Architectural Review Board

18 November 2024 To: Kate S. Schwartz ksschwartz@fredericksburgva.gov cc: Planning@fredericksburgva.gov The Historic Fredericksburg Foundation has reviewed the upcoming agenda and related COA documents for the November 18, 2024, meeting of the Architectural Review Board and submits the following comments on select projects. Public Hearing: 10.A. COA09-0078 – 1312 Sophia Street HFFI is pleased to see plans to remove the old Masonite and aluminum siding from this historic house and appreciate their willingness to remove this later siding and submit photographs to detail some of the wood weatherboard below. As this dwelling abuts the public sidewalk, its north, east, and south elevations are highly visible to passersby. While we are aware that some properties in the district have been fully clad in fiberboard siding without ARB approval and we sympathize with the applicant’s desire to use synthetic materials on all sides of the house, the proposed work runs contrary to local district guidelines for existing wood materials. Indeed the 7 guidelines under section 4.A. prioritize repair and in-kind replacement over the use of synthetics—the strongest of which is item 4.A.7. that plainly states, “Do not use synthetic siding as a replacement for wood siding.” For the past few weeks, those of us at HFFI have watched workers install new weatherboard siding around the north, east, and south elevations of the original massing of the house at 1214 Charles—as was approved by the ARB at the September 9th meeting where the applicants initially requested to use fiberboard siding because of several cracked and damaged wood boards. The few images presented in the application do not depict conditions that merit full replacement of visible weatherboards. Cracking around nail holes, flaking paint, and water stains do not necessitate replacement - they can simply be filled, sanded, and painted over. Speaking from personal experience, when we had the aluminum siding on our house removed, the weatherboard below looked similar with decades of dirt giving it a dingy appearance (two images to illustrate this work enclosed). To entirely re- side the house with fiberboard would not only cost more than sanding and repainting, but it also requires the removal of the historic weatherboard, thereby irreversibly impacting the historic integrity of the building. Perfection simply does not exist in the historic built environment, yet it is not found in new construction either. Should the ARB allow for the introduction of a synthetic siding to replace the original wood weatherboard, HFFI believes that it should be limited to the north and south elevations and west end additions to the house. Again, we applaud the applicants’ efforts to rehabilitate and preserve this historic asset in the community and hope to see its exterior architectural details and imperfect patina restored like so many 1 other beautiful old homes in the City. 10.D. COA2410-0080 – 1309 Charles Street HFFI supports staff’s recommendation and thanks the applicant for investing in a more durable and compatible material that have historical precedent throughout the historic district. 10.C. COA2410-0082 – 1305 Sophia Street HFFI supports staff’s recommendation and appreciates the thoroughness of the application as well as the time and resources the applicants have invested in the rehabilitation of this historic asset. 12.A. Comp Plan HP Policy Spreadsheet HFFI appreciates staff providing this more in-depth look at the current Comp Plan’s Preservation goals. While it has been noted that there are too many goals and initiatives in the current Preservation Plan, it may be helpful to place our 8 overarching goals and associated initiatives in context. For example, the City of Charlottesville’s preservation chapter – entitled Historic Preservation and Urban Design – has 9 overarching goals and 71 initiatives and actions, so its not uncommon to lay out several dozen goals. Furthermore, we hope that further discussion of the material is extended to the next supplemental meeting or special meeting to allow more time for gathering feedback and input from interested stakeholders – not unlike the ARB supplemental meeting last month. 12.B. Area 5 Character Structures – ARB Memo HFFI would like to thank City staff for preparing such clear, detailed, and well-organized information on the methodology used in selecting the Character Structures in Area 5. We would also like to thank members of the ARB for allowing the public and interested stakeholders additional time to weigh in on this important matter. We are pleased to see the telephone repeater station at 1185 Armory Road added to the list as it is a unique historic asset in this area. Additionally, HFFI staff looked more closely at four other buildings identified on the Area 5 list to fill in some knowledge gaps in their histories and provide more information for consideration: 1) Located at 1305 Emancipation Highway and now serving as Miso restaurant, zoning for what began as a Burger King restaurant was approved in the fall of 1976 and the building completed by the summer of 1977. This resource seems to retain much of its original design at the exterior, including a tapestry brick veneer (matching the trash storage area at the back corner of the lot), drive-through canopy, walk-up window, faux-mansard roof, and fixed metal-framed storefront windows and doors. While it may not have opened within the proposed period of significance for this area, it retains a higher level of integrity in materials and workmanship than noted in the current listing. 