett, advised freed enslaved people to
purchase their homes and land.42 But this was difficult when many African Americans could
only find work as domestics, laborers, and tenant farmers.43
40 International Shoe Company nomination, Section 8, p. 14-15.
41 1892 Sanborn, Sheet 4.
42 Kremer, 131-132.
43 Kremer, 132.
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In 1866, the Lincoln Institute was founded. Part of garrison life for 65th U.S. Colored Troops,
based in Texas at the time, was learning to read. Their officers were worried that when the
soldiers were mustered out their educational opportunities would end. In 1879, Lincoln would
become a land-grant university.
In 1885 African Americans lived in various places downtown but the densest concentration on
the Sanborn map insurance map, which was not that big, was Hog Alley, currently Commerce
Street. The axial grid system provided alleys and rear yard dwellings for servants and domestics.
The area was integrated overall but African Americans were largely relegated to these alley
houses.
Because Jefferson City was the capitol and had an African American land grant school, it
became a meeting place for Black leaders from around the state. As such strides in civil rights
that had statewide effect took place here. Missouri tried to enact Jim Crow at the turn-of-the-
century like southern states. However, a concerted pushback from African American leaders
from around the state quashed the effort to segregate railcars in both 1903 and 1908. Other
segregative practices, such as schools, remained in place. Non-judicial efforts, such as local
traditions that forbade integrated public accommodations such as restaurants and hotels as well
as religious institutions, also continued. As such the African American community made a series
of parallel institutions. The African Methodist Episcopal Church is listed at Madison and Monroe
Streets. Vitally important, the Quinn A.M.E. Church hosted mass meetings for civil rights
events. In 1905, the Prince Hall Masons’ Lodge was opened.
By 1916, the Sanborn Fire Insurance map does not indicate African American occupancy in the
Hog Alley area. A tenement marked for Black occupancy on previous maps was now used for
lime storage. However, the city directory indicated a number of African American Lincoln
students and domestic servants living in the area.44
44 J. W. Johnston, The Illustrated Sketch Book of Jefferson City and Cole County (Jefferson City: Missouri
Illustrated Sketch Company, 1900), 71.
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Early Twentieth Neighborhood Community Development
Figure 7. View of downtown and the Capitol in 1910 from the Courthouse.
(Missouri State Historical Society, Dr. Arnold G. Parks Collection)
Jefferson City continued to expand to the east down High Street, filling in the area between the
State House and State Penitentiary and the Missouri River. The houses are predominately large
brick houses on large lots.45 Downtown, while there were still lumberyards and some industrial
uses, a series of brick stores began to fill each block on Main and High Streets.46 West of the
State House, the Millbottom became a mix of residential and industrial uses that required
railroad access from the Missouri Pacific line. They included Pohl’s brick yard, Swift and
Company poultry and butter packing. The area was anchored by the Missouri Pacific
roundhouse. Brick houses are lightly intermixed but the area is not as dense as the east side of
the capitol.47 (Figure 7)
45 1908 Sanborn, Sheet 6.
46 1908 Sanborn, Sheet 5.
47 1908 Sanborn, Sheet 2.
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In 1911, streetcar service was introduced to Jefferson City. This led to the development of the
Clark, Moreau, West Main, and Boonville neighborhoods.48 An electric generating plant was
built in the Millbottom. The Wood Crest subdivision was also developed in 1913. It consists of
large homes on stately lots. Some lots have been subdivided over the years and the tornado in
2006 also damaged the neighborhood.49
Subdivisions that did follow the city grid were built. The Wagner Place subdivision, later named
Moreau Park, was based on the J.C. Nichols Country Club neighborhood in Kansas City. It was
constructed in approximately 1914.
By 1916, the Munichberg neighborhood business district, now a National Register Historic
District, was largely developed. The Foot, a neighborhood business district for African
Americans, was also developing at the “foot” of Lincoln University. This district would later be
demolished for the Campus View urban renewal project.
Figure 8. Jefferson City Bridge in 1914 with streetcar. (Missouri State Historical
Society, Bob Priddy Collection)
48 Jenny Smith, “Jefferson City Streetcars Thrived from 1911-1934,” June 1, 2019,
https://www.newstribune.com/news/2019/jun/01/Jefferson-City-streetcars-thrived-from-1911-1934/, accessed April
15, 2022.
49 Jenny Smith and Deborah Goldammer, ‘Cole County History: The Wood Crest Neighborhood, Part 2 – The Early
Residents. https://www.newstribune.com/news/2020/nov/28/Cole-County-History-The-Woodcrest-Neighborhood-
Par/ Accessed April 15, 2022.
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The advent of World War I brought a virulent anti-German backlash to Jefferson City.
Immigrant Fritz Monat publicly expressed his hope for a German victory.50 He was flogged in a
Jefferson City theater and forced to kiss the American flag.51 Monat was also a Socialist and
reflecting the wide range of German immigrant political thought.
In 1911, lightning struck the capitol and set it ablaze. A number of setbacks hampered efforts.
Jefferson City did not have a fire truck or a paid fire department. Sedalia’s fire department, upon
hearing of the capitol blaze, took a special train to Jefferson City, arriving in an hour with men
and equipment.52 But water pressure was low and could not reach the fire on the cupola.
Eventually, a water main collapsed. Some blame was placed on Jefferson City’s privately
operated water supply, which was not adequately maintained.
Figure 9. Missouri State Capitol in flames in 1911. (Missouri State Historical
Society, Dr. Arnold G. Parks Collection)
50 Frederick Leubke, Bonds of Loyalty: German-Americans and World War II (Dekalb: Northern Illinois Press,
1974), 280.
51 Petra Dewitt “The German Experience in Missouri During World War I,”
https://missourioverthere.org/explore/articles/the-german-american-experience-in-missouri-during-world-war-i/,
accessed March 10, 2022.
52 “Fire Destroys Missouri State Capitol Building,” Democrat-Argus, February 7, 1911, 1.
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Moving the capitol to Sedalia after the capitol fire was occasionally framed as a labor issue. The
state penitentiary, constructed to keep the capitol in Jefferson City, once again, became a
liability. Organized labor painted the entire town as a company town for convicts as they had for
years. The Sedalia Board of Trade stated, “Vote Against Jefferson City, the convict labor town,
because the present state capitol building and most all the private residences, hotels, shops,
stores, and streets in the town have been constructed by convict labor.”53 While clearly
hyperbolic, the column did identify a division in Jefferson City and Missouri. By 1903, prison
labor was manufacturing boots, shoes, saddle trees, brooms, and clothing, both inside and outside
the prison walls.54
Figure 10. An 1896 Kansas City Star editorial headline.
53 “Vote Yes for Capitol Removal to Sedalia,” Kansas City Star, November 2, 1896, 5.
54 “House Interested in Convict Labor,” St. Louis Republic, January 23, 1903, 2.
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The eventual overwhelming vote to keep the capitol in Jefferson City resulted in a building
boom.55 The city issued bonds for street improvements, bridges and viaducts. The most popular
road material was vitrified brick, followed by macadam and gravel.56 Lafayette Street was brick-
paved by 1912.57 Growth was also undoubtedly influenced by the increase in free labor and
moving some shoe production outside the prison walls in the previous years.
