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sr-090809-6aCity Council Meeting: September 8, 2009 Agenda Item: To: Mayor and City Council From: Eileen P. Fogarty, Director of Planning and Community Development Subject: Appeal of Landmarks Commission Designation of the Commercial Building Located at 3030-3060 Nebraska Avenue as a City Landmark Recommended Action Staff recommends that the City Council deny the appeal and designate the subject property as a City Landmark based on revised findings. Executive Summary The appellants, NMS Properties Inc., and Nebraska Studios, LLC, request that the City Council overturn the Landmarks Commission's unanimous decision on February 11, 2008 to designate the structure at 3030-3060 Nebraska .Avenue (former location Southern California Institute of Architecture (SCI-Arc)) as a City Landmark and the property as a Landmark Parcel. These designations were based on the structure's association with the City's cultural history and historic personage Ray Kappe, and for its architectural merit pursuant to Landmark Designation Criteria #1, #3, and #4. City staff and the consultant's report that analyzed the designation request did not support a landmark designation of the structure under Criterion #4 because the structure is a common example of a utilitarian, vernacular industrial building that has been significantly altered. It is not unique in design or rare architecturally. In consideration of the full record to date, it is recommended that the Council uphold the decision of the Landmarks Commission to designate the structure and parcel located at 3030-3060 Nebraska Avenue based on Criteria #1 and #3, but not on Criterion #4. More specifically: • The property was the initial home of the SCI-Arc upon the school's founding in 1972 through 1992 and therefore symbolizes the importance of SCI-Arc to the cultural history of Santa Monica and the City's reputation as an incubator for innovation, excellence in architecture and education. The subject property also manifests the evolutioh of its industrial neighborhood in Santa Monica. (Criteria #1). 1 • The property is associated with Ray Kappe, FAIA, a historic personage who has been widely recognized for his local, state, and nationally important contributions as the founder of SCI-Arc and its Director from 1972 through 1987. These years correspond to the time period when SCI-Arc was located in Santa Monica and is reflective of the time period when he achieved significance, recognition and acclaim as an architect and educator. (Criteria #3). This report highlights the points of the appeal, the Landmarks Commission's action, and staffs position relative to the designation based on revised findings. The recommendation on this matter does not have any budgetary or fiscal impact. Discussion Property Description The property at 3030-3060 Nebraska Avenue is a vernacular, utilitarian industrial building located on the southwest corner of Nebraska Avenue and Berkeley Street and is within an industrial area comprised of offices, studios, and light manufacturing uses. The property is bordered on its south by a narrow alley and other industrial buildings, on its west by industrial buildings and a small cafe, and on its east and north by Berkeley Street and Nebraska Avenue, respectively. The subject building was originally constructed in 1951 for owner/contractor John F. Drescher as a 9,600 square foot light industrial building. A year later, a recessed third- story penthouse was constructed on the building's mezzanine. The structure is composed of steel frame, concrete, and exterior stucco sheathing and is capped by a corrugated aluminum and a sawtooth roof with clerestory windows. Fenestration consists primarily of steel-framed fixed and casement windows on upper stories; original windows have been replaced with vinyl sliders on the ground floor of the north-facing elevation. The building's primary entrance on Nebraska Avenue has been altered and consists of a projecting concrete surround with wood-framed and glazed double-doors. The property's east-facing Berkeley Street entrance contains ametal-framed door with translucent sidelights and transoms. Wood and rolling metal doors accessing studio spaces punctuate the building's rear (south) elevation. 2 According to City directory research, the subject property's initial tenant was the American Gyro Corporation. From 1958 to 1961, the William Brand Wire and Cable Corporation leased the building. The subject property was the first location of the Southern California Institute of Architecture (SCI-Arc) that was founded in 1972 and occupied the subject property for 20 years. Interior spaces have been altered numerous times over the years; today, the building houses. offices, studio spaces, and several classrooms. 3030-3060 Nebraska Avenue Primary Elevation (left & center); 3030-3060 Nebraska Avenue rear elevation (right) Historic Resources Inventory Status The subject property is located in the area surveyed during Phase 3 of the Santa Monica Historic Resources Inventory (1990-1993). The subject property was not identified as being eligible for local designation. or a contributor to afour-building grouping within the potential Nebraska Avenue Industrial District. The four architecturally unified one-story industrial buildings were constructed in 1946, characterized by brick construction with prominent mortar lines, raised piers,. and Late Moderne detailing. The subject property at 3030-3060 Nebraska Avenue, was constructed five years later in 1951. Landmarks Commission Action At its February 11, 2008 meeting, following testimony from the property owners' representative and Commission discussion, the Commission unanimously determined that the structure met three of the six designation criteria set