LAWRENCE HISTORIC RESOURCES COMMISSION

ITEM NO. 7: DR-08-71-2004

STAFF REPORT

 

A.         SUMMARY

 

DR-08-71-04:            944 Massachusetts Street; Storefront Remodel; Certificate of Appropriateness Review and Certified Local Government Review.  Submitted by Jerry Neverve, for the property owner of record. The property is located in Lawrence’s Downtown Historic District, National Register of Historic Places. The property is also located in the environs of the Hanna Building (933 Massachusetts), Lawrence Register of Historic Places, and the Shalor Eldridge House (945  Rhode Island), Kansas and Lawrence Registers of Historic Places. The property is located in the Downtown Conservation Overlay District.

 

B.         PROJECT DESCRIPTION

 

The applicant is proposing to renovate the storefront located at 944 Massachusetts Street in order to provide a licensed patio space for their customers. Renovation will include removing the existing storefront glazing, replacing it with decorative ironwork and installing a new, recessed storefront system.  The applicant also proposes to remove part of the roof system in order to satisfy the open air requirements of city regulations.

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 


C.                 standard for review

 

Certified Local Government Review

For Certified Local Government Review of projects that involve listed properties, the Historic Resources Commission has typically used the Secretary of Interior’s Standards to evaluate the proposed project.

 

Secretary of Interior’s Standards

 

The following standards apply to the proposed alterations:

 

  1. 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.

 

  1. The historic character of a property shall be retained and preserved.  The removal of historic materials or alterations of features and spaces that characterize a property shall be avoided.

 

  1. 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 asking conjectural features or architectural elements from other buildings, shall not be undertaken.

 

  1. Most properties change over time; those changes that have acquired historic significance in their own right shall be retained and preserved.

 

  1. Distinctive features, finishes and construction techniques or examples of craftsmanship that characterize a historic property shall be preserved.

 

  1. Deteriorated historic features shall be repaired rather than replaced.  Where the severity of deterioration requires replacement if 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.

 

  1. 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.

 

  1. 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.

 

  1. New additions and adjacent or related new constriction 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.

 

STOREFRONTS

 

Recommended

Identifying, retaining, and preserving storefronts –and their functional and decorative features- that are important in defining the overall historic character of the building such as display windows, signs, doors, transoms, kick plates, corner posts, and entablatures.

 

Protecting and maintaining masonry, wood and architectural metals which comprise storefronts through appropriate treatments such as cleaning, rust removal, limited paint removal, and reapplication of protective coating systems.         

 

Not Recommended

Removing or radically changing storefronts –and their features- which are important in defining the overall historic character of the building so that, as a result, the character is diminished.

 

Changing the storefront so that it appears residential rather than commercial in character.

 

Removing historic material from the storefront to create a recessed arcade.

 

Introducing coach lanterns, mansard overhangings, wood shakes, nonoperable shutters, and small-paned windows if they cannot be documented historically.

 

 Changing the location of the storefront’s main entrance.

 

Failing to provide adequate protection to materials on a cyclical basis so that deterioration of storefront features results.

 

Certificate of Appropriateness Review

In evaluating a request for a Certificate of Appropriateness, Section 22-505 indicates that the least stringent evaluation is to be applied to properties located within the environs of a historic district.

 

4)         The least stringent evaluation is applied to noncontributory properties, and the environs area of a landmark or historic district.  There shall be a presumption that a certificate of appropriateness should be approved in this category unless the proposed construction or demolition would significantly encroach on, damage, or destroy the landmark or historic district.  If the Commission denies a certificate of appropriateness in this category, and the owner(s) appeals to the City Commission, the burden to affirm the denial shall be upon the Commission, the City or other interested persons.

 

            General Standards

 

For projects which require a Certificate of Appropriateness, the Historic Resources Commission is required to use the general standards and the design criteria listed in the Conservation of Historic Resources Code, Chapter 22 of the City of Lawrence Code.

 

The following general standards apply to the proposed construction:

 

(1)        Every reasonable effort shall be made to provide a compatible use for a property that requires minimal alteration of the building, structure, site or object and its environment, or to use a property for its originally intended purpose;

 

(2)        The distinguishing original qualities or character of a building, structure, or site and its environment shall not be destroyed.  The removal or alteration of any historic material or distinctive architectural feature should be avoided when possible;

 

(3)        All buildings, structures, and sites shall be recognized as products of their own time.  Alterations that have no historical basis and that seek to create an earlier appearance shall be discouraged;

 

(4)                Changes that may have taken place in the course of time are evidence of the history and development of a building, structure, or site and its environment.  These changes may have acquired significance in their own right, and this significance shall be recognized and respected;

