Historic Preservation Commission - Dubuque County Courthouse Roof Copyrighted
May 1, 2017
City of Dubuque Consent Items # 13.
ITEM TITLE: Historic Preservation Commission - Dubuque County
Courthouse Roof
SUMMARY: Historic Preservation Commission recommending approval
of a request from Dubuque County for re-roofing the
Dubuque County Courthouse with conditions.
SUGGESTED DISPOSITION: Suggested Disposition: Receive and File; Approve
ATTACHMENTS:
Description Type
HPC Letter Staff Memo
Applicant Materials Supporting Documentation
Staff Materials Supporting Documentation
Planning Services Department Dubuque
City Hall THE CRY OF
50 West 13w Street i°a°�"a �, �T T� E
Dubuque,IA 52001-4864 I �. u
(563)589-4210 phone 111 111
(563)589-4221 fax mm-m,i-mu Masterpiece on the Mississippi
(563)690-6678 TDD
planning@citvofdubuque.orgii
April 21, 2017
The Honorable Mayor and City Council Members
City of Dubuque
City Hall— 50 W. 13th Street
DubuquelA 52001
Applicant: Dubuque County
Location: 720 Central Avenue
Description: To replace roof with synthetic and/or solar panel shingles
Dear Mayor and City Council Members:
The City of Dubuque Historic Preservation Commission has reviewed the above-cited request.
The application, staff report and related materials are attached for your review.
Discussion
Chairperson Monk and Vice Chairperson Hilgendorf removed themselves from the table
because FEH Design was working on the project. Commissioner McDonell served as
Chairperson Pro-tem.
County Facilities Superintendent Chris Soeder, representing the applicant, spoke in favor of the
request. He explained the base bid for the project will be an asphalt shingle to match and
replace the existing condition, but the County would prefer an alternative shingle option such as
a synthetic (plastic)slate or a photo-voltaic roofing system. He noted the National Register of
Historic Places Nomination Form lists slate as the original roofing material. He explained the
proposed synthetic slate would closely match the original condition while not adding significantly
to the roof weight. He added that any color of alternative shingles would be selected to closely
match the existing color. He noted sheets, photos, and renderings have been included for
review and reference. He said the roof expanse is large, but only small portions are visible from
the street level.
Kim Bellman, FEH Design, 951 Main Street, distributed samples of the synthetic slate shingle
product to the Commissioners.
Staff reviewed the staff report, noting Dubuque County is requesting to re-roof the Dubuque
County Courthouse with the following three options:
1. Replace with asphalt shingles that match the existing shingles (staff sign-off).
2. Replace with a synthetic (plastic) slate shingles (Commission review).
3. Replace with a photo-voltaic roofing system (Commission review).
Staff explained the Historic Preservation Commission should review the request and determine
if it complies with the Architectural Guidelines for roofing and the use of solar technology. Staff
noted the property is a City Landmark and therefore subject to advisory design review by the
Commission. Staff said the Commission's recommendation will be forwarded to City Council for
Service People Integrity Responsibility Innovation Teamwork
The Honorable Mayor and City Council Members
Page 2
their consideration. Staff reviewed the proposal is consistent with the Architectural Guidelines
on roofing material and solar collectors as follows:
➢ Because the project involves replacing only the roofing material, the original roof form of
the structure will not change.
➢ The original roofing material (slate) has been removed, so use of a synthetic (plastic)
slate shingle will provide a more appropriate representation of the original material
(slate) than asphalt or fiberglass shingles.
➢ Because of the height of the rooflines from the ground, it will be difficult to tell if the
shingles are made of slate or plastic.
➢ The alternative shingles would be selected to closely match the existing color.
➢ The proposed solar roofing system is a shingle-type that lays flat and is incorporated into
the weave of shingles.
➢ The use of solar shingles will not damage significant features, can be removed, and will
not threaten the structural integrity of the building.