forth in SMMC Section 9.36.100. The following summarizes the Commission's conclusions: 3 • The vernacular industrial/commercial building constructed in 1951 for John F. Drescher, a noted Santa Monica developer and philanthropist, became the first location of the Southern California Institute of Architecture (SCI-Arc) upon the school's founding in 1972 through 1992. This property symbolizes the importance of SCI-Arc to the cultural history of Santa Monica. Since its founding in Santa Monica in 1972, SCI-Arc as an academic institution has achieved worldwide prominence and acclaim; its educational innovations have continued to influence architectural schools locally, nationally, and internationally; and it has received numerous distinguished awards and identified with notable architects and educators. (Criterion #1) • The subject property also manifests the evolution of its industrial neighborhood in Santa Monica. It was initially constructed in 1951 for manufacturing and light industrial uses that reflected Santa Monica's post-war economy and the character of the surrounding area. Over time, the building evolved into a culturally-inventive space and housed uses that reflected the neighborhood's broader evolution from manufacturing to an emphasis on facilitating education, art and creative endeavors. (Criterion #1) • The subject property is associated with Ray Kappe, FA1A, a historic personage who has been widely recognized for his local, state, and nationally important contributions as the founder of SCI-Arc and its Director from 1972 through 1987. These years correspond to the time period when SCI-Arc was located in Santa Monica and is reflective of the time period when he achieved significance, recognition and acclaim as an architect and educator. (Criterion #3) • The subject building is a representative example of a 1950s vernacular modern industrial building and embodies distinguishing architectural characteristics that are valuable to a study of mid-century industrial structures in Santa Monica. The structure incorporates the massing, simplicity of .geometric form, stucco exterior finish, and general lack of applied ornamentation that is associated with mid- century Bauhaus style architecture of the time period. The property is a unique example of-its type since it is a two-story volume compared to most of the extant industrial buildings of its era that are one-story structures. The building possesses a unique architectural design detail found in its continuous band of second-story windows that is a strong expression of a late Bauhaus, mid-century fenestration pattern. (Criterion #4) The full text of the Landmarks Commission's Statement of Official Action is presented as Attachment B. The February 11, 2008 staff report and February 11, 2008 meeting minutes are presented as Attachments C and D, respectively. 4 Appeal Summary The appellants filed an appeal on February 21, 2008 and submitted a supplemental statement on March 2, 2009. The appellants' February 21, 2008 statement asserted that the Landmarks Commission erred in its decision to designate the structure as a Landmark based on its architectural significance pursuant to Criterion #4. Consistent with testimony provided by the property owners' representative at the Landmarks Commission designation hearing, the appellants' appeal did not object to the Commission's designation of the structure or site based on its association with Santa Monica's history pursuant to Criterion #1 or its association with historic personage, architect and educator Ray Kappe pursuant to Criterion #3. The appellants' supplemental statement provided on March 2, 2009 expanded the appeal statement and asserts that the Landmarks Commission erred in its decision to designate the structure and site as a Landmark based on each of the three designation criteria adopted by the Landmarks Commission and outlined below. The full text of the appeal is contained in Attachment A. In summary, the appellants assert the following • While the subject site is important to the cultural history of Santa Monica for its association with John F. Drescher, one of Santa Monica's noted developers and philanthropists; with Ray Kappe, founder of Sci-Arc, for his numerous accomplishments and recognitions as an innovator in the field of architecture; and for its association with SCI-Arc, an important contributor to the cultural history of Santa Monica and its contribution to architecture worldwide, the utilitarian industrial building does not adequately represent the symbolism associated with John F. Drescher, Ray Kappe, and SCI-Arc. • The building's interior and exteriors have been altered extensively since SCI-Arc relocated in 1992 and no longer contains characteristics that embody Ray Kappe's vision or Sci-Arc's ideology. • The City's consultant's report prepared by PCR Services Corporation notes that during a telephone interview, Ray Kappe agreed that a commemoration in the form of a plaque or kiosk would be the most appropriate consequence of Landmark designation and that the property is a utilitarian industrial building that is significant only for what occurred there when it was the home of SCI-Arc, but that there should be no impediment to its removal for new uses. Accordingly, the appellants state that the owner proposes to capture and enhance the property's 5 symbolism by installing and maintaining a prominent plaque or kiosk on the Nebraska Avenue sidewalk. • The Commission determined that the building is architecturally significant based on conjecture and speculation since this finding was not supported by the City's preservation consultant or by City staff. • The Commission conjectured that the building is a rare example of Bauhaus-style architecture without doing a full assessment of the structure's