2) The restaurant now occupied by Umi at 1500 Emancipation Highway was constructed between 1980 and 1981, first appearing in the 1982 City Directory as Holly Farms Fried Chicken. According to an article in Arlington Magazine, “Founded in Wilkesboro, North Carolina, in 1958, Holly Farms Chicken was a household name in the Southeast, serving up crispy thighs, breasts and drumsticks alongside Kentucky Fried Chicken, Roy Rogers and a handful of regional chains. In a 1981 story titled “Washington’s Fried Chicken Wars,” The Washington Post noted that fried chicken sales in D.C. exceeded the national average by 22%. At the height of its popularity, Holly Farms boasted 20 2  locations in the DMV. By the late 1980s, however, the company had transitioned its business model to packaged chicken sales in grocery stores and was acquired by Tysons Food in 1989. (O’Connell, 2023).1 3) The commercial office building at 1619 Emancipation Highway was constructed in the winter of 1973-1974. It opened as early as March 1974, featuring a “Modern Bridal” retail store and “Elkins Flower Shop.” The flower shop was previously located at 613 Caroline along with the Elkins family funeral home business before it was bought out and relocated across the street at 1621 Emancipation Highway. The architectural style of the building at 1619 Emancipation Highway is better described as Postmodern—with its design being a somewhat humorous response to the area’s Colonial-Period vernacular architecture. Characteristic features draw upon the image of a Colonial-era dwelling, but over-exaggerate elements like its brick chimneys and overall length. In terms of material integrity, we can only judge from exterior, but some original window units survive along the rear elevation, while the overall pattern of fenestration appears relatively unchanged. façade have been replaced with custom vinyl-framed units, the rear elevation features original, paired, wood casements windows that match those of the Elkins Funeral Home on the other side of the road, which is also more Post Modern than Colonial Revival in style. 4) The funeral home at 1621 Emancipation Highway was constructed between 1972 and 1973 in the Postmodern style. Characteristics of this design include the abundant use of brick quoins across every elevation, even in places where the plane of the wall is continuous; the use of fax fanlights and over-sized dentils that appear more like modillions in the wood cornice. Original windows include paired wood-framed casement units with deep window sills at the interior. Following this research and more detailed assessment, HFFI would like to see a change in status for the commercial office building at 1619 Emancipation Highway. And while the construction dates of the Umi and Miso restaurants place both resources just outside of the proposed period of significance, we believe each retains sufficient historic integrity in design, location, and materials at the exterior to merit Character Structure status. In fact, the City’s approval for the construction of what is now Miso was given an exception from the City’s required setback from Route 1. In closing, HFFI again greatly appreciates the efforts that City staff and ARB members have given to the compilation and assessment of the proposed “Character Structures” for Area 5 and hope that some small measure of protection to prevent these historic assets from needless demolition is granted to them in the near future. And lastly, we further hope that our elected leaders will honor recommendations from City Planning Staff and hired planning consultants to extend some similar measure of protection to established residential neighborhoods in Area 5 that have been identified for several years now as future Neighborhood Conservation Districts. 1 O’Connell, Kim. Arlington Magazine, Local History, Jan. 20, 2023. https://www.arlingtonmagazine.com/holly- farms-fried-chicken-arlington-virginia/ 3  Comparable images following aluminum siding removal showing 1920s weatherboard with visible (and repairable) damage 4 Article from November 16, 1976 issue of The Free Lance-Star detailing approval of permit to erect Burger King and Phat Kat restaurants at 1305 Jefferson Davis Highway, now known as Emancipation Highway. 5 Goal Policy Any Action Taken? Still relevant? Council Priority? 