➢ Because the building has three street frontages, it would be difficult not to place solar
shingles on a primary fagade. However, due to the roof form, height of the building and
site location, the solar shingles will not be highly visible from the adjoining public right-of-
way or from a distance (i.e., bluffs, freeway, etc.).
There were no public comments.
The Historic Preservation Commission discussed the request, and found the three options—
asphalt shingles, synthetic slate (plastic) shingles, and solar shingles—were consistent with the
Architectural Guidelines, with the condition that the roofing materials and solar shingles were of
a similar color. The applicant agreed to this condition.
Recommendation
By a vote of 6 to 0, with two abstentions, the Historic Preservation Commission recommends
that the City Council approve the request as submitted, with the condition that the color of the
roofing material and solar shingles be as close a match as possible.
A simple majority vote is needed for the City Council to approve the request.
Respectfully submitted,submitted,
Robert McDonnell, Chairperson Pro-tem
Historic Preservation Commission
Attachments
cc: Todd Carr, Building Services Manager
service People Integrity Responsibility Innovation Teamwork
THE CrrY OF City of Dubuque
DT T� Planning Services Department
�J Dubuque, IA 52001-4805
Masterpiece on the Mississippi Phone: 563-589-4210
Fax: 563-589-4221
olannino(a dtvofdubuoue.ora
PLANNING APPLICATION FORM
❑Variance ❑Preliminary Plat ❑Simple Subdivision ❑Certificate of Appropriateness
❑Conditional Use Permit ❑Major Final Plat ❑Text Amendment (]Advisory Design Review(Public Projects)
❑Appeal ❑Minor Final Plat ❑Temporary Use Permit ❑Certificate of Economic Non-Viability
❑Special Exception ❑Simple Site Plan ❑Annexation XHistoric Designation Landmark
❑Limited Setback Waiver ❑Minor Site Plan ❑Historic Revolving Loan ❑Demolition
❑Rezoning/PUD/ID ❑Major Site Plan ❑Historic Housing Grant []Port of Dubuque Design Review
Please Woe or print legibly in in
Property owner(s): Dubuque County Phone: 563.589.4432
Address:
720 Central Avenue City: State: Zip:Dubuque IA 52001
i
Fax#: Cell #: E-mail:
Applicant/Agent: Chris Soeder/Nathan Gilmore phone: 563.690.3533/563.690.3099
Address:720 Central Avenue City:Dubuque state: IA Zip:52001
Fax#: Cell #:
563.213.0471/563.528.2371 E-mail: Chris.Soeder@DubuqueCounty.US/Nathan/Gilmore@DubuqueCounty.US
Site location/address:720 Central Avenue Neighborhood Association: Select
Select Select Select
Existing zoning: Proposed zoning: District: Landmark: ❑� Yes ❑ No
Legal Description(Sidwell parcel ID# or lot number/block number/subdivision): 1024487001
Total property(lot)area (square feet or acres):
Describe proposal and reason necessary(attach a letter of explanation, if needed):Request review of appropriateness
regarding alternative shingle options for the Dubuque County Courthouse.
CERTIFICATION: I/we,the undersigned, do hereby certify/acknowledge that:
1. It is the property owner's responsibility to locate property lines and to review the abstract for easements and restrictive
covenants.
2. The information submitted herein is true and correct to the best of my/our knowledge and upon submittal becomes public
record;
3. Fees are not refundable and payment does not guarantee approval; and
4. All additional required written and graphic materials are attached. j
Property owner(s): Dubuque County Date: 11 April 2017
Applicant/Agent: Chris Soeder/Nathan Gilmore Date: 11 April 2017
FOR OFFICE USE ONLY—APPLICATION SUBMITTAL CHECKLIST
Fee: N/A Received by: Laura Carstens Date: 4/11/17 Docket:
DESCRIPTION OF PROPOSED PROJECT
(use additional pages as needed)
1) Please describe your project, indicating the existing materials and their condition
and the reason for the proposed work:
This project includes roof repair & replacement, tuckpointing, sealant & masonry
repair around the entire courthouse exterior.
