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HomeMy WebLinkAboutItem IIITEM II-223 N. Main Street - Design Standards Variance 1 PLAN COMMISSION STAFF REPORT FEBRUARY 2, 2021 ITEM II: CENTRAL MIXED-USE DESIGN ALTERATION REVIEW AND DESIGN GENERAL INFORMATION Applicant: Vision Architecture, LLC Owner: Kindred Investments Action(s) Requested: The applicant is proposing façade work on a Downtown Central Mixed-Use (CMU) building which requires a Central Mixed-Use Design Alteration Review and Design Standards Variance. Applicable Ordinance Provision the Variance is being requested: Code Reference Regulation Section 30-245(A)(3)(ii) Design Alteration Review (change only in the exterior appearance of a nonresidential or multi-family property such as painting, roofing, siding, architectural component substitution, fencing, paving, or signage) Section 30-245(A)(6)(b) In General. Buildings shall be restored relying on physical evidence (such as photographs, original drawings, and existing architectural details) as much as possible, in keeping with the design theme described in Subsection (4) above, as determined by Plan Commission. Section 30-245(A)(6)(c) Materials and features identical to the original exterior materials and surface features shall be used. If replacement with identical materials and features is not possible, other features and materials may be used, provided they are compatible with the design and style of the building, as determined by Plan Commission. Section 30-245(A)(6)(c)(ii) Significant architectural features, including cornices, moldings and coursings shall be preserved or replaced with identical features and materials wherever possible. Section 30-245(A)(6)(d)(i) Original window and door openings shall not be blocked. Where now blocked, blocked window and door openings shall be restored where possible. Section 30-245(A)(6)(e)(i) Display windows shall be restored to their original appearance. Page 1 STANDARDS VARIANCE FOR PROPOSED FAÇADE WORK AT 223 N. MAIN STREET ITEM II-223 N. Main Street - Design Standards Variance 2 Property Location and Background: The aerial image above shows the subject property at 223 North Main Street. Opera House square is to the north across High Avenue and North Main Street is immediately to the east. The subject property is a mixed-use building located at 223 N. Main Street and the lot is approximately 3,134 square feet in area. The property contains commercial uses on the ground floor and multi-family residential on the upper floor. The surrounding area consists of a commercial bank to the west, Opera House Square to the north and commercial uses to the east and south. The building at 223 N. Main Street abuts the neighboring building to its immediate south. A number of commercial uses are located on the ground floor of the building. The building is divided into two halves. In 2018 the owner received a design standards variance for façade alterations on the west half of the façade facing Opera House Square and a portion of the façade facing Commerce Street. For the current request, the applicants seek approval to make modifications to the North Main Street façade. The proposed modifications are limited to this façade on the eastern half of the building. The applicants would like to conduct façade alteration work on the building. They conferred with a number of city staff on multiple occasions. Staff has visited the site and gone by the site multiple times. Staff asked the applicants to attend a Landmarks Commission meeting to discuss their proposed work with the Commission and seek input from the Commission. Such a discussion would also allow the Commission to weigh in. The applicants attended the January 13, 2021 Landmarks meeting and shared their ideas with the Commission. They presented their design for the new North Main Street façade of the building to the Commission for input. After the Commission engaged in dialogue with the applicants they stated that they Page 2 ITEM II-223 N. Main Street - Design Standards Variance 3 appreciated the applicants taking time to attend the meeting and seek Landmarks’ input. The Commission voted 6-0 to recommend approval of the work as proposed, noting that the building had already undergone significant alterations in the previous 100 or so years. The Commission noted also that the work as proposed was limited to the North Main Street façade and would result in less disruption of the building’s historic features than the previous façade renovations from 2018. In the 2018 renovations on the western half of the building, the work involved the removal of the