1.1 Encourage the implementation of form-based codes in historic areas citywide, within and beyond the Initiative 1 complete Yes crossover with Historic District, in order to preserve the character of streetscapes and districts or neighborhoods. Initiative 2 still in development conservation districts Initiative 1: Fully implement the form-based codes associated with the Creative Maker districts. Initiative 2: Develop a form-based Neighborhood Mixed-Use zoning district for application in historic walkable urban places identified in the Area 7 Downtown Small Area Plan. 1.2 Incorporate historic preservation elements such as resource surveys in all citywide, small area, and Ongoing--implemented in Small Area Plans Yes neighborhood planning initiatives. 1.3 . Identify transition zones within the city—areas beyond the identified (or to-be-identified) resources that Yes--focus on FBC and financial incentives yes--financial 1 encompass lines of sight (such as Civil War battlefield lines of sight) or viewsheds that may have significant incentives impacts on core resources. Initiative: Develop strategies to help manage development in these transition zones; these could include form- based codes, the transfer of development rights, or financial incentives. 1.4 Document any resources—architectural, archaeological, landscapes, or otherwise—that may be lost to Ongoing--incorporated into development review procedures yes demolition. 1.5 Provide support for neighborhood resource surveys and the creation of pattern books or similar reference Consistently addressed in Small Area Plans (especially 3, 5, 6, and yes yes, in coordination documents that provide guidance on architectural styles and appropriate treatments for maintenance, repair, 10). Neighborhood-led in College Terrace and potentially College with conservation and alteration. Heights districts 2.1 Fully implement the Canal Quarter Maker District and Wolfe Warehouse Maker District to permit flexibility Complete Yes-future phases could allow for increased in use and residential density standards for identified historic structures in order to incentivize their adaptive density for preservation of character reuse. structures 2.2 For selected historic sites and resources that have been challenging to adaptively reuse, assemble task Action on each building: Renwick Courthouse working group and Yes, but the initiative/these buildings has yes--all three buildings forces as needed to develop and implement diverse solutions. upcoming solicitation; maintenance and design work at developed beyond this. Perhaps still addressed Initiative: Prioritize the Downman House/Idlewild ruin and outbuildings, the Renwick Courthouse, and the Old Idlewild/planning for FAM collaboration; maintenance at relevant as an approach to challenging sites Stone Warehouse at 923 Sophia Street for this process. OSW/planning for potential HFFI collaboration 2.3 Create a steering committee to develop and implement a comprehensive economic development strategy Worked with consultant Dan Becker on recommendations in 2023, Yes, but needs reconfiguration. Shift initiatives 1 and 2 focused on investment in historic preservation. Initiatives to be explored include: but these have not moved forward due to questions about timing steering committee to ARB/ARB included Initiative 1: Expand or modify the existing real estate tax exemption program (City Code §70-98 through §70- of an economic impact study. committee, but maintain initiatives/tasks? 99) to encourage greater use for rehabilitation projects. Conduct outreach to ensure public awareness of the 2 program. Initiative 2: Create an economic impact study to quantify the value of historic preservation in Fredericksburg and provide direction in the development of incentives. Initiative 3: Develop a package of preservation incentives beyond traditional tax credits which could include transfer of development rights, low-interest loans, exemptions for historic buildings, abatement for compatible infill construction, public-private partnerships, and business/tenant attraction. 2.4 Expand the non-regulatory National Register-listed Historic District to create access to Federal and State limited efforts to update survey data in recent years, but outside yes yes tax credits for property owners rehabilitating contributing buildings. assistance needed due to scope; not budgeted  2.5 Support maintenance and repair of historic buildings by supplementing the Main Street grants program No-grant program not currently active no--different approach needed with City funds, expanding eligibility beyond the Main Street area. 3.1 Amend ordinances to ensure that the requirements of the Historic District overlay and the underlying Complete--primacy statement added to 72-23.1 no zoning and statutory authority are mutually supportive and compatible. Where requirements cannot be made consistent, the requirements that ensure consistency with the Secretary of the Interior’s Standards for Rehabilitation of Historic Properties and integrity of the Historic District should have primacy. 