SR-906-000 (21)~_ . .
~ ~;tyof City Council Report
Santa Monica~
City Council Meeting: May 25, 2006
Agenda Item: ~_
To: Mayor and City Council
From: Andy Agle, Planning ,& Community Development
Subject: Appeals 06APP-031 and 06APP-033 of the Landmarks Commission's
approval of Certificate of Appropriateness 06-002 and Modification of
Pedestrian-Oriented Design Requirements for the rehabilitation and
adaptive reuse of the property at 415 Pacific Coast Highway as a public,
beach-oriented recreation facility.
RECOMMENDED ACTION
1. Deny appeals 06APP-031 and 06APP-033 and approve Certificate of
Appropriateness 06CA-002 and the modification to pedestrian-oriented design
requirements specified in SMMC 9.04.10.02.440, with conditions.
EXECUTIVE SUMMARY
The applicant, the City's Community and Cultural Services Department, requests
approval of a Certificate of Appropriateness to allow for the rehabilitation and adaptive
reuse of the former Marion Davies Estate located at 415 Pacific Coast Highway (415
PCH) as a public, beach-oriented recreation facility with space for limited cultural and
social event programming. The applicant also requests an exception from pedestrian-
oriented design requirements applicable to the building fa~ade at the street frontage
specified in SMMC 9.04.10.02.440.
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An appeal of the Landmarks Commission's April 10, 2006 decision was filed by two
parties on April 18, 2006: the Palisades Beach Road Property Owners' Association and
Mr. Jonathan Ornstein. In their appeal statements (Attachment A), both parties contend
that the Landmarks Commission erred in its decision to approve the requested
Certificate of Appropriateness based on the following claims:
1) The Final Environmental Impact Report is inadequate with respect to its treatment of
issue areas outlined in the appeal statements which include the following: traffic,
circulation and parking; noise; land use; historic resources; aesthetics; construction
effects; cumulative impacts; hazards and hazardous materials; neighborhood effects;
hydrology and water quality; and air quality. With respect to historic resources, the
appellants contend that the Final EIR failed to address historic resource impacts
associated with the demolition of the existing Locker Building.
2) The Landmarks Commission's action was premature given that an appeal of the
Planning Commission's April 5, 2006 approval of primary entitlements and certification
of the Final EIR was filed prior to the April 10, 2006 Landmarks Commission hearing of
the subject Certificate of Appropriateness application.
3) The Landmarks Commission's action on the Certificate of Appropriateness
application was invalid since the Commission did not comply with CEQA requirements
for a responsible agency pursuant to CEQA Guidelines Section 15096 (a) and (e).
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4) The Landmarks Commission failed to make all of the required findings for issuance
of a Certificate of Appropriateness specifically related to the removal of the existing
Locker Building.
5) A conflict of interest prevented one Landmarks Commissioner from making an
unbiased decision on the Certificate of Appropriateness application for the 415 PCH
Project.
The City Council is required to conduct a de novo public hearing to review the proposed
rehabilitation design for compliance with the Secretary of the Interior's Standards for the
Treatment of Historic Properties and review the proposed project in light of the two
appeals that have been filed. Each of the topics raised in the appeal statements are
analyzed in the context of the discussion of the project contained in this report. Based
on this analysis, denial of the appeals and approval of the Certificate of Appropriateness
and modification to pedestrian-oriented design requirements is recommended.
Prior to acting on these appeals, the Council will first consider appeals of the Planning
Commission's certification of the Final EIR for the project, adoption of a Statement of
Overriding Considerations and Mitigation Monitoring Program for the project, and
approval of Development Review Permit 06-002, Reduced Parking Permit 06-002,
Fence/Wall Height Modification 06-001. The Council's action on the Final EIR will also
serve to inform the Council regarding the CEQA analysis for the Certificate of
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Appropriateness application. Analysis of the Planning Commission appeals is set forth
in a separate City Council report (06APP-030 and 06APP-032).
BACKGROUND
Commission Action
On April 10, 2006, the Landmarks Commission held a public hearing to consider the
requested Certificate of Appropriateness and modification to pedestrian-oriented design
requirements contained in SMMC 9.04.10.02.440. Following a presentation by staff and
the applicant, and public testimony, the Commission approved the Certificate of
Appropriateness and modification to pedestrian-oriented design requirements. A copy
of the adopted April 10, 2006 meeting minutes and staff proposed findings and
conditions are contained in Attachment E.
In their action, the Commission found that the final rehabilitation design was prepared in
compliance with the Secretary of the Interior's Standards for the Treatment of Historic
Properties. More specifically, in their review of the project, the Commission found that
the project, as modified by project conditions and in accordance with adopted project
mitigation measures, maintains and interprets key historic spatial relationships that
characterized the original Marion Davies Estate; preserves a maximum amount of
historic building material and will not detrimentally change, destroy or adversely affect
character-defining features of the Landmark North House and historic swimming pool.
The Commission also found that the proposed new construction on site is designed to
be reversible and to cause minimal impact on the historic fabric of the site, and that the
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new construction on site expresses a modern design and form that is compatible with,
yet differentiated from, the extant historic North House and swimming pool.
With respect to the requested modification to pedestrian-oriented design requirements,
the Commission found that the portion of the project site fronting Pacific Coast Highway
functions primarily as the rear yard and the building fa~ades along Pacific Coast
Highway are secondary elevations, and that the requested modification would not
adversely affect surrounding properties or be detrimental to the district's pedestrian-
oriented environment because, both historically and today, pedestrian-oriented activities
in this area have primarily occurred on the west side of properties adjacent to the
ocean, beach and bike path, and not along PCH which is a highly traveled state
highway.
In their action, the Commission also relied on the Final EIR certified by the Planning
Commission on April 5, 2006, after the Landmarks Commission determined that no
additional environmental review was required pursuant to CEQA Guidelines.
DISCUSSION
Site Location and Description
The subject property located at 415 Palisades Beach Road (415 PCH) is a designated
City Landmark property located on Santa Monica State Beach. The subject property is a
213,879 square foot parcel located on the west side of Palisades Beach Road and is
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located approximately 700 feet south of the northern city limits and approximately '/z
mile north of California lncline. Surrounding uses consist of private residential uses to
the north and south, the Pacific Coast Highway and the Palisades Bluffs to the east, and
public beach and the Pacific Ocean to the west.
The subject property was originally developed by William Randolph Hearst for actress
Marion Davies in the 1920s with several structures designed by renowned California
architect, Julia Morgan. At the time, this stretch of beachfront property was known as
the "Gold Coast" because of the numerous opulent residences found there and the
lavish lifestyle of their owners and their friends. The original estate featured a 100-room,
Georgian Revival style mansion constructed in 1928, a large Guest House (North
House) constructed in 1929, a swimming pool, and tennis courts.
After World War II, the property was sold and the new owner, Joseph Drown, added
several buildings to the site and demolished the Mansion. In 1959, the site was
purchased by the State of California. The State leased the site to the City of Santa
Monica who, in turn, leased it to the Sand & Sea Club for use as private beach club
from 1960 to 1990. The City operated a seasonal, day-use beach facility at the site after
the expiration of the Sand & Sea Club lease. The site was damaged in the Northridge
Earthquake in 1994, requiring closure of all structures on the site.
Existing on-site improvements include two elements from the former 1920s Marion
Davies Estate that are identified with the site's period of significance: the North House
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and the swimming pool. Remnants of the original bulkhead on the west side of the site
also remain on site. Other existing on-site improvements that were constructed for
subsequent private hotel and club uses include the following: the 16,950 square foot
Locker Building, recreation courts, and two surface parking lots. The Locker Building
was constructed in 1948, several years after Marion Davies sold the Estate. In 2002,
the California State Department of Parks and Recreation found that the Locker Building
was not eligible for the National, California or local registers due to lack of significance
and integrity. The Locker Building and existing recreation courts are proposed for
demolition in conjunction with the proposed project. Removal of these features from the
site will serve to further clarify the site's period of significance and facilitate the
rehabilitation of the site for public use.