 

(5)        Distinctive stylistic features or examples of skilled craftsmanship that characterize a building, structure, or site shall be treated with sensitivity;

 

(6)        Deteriorated architectural features shall be repaired rather than replaced, wherever possible.  In the event replacement is necessary, the new material should match the material being replaced in composition, design, color, texture, and other visual qualities.  Repair or replacement of missing architectural features should be based on accurate duplication of features, substantiated by historic, physical, or pictorial evidence, rather than on conjectural designs or the availability of different architectural elements from other buildings or structures;

 

(7)        The surface cleaning of structures shall be under­taken with the gentlest means possible.  Sandblasting and other cleaning methods that will damage the historic building material shall not be undertaken;

 

(9)        Contemporary design for alterations and additions to existing properties shall not be discouraged when such alterations and additions do not destroy significant historical, architectural, or cultural material, and such design is compatible with the size, scale, color, material, and character of the property, neighborhood, or environs.  (Ord. 5950, Sec. 1)

 

Typically, the design criteria in section 22-506 are used to in the review of projects.  The following is the design criteria which apply to the project.

 

1.  ALTERATIONS.  Specific design criteria for exterior alterations of landmarks and key contributing properties within historic districts shall be based on the SECRETARY OF THE INTERIOR'S STANDARDS FOR REHABILITATION, as published in Section 36, Code of Federal Regulation, Part 67, and as revised from time to time; and by further reference to such specific design criteria as the Commission may require for the designation of the landmark or historic district.

 

In conducting Certificate of Appropriateness Reviews, the Commission has used a standard of review based on the designation of the property or its proximity to a designated property.

 

 

 

Downtown Design Guidelines

 

The City Commission and the Historic Resources Commission have adopted a set of Downtown Design Guidelines (2001) to review projects within the Downtown Urban Conservation Overlay District.  The guidelines that relate to this project are:

 

Storefronts:

 

 

 

 

 

 

 

 

 

D.         STAFF ANALYSIS

 

Building/Project History

The structure located at 944 Massachusetts Street is a one story, one part commercial block brick structure.  The storefront was remodeled during the first quarter of 2004.  (See DR-07-58-03. The final release for that project is dated December 31, 2003.) The current storefront consists of a larger than typical wood paneled bulkhead, arched glazed openings on either side of double doors, and a transom area made of glass block.  The complete history of the storefront is not known. While 944 Massachusetts is located in Lawrence’s Downtown Historic District, it is not listed as a contributing structure to the district.

 

Project Description

The applicant is proposing to remove the glazing of the existing storefront as part of an overall storefront rehabilitation of the structure located at 944 Massachusetts Street.  Modifications include the removal of the glazing in the current storefront display window area and the relocation of the existing door. The glazing will be replaced with ornamental ironwork, including a gate located in the current doorway space. The new storefront system will be placed approximately 10’ behind (east) of the existing storefront.

 

The drawings that were submitted for the project do not identify the specific measurements or materials used in the new recessed storefront. The application states that the existing door will be reused. The roof system of the structure above the proposed patio will be stripped to the rafters in order to meet the open-air requirements as defined by the Fire Marshal.   The application does not provide specific details about this portion of the project other than to state the rafters will be exposed. The proposed project is directly related to the current tenant’s need to provide a smoking area for their patrons. 

 

 

Project Analysis

 

Certified Local Government Review:

As proposed, this project does not meet Standards 1, 2, 5, 9. 

           

Standard 1 identifies that a new use that requires minimal change to the defining characteristics of the building.  The glazing in the storefront is a character defining feature for this structure. The fact that the new recessed storefront will have glazing does not decrease the overall impact of the removal of the glazing from original storefront area.  Removal of a character defining element is not a minimal change.  In addition, the installation of the ironwork in the storefront area will create a significant change to the overall character of the structure and the environs of the district.  

           

Standard 2 states that the removal of historic material or alteration of features and spaces that characterize a property shall be avoided.  Removal of the glazing in the storefront is an alteration of the features and space that characterize the property.

 

            Standard 5 states that Distinctive features, finishes, and construction techniques or examples of craftsmanship that characterize a historic property shall be preserved.  The storefront is a distinctive feature of the structure and should be preserved.

 

Standard 9 states that new additions, exterior alterations, or related new construction shall not destroy historic materials that characterize the property.  It also states that it shall be compatible with the massing, size, scale and architectural features to protect the historic integrity of the property and its environment. The removal of the glazing system, the building line entry, and the addition of the ironwork will alter the architectural features, massing, size and scale of the storefront. The removal of the existing roof system to expose the rafters and open the area is also an alteration of a significant architectural and structural feature.

