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Item 5A - 911 Pine StAgenda Item #5A Page 1 M E M O R A N D U M July 5, 2017 TO: Landmarks Board FROM: Lesli Ellis, Comprehensive Planning Manager Debra Kalish, Senior Assistant City Attorney James Hewat, Senior Historic Preservation Planner Marcy Cameron, Historic Preservation Planner Anthony Wiese, Historic Preservation Intern SUBJECT: Public hearing and consideration of a Landmark Alteration Certificate application to demolish a non-contributing 480 sq. ft. two-car garage and, in its place, construct a new two-car, 640 sq. ft. accessory building at the northwest corner of the property at 911 Pine St. in the Mapleton Hill Historic District, pursuant to Section 9-11-18 of the Boulder Revised Code 1981 (HIS2017-00180). STATISTICS: 1. Site: 911 Pine St. 2. Date of Construction: 1979 (Garage) 3. Zoning: RL-1 (Residential Low-1) 4. Owner: Corey and Karl Strohmeyer 5. Applicant: Joel Smiley 6. Site Area: 10,504 sq. ft. 7. Existing Garage: 480 sq. ft. 8. Proposed Garage: 640 sq. ft. STAFF RECOMMENDATION Staff considers the demolition of the non-contributing garage and construction of a new garage will be generally consistent with the standards for issuance of a Landmark Alteration Certificate, as specified in Section 9-11-18, B.R.C. 1981, the General Design Guidelines, and the Mapleton Hill Design Guidelines, provided the conditions below are met. Staff recommends that the Landmarks Board adopt the following motion: I move that the Landmarks Board approve a Landmark Alteration Certificate to demolish the non-contributing garage and in its place, construct a new garage at 911 Pine St., in that, provided the conditions below are met, the proposed demolition and new construction will meet Agenda Item #5A Page 2 the requirements of Section 9-11-18, B.R.C. 1981, and adopt the staff memorandum dated July 5, 2017, as findings of the board. CONDITIONS OF APPROVAL 1. The applicant shall be responsible for constructing the house in compliance with the approved plans dated June 7, 2017, except as modified by these conditions of approval. 2. Prior to submitting a building permit application and final issuance of the Landmark Alteration Certificate, the applicant shall submit to the Landmarks design review committee (Ldrc), for its final review and approval: a. Revised plans showing a reduction in the mass and scale of the proposed new garage to reduce the width to be more in scale with the contributing accessory building, to provide more permeability into the historic property, and to prevent the alleyscape from becoming tunnel-like. b. Final architectural plans that include details for the new building, including wall and roof materials, door and window details, and hardscaping on the property to ensure that the final design of the building is consistent with the General Design Guidelines, the Mapleton Historic District Design Guideline, and the intent of this approval. SUMMARY  On June 7, 2017, the Planning, Housing and Sustainability (PH&S) Department received a Landmark Alteration Certificate application for the demolition of an existing non-contributing two-car garage and in its place, the construction of a new 640 sq. ft. accessory building at 911 Pine St. in the Mapleton Hill Historic District.  Because the application calls for demolition of a building and new, free-standing construction over 340 sq. ft. within a historic district, review by the full Landmarks Board in a quasi-judicial hearing is required pursuant to Section 9-11-14(b), B.R.C. 1981.  In 1979, a permit was issued for the construction of the existing garage on the property (see Figure 5.). The Historic Building Inventory Form notes that the building (“Building B”) is non-contributing due to its age of less than 50 years old. See Attachment A: Historic Building Inventory Form.  Given its 1979 date of construction (well outside the defined 1865-1946 period-of- significance for the Mapleton Hill Historic District), staff considers the garage to be non-contributing and finds that its demolition would not diminish the special historic character of the Mapleton Hill Historic District. Agenda Item #5A Page 3 PROPERTY DESCRIPTION Figure 1. Location Map, 911 Pine St. The property at 911 Pine St. is located on the north side of Pine St. between 9th and 10th streets. An alley runs along the north side of the property. The original two-story masonry house was constructed around 1883 and features a steeply pitched roof with overhanging eaves. The upper gable has paired, tall, narrow, double-hung windows with paired hoodmolds. An intersecting wing is located on the east elevation and is clad in wide horizontal siding. In December 2016, the Landmarks Design Review Committee (LDRC) reviewed and approved a Landmark Alteration Certficate for the rehabilitation of the existing house, including reconstruction of the front porch based on historic photographs, and demolition of a non-historic addition and the construction of a new addition (HIS2016- 00364). Agenda Item #5A Page 4 Figure 2. 