SR-021208-6Ac7~+
~;~Yo, City Council Report
Santa Monica
City Council Meeting: February 12, 2008
Agenda Item: ~ w
To: Mayor and City Council
From: Eileen P. Fogarty, Director of Planning and Community Development
Subject: Appeal of Landmarks Commission approval of Certificate of
Appropriateness Application for demolition of anon-contributing structure
and construction of a new single-family residence at 2642 Second Street.
Recommended Action
Staff recommends the City Council deny appeal 07APP-010 and approve Certificate of
Appropriateness application 07CA-009 for demolition of anon-contributing structure and
construction of new asingle-family residence located at 2642 Second Street, based on
the findings set forth by the. Landmarks Commission in its action on December 10,
2007.
Executive Summary
This report supports the Landmarks Commission's approval of a Certificate of
Appropriateness application filed by property owners Mark R. Gorman and Beth Burns
for construction of a new 2,365 square foot single-family residence on a non-
contributing parcel located in the Third Street Neighborhood Historic District ("the
District"). On December 10, 2007; a majority of the Landmarks Commission determined
that the design of the new, single-family residence and its placement on the parcel
would be harmonious with the overall character of the District and with the scale,
materials, and massing of Contributing Structures within the District, and therefore
approved the application by a vote of 4-1.
This report presents analysis of the proposed project in light of the required finding for
approval set forth in SMMC Section 9.40.030 (c) (4) that requires new construction be
harmonious and compatible with the character of the District and with the scale,
massing and materials of contributing structures in the District. The report also
addresses the points of the appeal filed by Beatrice Nemlaha, Scott Campbell, and
Tony Haig that, in summary, assert the Landmarks Commission erred it in approval of
the Certificate of Appropriateness application because the proposed project is not
compatible with the character of the District or with Contributing Structures in the
District, and is not consistent with the adopted District design guidelines for new
construction. In consideration of the full record to date, including review of the
appellants' appeal statement, it is recommended that the Landmarks Commission's
approval of the Certificate of Appropriateness be upheld and the appeal, therefore, be
denied.
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Discussion
On August 28, 2007, Mark R. Gorman and Beth Burns filed a Certificate of
Appropriateness application requesting demolition of an existing non-contributing
structure and construction of a new two-story 2,365 square foot single-family residence
at 2642 Second Street, located within the Third Street Neighborhood Historic District
("District"). The subject property is approximately 50' x 100' and is located on the west
side of Second Street between Beach and Hill Streets. The existing one-story duplex
on site was constructed in 1953 and was determined to be anon-contributing structure
when the District was established in July 1990.
The west side of Second Street contains a total of three contributing structures: two
adjacent structures at the corner of Ocean Park Boulevard and one structure located
two parcels south of the subject property. The properties to the north of the subject
property consist of a parking lot and one-story structure. The property to the south is
currently vacant, however an approval was recently granted for the construction of a
new, two-story plus mezzanine single-family residence.
Third Street Neighborhood Historic District Boundaries
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Rendering of Proposed Single-Family Residence
2642 SecondStreet
Third Street Neighborhood Historic District Standards & Design Guidelines
When the District was established, its intent was documented in an application
referenced in the Municipal Code (SMMC 9.36.290) describing in detail the
neighborhood's history, architectural character, proposed boundary alternatives, and the
purpose for establishing this area as a historic district. Out of three alternatives offered
in the application, the Council designated the District boundaries to include the west
side of Second Street, in part, because there was interest on the part of district
applicants in relocating historic structures from other areas to these non-contributing
and empty parcels on Second Street. When the District was established, contributing
structures were defined as -those structures that were built during or prior to 1935; non-
contributing properties were identified as vacant parcels and those structures
constructed after 1935.
Following the establishment of the Third Street Neighborhood Historic .District, the
Landmarks Commission adopted the Third Street Neighborhood Design Guidelines and
a Landscape Survey ("District Guidelines") in 1992. These District Guidelines are
discussed more fully beginning on page 9 of this report.