3.2 Ensure development regulations citywide promote the preservation and reuse of historic resources. CD density initiative complete. Yes--opportunity to identify other non- Yes- NCDs Identify ways to legalize non-conforming conditions that are essential to the reuse of historic properties (i.e. conforming conditions that might enable upper-story apartments that cannot be rehabilitated due to density restrictions). adaptive reuse. Neighborhood Initiative: Increase the allowable residential density in the Commercial Downtown zoning district in order to conservation districts could be a tool for promote the adaptive reuse of existing buildings and permit infill development that is compatible in form with protecting non-conforming historic historic patterns of development. features. 3.3 Ensure that ordinances address and exclude outliers in infill calculations. The ordinances should also Discussions held with City Attorney and legal complications Yes--but may be more appropriate to provide clear direction for establishing setbacks for new construction on streets without historic buildings or identified consider in guidelines update 3 with a large number of vacant properties. 3.4 Incorporate statements of intent or purpose into code sections that include historic preservation Discussions held with City Attorney and legal complications reevaluate purpose and enforceability provisions to provide clarity on the values and resources these measures are intended to help preserve. The identified--primacy statement already added (see 3.1 above) provisions related to the Architectural Review Board should reference the centrality of the Secretary of the Interior’s Standards for the Treatment of Historic Properties in the decision-making process. 3.5 Where supported by residents, encourage the creation of conservation districts that provide limited Discussed with neighborhood reps over last 6 months; presented Yes Yes regulatory tools for the preservation of resources and emphasize preservation and stabilization of the information to City Council on 10/22/24; supported by Small Area streetscape. Conservation districts are a similar regulatory tool to historic districts, but with a more limited Plans; continued Council discussion is planned. scope. Initiative: Develop informational resources such as sample guidelines for neighborhood associations or Staff has resources available and communication is ongoing. interested groups to communicate these options within potential neighborhoods. 3.6 Ensure that the standards for review used by the ARB support the City’s transition to renewable energy Addressed in guidelines update Yes, but should become regular practice to and encourage the sensitive incorporation of resilient and energy efficient solutions in new construction, update guidelines adaptive reuse, and building maintenance projects. 4.1 Incorporate cultural significance into the statements of intent and criteria for inclusion in the historic No action Yes district. Initiative: Add an additional criterion for significance to §72-34.1 to include districts, structures, and sites that represent the culture and heritage of Fredericksburg in ways not adequately addressed in the other criteria, as in their visual prominence, reference to intangible heritage, or any range of cultural practices. 4.2 Increase the diversity of ARB appointees, staff, working groups, and any others impacting the preservation Some crossover with FAM African American History Committee Yes of historic resources to decrease implicit biases in decision-making and assessment of resources. and City practices. 4 4 4.3 Assess cultural significance as a component of all new resource surveys and review the existing inventory Ongoing practice moving forward (i.e. Mayfield PIF); existing Yes to determine where cultural significance, especially related to underrepresented communities, has not been inventory not yet addressed due to capacity addressed. 4.4 Balance the evaluation of cultural significance with building integrity when evaluating alterations to Ongoing Yes, consider how to strengthen this with buildings in the Historic District; avoid undervaluing buildings associated with underrepresented communities future guidelines update due to modest design or limited physical integrity 4.5 Seek training and educational opportunities for staff and Architectural Review Board members on Ongoing Yes diversity, inclusion, and equity in preservation. 5.1 Emphasize stories that help explain the fabric of the community in all its facets and work toward telling the Coordination with FAM and the African American History Yes Yes full story of Fredericksburg’s past. Committee to move this forward. Initiative in progress with AAHC Initiative: Develop standard procedures for interpretive media, including the wayside panel program, for topic subcommittee. 