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HomeMy WebLinkAboutStaff Report 2407-3290CITY OF PALO ALTO CITY COUNCIL Special Meeting Monday, September 09, 2024 Council Chambers & Hybrid 5:30 PM     Agenda Item     4.CONSENT: Approval of a Record of Land Use Action to Upgrade the Property Located at 431-433 Kipling Street From a Category 4 Resource to a Category 2 Resource on the Local Historic Inventory. City Council Staff Report From: City Manager Report Type: CONSENT CALENDAR Lead Department: Planning and Development Services Meeting Date: September 9, 2024 Report #:2407-3290 TITLE CONSENT: Approval of a Record of Land Use Action to Upgrade the Property Located at 431-433 Kipling Street From a Category 4 Resource to a Category 2 Resource on the Local Historic Inventory. RECOMMENDATION Staff recommends that Council reclassify 431-433 Kipling Street, an existing two-story mixed- use building located in the Downtown North neighborhood, from Historic Inventory Category 4 Resource (‘Contributing Building’) to a Category 2 Resource (‘Major Building’) as Recommended by the Historic Resources Board (HRB). BACKGROUND The subject request is property owner-initiated. This report and Record of Land Use Action (Attachment B) provide background and support for the HRB’s July 11, 2024, recommendation to upgrade the two-story building, located at 431-433 Kipling Street, from Historic Inventory Category 4 (‘Contributing Building’) to Category 2 (‘Major Building’). The HRB staff report1 included the consultant’s assessment and inventory form. These documents are also available on the project webpage (Attachment C). 431-433 Kipling Street is located within the Downtown Commercial Community (CD-C) zone district with a Pedestrian Combining District (P) and provides a contrast to the larger commercial scale and higher density found on University Avenue and sections of Lytton Avenue and Cowper Streets. The building, constructed in 1901 by George W. Mosher, was listed in 1985 as a Category 4 “Contributing Building” to the local historic resources inventory. 431-433 Kipling Street exhibits the characteristics of the two-story square box building type, a Palo Alto residential house type that mixed familiar forms and finishes of the Colonial Revival, American Foursquare, and sometimes vernacular Greek Revival. The building is a unique 1 Link to July 11, 2024 HRB staff report with consultant assessment and inventory form https://cityofpaloalto.primegov.com/Portal/Meeting?meetingTemplateId=14017 example with its off-center entrance, hipped roof, and “shirtwaist” feature that separates the first and second floor with a belt course and cladding of separate materials. ANALYSIS On July 11, 2024, the Historic Resources Board (HRB) reviewed the applicant’s proposal to reclassify the subject building from the current “Contributing Building” designation in Category 4 on the Historic Inventory to Category 2 “Major Building.” The Historic Resource Board (HRB) voted unanimously to recommend that the City Council reclassify 431-433 Kipling Street Avenue to Category 2. The HRB staff report included three detailed findings for the consistency of the qualities of 431- 433 Kipling Street with the Municipal Code Chapter 16.49 definition of a Category 2 resource.2 (1) Under Criterion 2, the structure’s architectural style was one of the predominant forms of residences for the middle- and working-class during the early development of Palo Alto. (2) Under Criterion 5, the builder George W. Mosher made important contributions to the early built environment of Palo Alto. (3) Under Criterion 6, the structure showcases a high level of craftsmanship and architectural design. The analysis concluded that the qualities and values of 431-433 Kipling Street are considerably more significant than the qualities of a Category 4 resource and align more with definition of a Category 2 resource. The HRB discussed its support for the reclassification to a Category 2 resource. The applicant participated in the review of the proposed reclassification and supports this recommendation; no members of the public spoke to the item. The language of the three findings for reclassification that HRB adopted are