2) Please indicate the type of construction materials to be used in this project:
The base bid for the project will be an asphalt shingle to match and like-for-like replace the
existing condition. The County would prefer an alternative shingle option such as a synthetic
(plastic) slate or a photo-voltaic roofing system. The original roof condition listed on the
National Register of Historic Places Nomination Form lists slate as the original roofing
material. The proposed synthetic slate would closely match the original condition while not
adding significantly to the roof weight. Any color of alternative shingles would be selected to
closely match the existing color.
3) What alternative remedies have you considered to solve your problem or meet your
needs?
The base bid will be asphalt shingle replacement to match the existing look, but it is
not the preference.
4) What is your timeline for completion of the proposed project?
Fall of 2017
5) What is the estimated project cost?
$360,000
6) Will you do the work yourself, or use a contractor? Please provide name of
contractor.
The work will be completed by the successful low-bidding contractor.
7) Any other information or comments?
Cut sheets, photos, and renderings have been included for your review and
reference. The roof expanse is large, but only small portions are visible from street
level.
Signature Date
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ADVISORY DESIGN REVIEW STAFF REPORT Meeting Date: April 20, 2017
Property Address: 720 Central Avenue— Dubuque County Courthouse
Property Owners: Dubuque County
Applicants: Chris Soeder/Nathan Gilmore - Dubuque County
Project: To replace roof with synthetic and/or solar panel shingles.
District: City Landmark Style: Beaux Arts
Funding: N/A Date Built: 1891-1893
Present Land Use: Courthouse Existing Zoning: C-4 Downtown Commercial
Level of Significance: Level of Rehabilitation:
❑ City Landmark ❑ Alteration
Staff Analysis: Dubuque County is requesting to reroof the Dubuque County
Courthouse. They are proposing following three options:
1) Replace with asphalt shingles that match the existing shingles (Staff Sign-Off).
2) Replace with a synthetic (plastic) slate shingles (Commission Review).
3) Replace with a photo-voltaic roofing system (Commission Review.
The Historic Preservation Commission should review the request and make a
determination if it is in compliance with the Architectural Guidelines as it relates to
roofing and the use of solar technology.
The property is a City Landmark and therefore subject to advisory design review by the
Historic Preservation Commission.
Citizens and property owners recognize that the character of development in downtown
and the historic districts are of community interest. It is their goal that the community
continues to develop in a coordinated manner so the character of the traditional built
environment is maintained.
The guidelines provide direction for improving properties within downtown and the
historic districts of the community. They define a range of appropriate responses to a
variety of specific design issues. The guidelines seek to manage change so the
traditional character of the area is respected while accommodating compatible
improvements. They reflect the City's goals to promote economic development,
enhance the image of the area, and reuse historic resources. The document is
compatible with The Secretary of the Interior's Standards for the Treatment of Historic
Properties, while expanding on the basic rehabilitation principles as they apply in
Dubuque.
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ADVISORY DESIGN REVIEW— DUBUQUE COUNTY COURTHOUSE Page 2
The guidelines promote high quality construction, support economic development, and
maintain an active pedestrian-oriented environment. They also promote preservation of
the historic, cultural and architectural heritage of Dubuque. The design guidelines
provide a basis for making consistent decisions about the treatment of historic
resources.
The Architectural Guidelines provide several recommendations on roofing material and
solar collectors.
The following is a general review of applicable guidelines:
ROOFING
Policy:
Roof form, material and detail are important features that contribute to the
significance of a historic structure. The character of a historic roof should be
preserved, including its form and materials, whenever feasible.
Preserve the original roof form of a historic structure.
• Avoid altering the angle of a historic roof. Instead, maintain the perceived
line and orientation of the roof as seen from the street.
• Retain and repair roof detailing.
Because the project involves replacing only the roofing material, the original roof form of
the structure will not change and will follow these guidelines.