The 415 PCH site continues to be owned by the State of Ca~ifornia and, pursuant to a
recently executed long-term operating agreement with the State, the City of Santa
Monica is responsible for all site improvements, maintenance and operations. The
proposed project has been guided by the goals for public use articulated in the 415 PCH
Reuse Plan that was adopted by the City Council in 1999.
The Marion Davies Estate has been formally determined eligible for listing in the
National Register of Historic Places. On July 15, 1980, the Landmarks Commission
designated Rose's House (North Guest House) as a City Landmark and the site as a
Landmark Parcel. The Commission's Findings and Determination also described the
following items of special interest: the mosaic tiled swimming pool and decking,
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decorative front fencing, foundation of the main house, and sea water bulkhead. These
items of special interest were not part of the Landmark designation, but simply noted as
features of interest. The other remaining improvements on site constructed for
subsequent private hotel and beach club use, such as the existing Locker Building and
recreation courts, were evaluated but not included in the formal designation of the site
or as items of special interest.
Based on research of the site, the Period of Historic Significance has been established
as the years from 1928, when the property was first purchased in Marion Davies' name,
and when construction of the mansion and other site features began, to 1945 when
Marion Davies sold the site.
In 1983, the Marion Davies Estate was identified as being a contributor to a potential
"Gold Coast" Historic District on Palisades Beach Road (Pacific Coast Highway). The
original Department of Parks & Recreation form identified the period of significance for
the potential district as 1922-1941 and assigned it a status code of "4D" meaning that
the district appeared to be National Register eligible but more research would be
required. In 1995, the Marion Davies Estate was re-surveyed after the Northridge
earthquake and determined to still be eligible as a contributor to a potential Gold Coast
Historic District. At that time, the potential district was reassessed and assigned a
status code of "2D2" meaning that the district was "determined eligible for separate
listing by a consensus determination" resulting from a regulatory review process.
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Proiect Description
The project proposes the rehabilitation and adaptive reuse of the former 1920s Marion
Davies Estate as a beach-oriented, public recreational and meeting facility with space
for limited cultural and social event programming. The project includes the following
elements~ :
1. Rehabilitation and adaptive reuse of the historic, two-story 9,127 square foot North
House. The facility would include meeting spaces, an interpretive center, kitchen,
staff offices, and associated support spaces.
2. Restoration and Rehabilitation of the existing historic swimming pool and deck area.
3. Development of outdoor recreation and leisure areas including two garden courts,
paddle and beach volleyball courts, a family picnic and child's play area, and two
beach boardwalks
4. Construction of a two-story, approximately 7,000 square foot Pool House with locker
and changing rooms, a multi-purpose room, staff offices, and associated storage
and equipment rooms.
5. Construction of a one-story, approximately 700 square foot Entry Pavilion with
lifeguard and staff offices, and associated support spaces.
6. Construction of a one-story, approximately 6,155 square foot Event House. The
facility will include two meeting rooms, one multi-purpose room, a food staging area
(with counter space, sink, electrical outlets and refrigeration), and associated
support spaces. The facility is designed to accommodate recreational, interpretative
1. The proposed project also includes removal of the existing restroom building and construction of a
one-story, 1,000 square foot Beach Concessions Building and construction of a one-story, approximately
550 square foot Restroom Building. Both of these buildings will be located on public beach land that does
not have a Zoning District designation, and therefore are not subject to Zoning Ordinance requirements.
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and cultural programs and classes; meetings and retreats; and small social
gatherings and functions.
7. Resurface and landscape the existing Beach Parking Lot 10 (South Parking Lot) and
resulting in a total of 279 parking on site.
8. Demolition of the following existing on-site improvements that were constructed for
subsequent private hotel and club uses and therefore do not contribute to the site's
period of significance: the 16,950 square foot locker building constructed in 1948,
and the existing recreation courts located just north of Beach Lot 10.
ANALYSIS
Proiect Desiqn
The design of the 415 PCH project and the parameters for site operations have been
guided by the goals of the 1999 Reuse Plan and by comments gathered from a variety
of sources including adjacent neighbors, the community at large, public agencies such
as the State Office of Historic Preservation, California State Parks, and the California
Coastal Commission, as well as the Annenberg Foundation. The 1999 Reuse Plan is a
conceptual scheme that was approved by the City Council to guide future planning and
development of the site. The 1999 Reuse Plan envisions a public place that would:
• Preserve the history of the site;
• Encourage a"light touch" on the site;
• Create a community-oriented destination;
• Provide public recreation activities;
• Increase public access to the beach;
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• Create a range of uses;
• Encourage diverse users;
• Provide year-round use; and
• Link to the regional open space network.
The resulting 415 PCH site plan has been designed to create a beach-oriented, public
gathering place that also responds to the cultural history of the site. The proposed
project includes a series of inter-related indoor/outdoor spaces that have been
principally designed to establish year-round, public beach recreational use and also to
provide for limited event and cultural programming. The proposed design for the site
has been developed in a manner that incorporates and reflects the property's important
surviving historic elements from its Period of Historic Significance.
As discussed in greater detail below, the project proposes rehabilitation of these
features of the original Marion Davies Estate as well as new construction. Rehabilitation
will be guided by the Secretary of the Interior's Standards for the Treatment of Historic
Properties. In addition, pursuant to project Mitigation Measure HR-1(b), the applicant
will be required to prepare and implement a Mitigation Plan for Preservation of Historic
Materials During Construction to protect historic materials during construction of the
proposed project. This plan will be subject to review and approval by the Planning &
Community Development Department prior to issuance of a building permit.
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The Secretarv of the Interior's Standards
As with all requests for alterations to designated City Landmarks, proposed work must
be undertaken in a manner consistent with the Secretary of the Interior's Standards for
the Treatment of Historic Properties with Guidelines for Preserving, Rehabilitating,
Restoring, and Reconstructing Historic Properties. The proposed work includes
rehabilitation as the primary treatment associated with the proposed project. The
Secretary of the Interior's Standards define rehabilitation as, "The act or process of
making possible a compatible use for a property through repair, alterations, and
additions while preserving those portions or features which convey its historical, cultural,
or architectural values".
The Secretary of the Interior's Standards for Rehabilitation state the following:
Standard 1. A property will be used as it was historically or be given a new use that requires minimal
change to its distinctive materials, features, spaces, and spatial relationships.
Standard 2. The historic character of a property will be retained and preserved. The removal of distinctive
materials or alteration of features, spaces, and spatial relationships that characterize a property wi-I be
avoided.
Standard 3. Each property will be recognized as a physical record of its time, place and use. Changes
that create a false sense of historical development, such as adding conjectural features or elements from
other historic properties, will not be undertaken.
Standard 4. Changes to a property that have acquired historic significance in their own right will be
retained and preserved.
Standard 5. Distinctive materials, features, finishes, and construction techniques or examples of
craftsmanship that characterize a property will be preserved.
Standard 6. Deteriorated historic features will be repaired rather than replaced. Where the severity of
deterioration requires replacement of a distinctive feature, the new feature will match the old in design,
color, texture, and, where possible, materials. Replacement of missing features will be substantiated by
documentary and physical evidence.
Standard 7. Chemical or physical treatments, if appropriate, will be undertaken using the gentlest means
possible. Treatments that cause damage to historic materials will not be used.
Standard 8. Archeological resources will be protected and preserved in place. If such resources must be
disturbed, mitigation measures will be undertaken.
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Standard 9. New additions, exterior alterations, or related new construction will not destroy historic
materials, features, and spatial relationships that characterize the property. The new work will be
differentiated from the old and will be compatible with the historic materials, features, size, scale and
proportion, and massing to protect the integrity of the property and its environment.
Standard 10. New additions and adjacent or related new construction will be undertaken in such a
manner that, if removed in the future, the essential form and integrity of the historic property and its
environment would be unimpaired.
