CITY OF SUNNYVALE

REPORT

Heritage Preservation Commission

                   June 8, 2005

REPORT IN BRIEF     

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Description of Proposed Project

This applicant is proposing to demolish the existing single family homes at 461 and 471 S. Murphy Avenue in order to construct five new townhomes. Staff is requesting a determination from the Heritage Preservation Commission regarding the local historical significance of the homes in order to conduct appropriate environmental review. 

Background

Previous Actions on the Site: The following table summarizes previous planning applications related to the subject site.

The current project, to construct 5 townhomes, was previously approved by the Planning Commission in 2002.  The applicant was not able to execute their Special Development Permit document within a two-year time frame, causing the permit to expire.  This expiration requires the project plans to be resubmitted and reviewed according to current codes and standards.  Since the time of the original approval, the Sunnyvale Municipal Code has been amended to include new procedures to evaluate changes to historic resources. 

The two existing homes at the site are part of the South Murphy Avenue Streetscape (400-500 Block) and therefore are listed on the Sunnyvale Cultural Resources Inventory.  The homes themselves are not specifically listed on the inventory nor are the 400-500 blocks listed as a Local Landmark District.  (See Attachment B.)

A historic evaluation was prepared by Archeological Resource Management in 2001 (Attachment A).   The report did not arrive at a definitive conclusion regarding the local historical significance of the homes; however, it does provide historical facts that the Commission should use when determining significance.

Environmental Review

Under the California Environmental Quality Act (CEQA), any application that may cause a substantial adverse change to a historic resource is subject to environmental review. Since the application proposes to demolish the existing structure, there would be a substantial and potentially adverse change if the structures are considered historic.  CEQA statute states the following:

 “§ 21084.1. Historical Resource:  A project that may cause a substantial adverse change in the significance of an historical resource is a project that may have a significant effect on the environment.  For purposes of this section, an historical resource is a resource listed in, or determined to be eligible for listing in, the California Register of Historical Resources.  Historical resources included in a local register of historical resources, as defined in subdivision (k) of Section 5020.1, or deemed significant pursuant to criteria set forth in subdivision (g) of Section 5024.1, are presumed to be historically or culturally significant for purposes of this section, unless the preponderance of the evidence demonstrates that the resource is not historically or culturally significant.  The fact that a resource is not listed in, or determined to be eligible for listing in, the California Register of Historical Resources, not included in a local register of historical resources, or not deemed significant pursuant to criteria set forth in subdivision (g) of Section 5024.1 shall not preclude a lead agency from determining whether the resource may be an historical resource for purposes of this section.”

Generally when projects such as this are reviewed by local agencies, a historical and architectural evaluation is requested which determines the historical significance of the structure at the National, State, and local levels.  This report is used as “the preponderance of evidence” as stated in the statute. In this case, the report for the residences at 461 and 471 S. Murphy Avenue determined that the homes are not eligible to be listing on the National or State registries of historic resources. The report does not conclude whether the home is eligible to be listed on the City’s Cultural Resource Inventory; however, provides architectural, context and chain of title information to help the Commission determine the site’s local significance, if any.

Required HPC Determination

At this hearing, staff is requesting a determination from the Heritage Preservation Committee regarding the local significance of the project site so that the appropriate level of environmental review can be conducted for this project.  If the Commission determines that the structures have local historic significance, than an Environmental Impact Report (EIR) would be required to be prepared.  If the Commission determines that the structures do not have local historic significance, a Negative Declaration would be prepared and the proposed project would proceed forward to Planning Commission.

An EIR would require approximately 6 months additional time to complete.  The EIR would explore alternatives to the demolition of the structure and require greater public notice regarding the potential impact to the property.  The intent of the report is to provide information regarding the residence and disclose all impacts that the project demolition and construction of 5 townhomes may create.

Heritage Preservation Policies

In order to determine any local historic significance, Heritage Commissioners should draw from four sources of information.  The first source is the City’s Cultural Resource Inventory which describes the Murphy Streetscape as follows:

“The Murphy Streetscape is composed of various types of bungalows and Period Revival styles.  Uniform setbacks, lot sizes, and scale create a cohesive grouping but the diversive stylistic characteristics of each building lend visual vitality to the street.”

The inventory also states the significance of the block as follows:

“Murphy Street was part of the original town of Encinal laid out by P.W. Murphy in 1898, and the street boasts many older homes. Though each house may not be notable individually, the streetscape is significant as an early example of a Sunnyvale neighborhood.  Many of the homes have been reused as businesses, perhaps a threat to the street, but still an economically viable way to retain older structures.”

