Community Development Department Planning Division 1600 First Street + P.O. Box 660 Napa, CA (707)

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1 Community Development Department Planning Division 1600 First Street + P.O. Box 660 Napa, CA (707) CULTURAL HERITAGE COMMISSION STAFF REPORT JUNE 3, 2014 AGENDA ITEM 7.A.: COA, ARCHER HOTEL (MERRILL S BUILDING REMODEL) I. GENERAL INFORMATION PROJECT SUMMARY: Request to remodel the Merrill s Building at First Street, which is listed on the City s Historic Resource Inventory. LOCATION OF 1212 & 1238 First Street PROPERTY: APN & 021 GENERAL PLAN: ZONING: DCC, Downtown Core Commercial DCC, Downtown Core Commercial APPLICANT: Napa LW Hotel Associates Phone: (316) Mike Daood 8100 E 22 nd Street, North Building 500 Wichita, KS STAFF PLANNER: Scott Klingbeil, Senior Planner Robert Reber, Senior Planner Phone: (707) LOCATION MAP N

2 Archer Hotel Cultural Heritage Commission # II. PROJECT DESCRIPTION The applicant is requesting approval of a Certificate of Appropriateness for the Archer Hotel project to authorize the renovation of the commercial building and storefront at First Street, which is popularly known as the Merrill s Building. The building is listed as a local landmark on the City s Historical Resource Inventory and has been assigned a California Historical Resource Status Code (CHRSC) of 3S (appears eligible for National Register inclusion as an individual property through survey evaluation). The proposed project involves construction of a five-story, 183-room hotel at 1212 & 1238 First Street. The ground floor of the hotel will feature a lobby, a restaurant/bar, and up to seven individual retail spaces. The second floor of the hotel will feature guest rooms, along with several meeting/event spaces, and an outdoor terrace. Floors three, four and five are dedicated solely to guest rooms. On the roof of the building, a 7,000- square-foot rooftop bar/lounge and show kitchen are proposed that will be open to the public, along with a pool and sun deck area that will be accessible to hotel patrons only. The main entrance to the hotel will be located on First Street, along with approximately 16,500 square feet of retail space that is incorporated into the ground floor of the development. The new configured retail spaces are oriented to three sides of the building with entrances off the main pedestrian corridor serving the Shops at Napa Center, First Street, and Coombs Plaza (Street). The proposed development will include the conversion of Coombs Plaza back into a public street. This reconstructed street will provide access to the loading dock and service area which is proposed in the northeast corner of the building. A pedestrian loading zone will be located along First Street, and Coombs Street will also provide a secondary pedestrian loading zone for busses and limousines for guests of the hotel. The design of the hotel building incorporates the Merrill s Building façade into the First Street elevation, reflecting the building s strong horizontal lines and vertical supporting elements. The First Street façade of the hotel features large balconies/patios on the upper stories that are set back from the historic façade. With the exception of the Merrill s façade, all existing buildings on the site will be demolished, including the building which previously housed Ben & Jerry s ice cream shop and a portion of the retail space that is located to the north of that building. The proposed renovation includes removal of the non-historic shell of the building and retention and rehabilitation of the historic (south) front façade and a portion of the west facade. The proposed new construction includes: A new multi-story addition behind the historic resource; New construction to the rear and west side of the historic resource; Exterior alterations to the historic structure, specifically the replacement of non-historic storefront windows and doors. The architect s intent with the renovation is to maintain all historic forms, elements, and materials. The project has been analyzed in two separate historic reports: Archer/Shops at Napa Center Historic Resources Report (the Historic Resource Report ), a March 2014 report prepared by Ripley Scoggin Partners; and First Street, Napa

3 Archer Hotel Cultural Heritage Commission # Historic Resource Summary & Project Evaluation (the Historic Resource Evaluation ), an April 16, 2014 report prepared by Preservation Architecture (see Attachments 3 and 4 respectively). First Street Elevations of Archer Hotel

