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R-10256f:\atty\muni\law\barry\Technical Code Update Resolution 11-13-07 City Council Meeting 11-13-07 Santa Monica, California RESOLUTION NUMBER to25s (City Council Series) A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF SANTA MONICA MAKING FINDINGS REGARDING LOCAL CLIMATIC, GEOLOGICAL AND TOPOGRAPHIC CONDITIONS PURSUANT TO HEALTH AND SAFETY CODE SECTIONS 17958.5, 17958.7 and 18941.5 WHEREAS, the State Building Standards Commission has approved and published the 2007 edition of the California Building Standards Code on July 1, 2007; and such code will be effective 180 days thereafter, which is January 1, 2008; and WHEREAS, Health and Safety Code Sections 17958.7 and 18941.5 provide that the City may make changes or modifications to the building standards contained in the California Building Standards Code based upon express findings that such changes or modifications are reasonably necessary because of local climatic, geological or topographical conditions, and WHEREAS, on August 21, 2007 and August 28, 2007, the Building & Safety Commission met to consider recommendations to the City Council regarding adopting the 2007 California Building Standards Code, local amendments to that Code, and a resolution making the necessary local findings, and WHEREAS, the August 21, 2007 Building & Safety Commission staff report detailed the precise technical reason for each of the proposed amendments, which staff report is hereby incorporated herein by reference, and WHEREAS, at its August 28, 2007 meeting, the Building & Safety Commission unanimously recommended that the City Council adopt a resolution making necessary local findings and adopt the 2007 California Building Standards Code with local amendments, as modified by the Commission, and WHEREAS, the City Council has considered the 2007 editions of the California Building Standards Code, including but not limited to the California Fire Code, California Building Code, California Electrical Code, California Energy Code, California Mechanical Code, California Plumbing Code, the reference standards, all appendixes and the matrix adoption tables contained therein and any applicable errata issued subsequent to the publication of above codes and standards, and the recommendations of the Building & Safety Commission; and WHEREAS, based upon the findings contained in this Resolution, the City Council will be adopting an ordinance containing certain modifications and additions to the building standards contained in the California Building Standard Code, which are reasonably necessary based upon local climatic, topographical and geological conditions and which reduce the risks to life and property resulting from these conditions; NOW, THEREFORE, THE CITY COUNCIL OF THE CITY OF SANTA MONICA DOES RESOLVE AS FOLLOWS SECTION 1. The City Council makes the following findings regarding local climatic, geological and topographic conditions related to the local amendments to the California Building Standards Code found in Section 2 below: Local Climatic Conditions (a) The Master Environmental Assessment (MEA) adopted in April, 1996, shows that Santa Monica's climate is primarily influenced by the Pacific Ocean and is characterized by infrequent rainfall and winds, which come from the west during the daytime and from the north and northeast during the nighttime, with intermittent Santa Ana winds occurring from September to March. As demonstrated by the recent events of last month, these conditions create the potential for high velocity winds with high temperatures and low humidity, which are conducive to uncontrolled wind driven fires and greatly increase the fire risk to residences. (b) The MEA also shows that structures in the City are situated in close proximity to each other, with only about 1 % of the 8.3 square miles that the City occupies vacant. In addition, these lots are often very narrow or on hilly terrain, which limits access to side yards for fire suppression and placement of ladders for rescue operations. These conditions also contribute to the ability of fires to spread quickly between buildings because of the proximity to each other and create difficulty in suppressing fires in the hilly terrains. Widespread fire would seriously impact the Fire Department's ability to respond to all fires. (c) The Safety Element of the General Plan, adopted in January 1995, also identifies that many of the structures in the City are older structures that are prone to the quick spread of fire from adjacent structures due to the materials used in construction and less stringent fire resistant technology available at the -time they were built. According to the City's 2000-2005 Housing Element, in 1990 about 35% of the housing stock was over 50 years old and 40% was 30 to 50 years old. (d) Santa Monica is situated In Southern California, which has extreme arid conditions and periods of severe drought. Indeed, the City is currently in extreme drought condition. As outlined In the MEA, the City relies upon water from outside the region, which is bought from the Metropolitan Water District, and local groundwater for the City's water supply. Presently, due to MTBE contamination, local groundwater now provides only about 10-15% of City's water. Severe drought conditions and potential uncertainty about the availability of future water supplies from outside the region require the proper