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CONSIDERATION OF A CERTIFICATE OF APPROPRIATENESS FOR PROPOSED REHABILITATION OF THE SPRUCE BUILDING LOCATED WITHIN THE UNVERSITY PARK MASTER DEVELOPMENT PLAN AT 1203 NORTH GRANT STREET
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RECOMMENDATION
Staff recommends that the Cultural Heritage Board recommend issuance of a Certificate of Appropriateness based on the findings and subject to the conditions herein.
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Summary
The applicant, WMB Architects, submitted a Site Plan Review, Design Review and Certificate of Appropriateness application (Attachment A) to rehabilitate an existing vacant building and to construct a 56-stall parking lot within the University Park Master Development Plan (MDP) located at 1203 N. Grant Street (herein referred to as “Project”). The subject building, also known as the Spruce Center, was built in 1929 and is currently vacant.
The Project is not a historic landmark nor is it located within a historic district. However, a Certificate of Appropriateness is required in accordance with Mitigation Measure 4-3.3 of the University Park Environmental Impact Report (EIR), certified on November 8, 2003, due to the Spruce Building’s prior identification as a contributor to a potential historic district.
On July 30, 2018, the Site Plan Review Committee forwarded an approval recommendation to the Community Development Director for the application, and, on August 8, 2018, the Architectural Review Committee also forwarded an approval recommendation to the Director. The Project would result in exterior alterations to the Spruce Building conforming to the Secretary of Interior’s Standards for Rehabilitation. Staff recommends that the Cultural Heritage Board (CHB) adopt a resolution recommending that the Community Development Director issue a Certificate of Appropriateness in accordance with Development Code §16.220.060(F), based on the findings and the conditions herein.
DISCUSSION
Background
The Project is located within the University Park MDP which consists of approximately 102-acres in the Midtown area of Stockton. Approved in 2003, the overall vision of the University Park MDP is to create a mixed-use development with a focus on providing education, employment, retail service, and residential opportunities. Implementation of the University Park MDP continues to this day in a flexible regulatory format accommodating both the retention and demolition of structures. The Project concerns exterior alterations to an existing structure - the Spruce Center - identified for retention by the MDP, including related construction of a parking lot.
Known as ‘Stockton Developmental Center’ or the ‘Stockton State Hospital,’ the MDP area began in 1853 as the Insane Asylum of California at Stockton. It was founded on land with ready access to the goldfields and which was donated by Captain Charles Weber, founder of Stockton. California's Legislature was convinced that the turbulence of the Gold Rush had caused many to suffer from mental problems, and that the existing hospitals were inadequate to cope with large numbers of people with mental and emotional conditions. Consequently, it authorized the establishment of the Stockton Hospital, the first public hospital in California to serve the mentally ill. California's mental hospital is one of the oldest in the west, and early on was recognized for its progressive forms of treatment.
According to a survey completed by Architectural Resources Group in 1999 (Attachment B), the Spruce Center is a contributor to a potential historic district under National and State eligibility criteria relating to associations with past events. The survey form notes the building was constructed for occupational therapy purposes, and did not appear to have any alterations or additions, and that it was one of many Tudor buildings on the site. Features of the building noted at the time include:
The building being similar in style to the Curved Needle building and is located on the west side of N. Grant Street. On the north side of the roof, at the gable end, there is a stucco-clad chimney crowned with terra cotta chimney pots. The building is clad with stucco. Large multi-paned windows create a symmetrical fenestration system. The main entrance is at the southern side of the building. The entrance is recessed into the building with large concrete blocks surrounding the opening. Above the entrance is a large multi-paned awning window with geometric plaster work. Several of the first-floor windows are covered with awnings. The building Is rectangular in plan with 6,120 square feet and appears to be in good condition.
As a contributor to a potential historic district, the Spruce Building is distinguished from other non-contributing structures in the MDP which do not add to this historic significance. The contributor status is further distinguished from resources with an individual status (e.g., local landmarks such as Doctor’s Row on Acacia Street in University Park) since its eligibility is based upon historic events and not architectural criteria (e.g., best surviving work in a region of a pioneer architect, designer or master builder).
Project Description
The Project includes the following proposed alterations to the Spruce Building:
• Repainting to a substantially similar color of ‘Adobe White’ with accent color of ‘Barwood’ (samples to be provided at meeting);
• Conversion of four (4) windows on the first floor to doors;
• Replacement of all windows with steel sash window system to address condensation; and
• Addition of new awnings above the west and east elevation doors.
Related site improvements consist of a new adjacent 56-space parking lot, connecting pedestrian pathway, and new patio to rear of building consisting of hardscape/landscape features.
The requested Certificate of Appropriateness is subject to the following standards of review: (a) Secretary of Interior’s Standards for Rehabilitation and Guidelines for Rehabilitating Historic Buildings; and (b) University MDP, Section 6.4 (Historic Resources).
Staff Analysis
Secretary of Interior’s Standards for Rehabilitation
The Secretary of Interior’s definition for rehabilitation, as a treatment, is 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 Standards are to be applied to specific rehabilitation projects in a reasonable manner, taking into consideration economic and technical feasibility. Staff’s analysis of the Project under each standard is provided in italics below:
1. A property shall be used for its historic purpose or be placed in a new use that requires minimal change to the defining characteristics of the building and its site and environment.