4 Archer Hotel Cultural Heritage Commission # III. PROJECT CONTEXT The Archer Hotel project site is located at First Street and contains two separate buildings with multiple tenant spaces. The property is centrally located in the core of Downtown Napa, bounded on the north and west by retail buildings and pedestrian corridors that comprise the Shops at Napa Center, on the south by First Street, and on the east by Coombs Plaza and two commercial buildings that are not part of this development. Existing land uses in the vicinity of the project site include a variety of retail stores, restaurants, art galleries, services, and visitor attractions. Additional historic buildings within the immediate area include: the Old Napa Register Building (Sushi Mambo) on the northwest corner of First Street and Coombs Plaza; the Gordon Building on the northeast corner of First Street and Coombs Plaza; the Native Sons of the Golden West Building on the southwest corner of the First Street and Coombs Street intersection; and the Goodman Library and the Migliavacca Building to the south across First Street. The 403-space Pearl Street Garage is located approximately 250 feet north of the proposed hotel on the west side of Coombs Street. Site Plan

5 Archer Hotel Cultural Heritage Commission # IV. ANALYSIS A. General Plan and Zoning The property has a General Plan and Zoning designation of Downtown Core Commercial (DCC). The primary intent of this land use designation and zoning district is to promote the continued development and revitalization of the pedestrian-oriented Downtown area that serves as Napa s unique shopping district, as a neighborhood hub for the residences surrounding it, and as the center of the Napa community. The Downtown Core Commercial land use designation and zoning district reinforce Downtown s identity as a compelling place for shoppers and visitors, requiring development that is in line with Downtown s traditions and preserving its historic heritage. The goal is to provide a mix of land uses (i.e., shops, restaurants, offices, hotels, and entertainment in designated areas) that will: draw people Downtown during the day, evening, and on weekends; develop an improved streetscape to offer visitors a pleasant pedestrian experience; and create a series of outdoor spaces to encourage public gatherings in the city center. The City of Napa General Plan contains a Historic Resources Element (Chapter 6) that provides policies and objectives related to historic resources. This chapter sets the framework for a comprehensive program to foster historic preservation through a systematic program, community education, and coordination within the City and with historic preservation groups. The Historic Resources Element contains goals, policies, and implementation programs that promote the preservation of Napa s historic, archaeological, and cultural resources. The major historic resources objectives are: To foster a community vision of the future that originates in respect and gratitude for its past and for the gifts that history bestows. To preserve Napa s historic districts and buildings in active use. To help achieve these objectives, the Historic Resources Element includes the following five goals: 1. To preserve and maintain sites, buildings, and landscapes that serve as significant, visible reminders of the city s social, architectural and agricultural history. 2. To encourage owners of historic resources to preserve or upgrade historic properties by improving their economic viability. 3. To promote community awareness and appreciation of Napa s history and architecture. 4. To achieve a vital downtown that reflects its historic urban form and setting, offering a mix of old and new buildings.

6 Archer Hotel Cultural Heritage Commission # To maintain historic neighborhoods that provide a diverse mix of housing types and services to meet the needs of families and build a sense of community. The project site is located within the Downtown I Building Form Zone, an overlay zone that regulates and governs the basic building shapes and sizes such as height, setbacks, and development intensity. The zone has been created to provide for future development that is appropriate for its neighborhood context. The Downtown I zone allows the most intensive development at the very center of the downtown, tapering down where necessary to address historic resources and provide a transition to the Downtown II zone. Building form is intended to provide sufficient height, floor area, and density to accommodate mixed-use development with residential uses above active storefronts. The Downtown I Building Form Zone does not require front, rear, or side building setbacks. Building height is limited to 75 feet as measured from the ground to the midpoint of a pitched roof, or to the parapet of a flat roof. Special design features may extend beyond the height limit, including architectural elements such as steeples and towers. B. Downtown Specific Plan Policies The project site is located within the Downtown Specific Plan boundary. The goal of the Specific Plan is to revitalize Downtown Napa into a vibrant place where residents and visitors alike come together to work, live, play, and actively engage in the community. People should be able to pursue a range of activities, such as shopping at local boutiques, eating in restaurants that open onto sidewalks and public gathering places, attending markets and festivals, and listening to live music and other entertainment. To achieve this goal, several overarching land use policies provide the framework for the different districts of Downtown. These policies direct and locate allowed uses in a deliberate and consistent manner. The policies encourage activity on the streets, promote gathering in public places, and attract more shops and businesses in new and redeveloped buildings, as well as in existing historic structures in Downtown. To help achieve these goals, the Downtown Specific Plan includes the following policies that are applicable to the proposed development: Revive Downtown as the primary job center in Napa. Promote the role of Downtown as the primary place where civic buildings are concentrated and where people come together to enjoy public art and culture, open spaces, and public facilities. Build on Napa s inventory of historic structures to set the tone for Downtown design. Reuse, rehabilitate, and restore buildings and/or building elements wherever practical and feasible.

