#6 Introduce, refer to Plan Commission and schedule public hearing on ordinance creating Historic District Plan (File Ord. #2011-490)Community Development Department Memorandum
Date: June 13, 2011
TO: Janesville City Council
FROM: Gale Price, Manager of Building & Development Services
SUBJECT: Introduce, refer to Plan Commission and schedule a public hearing on a
proposed ordinance which creates the Historic District Plan for the
Downtown Historic Overlay District (File Ordinance No. 2011-490).
_____________________________________________________________________
The Historic Commission, at the request of the Downtown Development Alliance, has
written the attached Historic District Plan for the Downtown Historic Overlay District. As
a step towards adoption of the Downtown Historic Overlay District, the City Council
must adopt an ordinance creating the District Plan.
The Plan was completed and adopted by the Historic Commission in August, 2010. The
City realizes the importance of preserving and protecting architecturally and historically
significant buildings and sites. The plan outlines the historic significance of the
downtown area, the types of architectural styles and which buildings are which style, the
guidelines for preservation and includes a map of the proposed district area.
The Community Development Department recommends that following the first reading
of Ordinance No. 2011-490, it be referred to the Plan Commission for review and
recommendation and then scheduled for public hearing on August 8, 2011.
cc: Eric Levitt
Jay Winzenz
ORDINANCE NO. 2011-490
An ordinance which creates the Historic District Plan for the Downtown Historic Overlay
District.
WHEREAS, the zoning ordinance in the Code of General Ordinances provides for the
creation of historic overlay districts; and
WHEREAS, the historic overlay district regulations provide that the Historic Commission
may, with the assistance of the City Planning Department, prepare an historic district
plan for each area recommended to be designated as an historic overlay district; and
WHEREAS, the Historic Commission may establish guidelines and development criteria
for the Historic Overlay District Plan to serve as a guide for making changes which will
be sensitive to the architectural integrity of the structures and appropriate to the overall
character of the district; and
WHEREAS, the City Council has determined that the adoption of the Downtown Historic
Overlay District Plan is in the public interest.
NOW THEREFORE BE IT RESOLVED THAT THE COMMON COUNCIL OF THE CITY
OF JANESVILLE DO ORDAIN THAT IT HEREBY APPROVES THE DOWNTOWN
HISTORIC OVERLAY DISTRICT PLAN which is attached to this ordinance and
incorporated by reference.
This ordinance shall take effect immediately upon adoption by the Common Council, the
public health, welfare, peace, tranquility, good order, public benefit, and police power so
requiring.
ADOPTED:
Motion by:
Second by:
APPROVED:
Councilmember Aye Nay Pass Absent
Brunner
Dongarra-Adams
Eric J. Levitt, City Manager
Liebert
McDonald
ATTEST:
Rashkin
Steeber
Voskuil
Jean Ann Wulf, City Clerk-Treasurer
APPROVED AS TO FORM:
Wald Klimczyk, City Attorney
Proposed by: Historic Commission/Downtown
Development Alliance
Prepared by: Community Development Department
DOWNTOWN HISTORIC OVERLAY
DISTRICT PLAN
JANESVILLE HISTORIC COMMISSION
August 2010
DOWNTOWN HISTORIC OVERLAY DISTRICT PLAN
I. INTRODUCTION
The City of Janesville realizes the importance of preserving and protecting
architecturally and historically significant buildings and sites. The preservation of
historic structures helps a community maintain its individuality, uniqueness, and special
sense of place.
The purpose of the Downtown Historic Overlay District Plan is to direct the preservation,
maintenance, and restoration of Janesville’s downtown historic buildings and individual
historic districts, four of which are on the National Register of Historic Places. The plan
is intended to stabilize and promote the revitalization and conservation of the downtown
area, which, in the long run, will benefit the entire city. According to the Downtown Plan
and Revitalization Strategy adopted by the Plan Commission in 1988 and also included
in the 2007 Downtown Vision and Strategy, “The presence of the Rock River and a
substantial number of historically and architecturally significant structures along Main
Street and Milwaukee Street help define the image of the city and contribute to the
urban fabric of the downtown.”