Landmarks Commission Action
The Landmarks Commission held a public hearing for the Certificate of Appropriateness
application on October 8, 2007. After listening to public testimony both in opposition
and in support of the project, and after an extensive discussion regarding the proposal,
the hearing was continued to allow the applicant to revise the project based on specific
direction provided by the Commission during the course of the discussion. The
Landmarks Commission reviewed the revised project at its December 10, 2007 meeting
and determined that the applicant had made appropriate" revisions that served to
enhance its compatibility with the District. The Commission approved the Certificate of
Appropriateness application by a vote of 4-1. The majority of the Commission based its
approval, in part, on the following factors:
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• The project's overall design concept is appropriately responsive to the character
of the District and its context on Second Street. The design incorporates carefully
selected architectural elements and a palette of materials that complement and
reflect in a contemporary and respectful manner the District's character while
also creating an understated backdrop for the historic architecture in the District.
• The project's restrained modern design, overall building form, low overall building
height, and articulated building volumes are harmonious and compatible with the
character of the District and with characteristics found in the architecture of a
variety of contributing structures in the Historic District.
As a condition of approval, the Commission required the applicant to work with the
Landmarks Commission Secretary to select a modified exterior paint color palette.
The full text of the Landmarks Commission's Statement of Official Action is presented
as Attachment B. October 8, 2007 and December 10, 2007 staff reports and meeting
minutes are presented as Attachments C and D, respectively.
Appeal Summary
The appellants state that the Landmarks Commission erred in its decision to approve
the Certificate of Appropriateness application. The following is a summary of the
appellants' statement; the full text of the appeal is contained in Attachment A:
• The proposed project damages the character of the District and violates the
purpose for creating the District and the story of an early Santa Monica beach
neighborhood the District was created to tell.
• The project does not comply with the criteria for issuance of a Certificate of
Appropriateness contained in SMMC Section 9.36.140.
• The project is incompatible with the District's dominant architectural character
found in its California bungalows.
• The Landmarks Commission failed to strictly apply the Third Street
Neighborhood Historic District Design Guidelines in evaluating and approving
the project and instead substituted its own criteria that new buildings should be
"of their time", a standard not included in the any standards or guidelines
relevant to the District.
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• The project's massing, style, building shape, and materials do not complement
the surrounding contributing structures in the District as required in the District
Design Guidelines.
• The Landmarks Commission failed to apply the analysis of District character-
defining features presented in a report prepared by a preservation consultant
hired by some neighborhood residents.
The City Council, in its review of this appeal, must determine whether the proposed
project for construction of a new single-family residence on anon-contributing parcel
meets the following criteria for issuance of a Certificate of Appropriateness in the Third
Street Neighborhood Historic District set forth in SMMC Section 9.40.030 (c) (4):
That in the case of any proposed construction of a new improvement on any parcel
located within the District boundaries, the exterior features of such new improvement
and its placement on the property would not adversely affect and not be disharmonious
with the District character as set forth in Section 9.36.290, and with the scale, materials
and massing of the contributing structures within the District.
Appeal Analysis
Based on the full record to date, including testimony and documentary evidence
presented at Landmarks Commission public hearings, there is ample support for the
Commission's decision to approve the Certificate of Appropriateness. Therefore, staff
continues to recommend approval of the Certificate of Appropriateness as detailed more
fully in the staff reports provided for the Landmark Commission hearings. The following
discussion briefly describes the proposed project, addresses the appellants' key
arguments, and also summarizes the basis for staff's determination.
Description of Project Design
The applicant proposes to demolish the existing structures on site and construct a 2,365
square foot, two-story residence with a roof deck. A detached two-car garage is
proposed at the rear of the parcel at the northwest corner.
