Community Development Department – Planning Division
1600 First Street + P.O. Box 660
Napa, CA 94559-0660
(707) 257-9530
_________________________________________________________________________________________________
CULTURAL HERITAGE COMMISSION STAFF REPORT
June 8, 2023
AGENDA ITEM 7.A: File No. PL23-0052 – 409 Franklin Street COA & Mills Act Contract
I. GENERAL INFORMATION
PROJECT
SUMMARY:
Application for a Certificate of Appropriateness to authorize exterior restoration and modifications to a Local Landmark property within the Napa Abajo Fuller Park National Register District and a request for a Mills Act Contract.
LOCATION OF
PROPERTY:
409 Franklin Street
APN: 005-051-011
GENERAL PLAN:
Traditional Residential
ZONING:
RT 5, Traditional Residential
HISTORIC
RATING:
Historic Resource Inventory – Local Landmark (LLM); Contributing – Napa Abajo Fuller Park National Register District
APPLICANT /
PROPERTY
OWNER:
Bill Urbach & Janet Effland
26141 Scenic Road
Carmel, CA 93923
Phone: 831-238-2866
AUTHORIZED Paul Kelley Phone: 707-257-1148
AGENT: 541 Jefferson Street
Napa, CA 94559
STAFF
PLANNER:
Michael Walker, Senior Planner Phone: 707-257-9530
ATTACHMENTS: ATCH 1 – Draft Resolution
ATCH 2 – Project Plans
ATCH 3 – Project Description
ATCH 4 – Department of Parks & Recreation Forms (DPR Form)
ATCH 5 – Mills Act Contract
ATCH 6 – Ten-Year Rehabilitation Plan
ATCH 7 – Historic Analysis
ATCH 8 – Public Comments
ATTACHMENT 4
PL23-0052 409 Franklin Street COA and Mills Act Contract 2
II. RECOMMENDATION
Staff recommends that the Cultural Heritage Commission (1) adopt a resolution approving a Certificate of Appropriateness for exterior modifications to a Local Landmark property located at 409 Franklin Street and determining that the actions authorized by this resolution are exempt from the California Environmental Quality Act (CEQA) and; (2) provide comments or recommendations on the Ten -Year Rehabilitation Plan and forward a recommendation to City Council to approve the Mills Act Contract.
III. EXECUTIVE SUMMARY
The Applicants, Bill Urbach and Janet Effland, request a Certificate of Appropriateness to authorize exterior modifications to a Local Landmark property in the Napa Abajo Fuller Park National Register District. The site, 409 Franklin Street, is located on the northwest corner of Laurel Street and Franklin Street and is surrounded by other historic single-family homes, as shown below in Figure 1, Location Map). The Applicants also request approval of a Mills Act contract.
FIGURE 1
Location Map
ATTACHMENT 4
PL23-0052 409 Franklin Street COA and Mills Act Contract 3 As shown in Attachment 2, Project Plans, and described more fully in Attachment 3, Project Description , work is proposed throughout the structure including interior renovations, modifications to all facades, excavation of the subterranean level of the home, and replacement of the composite roofing. Excavation of the subterranean level of the home would require temporarily raising the house to remove the existing stacked stone foundation walls and provide necessary seismic retrofitting to the foundation and throughout the interior of the house. Excavation of the subterranean level of the home would also allow for the addition of an Accessory Dwelling Unit (ADU). Access to the ADU would be through access stairs and a lightwell constructed adjacent to the home on the south side facing Laurel Street. The final finished floor elevation of the structure would remain unchanged.
Other exterior modifications would include repair of the existing stone walls, repairs to the existing garage, removal of non -native redwood trees, and new hardscape and period- appropriate landscaping with native and drought-tolerant plantings.
In addition to the proposed improvements, the Applicant also requests approval of a Mills Act Contract. The Mills Act Contract is requested for the purpose of obtaining a property tax reduction to help off-set the cost of repairs that the owners incurred i n their efforts to restore and preserve the subject historic building and for ongoing preservation of the building. The required ten-year rehabilitation plan is included as Attachment 6.
Pursuant to Napa Municipal Code (NMC) Section 15.52.070(D), the proposed Project shall require a Commission Certificate of Appropriateness. Further, Mills Acts Contracts require review and approval by the City Council upon recommendation from the Cultural Heritage Commission.
