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Dubuque Intermodal Transportation Center (DITC) Signage Copyright 2014 City of Dubuque Consent Items # 21. ITEM TITLE: Dubuque Intermodal Transportation Center (DITC) Signage SUMMARY: Historic Preservation Commission recommending approval of the internally illuminated electronic message center sign for the DITC parking ramp, as submitted, with suggestions. SUGGESTED DISPOSITION: Suggested Disposition: Receive and File; Approve ATTACHMENTS: Description Type 0 HPC Letter and attachments Staff Memo Dubuque Planning Services Department THECRY OF City Hall-50 West 13`"Street �y Dubuque IA 52001-4805 (50)589410 phone UB E �� �' (5(33)589421 fax (5(33)6906678 TDD Masterpiece on the Mississippi • =•=o» nlannlng&iwofaubunue.ore November 20, 2015 The Honorable Mayor and City Council Members City of Dubuque City Hall - 50 W. 13th Street Dubuque, IA 52001 RE: HPC Recommendation on Dubuque Intermodal Center Parking Ramp Sign. Applicant: City of Dubuque Location: Dubuque Intermodal Transportation Center (DITC), 351 E. Ninth Street District: Historic Millwork District Description: Request to install one digital sign for DITC Parking Ramp Dear Mayor and City Council Members: The City of Dubuque Historic Preservation Commission (HPC) reviewed the above-cited request at the November 19, 2015 meeting. The application, staff report and supporting documentation is enclosed for your review. Discussion Parking Division Manager Tim Horsfield reviewed the Dubuque Intermodal Transportation Center (DITC) project. He discussed the request for installation of one internally illuminated electronic message center sign for the DITC parking ramp at the Ninth Street entrance. He then introduced the DITC project architects. Khalid Khan and Brian Warthen, Neumann-Monson Architects, reviewed their previous design review of the parking ramp architecture with the HPC. They discussed the intent in designing the flush-mounted digital sign at the Ninth Street parking ramp entrance in terms of the structure's design, materials, placement, context, and function. They noted key aspects of the design and placement relative to historic districts and buildings as well as to surrounding land uses. Planning Services staff reviewed the staff report, noting that the DITC parking ramp is a modern designed structure. Staff also explained that while the City's Architectural Guidelines do not recommend internally illuminated and electronic message signs on historic buildings, the proposed sign can be considered consistent with the overarching Policy Statement of the Architectural Guidelines that all new signs should be developed with the overall context of the building and of the area in mind. The HPC discussed the size, style, materials, and placement of the electronic message center sign and similar signs on other public parking ramps in the downtown area. Extensive discussion followed on addressing HPC concerns with light pollution, flashing, Service People Integrity Responsibility Innovation Teamwork and animation on the ch amcter of surrounding historic warehouse structures with the following suggestions: minimize light pollution by using darker background colors, no flashing or animation, minimize transition time between messages, and maintain static messages whenever possible. Recommendation By City Code, the role of the HPC in reviewing this public project is to serve as an advisory design review body to the City Council. The HPC used the City's Architectural Guidelines as the standard for review in accordance with the Historic Millwork District PUD Planned Unit Development Ordinance. The HPC found this sign will be appropriate in scale and materials and in general conformance with the Architectural Guidelines in the Historic Millwork District, with special consideration given to the need to mitigate light pollution, flashing, and animation when using the electronic message center. By a vote of to 1 , the HPC recommends approval of the internally illuminated electronic message center sign for the DITC parking ramp, as submitted, with the following suggestions: minimize light pollution by using darker background colors, no flashing or animation, and maintain static messages whenever possible. A simple majority vote is needed for the City Council to concur with or to overrule the Commission's recommendation. Respectfully submitted, VY Christina Monk, Chairperson Historic Preservation Commission Enclosures cc Maurice Jones, Economic Development Director Tim Horsfeld, Parking Division Manager Historic Preservation Commission, w/o enc. F%USERS%pohnsonSCouncil pnm%HPC Review Intermodal Center Sign parang ramp 1 Revive pop 2 THE CITY OF Dubuque DUB E 11111.1 lid Masterpiece on the Mississippi 1 I so 2007.2012.1013 MEMORANDUM TO: Historic Preservation Commission FROM: Laura Carstens, Planning Services Manager SUBJECT: Advisory Design Review of DITC Parking Ramp Digital Sign DATE: November 13, 2015 INTRODUCTION This memorandum transmits re-submittal of the Dubuque Intermodal Transportation Center (DITC) parking ramp digital sign presented for advisory design review by the Historic Preservation Commission (HPC) at the November 19, 2015 HPC meeting. Enclosed are the design review application packet for the sign, a staff report, and minutes from the August 20, 2015 HPC meeting when the sign was originally submitted for review. BACKGROUND The DITC is