management of available water supplies. These conditions also contribute to the ability of fires to spread quickly due to the reliance of water from outside sources that may not be available following a major earthquake. Widespread fire would seriously impact the Fire Department's ability to respond to all fires. (e) As also detailed in the MEA, although the City can experience periods of high winds and grid temperatures, it often enjoys an extremely mild climate. Average daytime temperatures range from highs of 75 degrees (F) in July, August, and September to 64 degrees (F) in January and February. Overnight lows vary from an average of 61 degrees (F) in January and February to 64 degrees (F) in August. A below freezing temperature has never been recorded. in the City. The City's annual precipitation averages 12.5 inches. The City has excellent air quality and the. City, unlike most of the South Coast Air Basin, seldom exceeds national and state air quality standards. This temperate climate makes the City uniquely suited for the proper operation of buildings designed for sustainable development and increased use of operable windows. Local geological conditions (a) Several active and potentially active faults are located in the City including: the Santa Monica Fault, Hollywood Fault, Raymond Fault, Malibu Coast Fault, Palos Verdes Fault, Newport-Inglewood Fault, and the Charnock Fault. Other faults in Southern California have the potential to seismically affect the City include the San Gabriel Fault and the probable existence of large blind thrust faults currently undocumented. (b) The Safety Element details the City's geological condition and shows a high risk of seismic activity in the City due to its close proximity to these faults and discusses the damaging effect local seismic activity would have on potentially hazardous buildings and the related potential demands on emergency services needs. Structures built without supplemental seismic provisions are susceptible to extensive damage and are a source of fire hazard with damaged gas and electrical utilities inside. The close proximity of these faults increases the likelihood of seismic disturbances of substantial magnitude. Massive earthquakes pose unusual and extraordinary stresses on buildings and structures which necessitate more stringent buildings regulations than otherwise required. (c) Seismic experts predict a massive earthquake on one of these faults within the next 30 years and several earthquakes similar in intensity to the Northridge Earthquake during the same period. (d) Despite being located 21 kilometers from the epicenter of the 1994 Northridge earthquake (magnitude 6.7), the City experienced anomalously concentrated damage with Mercalli intensity IX, an intensity as large as that experienced in the vicinity of the epicenter. Most of the damage occurred in an east-west trending belt within the northern portion of the city, and extended westward into Pacific Palisades and eastward into west Los Angeles and Hollywood. Two hundred million dollars in damage occurred in Santa Monica. One hundred thirty four buildings were unsafe for occupancy and 396 others were damaged enough to limit access. (e) The Safety Element also discusses the damaging effect local seismic activity would have on street, roadways and overpasses at the Santa Monica Freeway, which would hamper and delay emergency vehicle response. In many situations, this will result in limiting or totaling blocking fire department emergency vehicular traffic. (f) In addition, the Los Angeles region has a vast and complex network of faults. Some of these faults, like the previously unknown Northridge Fault, are blind thrust faults that earth scientists believe are capable of intense ground shaking similar or greater in size than the Northridge Earthquake. The random possible location of these blind thrust faults increases the local seismic risk and poses an increasing threat to public safety. (g) An analysis of damage patterns to structures in the City from the January 17, 1994 Northridge earthquake and its aftershocks showed that unreinforced masonry structures, wood frame structures, tilt-up and masonry structures with flexible diaphragms, non-ductile concrete buildings, and steel frame structures, were more susceptible to damage than other types of structures. Unless supplemental seismic and fire life safety prevention requirements are adopted, these buildings will perform poorly during intense ground shaking and will pose an ongoing threat to public safety. (h) An analysis of damage patterns to nonstructural elements in the City from the January 17, 1994 Northridge earthquake and its aftershocks also showed that concrete and masonry chimneys, veneer, clay and concrete the roofing and fire sprinklers were more susceptible to damage than other types of nonstructural elements. Unless supplemental seismic and fire life safety provisions are adopted, these nonstructural elements will perform poorly during intense ground shaking and pose an ongoing threat to public safety. (i) Continued study of buildings damaged during the Northridge Earthquake and subsequent major earthquakes around the world has led to improvements in earthquake design regulations that better identify the types of buildings that are vulnerable to earthquakes and cost effective economic methods to construct them. Q) By incorporating the latest earthquake design