911 Pine St., Tax Assessor Photograph, c. 1929. PROPERTY HISTORY The Smith Residence was built around 1870, making it one of the earliest remaining houses in Boulder. Sanford Gladden’s 1883 directory notes that this was the residence of C. Edgar Smith before 1883. Smith was editor of the Boulder Sentinel and an early mine operator. In 1883 Edward, Louis, and Nannette Lowman lived there. Edward and Louis Lowman were the proprietors of Lowman & Son Excelsior Clothing House at 1215 Pearl St. In 1896, the house was occupied by J. Bergheim, of J. Bergheim & Company Boston Clothing House Wholesale and Retail, located at 1210 Pearl St. From 1901 until 1939, the house was rented out to a variety of tenants including miners, students, school instructors and traveling salesmen. The building was listed as vacant at least twice during this time. Guy and Ellen Robinson owned the property from 1939 until 1954. Guy Robinson was an interior painting and paperhanging contractor. By 1954, the property was owned by Ruth Miller Cordry of Cordry Real Estate, Loans & Insurance at 1470 28th Street. Jon Bond purchased the property in 1978 and owned it until 2016, when it passed to the current owners. Agenda Item #5A Page 5 Figure 3. 911 Pine St., Main House, 2016. Figure 4. 911 Pine St., Accessory Building, 2016. Not proposed for demolition. Two accessory buildings are located at the rear of the lot. A flat-roof frame accessory building is located at the northeast corner of the lot. The building was constructed pre- 1931 and is considered contributing to the Mapleton Hill Historic District. No changes are proposed to this accessory building. Agenda Item #5A Page 6 Figure 5. 911 Pine St. Garage, North Elevation, 2016 Permit records indicate the two-car, one-story garage, at the northwest corner of the lot was constructed in 1979. The building features a front gable and a wide overhead garage door. Very simple in design, the building is clad in painted, wide horizontal siding and its most notable feature is its large wood roof deck. Figure 6. 911 Pine St. Garage, East Elevation, 2016. The east face of the garage features a slider window, a single light, paneled pedestrian door and a wooden staircase that provides access to the roof-top deck. Agenda Item #5A Page 7 Figure 7. 911 Pine St. Garage, South Elevation, 2016. The south face of the garage contains a single sliding window. The foundation wall at the south of the building is supported by a dry-laid stone retaining wall. Figure 8. 911 Pine St Garage, West Elevation, 2016. The west elevation has no windows, doors or other features beyond the rooftop deck. HISTORIC SIGNIFICANCE OF GARAGE PROPOSED FOR DEMOLITION The General Design Guidelines define contributing buildings as “those buildings built during the district’s period of significance that exist in comparatively original condition, Agenda Item #5A Page 8 or that have been appropriately restored, and clearly contribute to the historic significance of the district. Such buildings may have compatible additions.” Non-contributing buildings are defined as “those buildings built during the district’s period of significance that have been altered to such an extent that historic information is not interpretable and restoration is not possible. This includes buildings erected outside the period of significance that are not individually significant.” Because of the documented 1979 date of construction (well out of the defined 1865-1946 period of significance for the Mapleton Hill Historic District), staff considers the garage at 911 Pine St. does not meet the definition for a contributing building and that it should be considered non-contributing to the historic character of the Mapleton Hill Historic District. PROPOSED NEW CONSTRUCTION The applicant proposes to demolish the existing 480 sq. ft. garage and construct a new 640 sq. ft. accessory building to house two cars, upstairs storage and a basement workshop. The provided site plan indicates that the proposed construction will be rectilinear in plan, measuring 23’ x 22’ with a footprint of 506 sq. ft. The additional floor area of 134 sq. ft. is shown to be in the lower level. The Form and Bulk Standards in Section 9-7-8, Accessory Buildings in Residential Zones, B.R.C., 1981, limits the cumulative coverage for accessory buildings in the rear yard setback to 500 sq. ft. However, for designated properties, one new accessory building with a building coverage of up to 500 sq. ft. is allowed in the rear yard setback, in addition to the existing accessory buildings. This allowance promotes the preservation of historic accessory buildings by exempting