7 Archer Hotel Cultural Heritage Commission # Promote the concentration of activity generating uses in the core area of Downtown, including retail shops, offices, commercial services, restaurants and entertainment venues. Place priority on high-quality design and developing unique structures that complement their surroundings, orienting buildings and entrances to streets and public gathering places. C. Historic Preservation Regulations The Merrill s Building is listed on the City s Historical Resource Inventory (HRI) as a local landmark building and has been assigned a California Historical Resource Status Code (CHRSC) of 3S (appears eligible for National Register inclusion as an individual property through survey evaluation). The proposed renovation includes the removal of the nonhistoric shell of the building, while retaining and rehabilitating the historic (south) and partial west facades. A Certificate of Appropriateness is required for an HRI-listed building when demolition is proposed. The Historic Preservation Ordinance defines demolition as: the complete destruction of a building or structure, or the permanent or temporary removal of more than thirty percent (30%) of the perimeter walls, or removal of any portion of street-facing façade. As the renovation will include removal of more than 30% of the perimeter walls, the applicant has applied for a Certificate of Appropriateness for demolition of a building listed in the City of Napa Historic Resources Inventory (HRI). Buildings listed in the HRI are rated with a Map Score to indicate the potential level of historic quality of the property. Map scores of 1 and 2 are referred to the Commission for a Certificate of Appropriateness for demolition or removal. The Cultural Heritage Commission s approval of the Certificate of Appropriateness on this application is subject to the required findings in NMC Section (E).These findings are provided in the draft resolution attached to this staff report (see Attachment 1). D. Historic Resource Design Guidelines The City s Downtown Specific Plan (DSP) includes The Downtown Napa Historic Context Statement & Survey Report and the Downtown Napa Historic Resources Design Guidelines ( Guidelines ) prepared in conjunction with the Specific Plan (Page & Turnbull, 2010 and 2011). The Guidelines provide recommendations related to the maintenance and alteration of historic buildings in the Downtown area. The guidelines suggest the following specifically for the Merrill s Building: Retain: the one-story massing, and L-shape on exterior and all original building elements, including terra cotta details, tiled pent roof parapet, brick facade, and steel sash mezzanine/transom windows.