IV. SITE CONTEXT AND HISTORY
The F. Martin House at 409 Franklin Street is of the Italianate Style. As detailed in the Department of Parks and Recreation Inventory (Attachment 4), the original Italianate home (which comprises half of the current structure) was constructed in 1890 as a two-story row house with two two-story bay windows facing Laurel Street. By 1910, an extensive addition to the home added the two second story bay windows facing Franklin Street, reorienting the home to face Franklin Street , as shown in the photos below in Figure 2, Existing Conditions).
The Department of Parks and Recreation Inventory also notes that the original owner, F.
Martin, was a beer and liquor dealer in Napa and was proprietor of the stone Martin Building (now called the Center Building) on Brown Street . Additional information regarding the history of the property can be found in the Historic Analysis (Attachment 7).
ATTACHMENT 4
PL23-0052 409 Franklin Street COA and Mills Act Contract 4
FIGURE 2
Existing Conditions
V. PROJECT DESCRIPTION
As was mentioned in the executive summary, modifications are proposed throughout the home. For clarity, proposed changes are broken down by façade in the sections below. The existing composition roof shingles would be replaced, visible from each façade, but not further detailed below.
A. Front/East Façade (Franklin Street)
The Franklin Street façade would include modification to the front porch stairs and removal and replacement of the non-historic front door. Specifically, the existing concrete front porch steps would be removed and new stairs would be constructed flush with the eastern façade of the porch, removing the “inset” stairs. This change is detailed on Sheet A2-5 and A2-6 of Attachment 2, Project Plans. All existing windows are to remain. The existing non- historic front door with side lights will be replaced with a more historically-appropriate double entry door. The existing historic transom window above the door would be uncovered and restored (see below in Figure 3, Existing & Proposed Front /East Façade).
ATTACHMENT 4
PL23-0052 409 Franklin Street COA and Mills Act Contract 5
FIGURE 3
Front/East Façade
Existing
Proposed
B. Left/South Façade (Laurel Street)
The original bay windows and original entry door are to remain. The existing shed roof on the second story porch addition will be replaced with a more traditional hip roof form. A new wood cornice on the porch addition below the roofline would complement the historic cornice of the main house without replicating it. A non-historic aluminum slider window on ATTACHMENT 4
PL23-0052 409 Franklin Street COA and Mills Act Contract 6
the upper story porch addition would be removed and replaced with a double-hung wood window.
On the lower floor, the existing wood porch would be rebuilt and extended with new wood balusters to match the existing balusters. The rear porch door would be relocated and a new double-hung wood window would be installed in its place.
The Laurel Street-facing yard would also receive a majority of the excavation to provide access and the lightwell for the ADU. New ornamental metal fencing would be installed on top of the subterranean retaining wall. A matching ornamental metal fence would be installed at the original entry door, creating a type of “Juliette balcony” (see below in Figure 4, Existing & Proposed Left/South Façade).
FIGURE 4
Left/South Façade
Existing
ATTACHMENT 4
PL23-0052 409 Franklin Street COA and Mills Act Contract 7
Proposed
Alterations to the detached garage to the rear of the home are also visible from Laurel Street. Alterations would include replacement of the existing roofing with composition shingles to match the main house and replacement of the non -historic garage door with period-appropriate carriage style doors with glass lites (see below in Figure 5, Existing & Proposed Garage Façade).
ATTACHMENT 4
PL23-0052 409 Franklin Street COA and Mills Act Contract 8
FIGURE 5
Garage Façade
Existing
Proposed
C. Rear/West Façade
On the west façade, the existing original windows are to remain. The primary modifications would be made to the porch addition and back porch. On the upper story porch enclosure, the non-historic aluminum slider window and apartment door would be removed. A new double-hung wood window is proposed. On the lower story, two new historically appropriate wood windows would be added. The existing back porch would be extended with new wood balusters to match the existing balusters. The porch stairs would be reconfigured to accommodate the new subterranean lightwell (see below in Figure 6, Existing & Proposed Rear/West Facade).
ATTACHMENT 4
PL23-0052 409 Franklin Street COA and Mills Act Contract 9
FIGURE 6
Rear/West Façade
Existing
Proposed
ATTACHMENT 4
PL23-0052 409 Franklin Street COA and Mills Act Contract 10
D. Right/North Façade
On the north façade, the existing original windows on the ground and upper floor would remain. The basement level windows would be enclosed, retaining the existing openings and filled-in with siding to match the existing siding. The existing shed roof on the second story porch addition would be replaced with a more traditional hip roof form. A new wood cornice on the porch addition below the roofline would complement the historic cornice of the main house without replicating it. A non-historic aluminum slider window on the upper story porch addition would be removed and replaced with a double -hung wood window.