their footprint from the building coverage limitations in the rear yard setback. As shown, approximately 300 sq. ft. of the proposed 506 sq. ft. garage will be in the rear setback, in addition to the existing 228 sq. ft. historic accessory building. The total building coverage in the rear setback is proposed to be 528 sq. ft. , 28 sq. ft. more than the allowed maximum. Agenda Item #5A Page 9 Figure 9. Proposed Site Plan (not to Scale) The new garage is shown to be a flat roof, rectangular building with two levels. The upper level is at the grade of the alley, while the lower is a walk-in basement, cut into the slope of the site, with its exposed side on the south. Figure 10. Existing and proposed north elevations The only opening on the proposed north elevation are two top-hinged garage doors. Figure 11. Existing (left) and proposed (right) south elevations Agenda Item #5A Page 10 Elevations show the south (garden side face) of the building to feature flanking double doors on the lower level, and two, two-over-two double hung windows above. Figure 12. Existing (left) and proposed (right) east elevations The east elevation features an entry door near the north side, with two single light, fixed picture windows to the south. Figure 13. Existing (left) and proposed (right) west elevations There are no openings planned on the west face of the proposed building. CRITERIA FOR THE BOARD’S DECISION Subsection 9-11-18(b) and (c), B.R.C. 1981, sets forth the standards the Landmarks Board must apply when reviewing a request for a Landmark Alteration Certificate. (b) Neither the Landmarks Board nor the City Council shall approve a Landmark Alteration Certificate unless it meets the following standards: Agenda Item #5A Page 11 ANALYSIS 1. Does the proposed application preserve, enhance, or restore, and not damage or destroy the exterior architectural features of the landmark or the subject property within a historic district? Staff considers the existing garage to be non-contributing to the Mapleton Hill Historic District due to its 1979 date of construction, well outside of the 1865- 1946 period of significance for the Mapleton Hill Historic District, and lack of individual significance. The second accessory building, constructed pre-1931, does meet the definition of contributing and will be preserved. Staff finds that, provided the listed conditions are met, the demolition of the existing garage and construction of a new accessory building will not damage or destroy contributing properties in the alley scape and will be generally compatible and consistent with the General Design Guidelines and the Mapleton Hill Historic District Guidelines), provided the mass and scale of the new garage is reduced (see Design Guidelines Analysis section). 2. Does the proposed application adversely affect the special character or special historic, architectural, or aesthetic interest or value of the district? Staff considers that the demolition of the non-contributing garage will not adversely affect the special historic character of the Mapleton Hill Historic District, but that per the stated conditions the mass and scale of the proposed garage should be reduced (see Design Guidelines Analysis section). 3. Is the architectural style, arrangement, texture, color, arrangement of color, and materials used on existing and proposed structures compatible with the character of the historic district? Staff considers that provided the stated conditions are met, the proposed materials proposed for the garage will be consistent with the character of the contributing buildings on the property and the historic district as a whole. 4. Does the proposal to demolish the building within the Mapleton Hill Historic District and the proposed new construction to replace the proposed demolished building meet the requirements of paragraphs 9-11-18(b)(2) and (3) of this section? Staff finds that, provided the listed conditions are met, the demolition of the existing non-contributing garage and construction of a new accessory building Agenda Item #5A Page 12 will not damage or destroy the character of contributing properties in the alley scape and will be generally compatible and consistent with the General Design Guidelines and the Mapleton Hill Historic District Guidelines, provided the mass and scale of the new garage is reduced (see Design Guidelines Analysis section). DESIGN GUIDELINES While Section 9-11-18, B.R.C. 1981, sets forth the standards the Landmarks Board must apply when reviewing a request for a Landmark Alteration Certificate, the Landmarks Board has adopted the General Design Guidelines and Mapleton Hill Historic District Design Guidelines to help interpret the ordinance for properties in this district. The following is an analysis of the submitted proposal with respect to relevant guidelines. It is