The temporary capitol building was constructed quickly in the fall of 1912. The construction was
a race against time as the legislature was to convene in January. Funded by Jefferson City’s
business community, it was rented to the state. It was a three-story frame building built on the
capitol grounds and designed by St. Louis architect Henry H. Hohenschild.58 The temporary
capitol was patterned after buildings at the 1904 St. Louis World’s Fair. It was constructed by St.
Louis contractor Nicholas Peligrew.59 Because the architectural jury had chosen but not
announced the new architect the old capitol continued to lie in ruins during the summer of
1912.60 The new building opened in January, 1913, and by February the structure had caught fire
twice: a cigar thrown away in a washroom and a cigarette or match igniting a hemp doormat
caused two fires in short succession.61 However, even before the errant fires, a raucous crowd at
the legislature’s opening threatened the building’s integrity. The Democrats had swept control of
the government. The House and Senate leaders entered followed by Governor Elliot Major as a
band played Dixie. The governor took his oath under a banner that read, “Missouri Redeemed.”62
Both were clear indicators of southern influence.
The State Penitentiary became even more notorious. Thought to be one of the world’s largest, its
population swelled with youthful inmates. While other states operated industrial schools for first-
time offenders Missouri sent them to the state prison.63 Prison labor and the convict leasing
system continued to come under scrutiny politically. The D.C. McClung era was closely
examined at the time. McClung was a local politician before he became warden and the position
was a plum patronage job from Governor Major. The convict leasing system came under fire at
the same time. Prisoners were leased to factories located on the prison grounds. The legislature
changed the system. Prison factories would be owned the state rather than benefit private
industry. However, all the necessary machinery was not purchased and the state labor system did
not fully employ the prisoners.64 Warden McClung put the prisoners to work on a new park on
state land on the edge of Jefferson City. McClung was a polarizing figure in a job that was a hot
button issue. The park and the dance pavilion became popular with Jefferson City’s “leading
55 “New State Capitol to be Monument to the Skill and Products of the Great State of Missouri,” St. Louis Star and
Times, July 2, 1911, 22.
56 “Industrial Notes,” The Engineering News, November 21, 1912, 354.
57 “Industrial Notes,” The Engineering News, October 17, 1912, 273.
58 “Committee Plans Temporary Capitol,” St. Louis Globe, May 23, 1912, 3.
59 “Capitol Builders Organize,” Hunnewell Graphic, February 9, 1913, 6.
60 “Missouri State Capitol Items,” King City Democrat, November 15, 1912, 6.
61 “Fire Threatens Capito,l” Hunnewell Graphic, February 23, 1913, 6.
62 “It is Governor Major,” Houston Herald, January 16, 1913, 1.
63 Charles A. Ellwood, “The Missouri Prison Problem,” Journal of the American Institute of Criminal Law and
Criminology 7:5 (January 1917): 649.
64 “Prison Woes in Labor,” Kansas City Star, September 20, 1916, 2.
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citizens,” who would gather to dance to the 15-piece prison orchestra. 65 While Jefferson City
society enjoyed the park, the prisoners protested their new labor regime, even more unpopular
than before, by setting the prison on fire.66
Figure 11. Missouri State Penitentiary Band in 1926. (Missouri State Historical
Society, Bob Priddy Collection)
65 “Missouri Highways in Bad Condition,” Mexico Missouri Message, November 9, 1916, 3.
66 “Big Profits in Prison Shops,” Kansas City Star, January 7, 1917, 4.
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Early Twentieth African American History
In 1903, the Missouri legislature attempted to institute Jim Crow laws involving segregation on
railcars. Prominent African Americans including Jefferson City resident Duke Diggs lobbied the
legislature and beat back the law. It failed to pass.
The Washington Laboratory School was established in 1904. Families began to move from the
downtown area to the area around Lincoln University to take advantage of the school.67
Progressive pressure related to removing “vice” from downtown undoubtedly influenced some
moves to a less repressive area of town. However, Hog Alley, although formally renamed
Commercial Street, continued to figure in the racial landscape. Downtown Jefferson City was
still an area where African Americans were allowed and their presence expected. “In the central
city the Negro is not conspicuous and is acceptable to the whites who must live there,” wrote
Charles Wesley Jackson in 1965.
New Deal programs were segregated and opportunities for African Americans were far fewer
than those for whites. Lincoln University embarked on a New Deal building program in the
1930s. Bennett Hall, named after Private Logan Bennett of the 65th United States Colored
Troops, was built by the Public Works Administration in 1938. It was constructed as a women’s
dormitory.68 The Public Works Administration built Benjamin Allen Hall in 1936 as a
dormitory. It also served African American state legislators who were unable to obtain lodging in
Jefferson City due to segregation. John Damel Hall was constructed in 1936 to house the
Mechanic’s Arts department. Libby Anthony Hall was constructed in 1940 as a women’s
dormitory. The Works Progress Administration provided funding for road widening and
landscaping.69
The many provisions for New Deal funding for Lincoln University bear scutiny. When Lincoln
student Lloyd Gaines applied for law school at the University of Missouri in Columbia, the
University of Missouri, in order to preserve segregation, offered to pay Gaines’ tuition in a
different state. The only other alternative was to build a separate but equal facility, a law school
just for Gaines, in Missouri. Some legislators proposed exactly that during this period.
Additional programs could be added to Lincoln to guarantee that integration could not occur.
While two of the buildings at Lincoln funded by the New Deal were dormitories, the timing is
suspect, suggesting that federal funding was being applied to maintaining educational
segregation.
The Washington School, the segregated school for Blacks in Jefferson City, also added a gym in
1938 through the Public Works Administration.70
In 1933, the Jefferson City Winnie Davis Chapter of the United Daughters of the Confederacy
erected the Sterling Price Memorial. A plaque on a small granite boulder the monument stated
67 Yokley,
68 https://livingnewdeal.org/projects/bennett-hall-lincoln-university-jefferson-city-mo.
69 “Lincoln University of Missouri,” The Crisis, August, 1940, 245, 267.
70 “Black Schools in Missouri,” http://www.millercountymuseum.org/schools/black_schools_missouri.pdf, accessed
March 10, 2022.
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that Price’s Confederate forces spared Jefferson City in 1864. The UDC’s president was Nana
McClung, the wife of former Missouri State Penitentiary warden Dickerson Clark McClung, who
created McClung Park in 1915. Although the monument was supposed to celebrate Sterling
Price’s sparing of Jefferson City from invasion it was almost entirely counterfactual. The UDC
admitted that Price wasn’t at the actual spot but in the general area.71 In addition, Price did not
“spare” Jefferson City but merely did not attack it. Civil War monuments, especially those of the
United Daughters of the Confederacy, generally have much more to do with the time they are
erected and very little to do with the Civil War itself. Jefferson City’s monument is no exception.