within the Dubuque Millworking Historic District, the Dubuque Millworking District Master Plan area, and the Historic Millwork District Planned Unit Development (PUD) boundary. Design Guidelines for the PUD district generally preclude internally illuminated signs and electronic message signs. Signs that differ from the guidelines are reviewed by the HPC. The HPC provides advisory design review to the City Council. The City Council has final approval. The digital sign was installed,prior to a permit being issued. The City Manager's Office and the City Attorney's Office are aware of this situation, and it will be handled administratively. This situation should not be considered as part of the Commission's advisory design review. DISCUSSION The sign is a wall mounted digital sign on the DITC parking ramp located at Washington and 9th Streets. This flat panel message sign is embedded into the south side of the parking ramp at the 9th Street entrance. At the August 20, 2015 meeting, the HPC recommended the wall mounted sign on the parking ramp be an externally illuminated projecting sign placed perpendicular to 9'h Street over the main entrances of the ramp with lettering on both sides of sign to match the materials and color of the Dubuque Intermodal Transportation Center monument style freestanding sign. The DITC project architects were not available for this meeting to present the sign proposal. i Since the HPC did not recommend approval of this design, the sign proposal has not been sent to City Council for their approval. The digital panel has been taken out of service pending re- submittal with the project architect in attendance. RECOMMENDATION Representatives from the DITC project architect, Neumann Monson, are scheduled be in attendance at the November 19, 2015 HPC meeting to review the sign and answer questions. Their attendance will enable a broader discussion of both the project architect's intent in designing the flush mounted digital sign as well as the HPC's comments, concerns and alternative design recommendation for an externally illuminated projecting sign. Parking Division Manager Tim Horsfield and I recommend that the HPC consider the DITC parking ramp sign, discuss the proposal with the project architect's representatives, and then provide a recommendation to the City Council on the sign proposal. Enclosures cc: Tim Horsfield, Parking Division Manager David Johnson, Assistant Planner Kahlid Khan, Neumann Monson Brian Warthen, Neumann Monson E:W SERSTCARSTEMWPMMMemo DITC Signs update HPC.doc 2 Dubuque THE CITY OFto DUB E Approved Mnstelpiece on the Mississippi MINUTES HISTORIC PRESERVATION COMMISSION REGULAR SESSION 5:30 p.m. Thursday, August 20, 2015 City Council Chamber, Historic Federal Building Commissioners Present: Chairperson Christina Monk; Commissioners David Klavitter, Joseph Rapp, Bob McDonell and John McAndrews. Commissioners Excused: Commissioner John Whalen. Staff Members Present: Laura Carstens, and Dave Johnson. CALL TO ORDER: The meeting was called to order by Chairperson Monk at 5:36 p.m. AFFIDAVIT OF COMPLIANCE: Staff presented an Affidavit of Compliance verifying the meeting was being held in compliance with the Iowa Open Meetings Law. MINUTES: Motion by McDonell, seconded by Klavitter,to approve the minutes of the July 16, 2015 meeting as submitted. Motion carried by the following vote: Aye—Monk, Rapp, McDonell, and McAndrews; Nay— None; Abstain — Klavitter. DESIGN REVIEW: Application by the City of Dubuque for advisory design review of the proposed Dubuque Intermodal Transportation Center signs, 950 Elm Street, in the Historic Millwork District. Staff Member Johnson reviewed the Staff report. He explained the City is requesting to install one internally illuminated monument style freestanding sign with an electronic message center and one wall mounted digital sign. He explained the role of the Commission in reviewing this public improvement project is to serve as an advisory design review body to the City Council. Staff Member Johnson reviewed the size, materials, locations and illumination of the proposed signs. The freestanding sign will be 23.2 square feet in area and 6' 5" in height with a 7.4-square foot electronic message sign component. The cabinet will be made of extruded aluminum painted a pewter color to complement the Intermodal Transportation Center materials. The lettering will be routed, backed with white acrylic, and internally illuminated with white LED light. The sign will be located on the southwest corner of the site near Elm and E. 9'h Streets to serve Jule Transit and other services at the Center. The wall mounted digital sign will be a full-color electronic message sign that will be 45.9 square feet in area and placed on a pre-cast panel flush mounted to Minutes — Historic Preservation Commission August 20, 2105 Page 2 the City of Dubuque parking ramp entrance facing 9th Street. He noted the Center's design, materials, and site were reviewed and supported by the Commission at the January 19, 2012 meeting. Staff Member Johnson reviewed the plans and Architectural Guidelines which apply to the project. He noted the Architectural Guidelines do not recommend animated, message board or internally illuminated signs; however, the Architectural Guidelines have an overarching policy statement that all new signs should be developed with the overall context of the building and of the area in mind. He