Preserve original roof materials
• Avoid removing historic roofing material that is in good condition. When
replacement is necessary, use materials similar to the original in both style
as well as physical qualities and use a color that is similar to that seen
historically.
• Specialty materials such as tile and/or slate should be replaced with a
matching material.
The original roofing material (slate) has been removed. The use of a synthetic (plastic)
slate shingle will provide a more appropriate representation of the original material
(slate)than asphalt or fiberglass shingles. Also, because of the height of the rooflines
from the ground, it will be difficult to tell if the shingles are made of slate or plastic.
New or replacement roof materials should convey a scale and texture
similar to those used traditionally.
• Composite shingles work best for many types of buildings that have
sloped roofs. Fiberglass may also be considered.
• Roof materials should generally be earth tones and have a matte, non-
reflective finish.
• The new material should be consistent with the history style of the
property.
ADVISORY DESIGN REVIEW— DUBUQUE COUNTY COURTHOUSE Page 3
• When using a new asphalt, fiberglass or similar composition roof material,
match the original in color and finish to the extent feasible. (Some
alternative colors may be considered, however, when doing so is part of a
coordinated energy conservation scheme.)
As noted above, the original roofing material of the building was slate. The use of a
synthetic slate shingle will be more in keeping with the original material than the existing
asphalt shingle. The applicants note in their application that any color of alternative
shingles would be selected to closely match the existing color.
Minimize the visual impacts of skylights and other rooftop devices.
• The addition of features such as skylights or solar panels should not be
installed in a manner such that they will interrupt the plane of the historic
roof. They should be lower than the ridgeline.
• Flat skylights that are flush with the roof plane may be considered on the
rear and sides of the roof. Locating a skylight or a solar panel on a front
roof plane should be avoided.
The submitted solar roofing system that is proposed is a shingle-type that lays flat and
is incorporated into the weave of shingles. The Dubuque County Courthouse building is
located on three street frontages. A portion of the solar shingle would be located on a
front roof plane. However, due to the roof form, height of the building and site location,
the shingles will not be highly visible from the adjoining public right-of-way. The roof will
be more visible from a distance (i.e. bluffs, freeway, etc.) but due to distance the roofing
material will look more closely like the original.
SOLAR COLLECTORS
Policy: Solar collectors should be designed, sized and located to minimize their
effect on the character of a historic building.
Minimize potential adverse effects from solar collectors on the character of
a historic building.
• Place collectors to avoid obscuring significant features or adversely
affecting the perception of the overall character of the property.
• Size collector arrays to remain subordinate to the historic structure.
• Minimize visual impacts by locating collectors back from the front facade
when feasible.
• Mount collectors flush below the ridge line on a sloping roof so the basic
roof form is apparent.
• Consider installing collectors on a subordinate addition or a secondary
structure where applicable.
• Exposed hardware, frames and piping should have a matte finish, and be
consistent with the color scheme of the primary structure.
The proposed solar roofing system will lay flat and not obscure significant features or
adversely affect the perception of the overall character of the property. The proposed
solar roofing system will be located where the existing roofing material is and will be
ADVISORY DESIGN REVIEW—DUBUQUE COUNTY COURTHOUSE Page 4
subordinate to the historic structure. The Commission will need to discuss with the
applicant if there is hardware, frame, piping or equipment that will be exposed on the
roof.
Use the least invasive method feasible to attach solar collectors to a
historic roof.
• Avoid damage to significant features.
• Install a collector in such a way that it can be removed and the original
character easily restored.
• Collector arrays should not threaten the structural integrity of the
building.
The use of the solar shingles will not damage significant features, can be removed, and
will not threaten the structural integrity of the building.
Consider using building-integrated photo voltaic technology where the use
of new building material is appropriate.
• Installing integrated photo voltaic systems should be planned where
they will not hinder the ability to interpret the historic significance of the
structure. For example, installing solar shingles on a rear or secondary
roof facade where the original roof material is missing or significantly
damaged would be appropriate.