8 Archer Hotel Cultural Heritage Commission # Consider: the reconstruction of original storefronts or new storefronts and doors that respect the character of the historic building (First Street and Coombs Street facades); and the removal of non-historic horizontal canopy and installation of compatible awnings (one awning per storefront) and the replacement of non-historic Merrill s signage and entry on rear (north) facade. mezzanine window repair and rehabilitation Avoid: using harmful chemical and physical treatments and damage to or removal of terra cotta and brick architectural elements. As indicated above, the Guidelines concluded that the Merrill s Building was historically an L -shaped building following the parcel boundaries. However, additional research from two more recent and in-depth independent studies ( Historic Resource Evaluation, prepared by Preservation Architecture, and the Historic Resource Report, prepared by Ripley Scoggin; see Attachments 4 and 5) shows that the L-shaped configuration of the building was neither original nor the result of significant additions; rather, the configuration is the result of an extension to the north at the rear of the original building in The buildings at First Street and Coombs Street were not originally contiguous structures. The First Street building was constructed in 1929, and the Coombs Street building at an undetermined date during the 1930s (previous research shows no directory listing for that building prior to 1933). Those two structures were not conjoined in an L-shaped configuration until the post-world War II era, when a rear addition was built that merged the two previously unattached buildings. The historical record for First Street specifically identifies its period of significance as , while adding that that period covers the original construction of the building [including] the Coombs Street section (2011 Historic Resources Inventory, p2). However, there is no evidence that the Coombs Street building was built during that period. The structure at Coombs Street was neither constructed with the original building ( First Street) nor was it an early addition to that building. Rather, Coombs Street was an entirely separate and unrelated building until a rear addition joined the two structures in the late- 1940s. Consequently, the L-shaped configuration is neither potentially historic nor character-defining. Therefore, the applicable character-defining features of the Historic Building at First Street (per the Guidelines) are limited to the structure s onestory massing with tiled pent roof parapet and brick façade (the building is in fact 1-1/2 stories, including its façade with its half-story clerestory) and the wood sash windows with terra cotta details (note that the Guidelines incorrectly indicate that the windows are steel sash). The Downtown Napa Historic Resources Design Guidelines direct the project proponent to follow, where feasible, the Secretary of the Interior s Standards for Rehabilitation. In addition to the General Guidelines, a set of specific guidelines including photographs and illustrations showing how to treat the height, massing, and specific elements of each building was prepared (Merrill s Building, see Guidelines, pages 46 47).

9 Archer Hotel Cultural Heritage Commission # The Guidelines should be interpreted and read in context with the best available information about the specific resource. The new information provided in the Historic Resources Report and Historic Resource Evaluation clarifies that the south façade of the Merrill s Building but not the rest of the L-shaped building is a cultural resource. This information informs the appropriate application of the Guidelines for the Historic Building. Both the Historic Resource Report and the Historic Resource Evaluation provide detailed evaluations of the application of the Guidelines and the Secretary of the Interior s Standards for Rehabilitation. Both site-specific analyses conclude that the Project meets the intent and goals of the Guidelines. Specifically: The historic structure s one-[and-a-half] story massing is maintained; The structure s L-shape configuration with two exterior facades is neither an original nor early configuration so is not character-defining and, therefore, not necessary to retain; All original building elements, including terra cotta details, tiled pent roof parapet, brick façade, and [wood] sash mezzanine/transom windows, are proposed to be retained; Exterior alterations to the historic structure are limited to the replacement of nonhistoric storefronts within the bays of the Merrill s Building with new full-height glazed windows within anodized metal frames and door units, which are appropriately modest and clearly contemporary alterations. The submitted project renderings do not clearly illustrate the finish condition of the storefronts. Because storefronts are an important element of the Merrill s Building, it is appropriate for the Cultural Heritage Commission to provide guidance on whether the recessed entries should be retained or altered to be flush with the primary facade. Staff recommends that the Cultural Heritage Commission consider conditioning the Certificate of Appropriateness to comply with the more appropriate of the following two treatments: A) Recessed entries shall be incorporated into the final design of the project and shall be designed and located in substantial conformance to the location and dimensions of the existing recessed entries. B) Flush storefront entries may be used in place of the existing recessed storefront entries, subject to compliance with current Building and Fire Code requirements for commercial egress and ingress, including ADA accessibility requirements. Proposed rooftop additions: The rooftop additions are necessary and are substantially set back from the primary façade, understanding that the primary façade is the First Street façade (the substantial set back is considered in more detail below under the discussion of conformance with U.S. Secretary of the Interior s Standards for the Treatment of Historic Properties). The Historic Resource Report and the Historic Resource Evaluation also reviewed the proposed project relative to the historic structure on the same block, located at 1202