The UDC started in Missouri in 1898. Jefferson City’s Winnie Davis Chapter was formed in
1902. Far from just commemorating the Confederacy, even though Missouri was a heavily
contested border state, Missouri’s UDC embarked on path of southernization to associate
Missouri and themselves to the Deep South and its traditions.72
UDC member Nana McClung embodied this journey in her real life. Born in West Virginia, she
gradually redeveloped her biography, claiming to have been born in Virginia instead. McClung
was an ardent UDC supporter who often hosted the monthly chapter meeting at her home on
High Street. Many prominent Jefferson City families were UDC members. Jefferson City’s UDC
freely admitted that the placement of their monument had little to do with the battle. The
monument is in the wrong spot. However, it did mark the entrance of a white subdivision near
Lincoln University and that placement would not have been lost on Jefferson City’s Black
residents. Like other UDC Confederate monuments, the monument’s construction had everything
to do with white supremacy at the time of its construction.
Post-War Community Development
The Campus View Urban Renewal Project began in approximately 1959. The project was not
uniformly popular. The Campus View project focused on redevelopment in the area surrounding
Lincoln University. The Progress Project focused on downtown and infrastructure. Its focus was
to increase downtown parking and channelize Wears Creek.
By the time it was being started in the mid-1960s opposition to Campus View was well
underway. The Foot had been large demolished and resident relocation was not as smooth as
anticipated. Campus View’s problems became a focal point for the Progress Project. How many
poor and senior residents had their homes confiscated was a talking point.73 This had a number
of repercussions. People were culturally unmoored from their old neighborhood. For Black
residents, homeownership represented a not only sort of economic freedom and status but it was
also literal freedom. Property was essential for loan collateral. Property was also essential for a
71 “Agree to Removal of Marker in City” Jefferson City Post-Tribune, September 16, 1955, 2,
72 Christopher Phillips, The Rivers Ran Backwards: The Civil War and the Remaking of the American Middle
Border (New York: Oxford University Press, 2016), 315.
73 “Progress,” Jefferson Post Tribune, June 15, 1966, 1-2.
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bail bond and a rental unit in public housing did not qualify.74 Perhaps it was better housing in
some ways but it was also a step backward.
While earlier urban renewal projects required code enforcement it seems to have been
sporadically or selectively enforced, as it was previously. Progress Project buildings downtown
were classified as fire hazards. However, code and fire regulation enforcements were non-
existent. Fire regulations were unable to be enforced. The fire department was unable to close a
building for non-compliance. Instead, the fire inspector relied on “civic pride or the initiative of
the building owner” to repair buildings.75 No code enforcement was an integral part of the
segregation real estate pro forma. Segregation ensured the tenants could not easily move. Not
maintaining the property only enhanced the bottom line. While the city could demand that the
code be enforced and followed to the letter this would only drive up the price, possibly forcing
the residents to move to white neighborhoods. As a general rule, this was untenable for both the
landlord and white neighborhoods. It was also politically dodgy for the city.
Wears Creek flooding prompted the Progress Project urban renewal project. The building stock
in the Millbottom neighborhood had been exposed to sporadic or serious flooding for years.
Consequently, few building owners made extensive repairs after a flood.76 The United States
Corps of Engineers did not feel it was cost effective to redevelop the area after clearance.77
At the same time, the city promoted westward movement. In 1957, Jefferson City voted
affirmatively for an urban expressway program through a bond issuance. This Route 50 spurred
development on Jefferson City’s west side. New industrial plant such as Chesebrough-Ponds and
a number of planned shopping centers encouraged suburban development.78 A Daily Capitol
News editorial stated the reasons for the highways, growth in greater Jefferson City and its
position as a gateway to Land of the Ozarks.79 The highways, and the Progress Project to a
degree, were focused on moving people through and out of the urban core. However, there was a
racial element. Segregation ensured that the beneficiaries of the program would be largely white.
74 “Housing Authority Should Reconsider South Side Decision,” The Lincoln Clarion, April 30, 1975, 2.
75 Margaret Taylor, “Out of Sight, Out of Mind, Tour of City’s Alley’s Show Fire Hazards,” The Sunday News and
Tribune, January 31, 1971, 7.
76 Army Corps of Engineers, Wears Creek Feasibility Report for Flood Control (Kansas City: USACE, 1974), 8.
77 Army Corps of Engineers, Wears Creek Feasibility Report for Flood Control (Kansas City: USACE, 1974), 9.
78 “Merchants, City Officials Ask 50 West Improvements” Jefferson City Post Tribune, July 14, 1966, 1.
79 “Route 50 development reflects area growth” The Daily Capitol News, April 29, 1967, 4.
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Figure 12. Municipal electric plant in the Millbottom in 1976 before urban
renewal with State Capitol in the background. (United States Army Corps of
Engineers)
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Figure 13. Marcel Boulicault State Office Building rendering before modifications.
Route 53 construction and the Whitton Expressway north and south opened Jefferson City for
expansion. While the Whitten Expressway cut through The Foot, taking what urban renewal had
missed, Route 53 opened western Jefferson City to suburban sprawl.
The second Jefferson Bridge was opened in 1955. This replaced the 1896 bridge of the same
name. The first bridge, privately constructed in 1896, often slowed traffic when the span rotated
to allow barges and other river traffic pass. A second bridge was added in 1991 when traffic
increased further.
The urban renewal projects, and zoning code changes also opened downtown more state office
buildings. These also required parking and a largely clear Millbottom. It did result in a small
collection of mid-century modern and Modernist office buildings downtown including the 1952
Jefferson Building and the Employment Security Building both designed by architect Marcel
Boulicault. Unfortunately, both buildings have had substantial façade renovations. The Truman
Office Building was constructed in 1983. The zoning code change has left the area around the
capitol and eastward with a competing uses and buildings. Modernist office buildings are
interspersed with historic homes that have been converted to commercial uses. These are
interspersed with infill apartment buildings.
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Figure 14. Marcel Boulicault building before facade alteration.
Post-War African American History
African Americans were included in post-war planning efforts. Mayor Jesse Owens established a
planning committee to ascertain what residents wanted. The requests were within the segregative
framework. Requests included more rental housing and a swimming pool near Community
Park.80 The Community Park pool was constructed in 1947 but it was controversial. The city
held separate votes for funding segregated white and Black pools in Memorial Park and
Community Park, respectively. A group of whites circulated handbills against the segregated
Black pool. The mayor denounced the group for injecting racial discrimination into the vote for
segregated facilities.81
As in many parts of the country, civil rights actions immediately after the war often focused on
recreational activities. Having fought and sacrificed during the WWII they too wanted to enjoy
all the fruits of post-war America. In Jefferson City, golf, as it did in many places, became a
flash point. The golf course was owned by two entities. The city controlled the front nine holes
while a private entity, the Hough Park Golf Association, owned the back nine holes. They were
able to choose who could be a member and golf on their back nine holes.82 It was unclear
initially who could golf until 1949, when Lincoln University faculty member Dr. Milton
Hardiman was asked to leave although he had golfed there before. This battle went on for six
years while City Council dithered. In 1966, Hardiman was part of the Lincoln University golf
team that won the Governor’s Cup as part of the State Employee’s Twilight Golf League.83
In 1942, the African American community formed a parallel organization in the face of
segregation, a separate but equal community center at 608 East Dunklin Street. It is one of the
few African American buildings associated with The Foot left. In 1950, the Prince Hall Masons
Capitol City Lodge #9 purchased the H. E. Gensky Grocery Store at 423 Cherry Street. It is
80 “Rent Houses, Swimming Pool sought by local post-war planners,” The Lincoln Clarion, October 20, 1944, 1.
