HISTORIC PRESERVATION COMMISSION AGENDA ITEM
ACTION REQUESTED:
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Consider the Certificate of Appropriateness (COA) Request for Heritage Place development (140/126 North Wright Street and 619 E. Franklin Avenue) - COA 20-2321 (Item 1 of 3)
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DEPARTMENT: Transportation, Engineering and Development
SUBMITTED BY: Gabrielle Mattingly, Community Planner
BOARD/COMMISSION REVIEW:
Historic Preservation Commission (HPC) consideration scheduled for August 27, 2020.
BACKGROUND:
The petitioner, Ram West Capital LLC, has submitted a Certificate of Appropriateness (COA) request for development of 47 townhomes on the subject property. The proposal includes restoring and renovating the Kroehler Mansion into 3 townhome units and demolishing the other buildings on site in order to construct 12 townhome buildings (comprised of 44 units). The owner of the property is Little Friends, Inc. The two-parcel property is approximately 3.79 acres and is generally located at the northeast corner of Franklin Avenue and Wright Street within the City’s local Historic District. The property is zoned R2 (single family and low density multiple family residence district) and is currently improved with multiple buildings, a park and associated parking lots.
Prior COA Approval
On October 24, 2019, the HPC reviewed a COA request submitted by the property owner, Little Friends, Inc., for demolition of the buildings located on the subject property (COA 19-2840). Following deliberation, the HPC granted partial approval of the COA, approving demolition of the Krejci Academy, the Gymnasium, and the Administration Building, while denying demolition of the Kroehler Mansion (vote: 7 in favor; none against). Following conclusion of the HPC’s decision, Little Friends, Inc. submitted an appeal of the denial of demolition of the Kroehler Mansion to the Naperville City Council. On November 19, 2019, the Council reviewed the appeal and voted to allow demolition of the Kroehler Mansion (vote: 6 in favor; 2 against). Therefore, approval to demolish all buildings located on the subject property has been granted (note: demolition of the carriage house/detached garage located in the northwest portion of the property does not require review or approval of a COA per Section 6-11-7:3).
Kroehler Mansion Incentive
On August 18, 2020, the City Council passed a resolution approving a covenant incentive agreement between the City of Naperville and Little Friends. Per the approved agreement, Little Friends will forfeit their authorization to demolish the Kroehler Mansion and will instead record a covenant against the Subject Property (prior to its sale and transfer of ownership) that requires the Kroehler Mansion to remain protected and preserved. Following recordation of this incentive agreement and covenant, the City will remit $450,000 to Little Friends.
It should be noted that Council approval of this agreement does not automatically cause Little Friends to forfeit the COA that allows for demolition of the mansion. Upon Council approval of this agreement, Little Friends will have until September 1, 2021 to decide whether to record the covenant. Upon recordation, the COA will be forfeit and the City will owe Little Friends the $450,000 incentive. However, Little Friends may change its mind and demolish the mansion and opt-out of the $450,000 incentive any time prior to its recordation of the covenant.
Architectural and Historical Survey
In 2008, the City commissioned Granacki Associates to survey the properties located within the local Historic District and any properties that were Landmarked (the “Architectural and Historical Survey”). The report ranked the buildings in the Historic District and Landmarked Buildings as: non-contributing, contributing, potentially significant, and significant. The Kroehler Mansion was ranked as being significant and identified as having craftsman-style architecture. The survey identifies the significant features of the Mansion to be the side gable roof with shed dormers and copper gutters, wraparound porch with square brick piers, and the historic 1/1 wood windows. The survey is attached for reference.
DISCUSSION:
The petitioner is seeking approval to renovate and convert the Kroehler Mansion into 3 townhome units, as well as construct 44 new townhome units on the subject property. This proposal will require approval of a conditional use in the R2 district, a variance to the lot area requirements, a front yard setback variance, a variance to the maximum permitted number of stories, and HPC approval of that portion of the Kroehler elevations and new townhome elevations that are visible from the public right-of-way.