regulations into the City's building standards, the latest and most effective standards will be implemented into design and construction so as to protect the public health, safety, and welfare. (k) The Safety Element also identifies shallow ground water within 50 feet of the ground surface along the beach, near the Industrial corridor and Marine Park areas of the City. This ground water condition, coupled with unconsolidated youthful sedimentary soils, makes these areas susceptible to possible liquefaction during strong or moderately strong earthquakes. Liquefaction is a very destructive secondary effect of strong seismic shaking where a loss of bearing strength occurs along with ground oscillations in the supporting soils. (I) Analysis of the emergency response to the January 17, 1994 earthquake showed that the need for emergency fire services in the City greatly exceeded available resources. A major seismic event would create a demand for fire suppression services that the City Fire Department would have difficulty meeting, thus making supplemental seismic safety provisions essential to fire suppression efforts. Local topographical conditions Santa Monica is situated adjacent to the Santa Monica Bay. The bay serves as home to over 5,000 species of birds, fish, mammals, plants and other wildlife. The bay and its surroundings also provide essential habitat for a number of migratory waterfowl and shorebirds, as well as for threatened and endangered species. In addition, it provides recreational opportunities for an estimated 45 million visitors each year -- more than 500,000 a day at the height of summer. Particularly during the City's rainy season, the bay is affected by water pollution-related maladies which can force the closure of the City's beaches. Urban and storm water runoff that is carried to the Bay through the City's storm drain system is a serious, year-round concern. Swimming or surfing within one hundred yards of a flowing storm drain increases the risk of illness. By incorporating specified design and construction features, the City can reduce contaminated urban runoff and improve water quality in the Bay. SECTION 2. The City Council makes the express finding that the following modifications and changes to the California Building Standards Code are reasonably necessary because of the local climatic, geological or topographical conditions and that each and every one of the local conditions detailed in Section 1 above, as further delineated in this Section and the August 21, 2007 Building & Safety Commission staff report, apply to the following modifications and changes to the California Building Standards Code: 1. Add requirements for special inspection for one and two-family dwellings when items of specialty construction are used. Also, add provisions limiting construction of footings without special inspection in order to maintain the current level of quality control in construction (see Section 8.08.100). This will ensure that critical structural elements will receive the same level of quality assurance in construction as in the current code. (Geologic). 2. Continue to require the engineer or architect of record to verify that their structural designs are followed during construction by making periodical field observation of the seismic elements of the building. See Section 8.08.120. The Northridge earthquake proved the importance of having the design engineer verify that essential seismic elements are constructed properly. This amendment would maintain the current process. (Geologic). 3. Continue to specify certain facilities as essential facilities to ensure their operation subsequent to a natural disaster. See Section 8.12.040. (Geologic and Topographic). 4. Continue the designation of Seismic Hazard Zones and Geologic Hazard Filled Area Zones in the City to require special design features. See Section 8.12.050. This amendment clarifies special seismic hazard zones unique to the geological formations within the City of Santa Monica. (Geologic). 5. Continue to require guardrails for operable windows with low sill height so that buildings can be designed to take advantage of the City's temperate .climate and to promote increased sustainability. See Section 8.12.060. (Climatic). 6. Continue to prohibit the use of non-fire retardant wood shingles or non-fire retardant wood shakes for new or replacement roofing and require a moderate level of fire retardant roofing as a minimum standard. See Section 9.12.070. Class C wood shingles have proven to be quite vulnerable to burning even through exposure to small flying ambers that may accidentally land on them. The dry temperature and high fire hazard exposure requires Class B or better rated roofing. (Climatic and Topographic). 7. Add earthquake design provisions that maintain the current level of seismic detailing used in concrete tilt-up wall construction. See Section 8.16.020. The new code removes many of the provisions for special seismic detailing for this type of construction. The amendment is necessary to maintain consistency with the current code and ensure seismic and fire safety. (Geologic). 8. Add provisions to ensure adequate seismic detailing for walls, roofs and floors in irregularly shaped buildings. See Section 8.16.020. Buildings with reentrant corners, such as L and T shaped buildings were subject to substantial damage at their discontinuities during the Northridge earthquake. This provision will ensure special detailing for such conditions. (Geologic). 