Treatment of Existinq Features
TREATMENT OF HISTORIC NORTH HOUSE
The historic, two-story plus basement, 9,127 square foot North House is an extant
feature of the original Marion Davies Estate. The Georgian Revival style North House
was designed by renowned architect Julia Morgan. This structure will be rehabilitated in
accordance with the Secretary of the Interior's Standards for use as a community
meeting facility and interpretive center. In accordance with project Mitigation Measures
AES-2(b), HR-1(a) and HR-1(b), the project plans identify specific design details that
demonstrate that all interior and exterior character-defining features, materials, spatial
relationships, and finishes identified in the historic structures report prepared for the
property will be retained and restored, unless damaged and then will be replaced in-kind
as necessary. Alterations required for the reuse of the North House have been
proposed in a manner that does not obscure or detrimentally alter character-defining
features of the structure.
The ground floor of the North House will contain two meeting rooms, an interpretive
center for visitors providing information and exhibits about the historic characteristics of
the site, a restored porch, restored kitchen, and staff offices. The second floor will
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contain four meeting rooms, a restored veranda with an ocean view on the west side of
the building, and associated support spaces.
As indicated on the rehabilitation plans for the site, the applicant proposes to protect,
repair, or replace in-kind if other treatments are not feasible, all original, character-
defining features of the property. Exterior features called out on the project plans
include but are not limited to the double-hung wood sash windows; clapboard siding;
portico and columns; molded cornice along the roofline; dormers; decorative recessed
wood paneling under first-story windows; and exterior doors and surrounds. Interior
features include a large fireplace and marble mantel; extensive wood paneling,
decorative wainscot and built-in cabinets on the first floor; decorative, custom-made
ceramic tile in restrooms on the second floor; and other similar features.
In accordance with the Secretary of the Interior's Standards, the applicant proposes to
replace in-kind architectural features that are missing or cannot be preserved due to
deteriorated condition by utilizing existing pictorial or physical evidence to the extent
possible, such as missing window shutters and pickets on the exterior elevations. As
we11, in accordance with project Mitigation Measures AES-2(b) and HR-1(a), the project
plans identify specific design details that demonstrate that proposed is the restoration of
the two-story porch/veranda on the west elevation by removing a non-original
enclosure, and the restoration of the exterior portico pediment windows by removing the
paint on the original glazing.
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In accordance with project Mitigation Measures AES-2(b) and HR-1(a) which specifies
Landmarks Commission review of aiterations related to ADA accessibility proposed for
the North House, the project plans specify such changes. Limited modification to the
configuration of a pantry and restroom area on the first floor and limited removal of a
portion of interior wall will be necessary on the second floor in order to provide an
elevator to meet ADA accessibility requirements. In order to provide a flexible meeting
space on the west end of the second floor, one existing partition wall will be replaced
with a moveable wall between two meeting rooms. These proposed interior
modifications will not affect character-defining features of the North House identified in
the Historic Structure Report.
The proposed treatment of the North House will include use of a color palette that is
compatible with its Georgian Revival architectural style. The clapboard siding will be
painted in an oyster white shade; roofing material will be selected in a charcoal gray
palette, and window shutters will be painted black. The existing portico paving and
adjacent path around the North House will replaced in-kind with red brick. In addition,
the existing original fence and entry gate near the east end of the North House will be
fully retained and rehabilitated.
A small, terraced North House Garden is proposed immediately west of the North
House. This garden will have a strong connection to the period in which the North
House was originally constructed. The location of this garden reflects the original site
design that incorporated a small pool in this area adjacent to the North House.
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According to the applicant, based on preliminary assessment of this area, all that
appears to remain is a rounded, teal-colored coping and drain that does not appear to
be fully intact. Additionally, it appears there were no decorative tiles associated with this
pool and that the bottom of the pool was broken-up and removed prior to this area being
filled-in.
In accordance with the Secretary of the Interior's Standards and with Mitigation
Measures HHM-3, HR-1(a) & HR-1(b), the applicant will work with the project historic
consultant and project materials conservator to evaluate the complete extent and
condition of this North House pool element. The remaining elements will be
incorporated into the new garden design, or protected and preserved in place according
to the guidance and recommendations of the project materials conservator. In such an
event, the North House Garden design will include accent paving as an interpretive
representation of this original element.
More information regarding the proposed treatment plan for the North House is
presented on Sheets A2.0, A2.1 and A2.3 of the architectural plans.
TREATMENT OF HISTORIC SWIMMING POOL AND DECK
The historic Julia Morgan designed swimming pool and pool deck is also a remaining
feature of the original Marion Davies Estate. This historic swimming pool and
surrounding, marble coping and marble inlay paving will be rehabilitated in accordance
with the Secretary of the Interior's Standards, thus allowing the historic integrity of these
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elements to be protected while enabling them to safely serve as a public recreation
amenity. In addition, in accordance with project Mitigation Measure HR-1(a), a Materials
Conservation Consultant will direct the rehabilitation of the historic Julia Morgan pool
and pool deck.
The proposed scope of work will include protection and repair of the existing decorative
pool tiles, marble coping, and paving. Photographs of several pool tiles are contained in
Attachment C. In-kind replacement will be necessary of any existing tiles or paving that
are damaged beyond repair. A small section of the original paving located beyond the
pool deck area will also be salvaged and used to replace any severely damaged or
missing pieces of the diamond-shaped, green marble inlay border.
Approximately 1,500 square feet of deck area surround the historic pool and paving will
be expanded for chairs and chaise lounges. The color and material of the expanded
pool deck will be distinct from, yet fully-compatible with the original historic material.
This expanded deck around the pool will be composed of an acid wash limestone
concrete with saw cut score joints to create a pattern that is differentiated from the
paving of the historic deck.
The pool area will be surrounded by an eight foot tall ornamental metal fence and gates
complying with Los Angeles County Health Department pool safety requirements. The
design of the proposed pool fence is a simple design composed of 4" x 4" square tube
posts, 2" x'/2" vertical flat bar pickets spaced 4" off center, and two horizontal 1" x'/z"
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flat bar railings. The proposed pool fence will be painted in a shade of dark green to
complement the evergreen hedge that will be planted along the western edge of the
pool area. The proposed design is compatible with the architectural style of the
proposed Pool House and will not obscure or negatively alter the character-defining
features of the remaining historic elements on the site.
The pool will be heated with solar collection systems and pool equipment will be located
in the Pool House. More information regarding the proposed treatment plan for the
historic swimming pool is presented on Sheet A2.2 of the architectural plans.
Site Design Compatibilitv
POOL HOUSE 8c INTERPRETIVE ELEMENT FOR ORIGINAL MANSION
During Marion Davies' time, the juxtaposition of the monumental estate mansion and
Julia Morgan designed pool was significant, as was the transition from the pool to the
balcony level of the mansion. Although this mansion no longer exists, the new project
design proposes a sandblasted concrete band in the paving that outlines the original
mansion footprint on the site. This interpretive element would allow visitors to perceive
the original location, presence and magnitude of the mansion, which was, at the time,
one of the largest structures to be found on the California coastline.
New construction of an approximately 7,000 square foot Pool House is proposed
immediately east of the existing historic pool in order to mark the location of the ocean-
facing fa~ade of the original Marion Davies Estate mansion. The proposed Pool House
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design incorporates amenities such as locker and changing rooms and a community
room and will serve as a replacement for the existing locker building on site that is
proposed for demolition.
In accordance with project Mitigation Measures AES-2(b), HR-1(a), the project plans
demonstrate that the design for the new Pool House is differentiated from and
compatible with the existing historic features of the site. The new two-story Pool House
has been designed to reflect both the physical and formal stature of the mansion and to
reflect the specific spatial relationship between the original mansion and the Julia
Morgan-designed pool. At the same time, the proposed Pool House has been designed
to highlight, rather than visually compete with the existing historic swimming pool. The
design incorporates vertical, pre-cast concrete columns on the west elevation of the
Pool House that have been designed to recall the original mansion's height and
formality. These columns intend to express an abstract representation of the
monumental, double-height columns of the original mansion, and will be designed to
reflect the size, spacing and orientation of the original columns, without reproducing the
original column design. The Pool House design incorporates a new colonnade that
shades a portion of the deck area. This element is intended to recall the spatial quality
and architectural scale of the original multi-story porch that was found on the mansion.