The City is concerned about projects that would destroy the architectural integrity of the
District’s historic buildings and the qualities that have given the downtown its special
character and identity. The District’s historical buildings and neighborhoods can be
safeguarded by the Janesville Historic Commission’s review of both exterior alterations
to older buildings and proposed new constructions. Therefore, the City is requiring that
alterations to existing historic structures and proposed new constructions be reviewed
by the Janesville Historic Commission.
Historic Commission reviews can help safeguard against unsympathetic projects that
would destroy the quality and integrity of the District’s historic buildings and
neighborhoods. Assuring that changes in an area’s physical appearance will be
carefully monitored to preserve its unique historical character will also have a positive
effect on property values. In addition, Commission reviews would remove many of the
uncertainties about future building alterations or changes in land use that might
adversely affect adjoining structures.
II. WHAT THE PLAN IS ABOUT
The City Council has the authority to designate and establish Historic Overlay Districts.
When such a district is created, permit requests for new construction, alterations,
additions, and demolitions for properties in the designated Overlay District are required
to be submitted to the Historic Commission for review. The review process is
established to assist property owners in making their desired changes in a manner
which is sensitive to the existing building’s architecture and/or that of the surrounding
neighborhood.
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III. LOCATION AND DESCRIPTION OF THE DOWNTOWN HISTORIC OVERLAY
DISTRICT
The Downtown Historic Overlay District would include most of the original central
business district, that is to say, the four National Register Historic Districts, individually
listed buildings or building groups, and the area connecting these.
The district is primarily commercial in character.
The map shows the boundaries of the district.
IV. LOCAL ARCHITECTURAL AND HISTORICAL SIGNIFICANCE OF THE
DOWNTOWN HISTORIC OVERLAY DISTRICT.
From the beginning, West Milwaukee Street on the west side of the Rock River, and
East Milwaukee and North and South Main Streets on the east side, formed the main
commercial and retail spine of the city. The buildings on the east side, near the county
courthouse, tended to house banking and professional offices as well as merchants,
while the west side provided a mixture of shops and services. Various industrial firms
were located on both sides of the river but were concentrated near the raceway and
dam.
A. Significance
Downtown Janesville is particularly significant for both its remaining handful of
very distinctive buildings and its considerable number of still-intact streetscapes
composed of smaller buildings.
B. Historic Architectural Styles
The earliest commercial structures on both sides of the river were typically one to
three story frame buildings that were eventually replaced by those of brick.
There are two primary building types representative of the period between 1845
and 1900. The first type is a narrow, party wall store that housed a retail
business on the first level and apartments or offices above. Good examples of
this building type are found on North and South Main Streets. The second type
is a large business block, usually constructed on a prominent corner lot which
provided for a number of businesses at the ground level and many offices or
apartments above. The Lappin-Hayes Block at 2 South Main Street/20 East
Milwaukee Street is the best remaining example of this type of structure. The
large business blocks also provided public halls and meeting rooms that served
performing groups, fraternal organizations, and a variety of other groups. Large,
multi-story hotels were also once an important building type.
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The commercial façade served to advertise the businesses within the building to
the passerby. The typical commercial building was provided with a prominent
display window. Awnings and a variety of signs also occupied this zone of
display space. The architectural treatment of the upper stories was usually
concentrated at the windows and roofline.
The buildings reflect a number of architectural styles from the earliest Greek
Revival to Art Deco and Moderne, as well as a number of Commercial
Vernacular and Twentieth Century Commercial buildings. Examples of the
various styles include the following:
1. .
Greek Revival
: 21 ½ North Main Street, 1855
12-16 South Main Street, 1851
The second story window treatment is notable for the characteristic use of
simple stone sills and lintels. Locally manufactured cast iron columns are
exposed at the entry.
Italianate
2. : 33-39 South Main Street, 1868-1869.