81 “Citizens Approve Negro Pool Despite ‘Hate’ Handbills,” The Lincoln Clarion, December 5, 1947, 1.
82 “Hough Park Golf Grounds Association Agree to Continue Present Regulations” Lincoln Clarion, November 18,
1955, 2.
83 “These Won Trophy” The Lincoln Clarion, October 7, 1966, 2.
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listed in the National Register for Commerce and Social History. The historic Dunavent A.M.E.
Church is located across the Whitten Expressway. Estelle and Duke Diggs were instrumental in
its construction. Duke Diggs had a long history in community activities, fraternal organizations
and civil rights. Diggs was at various times a baggageman, a mover, and a dealer in coal and
wood. He is mentioned as a contractor.84 Diggs was active in fighting rail car segregation with
future Kansas City Sun publisher Nelson Crews. He attended the mass meetings at Jefferson
City’s Quinn A.M.E. in 1907 that helped scuttle the legislation.85 He was a state leader in the
United Brothers of Friendship, an African American fraternal organization founded in Louisville,
Kentucky. Diggs was also active in the local Republican party, having been named an alternate
for Second Congressional Republican Convention.86 He was also a ward captain. In 1941, Diggs
was one of the first African Americans summoned for jury duty in Cole County.87
The Diggs Community Center was used for a nursery and community meetings. During World
War II and the Korean War, the center was used as a USO for Black service members.88 The
Diggs Community Center was listed in the National Register of Historic Places in 1992 under
Criterion A, Ethnic Heritage, Black.
Swimming pool access controversies continued in 1949 when Jefferson City recreation
department offered programs to white children at the Junior College that had a pool while Black
children were sent to Washington School with no pool. When three young Black women
attempted to enroll in the program at the Junior College they were rebuffed. The local NAACP
branch was expected to pursue a “separate but equal stance.”89 The City Park board canceled the
program rather than integrate it.90
When history professor Lorenzo Green came to Jefferson City in the 1930s segregation was
fairly hard and fast. He reported that both faculty and staff were banned. In response, the school
had movie nights each week. Both students and faculty avoided having to be relegated to the
balcony in the movie theater.91
Lincoln University and faculty members continued to hammer at racial injustice. Lincoln
University students often led the way in desegregation, sometimes to the dismay of Lincoln’s
leadership. In 1952, the Lincoln students started a drive to desegregate movie theaters through a
boycott. An interview revealed that student attitudes were mixed. While one felt the boycott just
84
85 “Call for a Solemn Conclave,” The Rising Sun, July 13, 1907, 8.
86 “Deadlock on Landon in Second,” Moberly Monitor Index, April 8, 1936, 1.
87 “Negro Convict Goes to Trial for His Life,” Jefferson City Post Tribune, May 22, 1941.
88 “At 70 Years Young, Community Center Continues its Mission,”
https://www.newstribune.com/news/2012/feb/19/70-years-young-community-center-continues-its-miss/, accessed
April 15, 2022.
89 “NAACP plans injunction against City Park Board,” The Lincoln Clarion, March 3, 1949, 1.
90 “City Program to End,” The Lincoln Clarion, March 16, 1949, 1.
91 Lorenzo Green Oral history interview, 1975, page 10.
https://bluetigercommons.lincolnu.edu/cgi/viewcontent.cgi?article=1003&context=interviews Accessed April 15,
2022.
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gave into the owners’ wishes others thought that going to the theater was adequate protest.92 In
1952, segregated swimming pools opened at Memorial Park and Community Park.
Figure 15. Prince Hall Capitol City Lodge No. 9.(Rory Krupp)
The Missouri Hotel integrated in 1955. Previously, the Missouri Hotel had hosted the United
Daughters of the Confederacy gatherings although many meetings were at members’ homes. It
was the site of negotiations with the city and the UDC over Price’s Confederate Monument
before this was moved in 1955.
In the late 1950s segregation was tackled in public accommodations. Missouri did not have
segregation laws on the books like Southern states. As in much of the North, segregation was
often a matter of whim, spite, and local tradition aimed at social control without having any of it
codified. The Missouri legislature condemned segregation in a session in 1955 but balked in the
same session at actually outlawing it. The Lincoln Clarion conducted a survey about attitudes
towards segregation in Jefferson City in 1956. They contacted 28 places, of which 15 served
African Americans but six had conditions for service. Segregated places often replied that no
Blacks ever attempted to get service so it was a moot point, while others would only serve Black
if they were in a mixed group. The Tasti-Treat would only serve individuals in cars but not
inside. Drive-in movie theaters were integrated. When a group of Lincoln students held a sit-in at
92 “The Roving Reporter,” The Lincoln Clarion, February 27, 1953, 3.
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the East End Drug Store (listed in the National Register) in the early 1960s the proprietor, who
was also the mayor, simply took out the chairs and tables after the sit-in.93
Figure 16. East End Drug Store. (Rory Krupp)
Local churches were sharply segregated. The Catholic, Episcopalian, Lutheran and Christian
Science Churches all accepted African American parishioners. However, the Catholic Church
was the first to integrate in 1951. One pastor stated that Blacks had their own churches, therefore
integration was unnecessary. This seemed to be the predominant line from Baptist, Methodist
and Christian Churches in Jefferson City.94
In the 1960s, segregation in public accommodation continued. It was noted that most African
American adults socialize on Lincoln’s campus and not in Jefferson City. 95A student who
graduated in 1971 remembered having to sit in the balcony at the movie theater. Black were not
welcomed at all nightclubs and the police sometimes harassed students.96
Housing segregation in Jefferson City was largely driven by local factors. While redlining in
larger cities is illustrated by the 1930s Home Owners Loan Corporation redlining maps,
Jefferson City was not large enough to be mapped. A recent study by the Chicago Federal
93 Malfatti-Rachell, 153.
94 Al Westbrooks, “The Unwritten Law, Segregation, Continues to Take Precedence in Missouri’s Capital,” The
Lincoln Clarion, March 23, 1956, 6, 8.
95 Gabrielle Malfatti-Rachell “Desegregation and its Impact on Institutional Culture at a Historically Black
University” Dissertion University of Columbia, 2007, 132
96 Gabrielle Malfatti-Rachell “Desegregation and its Impact on Institutional Culture at a Historically Black
University” Dissertion University of Columbia, 2007, 132.
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Reserve shows that HOLC maps are unreliable indicators for a lack of minority lending.97 The
HOLC, which loaned money to homeowners in distress, actually lent money in minority areas.