The applicant is proposing to use photo voltaic technology system and incorporate it
into the roofing shingles. However, because the building has three street frontages it
would be difficult not to place them on a primary facade. However, due to the roof form,
height of the building and site location, the solar shingles will not be highly visible from
the adjoining public right-of-way. The roof will be more visible from a distance (i.e.
bluffs, freeway, etc.) but due the distance, the roofing material will look more closely like
the original.
Requested Action: The role of the Commission in reviewing public projects is to serve
as an advisory design review board to City Council. The Commission is asked to review
all considerations for the Dubuque County Courthouse roof and make a
recommendation to City Council. The Commission's recommendation will be forwarded
to City Council for their consideration.
Prepared by: Reviewed: Date: �!'/3 17
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INDIVIDUAL BUILDING COMPONENTS
Proper treatment of individual historic building components supports goals for sustainability and
preservation. Original components should be retained whenever possible.
Roofs
Policy:
Roof form, material and detail are important features that contribute to the significance of a historic
structure. The character of a historic roof should be preserved, including Its form and materials,
whenever feasible.
Guidelines:
1.19 Preserve the original roof form of a historic structure.
• Avoid altering the angle of a historic roof. Instead, maintain
the perceived line and orientation of the roof as seen from
the street.
• Retain and repair roof detailing.
1.20 Preserve the original eave depth on sloped roofs of a
historic structure.
• The shadows created by traditional overhangs contribute to
one's perception of the building's historic scale and therefore,
these overhangs should be preserved.
• Cutting back roof rafters and soffits or in other ways altering
the traditional roof overhang is inappropriate.
• Avoid damaging eaves and soffits when installing a new
downspout. Flat roofed buildings are commonly
Typical Residential Roof Types Typical Commercial Roof Types found in the downtown district.
Shed roof Gambrel roof Mansard roof Commercial Flat roof
Roof Types found on both
Residential and Commercial
Clipped Gable roof Hipped roof Buildings
Cross-Gabled roof
Mansard roof Gabled roof
Chapter t Rehabilitation Guidelines for Historic Properties 25
1.21 Preserve distinctive roof features.
Ornamental cresting, a cupola or widows walk are examples
--- of distinctive features that should be preserved.
1.22 Preserve original roof materials
• Avoid removing historic roofing material that is in good
condition. When replacement is necessary, use materials
similar to the original in both style as well as physical qualities
Preserve distinctive roofing materials and use a color that is similar to that seen historically.
and designs; replace only those • Specialty materials such as tile and/or slate should be
shingles that are deteriorated beyond replaced with a matching material.
repair.
1.23 Preserve historically significant downspouts and
gutters.
T Repair historic gutters and downspouts when needed. This
t is especially important on key, character-defining building
faces.
• Patch and splice in portions that are beyond repair, rather
_ than replacing them entirely, when feasible.
1.24 New or replacement roof materials should convey a scale
and texture similar to those used traditionally.
Illlllillllld0 Composite shingles work best for many types of buildings
that have sloped roofs. Fiberglass may also be considered.
This monitor, at the top of the roof, . Roof materials should generally be earth tones and have a
is a distinctive feature that should be
preserved. It also offers opportunities matte, non-reflective finish.
for natural ventilation. The new material should be consistent with the history style
of the property.
Typical roof features to When using a new asphalt, fiberglass or similar composition
preserve include: roof material, match the original in color and finish to the
Basic form extent feasible.(Some alternative colors may be considered,
Eaves overhang however, when doing so is part of a coordinated energy
• Exposed rafter tails conservation scheme.)
Moldings
• Cresting
Finials
Monitors
Cupolas
• Widow's walks
26 Chapter 1 Rehabilitation Guidelines for Historic Properties
I I
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1,25 If metal roof materials are to be used, they should be
applied and detailed in a manner compatible with the historic When replacing a slate or the roof,
character and not distract from the historic appearance of the the support system should be evalu-
bu i l d i n g. ated to determine that it will meet
current code requirements for bearing
• Metal roof materials should be earth tones and have a matte, such loads. Some reinforcing may be
non-reflective finish. needed.
