title
CONSIDERATION OF A CERTIFICATE OF APPROPRIATENESS FOR THE REHABILITATION OF A BUILDING IN THE MAGNOLIA HISTORIC DISTRICT LOCATED AT 220 E. WILLOW STREET (APPLICATION NO. P19-0154)
recommended action
RECOMMENDATION
Staff recommends that the Cultural Heritage Board recommend the Director issue a Certificate of Appropriateness based on the findings and subject to the conditions herein.
body
Summary
Property owner, Rukhsar Ahmad, submitted a Certificate of Appropriateness application in response to a Notice of Violation from Code Enforcement staff (Attachment A - Violations Issued). The notice identifies exterior alterations to an existing residence which exceeded the scope of an issued building permit. Noted alterations included changing the size and style of windows and closing off a door. The subject property, located at 220 East Willow Street and within the Magnolia Historic District, is a two-story Craftsman style home.
As outlined in the staff report below, the proposed alternations include: (a) replacement of all windows; (b) replacement of front door; (c) closing off a door at the porch; (d) repainting the entire house; and (e) re-roofing. Staff recommends that the Cultural Heritage Board (CHB) adopt a resolution recommending that the Community Development Director issue a Certificate of Appropriateness, based on the findings and conditions of approval herein.
DISCUSSION
Background
Magnolia Historic Preservation District
According to the Stockton Citywide Design Guidelines § 3.02.020(D), the Magnolia Historic District was established by City Council on July 30, 1984. The district includes a prevalence of residential structures representing notable architectural styles from the 1860’s through the 1930’s. The district is composed of 216 lots, of which 161 were deemed contributory to its character. At the time of formation, the district was considered eligible for listing on the National Register of Historic Places (Attachment B - Magnolia Historic District Summary).
220 E. Willow Street
The subject property is (Attachment C - Location Map and Aerial Photography) bounded:
• To the north by a fourplex, and single-family homes;
• To the south by single-family homes;
• To the east by single-family homes; and
• To the west by a fourplex and single-family homes.
The subject building was constructed in 1921 and appears to be of the Craftsman style popular between 1910-1925. The style was characterized by clapboard sidings, open porch with two columns (round shape), overhanging eaves, projecting brackets/beams, front door with sidelights, large front window in three parts, and door and windows outlined with wood molding (see before photos, Attachment D). Staff was unable to locate information documenting whether the home was considered a contributing member of the Historic Preservation District. However, due to the age of the home, it appears to be contributing as it aligns with the Magnolia Historic District’s period of significance (i.e., 1860’s to 1930’s).
Chronology of Project / City Actions to Date
The following table provides a chronology of the project and City actions prior to Cultural Heritage Board (CHB) review.
|
Date |
Status |
Responsible Party |
|
December 18, 2018 |
Property purchased by Rukhsar Ahmad |
Applicant |
|
January 15, 2019 |
Notice of Violation - Work without Permit (Attachment A - Violations Issued) |
Police Department - Neighborhood Services |
|
January 15, 2019 |
Building Permit Issued (window replacement like for like, front door replacement, re-roof, and re-painting) |
Building and Life Safety Division |
|
February 25, 2019 |
Notice of Violation - Work Performed Exceeds Permit Scope (Attachment A - Violations Issued) |
Police Department - Neighborhood Services |
|
March 4, 2019 |
Application for Certificate of Appropriateness submitted to Planning |
Applicant |
|
May 7, 2019 |
Notice of Violation - No Building Inspection Scheduled (Attachment A - Violations Issued) |
Neighborhood Services |
|
May 30, 2019 |
Notice of Violation - No Building Inspection Scheduled (Attachment A - Violations Issued) |
Neighborhood Services |
|
July 11, 2019 |
Final Inspection Requested |
Applicant |
|
July 11, 2019 |
Request for Final Building Permit Inspection by Applicant Refused due to lack of an approved of Certificate of Appropriateness |
Planning / Building and Life Safety Division |
|
August 7, 2019 |
Cultural Heritage Board meeting |
Planning |
Project Description
The Project includes the following proposed alterations:
1. Replacement of all windows with new vinyl dual pane windows.
2. Reduction of a front window at the east side of the front door;
3. Closing off an unpermitted door from the porch;
4. Replacement of the front main entry door; and
5. Replacement of roof material to composition shingles.
A Certificate of Appropriateness is required in accordance with Stockton Municipal Code (SMC) § 16.220.060(A)(1) (Certificates of appropriateness) since the above-noted works are related to the exterior alterations to a structure within a historic preservation district (Attachment E - Photos during the Construction). The standards of review for the Certificate of Appropriateness are the: (a) Citywide Design Guidelines § 3.02 (Single-Family Residential Design Guidelines for Special Districts); and (b) Secretary of Interior’s Standards for Rehabilitation and Guidelines for Rehabilitating Historic Buildings.
Furthermore, per Section 16.220.060 of the SMC, “The Cultural Heritage Board shall review the application and plans based on appropriate considerations, which include the following:
1. Architectural design and style;
2. Texture and surface materials;
3. Appurtenant fixtures, fences, signs, and steps;
4. Major landscaping, alterations, additions, and/or removals;
5. Site development and placement of structures;
6. Height and bulk of structures;
7. Parking provisions;
8. Public areas including fixtures, signs, street furniture, and trees; and
9. Relation of the proposed work to the surrounding neighborhood.”
Certificates shall be approved, with or without conditions of approval, only if six findings of fact can be made, they are:
1. Designate, enhance, preserve, protect, restore, and perpetuate those historic districts, neighborhoods, sites, structures, and zones, which contribute to the aesthetic and cultural benefit of the City;
2. Encourage public appreciation, knowledge, and understanding of, and a sense of identity with, the City’s past;
3. Foster civic and neighborhood pride in the accomplishments and beauty of the past;
4. Stabilize and improve the economic value of historic districts, neighborhoods, sites, structures, and zones;
5. Help preserve the diverse architectural design and styles that reflect phases of the City’s history, and encourage complementary design and construction; and
6. Promote and encourage continued private ownership and utilization of structures currently owned and used.
Despite the fact that the work has already been completed on the subject property, a decision must be rendered as if the work had yet to be completed (i.e. on the merits of the proposal) and in accordance with the guidelines, standards, and code sections outlined above.
Staff Analysis
Citywide Design Guidelines § 3.02.060
The Citywide Design Guidelines includes provisions for the rehabilitation of structures in special districts, including the Magnolia Historic District. Generally, the guidelines aim to protect the original architectural features of a house that help identify its individual style and thereby maintain elements that contribute to the overall character of the district.
Windows
Citywide Design Guidelines § 3.02.060(F) (Rehabilitation Guidelines - Windows) provides the following guidelines for proposed alterations to windows:
1. The size, shape, and style of windows are an important feature of most architectural styles and should be maintained and repaired whenever possible.
2. When replacing windows is necessary, new windows should match the original windows as closely as possible. In some instances, custom milling may be advised to ensure a close match on highly visible windows.
3. The following are not recommended in the repair of windows:
a. Using reflective glass or films.
b. Installing aluminum windows in locations that are visible from the public right-of-way.
c. Using windows that are incompatible with the other windows on the house or with the overall style of the house.
d. Removing or covering original window ornamentation and details.
4. Aluminum or vinyl windows may be allowed in some cases, provided that the basic size and configuration of the original window is maintained so that it may be properly restored at some point in the future.
As the windows were removed, maintenance or restoration of the original windows is not possible. All windows in the house have been replaced with new vinyl dual pane windows. The front windows on the first floor of the house appear smaller than original windows. Pursuant to the Citywide Design Guidelines § 3.02.060(F)(1) and (2), because the front two windows on the second floor of the house, and bedroom #2 window are visible from the public right-of-way, these windows should match the original windows as closely as possible (Attachment F - Site/Floor/Elevation Plans). Under staff’s recommendation, a condition of approval would require these windows to be a multi-pane, true-divided light in a consistent grid pattern to match the Craftsman home’s style.
Doors
Citywide Design Guidelines § 3.02.060(G) (Rehabilitation Guidelines-Doors) provides the following guidelines for alterations to doors:
1. The size, shape, and style of doors are an important architectural feature and the original should be retained whenever possible.