At the same time the Federal Housing Administration maintained their own set of redlining
maps. These maps were destroyed at the order of President Nixon by John Ehrlichman during the
late 1960s. However, some copies have survived in regional repositories and indicate that while
HOLC redlining was not as widespread, FHA redlining was widespread. In towns without direct
federal direction lending was a more local affair. In Jefferson City, local real estate agents
refused to show African Americans houses west of Jackson Street or north of McCarty Street for
fear of losing white business. Neighborhood associations and “tradition” dictated who lived
where. Lincoln University faculty lived on the perimeter of the campus. They felt they could not
by real estate more than four blocks from the campus. A white Lincoln faculty member was also
discriminated against when he told a real estate agent over the phone where he worked. There
were no houses available. The bank had the same response for a loan.98 Jefferson City housing
was segregated “well into the 70s.”99
In 1959, the Jefferson City Housing Authority chose a 12-block area around Lincoln University
for the first urban renewal project. Conducted under the auspices of the Housing Act of 1949 the
plan was to remove clear “slums” and prevent “blight” from spreading to the rest of the city.100
The Campus View Urban Renewal Project revealed class divisions in the Black community. It
also portrayed the housing problems faced by African Americans regardless of class. This was
never more evident than in urban renewal relocation. The Campus View project resulted in
clearing 102 acres of dense housing around Lincoln University. This was replaced by two sets of
housing options: the middle-class Roland Street development and the Elm Street public housing
option. Unlike for white residents, moving west to a suburb on the edge of Jefferson City was not
an option. Jefferson City had evolved in a segregated pattern where there were acceptable
neighborhoods for African Americans, places where they could live in mixed racial settings. One
of these was downtown Jefferson City.101 However, it was noted that in the Campus View
project, “urban renewal has caused a centrifugal force separating races and classes.”102 Jefferson
City’s rising Black middle class was stranded. As this observer noted, “The pigmentation of the
Negro skin is the badge of difference in relocation practices.”103 Relocation was thwarted
through a number of practices. Neighborhood improvement associations prevented minorities
from moving into suburbs and drove them out if they did. They could also provide social
pressure on community members to stay the course. The restrictive covenant was another tool.
Although outlawed in 1948 there were alternatives. The “Van Sweringen Covenant,” named after
97 Fishback, Price, Jonathan Rose, Ken Snowden, and Thomas Storrs “New Evidence on Redlining By Federal
Housing Programs in the1930s,” Chicago: Federal Reserve of Chicago, 2022.
98 Malfatti-Rachell, 137
99 Malfatti-Rachell, 135.
100 Stanley S. Scott, “University Area Included in Urban Renewal Program,” Lincoln Clarion, March 6, 1959, 1.
101 Charles Wesley Jackson, “Urban Renewal and its Effects in Jefferson City, Missouri,” Master’s thesis, Kansas
State University, 1965, 44.
102 Jackson, 44.
103 Jackson, 45.
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the brothers who developed Shaker Heights, Ohio, in the 1920, stipulated that the original owner
had to consent to the new buyer. This could be expanded to a practice where all the adjacent lot
owners had to agree to the new buyer. Builders and realtors were effective in maintaining racial
boundaries by telling prospective buyers nothing was available. Banks also refused to make
loans, especially in subdivisions where they already held loans. In addition, the institutions and
facilities in a new suburb might be restricted. A new neighborhood might have segregated
schools, parks, restaurants, swimming pools, and golf courses. Should these tactics fail, suburban
zoning practices that mandated large lots discouraged people.104
People in deep poverty faced equal challenges. While public housing was supposed to provide
clean and modern housing to relocated families, there were strict requirements. A nuclear family
was necessary. This barred single people and inter-generational families. There was a
requirement for “middle class” values and not being a member of any subversive organizations.
Consequently, residents in the most need of housing were forced to move within the
neighborhood in a segregated city with overcrowded housing.
The Campus View project made Black class differences readily apparent. Lincoln University
leadership viewed the surrounding neighborhood as an impediment. In a letter included in the
Congressional Record, Lincoln University President Earl E. Dawson enumerated the many
advantages of urban renewal for the school, included removing blight and certain slum
conditions that might affect their students adversely. Urban renewal saved the school money in
expansion costs by removing private sales for expansion and certain infrastructure projects like
streets. Lastly, “by providing playground space for children and youth in the campus area, our
landscaped campus grounds are now receiving considerably less wear and tear than other years
when these youngsters had no place else to play.”105 The Campus View redevelopment focused
on two areas. A public housing development, Elm Street, was constructed. An African American
middle-class enclave, Roland Street, was built on the remainder. It houses faculty and staff from
Lincoln University.
Resident displacement became an issue when the housing code was finally enforced and used to
force people to move or repair their homes. There was great concern that the prices the Housing
Authority was paying to displaced residents were not enough to buy even a lot for a new
home.106
When The Foot was demolished in 1967 some faculty, students and residents had mixed feelings.
It deprived Lincoln students and Jefferson City’s young adults of a place to socialize, according
to Dan Turner, who owned a Conoco station on East McCarty and Adams Streets.107
104 Jackson, 46-48.
105 Earl Dawson to Logan Wilson, letter, included in Urban Renewal, Hearings Before the Subcommittee on
Housing of the Committee on Banking and Currency, House of Representatives, Eighty-Eighth Congress, First
Session, November 19, 20, and 21, 1963, Part 2 (Washington, D.C.: U.S. Government Printing Office, 1963, 246).
106 “Campus View Displacement Problems Heard,” Jefferson City Post-Tribune, February 19, 1961, 1.
107 Charles Wartts, “Dan Turner Looks at Urban Renewal,” The Lincoln Clarion, February 10, 1967, 2-3.
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Conclusions and Recommendations
Conclusion
Jefferson City has played a vital role in Missouri’s history since its founding. The capitol is a
microcosm of Missouri, both its strengths and its divisions. The city’s development reflects these
attributes. Formed by committee Jefferson City was not shaped by market forces, natural
resources. The Missouri River was one of the few requirements. Jefferson City’s neighborhoods
reflect its history. The Munichberg neighborhood and it Missouri German Vernacular style and
influences display the German immigrant experience. While the Capitol East neighborhood with
its large Victorian houses were owned by a wide variety of business and professionals it also
reflects the wealth gained in the nineteenth-century from prison labor and enslaved peoples. The
Roland Heights neighborhood reflects the battles of segregation and urban renewal. Moreau
Heights reflects the earliest suburbs. Millbottom reflects both Jefferson City’s industrial past but
also urban renewal. Not only is each neighborhood mirror the historic conditions of their
inception but also reflect the time since.
Recommendations
The Roland Heights subdivision is recommended for a National Register Historic District under
Criterion A, Ethnic History – Black.
The Capitol East District is recommended for preservation. The 2019 PCAV Planner reports
defines blight, in part, as defective and inadequate street layout and improper subdivision
platting.108 However, these conditions can also be defined as historic characteristics.
108 PGAV Planners East Capitol Avenue Redevelopment Area, Jefferson City, Qualifications for Chapter 99 (LCRA)
Designation, St. Louis: PGAV Planners, 2016, 17.
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National Register Listed Properties & Associated Property Types
Figure 17.Historic districts and individual sites in Jefferson City
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National Register Historic Districts
Jefferson City has nine National Register Historic Districts. It is listed under Criterion A, ethnic
heritage and Criterion C, architecture.
Figure 18. Sketch map of the Broadway Dunklin Historic District showing contributing and non-contributing properties. (Jane
Rodes Beetem)
The Broadway Dunklin Historic District was listed in 2002. The district contained, at the time of
the nomination, 23 contributing buildings and one non-contributing resource. The period of
significance is 1885-1915. The house styles include Queen Anne, Gabled ell types, Bungalows,
and Missouri German Vernacular. The district is part of the historic Munichburg neighborhood,
an ethnic German enclave. It was settled in the 1850s.