Since the subject property is located within the City’s Historic District, the HPC will:
1. Provide a recommendation on the requested conditional use for 47 townhomes, variances to the lot area requirements, front yard setback requirements, and height variance for the subject property in accordance with Section 6-11-5 of the Municipal Code.
o The HPC’s recommendation on the above zoning requests will be forwarded to the PZC for review. After review by the PZC, the requests will be forwarded to the City Council for final determination per the requirements in Section 6-3-6 (variances) and Section 6-3-8 (conditional uses) of the Naperville Municipal Code.
2. Approve/Deny the requested Certificate of Appropriateness (COA) for the proposed exterior façade changes to the Kroehler Mansion and the proposed exterior façade of the townhome unit buildings.
o The HPC’s decision on the COA is final; however, if the HPC denies the COA, the petitioner may appeal this denial to the City Council for a final vote as provided in the Code.
Conditional Use Request
The proposal calls for 47 townhome units within 13 buildings (including the Kroehler Mansion). The R2 zoning district requires approval of a conditional use in order to construct single family attached dwelling units (i.e., townhomes). The buildings are designed with rear loaded garages and each building is positioned so the garages are facing inward to the site. For the 12 townhome buildings, each townhome unit is equipped with two-car garages and two surface parking spaces located on the driveways. A detached garage is provided for the three townhome units located in the Kroehler Mansion with three parking spaces enclosed in the garage and three surface parking spaces located on the driveway (note: the detached garage does not require review or approval by the HPC per Section 6-11-7:3). Guest parking spaces are also provided on site. By code, 106 parking spaces are required, the petitioner is proposing 192 total parking spaces. Three access points are provided to the site, one access point off Franklin Avenue and two access points off School Street.
Staff is in support of the conditional use request. The proposal provides an alternative housing type to the area (single family attached dwelling units) which are permissible in the R2 zoning district through approval of a conditional use. The R2 zoning district is intended to accommodate a variety of housing types and compatible uses. A conditional use was granted for the subject property in 1975 for housing, care, and training of persons with mental disabilities. Since approval of the conditional use, the City’s Code was amended to eliminate the use as a conditional use from the R2 zoning district. Therefore, the current use of the Subject Property by Little Friends, Inc. is classified as a legal nonconforming use in the R2 zoning district. Thus, reverting the property from its current use to a residential use is more compliant with the Municipal Code and is also a compatible use to the area.
As required by code, the petitioner has provided a response to the standards for a conditional use. Per Section 6-11-5:3 of the Municipal Code, the Commission shall review a conditional use request to determine the effect, if any, that the proposal would have on the historic character of the historic district. Thereby, the Commission may take the response to the standards into account when reviewing the proposal.
Variance Requests
The proposal includes three variance requests. The variance requests are summarized below:
• A variance to Section 6-6C-7:2 (R2 zoning district: yard requirements) to reduce the front yard setback from 25’ to 15’; and
• A variance to Section 6-6C-8:1 (R2 zoning district: height limitations) to increase the maximum number of stories from 3 stories to 3 ½ stories; and
• A variance to Section 6-6C-5: 2 (R2 zoning district: area requirements) to reduce the lot area from 4,000 square feet permit unit to 3,514 square feet per unit.
The proposed townhomes will be located 15’ from the front property line, encroaching 10’ into the front yard setback requiring a variance from Section 6-6C-7:2. Each unit will have a 5’ wide attached front porch (10’ setback from the front yard to the edge of the porch). The porch is permitted to be located 5’ into the front yard setback as noted in Section 6-2-3:3.2. Many homes within the historic district were constructed within the required front yard setback due to a variety of reasons that may include construction pre-dating the required front yard setbacks. Therefore, an encroachment into the required front yard setback is not inconsistent with what is found within the historic district. Staff also notes the site design includes internal driveways and site circulation allowing the attached garages to not be visible from the street. This design requires wider drives, but allows for the garages to be consistent with the design of garages found in the historic district which are primarily detached and accessible from an alleyway minimizing view of the garages from the street.