The heavy hoodmoldings over the regularly placed windows and the deep
corbels at the cornice provide a rich surface of light and dark.
113-123 West Milwaukee Street, 1869
This group of blocks has the major elements of commercial Italianate
design including cornices with brackets and arched windows. They mirror
each other in design with unusual parapets with cornices, giving a
distinctive appearance in the district.
Second Empire
3. : 38 South Main Street, 1868.
The building was designed to accommodate both the First Methodist
Episcopal Church on the upper level and commercial tenants on the
ground floor. The distinctive mansard roof, a hall mark of the French
Second Empire style, is the only commercial example and one of the few
examples in the city of this style.
Queen Anne
4. : 52 South Main Street, 1895
121 East Milwaukee Street, 1893
The Queen Anne style buildings are known for their irregularity of plan and
massing, a variety of surface textures, multiple rooflines, and projections,
including oriel windows and turrets.
Georgian Revival
5. : 15 North Jackson Street, 1928
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Details on this structure include an entry pavilion, entrance porch with
classical columns and a balustrade, multi-paned windows, and an overall
appearance of formality and symmetry.
Art Deco
6. : 5 South High Street, 1930
The Monterey Hotel has decorative terra cotta trim that is applied in a
manner that gives a sense of height to the building. The terra cotta coping
flows from the projecting pavilions. Peaked lintels over the top floor
windows also suggest height.
Commercial Vernacular
7. , Many examples, 1850-1920
These are simply designed commercial buildings primarily of the late
nineteenth century. They typically have the large show windows
associated with historic storefronts and unadorned doors with transoms.
On upper floors there are usually unadorned window openings.
Sometimes they have plain cornices made up of brick corbelling or wood
or metal moldings.
C. Definition of Contributing and Noncontributing
The buildings in the district have been classified as being either contributing or
noncontributing.
Contributing structures fulfill general guidelines of the U.S. Department of the Interior:
architectural/historic significance; representative of a type, method, or period of
construction; and at least 50 years of age. The contributing classification includes
simpler versions of major architectural styles as well as buildings which have lost some
integrity, but which maintain the general form or some of the stylistic features of these
styles and which contribute to the overall scale and rhythm of the district.
Noncontributing structures are those which have no historic or architectural significance,
and/or represent a significant loss of integrity through extensive remodeling. Other
noncontributing structures are those which were constructed later than the period of
significance and which do not fall within the exception criteria guidelines.
The list of properties included within the Downtown Historic Overlay District boundaries
also identifies those properties which are contributing, noncontributing, and vacant.
V. PRESERVATION GUIDELINES
The preservation guidelines which follow represent the principal concerns of the City of
Janesville, which recognizes the value and importance of preservation in the downtown
historic district. Subsequently, the Janesville Historic Commission has been
empowered to make recommendations based upon particular design submissions.
4 August 26, 2010
These guidelines shall be applicable only to the Downtown Historic Overlay District.
The Commission will use the Secretary of the Interior’s Standards for Rehabilitation and
Guidelines for Rehabilitating Historic Buildings as well as the City of Janesville’s
Downtown Design Guidelines (DDG), revised edition (May, 2010), for references in
determining whether a Certificate of Appropriateness should be issued. Nothing in
these guidelines shall be construed to prevent ordinary maintenance or restoration
and/or replacement of documented original elements.
A. Guidelines for Rehabilitation
These guidelines are not intended to restrict an owner’s use of his/her property, but to
serve as a guide for making changes which will be sensitive to the architectural integrity
of the structure and appropriate to the overall character of the district. The following
guidelines will be used by the Historic Commission in issuing a Certificate of
Appropriateness for alterations and additions in the Downtown Historic Overlay District.
1. General Guidelines
a).
Commercial buildings of historic form are generally composed of a
storefront, possibly with an upper façade, consisting of one or more levels.
When an upper façade exists, the building should be treated as a whole.
When more than one business is located within a building, the building
should be treated as a whole, with each storefront having separate
signage and awnings, if desired.
b.)