Moreau Drive Historic District
The Moreau Drive Historic District was listed in the National Register in 2013. The district
contained, at the time of the nomination, 252 contributing buildings and contributing sites. There
were 55 non-contributing buildings and one non-contributing object. The district is listed under
Criterion A, Community Development and Criterion C, Architecture, with a period of
significance from c. 1847-1950. The subdivision was designed by Kansas City’s Hare & Hare
and developed by George Wagner. While it is a streetcar suburb the layout is Olmstedian with
winding streets and an appreciation for the natural topography. Hare & Hare is also associated
with Kansas City’s J.C. Nichols Country Club district, a nationally recognized subdivision.
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The subdivision continued to be developed through the 1920s, although the expansion was
hindered by McClung Park in 1915. By this time, it was one of the most fashionable addresses in
Jefferson City. In 1933, the Winnie Davis Chapter of the United Daughters of the Confederacy
placed a monument to Confederate General Sterling Price at the corner of Hough and Moreau
Park Drives. Because the monument was moved in 1955 it was deemed non-contributing. The
granite marker has since been returned to the United Daughters of the Confederacy.
The property types are predominately residences from the first half of the twentieth-century.
Frank Miller Green Berry Historic District
This district consists of three Frank Miller designed houses and eleven secondary structures and
landscape features dating between 1908 and 1910. The houses are Craftsman with Colonial
Revival details. The district is listed under Criterion C, architecture. Miller also designed the
Cole County Courthouse, St. Mary’s Hospital, and the Central Bank Building.109
Lincoln University Hilltop Campus Historic District
The Lincoln University Hilltop Campus Historic District was listed in 1980. There have been
two boundary increases since the initial nomination.
Hobo Hill Historic District
The Hobo Hill Historic District was listed in 2012 under Criterion C, Architecture. The district
consists of seven contributing and two non-contributing buildings. The period of significance is
c. 1908-1916. The district was developed beginning in 1906 and, while near the streetcar line, is
actually an early automobile suburb. Topography and Wears Creek prevent access to the line.
The predominant house styles are American Foursquares, Colonial Revival, Bungalow, Folk
Victorian, and Tudor Revival.
The Capitol Avenue Historic District
The Capitol City Historic District was listed in 2005. The nomination lists 107 contributing
buildings and 12 non-contributing. Nine of the previous contributing properties were previously
listed in the National Register. Since the 2005 listing the district has fallen into disrepair. One
property owner controls a significant portion and maintenance has not been a priority. A tornado
in 2019 also caused significant damage, resulting in the loss of at least one historic home. A
number of Modernist buildings were not included in the initial nomination that are at or
approaching the 50-year National Register mark. These buildings are also an important
component of Jefferson City’s community development.
Missouri State Capitol Historic District
Properties associated with Historic Munichberg.
109 Michael Shine “Green Berry Road Considered for Historic District,”
https://www.newstribune.com/news/2022/jan/11/green-berry-drive-considered-for-historic-district/, accessed April
25, 2022.
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These National Register listed properties are associated with German immigrants and their
architectural style, Missouri German Vernacular. This is characterized in this property by
subdued Italianate elements. There are no window hoods
Lewis Bolton House
Lewis Bolton House is located at 309 West Dunklin Street. The Second Empire house was built
by an ethnic German local shoe manufacturer that did not use prison labor. The house significant
under Criterion A in the area of Ethnic Heritage/European and Criterion C, Architecture. The
house was later converted to a duplex.
The Gertrude and Nelson Burch House
The Gertrude and Nelson Burch House is located in the Munichberg neighborhood at 115 West
Atchison Street. The house is Italianate in style with Missouri German vernacular characteristics.
The was constructed in 1868 and is one of the oldest houses in Jefferson City.
The Mary H. and Oscar G. Burch House
The Burch House is associated with the Historic Munichberg neighborhood. The house is listed
under Criterion A, Ethnic Heritage-European and Criterion C, Architecture. The house, located
at 924 Jefferson Street was listed in the National Register in 1869. The house is Italianate in
style with Missouri German Vernacular elements. The house was constructed in 1869. The
house’s location is on top of a hill and is good example of placement being dictated by the
topography, the top of the hill being fairly flat. The house was constructed in 1865,110
Philip Hess House
The Philip Hess House is located at 714 Jefferson Street. The house is listed under Criterion A,
Ethnic History-European and Criterion C, Architecture. The house was listed in 2002.
Cole County Courthouse and Jail – Sheriff’s House
The Cole County Courthouse is located at the east corner of Monroe and East High Streets. It
was listed in the National Register in 1973. It is Romanesque Revival, a common courthouse
style between 1888 and 1908. The building was constructed in 1896-1897 and reconstructed after
a 1918 fire.111 The building’s interior has been altered to increase the amount of office space
since its listing.
East End Drugs
The East End Drugs building was listed in the National Register in 2003. The c. 1896-1898 two
part commercial building has a drug store on the first floor and residences above on the second
floor. The building was nominated under Criterion A, Commerce as a good example of a
neighborhood drug store of the period from 1905 to the 1950s. 112
110 Hess House National Register nomination, Jane Rodes Beetem, Section 8, p. 5.
111 Cole County Courthouse National Register nomination
112 East End Drugs National Register nomination , Jane Rodes Beetem, 2003
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H. E. Gensky Grocery Store
The H. E. Gensky Grocery was listed in the National Register under Criterion A, Commerce and
Social History. It is also listed under architecture. The building was originally a neighborhood
grocery store and is a good example of a early 20th century of this type with living quarters
above. (See East End Drugs).113
In 1951, the Capitol City Lodge No. 9 F & A. M. Prince Hall Masons purchased the building.
The lodge started in 1905 in Jefferson City. It is a example of a parallel institution made when
segregated Mason lodges were unavailable to African Americans.
Claud D. Grove and Bernice Sinclair Grove
The Claud D. Grove and Bernice Sinclair Grove House is located at 505 East State Street. The
property was listed in 2000 under Criterion C, Architecture. The period of significance is c.
1912.114 The date corresponds to the construction date. The house is listed in the National
Register for being an example of the Colonial Revival style with an emphasis on the Georgian
Revival subtype.115 The house type is an American Foursquare.
Herman Haar House
The Herman Haar House located at 110 Bolivar Street was listed in 1996. It is listed under
Criterion A, Architecture. The house is significant as a surviving example of an antebellum
Missouri German Vernacular home with a Klassisismus details, a German variant of Neo-
Classicism.116
International Shoe – East End Factory
The International Shoe Factory located at 1101 East Capitol Avenue is listed under Criterion A.
