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).
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• 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.
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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:
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• 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.
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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
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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.
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(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
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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
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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:
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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.
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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).
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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.
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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.
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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
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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
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Additional documentation
available in the City
Clerk's Office.