The Pool House design also interprets an important stair transition between the historic
pool and original estate mansion. Two stairwells are proposed from pool to balcony that
provide an experience that will lead visitors from the original pool deck level to a viewing
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deck on the roof of the Pool House that is set at approximately the same height and
orientation as the private balconies from the original mansion. This element will enable
site visitors to view the pool in much the same way as guests of the original Marion
Davies estate did historically.
In accordance with the Secretary of the Interior's Standards for the Treatment of Historic
Properties and Mitigation Measure HR-1(a), construction of the proposed Pool House
will not destroy historic materials, features or spatial relationships that characterize the
property. The modern design of the Pool House is differentiated from the existing
historic fabric, and is also compatible with the historic materials, scale and proportion of
the historic pool site. Furthermore, the proposed Pool House reflects the important
historic spatial relationship between the original estate mansion and swimming pool that
was a key, character-defining feature of the Marion Davies Estate. The Pool House has
also been designed in such a manner that if removed in the future, the essential form
and integrity of the historic property and its environment will be unimpaired.
EVENT HOUSE & GARDEN TERRACE
New construction of a one-story, approximately 6,155 square foot Event House is
proposed on the east side of the site, south of the North House. The siting of the Event
House allows for views of the beach by creating open space areas on the west side of
the site adjacent to the beach. The scale and massing of the Event House has been
designed to create a lower profile element to serve as a transition between the new,
two-story Pool House to the south and the historic North House. The scale and location
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of the Event House has also been designed to allow the Landmark North House to be
highlighted as a significant element on site. Furthermore, like the Pool House, the Event
House has been designed in such a manner that if removed in the future, the essential
form and integrity of the historic property and its environment will be unimpaired.
Therefore, the proposed Event House has been designed in accordance with project
Mitigation Measures AES-2(b), HR-1(a), which specifies that new facilities be
differentiated from and compatible with the existing historic features of the site, and that
new facilities not detract from or overwhelm the original historic features of the site.
A Garden Terrace, located between the Event House and the North House, has also
been proposed. New planting will provide shade and frame views of the North House
and beach. In accordance with the Secretary of the Interior's Standards for the
Treatment of Historic Properties and Mitigation Measure HR-1(a), the siting of the
Garden Terrace has been designed to recall and maintain a key spatial relationship that
characterized the Marion Davies Estate where tennis courts were originally located
between the North House and the estate mansion.
The Garden Terrace will contain both landscape and hardscape features. A solid
masonry or cast-in-place concrete wall at the east side of the Garden Terrace will act as
a sound buffer to Pacific Coast Highway. This wall will also include a re-circulating water
element. The garden will include low plantings, paving and seating elements for small
outdoor gatherings. All planting for the Garden Terrace will be water conserving
species that will be compatible with the site's Period of Historic Significance.
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Landscaping materials will be complemented by acid-wash limestone color concrete
paving and red brick accent paving. The proposed garden materials will provide a
transition between the modern materials of the Event House and the more traditional
materials of the North House without obscuring or overwhelming the remaining historic
elements on site.
ENTRY PAVILION & RESTROOM BUILDING
New construction of a one-story, approximately 700 square foot Entry Pavilion is
proposed between the Pool House and existing South Parking Lot. The Entry Pavilion
has been designed to house lifeguard and staff offices, a concessions window, and
storage spaces. New construction of a one-story, approximately 550 square foot
Restroom Building is also proposed in a controlled area immediately adjacent to the
Entry Pavilion. The building will include men's and women's restrooms, family changing
rooms, and an outdoor shower/rinse area. While these structures will serve a more
utilitarian function at the proposed facility, they are designed to be fully-integrated with
the overall architectural character of the site. These low-scale buildings exhibit a broad
horizontality that does not overwhelm or obscure the historic North House or swimming
pool.
PROPOSED MATERIALS ~ COLORS
Each of the proposed new structures on site (Pool House, Event House, Entry Pavilion
& Restroom Building) have been designed to express a consistent, well-defined
architectural language. Each building expresses a modern design and form that is
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compatible with, yet differentiated from, the extant historic North House and swimming
pool. The palette of materials for the new construction has been chosen to reinforce the
modern architectural style of each building, to reference the historic context of the site,
as well as address the functional requirements of a public recreation facility on the
beach.
DESIGN PROPOSED EXTERIOR MATERIALS AND FINISHES FOR NEW
ELEMENTS CONSTRUCTION
Fa~ade Poured in place colored concrete; concrete block: buff sand and white palette
Window Elongated wood frame fixed glass windows: olive-bronze frame color
Systems Dual clad windows (aluminum exterior and wood clad interior):olive-bronze frame
color
Translucent lass: translucent a ua alette
Doors Single-light doors: olive-bronze frame color
Wood doors: Jarrah aged teak wood
Trellis, Trellis: Steel frame with Jarrah aged teak wood
Screens, Trellis: Jarrah aged teak wood
Rails, Railings: Metal rail accent panels
Fences Railings: Shell edge accent rails
Metal pool fencing: dark green finish
42" metal guardrails: dark green finish capped with wood rail
7'-4" perimeter fence: concrete masonry, buff/oyster finish
7'-4" perimeter fence at parking lots: wire mesh, dark green finish
Other Locker room wall: mosaic tile accents
Accent anels: Jarrah a ed teak wood
Beachwalks & Cast-in-place concrete with integral color: adobe/sienna palette
Paving Cast-in-place concrete with wood finish: adobe/sienna palette
Recycled plastic lumber: silver teak
Red brick accent paving (North House and Garden Terrace)
Concrete with heav sand blast pavin (Estate Mansion Interpretive Element)
The use of concrete, concrete block, wood panels and tile has been incorporated in
order to evoke a sense of permanence and quality associated with other important
community structures. Concrete facades and other concrete paving surfaces will be
designed with a variety of textures and colors. Window and door systems clad in wood
on the interior and painted aluminum on the exterior, and trellis screens have been
incorporated to add details reminiscent of the construction and scale of the North House
23
and original mansion, while providing for durability. Wood panels and shell edge
accents have been incorporated to reference the surrounding site environment.
The proposed color palette for the new construction is derived from the remaining
historic fabric on site. For example, the original decorative tiles from the Julia Morgan
designed pool is the reference for colors that will be found throughout the site (e.g.,
olive-bronze, translucent aqua). Attachment C contains photos of these historic pool
tiles. The color palefite for new construction is also derived from the surrounding site
environment. For example, the beach sand has guided the selection of the color for the
exterior fa~ades.
The final selection of colors and materials for new construction will be based on these
compatible palettes. It is recommended that final selection of all colors and materials be
submitted for review and approval by the Landmarks Commission in the form of a
Certificate of Appropriateness application prior to issuance of a building permit for the
project (Condition #2).
OTHER OUTDOOR SPACES & FEATURES
In addition to the North House Garden and Garden Terrace, the proposed site design
incorporates a variety of other outdoor spaces for beach-oriented recreational activities,
leisure activities, and informal gatherings. The beach area to the west is defined and
organized by two main boardwalks composed of paving materials with a wood finish.
This system of boardwalks will provide universal access and pedestrian circulation
24
through this portion of the site to the parking lots, and to the bike path. The north-south
alignment of the Beach Walk has been designed to follow the historic 1921 mean high
tide line. The east-west alignment of the Ocean Walk will provide universal access to
the existing bike path and ocean further west.
Beach volleyball and paddle tennis courts will be located at the north end of the beach
area. A children's play area is proposed at the south end of the beach area. This space
will include play equipment and rubber safety surface paths that will provide universal
access to all equipment. East of the Beach Walk, an enclosed family picnic area with a
water play feature is planned adjacent to the historic swimming pooi.
In order to address community concerns regarding site security, design refinements
have been made to also include 42" high guardrails and gates at all entries to open
space areas east of the Beach Walk. The design of this guardrail and gate system will
incorporate a dark green finished metal post and frame with 1" thick open, diamond-
pattern screens capped by a 2'/2" x 12" curved wood rail. This design will be compatible
with the landscaped outdoor spaces and the wood rail will serve to complement the
wood shutters on the North House and wood trellises proposed on the Pool House,
Event House and Entry Pavilion.