important to emphasize that design guidelines are intended to be used as an aid to appropriate exterior modifications and design, and not as a checklist of items for compliance. The following is an analysis of the proposal’s compliance with the applicable design guidelines: GENERAL DESIGN GUIDELINES FOR GARAGES & OTHER ACCESSORY BUILDINGS 2.3 Site Design: Alleys The alleys in historic districts were traditionally used for secondary access to the houses, for deliveries, and as storage places for horses and buggies, and later, for cars. A view of the backyards from the alleys was maintained. While today’s alleys have evolved into use as pedestrian paths for jogging, bicycling and dog walking, they still contribute to the historic character of the neighborhood. They are typically minimally paved. Along the alleys are historic accessory buildings of various shapes and sizes including barns, chicken coops, sheds and small garages. This variety contributes to the general feeling of human scale in the alleys. Guidelines Analysis Conforms? .1 Retain and preserve the variety and character found in the existing historic accessory buildings along the alleys. The proposed 1979 garage considered for demolition is not part of the pre-1946 character of the alleys in Mapleton Hill. However, the adjacent pre-1931 accessory building does contribute to the historic character of the district and is to be retained, thus preserving the character of the alley. The proposed new garage is shown to feature a flat roof clad in horizontal wood siding and wood Yes .2 Buildings that were constructed after the period of significance but are still more than 50 years old and contribute to the variety and character of the alleyway should be retained. Yes .3 The use of historically proportioned materials for building new accessory buildings contributes to the human scale of the alleys. For example, narrower lap siding and smaller brick are appropriate. Yes Agenda Item #5A Page 13 .4 Buildings that were constructed after the period of significance but are still more than 50 years old and contribute to the variety and character of the alleyway should be retained. shingles similar to finish and materials of the original house and adjacent accessory building. Yes .5 Maintain adequate spacing between accessory building so that the view of the main house is not obscured, and the alley does not evolve into a tunnel-like passage. The proposed building spans 23’ wide across the 50’ wide lot while the existing building is 20’ wide. The existing distance between the garage and historic accessory building is 9’ while the proposed design shows this distance reduced to 6’. Consider reducing width and mass of building to provide visual permeability and avoid potential tunnel-like effect on alley. Resolve at Ldrc. Maybe 7.0 Garages & Other Accessory Structures Accessory buildings include barns, sheds, garages and outbuildings. Originally accessory structures were used for storage of equipment, animals, or carriages. Generally, these structures have been adapted for the storage of cars. In most cases, accessory building were located to the rear of the lot and accessed by alleys. They were subordinate in size and detailing to the primary house. Over time they have emerged as important elements of many lots and alleys in the district. Efforts should be made to protect the eclectic character of alleys. Both additions to existing accessory buildings and new accessory building will be evaluated in terms of how they affect the historic character of the individual site and the district as a whole. In the past, larger accessory structures have been allowed than may be appropriate today. 7.1 Existing Historic Accessory Buildings A primary concern of the Landmarks Board in reviewing proposed changes in historic districts is the protection of existing historic accessory structures and the character of the site and district. GUIDELINES: ANALYSIS: CONFORMS .1 Retain and preserve garages and accessory buildings that contribute to the overall character of the site or district. Existing historic accessory building to be preserved. See guideline 2.3.1 to 2.3.4 above. Yes .2 Retain and preserve the character-defining materials, features, and architectural details of historic garages and accessory buildings, including roofs, exterior materials, windows Yes Agenda Item #5A Page 14 and doors. .3 The use of historically proportioned materials for building new accessory buildings contributes to the human scale of the alleys. For example, narrower lap siding and smaller brick are appropriate. Proposed materials will contribute to the human scale of the alley. See guideline 2.3.3 above. Yes .4 Buildings that were constructed after the period of significance but are still more than 50 years old and contribute to the variety and character of the alleyway