5 new panels installed in 2024, revisions and selection, content generation, panel updates, and ongoing maintenance. additional new panels scheduled for 2025 5.2 Fully implement the adopted archaeological ordinance that requires investigation as a component of land Ordinance and on-call services are in place and part of standard Yes, but focus should shift to initiatives- development processes and establishes protocols for unexpected discoveries of archaeological resources. practice. updating research priorities (2026) and Initiative 1: Establish a steering committee to regularly review the research priorities for archaeological expanding education/outreach investiga- tion and assist in planning and implementing public education initiatives to enhance awareness of archaeological resources. Initiative 2: Implement public education initiatives associated with archaeological findings, including 5 expanding the existing Story Map and interpreting both new findings and the City’s existing collections. 5.3 Expand the inventory of historic resources with a focus on inclusion of diverse places that are culturally Yes, Mayfield PIF completed in spring 2024 and determined Yes significant, not just those associated with well-known historical figures or exhibiting high-style architecture. eligible by DHR 5.4 Implement interpretive tools to tell the stories of underrepresented groups, including African Americans, Yes, crossover with FAM African American History Committee and Yes Yes- focus in current Native Americans, women, and immigrant groups, particularly in places where no extant buildings or physical work on wayside panels, tours, exhibits priorities is on the features remain. Identify and implement interpretive means beyond those already in place, incorporating Auction Block corner public art, digital technologies, and multimedia installations. and wayside panels 6.1 Formalize reporting channels and a risk assessment protocol between the Building Official and Historic Yes, incorporated into the guidelines and staff practice Preservation staff to ensure that demolition is used as the option of last resort for historic structures in poor condition. 6.2 Prioritize the use of Community Development Block Grants for home repair, accessibility improvement, Ongoing practice, but we can quantify the numbers of projects and Yes, there's no change or target defined and direct homeownership assistance programs to encourage continued ownership and maintenance of highlight the impact of this program. Many projects aid in the here, but continued support is still very existing older housing stock. retention of older/historic housing stock, especially in Mayfield. valuable 6.3 . Encourage renovation and reuse of historically non-residential property types for new residential units as Ongoing practice Yes these can offer more housing in compact patterns within downtown and the addition of housing stock to sustainable neighborhoods. Prioritize appropriate exemptions for older buildings to encourage adaptive reuse and retain streetscape character.  6.4 Encourage a mix of uses and housing types that reflect traditional neighborhood patterns, including Continued theme in small area plans and conservation district Yes Yes accessory dwelling units, bungalow courts, attached housing, carriage houses, and other missing middle discussions housing types. Encourage applications to reflect neighborhood patterns of development including density, lot size, and setbacks. Initiative: Identify appropriate locations to implement form-based codes or modify dimensional and density standards in zoning districts to allow for housing types that fit historic neighborhood patterns. 6 6.5 Preserve existing housing stock by preventing demolition by neglect. Strengthen property maintenance Property Maintenance Inspector position is filled and works with Yes, shift in focus though? Yes inspection, enforcement, and staffing. Implement disincentives and penalties for property owners who planning and building staff. Prolonged enforcement process on willfully and knowingly engage in demolition by neglect. 1100 and 1101 Caroline street has resulted in successful Initiative: Articulate a statement of intent with respect to demolition and demolition by neglect in all relevant rehabilitation efforts. statutes: Demolition must and shall be a last, unavoidable resort, difficult to realize. Demolition will not be the No movement on initiative due to concerns over how this fits in to product of willful neglect or a knowing strategy intended to narrow options to either demolition or the City Code (legality/enforceability); however, it is clearly stated in unreasonable expenditure of money. the guidelines. 6.6 Advise projects taking advantage of historic tax credits to also investigate opportunities for using federal No potential projects to advise Yes low income housing tax credits. 6.7 Mitigate the impact of new construction on sensitive historic or environmental areas, particularly within Evaluated in some areas, but needs further refinement Yes the floodplain in the Historic District, by allowing for the transfer of density to other areas of the city where land values are lower and the construction of affordable units is more feasible. 6.8 Explore the creation of systems for the acquisition and redevelopment of vacant, abandoned, and tax- No action Yes foreclosed properties to bring these places back into use and prevent demolition by neglect. Strategies could include the creation of a community land trust or the use of grants or loans. 