10 Archer Hotel Cultural Heritage Commission # First St./1005 Coombs St. (also known as the Stage One Building and the Register Building). The project is removed from the 1202 First Street/1005 Coombs Street historic building by intervening properties occupied by existing, non-historic structures. The separation of those low, intervening properties creates an effective buffer between the proposed project and the independent historic structure. In accordance with the Guidelines for 1202 First St./1005 Coombs St., the proposed project will not dwarf that historic building because the proposed project is set back from each side of the historic corner building by the width of the intervening parcels. The effect of this is to draw attention to and highlight the historic structure in the foreground. The proposed project s exterior walls have a rhythm of horizontal and vertical forms and materials that do not directly reflect or mimic those of the historic corner building. The project design respects the horizontal and vertical rhythms of the historic structure. Therefore, the project has less-than-significant impacts on the historic building at 1202 First Street/1005 Coombs Street. The Historic Resource Report and Historic Resource Evaluation both concluded that: the proposed development was consistent with the Secretary of Interior Standards; the project satisfies the goals and policies of the Downtown Specific Plan Historic Guidelines; and any impacts associated with historic resources will be minimal. The Historic Resource Evaluation included the following assessment of the project s consistency with the Secretary of the Interior s Standards: 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. The Merrill s building will be used as it was historically, or be given a new use that requires minimal change to its distinctive materials, features, spaces, and spatial relationships. Commercial uses will be activated in the vacant spaces, and the new hotel use will not change the distinctive materials, features, spaces, and spatial relationships. 2. 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. The historic character will be retained and preserved, and the removal of distinctive materials or alteration of features, spaces, and spatial relationships that characterize the property will be avoided. 3. 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 adding conjectural features or architectural elements from other buildings, shall not be undertaken. The property will be recognized as a physical record of its time, place, and use. The changes do not create a false sense of historical development.

11 Archer Hotel Cultural Heritage Commission # Most properties change over time; those changes that have acquired historic significance in their own right shall be retained and preserved. No subsequent changes to the Merrill s Building were determined to be historically significant or defining of its character. 5. Distinctive features, finishes, and construction techniques or examples of craftsmanship that characterize a historic property shall be preserved. Distinctive materials, features, finishes, and construction techniques or examples of craftsmanship that characterize a property will be preserved because the building exterior masonry, which directly exhibits workmanship, will be retained and repaired or selectively replaced in-kind wherever repair is not feasible. 6. Deteriorated historic features shall be repaired rather than replaced. Where the 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 possible, materials. Replacement of missing features shall be substantiated by documentary, physical, or pictorial evidence. Deteriorated historic features will be repaired rather than replaced; where missing or severely deteriorated elements preclude repair, then replacement will be based on existing matching examples (as there are no missing features that do not have an existing counterpart). 7. 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. Chemical or physical treatments, if appropriate, will be undertaken using the gentlest means possible. Treatments that cause damage to historic materials will not be used. 8. Significant archeological resources affected by a project shall be protected and preserved. If such resources must be disturbed, mitigation measures shall be undertaken. The Specific Plan EIR includes mitigation measures Measure 4.D-2(a), 4.D-2 (b), 4.D-3, and 4.D-4 that require mitigation of impacts to and protection of, respectively, cultural resources, archeological artifacts, fossils, and human remains discovered on site during construction. 9. 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. The new hotel building does not destroy historic materials or features of the Merrill s building. The new construction is clearly modern relative to the traditional forms and