It was listed in 2020. The factory was constructed in 1905. The factory is a result of Jefferson
City shoe manufacturers moving away from prison contracts. The Commerce Club, now the
Chamber of Commerce and the city sold lots to raise money to build the factory in order to keep
the jobs in Jefferson City.117
Ivy Terrace
Ivy Terrace is located at 500 East Capitol Avenue and is nominated for being one of the “most
intact and representative Queen Anne style” home.118 The house is listed under Criterion C,
Architecture. Charles Opel, a Jefferson City architect designed the home in 1893. The house is
113 H. E. Gensky National Register nomination,
114 Grove House National Register nomination, Jane Rodes Beetem, 2000, 3.
115 Grove House, Section 8, page 16.
116 Haar House, National Register nomination, Debbie Sheals, Section 8, p. 6.
117 International Shoe Factory National Register nomination, Jane Rodes Beetem, 2002, Section 8, p. 14.
118 Ivy Terrace National Register nomination, Stacy Stone, 1990, p, 2
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notable for its asymmetrical façade, hipped roof with intersecting gables and a wrap-around
119porch.120
J. B Bruns Shoe Factory
The J. B Bruns Shoe Factory located at 627 West McCarty Street. The factory was listed in the
National Register in 2020 under Criterion A, Industry – manufacturing facilities. The factory is
associated with the movement of shoe manufacturing outside of the Missouri State Penitentiary.
Like the International Shoe building it was subsidized by the City and the Commerce Club to
retain the shoe industry in Jefferson City/121
Jefferson City Community Center
The Jefferson City Community Center is located at 608 Dunklin Street. It was listed in 1992. The
building is listed under Criterion A, Ethnic Heritage – Black and Social History. The building
was built in 1942, It was designed by Rolland Cooper and built by Duke Diggs. Both were
prominent Black community members. The community center was a site of urban renewal and
civil rights meetings.122 The Center also served as a USO for African American soldiers in
World War II.
Jefferson City National Cemetery
The Jefferson City National Cemetery is located at 1024 East McCarty Street. The cemetery was
listed in 1998 under Criterion A because of its association with the Civil War and Criterion C
because the lodge represents a design by Quartermaster General Montgomery Meigs.123
The park’s proposed expansion in 2017 to East Miller Park was not supported by the Department
of Veteran’s Affairs.124
Kaullen Mercantile Company
The Kaullen Mercantile Company is located at 900 and 902 East High Street. The building was
listed in 2002. The building is a two part commercial block, a two-story building with a store on
the first floor and a residence above. The building is significant under Criterion A, Commerce
and Criterion C, Architecture.125 The Criterion C designation is for its Missouri German design
and craftsmanship. The building was a full service store from 1896 to 1942. Residential
movement forced stores to follow their customers to the suburbs.126
119 Jefferson City Community Center National Register nomination, Susan K. Appel Ph.D. 1992,
120 Ivy Terrace National Register nomination, Stacy Stone, 1990, 6.
121 J. B. Bruns Shoe Factory National Register Nomination, Jane Beetem, 2020, Section 8, p. 19.
122 Jefferson City Community Center National Register nomination, Susan K. Appel Ph.D. 1992, Section 8, p. 10.
123123 Jefferson City National Cemetery National Register nomination, Therese Sammartino, Dept. of Veteran’s
Affairs. Section 8, p. 7
124 Joe Gamm, “Outlook is grim for national cemetery expansion”
https://www.newstribune.com/news/2022/mar/13/outlook-is-grim-for-national-cemetery-expansion/ Accessed April
15, 2022.
125 Kaullen Mercantile National Register nomination, Juanita Donehue,
126 Kaullen Mercantile, Section 8, p. 10
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Lansdown-Higgins House
The Lansdown-Higgins House is located at 5240 Tanner Bridge Road is significant under
Criterion C, Architecture. The house was constructed between 1837 and 1842 as log dog trot
cabin. The cabin was converted to a Greek Revival I-House by 1854.127 It was listed in c. 1999.
Lincoln University Hilltop Campus
The Lincoln University Hilltop Campus is located at 820 Chestnut Street and was listed in 1982.
The buildings are largely from the 1930s and are Georgian in style. The curriculum expanded in
the 1930s as a result of preserving segregation in higher education and preserving segregation at
the University of Missouri.128 The boundary was increased in 2002.
Lohman’s Landing Building
Lohman’s Landing is located near the Missouri River at the west corner of Jefferson and Water
Streets. The building was listed in the National Register in 1969. The building is believed to
have been constructed in 1834 by Richard Shackleford. Charles Lohman purchased building in
1852. The nomination form stated that the building is thought to be one of the surviving
examples of a building associated with Jefferson City’s dependence on river traffic.129
Missouri Governor’s Mansion
The Missouri Governor’s Mansion located at 100 Madison Street was listed in the National
Register in 1969 and updated in 1974.130 The Governor’s House is a three-story Victorian
residence designed by St. Louis architect George I. Barnett in 1871.
Missouri State Penitentiary Warden’s House
Missouri State Penitentiary Warden’s House was
Architectural Surveys
Architectural surveys are undertaken to identify historic resources and evaluate these resources
for inclusion in the National Register of Historic Places
Forest Park Survey
This twelve house survey was a training exercise that inventoried mid-century resources.
127 Lansdown-Higgins House National Register nomination, Rhonda Chalfant and Roger Maserang, Section 8, p. 6
128 Lincoln University Hilltop Campus National Register nomination, James Denny, Section 8, p. 1
129 Lohman’s Landing National Register nomination, M. Patricia Holmes, Section 8, p. 6
130 Missouri Governors Mansion National Register nomination, M. Patricia Holmes,
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National Register Evaluation
The quality of significance in American history, architecture, archaeology, engineering, and
culture is present in districts, sites, buildings, structures, and objects that possess integrity of
location, design, setting, materials, workmanship, feeling, and association, and:
a. That are associated with events that have made a significant contribution to the broad
patterns of our history; or
b. That are associated with the lives of significant persons in or past; or
c. That embody the distinctive characteristics of a type, period, or method of construction,
or that represent the work of a master, or that possess high artistic values, or that
represent a significant and distinguishable entity whose components may lack individual
distinction; or
d. That have yielded or may be likely to yield, information important in history or
prehistory.
Criteria Considerations
Ordinarily cemeteries, birthplaces, graves of historical figures, properties owned by religious
institutions or used for religious purposes, structures that have been moved from their original
locations, reconstructed historic buildings, properties primarily commemorative in nature, and
properties that have achieved significance within the past 50 years shall not be considered
eligible for the National Register. However, such properties will qualify if they are integral parts
of districts that do meet the criteria or if they fall within the following categories:
a. A religious property deriving primary significance from architectural or artistic
distinction or historical importance; or
b. A building or structure removed from its original location but which is primarily
significant for architectural value, or which is the surviving structure most importantly
associated with a historic person or event; or
c. A birthplace or grave of a historical figure of outstanding importance if there is no
appropriate site or building associated with his or her productive life; or
d. A cemetery that derives its primary importance from graves of persons of transcendent
importance, from age, from distinctive design features, or from association with historic
events; or
e. A reconstructed building when accurately executed in a suitable environment and
presented in a dignified manner as part of a restoration master plan, and when no other
building or structure with the same association has survived; or
f. A property primarily commemorative in intent if design, age, tradition, or symbolic value
has invested it with its own exceptional significance; or
g. A property achieving significance within the past 50 years if it is of exceptional
importance.
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Integrity
Properties must also retain integrity.