design, details, and physical integrity. • Although the building is of a certain period, as all structures are, the City's preservation consultant did not determine, and the Commission did not adequately show, that the building embodies distinguishing architectural characteristics or that it is a unique or rare example of an architectural design, detail or historical type that would be valuable to such a study. • The Commission did not take into consideration the following facts: the building was poorly constructed; has been significantly altered; is in poor condition and has significant terminate damage; and has been poorly maintained by previous owners. The City Council, in its review of this appeal, must determine whether an improvement satisfies one or more of the following criteria set forth in SMMC Section 9.36.100 in order to be designated as a Landmark: (1) It exemplifies, symbolizes, or manifests elements of the cultural, social, economic, political or architectural history of the City. (2) It has aesthetic or artistic interest or value, or other noteworthy interest or value. (3) It is identified with historic personages or with important events in local, state or national history. (4) It embodies distinguishing architectural characteristics valuable to a study of a period, style, method of construction, or the use of indigenous materials or craftsmanship, or is a unique or rare example of an architectural design, detail or historical type valuable to such a study. (5) It is a significant or a representative example of the work or product of a notable builder, designer or architect. 6 (6) It has a unique location, a singular physical characteristic, or is an established and familiar visual feature of a neighborhood, community or the City. Under the provisions of the Landmarks Ordinance, the City Council may grant the appeal or uphold the decision of the Landmarks Commission, in whole or in part, based upon these criteria. The City Council's review of this application is de novo. Appeal Analysis. Based on the full record to date, there is ample support for the two designation criteria related to association with the City's cultural history and with historic personages. However, based upon previous applications of the Criterion #4, staff does not concur that the subject property meets the standard for designation based on its architectural merit. Therefore, staff continues to recommend designation of the structure and parcel based only on Criteria #1 and #3. The following summarizes the basis for staff's determination: Designation Criteria that the Resource Meets Criterion #1: It exemplifies, symbolizes, or manifests elements of the cultural, social, economic, political or architectural history of the City The property at 3030-3060 Nebraska Avenue was constructed in 1951 for John F. Drescher, a noted Santa Monica developer and philanthropist. The vernacular light- manufacturing building became the initial home of the Southern California Institute of Architecture (SCI-Arc) upon the school's founding in 1972 through its departure in 1992 and, therefore, symbolizes the importance of SCI-Arc to the cultural history of Santa Monica. While located at the property for twenty years, SCI-Arc evolved from an experimental school to become one of America's premiere architectural academies based on a unique learning environment, anon-hierarchical structure, and a minimum of academic constraints. Since its founding in Santa Monica in 1972, SCI-Arc as an academic institution has 7 achieved worldwide prominence and acclaim; its educational innovations have continued to influence architectural schools locally, nationally, and internationally; and it has received numerous distinguished awards and identified with notable architects and educators. Accordingly, the subject property, through its twenty year association with SCI-Arc, has had a substantial, positive impact on Santa Monica's reputation as an incubator for innovation and excellence in architecture and education. The subject property and its setting also manifest the evolution of its broader industrial neighborhood in Santa Monica. It was initially constructed in 1951 for manufacturing and light industrial uses that reflected Santa Monica's post-war economy and the character of the surrounding area. Over time, the building evolved into aculturally- inventive space and housed uses that reflected the neighborhood's broader evolution from manufacturing to an emphasis on facilitating education, art and creative endeavors. For example, starting in 1972 with the founding of SCI-Arc, the subject building became associated with a bohemian arts community informally known as "Drescherville" located on a group of industrial properties in the immediate area with frontage on Nebraska Avenue, Berkeley Street, and Olympic Boulevard all owned by property developer John F. Drescher. For these reasons, and as further. detailed in Attachments B and C, the property exemplifies SCI-Arc's importance to the cultural history of Santa Monica and manifests an element aspect of the historical development and evolution of its broader industrial neighborhood. Therefore, the property meets this criterion for designation. Criterion #3: Identified with historic personages or with important events in local, state or national history 8 With respect to the Landmark Criterion #3, staff concurs with the Landmarks Commission's finding that Ray Kappe, FAIA, is a historic personage who has been widely recognized for his local, state, and nationally important contributions as the founder of SCI-Arc and its Director from 1972 through 1987. These fifteen years correspond to the time period when SCI-Arc was located at the subject property in Santa Monica and is reflective of the time period when Kappe