provided in the attached draft Record of Land Use Action (Attachment B). Each of the three findings reflect the language of the Municipal Code’s definition of Category 2. Reclassification from a Category 4 to a Category 2 resource at the local level could allow for participation in the Floor Area Bonus/Transfer of Development Rights (TDR) program for qualifying rehabilitation projects. The Floor Area Bonus/TDR program is available for qualifying rehabilitation projects for local inventory Category 1 and 2 resources that are (a) zoned CD (Commercial Downtown) as set forth in PAMC Chapter 18.18, (b) zoned PF/City owned property, or (c) zoned Residential Transition (RT-35 and RT-50) in the South of Forest Area Phase 2 (SOFA 2) area. There is no proposed rehabilitation work or request for TDR or a Floor Area Bonus with the applicant’s request to upgrade the local inventory category. 2 PAMC Sec. 16.49.020: Category 2: "Major building" means any building or group of buildings of major regional importance, meritorious works of the best architects or an outstanding example of an architectural style or the stylistic development of architecture in the state or region. A major building may have some exterior modifications, but the original character is retained. POLICY IMPLICATIONS Comprehensive Plan Policy L-7.1.1 provides, in part, to update and maintain the City’s Historic Resource Inventory to include historic resources that are eligible for local, State, or Federal listing. The proposed reclassification from a Category 4 to a Category 2 resource at the local level complies with guiding actions of Policy L-7.1.1 to update the City’s Historic Resource Inventory. Further, the project supports City efforts as provided by Comprehensive Plan Goal L-7 for the conservation and preservation of Palo Alto’s historic buildings, sites, and districts. Reclassification as a Category 2 would ensure future proposed development is reviewed in accordance with the procedures outlined in PAMC Chapter 16.49. FISCAL/RESOURCE IMPACT There is no fiscal or resource impact associated with this application. The City’s consultant costs were covered by the property owner through permit fees. ENVIRONMENTAL REVIEW Maintenance of historic designation of a property or reclassification of historic designation of a property is not a project under the California Environmental Quality Act and CEQA Guidelines Section 21065 because it will not cause a direct change to the physical environment nor a reasonably foreseeable indirect physical change in the environment. PUBLIC NOTIFICATION, OUTREACH & COMMENTS The Palo Alto Municipal Code requires notice of this public hearing to be published in a local paper and mailed to owners and occupants of property within 600 feet of the subject property at least ten days in advance. Notice of a public hearing for this project was published in the Daily Post on August 30, 2024, which is 10 days in advance of the meeting. As of the writing of this report, no project-related, public comments were received. ATTACHMENTS Attachment A: Location Map Attachment B: Draft Record of Land Use Action Attachment C: Project Webpage with Plan Set APPROVED BY: Jonathan Lait, Planning and Development Services Director LYT T O N A V E N U E WAV E R L E Y S T R E E T COW P E R S T R E E T KIPL I N G S T R E E T UN I V E R S I T Y A V E N U E COWPER STR E E T LAN E 3 0 PC-4 2 9 6 37.5' 105 . 5 ' 37.5' 105.5' 37.5' 105. 5 ' 37.5' 105.5' 93.0' 105. 5 ' 168.0' 112. 5 ' 168.0 ' 112.5' 40.0' 112 . 5 ' 40.0' 112.5'50.0' 112. 5 ' 50.0' 112.5'50.0' 112 . 5 ' 50.0' 112.5' 36.0' 95.0' 36.0' 95.0' 39.0' 37.5' 18.0' 75.0' 57.0' 112.5' 107.0' 50.0' 107.0 ' 50.0'107.0' 25.0' 107.0 ' 25.0' 20.0' 50.0' 130.0' 100. 0 ' 125.0 ' 37.5' 25.0' 112.5' 50.0' 112. 5 ' 14.0'17.5'36.0' 130.0' 130.0' 50.0' 130.0 ' 50.0' 50.0' 218 . 0 ' 50.0' 218.0' 45.0' 112. 5 ' 45.0' 112.5' 45.0' 105 . 5 ' 45.0' 105.5' 110.0' 100 . 0 '110.0 ' 100.0' 110.0' 25.0' 110.0 ' 25.0' 110.0' 110.0 ' 50.0' 50.0' 72.5' 75.0' 72.5' 80.0' 30.0' 80.0' 85.0' 85.0' 10.0' 50.0' 10.0' 50.0' 83.0' 62.5' 118.0' 62.5' 118. 0 ' 118.0' 100. 0 ' 118. 0 ' 100.0' 100.0' 112. 5 ' 262.5 ' 225.0'225. 0 ' 130.5 ' 225.0' 93.0' 112. 