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All setbacks incorporated into the project design meet zoning ordinance requirements
for the OP-2 Zoning District. The height of the proposed residence is 20'-0" to the top of
the flat roof and 23'-0" to the top of the clerestory skylights that are stepped back from
the primary, street-facing elevation. The maximum height permitted in the Zoning
District is 30'-0".
The proposed two-story residence is composed of two rectangular volumes clad in sand
finish stucco and wood. Its design reflects elements of the International style in
accordance with the adopted Ocean Park Neighborhood Development Guide which
specifies that new construction in the OP Zoning Districts must be designed in the
following historical styles: International style/modern, Craftsman bungalow, or Spanish
Colonial Revival/Mediterranean style.
The primary, street-facing elevation features doors and windows framed in teak wood, a
centrally-located second floor balcony and a ground floor recessed primary entry.
Fenestration on the primary elevation consists of ground-floor windows divided into
multiple panes a maximum of 2'-0" wide and divided wrap-around windows on the
second-story accented by a reclaimed ponderosa pine eyebrow on the south volume.
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Primary Elevation of Proposed Single-Family Residence at 2642 Second Street:
A ponderosa pine screen has been incorporated on the primary, street facing elevation
adjacent to the main entry in order to add texture and finer-grain detail to the sections of
smooth stucco on this elevation. This ponderosa screen also serves divide the expanse
of glass on the ground floor of the street-facing elevation.
The north volume features reclaimed ponderosa pine vertical siding and an overlay of
wood boards turned to a 90-degree angle forming a `bris-soleil' type trellis for plantings.
This wood cladding wraps around from the primary, east-facing elevation to the north
elevation adjacent to the proposed driveway leading to the garage sited at the rear of
the parcel.
The applicant proposes an exterior stair on the inside, northwest corner of the house.
This stair has been set back as far from the street as possible and has been designed
so that the stair guardrail is located below the roofline to entirely eliminate its visibility
from the street.
The south elevation features sand finish stucco, aluminum framed fenestration and a
horizontal ponderosa pine eyebrow extending the above the second floor windows to
the rear of the building.
A grass-crete driveway is proposed on the north side of the parcel that would lead to a
two-car garage at the rear of the property. This one-story structure is also proposed
with a ponderosa pine trellis element with- plantings and a wooden garage door.
North Elevation of Proposed Single-Family Residence at 2642 Second Street
(Massing of Recently-Approved New Construction on Adjacent Parcel to the South Shown in Background)
South Elevation of Proposed Single-Family Residence at 2642 Second Street
Historic District Design Guidelines and Certificate of Appropriateness Criteria
The appellants state the proposed project does not comply with the criteria for issuance
of a Certificate of Appropriateness contained in SMMC. Section 9.36.140. All proposed
work in the Third Street Neighborhood Historic District is subject to the procedures and
criteria established in SMMC Chapter 9.40. It is important to note that SMMC Chapter
9.40 provides criteria specifically-tailored to the context of the Historic District in order to
evaluate different types of projects that require a Certificate of Appropriateness in the
Third Street District. For such projects, these criteria must be used in lieu of the
findings applicable to properties located outside of the Third Street Historic District
established in SMMC Chapter 9.36 cited by the appellants.
The criteria relevant to the proposed project specifies that, `in the case of any proposed
construction of a new improvement on any parcel located within the District boundaries,
the exterior features of such new improvement and its placement on the property would
not adversely affect and not be disharmonious with the District character as set forth in
Section 9.36.290, and with the scale, materials and massing of the contributing
structures within the District."
While this criterion for issuance of a Certificate of Appropriateness in the-Third Street
Neighborhood Historic District does not require consistency with the District Design
Guidelines, the Guidelines are still relevant. The Guidelines should be used to assist in
the assessment of whether the applicable finding can be made. In this instance, the
Design Guidelines were used to help assess whether the project is compatible with the
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character of the District and with the scale, massing, and materials of Contributing
Structures in the District in accordance with the applicable Certificate of
Appropriateness criterion for new construction described above.
