Agenda Item Wording:
title
Review and accept the 2021 Annual Report from the City of Visalia Historic Preservation Advisory Committee.
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Deadline for Action: 6/20/2022
Submitting Department: Community Development
Contact Name and Phone Number:
Walter Deissler, Chairperson, Historic Preservation Advisory Committee
Cristobal Carrillo, Associate Planner, (559) 713-4443, cristobal.carrillo@visalia.city <mailto:cristobal.carrillo@visalia.city>
Paul Bernal, Community Development Director, (559) 713-4025 paul.bernal@visalia.city <mailto:paul.bernal@visalia.city>
Department Recommendation:
Staff recommends the City Council review and accept the annual report from the Historic Preservation Advisory Committee (HPAC). The annual report provides the City Council with a detailed overview of all activities conducted and projects reviewed by the HPAC during the 2021 calendar year. The report also provides responses to directives initiated by the City Council Sub-Committee on Committees/Commissions.
Background:
As one of the oldest cities in the Central Valley, Visalia hosts an impressive collection of historic sites and structures. Numerous structures with distinctive architectural styles are present in Visalia, concentrated in the city’s historic core. The Historic Preservation Ordinance, adopted in 1979 and updated in 2001, established the HPAC to act as a steward for historic preservation causes. The Committee is primarily responsible for periodically updating the Local Register of Historic Structures, nominating properties to Local, State, and Federal Historic Registers, and reviewing building/planning actions related to historically designated structures within the Historic District and/or on the Local Register. Review of building and planning actions is the most frequent task undertaken by the Committee, consisting of review of exterior alterations to historically designated structures, and review of zoning actions on sites within the Historic District (ex. Change of Zones, Conditional Use Permits, Variances, and Planned Unit Developments). HPAC reviews are conducted with a focus on preserving the integrity of historic structures and maintaining the unified architectural character of historic neighborhoods. Committee actions are appealable directly to the City Council. The Committee consists of seven members with a wide variety of knowledge relevant to historic preservation. Current members of the HPAC have worked in construction, architecture, real estate, and landscaping, and many of the members are active in community groups. The Committee meets on the second and fourth Wednesdays of every month so as to provide expedient review of development requests. In 2021, the HPAC held a total of 30 meetings, which included 22 regular public meetings, 7 special called public meetings (including a work session with the Building Advisory Committee), and 1 work session with the Visalia City Council. This is likely the most of any City committee/commission operating today, and second only to the City Council itself.
Discussion:
In 2021, the HPAC took a number of actions to administer the goals and policies of the Historic Preservation Ordinance and Historic Preservation Element. This consisted of reviews of applicable construction and planning projects, initiatives to update the Local Register of Historic Structures and the Historic Preservation District Ordinance, and advocacy for the placement of signage denoting the locations of the Historic District. The actions of the Committee are described below. Directives from the Visalia City Council’s 2021 Committees/Commissions Work Sessions will also be addressed.
Project Reviews
In 2021, the HPAC conducted a total of 19 project reviews. Items reviewed by the HPAC consisted of a wide range of residential and commercial projects, including proposals for new residences and accessory dwelling units, the renovation of an existing building for an outpatient surgery center, and rooftop shade structures for the Darling Hotel. All projects, as well as decisions rendered by the HPAC, are described in Attachment No. 1.
Long Range Projects
As the result of demolition of the Odell-Mor Building (209 N. Encina Street), the HPAC embarked on two projects to strengthen its ability to preserve historic buildings. The two projects are an update to Visalia Municipal Code Chapter 17.56 (Historic Preservation District Ordinance) and an update to the Local Register of Historic Structures. The projects are described below.
Historic Preservation Ordinance Update
In early 2021, the Visalia City Council directed the HPAC to provide recommendations for revision of the Historic Preservation District Ordinance. As a result, the HPAC began to devise recommendations to address various deficiencies of the Ordinance. Work sessions were held with the City Council on October 4, 2021, and February 22, 2022, and Building Advisory Committee on November 17, 2021, to discuss and refine the recommendations. At the completion of the sessions, six areas were identified as requiring revision. The proposed revisions are as follows:
1. Update the Ordinance so that “Background” Local Register structures located outside the Historic District are subject to HPAC review. Currently these structures are exempt from HPAC review unless proposed for demolition.
2. Grant HPAC the ability to deny demolition requests for properties within the Historic District or Local Register. Currently the HPAC is compelled to approve demolitions requests. The HPAC can only deny a demolition request when the structure is listed as “Exceptional” on the Local Register.