PERIMETER FENCE ON PACIFIC COAST HIGHWAY
The applicant proposes to define the site boundary along Pacific Coast Highway with a
new 7'-4" perimeter fence and a row of Washingtonian Palms. The chain link fence that
25
currently runs along the eastern property line was installed when the original fence was
removed in 1995 after the Northridge earthquake. At the time, in addition to a Certificate
of Appropriateness issued by the Landmarks Commission, a Memorandum of
Agreement was entered into between the City, the State Office of Historic Preservation
and the Advisory Council on Historic Preservation regarding removal of the original
fence. The agreement required that a new fence be approved in consultation with the
State Historic Preservation Officer. The currently-proposed fence has been reviewed by
the State Historic Preservation Officer and will be constructed in accordance with this
Memorandum of Agreement (Attachment F)
The proposed 7'-4" fence would run the 750 foot length of the east side property line
and replace the existing chain link fence on site. The proposed fence has been
designed to address the programmatic needs of the site. Specifically, the section of the
fence (excluding the portions in front of both parking lots) will be re-constructed with
durable concrete masonry to help mitigate sound impacts on the site from Pacific Coast
Highway, and to help address site security issues by controlling access to the site. In
accordance with Mitigation Measure AES-2(c), the project plans demonstrate that the
perimeter fence has also been designed to reflect a rhythm similar to the original wood
fence and wood pilasters, in terms of its height, scale and general character. The
proposed fence has also been designed to be compatible with the contemporary
architecture of the new construction on site. The fence design incorporates concrete
piers that are similar in form to the vertical pre-cast concrete columns proposed on the
Pool House. The east side of the fence will be planted with vines or narrow shrubs.
26
Sections of the fence that run along the two on-site parking lots will be composed of
dark green wire mesh with rolling gates that are a minimum of 20'-0" wide stationed at
each of the four access driveways on PCH. These gates would be opened during
operating hours to allow access and views into the site.
Removal of the Locker Buildinq and Other Non-Significant Features on Site
The appellants claim that the issuance of the Certificate of Appropriateness for the
project was done in error ,since the Landmarks Commission failed to adequately
address removal of the Locker Building. However, the proposed demolition of the
existing recreation courts and the Locker Building constructed will not adversely affect
any significant features on site and will not detrimentally change, destroy or adversely
affect any exterior feature of the Landmark or Landmark Parcel. The Locker Building
was constructed in 1948 for subsequent private hotel and beach club use. In 2002, the
California State Department of Parks and Recreation found that the Locker Building was
not eligible for the National, California or local registers due to lack of significance and
integrity.
In addition, the Locker Building and recreation courts were not identified in the
Landmark Designation approved by the Landmarks Commission on July 15, 1980 as
individually significant features of the site or as items of special interest. Removal of
these features from the site will serve to further clarify the site's period of significance,
which has been identified as the years from 1928 to 1945 when the property was
27
directly associated with actress Marion Davies, and facilitate the rehabilitation of the site
for public use.
In 1997, an Existing Conditions Review and Evaluation Report was prepared for the City
to assess the condition of improvements on the 415 PCH site (Attachment N). The
report analyzed the interior and exterior architectural conditions, structural conditions,
and mechanical/electrical/plumbing conditions of all buildings on site. The existing
Locker Building was assessed as having undergone numerous alterations and additions
and showed signs of damage from the Northridge earthquake. The assessment report
indicated that the Locker Building exhibited the signs of poor condition including the
following: concrete or brick slab displacement; joint separations of exterior trim and
details; cracked plaster and spalling at door openings and ceiling and wall plane
intersections in portions of the interior; cracked interior plaster; and an area of second
level flooring that showed signs ofi imminent collapse. In contrast, the new two-story
Pool House proposed for construction on the east side of the site incorporates the
following components that will enhance visitors' use and enjoyment of the existing
historic swimming pool and beach recreation areas: three changing rooms for men,
women, and families; a centrally-located locker room; a second floor community
recreation room; and second floor viewing deck. With such amenities, the proposed
Pool House will serve as functional replacement for the existing Locker Building and will
also provide for the creation of more open space and recreation areas on the west side
of the site.
28
Landscapinq, Liqhtinq & Siqnaqe Plans
A preliminary landscaping plan has been developed for the project site, including the
North and South Parking Lots. Further refinement and details will be developed to
include plant materials selection based on coastal zone compatibility and minimal
irrigation requirements. Plant materials will be selected for coastal zone compatibility.
Canopy trees in the parking lots will provide shaded parking. Mexican fan palms will be
planted along PCH, around the Beach Concessions building and the existing Back on
the Beach Cafe. Evergreen hedges will be planted adjacent to pool fencing. Remaining
areas will be planted with shrubs, perennials and groundcovers compatible with the
coastal climate. All areas will be irrigated. The Landmarks Commission will be required
to review forthcoming final landscaping plans through consideration of a Certificate of
Appropriateness prior to issuance of building permits (Condition #3 and Mitigation
Measures HR-1(a) and AES-3(b))
Site lighting will provide required light levels in parking areas and pedestrian pathways
and be incorporated in a lighting plan. Pursuant to Mitigation Measure AES-3(c), this
lighting plan for the 415 PCH facility will be required to demonstrate that any exterior
night lighting installed on the project site shall be of low intensity, low glare design, and
shall be hooded to direct light downward onto the subject parcel and away from
surrounding residential uses so that there is no lighting spill-over onto adjacent parcels.
In addition, such lighting shall not blink, flash, or oscillate. In accordance with Condition
#4, the applicant will be required to submit a lighting plan for review and approval by the
29
Landmarks Commission in the form of a Certificate of Appropriateness Application prior
to issuance of building permits for the project.
In addition, as noted in Condition #5 and Mitigation Measure HR-1(a), the applicant will
be required to submit signage plans for review and approval by the Landmarks
Commission in the form of a Certificate of Appropriateness application prior to issuance
of a Certificate of Occupancy for the project. The final plan shall demonstrate that
proposed signage will be placed in a manner that is compatible with and does not
obstruct character-defining features of the site.
Interpretive Program
A comprehensive Interpretive Program is being developed in conjunction with the
project design. The program is conceived to provide a range of experiences throughout
the site from "discoverable moments" to specially organized events all of which can be
experienced by the visitor. The potential "discoverable moments" will include elements
such as: the mansion footprint outline; the Pool House colonnade: the Pool House
viewing deck; the Beach Walk; and public art. According to the applicant, specific
program platforms will also be created including opportunities for readings and lectures,
film projection, exhibition, performance, costumed interpretation, classes, and possibly
artist(s)-in-residence.
30
Exception to Pedestrian-Oriented Desiqn Requirements
Pursuant to SMMC 9.04.08.12.060 and SMMC 9.04.10.02.440, new construction in the
RVC District must incorporate a variety of pedestrian-oriented design elements in a
minimum of seventy percent of the building fa~ade at the street frontage ground floor
level.
The applicant requests an exception from the following pedestrian-oriented design
required by SMMC 9.04.10.02.440(a)(2): A minimum of fifty percent of the facade to a
height of ,eight feet shall be visually transparent into the building or provide a minimum
depth of three feet for window merchandise display. A building may have no more than
twenty feet of continuous linear street-level frontage that is opaque.
Pursuant to SMMC 9.04.10.02.440(c), an exception from these requirements may be
granted by the Architectural Review Board (ARB) in order to encourage design that
reflects quality, creativity and compatibility. The Landmarks Commission may grant this
exception instead of the ARB because the site is a designated Landmark property,
subject to the following findings:
(1) That the strict application of the provisions of this Chapter would result in practical
difficulties or unnecessary hardships inconsistent with the general purpose and
intent of this Chapter or that there are exceptional circumstances or conditions
applicable to the proposed development that do not apply generally to other
developments covered by this Chapter; and
31
(2) That the granting of an exception would not adversely affect surrounding
properties or be detrimental to the district's pedestrian-oriented environment.
The project site is located on the west side of Pacific Coast Highway with the Palisades
Bluffs and the highway to the east, and the Santa Monica Beach and ocean immediately
to the west. The proposed site design is oriented so that the primary elevations of new
buildings are west-facing and all activity areas are oriented similarly. At this location, the
beach-facing, west side of the parcel functions as the site's front yard and the portion of
the site fronting Pacific Coast Highway functions primarily as the rear yard. This is a
result of the site's unique ocean front location and the high noise levels generated from
PCH.