Integrity is the ability of a property to convey its significance. To be listed in the National
Register of Historic Places, a property must not only be shown to be significant under the
National Register criteria, but it also must have integrity. The evaluation of integrity is
sometimes a subjective judgment, but it must always be grounded in an understanding of a
property's physical features and how they relate to its significance.
Historic properties either retain integrity (this is, convey their significance) or they do not.
Within the concept of integrity, the National Register criteria recognizes seven aspects or
qualities that, in various combinations, define integrity.
To retain historic integrity a property will always possess several, and usually most, of the
aspects. The retention of specific aspects of integrity is paramount for a property to convey its
significance. Determining which of these aspects are most important to a particular property
requires knowing why, where, and when the property is significant. The following sections
define the seven aspects and explain how they combine to produce integrity.
Seven Aspects of Integrity
• Location
• Design
• Setting
• Materials
• Workmanship
• Feeling
• Association
Integrity Considerations: Institutional and Government, Churches
In order to be eligible for listing in the local, state, or national historical registers, an institutional
property must retain sufficient integrity to convey its significance. An institutional property that
has sufficient integrity will retain a majority of the character-defining features.
• A church significant under NRHP Criterion A related to broad currents of history
retain integrity of location, feeling, and association. While some alterations may be acceptable
such as the replacement of windows or additions, the property must retain its essential features,
proportions, and overall form. Additions are acceptable if they fall into the period of
significance.
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• A church significant under NRHP Criterion B should retain integrity of location, design,
feeling, and association as the physical fabric that conveys the connection to the individual is
crucial to the property’s significance.
• A church significant under NRHP Criterion C should retain integrity of design, materials,
workmanship, and feeling as the physical aspects of integrity are necessary for the property to
convey its significance. Additions are acceptable if they are in the period of significance.
Integrity Considerations: Commercial Retail
A commercial property from the must retain sufficient integrity to convey its significance to be
eligible for listing in the local, state, or national register. A commercial property from that has
sufficient integrity will retain a majority of the character defining features listed a front façade
with the original fenestration pattern. A storefront with architectural features that relate to the
period of significance.
• A commercial retail property significant under NRHP Criterion A should retain the original
fenestration pattern and store front features. Rear additions are acceptable if not visible from the
right-of-way
•Criterion B should retain integrity of location, design, feeling, and association as the
physical fabric that conveys the connection to the individual is crucial to the property’s
significance.
• Criterion C should retain integrity of design, materials, workmanship, and feeling as the
physical aspects of integrity are necessary for the property to convey its significance. While
some alterations may be acceptable such as the replacement of windows or a small addition, the
property must retain its essential features and overall form.
Integrity Considerations: Apartment Buildings
In order to be eligible for listing in the local, state, or national historical registers, an apartment
building must retain sufficient integrity to convey its significance. An apartment building from
that has sufficient integrity will retain a majority of the character-defining features.
• A property significant under NRHP Criterion A, broad currents of history should
retain integrity of location, setting, feeling, and association.
• A residence significant under NRHP Criterion B, should retain integrity of location, design,
feeling, and association as the physical fabric that conveys the connection to the individual is
crucial to the property’s significance.
• A residence significant under NRHP Criterion C, Architecture, should retain integrity of
design, materials, workmanship, and feeling as these aspects of integrity are necessary for the
property to convey its significance. Some alterations may be acceptable (replacement of
windows, small addition) as long as the property retains its essential features and overall form.
43
Owen & Eastlake Ltd City of Jefferson Historic Context
Bibliography
Journal Articles
Ellwood, Charles A. “The Missouri Prison Problem.” Journal of the American Institute of
Criminal Law and Criminology 7, no. 5 (January 1917): 649–53.
Green, Lorenzo. “Freedom Documents from Cole County, Missouri.” Negro History Bulletin 32,
no. 1 (1963): 11-13.
Kremer, Gary R., and Thomas E. Gage. “The Prison Against the Town.” Missouri Historical
Review 74, no. 4 (1980): 414–32.
Reynolds, Bruce. “Prison Labor, The Montserrat Experience.” Missouri Historical Review 77,
no. 1 (1982): 47–63.
Books
Earl Dawson to Logan Wilson, letter, included in Urban Renewal, Hearings Before the
Subcommittee on Housing of the Committee on Banking and Currency, House of
Representatives, Eighty-Eighth Congress, First Session, November 19, 20, and 21, 1963, Part 2.
Washington D.C.: U.S. Government Printing Office, 1963.
Kremer, Gary R. This Place of Promise: A Historian’s Perspective on 200 Years of Missouri
History. Columbia: University of Missouri, 2021.
Leubke, Frederick. Bonds of Loyalty: German-Americans and World War II. Dekalb: Northern
Illinois Press, 1974/
Phillips, Christopher. The Rivers Ran Backwards: The Civil War and the Remaking of the
American Middle Border. New York: Oxford University Press, 2016.
Weber, Mark Will. Applejack, Soldiers, Spirits and the Civil War. Washington D.C.: Regnery
History, 2017.
Reports
Army Corps of Engineers. Wears Creek Feasibility Report for Flood Control. Kansas City:
USACE, 1974.
Fishback, Price, Jonathan Rose, Ken Snowden, and Thomas Storrs. “New Evidence on Redlining
By Federal Housing Programs in the1930s.” Chicago: Federal Reserve of Chicago, 2022.
PGAV Planners East Capitol Avenue Redevelopment Area, Jefferson City, Qualifications for
Chapter 99 (LCRA) Designation, St. Louis: PGAV Planners, 2016
44
Owen & Eastlake Ltd City of Jefferson Historic Context
Theses and Dissertations
Jackson, Charles Wesley. “Urban Renewal and its Effects in Jefferson City, Missouri.” Master’s
Thesis, Kansas State University, 1965.
Malfatti-Rachell, Gabrielle “Desegregation and its Impact on Institutional Culture at a
Historically Black University” Dissertion University of Columbia, 2007
Newspapers
Chillecothe Constitution (Chillecothe, Missouri)
The Crisis (New York)
Democrat Argus
Engineering News
Houston Herald (Houston, Missouri)
Hunnewell Democrat
Jefferson City News-Tribune
Jefferson City Post Tribune
Kansas City Star
King City Democrat
Lincoln Clarion (Jefferson City, Missouri)
Mexico Missouri Messenger
Sedalia Weekly Bazoo (Sedalia, Missouri)
St. Louis Dispatch
St. Louis Globe
St. Louis Republic
St. Louis Star and Times
Name Address Occupation Association Demolition
45
Owen & Eastlake Ltd City of Jefferson Historic Context
Duke Diggs
residence
526 Lafayette
Street
Moving
company
Fought 1903 and
1907 segregation
legislation.
Whitten
Expressway
Tweedie Shoe 108 Jefferson Shoe factory Demolished in
2015
Lorenzo Green
Home
405 Lafayette St. Professor Demolished in
2015
Quinn Chapel
AME 1955
529 Lafayette St. Moved in 1954 Demolished for
highway
Quinn Chapel
AME 1852
Madison &
Miller
Civil rights Demolished
Lorenzo Green
residence, 1942
504 Lafayette St Demolished for
highway
Diggs
Community
Center
608 Dunklin Civil Rights