3. Add definitions for Local Register classifications to the Ordinance. As present Local Register classification definitions are only found within the Historic Preservation Element of the Visalia General Plan.
4. Add specific criteria for the evaluation of fencing proposals. At present language within the Ordinance is vague. Language will be added to be inclusive of a larger range of fencing types, while preserving historic integrity.
5. Limit the percentage of paved surfaces allowed within front yard areas. The intent is to preserve landscaping in front yard areas, with an eye towards preserving historic aesthetics.
6. Change the frequency of Local Register reviews. This would change the requirement to conduct Local Register reviews from an annual basis to every five years.
Local Register of Historic Structures Update
In conjunction with the above, the HPAC also embarked on an update to the Local Register of Historic Structures, a task which had not been undertaken in any capacity since 2013.
Each structure on the Local Register has been previously assigned a “classification” based on physical attributes and historical significance. With this project the HPAC reviewed each structure on the Local Register to determine whether the appropriate classification was applied. The three classification types are as follows:
• Exceptional: Sites with preeminent historical significance, considered for nomination to the National Register of Historic Places.
• Focus: Sites having significant value, of good to excellent quality, considered for local recognition.
• Background: Properties that may not be historically significant or unique, but which contribute positively to the City’s “visual fabric”.
Site visits by all members of the HPAC, staff, and volunteers were conducted for all 368 sites on the Local Register. This involved photographing each structure, noting any physical changes, cross-referencing with previous surveys, speaking to members of the public, and providing a recommendation on what classification should be applied. Public notices were sent to all owners and occupants of Local Register sites to ensure public knowledge of HPAC activities. Surveys were completed in late 2021, with evaluations of the sites by the HPAC completed in 2022.
Public Outreach Meeting
At the request of the City Council, the HPAC also conducted a public outreach meeting on March 30, 2022, to answer questions and solicit comment on the Historic Preservation District Ordinance update and Local Register of Historic Structures update. Notice of the meeting was sent to all property owners and occupants of sites within the Historic District and Local Register, resulting in a meeting that was well attended. Comments received consisted of a recommendation to not alter the frequency of Local Register reviews and clarifying questions regarding fencing and landscaping changes. All comments were collected by staff for possible incorporation into the two projects. Note that additional public notification will occur as part of the public hearing processes for the Historic Preservation District Ordinance update and Local Register of Historic Structures update.
Next Steps
Both projects require review by the HPAC, and a recommendation from the Planning Commission to the Visalia City Council. HPAC review was completed at a specially called meeting held May 26, 2022. At that meeting, the Committee recommended approval of both projects to the Visalia Planning Commission. The Visalia Planning Commission is scheduled to hear both items at its July 11, 2022, meeting. Final authority to approve the ordinance changes and certify the Local Register changes resides with the Visalia City Council. City Council review of the two projects is expected to occur between August and September 2022.
Historic Street Signage Project
In 2021, the City and HPAC took multiple actions to promote wider knowledge of historic preservation and its applicability to certain areas of the city. This included the annual mailing of an HPAC informational guide to property owners and occupants of historically designated properties and coordination with local media for the dissemination of stories highlighting historic preservation topics. In support of these efforts, HPAC members recommended to the City Council during the October 4, 2021, Work Session that signage be placed identifying the location of the Historic District. The idea was roundly supported by members of the City Council.
Subsequently on November 15, 2021, the City Council allocated funds for the placement of “Historic District” street blade signage. Installation of street blades was completed in early 2022 and included placement on approximately 100 existing street name sign or utility poles throughout the Historic District by Public Works Department staff. The overall public response to the placement of historic wayfinding signage has been positive.
2021 Committees/Commissions Work Sessions
On May 3, 2021, the City Council Sub-Committee on Committees/Commissions shared its recommendations for the overhaul of City committees and commissions. The Sub-Committee issued 10 directives for committees/commissions to consider or specifically integrate into their operations. The applicable directives, and HPAC’s efforts for incorporation, are described below.
1. Geographical Diversity
The Sub-Committee recommended that when committees/commissions recruit or evaluate new members for service, that consideration be given to increasing geographical diversity, meaning that membership reside throughout all City quadrants.