The appellants' state that the Commission failed to strictly apply the Third Street
Neighborhood Historic District Design Guidelines, and that the project's massing, style,
building shape, and materials do not complement the surrounding contributing
structures in the District as required in the District Design Guidelines.
In contrast to the appellants' assertion, the following presents a discussion of how staff
and the Commission both found that the proposed project does, indeed, meet the
required Certificate of Appropriateness criterion for new construction and also complies
with District Design Guidelines.
Analysis of Project Design
The way in which the new building visually relates to adjacent properties is an important
aspect of staff review of new construction in the Third Street Neighborhood Historic
District. A new building constructed in a historic district should respect and not
detrimentally impact the character of the District. Compatibility is achieved by identifying
and incorporating elements found in the historic district into the design of the new
structure.
The goal is not to imitate or duplicate a historic building, thereby creating a false sense
of history, but to construct a new building that is compatible with its surroundings. In
this instance, the project site is located on the west side of Second Street; this portion of
the District presents a different visual experience in comparison to other sections of the
District which possess a more significant concentration of contributing structures
thereby creating a more cohesive sense of the District's historic context. A photo
montage of the east and a west side of Second Street is presented in Attachment E.
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For proposed new construction, the Third Street Neighborhood Historic District
Guidelines state that "new buildings should be carefully designed to complement and
not overwhelm the surrounding historic buildings" and suggest the following four criteria:
• Use exterior materials traditionally found in the Third Street neighborhood,
such as wood and stucco.
• Maintain setbacks, heights, and overall building shapes that are similar to
surrounding contributing buildings in the historic district.
• Use windows and architectural details at the street level to create a
pedestrian scale and a "neighbor-friendly" character.
• Include a clearly defined main entrance that is oriented toward the street.
Parking should be at the rear of the property."
Compatibility with the Character of the District -Scale and Massing
While the appellants state that the project is incompatible with the District's dominant
architectural character found its California bungalows, the District does, in fact,
possesses a variety of architectural styles that are described in both the section of the
Municipal Code that addresses the character of the District (SMMC 9.36.290), as well
as in the District Design Guidelines. Both of these describe the Third Street
Neighborhood Historic District as possessing architectural significance to Santa Monica
because the area displays a variety of architectural styles, from Victorian to Gothic, to
American Colonial Revival, to California Craftsman, to Spanish Colonial Revival, which
provide a visual representation of the Neighborhood's development through the 1930s.
This description goes on to state that, in addition, "the neighborhood is dominated by
bungalows; twenty-nine bungalows and one bungalow court are extant in the District."
The criterion for issuance of a Certificate of Appropriateness for new construction
states that the project must be compatible with the scale, materials, and massing of
contributing structures. No where in this language is a requirement that California
bungalows are the only contributing structures with which compatibility must be
achieved. The Municipal Code and the Design Guidelines both make it clear that there
are a variety of architectural styles that help to define the significance of the District.
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Furthermore, many Contributing Structures in the District are two-story structures
including 231 Hill Street, 245 Hill Street, 2627 3rd Street, 2637 Third Street, and 2614
Second Street, and it is appropriate to allow two stories on this property, provided that
the design of the proposed structure does not overwhelm nearby contributing
properties.
Therefore, it is appropriate to state that the proposed project's setbacks, simple
rectangular volumes, flat roof, and low scale (20'-0") are characteristics that are
consistent with the architecture of contributing structures in the Historic District.
Specifically, the project's .overall building form, low overall building height and
articulated building volumes are harmonious with the contributing structures that exhibit
American Colonial Revival and Spanish Colonial Revival architecture (2545 2nd Street,
2546 3rd Street, 246 Beach Street, and 245 Hill Street, and 2637 3rd Street).