The pedestrian-oriented design requirement in question specifies that a minimum of
50% of the building fa~ade to a height of eight feet must be visually transparent into the
building or provide a minimum depth of three feet for window merchandise display, and
may not have more than twenty feet of continuous linear street-level frontage that is
opaque. The strict application of this provision would create a practical difficulty for the
applicant since the street-level frontage of the Event House and Pool House serves as
the rear of the buildings (and side elevation of the Entry Pavilion). In this instance,
providing less than 20 linear feet of an opaque elevation, and also providing visually
transparent material for 50% of the building fa~ades to 8'-0" would not serve to
attenuate noise and would not be practical for the portions of these buildings that serve
32
as rear elevations. Furthermore, these street-level fa~ades will be positioned behind a
7'-4" perimeter fence.
The granting of this exception would not be detrimental to adjacent properties or to the
pedestrian-oriented character of the area because, both historically and today,
pedestrian-oriented activities in this area have primarily occurred on the west side of
properties adjacent to the ocean, beach and bike path, and not along PCH which is a
highly traveled state highway.
ENVIRONMENTAL ANALYSIS
An Environmental Impact Report (EIR) has been prepared for this project in accordance
with Section 15087 of the CEQA Guidelines. A Notice of Preparation (NOP) was filed
with the California Office of Planning and Research and distributed to involved public
agencies and interested parties for a public review period which began February 11,
2005, and concluded on March 21, 2005. On March 3, 2005 a public scoping meeting
was held and approximately 25 people attended.
Copies of the Draft EIR were made available on November 8, 2005 for a 45-day public
review period which closed on December 22, 2005. Six comment letters were received
on the Draft EIR. Response to those comments has been incorporated into the Final
EIR.
The EIR analyzed identified potentially significant environmental impacts, including site-
33
specific and cumulative effects of the project in accordance with the provisions set forth
in the CEQA Guidelines. The EIR identified potentially significant impacts in eight issue
areas including Cultural Resources. The EIR prepared for the project evaluated the
proposed rehabilitation of the remaining North House, swimming pool and bulkhead and
also evaluated the compatibility of the proposed new construction on site.
Mitigation measures have been proposed to reduce impacts to Aesthetics and Cultural
Resources to a less than significant level. Mitigation measures (Mitigation Measures
AES-2(b), AES-2(c), HR-1(a) and HR-1(b)) have been required to ensure that the
proposed project complies with the Secretary of the Interior's Standards for the
Treatment of Historic Properties with Guidelines for Preserving, Rehabilitating,
Restoring, and Reconstructing Historic Buildings (1995).
The Planning Commission certified the Final EIR for the project and adopted a
Statement of Overriding Considerations and Mitigation Monitoring Program on April 5,
2006. This action by the Planning Commission is currently on appeal before the
Council. If the Final EIR is certified and a Statement of Overriding Considerations and
Mitigation Monitoring Program are adopted by the City Council, all project mitigation
measures will be implemented and monitored in accordance with the Mitigation
Monitoring Program contained in Attachment K.
Two mitigation measures were identified to address potential impacts to Cultural
Resources specify requirements for review of the final rehabilitation design for the
34
proposed project:
In accordance with Mitigation Measure HR-1(a), a historically compatible rehabilitation
design for the North House, pool and buikhead shall comply with the Secretary of
Interior's Standards for the Treatment of Historic Properties and Guidelines for
Preserving, Rehabilitating, Restoring and Reconstructing Historic Buildings or the
Secretary of Interior's Standards for Rehabilitation and Guidelines for Historic Buildings
(Weeks and Grimmer, 1995). Prior to issuance of a building permit, plans with specific
design details shall be prepared and submitted to the Landmarks Commission, or City
Council on appeal, as part of its review of a Certificate of Appropriateness application
which review shall ensure that the rehabilitation and adaptive reuse of the North House
and swimming pool, and new construction within the vicinity of the historical resources
does not significantly affect and is consistent with the historic character of the project
site. As part of this review and any approval of the project, in accordance with the
Secretary of the Interior's Standards, the Landmark Commission, or City Council on
appeal, shall require the following:
• Alterations required for the conversion of the North House into a meeting facility,
including the installation of inechanical equipment and alterations related to ADA
accessibility, shall be designed so as to integrate, rather than to obscure, alter, or
remove, character defining features.
• The architectural design of new facilities and landscaping shall be "differentiated
from the old, "and not detract from or overwhelm the original historic features.
• Signage shall be placed in a manner that is compatible with and does not
35
obstruct character-defining features of the North House, pool, or bulkhead.
• Testing shall be performed where necessary to ensure that the safest and
gentlest means possible are sued to clean and repair materials. A materials
conservator shall evaluate historic ceramic tiles in the pool and North House
restroom and provide appropriate methodology for repair and/or replacement in
kind if necessary.
• New facilities, including the Event House, Pool House, Garden, and children's
pool, shall be designed to maintain special relationships of the character-defining
features as much as possible. New elements constructed on the site shall be
designed to be reversible and to cause minimal impact on the historic fabric of
the site.
In accordance with Mitigation Measure AES-2(c), plans for the proposed project shall
include design details of the fence that is envisioned along the street frontage of PCH.
The design of the fence shall be compatible with the existing Georgian Revival
architectural style of the Marion Davies Estate and shall be subject to review by the
Planning Commission and Landmarks Commission, or City Council on appeal, as
required pursuant to Mitigation Measures AES-2(a} and AES-2(c).
Adequacv of the Final Environmental Impact Report
Most of the challenges to the Environmental Impact Report raised by the appellants
were not timely submitted in accordance with CEQA. However, detailed responses to
the appellants' claims regarding the adequacy of the Final EIR prepared for the project
36
are contained in Attachment D. Suggested additional modifications to the Draft EIR are
also contained therein. The Final Environmental Impact Report is legally sufficient.
ADDlTIONAL lSSUES RAISED BY APPEAL
Procedural Challenqes to Landmarks Commission Action
The appellants claim that the Landmarks Commission's action was premature given that
an appeal of the Planning Commission's April 5, 2006 approval of primary entitlements
and certification of the Final EIR was filed prior to the April 10, 2006 Landmarks
Commission hearing of the subject Certificate of Appropriateness application. The
appellants also contend that Landmarks Commission's action on the Certificate of
Appropriateness application was invalid since the Commission did not comply with
CEQA requirements for a responsible agency pursuant to CEQA Guidelines Section
15096 (a) and (e).
In accordance with the CEQA Guidelines, the Lead Agency is the decision-making body
that has primary project approval authority and normally is the discretionary body that
acts first on project entitlements. For the 415 PCH Project, the Planning Commission
served as the Lead Agency and certified the Final EIR on April 5, 2006. Once the Final
EIR has been certified, no additional environmental review is required when an agency
engages in subsequent discretionary action unless one of the conditions described in
CEQA Guidelines Sections 15162 and 15163 are present. The Landmarks Commission
appropriately relied on the certified EIR after expressly finding that none of the
conditions of Sections 15162 or 15163 were present. The filing of a challenge to the
37
EIR did not prevent the Landmarks Commission from proceeding in this manner.
Furthermore, now that all entitlements for the project and the environmental
determination have been appealed to the City Council and are subject to a de novo
review, these procedural challenges are mpot.
The appellants also contend Commissioner Lehrer's membership with the Santa Monica
Conservancy presents a conflict of interest that prevented her from making an unbiased
decision on the Certificate of Appropriateness application for the 415 PCH Project. For
the duration of the April 10, 2006 meeting when the Certificate of Appropriateness
application for the 415 PCH Project was heard by the Landmarks Commission,
Commissioner Lehrer served as Temporary Presiding Officer. Commissioner Lehrer is
indeed a member of the Santa Monica Conservancy. However, as she explained at the
Landmarks Commission hearing, she recused herself from all proceedings when the
Santa Monica Conservancy discussed the 415 PCH Project. Thus, she had no role in
the Conservancy's deliberations or actions on this matter. Further, being aware of the
common law conflict of interest principles, she stated that she was not influenced by the
Conservancy's action and would be able to make an unbiased decision regarding the
pending project. Therefore, her personal interest was not in conflict with her official
duties. Furthermore, as with the CEQA procedural challenges, this particular issue is
also moot now that the matter is being reviewed de novo by the City Council.