For the HPAC, given its limited jurisdiction, it is recommended that when possible, preference be given to committee applicants who reside in the Historic District or on a site on the Local Register. At present, two of the seven members currently on the HPAC reside within the Historic District. When interviewing potential members to fill a recent vacancy, the HPAC did take into account that a candidate lived within the Historic District. That candidate was ultimately nominated to serve on the HPAC
2. Mission Statements
The Sub-Committee requested that committees/commissions present mission statements to guide their work plan for each year.
The HPAC is one of the few committees/commissions that has an Ordinance within the Visalia Municipal Code, providing guidance on HPAC activities. Visalia Municipal Code Chapter 17.56 (Historic Preservation District Ordinance) is included as Attachment No. 2.
3. Work Program and Report
The Sub-Committee requested that committees/commissions develop a work program for the upcoming fiscal year and prepare an annual report describing the work conducted in the previous year.
The annual report before the City Council today describes all activities conducted by the HPAC in 2021. For 2022, the HPAC has identified the following objectives to pursue:
• Completion of the Historic Preservation Ordinance Update.
• Completion of the Local Register of Historic Structures Update.
• Research the benefits and feasibility of applying to become a Certified Local Government (CLG). The CLG program is a national program administered by the State Historic Preservation Office (SHPO) designed to encourage best planning practices in local government for the identification, registration, and preservation of historic properties. Potential benefits include grant funding for preservation activities and technical assistance from experienced professionals.
• Continuance of project reviews for sites within the Historic District and on the Local Register.
• Begin research and processes to add sites to the Local Register of Historic Structures.
• Obtain approval of a proclamation denoting May 2022 as “National Historic Preservation Month” (Item completed as of May 2, 2022).
• Send historic preservation information to all owners/occupants of sites within the City of Visalia listed on the National Register of Historic Places.
4. Technical Advice to the Historic Preservation Advisory Committee
The Sub-Committee requested that the HPAC and the Building Advisory Committee (BAC) develop a streamlined process for the BAC to provide timely input on construction proposals slated to go before the HPAC.
The HPAC held a joint meeting with the BAC on November 17, 2021, to discuss the above directive. BAC members noted that the missions of each committee where not in sync, as the HPAC is tasked with matters of architectural design, while the BAC works with interpretation of the Building Code. The Committees agreed that cooperation between the two groups would be best utilized for the evaluation of significant demolition proposals, with the option for reviews of other proposals if deemed necessary by the HPAC. A process was defined and agreed to in which staff would convene a sub-committee from each group to solicit comment to be shared with the HPAC whenever a significant demolition request was received. Members for each group were assigned to serve on the subcommittee (Michael Kreps and Jay Hohlbauch with the HPAC, and Dennis Whistler and Stuart Hendricks for the BAC, with Martin Hale acting as an Alternate). This process was chosen as it provides for greater meeting flexibility, as the full membership of the BAC only meets on a quarterly basis. It also ensures that project reviews continue to be conducted in a timely manner, removing the need for applicants to undergo two public hearings (HPAC and BAC) instead of one.
Fiscal Impact: None.
Prior Council Action:
1. At the February 16, 2021, meeting of the City Council, during presentation of the 2020 HPAC Annual Report, members of the Council directed the HPAC to provide recommendations for the revision of the Historic Preservation District Ordinance.
2. At the March 1, 2021, City Council Committee/Commission Work Session, the HPAC was encouraged to undertake projects related to their mission. A request was made by members of the City Council for the HPAC to consider reviewing the Historic Preservation District Ordinance for potential changes.
3. At the October 4, 2021, City Council and Historic Preservation Advisory Committee Work Session, direction was provided by the Council regarding proposed revisions to the Historic Preservation District Ordinance. The Council directed the Committee to meet with the Building Advisory Committee, solicit comment, and return to the Council for a follow-up work session
4. At the February 22, 2022, City Council and Historic Preservation Advisory Committee Work Session, the HPAC presented comments provided by the Building Advisory Committee on proposed revisions to the Historic Preservation District Ordinance. The Council provided additional comment and directed the HPAC to pursue a Zone Text Amendment to revise the Historic Preservation District Ordinance.
Committee/Commission Review and Action:
The Historic Preservation Advisory Committee discussed the preparation and content of this annual report at their April 27, 2022, meeting.
Alternatives: None.
Recommended Motion (and Alternative Motions if expected):
recommendation
I move to accept the 2021 Annual Report from the Historic Preservation Advisory Committee.
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CEQA Review: Not applicable.
Attachments:
1. Historic Preservation Advisory Committee - Project Reviews 2021
2. Historic Preservation District Ordinance
3. Historic District & Local Register Map
4. Committee Member List