The reconfigured back porch steps are visible on the north façade (see below in Figure 7, Existing & Proposed Right/North Facade).
FIGURE 7
Right/North Façade
Existing
Proposed
ATTACHMENT 4
PL23-0052 409 Franklin Street COA and Mills Act Contract 11
VI. ANALYSIS
A. General Plan & Zoning
The property is in the Traditional Residential General Plan District and Traditional Residential zoning district, which provide for the development and maintenance of a variety of residential building types. New development in the district, including on historic properties, is to complement existing neighborhood and design characteristics.
B. Historic Preservation Ordinance
NMC Chapter 15.52 (Historic Preservation) establishes regulations applicable to properties designated as a Local Landmark. To approve a Certificate of Appropriateness, the Cultural Heritage Commission must make findings pur suant to NMC Section
15.52.070 (F)( 3)(a)-(f). These findings relate to consistency of the Project with the Secretary of the Interior’s Standards, the Historic Preservation ordinance, and Historic Design Guidelines, and are described under the “Required Fin dings” section this staff report.
VII. REQUIRED FINDINGS
Staff has listed each finding and provided a summary analysis of how the project may be found consistent with the findings. These findings are also provided in the draft resolution included as Attachment 1, Draft Resolution.
1. The project preserves, enhances, or restores the exterior architectural features of the Local Landmark.
The project proposes to restore historic architectural features such as the front porch configuration and transom window above the front door. Replacement of incompatible features such as aluminum windows will further enhance the integrity of the local landmark.
2. The project will not result in a substantial adverse change to the integrity of the local landmark or its major exterior character-defining features.
The project does not propose substantial changes to any character-defining features.
3. The project will not adversely affect the special character or special historic, architectural, or aesthetic interest or value of the local landmark.
The project does not propose alterations which would adversely impact the character of the local landmark.
4. The project is consistent with applicable Secretary of the Interior’s Standards.
The Secretary of the Interior has established standards for the rehabilitation of historic properties. The following is a listing of the standards followed by Staff’s analysis of how the standards have been satisfied.
ATTACHMENT 4
PL23-0052 409 Franklin Street COA and Mills Act Contract 12
a. 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.
The property will maintain its original residential use.
b. 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.
Few original materials are proposed to be removed , only minor demolition/reconstruction of non -historic features . Significant features like the porch and entry door/original transom window are being restored.
c. Each property shall be recognized as a physical record of its time, place, and use. Changes that create a false sense of historic development such as adding conjectural features or architectural elements from other buildings, shall not be undertaken.
The project would primarily use forms present on the existing structure to restore portions of the home that have been altered. This includes repair/reconstruction of damaged, deteriorating, or dangerous exterior historic features.
d. Most properties change over time; those changes that have acquired historic significance in their own right shall be retained and preserved.
Later modifications to the home have not acquired their own historic significance and do not contribute to the ch aracter of the home. The existing rear porch enclosure is not representative of the style of the home. The proposed reconfiguration of the rear porch enclosure will better define the property.
e. Distinctive features, finishes, and construction techniques or examples of craftsmanship that characterize a historic property shall be preserved.
The project would maintain the existing character-defining features such as the bay windows on the east and south façades and the cornice with decorative cut frieze blocks and protruding corbels.
f. Deteriorated historic features shall be repaired rather than replaced. Where 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 possi ble, materials. Replacement of missing features shall be substantiated by documentary, physical or pictorial evidence.
Any deteriorated historic features will be repaired.
g. 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.
ATTACHMENT 4
PL23-0052 409 Franklin Street COA and Mills Act Contract 13
No sand blasting or chemical treatments are proposed for the Project.
h. Significant archeological resources affected by a project shall be protected and preserved. If such resources must be disturbed, mitigation measures must be taken.
Earth-disturbing work is limited to the area immediately under and adjacent to the existing residence. In the unlikely event that archeological resources are discovered as part of the foundation excavation, the Applicant will be required to comply with appropriate mitigation measures.
i. 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, scale, and architectural features to protect the historic integrity of the property and its environment.
Exterior alterations would not destroy historic features that characterize the property. Existing massing scale and architectural features would largely be maintained.
New construction is limited to the subterranean level of the home and reconstruction of the non-historic, second story porch enclosure on the rear of the home.
j. 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.
No additions that would impact t he integrity of the historic property are proposed with this project.