 

In addition, the Secretary of the Interior lists specific recommendations for storefronts.  Specifically, removing historic material from the storefront to create a recessed arcade and changing the location of the storefront’s main entrance are not recommended.

 

Because the proposed project to remove the storefront glazing does not meet the Secretary of the Interiors Standards, staff recommends that other design alternatives be explored and evaluated.

 

Certificate of Appropriateness Review:

Chapter 22 of the Code of the City of Lawrence states that for the review of projects in the environs of a locally listed property there shall be a presumption that a certificate of appropriateness should be approved in this category unless the proposed construction or demolition would significantly encroach on, damage, or destroy the landmark or historic district.  The Hanna Building, significant for its architecture, is located at 933 Massachusetts Street and was listed on the Lawrence Register of Historic Places in 2002.  The Hanna Building and the proposed project are directly across the street from on another and the line of sight is significant.  The environs of the Hanna building include the rhythm and characteristics of the historic three part storefronts that face Massachusetts Street.  The loss of the glazing on 944 Massachusetts and the addition of ornamental iron work will significantly alter the rhythm, material, and characteristics of the environs of the Hanna Building.

 

The property is also in the environs of the Shalor Eldridge House located at 945 Rhode Island; however there is no line of sight.  This project will not alter the rhythm, material, and characteristics of the environs of the Shalor Eldridge House.

 

Downtown Design Guidelines:

The Downtown Design Guidelines are specific as to the importance of the three-part storefront of commercial structures in the Downtown Conservation Overlay District.  As proposed, the project to remove the glazing in the existing storefront does not meet the intent of the following guidelines.

 

·         Storefronts shall be designed to reflect the traditional pattern of containment. Removal of the glazing will open the traditional area of containment and create a significant change in the rhythm and fenestration of the structure and the historic district. The removal of the roof system to expose the rafters will also alter the traditional pattern of containment.

 

·         Remodeled storefronts shall be designed to fit within the original opening. Historic storefront openings are located at the front lot line of the property.

 

·         Storefronts may be recessed or extended slightly (typically, 3 inches to 9 inches) to emphasize the feeling of containment and provide architectural variety. The proposal calls for the removal of the glazing on the original storefront to create a recessed patio.  This is not typical for Downtown Lawrence.  The proposed new storefront is recessed 10’.  This destroys the “feeling of containment.”

 

·         Storefronts shall be pedestrian oriented and consist primarily of transparent glass.  Most storefronts in Downtown Lawrence contain 65% to 80% glass.  Storefront designs shall reflect this glass to other building material ratio. The removal of the glazing in the existing storefront will significantly reduce the overall percentage of transparent glass on the façade of the structure.

 

·         Storefront designs should reflect the traditional three-part horizontal layer by providing for a transom area, display windows, and a bulkhead. The removal of the glazing removes the “display window” area of the three-part storefront.

 

 

Staff is of the opinion that as proposed, the project does not meet the guidelines established in Chapter 22 of the Code of the City of Lawrence, the Secretary of the Interior’s Guidelines, or Downtown Design Guidelines.

 

 

E.         STAFF RECOMMENDATION

 

I.         Certificate of Appropriateness

In accordance with Chapter 22 the Conservation of Historic Resources Code of the City of Lawrence, the standard of evaluation, staff recommends the Commission deny the proposed project and find that, as proposed, the project would significantly encroach on, damage, or destroy the landmark Hanna Building located at 933 Massachusetts Street.

 

 

II.        Certified Local Government

 

In accordance with the Secretary of the Interior’s Standards, the standard of evaluation, staff recommends the Commission deny the proposed project as it does not meet Standards # 1, 2, 5, and 9, and make the determination that the proposed project will encroach upon, damage or destroy the listed property, Lawrence’s Downtown Historic District and its environs.  

 

 

III.      Downtown Design Guidelines

 

In accordance with the Downtown Design Guidelines, and the standard of evaluation, staff recommends the Commission deny the proposed project and make the determination that the proposed project does not meet the language and intent of the Downtown Design Guidelines. Specifically,

·         Storefronts shall be designed to reflect the traditional pattern of containment.

·         Remodeled storefronts shall be designed to fit within the original opening.

·         Storefronts may be recessed or extended slightly (typically, 3 inches to 9 inches) to emphasize the feeling of containment and provide architectural variety.

·        Storefronts shall be pedestrian oriented and consist primarily of transparent glass.  Most storefronts in Downtown Lawrence contain 65% to 80% glass.  Storefront designs shall reflect this glass to other building material ratio.

·        Storefront designs should reflect the traditional three-part horizontal layer by providing for a transom area, display windows, and a bulkhead