9. Increase the minimum seismic load considered in the design of buildings since the new code reduces such design load to a level that could potentially lead to collapse in certain types of structures. The new code drastically reduced the minimum seismic force that a building should be designed for. This has been corrected. but will not become effective until 2011. The amendment increases this minimum load to a level consistent with current code requirements and that of California's Field act, which was enacted in 1933. See Section 8.16.020. (Geologic). 10. Add provisions to increase structural stability for essential facilities, such as police and fire stations. See Section 8.16.020. A factor increasing the seismic load effects on essential facilities was erroneously left out of the stability check for structures. The amendment restores this added design feature for these critical buildings. (Geologic). 11. Continue current amendments regarding special seismic anchorage of wood roof and floor diaphragms to concrete and masonry walls. In addition, relax some provisions that have been proven by recent research and testing to be overly restrictive. See Section 8.16.020. Research performed after Northridge earthquake identified several areas for improvement for the roof to wall anchorage in large retail and storage type buildings. Since the last code adoption, additional research indicated that these requirements need to be maintained with some appropriate adjustment. (Geologic). 12. Add provisions to require sufficient separation between adjacent buildings and between buildings and property lines in order to prevent pounding of buildings during a seismic event. See Section 8.16.020. The prescriptive requirements for separation of buildings were inadvertently left out in the process of transitioning from the UBC to ASCE 7 codes, which govern seismic design. This amendment restores those provisions. (Geologic). 13. Limit the height of buildings to two stories when different seismic force resisting systems are allowed to be mixed without penalties. See Section 8.16.020. The new building code allows buildings of up to three stories to mix .different seismic force resisting systems throughout the height without any penalties. Limiting this exception to two stories minimizes the possible adverse response of the building to seismic events due to incompatible systems. (Geologic). 14. Continue to limit the length of floors projecting beyond the supporting wall on lower level when using a simplified analysis. See Section 8.16.020. Buildings cantilevering beyond supporting walls suffer excessive displacements during seismic events, which could possibly lead to collapse as was observed after the Northridge earthquake. The amendment provides a reasonable limitation on such projections. (Geologic). 15. Add provisions for calculations of dynamic period for buildings using a new seismic force resisting system. See Section 8.16.020. Anew and improved technology for seismic system was introduced during the process of new code development. A key provision for calculating the seismic force on such systems was omitted in the published standard. The amendment restores the needed parameter. (Geologic). 16. Add provisions for construction of stepped footings on sloped lots and require continuous footings for interior load-bearing walls. See Section 8.16.030. Footings on slopes are a main cause of building failure in earthquakes if they not constructed properly. The building code does not address this issue specifically. The amendment provides for prescriptive requirements and a detail that graphically clarifies the steel reinforcing requirements for such footings. (Geologic). 17. Delete prescriptive provisions in the code, which would allow construction of inadequate reinforced concrete and masonry basement walls up to 10 feet in height. See Section 8.16.030. The new building code allows for construction of basement walls of up to 10 feet high with very minimal reinforcement, which could lead to substantial damage even in absence of a seismic event. The amendment requires engineered solution walls exceeding 18" in height. (Geologic). 18. Add provisions to maintain critical seismic detailing provisions in current code pertaining to concrete columns, walls and slabs. See Section 8.16.040. Several of the critical detailing requirements on concrete frame and shear wall buildings were left out of the new code. The amendments maintain these critical provisions to ensure sufficiently ductility in concrete buildings. (Geologic). 19. Continue to require all masonry and concrete chimneys to be structurally designed by a licensed architect or registered engineer instead of using prescriptive rules that have allowed failed performance in recent earthquakes. See Section 8.16.050. The same prescriptive provisions for reinforcing steel in concrete and masonry chimneys have been in the code for the past 20 years and they proved to be grossly inadequate during the Northridge earthquake. The amendment ensures that these massive and stiff elements in buildings, which are otherwise light frame and flexible, are properly designed by an engineer. (Geologic). 