Contributing Structures in the District: 245 Hill Street (left); 2545 Sewnd Street (center); and 231 Hill Street (right).
Furthermore, the project design relates harmoniously to its placement within the historic
district in that non-contributing parcels are adjacent to the subject property an site
planning for the project incorporates sensitivity to the adjacent parcel to the south which
is currently vacant but has been approved for a new 30'-0" tall two-story residence. The
tallest portions of the proposed project comprised of the clerestory skylight stepped
back from the street are sited adjacent to this parcel; the proposed project's driveway is
adjacent to the parcels to the north which consist of a surface parking lot and two, ohe-
story structures.
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Compatibility with the Character of the District -Materials and Architectural Details
The proposed project design incorporates extensive use of wood and stucco materials
such as sand finish stucco, teakwood framed fenestration, and use of reclaimed
ponderosa pine wood screens on the primary, street-facing and north elevations. This is
consistent with the materials traditionally found in many of contributing structures in the
District that are comprised of California Bungalow, Spanish Colonial Revival, and
American Colonial Revival architectural styles.
The proposed project incorporates carefully selected architectural elements that
complement and reflect the District's character while also creating an understated
backdrop for the historic architecture in the District. The project incorporates extensive
wood architectural screen and trellis elements that create aneighbor-friendly character
and also reflect in a contemporary but respectful and compatible manner the traditional
wood cladding found in the District's California bungalow and American Colonial Revival
architecture.
The project also design incorporates extensive multi-pane fenestration that echoes the
proportions and type of details found in the District's historic California bungalow and
Victorian architecture. These windows provide a connection between the interior and
exterior landscape as well as provide visual interest and create a pedestrian friendly
environmental and scale as viewed from the street.
District Design Guidelines for new construction state that projects should include a
clearly defined main entrance that is oriented toward the street and that should be at the
rear of the property. Accordingly, the project design incorporates a clearly defined main
entrance that faces the street and is flanked by wood accents and a detached
accessory garage is proposed at the rear of the property.
Based on the whole of the record, staff recommends that the City Council uphold the
Landmarks Commission's approval of Certificate of Appropriateness application 07CA-
009 for approval to demolish the existing non-contributing structure on site and
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construct a new, single-family residence at 2642 Second Street, anon-contributing
parcel located in the Third Street Neighborhood Historic District.
Alternatives
As an alternative to the staff recommendation, the Council may consider the following
with respect to the pending appeal if supported by the full evidentiary records:
1. Denying the Appeal.
2. Remanding the application to the Landmarks Commission for reconsideration.
Environmental Analysis
The project is categorically exempt from the provisions of California Environmental
Quality Act (CEQA) pursuant to Section 15303, Class 3 and Section 15331, Class 31 of
the State Implementation Guidelines in that the project consists of the construction of a
new single family residence and designed 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 Buildings (1995),
Weeks and Grimmer.
Public Outreach
As required by the Municipal Code, the Third Street Neighborhood Citizen's
Participation Committee (CPC) was notified of the application for and appeal of the
Certificate of Appropriateness, including notice of all hearings. Additionally, this hearing
has been noticed with on-site posting and mailed notice of hearing as required in SMMC
Sub-section 9.40.040(b).
Financial Impacts & Budget Actions
The recommendation presented in this report does not have any budget or fiscal impact.
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Prepared by:
Roxanne Tanemori, AICP, Associate Planner
Approved:
n P. Fogarty
Director, Planning an omm ity
Development
Forwarded to Council:
Attachments
A. Appellants' Appeal Statement
B. Landmarks Commission Statement of Official Action, December 10, 2007
C. Landmarks Commission Minutes, October 8, 2007 and December 10, 2007
D. Landmarks Commission Staff Reports and Hearing Submittals, October 8, 2007
and December 10, 2007
E. .Property Owners' Statement Regarding the Appeal and Project Plans and
Renderings
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Additional
attachments
available in City
Clerk's Office.