7.1 Annually assess the community’s progress, conduct outreach, and support the preservation culture within Discussion held with City Council, but group structure/purpose Yes--shift to ARB role with support from the community. needs refinement advisory members Initiative: Establish a committed and knowledgeable standing advisory group that constantly refreshes the discourse about preservation. The group should include a mix of citizens and professionals and include representatives from stakeholder groups. 7.2 Establish clear reporting channels and protocols for the discovery of archaeological and historic resources Ongoing practice in development review process during the course of any City-led land disturbance or construction activity. 7.3 Improve the standards of practice within city government by developing policies that will govern the Ongoing practice--good communication among City departments, Yes treatment of historic resources in its ownership. but initiative/resource development still needed Initiative: Develop programs and resources to educate City staff on best practices for historic preservation, including training on the identification of archaeological resources and creation of a maintenance handbook for historic properties. 7 7.4 Ensure the integrity of Fredericksburg’s signature historic skyline and visual connections between key Ongoing practice Yes historic resources by incorporating preservation of viewsheds into citywide, small area, and neighborhood planning initiatives.  7.5 Encourage the Economic Development Authority to include best preservation practices and the Some conversations held with EDA, but further development Yes reinstatement of building patterns and uses that have been interrupted by past regulations as a factor in their needed decisions to invest in the Historic District. Ensure EDA decisions and investments support preservation goals rather than work against them. 7.6 Establish a process for regular maintenance and assessment of the condition, use, and status of City- Monument and Caretaker's Lodge transferred to WHM; Visitor Yes, but refinement needed owned historic properties including the Mary Washington Monument Caretaker’s Lodge, Visitor Center, City Center relocated and building sold; Old Town Hall in partnership Hall, old Town Hall, Renwick Courthouse, and others. with FAM; Renwick under its own process. Improved communication between Facilities/Public Works and preservation staff 8.1 Explore opportunities to reach community members whose voices have not traditionally been included in Efforts in planning department to use plain language, ensure Yes preservation initiatives by offering a variety of formats for public input and outreach. availability of information to the public; targeted outreach to community groups and individuals 8.2 Expand the use of the Architectural Review Board as an advisory resource as authorized by the City Code. Initiative 1 is ongoing practice Combine with 7.1? Initiative 1: Encourage City staff to consult with the ARB on land use matters with the potential to impact historic resources during the course of existing review procedures, including considerations related to the For Initiative 2, the ARB has implemented brief educational Comprehensive Plan, zoning, subdivision, and other land use issues. presentations at ARB meetings. Initiative 2: Identify educational programs, activities, and outreach opportunities to be led by the ARB. 8.3 Encourage grassroots action by building relationships with neighborhood groups and with community Planning staff regularly attends neighborhood meetings and Yes residents and stakeholders interested in preservation. provides open communication 8 8.4 Provide education to property owners and training for ARB members on the standards that govern the ARB review process as they relate to both alterations to existing buildings and new construction within the NAPC training provided for ARB members in April 2022 DHR training workshop provided in October 2023 Yes district. Recognize that best practices evolve over time and that City staff, the ARB, and the community will Enhanced website materials developed with UMW in 2024 (not yet need to be kept current on changes. live on City website) 8.5 . Identify opportunities to collaborate with community partners to advocate for preservation, engage in Collaboration and partnership has been a big focus in recent years- Yes outreach, and provide practical support for preservation within the community. These could include: with FAM, HFFI, WHM, UMW, but these specific initiatives have Initiative 1: Provide continuing education for realtors so that they will understand both the essentials of the not moved forward (budget/capacity) city’s history and the critical role preservation plays in generating revenues and supporting property values. Initiative 2: Establish a one-stop resource for the use of tax credit programs and other incentives at the local, state, and national levels. Initiative 3: Develop a trades group that can be a resource for the community on the physical aspects of preservation.