• Seams should be of a low profile.
• The edges of the roofing material should be finished similar
to those seen historically.The edges of standing seam metal
roof were historically bent downward at the edges of the
roof with a very slight overhang. In most cases the gutters
hide this detail.
• Stamped metal panels should appear similar to those seen
historically.
• Some modern metal roofing materials do not have proportions
that are appropriate to the historic character of many older
buildings and should be avoided.
1.26 When installing new gutters and downspouts, select a
design that is compatible with the architectural style.
• When an ornamental design was used historically, but it is
not feasible to replicate it, then use a simple design that
does not detract from the property or convey a false history.
1.27 Avoid using conjectural materials or features on a roof.
• Adding a widow's walk (an ornate railing around the roof
ridge) on a house where there is no evidence one existed
creates a false impression of the home's original appearance,
and is inappropriate.
1.28 Minimize the visual impacts of skylights and other
rooftop devices.
• The addition of features such as skylights or solar panels
should not be installed in a manner such that they will
interrupt the plane of the historic roof. They should be lower
than the ridgeline.
• Flat skylights that are flush with the roof plane may be
considered on the rear and sides of the roof. Locating a
skylight or a solar panel on a front roof plane should be
avoided.
Chapter 1 Rehabilitation Guidelines for Historic Properties 27
i
SOLAR COLLECTORS
Policy:
Solar collectors should be designed, sized and located to minimize their effect on the character
of a historic building.
Guidelines:
5.14 Minimize potential adverse effects from solar collectors
on the character of a historic building.
• Place collectors to avoid obscuring significant features or
adversely affecting the perception of the overall character
of the property.
• Size collector arrays to remain subordinate to the historic ;
structure. _
• Minimize visual impacts by locating collectors back from the
front facade when feasible.
• Mount collectors flush below the ridge line on a sloping roof
so the basic roof form is apparent. Locating solar collectors on a
• Consider installing collectors on a subordinate addition or secondary structure in a residential
a secondary structure where applicable. neighborhood is a preferred
• Exposed hardware, frames and piping should have a matte approach.In this case,solarcollector
finish, and be consistent with the color scheme of the panels are located on the roof of a
new garage in a historic district.
primary structure.
Y711
_ _ `•
I S
This home uses two appropriate locations for solar collectors, on the roof
of a new secondary structure, and on the rear portions of the roof on the
primary structure.
Chapter 5 Design Guidelines for Sustainability 157
Locating Solar Panels on a 5.15 Use the least invasive method feasible to attach solar
Historic Home collectors to a historic roof.
• Avoid damage to significant features.
• Install a collector in such a way that it can be removed and
the original character easily restored.
• Collector arrays should not threaten the structural integrity
- — - of the building.
�j :J
j 5.16 Consider using building-integrated photo voltaic
technology where the use of new building material is
appropriate.
• Installing integrated photo voltaic systems should be planned
Existing Building ng street,
res where they will not hinder the ability to interpret the historic
• Gable facing street,side is
south facing significance of the structure. For example, installing solar
shingles on a rear or secondary roof facade where the original
roof material is missing or significantly damaged would be
appropriate.
Appropriate Acceptable Not Appropriate
Li
Features Features Features
• Panels located on rear portion Panels set back from eave, but • Panels are not set back from
of roof closer to the front eave.
• Panels set back from eaves Panels are flush with the roof Panels overwhelm the character
• Panels are flush with the roof • Panels do not overwhelm, and of the historic roof and structure.
• Panels do not overwhelm the roof are subordinate to,the roof plane
When should I use this When should I use this
approach? approach?
• This location provides sufficient • The preferred option is not
solar access feasible
• The building is highly significant • The building is a contributor to
• The context has many intact a district
historic buildings Site constraints restrict solar
• Roof is highly visible access
• Roof is not highly visible
158 Chapter 5 Design Guidelines for Sustainability