achieved significance, recognition and acclaim as an architect and educator. Mr. Kappe is an internationally recognized and published architectieducator who has practiced architecture in the Los Angeles region since 1953. His work is considered to be an extension of the early Southern California master architects such as Rudolph Schindler and Richard Neutra, and. has had wide publication locally, nationally, and internationally. As an educator, Kappe led SCI-Arc's faculty, staff, and students with an unconventional architectural education system "promoting freedom of thought, opposing ideas, questioning, invention and concern for urban problems." During his tenure as Director of SCI-Arc, Kappe received numerous awards for recognition of his distinguished work as a designer and an educator. In 2006, Kappe received the President's Lifetime Achievement in Education Award at the National AIA Convention in Los Angeles, recognizing his educational achievements. The subject property at 3030-3060 Nebraska Avenue is identified with Kappe's productive life as an architect and educator and is directly connected to his significant achievements to Santa Monica and the field of architecture because he undertook his work at this location. Therefore, for these reasons and as further detailed in Attachments B and C, the subject property is eligible under Criterion #3. Designation Criteria that the Resource Does Not Meet: 9 Criterion #2: It has aesthetic or artistic interest or value, or other noteworthy interest or value. As a vernacular, utilitarian industrial building, the subject property does not articulate a particular or noteworthy concept of design sufficient enough to express an aesthetic ideal beyond that represented by other properties of the same type and style located in the City. Therefore, the subject property does not meet this criterion. Criterion #4: It embodies distinguishing architectural characteristics valuable to a study of a period, style, method of construction, or the use of indigenous materials or craftsmanship, or is a unique or rare example of an architectural design, detail or historical type valuable to such a study. Criterion #4 addresses the characteristics or attributes of a building and its architectural design. Staff interprets this criterion to require a high threshold of architectural distinction, which the property at 3030-3060 Nebraska Avenue does not embrace. The subject property is not a unique or rare example of an architectural design; it is a common, highly altered example of a vernacular, utilitarian industrial building constructed in 1951 as represented by surrounding industrial development in the immediate area. The property's concrete foundation, steel frame construction and sawtooth roof are typical characteristics of industrial manufacturing buildings that were ubiquitous in industrial areas in Santa Monica, Southern California, and the United States during the post-World War II period. While its horizontal window bands and unornamented exterior may be viewed as reflecting the influence of International Style Modernism, its stucco exterior is a later alteration, and its horizontal window bands are typical elements of International Style Modernism as applied to a vernacular industrial building of the era found in the immediate neighborhood and along Colorado Avenue in the City's Light Manufacturing and Studio District. Staff has conducted supplemental research in order to better evaluate the architectural significance of the subject building relative to other structures of the same era and type. 10 Based on this research, there are better local examples of the International/Modern style as applied to a vernacular industrial building that exhibit a higher level of physical integrity and are more architecturally distinctive. Three examples of such structures are located on the 1500 block of 12th Street, 15th Street, and 17th Street. There have been significant alterations that affect the building's physical integrity. For example, first and second floor fenestration and the main entrance area of the building's primary elevation have been modified in recent years such that it no longer exemplifies the type and style of a typical of the 1950s industrial buildirg. Detail of alteration to doorvvay on west elevation (left); Alteration to entrance on primary elevation (center); Replacement vinyl windows on primary elevation (right). 11 Primary elevation with altered windows on ground and second floors; altered primary entrance. Specifically, based on field inspection, it appears that original glass and frames have been replaced in many of the first and second floor windows and a majority of the window systems on the first floor level have been removed and replaced with vinyl sliders. Windows and doors on secondary and rear elevations have also been altered with the installation of inconsistent window and door systems. The building at 3030-3060 Nebraska does not reflect the use of indigenous materials or craftsmanship. It is a common example of typical utilitarian industrial warehouse constructed with a poured-concrete foundation and mass-produced building parts including steel supporting posts, steel trusses, and industrially processed lumber, industrially manufactured windows and corrugated metal sheeting. There are no unusual materials employed and the craftsmanship does not stand out from many other buildings of this era or reflect the hand of a master designer. Criterion #5: It is a significant or a representative example of the work or product of a notable builder,.designer orarchitect According to building permit records, there was no architect associated with the original design of the subject property constructed in 1851. Architect Otto Beyerle designed the nondescript penthouse addition constructed one year later. Owner John F. Drescher was identified as the building's contractor. There is no information suggesting that either Beyerle or Drescher were considered notable members of their respective professions. Therefore, the subject property does not meet this criterion. Criterion #5: Unique location, singular physical characteristic, or established and familiar visual feature The subject building is located on a typical street in its light industrial neighborhood consisting primarily of industrial, office, and studio spaces. The structure does not have a singular physical design characteristic, is not particularly prominent within its context to and is not an established visual feature of the neighborhood. Therefore, the property does not meet this criterion. 