It should be noted that the homes were never individually listed on the City’s Cultural Resources Inventory and the 400-500 Block was never adopted as a Local Landmark District.

The second source of information is the historic and architectural report provided by Archeological Resources Management in Attachment A.  The report details specific facts about the home and provides criteria that may qualify it for local significance. 

The report states:

“The structures at 461 and 471 South Murphy Avenue….do not appear to be eligible for potential inclusion in this (National) register.  Neither structure was found to be associated with events or people important to the history of the United States, of California, or the Sunnyvale area…

The homes can be considered integral and supportive elements within that district, as they are compatible with the dominant chronological and architectural themes of the neighborhood.”

However, the report also states that the property at 461 South Murphy Avenue was once owned by Ida Trubschenck, the first City Clerk of the City of Sunnyvale. It is not clear at this time whether she actually lived in the home. Ms. Trubschenck was identified as one of the nine pioneers of Sunnyvale in the Sunnyvale Portrait Program. The third source to consider is the Historical Portraits Project booklet published by the City of Sunnyvale in December 1991. This booklet provides information about Ida Trubschenck and her contributions to the City of Sunnyvale (Attachment C).

The fourth resource to use in making a decision is the City’s Municipal Code, Title 19 (Zoning Ordinance) which provides the criteria for nomination of a City Heritage resource. The criteria are similar to the criteria used for State and National eligibility.  Criteria for evaluation and nomination of heritage resources in Section 19.96.050 of Title 19 state the following:

“Any improvement, building, portion of buildings, structures, signs, features, sites, scenic areas, views, vistas, places, areas, landscapes, trees, or other natural objects or objects of scientific, aesthetic, educational, political, social, cultural, architectural, or historical significance can be designated a heritage resource by the city council and any area within the city may be designated a heritage resource district by the city council pursuant to provisions of this chapter if it meets the Criteria of the National Register of Historic Places, or one or more of the following:

(a) It exemplifies or reflects special elements of the city's cultural, social, economic, political, aesthetic engineering, architectural, or natural history;

(b) It is identified with persons or events significant in local, state, or national history;

(c) It embodies distinctive characteristics of a style, type, period, or method of construction, or is a valuable example of the use of indigenous materials or craftsmanship;

(d) It is representative of the work of a notable builder, designer, or architect;

(e) It contributes to the significance of an historic area, being a geographically definable area possessing a concentration of historic or scenic properties or thematically related grouping of properties which contribute to each other and are unified aesthetically or by plan or physical development;

(f) It has a unique location or singular physical characteristic or is a view or vista representing an established and familiar visual feature of a neighborhood, community, or the city of Sunnyvale;

(g) It embodies elements of architectural design, detail, materials, or craftsmanship that represents a significant structural or architectural achievement or innovation;

(h) It is similar to other distinctive properties, sites, areas, or objects based on a historic, cultural, or architectural motif;

(i) It reflects significant geographical patterns, including those associated with different eras of settlement and growth, particular transportation modes, or distinctive examples of park or community planning;

(j) It is one of the few remaining examples in the city, region, state, or nation possessing distinguishing characteristics of an architectural or historic type or specimen;

(k) With respect to a local landmark, it is significant in that the resource materially benefits the historical character of a neighborhood or area, or the resource in its location represents an established and familiar visual feature of the community or city.

(l) With respect to a local landmark district, a collective high integrity of the district is essential to the sustained value of the separate individual resources;

(m) With respect to a designated landmark and designated landmark district, the heritage resource shall meet Criteria of the National Register of Historical Places, which are incorporated by reference into this chapter. (Ord. 2623-99 § 1 (part): prior zoning code § 19.80.060).”

Staff has reviewed all four sources of information and has concluded that the two structures could be eligible to be listed as an individual Heritage Resource. Although the individual architecture of the buildings is not significant, their contribution to the streetscape and the possible connection with Ida Trubschenck raise the possibility that they have local historical significance. Staff believes that the properties could qualify under Section 19.96.050(b) and (e) of the Sunnyvale Municipal Code (criteria for evaluation and nomination). Staff recommends that the Heritage Preservation Commission determine that this project site has local historical significance. In order to continue review of the proposed townhouse project, an Environmental Impact Report would be required as well as subsequent public review and hearings.

No fiscal impacts other than normal fees and taxes are expected.

1. Determine that the two structures could have local historic significance.
2. Determine that the two structures could not have local historic significance.

Alternative 1.