explained the Commission should consider that the Intermodal Center is a modern designed structure and not a traditional historic building. He stated it is located in the Historic Millwork District PUD Planned Unit Development, but it is not located in the Millwork District National Register Historic District. He reviewed it is also important to recognize the Center serves a greater public purpose and it is essential the signage be dynamic to convey schedules and information important to users of the Center. He stated that traditional signage does not compliment the Center in design or purpose. Staff Member Johnson explained that while the signs may not be consistent with the Architectural Guidelines which do not recommend internally illuminated and electronic message signs, the proposed signs can be considered consistent with the overarching Policy Statement of the Architectural Guidelines that all new signs should be developed with the overall context of the building and of the area in mind. He noted that the signs can also be considered consistent with the goals of the Historic Millwork District Master Plan as well as the performance standards of the Historic Millwork District PUD. The Commission asked for clarification on the location and size of the two signs. Staff Member Johnson stated the wall-mounted electronic message sign will face 9th Street and the monument electronic message sign will be at the intersection of 9th and Elm Streets. Commissioners and staff discussed similar electronic message signs for public building and the requested display area of the proposed signs. The Commission felt the freestanding sign was appropriate in scale and materials. The Commission discussed the effectiveness and need for locating the wall mounted sign facing 9th Street, noting such a large sign is not needed to inform ramp users and few people will benefit from community messages because of limited visibility from the sign's proposed location. Director of Transit Operations Candace Eudaley-Loebach arrived at 6:00 p.m. She explained the freestanding sign will provide Jule Transit information as well as community and public service announcements. She left the meeting at 6:10 p.m. Motion by McDonnell, seconded by Rapp, to recommend approval of the monument style freestanding sign as submitted. Motion carried by the following vote: Aye: Monk, McAndrews, Klavitter, Rapp and McDonell; Nay— None. The Commission discussed the digital sign's materials, scale, lighting, and type relevant Minutes — Historic Preservation Commission August 20, 2105 Page 3 to the Architectural Guidelines. The Commission expressed concern the wall-mounted sign on the ramp will flash light on adjacent buildings, impact residential uses, and be a detriment to neighboring properties and the character of the Historic Millwork District. Commissioners noted the wall mounted sign is not in keeping with the Historic Millwork District neighborhood or the Architectural Guidelines. The Commission noted signage on public buildings in historic districts should be able to comply with the same standards applied to private entities. The Commission noted the wall mounted sign is too large, projects too much light, and is not in keeping with the building or district. Motion by McDonnell, seconded by Rapp, to recommend approval of the wall mounted digital sign as submitted. Motion failed by the following vote: Aye — None; Nay: Monk, McAndrews, Klavitter, Rapp and McDonell. The Commission discussed the need and effectiveness of the proposed wall mounted sign with regard to cost and visual impact, and then asked staff to clarify their purview. Staff Member Johnson reviewed the Commission's purview is to advise City Council with regard to the sign's size, scale, placement, lighting and type -- but not content. In response to requests from Commissioners, Staff Member Johnson provided street views and aerial imagery showing adjacent buildings and development in the Historic Millwork District and public parking ramps in the downtown. The Commission compared the proposed wall mounted digital sign to externally illuminated signs and electronic message signs installed on other parking ramps in the downtown. Commissioners noted the proposed wall mounted sign would be much larger but less visible. The Commission stated the proposed wall mounted digital sign's lighting, scale and materials are inconsistent with the Architectural Guidelines. The Commission noted it would be important to provide City Council with a sign alternative that would effectively identify the parking ramp while being more in keeping. with the Architectural Guidelines. The Commission discussed sign alternatives that would both identify the parking ramp and comply with the Architectural Guidelines. The Commission discussed externally illuminated sign options as well as backlit sign options similar to the signs recently installed on the Locust Street parking ramp. The consensus of the Commission was to recommend an externally illuminated sign in keeping with the Architectural Guidelines and the Historic Millwork District. Motion by Klavitter, seconded by McDonell, to recommend the wall mounted sign on the parking ramp be an externally illuminated projecting sign placed perpendicular to 9"' Street over the main entrances of the ramp with lettering on both sides of sign to match the materials and color of the Dubuque Intermodal Transportation