38
Compliance with Proposition S
The appellants contend that the proposed project violates Proposition S, an initiative
passed by voters of the City of Santa Monica on November 6, 1990. A detailed
response to this challenge is contained in the City Council staff report for Appeals
06APP-030 and 06APP-032. The proposed project does not violate the provisions of
Proposition S.
PUBLIC OUTREACH
Notice of this hearing was provided as required by Section 9.40.040(b) as follows:
notice sent to all owners and occupants within a 300-foot radius of the subject property;
a newspaper notice published in the LA Times "California" Section on at least 10 days
prior to the hearing date.
The Department of Community and Cultural Services convened a number of public
workshops and meetings since the summer of 2005 to discuss the 415 PCH Project and
to gather community comments on the emerging design and programming for the site:
1. On July 28, 2005, a public open house was held to reintroduce the public to the
site and the intended approach to the project. Approximately 80 community
members participated in this event.
2. On October 1 st and 2nd, 2005, a community workshop was held on-site with
approximately 120 community members in attendance. The first day consisted of
39
a formal presentation of the emerging schematic design by the design-build team
and rotating break-out sessions focusing on neighborhood impacts, historic
elements and design and community access and activities. On the second day,
the project team provided a summary and response to public comments from the
previous day.
3. On January 3, 2006, January 26, 2006 and February 21, 2006 meetings were
held with neighbors of the site to discuss specific neighbor concerns expressed
during the previous community workshop including site security, vehicular access
to and from the site, and City operations and maintenance of the facility.
A dedicated website for the 415 PCH Project (http://415pch.smgov.net) was established
allowing members of the public to view the schematic design for the site and submit
comments throughout the development of the proposed project.
In addition to the public outreach described above, presentations on the status of the
project and the schematic design for the site have been made to the City Arts
Commission; Commission for a Senior Community; Disabilities Commission; Recreation
and Parks Commission; Social Services Commission; Pier Restoration Corporation; and
Santa Monica Convention and Visitor's Bureau. Presentations have also been made to
California State Parks, California State Office of Historic Preservation, Caltrans, and the
California Coastal Commission.
40
CONCLUSION
The 415 PCH project has been designed to create a unique, beach-oriented, public
gathering place that responds to the cultural history of the site. The project includes the
rehabilitation of the historic North House and swimming pool, and also features
community and event rooms to be used for meetings, informal recreation, and social
events; and recreational and open spaces such as volleyball courts, gardens,
playgrounds and walkways.
The project preserves a maximum amount of historic building material and does not
obscure character-defining features of the Landmark North House and the Julia Morgan
designed swimming pool. The proposed site design and new construction are also
compatible with the historic materials, features, size, scale, and massing of the historic
North House and swimming pool, and with the site's overall historic character. The
proposed public open spaces have also been designed to complement both the historic
elements of the site and the proposed new facilities.
The proposed site design preserves the original spatial relationship between the North
House and the original mansion by establishing a garden terrace in the area of estate
that was originally developed as tennis courts. In addition, the project reflects and
interprets several other key spatial relationships that characterized the former Marion
Davies Estate.
Based on the foregoing, the 415 PCH project is consistent with the Secretary of the
41
Interior's Standards for the Treatment of Historic Properties and, as conditioned, will be
implemented in accordance with adopted project mitigation measures. Therefore, it is
recommended that the Council deny appeals 06APP-031 and 06APP-033 and approve
Certificate of Appropriateness 06CA-002 and the modification to pedestrian-oriented
design requirements per the following conditions and findings as required in SMMC
9.36.140 and SMMC 9.04.10.02.440:
CERTIFICATE OF APPROPRIATENESS FINDINGS (SMMC 9.36.140
As conditioned, the proposed rehabilitation and adaptive reuse of the former
1920s Marion Davies Estate at 415 Pacific Coast Highway as a beach-oriented,
public recreational and meeting facility with space for limited cultural and social
event programming. The proposed project includes rehabilitation of the remaining
significant features of the original Marion Davies Estate, and new construction on
site. The proposed project complies with the Secretary of the Interior's
Standards for the Treatment of Historic Properties in that the proposed scope of
work and treatment of the site is consistent with the Standard's definition of
rehabilitation defined as the act or process of making possible a compatible use
for a property through repair, alterations, and additions while preserving those
portions or features which convey its historical, cultural, or architectural values.
As conditioned, and in accordance with adopted project mitigation measures, the
proposed project will preserve a maximum amount of historic building material
and will not detrimentally change, destroy or adversely affect character-defining
features of the Landmark North House and historic swimming pool in that
protection, repair, or replacement in-kind if other treatments are not feasible, has
been proposed for all original, character-defining features of the property.
Exterior features include but are not limited to the double-hung wood sash
windows; clapboard siding; portico and columns; molded cornice along the
roofline; dormers; decorative recessed wood paneling under first-story windows;
and exterior doors and surrounds. Interior features include a large fireplace and
marble mantel; extensive wood paneling, decorative wainscot and built-in
cabinets on the first floor; decorative, custom-made ceramic tile in restrooms on
the second floor; and other similar features.
The historic Julia Morgan designed swimming pool and pool deck is also a
remaining feature of the original Marion Davies Estate. This historic swimming
pool and surrounding, marble coping and marble inlay paving will be rehabilitated
in accordance with the Secretary of the Interior's Standards, thus allowing the
historic integrity of these elements to be protected while enabling them to safely
serve as a public recreation amenity. In addition, in accordance with project
Mitigation Measure HR-1(a), a Materials Conservation Consultant will direct the
42
rehabilitation of the historic Julia Morgan pool and pool deck. The proposed
scope of work will include protection and repair of the existing decorative pool
tiles, marble coping, and paving. Photographs of several pool tiles are contained
in Attachment C. In-kind replacement will be necessary of any existing tiles or
paving that are damaged beyond repair. A small section of the original paving
located beyond the pool deck area will also be salvaged and used to replace any
severely damaged or missing pieces of the diamond-shaped, green marble inlay
border.
As modified by project conditions and in accordance with adopted project
mitigation measures, the proposed project will comply with the Standards for
Rehabilitation in that key historic spatial relationships that characterized the
original Marion Davies Estate will be maintained and interpreted. For example,
the siting of the proposed Garden Terrace has been designed to recafl and
maintain a key spatial relationship that characterized the Marion Davies Estate
where tennis courts were originally located between the North House and the
estate mansion. In addition, the proposed Pool House reflects the important
historic spatial relationship between the original estate mansion and swimming
pool that was a key, character-defining feature of the Marion Davies Estate.
In accordance with the Standards for Rehabilitation, the proposed new
construction on site has been designed to be reversible and ~to cause minimal
impact on the historic fabric of the site. Each building expresses a modern design
and form that is compatible with, yet differentiated from, the extant historic North
House and swimming pool. Furthermore the Pool House, Event House and Entry
Pavilion have been designed in such a manner that if removed in the future, the
essential form and integrity of the historic property and its environment will be
unimpaired. As conditioned and in accordance with project mitigation measures,
the proposed new construction has been designed to be compatible, yet
differentiated from the existing historic fabric on site and proposed public open
spaces have also been designed to complement both the historic elements of the
site and the proposed new facilities. The new construction on site has been
proposed in manner that does not obscure significant features on site. For
example, the scale and location of the Event House has been designed to allow
the Landmark North House to be highlighted as a significant element on site. The
palette of materials for the new construction has been chosen to reinforce the
modern architectural style of each building, to reference the historic context of
the site, as well as address the functional requirements of a public recreation
facility on the beach.