should be retained. Staff considers the 1979 garage to be non-contributing. See guideline 2.3.1 to 2.3.4 above. Yes .5 Maintain adequate spacing between accessory building so that the view of the main house is not obscured, and the alley does not evolve into a tunnel-like passage. The proposed garage is 3’ wider than the existing garage. See guideline 2.3.5 above. Maybe 7.2 New Accessory Buildings New accessory buildings should follow the character and pattern of historic accessory buildings. While they should take design cues from the primary buildings, they must be subordinate in size, massing, and detailing. Alley buildings should maintain a scale that is pleasant to walk along and comfortable for pedestrians. Location and Orientation .1 It is inappropriate to introduce a new garage or accessory building if doing so will detract from the overall historic character of the principal building, and the site, or if it will require removal of a significant historic building element or site feature, such as a mature tree. Construction will not require the removal of a significant historic site feature. The alleys in the Mapleton Hill Historic District are character defining features of the district. Staff considers that at 640 sq. ft., the mass, scale and height of the proposed garage will detract from the historic character of the 900 block alley between Pine Street and Mapleton Avenue. Staff considers that the new construction should be reduced in width to maintain open character of this alley and permeability into the property. Resolve at Ldrc. No .2 New garages and accessory buildings should generally be located at the rear of the lot, respecting the traditional relationship of such buildings to the primary structure and the site. The new garage is to be located at rear of the lot. Yes .3 Maintain adequate spacing between accessory buildings so alleys do not evolve into tunnel- like passageways. Staff considers the alley width of the proposed garage should be reduced to be more compatible with the historic accessory building, to provide more permeability into the property, and to avoid a tunnel-like effect. Resolve at Maybe Agenda Item #5A Page 15 Ldrc .4 Preserve a backyard area between the house and the accessory buildings, maintaining the general proportion of built mass to open space found within the area. Staff considers the general proportion of built mass to open space found in the area will be maintained with the proposal. Yes Mass and Scale .5 New accessory buildings should take design cues from the primary building on the property, but be subordinate to it in terms of size and massing. Staff considers that the new construction will be generally subordinate to the main house but should be reduced in scale to be more compatible with the 224 sq. ft. contributing garage. See guideline 7.2.1 above. Resolve at Ldrc. No .6 New garages for single-family residences should generally be one story tall and shelter no more than two cars. In some cases, a two- car garage may be inappropriate. See guideline 7.2.5 above. No .7 Roof form and pitch should be complementary to the primary structure. Roof form is flat and simpler than and complementary to that of main house and contributing accessory building. Yes Materials and Detailing .8 Accessory structures should be simpler in design and detail than the primary building. Proposed garage is smaller and simpler in design than the main house, but significantly larger and taller than the contributing accessory building. See Guideline 7.2.3 above. No .9 Materials for new garages and accessory structures should be compatible with those found on the primary structure and in the district. Vinyl siding and prefabricated structures are inappropriate. See guideline 2.3.3 above. Yes .10 Windows, like all elements of accessory structures, should be simpler in detailing and smaller in scale than similar elements on primary structures. Windows are shown to be simple in design. Yes .12 Garage doors should be consistent with the historic scale and materials of traditional accessory structures. Wood is the most appropriate material and two smaller doors may be more appropriate than one large door. Simplify garage doors and consider two separate doors. Resolve at Ldrc. Maybe Agenda Item #5A Page 16 Mapleton Hill Historic District Guidelines The following section is an analysis of the proposal relative to Section VI of the Mapleton Hill Historic District Design Guidelines. Only those guidelines that further the analysis of the proposed project are included and those that reflect what has been evaluated in the previous section are not repeated. D ALLEYS, EASEMENTS AND ACCESSWAYS Alleys are a strong visual element of the district, and have much variety of scale and detail. They play an important part in the development patterns that give the more