ceramic tile from the base of that façade and the transom glass between the ground and second floors. As in the prior variance request it is important to note that the applicants’ appearance at the January 13 Landmarks meeting was a courtesy. Section 30-245(A)(3)(d) of the Central Mixed- Use Design Standards prescribes when an appearance before the City’s Landmarks Commission is required. The section requires consultation and a recommendation from Landmarks for projects proposed on properties designated as historic, contributing to an historic district or considered by a study or survey to be eligible for listing on a local, state or national register. The building at 223 N. Main Street was listed in the 1980 Intensive Historic Resource Survey as ineligible for listing on the State and National Registers by HNTB. The building is not a contributing structure or local Landmark, so the CMU Design Standards do not afford the Landmarks Commission any formal jurisdiction over the review and approval process for work proposed to the property. The subject building has undergone a substantial degree of alteration over time and its historic integrity was significantly diminished as a result. However, since the building is located adjacent to the North Main Street Historic District and Opera House Square, it is very prevalent and modifications can have a major impact visually. This is why staff referred the applicants to the Landmarks Commission. The Landmarks recommendation reflects an understanding of both the building’s visual prominence and large scale modifications over the years. The recommendation sought to balance historical sensitivity with the property owner’s interest in the continued use of her building. The Plan Commission is not under any obligation prescribed by ordinance to incorporate Landmarks input, but staff thought it would be helpful to mention the Landmarks recommendation as part of the background. Any work conducted on a CMU structure is subject to the restrictions in the CMU Design Standards. These standards are among the most prescriptive design standards in the zoning ordinance, with far more restrictions than base residential or commercial design standards. Many of the buildings in the CMU district are located Downtown in highly visible locations and are part of a unique fabric of varying yet complementary older or formally historic buildings. The CMU Design Standards seek to preserve the architectural and historical character of the CMU district. The standards regulate the type of work permitted for CMU structures, the manner in which proposed work may receive approval and the methods for carrying out such work. The CMU Design Standards require proposed work to remain consistent with the CMU Design Theme for the district (see below). Section 30-245(A)(4): Design Theme: The design theme for the Central Mixed Use District is based on its historical, pedestrian-oriented development pattern that incorporates retail, residential, and institutional uses. Building orientation and character includes minimum setbacks at the edge of the sidewalk, multi- story structures, use of alleys for access, and on-street or other off-site parking. The design theme is Page 3 ITEM II-223 N. Main Street - Design Standards Variance 4 characterized by a variety of architectural styles popular at the time, including Italianate, Romanesque, and Neoclassical, in a 2- or 3- story format with office, storage, or residential located over commercial. The facades of these buildings have a traditional main street storefront appearance, are relatively small in scale, have street yard and side yard setbacks of zero feet, have prominent horizontal and vertical patterns formed by regularly spaced window and door openings, detailed cornice designs, rich detailing in masonry coursing, window detailing and ornamentation, and are predominantly brick, stone, or wood. Exterior building materials are of high quality. Exterior appurtenances are minimal. Exterior colors harmonious, simple, and muted. Exterior signage blends, rather than contrasts, with buildings in terms of coloring (complementary to building), location (on-building), size (small), and number (few). The applicants’ façade work involves changes in the exterior appearance of one (the North Main Street) building facade. The large recess on the first floor would be removed, the awning between the first and second floors removed and a new glass transom installed at the location of the existing awning. The applicants’ proposal includes opening up the corner of the façade and shifting the entrance from its