12 Conclusion In summary, as the founding location of SCI-Arc for twenty years, from its inception in 1972 to 1992, the subject property at 3030-3060 Nebraska Avenue symbolizes the school's importance to the cultural history of Santa Monica, and also manifests the evolution of its industrial neighborhood in Santa Monica. The property is also identified with the productive life of SCI-Arc founder and respected educator Ray Kappe. More specifically, Kappe is an historic personage associated with the history of this academic institution, and whose contributions to architecture and education are directly connected with and associated to the subject property since he was SCI-Arc's founder and served as its director at the subject property from 1972 to 1987. Therefore, the building at 3030-3060 Nebraska Avenue is eligible for City Landmark designation pursuant to Criteria #1 and #3 and the parcel, commonly known as 3030-3060 Nebraska Avenue .(Santa Monica Lot 2 of Block 199) is eligible as a Landmark parcel in order to preserve, maintain, protect, and safeguard the Landmark building. The property does not, however, meet the threshold of architectural distinction necessary for designation pursuant to Criterion #4 as explained above. Furthermore, it has been altered extensively over the years and no longer embodies the characteristics that exemplify industrial buildings of the 1950s period. The existing stucco exterior is a later alteration, much of the glass in the window openings has been replaced, most of the windows on the first-floor level of the fapade have been removed and replaced with vinyl sliders, and nearly all of its door openings have been altered. While the subject building does not appear eligible for designation based on its architectural merit, the property embodies cultural and historical significance sufficient for Landmark designation. The additional comments provided by PCR Services and cited by the appellants addressing several potential ways to document and commemorate the history of the site, along with the summary of the telephone interview conducted with Ray Kappe, are not relevant to the determination of whether the property meets one or more of the designation criteria necessary for Landmark designation. 13 If the property is designated a Landmark pursuant to Criteria #1 and #3, any proposed alteration, restoration, construction, removal, relocation, demolition, in whole or in part, of or to the Landmark building or Landmark Parcel, including any installation of interpretive elements proposed to commemorate the site's history, would be reviewed for compliance with the Secretary of the Interior's Standards for the Treatment of Historic Properties and would be subject to review and approval by the Landmarks Commission pursuant to the criteria for issuance of a Certificate of Appropriateness contained in SMMC 9.36.140. 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 record: 1. Confirm the Landmarks Commission's decision to designate the building and parcel at 3030-3060 Nebraska Avenue as City Landmark based on Criteria #1, #3. and #4. 2. Deny the Landmark Designation application and reverse the Landmarks Commission's decision to designate the building and parcel at 3030-3060 Nebraska Avenue as City Landmark. Environmental Analysis The project is categorically exempt from the provisions of California Environmental Quality Act (CEQA) pursuant to 15331, Class 31 of the State Implementation Guidelines in that the project consists of designating a property as a Landmark thereby aiding in the preservation of a historic resource 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. The project is also exempt pursuant to CEQA Guidelines Section 15061(b)(3). Section 15061(b)(3) provides that CEQA only applies to those projects that have the potential for causing a significant effect on the environment. Since the proposed action would result in the retention of the existing structure and would not 14 change the existing environmental baseline, there is no potential that the project would cause a significant effect on the environment. Public Outreach The public notice for this hearing was published at least 10 days prior to the hearing in the Santa Monica Daily Press and mailed to all property owners and occupants within 300 feet of the subject property. Financial Impacts & Budget Actions The recommendation presented in this report does not have any budgetary or fiscal impact. Prepared by: Roxanne Tanemori, AICP, Senior Planner Approved: Forwarded to Council: ~~~~~ ~~ ~ Eileen P. Fogarty Director, Planning and Community Development Attachments A. Appellants' Appeal Statement and Supplemental Statement B. Draft City Council Statement of Official Action C. Landmarks Commission Statement of Official Action, February 11, 2008 D. Landmarks Commission Staff Reports and Attachments, February 11, 2008 E. Excerpt of Landmarks Commission Minutes, February 11, 2008 15 Additional documentation available in the City Clerk's Office.