Alterations to existing buildings should not remove or radically
change façade features that are important in defining the overall historic
character of the building. For those properties that are determined to not
contribute architecturally to the district, alterations to the existing building
will be reviewed for their merit and cohesion with the district character.
Age of a property is not the sole factor in determining a building’s
contribution to the district, and new construction within the district can also
be important to the district’s history and fabric.
c.)
Alterations to existing commercial buildings or new construction in
the downtown district should reflect a commercial rather than a residential
character. Residential features, such as doors, windows, and lighting
scaled to home use, are inappropriate in the district. Residential uses of
upper levels of commercial property are encouraged; however, the
architecture should remain commercial especially at the storefront level.
d.)
The introduction of features to a building that cannot be documented
historically and which are not stylistically appropriate should not occur.
e.)
Repairs to features of an existing building should occur whenever
possible. If replacement is necessary, materials should be in kind or of
compatible substitute materials. If substitute materials are used for
5 August 26, 2010
replacement, the same visual appearance should be conveyed and the
materials should be physically and chemically compatible with original
materials. The painting or treatment of unpainted masonry is usually not
appropriate.
2. Guidelines for Specific Features of Existing Buildings
NOTE: This section is cross-referenced to specific pages or sections of
the City of Janesville’s Downtown Design Guidelines (DDG), revised ed.,
May 2010.
a. Bulkheads
(): These are the bases on which the large
DDG, p. 8
plate glass panels rest. Repair or replacement should be made in kind or
with compatible substitute materials. Common materials originally used
include wood, brick, and metal.
b.Display Windows
(): These are generally composed
DDG, pp. 8-10
of large sheets of plate glass for purpose of display. These should not be
reconfigured in order to alter the rhythm of the fenestration or to increase
or decrease the window area. The use of colored or tinted glass is
generally inappropriate. Highly mirrored glass, regardless of the tinting
hue, is not appropriate in this district. If the framing material was wood, it
should be retained. In some cases replacement with painted metal frames
may be appropriate. Unpainted metal is not an appropriate finish for
frames.
c.Pilasters and Columns
(): These features provide
DDG, p. 6, p. 8
the support necessary for the weight of the upper façade. Repair and/or
replacement should be made in kind or with compatible substitute
materials. Common materials originally used include: decorative cast iron,
brick, and wood. Removal of these features and the resulting alteration of
the rhythm of the façade is not appropriate and may cause structural
problems. These features are integral to the form of commercial buildings
and should not be covered up as part of a remodeling or renovation.
d.Entrance
(): This feature was historically composed
DDG, pp. 7-10
of either single or double doors and located on the same plane as the
façade, recessed, or angled on corner properties. The alteration of the
original entry configuration of a building is generally inappropriate.
Recessed entries should be maintained. The addition of recessed entry is
not appropriate without historical documentation of its original existence.
Restoration of the historic configuration is recommended for those
properties previously altered. Existing appropriate entryways should be
maintained regardless of use or non-use by the business. Glazed,
paneled, wooden doors are generally most appropriate. Metal doors of
the same configuration can be painted to achieve a similar appearance.
6 August 26, 2010
Unpainted metal doors are not appropriate. Solid wood or metal doors are
not appropriate for street facades. Entrances at alleys should use the
same type of glazed panel doors as at the street if the entry is for public
use.
e.Transoms
(): These are window panels often found
DDG, pp. 8-10
over entryways and display windows. Historically they served to allow
light and air into the building. Repair and/or replacement of a transom
should be in kind or with a compatible substitute material. Common
materials originally used include: clear glass, stained or colored glass, and
textured glass. This feature was often stationary, but sometimes
configured to tilt open, especially over entryways. The removal of this
feature due to lowered ceilings is inappropriate. When installing lowered
ceilings, this feature can remain intact with no alteration. If the visibility of
mechanical equipment is a problem, the windows can be painted black or
a dark gray from the inside of the window to achieve a look of darkness.