visible areas their character. Alleys provide access to rear parking and garages. They have a varied edge quality, with building both on the property lines and set back. The size and quality of these accessory building varies considerably. Careful consideration should be given to changes in traditional use. Guideline Analysis Confor ms? 1. The use of alleys to provide access to the rear of properties should be preserved Access to rear of property preserved. Yes 2. Efforts should be made to protect the variety of shape, size, and alignment of buildings along the alleys. Alleys should maintain a human scale and be sensitive to pedestrians. The garage proposed for demolition is significantly less than 50 years old and staff considers it non-contributing to the historic character and human scale of the alley. However, alley width of proposed building is shown to increase by 3’. Consider reducing width of building on alley to create more permeability. Resolve at Ldrc. No 3. Building such as garages, sheds, etc. which contribute to this variety should be retained in their original form whenever possible. The 1979 garage proposed for demolition does not contribute to the historic character of the alley. The existing accessory building is to be retained in its historic form. Yes 5. Efforts should be made to maintain character of the alleys in the district Staff considers that removal of the 1979 garage will not adversely affect the historic character of the Mapleton Hill Historic District but that the mass and scale of the proposed new accessory building should be reduced to be more in scale with the contributing accessory building, to create more permeability into the property and avoid a tunnel like effect on the alley. Resolve at the Ldrc. Maybe Agenda Item #5A Page 17 Staff considers that due to its 1979 date of construction (well outside of the 1865-1946 period of significance for the Mapleton Hill Historic District), and because the building does not meet the definition of contributing as defined in the General Design Guidelines the existing garage should be considered non-contributing. Staff considers that the proposed demolition of the existing garage is consistent with the design guidelines for site design and accessory buildings. Staff recommends the Landmarks Board approve the Landmark Alteration Certificate request with the conditions outlined above to reduce the mass and scale of the building to make it more in scale with the historically contributing building, to maintain permeability into the historic property from the alley and ensure that the alley does not become more “tunnel-like’ in character. FINDINGS Subject to the conditions stated in the recommended motion, staff recommends that the Landmarks Board approve the application and adopt the following findings: This decision is consistent with the purposes and standards of the Historic Preservation Ordinance, in that: 1. The proposed demolition of the non-contributing garage will not adversely affect the special character or special historic, architectural, or aesthetic interest or value of the property or the historic district. § 9-11- 18(b)(2), B.R.C. 1981. 2. The proposed demolition will generally comply with Sections 2.3, Site Design, and 7.0, Garages and Other Accessory Buildings, of the General Design Guidelines; Section S., Alleys, Easements and Accessways, of the Mapleton Hill Historic District Guidelines; and Section 9-11-18(b)(3) of the Boulder Revised Code 1981. ATTACHMENTS A: Cultural Resource Re-evaluation Form: Accessory Building Survey B: Building Permit Record: Construction of Garage, 1979. C: Tax Assessor Card D: Photographs E: Demolition Plan F. New Construction Plans G. Renderings Agenda Item #5A Page 18 Attachment A: Cultural Resource Re-evaluation Form: Accessory Building Survey Agenda Item #5A Page 19 Agenda Item #5A Page 20 Agenda Item #5A Page 21 Accessory Building Survey Photograph, 2005. Agenda Item #5A Page 22 Attachment B: Building Permit Record: Construction of Garage, 1979. Agenda Item #5A Page 23 Agenda Item #5A Page 24 Attachment C: Tax Assessor’s Card Agenda Item #5A Page 25 Agenda Item #5A Page 26 Assessor’s Card Photo, C. 1929 Assessor’s Card Photo, C. 1961 Agenda Item #5A Page 27 Attachment D: Photographs 911 Pine St. Front (South) Façade, 2016. 911 Pine St, Garage Proposed for Demolition, Northwest Corner, 2017. Agenda Item #5A Page 28 911 Pine St., Accessory Buildings, South Elevations, 2017. 911 Pine St., Garage Proposed for Demolition, Southeast Corner, 2017. Agenda Item #5A Page 29 911 Pine St., Accessory Building to Remain, Northwest Corner, 2017. 911 Pine St., Accessory Building to Remain, South Elevation, 2017. Agenda Item #5A Page 30 Attachment E: Existing and Proposed Plans Agenda Item #5A Page 31 Agenda Item #5A Page 32 Attachment G: Renderings Agenda Item #5A Page 33