5 ' 93.0' 112.5' 100.0' 112 . 5 ' 100. 0 ' 112.5'53.0' 112. 5 ' 53.0' 112.5' 65.0' 140.0 ' 65.0' 100.0' 112. 5 ' 100.0' 112. 5 ' 100.0' 112. 5 ' 100.0' 112. 5 ' 100.0' 112. 5 ' 100.0' 112. 5 ' 225. 0 ' 130.5 ' 225.0' 225. 0 ' 130.5 ' 225.0' 225. 0 ' 130.5 ' 225.0' 7-11 463 480 530 405 431 433 437 440 332 360 473- 479 425 415 - 4 1 9 460- 476 436- 452 489- 499 347 - 359 411 421 425 419 405 450 423 443 451 463 440 480 499 430 431 444 441439 423 453 361 457 451 465 420 430 342 340 338 450 This map is a product of the City of Palo Alto GIS This document is a graphic representation only of best available sources. Legend Assessment Parcel Palo Alto Assessment Parcel Outside Palo Alto abc Road Centerline Small Text (TC) Current Features Districts Sidewalk Edge (RF) abc Dimensions (AP) Tree (TR) Road Edges (OG) abc Building Roof Outline (BL) Address Label Points (AP) 0'50' Attachment A Location Map431-433 Kipling St CITYOF PALO ALTOINCORPORATED CALIFORNIA P a l o A l t oT h e C i t y o f APRIL 16 1894 The City of Palo Alto assumes no responsibility for any errors. ©1989 to 2016 City of Palo Altosswitze, 2024-06-24 08:38:18 (\\cc-maps\Encompass\Admin\Meta\View.mdb) Page 1 of 2 ATTACHMENT B APPROVAL NO. 2024-____ RECORD OF THE COUNCIL OF THE CITY OF PALO ALTO LAND USE APPROVAL FOR 431-433 KIPLING STREET: HISTORIC RESOURCES INVENTORY CATEGORY 4 TO CATEGORY 2 UPGRADE (24PLN-00134) On September 9, 2024, the Council held a duly noticed public hearing and, after considering all of the evidence presented, approved the property owner’s request to reclassify the commercial building at 431-433 Kipling Street currently a Local Category 4 Historic Resource. The Council approved the Historic Resources Board (HRB) recommendation to an upgraded level, Category 2 Historic Resource on the City of Palo Alto Historic Resources Inventory. In approving the application, the Council make the following findings, determination, and declarations: SECTION 1. Background. A.On May 8, 2024, the property owner contacted staff to request a reclassification of a two-story mixed-use building at 431-433 Kipling Street, designed by George W. Mosher in the Two-Story Square Box building type with Craftsman stylistic influences and completed in 1901, from a ‘Contributing Building’ Category 4 resource to a ‘Major Building’ Category 2 resource on the Palo Alto Historic Inventory. With the owner’s request and funding, staff obtained a historic resource evaluation from the City’s consultant, Page & Turnbull, including an integrity evaluation to understand building’s eligibility for a classification upgrade. The historic resource evaluation supports a classification upgrade to a Category 2 historic resource. The consultant describes the building’s eligibility in a report dated March 19, 2024, noting its eligibility under local criteria 2, 5, and 6: •Criterion 2 (The structure or is particularly representative of an architectural style or way of life important to the city, state or nation) 431-433 Kipling Street is an excellent extant example of the Two-Story Square Box house type in Palo Alto’s Downtown North neighborhood. The Two-Story Square Box is a Palo Alto residential house type that mixed familiar forms and finishes of the Colonial Revival, American Foursquare, and sometimes vernacular Greek Revival. The subject building is an early extant example of this important building type and is also a unique variation featuring a hipped roof, simple Tuscan columns, and a flat front façade, instead of the more common front or cross-gabled roof and projecting bay window. •Criterion 5 (The architect or building was important) George W. Mosher was a builder-of-merit who made important contributions to the early built environment of Palo Alto. While Mosher’s works are considered more modest in size and design compared with other architect-designed residences from the same period, he built and designed numerous Two-Story Square Box house types and was the builder for several larger high style residences in Palo Alto. The subject building is an important extant example of George W. Mosher’s contributions to the high-quality housing stock built in Palo Alto’s early period of development. •Criterion 6 (The structure or site contains elements demonstrating outstanding attention to architectural design, detail, materials or craftsmanship) 431-433 Kipling Street showcases the high level of craftsmanship and architectural design implemented by builder-of-merit George W. Mosher. Elements of the façade that meet the Page 2 of 2 definition of Criterion 6 include original wood windows with one-over-one doublehung sashes, ogee lugs, an original transom with checkered mullions, the use of a “Shirtwaist” belt course and flared shingle siding, and high-quality tongue-and-groove siding. 