The proposed demolition of the existing recreation courts and the Locker Building
constructed will not adversely affect any significant features on site and will not
detrimentally change, destroy or adversely affect any exterior feature of the
Landmark or Landmark Parcel. The Locker Building was constructed in 1948 for
subsequent private beach club use and therefore does not contribute to the site's
Period of Historic Significance. The Locker Building and recreation courts were
43
not identified in the Landmark Designation approved by the Landmarks
Commission on July 15, 1980 as individually significant features of the site or as
items of special interest. Removal of these features from the site will serve to
further clarify the site's period of significance, which has been identified as the
years from 1927 to 1946 when the property was directly associated with actress
Marion Davies, and facilitate the rehabilitation of the site for public use.
Furthermore, proposed Pool House, which features locker and changing rooms,
and a community room, will serve as functional replacement for the existing
Locker Building and will allow' for the creation of more open space and
recreation areas on site.
Finally, the proposed 7'-4" perimeter fence has been designed to reflect a rhythm
similar to the original estate wood fence and wood pilasters, in terms of its height,
scale and general character. The proposed fence has been designed to be
compatible with the contemporary architecture of the new construction on site.
The fence design incorporates concrete piers that are similar in form to the
vertical pre-cast concrete columns proposed on the Pool House. The proposed
fence has also been designed to address the programmatic needs of the site.
Specifically, the section of the fence (excluding the portions in front of both
parking lots) will be re-constructed with durabte concrete masonry to help
mitigate sound impacts on the site from Pacific Coast Highway, and to help
address site security issues by controlling access to the site. A Memorandum of
Agreement has been entered into between the City, the State Office of Historic
Preservation and the Advisory Council on Historic Preservation regarding
removal of the original fence and its replacement. The agreement requires that a
new fence be approved in consultation with the State Historic Preservation
Officer. The currently-proposed fence has been reviewed by the State Historic
Preservation Officer and will be constructed in accordance with this
Memorandum of Agreement.
Based on the foregoing, the proposed project, as modified by project conditions
and mitigation measures, is consistent with the Secretary of the Interior's
Standards for the Treatment of Historic Properties.
MODIFICATION OF PEDESTRIAN ORIENTED DESIGN (SMMC 9.04.10.02.440)
1. The strict application of the provisions of this Chapter would result in practical
difficulties or unnecessary hardships inconsistent with the general purpose and
intent of this Chapter or that there are exceptional circumstances or conditions
applicable to the proposed development that do not apply generally to other
developments covered by this Chapter, in that the proposed site design is
oriented so that the primary elevations of new buildings are west-facing and all
activity areas are oriented similarly, which is consistent with the project site
location on the west side of Pacific Coast Highway with the Palisades Bluffs and
the Highway to the east, and the Santa Monica Beach and ocean immediately
west of the property. At this location, the beach-facing, west side of the parcel
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functions as the site's front yard or pedestrian-oriented area. The portion of the
site fronting Pacific Coast Highway functions primarily as the rear yard and the
building farades along Pacific Coast Highway are secondary elevations. This is a
result of the site's unique ocean front location and the high noise levels
generated from PCH. The pedestrian-oriented design requirements specify that a
minimum of 50% of the building fa~ade to a height of eight feet must be visually
transparent into the building or provide a minimum depth of three feet for window
merchandise display, and may not have more than twenty feet of continuous
linear street-level frontage that is opaque. The strict application of this provision
would create a practical difficulty for the applicant since the street level frontage
of the Event House and Pool House serves as the rear of the buildings (side
elevation of the Entry Pavilion). In this instance, providing less than 20 linear feet
of an opaque elevation, and also providing visually transparent material for 50%
of the building fa~ades to 8'-0" along PCH would not serve to attenuate noise,
would not be practical for these building fa~ades that serve as rear elevations
positioned behind a 7'-4" perimeter fence, and would not be appropriate for the
recreational use of the site.
2. That the granting of an exception would not adversely affect surrounding
properties or be detrimental to the district's pedestrian-oriented environment
because, both historically and today, pedestrian-oriented activities in this area
have primarily occurred on the west side of properties adjacent to the ocean,
beach and bike path, and not along PCH which is a highly traveled state
highway.
CONDITIONS
1. This approval is for the rehabilitation and adaptive reuse of the property at 415
Pacific Coast Highway as shown on plans dated May 16, 2006, which are on file
in the City Planning Division, except as amended herein.
2. The applicant shall submit revised plans specifying the final color and material
selections for new construction on site for review and approval by the Landmarks
Commission in the form of a Certificate of Appropriateness Application prior to
issuance of building permits for the project.
3. The applicant shall submit Landscaping Plans for review and approval by the
Landmarks Commission in the form of a Certificate of Appropriateness
Application prior to issuance of building permits for the project.
4. The applicant shall submit a Lighting Plan for review and approval by the
Landmarks Commission in the form of a Certificate of Appropriateness
Application prior to issuance of building permits for the project. The lighting plan
shall demonstrate that any exterior night lighting installed on the project site shall
be of low intensity, low glare design, and shall be hooded to direct light
downward onto the subject parcel and away from surrounding residential uses so
45
that there is no lighting spill-over onto adjacent parcels. In addition, such lighting
shall not blink, flash, or oscillate.
5. The applicant shall submit Signage Plans for review and approval by the
Landmarks Commission in the form of a Certificate of Appropriateness
Application prior to issuance of a Certificate of Occupancy. The proposed
Signage Plan shall demonstrate that proposed signage will be placed in a
manner that is compatible with and does not obstruct character-defining features
of the North House, swimming pool, or bulkhead.
6. This Certificate of Appropriateness shall be in full force and effect from and after
the date of the rendering of the decision by the City Council. Pursuant to
Landmarks Ordinance Section 9.36.170(h), this approval shall expire within one
year if the authorized work is not commenced. Should the applicant be unable to
comply with this restriction, an extension may be granted pursuant to Section
9.36.250 for an additional 180 days maximum. The applicant must request such
an extension prior to expiration of this permit. After that time, the applicant will
be required to return to the City Council for approval. In addition, this Certificate
of Appropriateness shall expire if the authorized work is suspended for a 180-day
period after being commenced.
7. All required Planning and Building Permit approvals shall be obtained.
Prepared by:
Roxanne Tanemori, Associate Planner
roved:
For~rr~deci~to Council:
Andy Agle P. a ont Ewell
Director, Plannin & C munity i anager
Development Department
46
Attachments:
A. Appeal Statements dated April 10, 2006 and April 18, 2006
B. Notice of Public Hearing, Radius and Location Map
C. Photos of Historic Swimming Pool Tiles
D. Response to Appellants' Challenge Regarding Adequacy of the Final EIR
Documents Relevant to EIR Discussion
(Attachment D of City Council Appeal Staff Report 06APP-030 and 06APP-032)
E. April 10, 2006 Landmarks Commission Meeting Minutes and Staff Proposed
Findings and Conditions
F. 1995 Memorandum of Agreement Regarding Perimeter Fence
G. Correspondence Received Regarding the Proposed Project
(Attachment J of City Council Appeal Staff Report 06APP-030 and 06APP-032)
H. Applicant's Response to Appellants' Appeal Statements
Photographs of Site and Surrounding Properties
(Attachment L of City Council Appea/ Staff Report 06APP-030 and 06APP-032)
J. Resolution to Certify the Environmental Impact Report
(Attachment F of City Council Appeal Staff Report 06APP-030 and 06APP-032)
K. Resolution Adopting a Statement of Overriding Considerations and Mitigation
Monitoring Program
(Attachment G of City Council Appeal Staff Report 06APP-030 and 06APP-032)
L. Renderings, Plot Plan, Floor Plans and Elevations Dated May 16, 2006
(Attachment M of City Council Appeal Staff Report 06APP-030 and 06APP-032)
M. Final Environmental Impact Report dated May 2006
(Attachment N of City Council Appeal Staff Report 06APP-030 and 06APP-032)
N. March 2002 Technical Report: Marion Davies Estate, 415 Pacific Coast Highway
(Attachment O of City Council Appeal Staff Report 06APP-030 and 06APP=032)
F:\CityPlanning\Share\COUNCIL\STRPT12006\415 PCH Appeal\06APP-031-033 LM (415 PCH).doc
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