5. The project is consistent with applicable historic design guidelines.
The project site is located within the Napa Abajo Fuller Park National Register District, and must meet the Guidance of the Design Guidelines for the Napa Abajo/Fuller Park Historic District. The Guidelines provide five Preservation Principles outlined on Page 10 and include Respecting the historic design character of the building; Seek uses that are compatible with the historic character of the building; Protect and maintain significant features and stylistic elements; Preserve any existing original site features or original building materials and features; and Repair deteriorated historic features and replace only those elements that cannot be repaired. As described in the Project Description and within this report, the Project meets these Preservation Principles.
6. The project will not negatively impact the integrity of a cultural landscape through alteration of special organization, landscape features, circulation patterns, or small scale features that are character -defining features of the resource.
ATTACHMENT 4
PL23-0052 409 Franklin Street COA and Mills Act Contract 14
There are no cultural landscapes associated with the property. The proposed changes to grade to accommodate the ADU access and lightwell will not be readily visible from the street and the overall finished floor elevation of the home will not change.
VIII. MILLS ACT CONTRACT
The property owner has also applied for consideration of a Mills Act Contract. The Mills Act Contract is requested for the purpose of obtaining a property tax reduction to help off-set the cost of repairs that the owners will incur in their efforts to restore and preserve the subject property. The full restoration plan is further described in the Project Description and the Ten -Year Rehabilitation Plan, attached as Attachment 3 and Attachment 6, respectively.
A. Scope of Review
The Mills Act Contract and associated Rehabilitation, Restoration and Preservation Plan requires review and approval by the City Council. However, any restoration or reconstruction work proposed in conjunction with a Mills Act Contract request is subject to the provisions of the City’s Historic Preservation Ordinance and may require review and approval of a Certificate of Appropriateness by the Commission. For Mills Act Contract requests, the Commission’s primary role is to determine whether the site continues to have historic integrity and is therefore eligible for a Mills Act Contract and to review and comment on the restoration/rehabilitation work proposed in the Ten-Year Rehabilitation Plan required to be submitted for each new Contract. A draft copy of the Mills Act Contract and Ten-Year Rehabilitation Plan has been attached to this report for the Commission’s review ( see Attachments 3 and 6, respectively). Upon confirmation of historic eligibility based upon the previously mentioned listing criteria, the Commission will forward a recommendation on the proposed Mills Act Contract to the City Council.
The Mills Act Contract request for 409 Franklin Street proposes immediate improvements as described in the analysis for the accompanying Certificate of Appropriateness. Future exterior alterations may require additional review pursuant to the Historic Preservation Ordinance (NMC Chapter 15.52).
B. Analysis
Proposed rehabilitation projects are fully described in the project description and detailed in the Ten-Year Rehabilitation Plan (see Attachments 3 and 6) and outlined below:
• New foundation, seismic retrofitting, and exterior repairs • Accessory Dwelling Unit
• Landscaping
• Annual and ongoing maintenance and repairs
In order to be considered eligible for the subsequent tax year assessment, a contract must be approved and recorded at the County by the end of the calendar year. Following the Commission’s review, the contract will need to be agendized for City Council review and action. Consequently, the subject contract has been tentatively scheduled for City Council review on July 18, 2023.
ATTACHMENT 4
PL23-0052 409 Franklin Street COA and Mills Act Contract 15
C. Verification of Eligible Historic Status
The subject property is listed on the City’s Historic Resources Inventory as a Local Landmark with Contributing status in the Napa Abajo Fuller Park National Register District. The residential structure was originally built circa 1890 and has been continuously used for residential purposes. More information regarding the history of the F. Martin House is found in Section IV - Site Context and History of this report.
IX. ENVIRONMENTAL REVIEW
Staff recommends that the Cultural Heritage Commission determine that the Project is exempt from the requirements of the California Environmental Quality Act (CEQA) in accordance with the following:
1. Section 15301 which exempts interior and exterior alterations to existing facilities; and
2. Section 15331 (Categorical Exemptions; Class 31), which exempts the rehabilitation of historic resources which are consistent with the Secretary of the Interior’s Standards.
X. PUBLIC NOTICE
Notice of the scheduled public hearing was provided by US Postal Service to all property owners within a 500-foot radius of the subject property on Monday, May 22, 2023. Notice of the public hearing was also published in the Napa Valley Register on Friday, May 26, 2023, and provided to people previously requesting notice on the matter at the same time notice was provided to the newspaper for publication. The Applicant was also provided a copy of this report and the associated attachments in advance of the public hearing on the project.
X. PUBLIC COMMENT
Public comments received prior to publication of the agenda have been included (see Attachment 8). Any correspondence received after publication of the agenda will be made available to the Commission and the public as Supplemental Communications prior to the meeting.
ATTACHMENT 4