1. On July 11, 2024, the HRB received a staff report (ID #2405-3082), conducted a public hearing, and concurred with the consultant’s evaluation regarding the building’s eligibility for category upgrade from the current local historic inventory Category 4 to Category 2. SECTION 2. Environmental Review. The project is exempt from the provisions of the California Environmental Quality Act (CEQA), as it is not a project under CEQA Guidelines per Section 21065. SECTION 3. Designation Findings. A. The following criteria, as specified in Municipal Code Section 16.49.040 (b), shall be used as criteria for designating historic structures/sites to the historic inventory: 1.The structure or site is identified with the lives of historic people or with important events in the city, state or nation; 2.The structure or site is particularly representative of an architectural style or way of life important to the city, state or nation; 3.The structure or site is an example of a type of building which was once common, but is now rare; 4.The structure or site is connected with a business or use which was once common, but is now rare; 5.The architect or building was important; 6.The structure or site contains elements demonstrating outstanding attention to architectural design, detail, materials or craftsmanship. The building at 431-433 Kipling Street met many of the above criteria when it was first listed on Palo Alto’s Historic Resource Inventory in 1985. With the historic assessment in 2024, the building’s status as a historic resource has remained per Page & Turnbull’s conclusion. B. The definition of Category 2 in Municipal Code Section 16.49.020 (b) must be met to allow the upgrade to the structure’s category designation: Category 2 Definition: "Major building" means any building or group of buildings of major regional importance, meritorious works of the best architects or an outstanding example of an architectural style or the stylistic development of architecture in the state or region. A major building may have some exterior modifications, but the original character is retained. The applicant requested and the consultant found Category 2 appropriate for this building. Page & Turnbull historic consultant supported applicant’s request. The City’s consultant found the building at 431-433 Kipling Street meets the Palo Alto Inventory Category 2 Definition. The integrity evaluation found that the building at 431-433 Kipling Street retains all seven aspects of integrity (location, setting, design, materials, workmanship, feeling, and association). The minor exterior modifications cited in the consultant’s report have not caused the building to lose its original character. Page 3 of 2 National Register of Historic Places and California Register of Historical Resources listing: 431-433 Kipling Street is currently listed in the City of Palo Alto Historic Inventory as a Category 4: “Contributing Building.” It was surveyed for the Historic Resources Inventory and added to the local register in 1985. SECTION 4. Category Upgrade Approved. The City Council approves the property owner’s request for re-classification of 431-433 Kipling Street to a Category 2 historic resource on the City’s Historic Resources Inventory. PASSED: AYES: NOES: ABSENT: ABSTENTIONS: ATTEST: APPROVED: _________________________ ____________________________ City Clerk Director of Planning and Development Services APPROVED AS TO FORM: ___________________________ Deputy City Attorney Attachment C Direct Link to Project Webpage: https://www.cityofpaloalto.org/Departments/Planning-Development-Services/Current- Planning/Projects/431-Kipling-Street