current location in the large recess over to the corner. This work would maintain all other window and door openings at their current locations. The work would however, include the replacement of three second floor windows with pane windows. The work would not restore the building back to a period appearance. Work involving new siding or façade alterations such as this is classified as a Design Alteration by the CMU Design Standards and requires a Design Alteration Review. Staff has the discretion to refer such work to the Plan Commission for review and consideration. The CMU Design standards in general require restoration and maintenance of period features, and original window and door openings. The standards do however, afford the Plan Commission the discretion to determine whether:  Work proposed for a CMU structure is in accordance with Subsection (4) listed above  Proposed materials and features are compatible with the design and style of the building  Preservation of any and all elements is or is not possible Staff is of the opinion that the proposed work explained above requires Plan Commission review and a design standards variance since it would involve modifications inconsistent with several of the CMU Design Standards. Subject Site Existing Land Use Zoning Mixed Use (Commercial and Multi-family Residential) CMU Recognized Neighborhood Organizations Not Applicable – No recognized neighborhood currently Adjacent Land Use and Zoning Existing Uses Zoning North Opera House Square Institutional South Mixed-Use CMU East Mixed-Use CMU West Commercial CMU Page 4 ITEM II-223 N. Main Street - Design Standards Variance 5 Comprehensive Plan Land Use Recommendation Land Use 2040 Comprehensive Land Use Recommendation Center City VARIANCE CRITERIA The City’s Zoning Ordinance establishes design standards for the CMU district with the overall purpose/intent to: “Implement the urban design recommendations of the Comprehensive Plan, by preserving and enhancing the historical quality of the downtown, and by attaining a consistent visually pleasing image for the downtown area, as defined by the mapped boundaries of the Central Mixed Use District”. The standards apply to all “new development and changes to the exterior of any building within the mapped boundaries of the Central Mixed Use District.” The Plan Commission is authorized to grant variances from the strict application of the standards when it is determined that one or more of the following apply: 1. The intent of the standards have been incorrectly interpreted; 2. Standards do not apply to the particular project; and/or 3. Enforcement of the standards causes unnecessary hardship. When taking action, the Plan Commission shall make findings per the following, as described in Section 30-411(F)(1): 1. The variance will not be contrary to the public interest. 2. Substantial justice will be done by granting the variance. 3. The variance is needed so that the spirit of the ordinance is observed. 4. Due to special conditions, a literal enforcement of the provisions of the Zoning Ordinance will result in unnecessary hardship. 5. The variance will not allow an alteration of a historic structure, including its use, which would preclude its continued designation as a historic structure. ANALYSIS The applicants would like to perform work on the North Main Street facade of the building. They would like to concentrate their façade work on the eastern façade of the building with emphasis on the ground floor. The scope of work would include the following:  Removal of the large recessed area on the first floor  Removal of the current awning between the first and second floors  Installation of new glass transom between first and second floors in location of current awning  Opening up of the front corner  Shifting of front entrance from recessed area to front corner  Replacement of three existing windows on second floor with new pane windows in same openings. Page 5 ITEM II-223 N. Main Street - Design Standards Variance 6 Page 6 ITEM II-223 N. Main Street - Design Standards Variance 7 The above images compare and contrast the existing façade with the proposed new façade after work is completed. The existing front façade was heavily modified in the time since the building was originally constructed (pictures below). Staff evaluated the completed work previously described and the impact on the architectural integrity of the building in regard to the CMU Design Standards. The standards relate to preserving the CMU district’s architectural integrity and the potential impact on adjacent properties, the neighborhood character