20. Prohibit the use of hollow steel tubes as bracing members unless they are filled with concrete or grout in order to prevent fracture of such critical elements in steel building frame systems. See Section 8.16.060. Recent full scale testing at University of California Berkeley has shown alarming performance for hollow rectangular and square tube steel braces subject to seismic loads. (Geologic). 21. Continue to amend provisions for wood framed construction, which limit the use of materials that have proved ineffective or have not been sufficiently tested in resisting earthquake forces. In addition, relax some provisions that have been proven by recent research and testing to be overly restrictive. See Section 8.16.070. Lack of several types of detailing requirements in wood framed construction was identified during the Northridge earthquake reconnaissance to be key attributes to poor building performance. The amendments maintain those provisions that are considered to be critical and have not been incorporated in the code. (Geologic). 22. Continue to provide for special additional requirements for hillside buildings. See Chapter 8.20. Buildings located on steep hillsides with a slope of greater than 1 to 3 performed very poorly and suffered extensive damage in recent earthquakes. These provisions have not yet been incorporated into the Building Code, yet are essential to public health, safety, and welfare. (Geologic and Topographic). 23. Continue to ensure that any wiring not having metal protection over the conductors shall be entirely concealed within the building structure to prevent and inhibit tampering and restrict the use of aluminum wiring found to be hazardous See Section 8.24.030. Nonmetallic wiring is subject to nail penetration in wood frame construction, which could lead to electrical shortage and fire hazard. (Climatic). 24. Continue to prohibit the sale and use of any electrical material, device, or equipment unless it complies with provisions of this section, including rating and conformance with national standards. See Section 8.24.040. The amendments ensure electrical equipment has been tested and approved by a national agency such as UL before installation. (Climatic). 25. Continue to prohibit re-use of previously used materials without Building Officer approval to ensure adequate performance during a seismic event. See Section 8.24.050. (Geologic). 26. Continue to provide regulations for temporary service poles used on construction sites. See Section 8.24.060. Temporary power poles if not constructed properly would pose substantial hazard to the neighboring buildings and the City's inspection process ensures safe installation of these elements. (Geologic and Topographic). 27. Continue to provide regulations for underground concrete vaults and handholes to provide additional seismic protection. See Section 8.24.070. (Geologic). 28. Continue to require proper disconnecting means for multiple arrays on solar photovoltaic systems to prevent fires and their spread so as to ensure that the Fire Department can adequately respond to fire. outbreaks. See Section 8.24.080. (Climatic and Geological). 29: Continue to require enclosures of water heaters to prevent associated fire hazards from uncontrolled adjacent combustible storage. See Section 8.32.030. Exposed water heaters pose substantial fire hazard to the adjacent buildings or portions thereof. Enclosure provides an important degree of protection for adjoining elements. (Climatic). 30. Continue to prohibit water softener systems from using drywells to discharge effluents in order to protect local ground water and the Santa Monica Bay. See Section 8.32.040. (Geologic and Topographic): 31. Continue to prohibit the use of combined storm drain and sewers to prevent the possible future contamination of the Santa Monica Bay. See Section 8.32.050. (Topographic). 32. Continue to provide standards for waterless urinals to minimize the City's water usage so as to properly manage the City's available water supply and ensure its availability particularly in response to emergencies. See Section 8.32.060. (Climatic). 33. Adopt the 2007 California Fire Code published by the International Code Council and the California Building Standards Commission with errata, together with those portions of the International Fire Code, 2006 Edition, including, Appendix Chapters 1, B and D. as modified and the most recent referenced version as adopted by the State of California of the "National Fire Codes" published by the National Fire Protection Association, and the local amendments of Chapter 8.44 are adopted as part of the Fire Code of the City of Santa Monica and are necessary, in light of the City's seismic activity; its arid and drought conditions; and the age and close proximity of its buildings, so as to provide public safety by preventing fires and their spread and to ensure that the Fire Department can adequately respond to fire outbreaks in emergency circumstances. (Climatic and Geological). 34. Continue to require automatic fire extinguishing and detection systems in all new construction and when there is a change in use to a higher classification. These requirements are necessary, in light of the City's seismic activity; its arid and drought conditions; and the age and close proximity of its buildings, to provide public safety by preventing fires and their spread and to ensure that the Fire Department can adequately respond to fire outbreaks in emergency circumstances. See Section 8.44.050. (Climatic and Geological). 