Center monument style freestanding sign. Motion carried by the following vote: Aye: Monk, McAndrews, Klavitter, Rapp and McDonell; Nay — None. Commissioners requested Staff provide the Commission with the information that will I Minutes — Historic Preservation Commission August 20, 2105 Page 4 be forwarded to City Council. ITEMS FROM PUBLIC: Commissioner Klavitter excused himself from the table to address the Commission. Heritage Works: David Klavitter, 1090 W. 3rd Street, explained he is part of Heritage Works and reviewed its mission and role in the community. He suggested inviting Duane Hagerty, Executive Director of Heritage Works, to speak to the Commission in greater detail about Heritage Works and partnership opportunities. By consensus, the Commission requested Staff invite Mr. Hagerty to the next Commission meeting. ITEMS FROM COMMISSION: Election of Vice-Chairperson: Staff Member Johnson reviewed at the July 16, 2015 meeting two nominations were made for Vice-Chairperson and both motions failed, so the Commission requested the matter be placed on the next Commission agenda when additional members could be present. Staff reviewed the terms and roles of officers. Commissioner McDonell nominated Commissioner Rapp as Vice Chairperson due to his extensive historical knowledge of Dubuque. Commissioner Rapp nominated Commissioner Klavitter. Commissioner Klavitter declined the nomination. Motion by McDonell, seconded by Klavitter, to nominate Joseph Rapp as Vice Chairperson. Motion carried by the following vote: Aye — Klavitter, McDonell, Monk, and McAndrews; Nay — Rapp. Work Plan Update: Staff Member Johnson explained the status of each work plan goal is identified on the goal sheet. He reviewed completed and ongoing work plan items. Staff reported on recent discussions with the City Manager regarding the Commission's request to pursue a Historic Preservation Economic Impact Study specific to Dubuque. Staff stated the City Manager was supportive, but suggested developing a more in- depth economic study which addresses specific financial and incremental impacts. Staff explained the information can then be used to later inform a Historic Preservation Plan, which is more similar to the studies the Commission had been reviewing. Staff explained the City Manager recommended the Commission look at the completed Arts and Economic Prosperity Study and the in-progress Arts and Culture Master Plan funded through the National Endowment of the Arts. Staff explained the Commission will also need to find funding for the project. The Commission discussed checking other art communities like Santa Fe for studies, and Heritage Works for possible funding. Commissioners asked when the National Park Service (NPS) will act on the National Register of Historic Places (NRNP) Nominations. Staff explained the NPS will decide on the nominations within the next two months. Commissioners discussed media coverage and education opportunities. Staff explained once the nominations are official, a media release will be issued. Minutes— Historic Preservation Commission August 20, 2105 Page 5 NRHP District Entryway Signs: The Commission discussed developing entryway signs for Dubuque's NRHP Districts. Staff Member Johnson noted once the most recent nominations are accepted by the NPS, Dubuque will have 16 districts. The Commission discussed current entryway signs for local districts and their costs. Staff suggested considering alternative designs that could perhaps be co-located on existing posts such as street signs which would be a substantial cost savings. The Commission discussed drafting a letter to the City Council to inform them of their work plan accomplishments, thank them for their vocal and financial support, and initiate dialogue about entryway signs for Dubuque's NRHP districts. The Commission requested Staff research the costs and check with the Engineering Department about co-locating entryway signs. Commissioner Recognition: The Commission requested Staff prepare letters on their behalf thanking former Commissioners Chris Olson and Mary Loney-Bichell for theiryears of service. Commission Membership: The Commission and Staff discussed current vacancies as well as the benefits of transitioning back to a 7 member Commission. The Commission requested the item be placed on a future agenda. Travel Dubugue Brochures: The Commission discussed including information on Dubuque's historic preservation program in the Travel Dubuque visitors brochure. Staff noted Dubuque's history is addressed in general terms, but space in the brochure is at a premium, making it unlikely more detailed information can be incorporated. ITEMS FROM STAFF: Staff Approvals: Staff Member Johnson reviewed and addressed questions about current staff design approvals. Eagle Point Park Update: Staff Member Laura Carstens provided the Commission with an update on the activities in Eagle Point Park. She explained the NRHP nomination is in progress and the archeological investigation fieldwork is concluding. She stated a Resource Enhancement and Protection Grant has been submitted for an environmental restoration project in the park which will address sediment loss, erosion, and invasive species that have contributed to stormwater management issues in the park. ADJOURNMENT: Motion by McDonell, seconded by Rapp, to adjourn the meeting of August 20, 2015. Motion carried by the following vote: Aye — Monk, Rapp, McDonell, Klavitter and McAndrews; Nay— None. The meeting was adjourned at 7:32 p.m. Respectfully submitted, Laura Carstens, Planning Services Manager Adopted ADVISORY DESIGN REVIEW STAFF REPORT Meeting Date: November 19, 2015 Property Address: 950 Elm Street, Dubuque Intermodal Transportation Center Parking Ramp Street Entrance Property Owners: City of Dubuque Applicants: City of Dubuque Project: Install one wall mounted digital sign District: Historic Millwork District PUD Style: Recent Funding: N/A Date Built: In-Progress Present Land Use: N/A Existing Zoning: Planned Commercial District Level of Significance: Level of Rehabilitation: ❑ Not Significant ❑ Alteration/Addition Staff Analysis: The City of Dubuque is requesting to install one (1) wall-mounted digital sign. The sign is currently non-operational and located on the entrance of the parking ramp along 9th Street. The sign measures 10'-3" x 4'. The sign was part of an application originally reviewed at the August 20, 2015 regular meeting. The minutes of the meeting are enclosed. Compliance with Guidelines: The property is within the Dubuque Millworking Historic District, the Dubuque Millworking District Master Plan area and the Historic Millwork District Planned Unit Development (PUD) boundary. Dubuque Millwork District Master Plan: The Plan proposes an approach that balances the Secretary of the Interior's preservation guidelines and the community's desire to create a unique environment conducive to and expressive of creative and artistic endeavors of all types. The approach seeks not to freeze the District in time but rather to honor the past while welcoming the future. Historic Millwork District Planned Unit Development (PUD): The performance standards of the PUD are for the creation of viable, equitable, and livable mixed-use neighborhoods in the Historic Millwork District PUD. The Historic Millwork District includes residential, retail, office, commercial, and industrial uses that require both strategy and flexibility for its sustainability. The development and maintenance of uses in the Historic Millwork District PUD conceptually should follow the goals, objectives, and recommendations of the Historic Millwork District Master Plan. The sign, as proposed, meets the bulk standards for the number, area and height as established in the Historic Millwork District PUD. Architectural Guidelines: 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. 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 do not recommend animated, message board and internally illuminated signs. Instead, they suggest external illumination, and traditional and historic materials in character with the details of the building. This approach would certainly be a logical response to signs located on a historic building or site; however, it is important the Commission consider the building is not historic as well as the overarching recommendation that "all new signs should be developed with the overall context of the building and of the area in mind." When the Commission reviewed and recommended the parking ramp design in 2012, it was with the knowledge that the new Intermodal Transportation Center and adjoining parking ramp were rightly differentiated in design and context from the historic buildings within the Historic Millwork National Register of Historic Places (NRNP) District while being respectful to the industrial and manufacturing character of the area. An interesting, well designed structure that complimented the district, while not attempting to appear historic or like a traditional building was consistent with the Secretary of the Interiors Standards and City of Dubuque Architectural Guidelines and unanimously supported. The context and character of the Intermodal Transportation Center was then defined. The Intermodal Center is a modern designed structure and not a traditional historic building. It is located in the Historic Millwork District PUD; however, it is not located in the Historic Millwork District National Register District. It is not a historic building and therefore the Historic Signs section of the Architectural Guidelines should not be strictly adhered to. The Intermodal Center does not have traditional facades with traditional features which the Architectural Guidelines are written to preserve. It is also important to recognize the Center serves a greater public purpose and it is essential the signage be dynamic to convey schedules and information important to users of the Intermodal Center. Consequently, traditional signage does not compliment the Intermodal Center in design or purpose. While the sign may not be consistent with the guidelines which do not recommend internally illuminated and message signs, the proposed signs can be considered consistent with the Architectural Guidelines overarching Policy Statement that "all new signs should be developed with the overall context of the building and of the area in mind." The signs can also be considered consistent with the goals of the Dubuque Historic Millwork District Master Plan as well as the performance standards of the Historic Millwork District PUD. 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 Intermodal Transportation Center signs and make a recommendation to City Council. The Commission's recommendation will be forwarded to City Council for their consideration. 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