and “curb appeal” of the district. In working with the applicant, staff considered:  Potential impact of not restoring the façade of the building back to a period or original appearance  Potential impact of removing or covering significant architectural features  Potential impact of introducing new architectural elements not historically present on the facade to be renovated  Potential impact of conducting the proposed façade work as opposed to leaving the façade in its current state  Degree of alteration to the subject building over the years  Lack of formal historic designation for the subject property at the local, state, or national level  Architectural character of neighboring properties  Impact of requiring the owner to restore the building to its historical appearance. Page 7 ITEM II-223 N. Main Street - Design Standards Variance 8 The above image shows the original appearance of the subject façade when the building was a bank after it was constructed. This image shows the building after modifications were made to the original North Main Street façade. Note the loss of the corner entrance, squaring off of the corner, and addition of brick to the second floor. The façade appears to have greatly changed from its original appearance. The early photograph above shows stone which appears to have been removed during subsequent façade revisions. None of the original glass appears to remain on the subject façade. The storefront windows are not original and date to a later time after the building’s construction. The diagonal corner and Page 8 ITEM II-223 N. Main Street - Design Standards Variance 9 entrance in the historic photograph are both gone. Over time, the façade was modified and the diagonal corner squared off and the entrance moved to the current recessed space off of North Main Street. The architect and building owner do not propose to restore many of the original features. However, their proposal eliminates the recessed area and restores the entrance to the corner. The architects would also open up the corner at the ground floor, leaving the structural column intact at the corner. Though this is not original to the building, it is similar to other examples downtown and in other locations in the city. The applicants state that the reason for the variance request is that the “CMU standards seek to preserve historic buildings and the character of the downtown. This particular building has endured many less historically sensitive alterations over its lifetime, creating a situation where the standards do not apply.” The applicants believe that “the proposed renovations will aesthetically and functionally improve the façade, as well as be a more appropriate fit within a historic downtown setting.” The applicants also state that the improvements will enhance curb appeal through the use of additional window areas and the creation of a transom window in an area currently covered by an awning. As mentioned earlier, the applicants attended a Landmarks meeting and engaged in dialogue with the Commission. The Landmarks Commission and staff appreciated the applicants’ willingness to explain the proposed modifications at the Landmarks meeting. Landmarks Commission involvement in the process is important for historic areas such as the downtown. Older buildings, even if not formally designated as historic, may possess significance. Since the building was heavily modified the Commission was supportive of the proposed modifications and voted to recommend that Plan Commission approve the proposed design. Staff is of the opinion that the proposed work will in a number of ways improve upon the current conditions of the North Main Street façade. Staff has determined however, that the work requires variances for several ordinance sections. One drawback of the proposed façade work is that currently, the three second floor windows would be replaced with panel windows not used anywhere else on the second floor. Ideally if the second floor windows were replaced it would be with windows consistent in appearance with those on the High Avenue facade. However, it appears the applicant is maintaining a design theme between the first and second floor glass so staff can understand the applicant’s reasons for choosing the proposed windows. Staff reviewed the CMU Design Standards described previously with the understanding that the ground floor façade in question has greatly changed, the occupants and use of the building have changed and materials on the façades have changed. Staff realizes that restoration of the North Main Street façade back to its original conditions