35. Continue for require automatic fire sprinkler systems for existing public assembly spaces above 5,000 square feet that protect assembly areas and exit ways. These requirements are necessary, in light of the City's seismic activity; its and and drought conditions; and the age and close proximity of its buildings, to provide public safety by preventing fires and their spread and to ensure that the Fire Department can adequately respond to fire outbreaks in emergency circumstances. See Section 8.44.050. (Climatic and Geological). 36. Remove exemption of buildings used exclusively as open public garages and buildings owned by any public agency from the requirement of automatic fire sprinkler systems. These requirements are necessary, in light of the City's seismic activity; its arid and drought conditions; and the age and close proximity of its buildings, to provide public safety by preventing fires and their spread and to ensure that the Fire Department can adequately respond to fire outbreaks in emergency circumstances. See Section 8.44.050. (Climatic and Geological). 37. Continue to require compliance with the high-rise provisions of the California Building Code in new high-rise buildings with human occupancy above 55 feet of the lowest level of fire vehicle access point in accordance with authority granted to the City in the California Health and Safety Code Section 13216. These requirements are necessary, in light of the City's seismic activity; its arid and drought conditions; and the age and close proximity of its buildings, to provide public safety by preventing fires and their spread and to ensure that the Fire Department can adequately respond to fire outbreaks in emergency circumstances. See Section 8.44.090. (Climatic and Geological). 38. Continue to require the connection with control valves on each floor level with full automatic sprinkler systems in any new building with floors more than 55 feet in height. These requirements are necessary, in light of the City's seismic activity; its arid and drought conditions; and the age and close proximity of its buildings, to provide public safety by preventing fires and their spread and to ensure that the Fire Department can adequately respond to fire outbreaks in emergency circumstances. See Section 8.44.090. (Climatic and Geological). 39. Continue to regulate smoke detectors for existing residential occupancies. See Section 8.44.100. These measures are necessary, in light of the City's seismic activity; its arid and drought conditions; and the age and close proximity of its buildings, so as to provide public safety by preventing fires and their spread and to ensure that the Fire Department can adequately respond to fire outbreaks in emergency circumstances. (Climatic and Geological). 40. Continue to establish supplemental standards for fire protection systems. See Section 8.44.110. These measures are necessary, in light of the City's seismic activity; its- arid and drought conditions; and the age and close proximity of its buildings, so as to provide public safety by preventing fires and their spread and to ensure that the Fire Department can adequately respond to fire outbreaks in emergency circumstances. (Climatic and Geological). 41. Continue to require adequate seismic bracing of fire sprinkler installations so that these systems do not become disabled during a seismic event and they remain able to prevent fires and their spread so as to ensure that the Fire Department can adequately respond to fire outbreaks. See Section 8.44.120. (Geological). 42. Continue to establish fire alarm requirements for operation of these alarms. See Section 8.44.140. These measures are necessary, in light of the City's seismic activity; its arid and drought conditions; and the age and close proximity of its buildings, so as to provide public safety by preventing fires and their spread and to ensure that the Fire Department can adequately respond to fire outbreaks in emergency circumstances. (Climatic and Geological). 43. Continue to require new buildings subject to the provisions of the chapter to be built with a minimum of four major construction materials that have a post-consumer recycled content to help reduce urban runoff and consumption of water resources due to the manufacture and transport of non- recycled-content materials. See Section 8.108.030. (Climatic). 44. Continue to require additional mandatory energy efficiency measures for Solar Water Heating, Pipe Insulation and Heat Traps in all buildings to reduce both the heat loss due to hot water storage and distribution and the waste of potable water while waiting for hot water to reach the tap which results from this heat loss. See Section 8.108.040. (Climatic). SECTION 3. The City Clerk shall certify to the adoption of this Resolution and thenceforth and thereafter the same shall be in full force and effect. APPROVED AS TO FORM ,~ } ' MA A ES M T I City Atto ey Adopted and approved this 13th day of November, 2007. #~ ~__- Ri hard Bloom, Mayor I, Maria Stewart, City Clerk of the City of Santa Monica, do hereby certify that the foregoing Resolution No. 10256 (CCS) was duly adopted at a meeting of the Santa Monica City Council held on the 13th day of November, 2007, by the following vote: Ayes: Council members: Genser, Holbrook, McKeown, O'Connor, Shriver Mayor Bloom, Mayor Pro Tem Katz Noes: Council members: None Abstain: Council members: None Absent: Council members: None ATTEST: ~ ~~~ Maria Stewart, y Clerk