Another option is to recess the lowered ceiling at least 1.5 feet from the
transom area.
f.Upper façade windows
(): These features serve to
DDG, p. 10
promote the rhythm of the building as well as offer light and air to the
upper levels of the building. Upper floors were often used for housing and
offices. The enclosing or bricking-in of this feature is inappropriate. If the
space is not to be used, it is recommended that plywood, painted black,
be mounted behind the windows from the inside. This will allow the space
to appear dark and prevent storage areas from being visible. Small holes
in the plywood may be needed for air circulation. Repair or replacement
of this feature should be in kind or with appropriate substitute materials.
The alteration of the number of windowpane divisions original to each
window is not appropriate in most cases. Any decorative materials such
as hood moldings should be retained. Introduction of these features
without historical documentation is not appropriate. Windows should not
be increased or decreased in size or shape. Preserve the window frame,
sash, and surrounds. Repair rather than replace the original windows
wherever possible. If repair is not feasible, replace with windows that
match the existing windows as closely as possible. Size, shape. frame
and trim material, method of operation, size of sash members, window
frame elements, and the pattern of divided lights are important features to
replicate. The window opening itself should be carefully preserved. It
should not be made larger or smaller to accommodate a differently sized
window. In some circumstances, metal-clad or vinyl-clad wood windows
may be utilized provided they replicate the shape, detailing and form of the
original windows as closely as possible.
g.Cornices
(): This feature serves as a visual cap to the
DDG, p. 9
building and may include features such as built-in gutters. Repair and/or
7 August 26, 2010
replacement of this feature should be in kind or with compatible substitute
materials. Common materials used include wood, terra cotta, and metal.
The removal of this feature is not appropriate. If this feature is missing or
lost, it can be replaced with simple stylized designs. Complex or unique
designs are not appropriate without historical documentation of the original
appearance.
h.Roofs
(): This feature is most often flat; though double
DDG, p. 9
pitched roofs were sometimes used. Parapet walls were often found on
the front or sides of historic commercial buildings. These should be
repaired or replaced in kind. Masonry is the most common material for
this feature. Removal of this feature is not appropriate. Mechanical
equipment should be placed where the equipment cannot be seen from
the right of way.
i.Masonry
(): This generally refers to brick or stone used
DDG, p. 11
as the construction or facing material for a building. Generally, this
involved individual pieces being placed together with mortar. Masonry can
be kept clean with low-pressure washing as needed. Sand-blasting is
never an alternative since it permanently damages the material and
hastens deterioration. Mortar joints tend to deteriorate over time,
generally at a faster rate than bricks. When repointing is needed, the
same bricks should be used, if possible, or bricks matching the original.
The mortar type used should also match the original mortar type and be of
the same color, consistency, and spacing as the original. The joint finish
should also be similar to the original. The use of new or non-blending
bricks and unmatched mortar is not appropriate. The painting of
unpainted masonry is not appropriate. The removal of paint from those
structures originally unpainted is recommended only if the process can be
successful without harming the material. The gentlest means possible
should be used. Masonry walls should never be covered by another
material such as wood or artificial siding.
3. Signage
()
DDG, pp. 12-14
All signs shall comply with the City of Janesville Sign Ordinance. Signs
should be oriented toward pedestrian traffic and not vehicular traffic. Wall
signs should be mounted above the storefront display windows and below
the second-story window sills. They should not extend past the storefront
opening. Window signs should not obscure the display area. Signs
should be placed so that architectural details and ornamental features
remain uncovered. Signs for multiple storefronts within the same building
should align with each other. Sign materials should be consistent with or
complement the original construction materials and architectural style of
the building façade. Wood and metal are more appropriate than plastic.