2. When replacement is necessary, the new door should match the original door as closely as possible or should at a minimum replicate doors of similar architectural style houses in the neighborhood.
3. The following are not recommended in the repair or door:
a. Using hollow cored doors for exterior doors.
b. Using doors that are not compatible with the original style of the building when the doors are visible from the public right-of-way.
c. Using mismatched hardware or materials that are inappropriate to the style of the house.
A new front door was installed to replace the original door accessed from the front porch (facing the street), said door appears smaller than the original. Another door (off the porch) was closed off due to a lack of an issued building permit. By removing the unpermitted door, the front door is restored as the main entrance to the house, matching the Craftsman style.
Roofs
Citywide Design Guidelines § 3.02.060(I) (Rehabilitation Guidelines-Roofs) provides the following guidelines relative to roofing materials:
1. Roofs are important both functionally and aesthetically and should be repaired and replaced carefully. Whenever possible, repairs and replacement should be done with the original roofing materials.
2. When this is not possible (due to fire resistance, durability and/or cost), materials closely resembling the original materials should be used. For example, many newer “architectural” styles of asphalt roofing closely emulate wood shingles.
3. The following are not recommended in the repair of roofs:
a. Using materials or colors that are inappropriate to the style of the house.
b. Patching roofs with materials or colors that do not match the rest of the house.
c. Patching Spanish tile roofs by “dumping” mortar on cracked tiles.
Based on Google Street View imagery, the original roof material appears to have been shingles (dark gray). The proposed replacement of the roof material (composition shingles) and color (black with Harbor Blue dots) would be similar to the original. The color of the roof has been chosen to be complimentary with the house’s main body color (dark gray/blue). Further, the selected color palette is compatible with the majority of existing roof colors in the surrounding area (Attachment G - Roof Material/Color Palette).
Colors
Citywide Design Guidelines § 3.02.060(J) (Rehabilitation Guidelines-Colors) provides the following guidelines for colors:
1. Historically, certain color palettes were associated with particular architectural styles, often the architectural style itself may dictate appropriate colors of a structure. Whenever possible, exterior building colors should reflect the basic colors of the architectural style or period of the building. Historic color palettes based on research, old photographs, and historic records are strongly encouraged.
2. Combinations of colors or tones on a single building or site that clash should be avoided. A building should be treated as consistently as possible. Exterior colors should be coordinated on all elevations and compatible with exposed materials, architectural style, and detailing.
3. Do not paint stained shingles, brick and stonework, chimneys, roofing, or any decorative trim that was not originally painted as part of the building’s style.
The Citywide Design Guidelines indicate that homes from this period typically were painted in earth tones. This is also noted in the Century of Color, Exterior Decoration for American Buildings - 1820/1920 (Roger Moss, 1981). The proposed new paint scheme is composed of three colors White (Swiss Coffee), Dark Gray/Blue (Adirondack Blue) and Dark Red (Sugar Beet). As illustrated in the proposed color scheme, the white will be used on all trim including around the windows, the main body color will be dark gray/blue, and doors will be dark red color. Using these three colors would be similar to other Craftsman style home colors and blend the home seamlessly with its surroundings (Attachment H - Photos after Alternations).
Secretary of Interior’s Standards for Rehabilitation
The Secretary of Interior’s definition for rehabilitation, as a treatment, is the act or process of making possible a compatible use for a property through repair, alterations, and additions while preserving those portions or features which convey its historical, cultural, or architectural values. The Standards are to be applied to specific rehabilitation projects in a reasonable manner, taking into consideration economic and technical feasibility. Staff’s analysis of the project under each standard is provided in italics below:
1. Standard: A property shall be used for its historic purpose or be placed in a new use that requires minimal change to the defining characteristics of the building and its site and environment.
Staff Analysis: As the application is limited to windows and door replacement, re-painting, and re-roofing, the historic purpose of the structure as a single-family dwelling would not change. The single-family home would be reoccupied after the alternations.
2. Standard: The historic character of a property shall be retained and preserved. The removal of historic materials or alteration of features and spaces that characterize a property shall be avoided.
Staff Analysis: The Project retains all primary aspects of the Craftsman home’s style. Proposed alternations retain all character defining features and don’t alter the home’s style, including the required use of new multi-pane, true-divided light windows that are visible from public street, new wood door, new paint, and new roof.