The proposed townhomes will be 3 ½ stories, exceeding the maximum permitted number of 3 stories by a ½ story. The variance to Section 6-6C-8:1 is required since the proposal calls for finished space under a roof on the “roof level” and is accessible by a stairway. However, the floor area does not exceed 50% of the gross building area of the story below the “roof level” and is therefore counted as a half story. The proposed townhomes are below the peak permitted height, proposed to be 38’ - 8 7/16”. Therefore, the proposed increase to the maximum number of stories is minimal given buildings comply with the peak permitted height of 40’. Recently constructed townhome units located in proximity to the Downtown (i.e., Charleston Row, Charleston Row II, and Chicago Commons) have also requested and been granted this story variance.
Lastly, a variance to Section 6-6C-5:2 to reduce the required lot area from 4,000 square feet per unit to 3,514 square feet per unit is required. The size of the lot is 165,158 square feet, permitting 41 townhomes on site by code; the petitioner is proposing to construct 47 units (or 6 more than permitted by Code). While the proposal calls for an increase in the number of units, large open space is provided on site including a park land dedication in front of the Kroehler Mansion. This park allows for open views of the Kroehler Mansion from the street.
As required by code, the petitioner has provided a response to the standards for a variance request. Per Section 6-11-5:3 of the Municipal Code, the Commission shall review a variance request if the work requires approval of a COA, to determine the effect, if any that the proposal would have on the historic character of the historic district. Thereby, the Commission may take the response to the standards into account when reviewing the proposal. Staff has reviewed the variance requests and is in support of the increase to the maximum number of stories, decrease in the minimum lot area requirements and reduction to the front yard setback for the reasons listed above.
Proposed Exterior Façade of the Kroehler Mansion and Townhomes
The petitioner’s COA application and application materials are attached for review by the HPC. The petitioner has provided a detailed submittal of the proposed preservation to the Kroehler Mansion. These details can be found in the attachments titled, “Kroehler Mansion Preservation Scope”, “Kroehler Mansion Window Replacement and Restoration”, and “Kroehler Mansion Elevations”. The preservation of the Mansion includes demolishing the surrounding buildings and disconnecting them from the Mansion. The plan calls to rehabilitate the building and restore it to more closely resemble the original structure. Staff notes the petitioner plans to remove the historic 1/1 wood windows which were identified as a significant feature as noted in the Architectural and Historical Survey. Accordingly, the petitioner has provided a response to Factor 5.3 (economic reasonableness). The response can be found in the attachments.
The proposed townhome buildings are four-sided brick buildings with a stone water table. Per Municipal Code Section 5-2C-3 (Exterior Wall Construction), a minimum of 50% of the exterior wall construction for all multiple-family dwellings, single family attached dwellings and two-family dwellings shall be constructed of solid masonry. The proposed townhomes are in compliance with this requirement. The petitioner has provided 14 exterior façade options which allow for a variety in the design and prevents monotony. An elevation of each proposed building with a site plan of the buildings numbered can be found in the attachment “Townhome Elevations”. The proposed design appears to be primarily based off the architectural details found on the Kroehler Mansion.
Review of COA applications are conducted based on the compatibility with the Factors for Consideration of a Certificate of Appropriateness Application (Section 6-11-8:5; Certificate of Appropriateness Required). The applicant has detailed their justification of the factors considered. Their justification is included in the attachments for review by the HPC. Staff is in general agreement with the applicant’s responses.
Key Takeaways
• Provide a recommendation on the proposed conditional use and associated variances for 47 townhome units for the subject property located at 140/126 North Wright Street and 619 E. Franklin Avenue. The recommendation will be sent to the PZC for review and City Council for final approval.
• Consider the architectural changes proposed to the exterior façades of the Kroehler Mansion and the architectural design of the exterior façade of the proposed townhome unit buildings. A denial of the proposed COA may be appealed to the City Council.
Related Files
1. Provide a recommendation on the conditional use for 47 townhomes, variances to the lot area requirements, front yard setback requirements and a height variance for the property located at 140/126 North Wright Street and 619 E. Franklin Avenue (Heritage Place) - PZC 20-1-061 (Item 2 of 3)
2. Consider the proposed exterior façade changes to the Kroehler Mansion and the proposed exterior façade of the townhome unit buildings for the property located at 140/126 North Wright Street and 619 E. Franklin Avenue (Heritage Place) - COA 20-2321 (Item 3 of 3)