8 August 26, 2010
Awnings and Canopies
4. ()
DDG, p. 14
The canvas awning was an important design element in the traditional
storefront. An awning can be attached above the display windows and
below the cornice or sign panel. Or it could be mounted between the
transom and the display windows allowing light into the store while
shading the merchandise and pedestrians from the sun. An awning
should not cover the piers or the space between the second-story window
sills and the storefront cornice. Fixed aluminum awnings and awnings
simulating mansard roofs and umbrellas are generally not appropriate for
older commercial buildings. Soft canvas or vinyl materials are
appropriate, while wood or metal are generally not appropriate. “Long
dome” or convex awnings are usually not appropriate. Awnings should be
in proportion to the overall building façade and should match the width of
the storefront or window opening. The awning should not extend into the
second story façade.
B. Guidelines for New Construction andAdditions
1. General
():
DDG, pp. 3-6 and A.5, p. 7
Additions and new construction should be evaluated as they relate to their
surroundings as well as for design. Infill construction should reflect some of
the detailing of surrounding buildings in window shape, cornice lines, and
brick work. The new building should not stand out from others.
2. Specific areas to consider include the following:
a. Height:
The height of infill new construction should reflect the height
of adjacent buildings. The new building should not be too high or too low.
b. Width
: For an infill building, the façade width should fill the entire
space and reflect the characteristic rhythm of façades along the street. If
the site is large, the façade should be broken into a number of smaller
bays.
c. Relationship to Street
: The setback of infill buildings should be
similar to those around it, generally built to the lot line. An exception could
be granted if the setback is pedestrian-oriented and contributes to the
character of the streetscape. A parking area abutting the street should
have the edge materially delineated (e.g. with brick wall, fencing, or
landscaping). Building entrances should be located so that pedestrians
can reach the front door from both the street and the parking areas.
d. Roof Forms
: Roof lines of new construction should be similar to those
of adjacent buildings. A flat roof is generally preferred.
9 August 26, 2010
e. Proportion
: Proportion refers to the relationship between height and
width. New construction shall have massing and configuration similar to
other buildings in the area. Factors which affect a building’s mass are
total height, floor height, width, and roof lines.
f. Proportion of Openings:
The size and proportion of window and door
openings of new construction should be similar to other buildings on the
block. The ratio of window area to solid wall for new construction should
be similar to other buildings in the block.
g. Windows
: On upper floors, the windows should be vertically oriented.
Arched tops, columns framing the windows, and decorative lintels are
encouraged. The openings should appear as “punched openings” within a
solid wall, rather than as windows separated only by their frames. A solid
wall must appear to be the main supporting element.
h. Rhythm:
Refers to the size, proportion, and spacing of window and
door openings. These should be similar to other buildings on the block.
The ratio of window area to solid wall for new construction shall be similar
to other buildings on the block.
:
i. Materials
Traditional materials including brick, stone, and stucco
should be used as the primary building materials.
:
j. Colors
The color of buildings should complement the adjacent
buildings’ colors.
3.Utilities and Utility Areas
()
DDG, p. 12
Small utilities and utilitarian features should be situated so as to minimize
their negative visual impact. Larger utility areas should be screened from
view of pedestrians and street traffic.
4. Parking Lots
(DDG, pp. 15-16)
Parking lots should not be placed in front of a new building, but should be
located behind or to the side of buildings. In general, surface parking lots
should be contained within the interior of a block. There should be a clear
separation between vehicular parking areas and pedestrian areas.
Pedestrian scale landscaping, fencing, and/or walls should be provided to
delineate the parking area from the pedestrian sidewalk. Generally,
parking structures should have commercial, retail, or office uses on the
ground floor. The primary façade of a parking structure should be
designed to be compatible with neighboring buildings.
10August 26, 2010
5.Additions
()
DDG, p. 7
Additions to existing buildings should respect the existing relationship of
buildings to the street, including setbacks. Additions should use materials
sizes, details, and proportions that are compatible with the existing
structure. If possible, the original building’s primary street façade should
remain clearly delineated while the addition is set behind or to the side.
C.Guidelines for Demolition
()
DDG, Sec. D, p. 16
Any demolition request shall be accompanied by additional documentation
indicating the existing condition of the building and the proposed use of the
site. Documentation should include proposed elevations and an explanation
of why it is not feasible to use the existing building.
11August 26, 2010