3. Standard: Each property shall be recognized as a physical record of its time, place, and use. Changes that create a false sense of historical development, such as adding conjectural features or architectural elements from other buildings, shall not be undertaken.
Staff Analysis: The project excludes alterations with the potential to result in false historicism since historic materials are either retained or replaced without the insertion of new or different design elements.
4. Standard: Most properties change over time; those changes that have acquired historic significance in their own right shall be retained and preserved.
Staff Analysis: The application does not concern a change which may have required historic significance. The alternations of the house would be consistent with the Craftsman home’s architectural style.
5. Standard: Distinctive features, finishes, and construction techniques or examples of craftsmanship that characterize a property shall be preserved.
See response to Standard #2 above.
6. Standard: Deteriorated historic features shall be repaired rather than replaced. Where the severity of deterioration requires replacement of a distinctive feature, the new feature shall match the old in design, color, texture, and other visual qualities and, where possible, materials. Replacement of missing features shall be substantiated by documentary, physical, or pictorial evidence.
Staff Analysis: All windows in the house are severely deteriorated and require replacement with new windows. The windows facing the public right-of-way will be replaced with windows that contain multi-pane, true-divided light in a consistent grid pattern, as specified in Conditions of Approval of the Resolution. The windows will match the house’s craftsman features.
7. Standard: Chemical or physical treatments, such as sandblasting, that cause damage to historic materials shall not be used. The surface cleaning of structures, if appropriate, shall be undertaken using the gentlest means possible.
Staff Analysis: No chemical or physical treatment is proposed.
8. Standard: Significant archeological resources affected by a project shall be protected and preserved. If such resources must be disturbed, mitigation measures shall be undertaken.
Staff Analysis: The application does not involve earthwork. Therefore, this standard is not applicable.
9. Standard: New additions, exterior alterations, or related new construction shall not destroy historic materials that characterize the property. The new work shall be differentiated from the old and shall be compatible with the massing, size, scale, and architectural features to protect the historic integrity of the property and its environment.
Staff Analysis: In addition to Standard #2 above. The front windows, windows on the second floor of the house, and bedroom #2 shall consist of a multi-pane, true-divided light in a consistent grid pattern. All windows shall be subject to a building inspection to ensure the new window material will match the original size and scale to protect the historic integrity of the property and its environment.
10. Standard: New additions and adjacent or related new construction shall be undertaken in such a manner that if removed in the future, the essential form and integrity of the historic property and its environment would be unimpaired.
Staff Analysis: No new adjacent construction is proposed.
Conclusion
With conditions of approval, the proposed window replacement, door replacement, re-painting, and re-roofing would match the Craftsman home’s architecture style. Staff recommends the CHB adopt a resolution recommending approval subject to the following conditions:
1. Remove four shutters on the northern elevation of the house due to incompatibility with the Craftsman home’s features; and
2. Install windows that are multi-pane, true-divided light in a consistent grid pattern for all windows visible from the right-of-way (i.e. the two front windows facing Willow Street, windows on the second floor of the house, and bedroom # 2 window). The two front windows and front door on the first floor of the house shall be restored to match the original size, shape, and texture of previous windows and doors.
Public Comments
As provided at Stockton Municipal Code § 16.220.060(C)(3) (Noticing for Certificate of Appropriateness), prior public notice or hearing is not required for the Cultural Heritage Board and Director to act on a Certificate of Appropriateness application.
Environmental Clearance
This application is a Categorically Exempt from the California Environmental Quality Act (CEQA) under CEQA Guidelines section 15331 (Class 31, Historical Resource Restoration/ Rehabilitation) since, as recommended by staff, it consists of the rehabilitation of a home in a historic district consistent with the Secretary of Interior’s Standards for Treatment of Historic Properties.
Attachment A - Violations Issued
Attachment B - Magnolia Historic District Summary
Attachment C - Location Map and Aerial Photography
Attachment D - Before Photos
Attachment E - Photos during the Construction
Attachment F - Site/Floor/Elevation Plan
Attachment G - Roof Material/ Color Palette
Attachment H - Photos after Alternations