12 Archer Hotel Cultural Heritage Commission # features of the historic structure, which differentiates the new from the old and is compatible with the historic materials, features, size, scale, proportion, and massing to protect the integrity of the property and its environment. The primary impact relates to the compatibility with and the design relationship of the proposed addition of the hotel building to the primary historic building facade of First Street. Compatibility is required between the addition and the historic structure, as the requirement that rooftop additions be substantially set back (per the Guidelines) from the front (south) elevation of the rooftop addition. The Historic Resources Report and the Historic Resource Evaluation concluded that the substantial setback for the addition be located in slightly different locations (see Attachments 3 and 4). In its review of the design, staff believes that new hotel building has been substantially set back. The measures recommended in the Historic Resource Evaluation have been incorporated so that the design of the addition is in conformance with the greater (more substantial) of the two setback locations. The location of the proposed project s facade of the new building where it stands as a rooftop addition is located at a plane at or behind the extent of the ornamental facade where it returns at the southwest corner of the historic structure. The project s addition in this location gives greater deference to the Historic Building to stand out and be independent of the new addition, so that it remains prominently in the foreground while the addition remains in the background. The new construction has been designed to combine the vertical expression of the historic building facade along with greater simplicity and transparency of any forward projecting elements. 10. 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. The proposed new additions and adjacent or related new construction will be undertaken in such a manner that, if removed in the future, the essential form and integrity of the historic building and its environment would be unimpaired. E. Environmental Review The project is subject to environmental review under the California Environmental Quality Act (CEQA). An Addendum to the Downtown Specific Plan Environmental Impact Report ( DTSP EIR ) has been prepared to analyze the site-specific impacts of the Archer Project including the impacts to cultural resources, such as the Merrill s Building, relative to the impacts analyzed in the DTSP EIR, which was certified upon approval of the Downtown Specific Plan. The DTSP EIR requires implementation of Mitigation Measure 4.D-1 which states that in order to reduce project-specific impacts to a less-than-significant level: The City shall require that any future development under the Specific Plan meets the intent and goals of the City of Napa Downtown Historic Design Guidelines. This includes any project that would alter historic resources or would be constructed adjacent to a historic resource. The Addendum concludes that with incorporation of the measures described above into the Project design, the Project meets the intent and goals of the City of Napa Downtown Historic Design Guidelines. Therefore, with the implementation of Mitigation Measures

13 Archer Hotel Cultural Heritage Commission # D-1, impacts to historic architectural resources are reduced to a less-than-significant level. In order to ensure compliance through the construction process, prior to the issuance of any construction or building permit, including demolition, that potentially impacts the integrity of the Historic Building should be reviewed by a qualified historical architect. The potential impacts of the proposed alteration have been reviewed by Ripley Scoggin Partners (Archer/Shops at Napa Center Historic Resources Report, March 2014), and by Preservation Architecture ( First Street, Napa Historic Resource Summary & Project Evaluation, report dated April 16, 2014) which both concluded that the Project is consistent with the Secretary of the Interior s Standards for Rehabilitating Historic Buildings and thus will not cause a substantial adverse change in the significance of this resource, in accordance with Section (b)(3) of the CEQA Guidelines. V. REQUIRED FINDINGS The Cultural Heritage Commission s approval of the Certificate of Appropriateness on this application is subject to the required findings in NMC Section E of the Napa Municipal Code (Historic Preservation and Neighborhood Conservation). These findings are provided in the draft resolution attached to this staff report (see Attachment 1). VI. STAFF RECOMMENDATION Based upon the project s compliance with the required findings and consistency with the Historic Design Guidelines as noted in the Archer/Shops at Napa Center Historic Resources Report prepared by Ripley Scoggins Partners and the First Street, Napa Historic Resource Summary & Project Evaluation prepared by Preservation Architecture staff recommends approval of the Certificate of Appropriateness. VII. ALTERNATIVES TO RECOMMENDATION VIII. Direct staff to return to the Commission with a resolution documenting findings from the record of the hearing to support denial of the proposed project. Continue the application with direction for project modifications. REQUIRED ACTIONS Applications for final action by the Cultural Heritage Commission: 1. Adopt a resolution approving a Certificate of Appropriateness for the Archer Hotel and remodel of the Merrill s Building at 1212 and 1238 First Street and determining that the Addendum to the Downtown Specific Plan Environmental Impact Report prepared for the project complies with applicable CEQA requirements and is adequate and appropriate to support the Commission s approval of a Certificate of Appropriateness (PL ) (APNs & ).

14 Archer Hotel Cultural Heritage Commission # IX. DOCUMENTS ATTACHED Attachment 1: Attachment 2: Attachment 3: Attachment 4: Attachment 5: Attachment 6: Attachment 7: Draft COA Resolution Applicant s Project Description Plan Drawings Historic Resource Report, prepared by Ripley Scoggin Partners dated March, Historic Resource Summary & Project Evaluation, prepared by Preservation Architecture, dated April 16, 2014 Downtown Historic Guidelines Excerpts Archer Hotel Project Addendum to the Final Program Environmental Impact Report Downtown Napa Specific Plan c: Applicant and Owner