will require modifications to the building’s interior spaces and changes in how the interior spaces are used. The Landmarks Commission noted and staff would agree that the proposed work will eliminate fewer significant features than the previous work completed in 2018 on the western portion of the building. Based on all of this staff supports the variance request. Page 9 ITEM II-223 N. Main Street - Design Standards Variance 10 RECOMMENDATION Staff recommends the Plan Commission approves the variance request with the following conditions and finding: Conditions: 1. The variance shall apply only for work discussed as part of this variance request (ground and second floor of the North Main Street facade). 2. All existing window openings on the second floor shall remain at their current sizes and locations. 3. Any future façade work to be undertaken shall be filed as a separate request(s) and be reviewed by staff and the Plan Commission. Finding: 1. Due to special conditions, a literal enforcement of the provisions of the Zoning Ordinance will result in unnecessary hardship. Page 10 Page 11 Page 12 Page 13 DSV 223 N MAIN ST PC: 02-02-2021 BL BRANCH GROUP II LLC 120 E WASHINGTON ST STE 201 SYRACUSE NY 13202 BND ENTERPRISES LLC 5 WAUGOO AVE OSHKOSH WI 54901 CITY OF OSHKOSH PO BOX 1130 OSHKOSH WI 54903 CLOVER INVESTMENTS LLC PO BOX 275 PENNINGTON NJ 8534 MCDAY HOLDINGS LLC 1014 EVANS ST OSHKOSH WI 54901 THOMAS N RUSCH 3807 STATE ROAD 21 A OSHKOSH WI 54904 KINDRED INVESTMENTS LLC 223 N MAIN ST OSHKOSH WI 54901 VISION ARCHITECTURE LLC 121 1/2 W WISCONSIN AVE NEENAH WI 54956 Page 14 Operahouse SquareN MAIN STN MAIN STHHIIGGHHAAVV WASHINGTON AVWASHINGTON AV ALGOMA BLVD ALGOMA BLVD PPEEAARRLLAAVV MARKET STMARKET STCOMMERCE STCOMMERCE STOTTER AVOTTER AV WAUGOO AVWAUGOO AVBROWN STBROWN STJ:\GIS\Planning\Plan Commission Site Plan Map Template\2020 Plan Commission Site Plan Map Template.mxd User: rachela Prepared by: City of Oshkosh, WI Printing Date: 1/18/2021 1 in = 100 ft1 in = 0.02 mi¯223 N MAIN STREET223 N MAIN STREET City of Oshkosh maps and data are intended to be used for general identification purposes only, andthe City of Oshkosh assumes no liability for the accuracy of the information. Those using theinformation are responsible for verifying accuracy. For full disclaimer please go towww.ci.oshkosh.wi.us/GISdisclaimer SUBJECTSITE Page 15 I I CMU TR-10-PD I TR-10 UMU I-UTO I CMU-RFO UMU I-PD-RFO UMU-PD RMU-PD-RFO I-PD I UMU CMU TR-10-PD I-PD TR-10 UMU RMU-RFO CMU I-PD RMU UMU UMU I I-PD UMU-RFO I UMU-PD RMU-PD-RFO CMU I CMU-PDTR-10 SR-9 CMU UMU-PD CMU-PD CMU-PD MR-36-UTO UMU-UTO I-PD UMU MR-36 UMU CMU UMU UMU-UTO RMU-PD I-RFO CMU-PD CMU-PD-RFO CMU UMU-PD RMU-PD I-PD CMU-RFO I-PD-RFO MULTIPLE UMU-PD-UTO TR-10 I-PD CMU-PD CMU TR-10UMU-UTO RMU-PD-RFORoe ParkN MAIN STN MAIN STHIGH AV HIGH AV JACKSON STJACKSON STCEAPE AVCEAPE AV ALGOMA BLVD ALGOMA BLVD OREGON STOREGON STWASHINGTON AVWASHINGTON AV S MAIN STS MAIN STBROAD STBROAD STPPEEAARRLLAAVV DDIIVVIISSIIOONNSSTTW 7TH AVW 7TH AV W 6TH AVW 6TH AV WW 88TTHH AAVV OTTER AVOTTER AV CHURCH AV CHURCH AV MERRITT AVMERRITT AV WAUGOO AV WAUGOO AVMT VERNON STMT VERNON STJEFFERSON STJEFFERSON STEE PPAARRKKWWAAYY AAVV COURT STCOURT STGRAND STGRAND STPIONEER DR PIONEER DR BAY STBAY STMMAARRIIOONN RRDD W PARKWAY AVW PARKWAY AV HUDSON AVHUDSON AV DAWES STDAWES STMADISON STMADISON STPLEASANT STPLEASANT STMINNESOTA STMINNESOTA STFRANKLIN STFRANKLIN STCEAPE AVCEAPE AV BBRROOAADDSSTTUMU-PD-UTO MULTIPLE J:\GIS\Planning\Plan Commission Site Plan Map Template\2020 Plan Commission Site Plan Map Template.mxd User: rachela Prepared by: City of Oshkosh, WI Printing Date: 1/18/2021 1 in = 500 ft1 in = 0.09 mi¯223 N MAIN STREET223 N MAIN STREET City of Oshkosh maps and data are intended to be used for general identification purposes only, andthe City of Oshkosh assumes no liability for the accuracy of the information. Those using theinformation are responsible for verifying accuracy. For full disclaimer please go towww.ci.oshkosh.wi.us/GISdisclaimer SUBJECTSITE Page 16 J:\GIS\Planning\Plan Commission Site Plan Map Template\2020 Plan Commission Site Plan Map Template.mxd User: rachela Prepared by: City of Oshkosh, WI Printing Date: 1/18/2021 1 in = 70 ft1 in = 0.01 mi¯223 N MAIN STREET223 N MAIN STREET City of Oshkosh maps and data are intended to be used for general identification purposes only, andthe City of Oshkosh assumes no liability for the accuracy of the information. Those using theinformation are responsible for verifying accuracy. For full disclaimer please go towww.ci.oshkosh.wi.us/GISdisclaimer SUBJECTSITE Page 17