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CONSIDERATION OF CERTIFICATE OF APPROPRIATENESS FOR PROPOSED REHABILITATION OF THE PINE CENTER BUILDING LOCATED WITHIN THE UNIVERSITY PARK MASTER DEVELOPMENT PLAN AT 1204 NORTH GRANT STREET (P23-0264).
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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 Certificate of Appropriateness application on October 3, 2023, to rehabilitate an existing vacant building (Attachment A) within the University Park Master Development Plan (MDP), on a property zoned MX (Mixed Use) with a General Plan designation of Mixed Use, located at 1204 North Grant Street (herein referred to as “Project”). The subject building, also known as the Pine Center, was built in 1929 and is currently vacant.
The University Park Environmental Impact Report (EIR), which evaluated the MDP, was approved by the City Council on November 8, 2003. The EIR identified cultural resource impacts and provided mitigation measures (Attachment B). 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 (Attachment B) of the University Park EIR, as amended by P18-0505 (Attachment C), due to the Pine Center Building’s identification as a contributor to a potential historic district.
The Project would result in exterior alterations to the Pine Center Building conforming to the Secretary of Interior’s Standards for Rehabilitation. As a result, staff recommends that the Cultural Heritage Board (CHB) recommend issuance of a Certificate of Appropriateness.
DISCUSSION
Background
The Project is located within the University Park Master Development Plan (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 Pine Center - identified for retention by the MDP.
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 D), the Pine Center Building, originally called the “Curved Needle,” 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, did not appear to have any alterations, and that it was one of many Tudor Revival Style buildings on the site. Features of the building noted at the time include:
This stucco clad building is located on the southeastern corner of North Grant and East Rose Streets. The structure is a two-story building with a steep gable roof covered with tile. The north side of the roof has a hipped dormer with two attic vents. Large multi-paned windows create a symmetrical fenestration. The first-floor windows have awnings. 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. The building is irregular in plan with 6,192 square feet and appears to be in good condition.
As a contributor to a potential historic district, the Pine Center 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 Pine Center Building:
• Repainting existing plaster walls, trims, downspout, and gutters to a substantially similar colors to match the Spruce Center Building;
• Sawcut and remove the concrete walls below the existing first floor center windows on the east and west elevations to install steel sash double doors and side lights;
• Replacement of existing doors with steel sash doors and side lights;
• Replacement of all windows with steel sash window system; and
• Addition of new metal canopy with supports above the east elevation doors to match the Spruce Center Building.
Related site improvements consist of two (2) new adjacent accessible parking spaces and new pavement to create pedestrian pathways.
The requested Certificate of Appropriateness is subject to the following standards of review: (a) Stockton Municipal Code Section 16.220.060(G) (Certificate of Appropriateness Findings); (b) Secretary of Interior’s Standards for Rehabilitation and Guidelines for Rehabilitating Historic Buildings; and (c) University MDP, Section 6.4 (Historic Resources).
Staff Analysis
Certificate of Appropriateness Findings
The Board and applicable Review Authority shall enter the decision in writing with the findings of fact on which the decision is based. The certificates of appropriateness shall be approved, with or without conditions, only if all of the following findings of fact can be made. The issuance of the Certificate of Appropriateness would:
1. Designate, enhance, preserve, protect, restore, and perpetuate those historic districts, neighborhoods, sites, structures, and zones, which contribute to the aesthetic and cultural benefit of the City.
Finding: The proposed rehabilitation of the building does not conflict with the historic architectural features of the structure and its enjoyment. The Project preserves and restores key architectural features through repainting and replacement of doors, windows, and roof tiles.
2. Encourage public appreciation, knowledge, and understanding of, and a sense of identity with the City’s past.
Finding: The rehabilitation of the vacant building would encourage the use of the building which would allow for an increase in the utilization, awareness, and appreciation of the Pine Center.
3. Foster civic and neighborhood pride in the accomplishments and beauty of the past.
Finding: The proposed work seeks provide maintenance of the contributing resource structure to avoid further deterioration of the building.
4. Stabilize and improve the economic value of historic districts, neighborhoods, sites, structures, and zones.
Finding: The investment into the improvement of the structure’s features improves the value of the property and promotes the economic retention and value of the district.
5. Help preserve the diverse architectural design and styles that reflect phases of the City’s history and encourage complementary design and construction.
Finding: The Project will preserve the Tudor architectural design and style that reflect phases of the City’s history and conforms to the Secretary of Interior’s Standards for Rehabilitation.
6. Promote and encourage continued private ownership and utilization of structures currently owned and used.
Finding: The Project will result in the safe utilization of the structure and continued private ownership.
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 Master Development Plan is to transition the site to new uses. The Project would result in an office use occupying the Pine Center Building which results in minimal change to its character-defining features. The related construction of a parking lot and pedestrian paths are addressed in the University Park Master Development Plan.
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 Pine Center Building with minimal alteration to accommodate a new use. Proposed alterations retain all character-defining features, including the use of new multi-paned windows. The alteration resulting from new doors does not alter the ability of the Pine Center 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 to the structure with the potential to result in false historicism. The Project retains the character-defining features of the building noted in the circa 1999 survey. The symmetrical fenestration pattern of the windows and doors noted in the survey will be retained with the proposed replacement windows and doors. The existing clay tile roof will be preserved with repairs to the broken tiles.
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 Pine Center Building noted in the circa 1999 survey persist. The awnings on the first floor of the building, as illustrated in the 1999 survey, no longer exist. However, there have been no identifiable structural 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 Pine Center Building noted in the circa 1999 survey. The 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 windows openings and places new windows within them, except for four new doors on the first floor. The symmetrical aspect of the fenestration system is a noted character-defining feature, and the new windows and doors retain that. The Project will 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.
The existing Spanish roof tiles will be cleaned with a minor power wash. No scrubbing or chemicals will be used to clean the roof tiles.
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 4.3-1 (Attachment B) 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 enables interpretation of the Pine Center 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 and pavement additions would not impair the Pine Center Building in any way.
University Park MDP
The University Park MDP includes succinct guidelines for the rehabilitation of historic resources 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 by installing additional entrances to the building and pathways from the sidewalk to each building entrance.
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 large multi-paned windows, Spanish tile roofing, and plaster walls. The new storefront doors will complement the material and style of the windows.
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 Stockton Municipal Code Section 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 Review (EIR) certified by City Council on November 8, 2003, via Resolution No. 03-0694, and as amended by P18-0505 (State Clearinghouse #2002062002). In P18-0505, the City determined that an addendum to Mitigation Measure 4-3.3 of the University Park EIR and Mitigation, Monitoring and Reporting Program (MMRP), to remove the requirement to submit to the State Historic Preservation Office (SHPO) for review and replace with the review procedures in SMC Section16.220.060 (Certificate of Appropriateness), was sufficient mitigation to review and approve changes to contributing resources in the University Park area.
Votes Required
A majority vote of the board is required in order to recommend issuance of a Certificate of Appropriateness.
Attachments
Attachment A - Project Plans
Attachment B - Mitigation Measure 4.3
Attachment C - Addendum to Mitigation Measure 4.3-3 (P18-0505)
Attachment D - Department of Parks and Recreation 523 for Curved Needle - Building 015
This report was prepared by Savannah Hudson, Assistant Planner, (209) 937-8267; savannah.hudson@stocktonca.gov.