The general historic purpose of the Insane Asylum of California at Stockton is no longer relevant and the underlying purpose of the University Park MDP is to transition the site to new uses. The Project would result in an office use occupying the Spruce Building and which results in minimal change to its character-defining features. The related construction of a parking lot and pedestrian paths was contemplated by the University Park MDP.
2. The historic character of a property shall be retained and preserved. The removal of historic materials or alteration of features and spaces that characterize a property shall be avoided.
The Project retains all primary aspects of the Spruce Building with minimal alteration to accommodate a new use. Proposed alterations retain all character-defining features, including through the use of new multi-paned windows. The alteration resulting from new doors does not alter the ability of the Spruce Building from being interpreted in its historic context.
3. Each property shall 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 architectural elements from other buildings, shall not be undertaken.
The Project excludes alterations with the potential to result in false historicism.
4. Most properties change over time; those changes that have acquired historic significance in their own right shall be retained and preserved.
The features of the Spruce Building noted in the circa 1999 survey persist. There have been no identifiable exterior changes since the period of significance (i.e., 1929) that would trigger the need for review under this finding due to the current Project.
5. Distinctive features, finishes, and construction techniques or examples of craftsmanship that characterize a property shall be preserved.
The Project retains all character-defining features of the Spruce Building noted in the circa 1999 survey. Proposed replacement windows retain and convey symmetrical fenestration pattern noted.
6. Deteriorated historic features shall be repaired rather than replaced. Where the severity of deterioration requires replacement of a distinctive feature, the new feature shall match the old in design, color, texture, and other visual qualities and, where possible, materials. Replacement of missing features shall be substantiated by documentary, physical, or pictorial evidence.
The Project retains existing window openings and places new windows within them, except for four new doors at the first floor. The symmetrical aspect of the fenestration system is a noted character-defining feature and the new windows/doors retain that. The Project would retain the existing clay tile roof yet repair broken tiles. No other historic features are altered by the Project.
7. Chemical or physical treatments, such as sandblasting, that cause damage to historic materials shall not be used. The surface cleaning of structures, if appropriate, shall be undertaken using the gentlest means possible.
This finding is not applicable to the current Project.
8. Significant archeological resources affected by a project shall be protected and preserved. If such resources must be disturbed, mitigation measures shall be undertaken.
The potential for accidental discovery of archaeological resources is already contemplated by the University Park EIR, and the Project is subject to Mitigation Measure 4.3-4 ensuring appropriate treatment if they are discovered.
9. New additions, exterior alterations, or related new construction shall not destroy historic materials that characterize the property. The new work shall be differentiated from the old and shall be compatible with the massing, size, scale, and architectural features to protect the historic integrity of the property and its environment.
The Project retains the distinctive architectural features of the Tudor style structure and which enable interpretation of the Spruce Building in relation to the historic context of the broader University Park. Differentiation of new/old features is not relevant to the application.
10. New additions and adjacent or related new construction shall 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.
Removal of the Project’s parking lot component would not impair the Spruce Building in any way.
University Park MDP
The University Park MDP includes succinct guidelines for the rehabilitation of historic resources and which supplement the Secretary of Interior’s Standards noted above. Staff’s analysis of the Project under Section 6.4 (Historic Resources) is provided in italics below:
1. Any rehabilitation or addition to an existing building shall enhance the pedestrian activity and scale of the buildings’ use.
The Project’s rehabilitation enhances pedestrian activity, specifically from the parking lot to the building as well as the pathway from the sidewalk to the front entrance of the building. Additionally, a new patio area will be installed to enhance the site and building’s use.
2. Any rehabilitation or addition to an existing building shall preserve and protect, to the extent possible, the significant architectural detailing and materials present on the building.
The rehabilitation of the Project preserves and protects the architectural detailing and materials present on the building by maintaining the Tudor architectural features such as elaborate patterned doorways, the Spanish roof tiling, and grouped windows framed in metal.
3. Renovation and restoration of structure of historic significance should follow The Secretary of the Interior’s Standards for the Treatment of Historic Properties and associated Guidelines for Preserving, Rehabilitating, Restoring, and Reconstructing Historic Buildings, published by the U.S. Department of the Interior, National Park Service.
As analyzed above, the Project complies with The Secretary of Interior’s Standards for Rehabilitation and associated Guidelines.
Public Comments
Per Development Code §16.220.060(C)(3) (Noticing for Certificate of Appropriateness), a public notice or hearing shall not be required for the Review Authority’s action on a Certificate of Appropriateness.
Environmental Clearance
This application is consistent with the project analyzed in the University Park Environmental Impact Report (EIR) certified by City Council on November 8, 2003 via Resolution No. 03-0694. Mitigation Measures approved with the EIR reduce potentially significant environmental effects below the threshold of significance, and those mitigation measures continue to apply to this application as conditions of approval, as provided in the attached resolution. No additional environmental review is required since: (a) there have been no substantial changes to the project; (b) there have been no substantial changes to the circumstances under which the project is being undertaken; and (c) there is no new information, which was not known and could have been known at the time the EIR was certified, that has become available.
Votes Required
A majority vote of the board is required in order to recommend that the Community Development Director issue a Certificate of Appropriateness.
Attachments
Attachment A - Application Submittal
Attachment B - Spruce Center Survey