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HomeMy WebLinkAboutItem 6a. Presentation on updates to Historic Preservation Ordinance and Historic Context Survey (Page and Turnbull)Cultural Heritage Committee April 22, 2024 City of San Luis Obispo Historic Context Statement and Historic Preservation Ordinance Update Study Session Typical Use What is a Historic Context Statement (HCS)? •Tool use to understand what properties are historically significant to specific theme → History of SLO •Identify and evaluate properties for listing on local register •Describes: •Which themes and property types are important to SLO history •What physical characteristics do these properties have? •Community planning & placemaking efforts •Applying for grant funding for projects •Development of school curriculum •Etc. How is it used? Broader Use Historic Context Statement Update Why is the update needed? •Provide summary of SLO’s history that is: •More accurate and well-rounded •Inclusive •Documents the histories and contributions of underrecognized communities •Integrates underrecognized histories into broad city history Historic Context Statement Update What topics do we plan to include? Underrecognized communities: •Native American (yak titʸu tutu yak tiłhini (ytt) Northern Chumash Tribe) •History, culture, language, lifeways •Beyond mission system Rosario Cooper, grandmother of yak titʸu yet yak tiłhini (1916) Historic Context Statement Update What topics do we plan to include? Underrecognized communities: •Chinese-American •Chinatown •Contributions to railroads, agriculture, other industries •Suppression/discrimination (Alien Land Laws, immigration laws) Ah Louis with family and unidentified people in front of the Ah Louis Store on Palm Street (ca. 1933-1936) Historic Context Statement Update What topics do we plan to include? Underrecognized communities: •Japanese-American •Japantown (Nihonmachi) at Higuera and Brooks streets •Contributions to railroads, agriculture, other industries •Suppression/discrimination (Alien Land Laws, immigration laws, WWII internment) Tameji Eto, one of founders of SLO’s Japantown (undated) Historic Context Statement Update What topics do we plan to include? Underrecognized communities: •African-American •WWII military service (Service Command Unit and 54th Coast Artillery Regiment) •Resettlement in Japantown •Commercial and residential patterns Members of the 54th Coast Artillery Regiment, dancing at the USO in San Luis Obispo. Historic Context Statement Update What topics do we plan to include? Underrecognized communities: •LGBTQ+ •Establishment of LGBTQ+ businesses and institutions •Marches and Pride parades •AIDS crisis 2117 Broad Street, formerly the Journey’s Inn and Metropolitan Community Church. Historic Context Statement Update What topics do we plan to include? •Broader history of underrecognized communities •Diversity of Spanish/Mexican settlements •What brought these peoples to SLO? •What forces suppressed them? •Where did they live and why? •Did they form neighborhoods of their own? Where and why? •What industries did they contribute to?Native American, white, and African American families listed in the 1870 census •Resource Categories •Level of significance and distinction between individual and district resources. •Designation Criteria •Simplify and clarify to align with best practices •Designation Process •Discuss if there’s a way to streamline. Historic Preservation Ordinance Update: Topics Issue: The current classifications of “Contributing List” and “Master List resource” do not communicate a clear difference in significance or protection between these two categories, and conflate properties which may be individually significant with district contributors. Recommendation: Establish definitions with clear differences between resources which are the most significant in the city, those which are eligible for listing on the inventory but aren’t necessarily of outstanding importance, and those which are contributors to designated historic districts. Historic Preservation Ordinance Update: Resource Categories Master List Resource (198 properties) “The most unique and important resources and properties in terms of age, architectural or historical significance, rarity, or association with important persons or events in the City’s past, which meet one or more of the criteria outlined in Section 14.01.070.” Contributing List Resources (562 properties) “Buildings or other resources at least 50 years old that maintain their original or attained historic and architectural character, and contribute, either by themselves or in conjunction with other structures, to the unique or historic character of a neighborhood, district, or to the City as a whole. They need not be located in a historic district. In some cases, buildings or other resources that are less than 50 years old, but are nonetheless significant based on architecture, craftsmanship or other criteria as described in Section 14.01.070 may be designated as a Contributing Resource.” Historic District (5 districts) Areas or neighborhoods with a collection or concentration of listed or potentially contributing historic properties or archaeologically significant sites, where historic properties help define the area or neighborhood’s unique architectural, cultural, and historic character or sense of place. Historic districts are delineated on the official zoning map as historic (H) overlay zone under Chapter 17.56. Historic Preservation Ordinance Update: Resource Categories Historic Preservation Ordinance Update Resource Categories: Individual Resources Individual Resources Most Significant Highest threshold for significance and integrity, and most stringent project review requirements. Significant Associated with significant events/people or good examples of architectural style/type. Proposed projects should not diminish integrity. Not Significant Formally evaluated and found not to be individually significant. No review for proposed project if not in a district. Not Evaluated If over 45 years old, may need to be evaluated for individual significance prior to a proposed project. Resource types in other cities include: Landmark, Historical Monument, Landmark Overlay, Class 1, etc. Comparable resource types in other cities include: Listed on Local Inventory, Structure of Merit, Historic Resource Overlay, Class 2, etc. Historic Preservation Ordinance Update Resource Categories: Historic Districts Historic District Contributors Non- Contributors May include:May include: Most Significant Significant Not Significant Not Evaluated Most Significant Significant Not Significant Not Evaluated •“A district possesses a significant concentration, linkage, or continuity of sites, buildings, structures, or objects united historically or aesthetically by plan or physical development.” (National Register Bulletin 15) •“The (H) designation may be applied to areas or neighborhoods with a collection or concentration of listed historic properties or archaeologically significant sites, or where historic properties help define an area or neighborhood’s unique architectural and historic character or sense of place.” (SLO HPO) •Typically includes contributing and non-contributing elements within its boundaries. • Proposed projects within a district, even those at properties which are not individually significant, may need review for potential impact to the district as a resource. •Properties within districts may be both individually significant, and a district contributor – or may be individually significant but not contribute to a district they’re located within. •Project review must assess the project’s potential impact to a property’s individual status and to the district as a resource. Individual Status District Status Historic Preservation Ordinance Update Resource Categories Single Resources Can Have Multiple Statuses A “most significant” resource, such as one listed on the Master List, can be within a district, but not be a contributor to that district. Historic Preservation Ordinance Update Resource Categories District Contributors May Not Be Individually Significant Within a district, some contributors may lack the significance or integrity to be individually listed resources. Historic Preservation Ordinance Update Resource Categories in San Luis Obispo Historic District Contributors Non- Contributors Significant? Most SignificantMaster List Resource (198 properties) Contributing List Resources (562 properties) Historic District (5 districts) ?Contributors? Questions: •Are all properties designated on the “Master List” analogous to “Landmarks?” Some? •In practice, how does the current approach to project review differ between “Master List” and “Contributing List” resources? Historic Preservation Ordinance Update Designation Criteria: Main Issues & Recommendations 1. Issue: The evaluation criteria in the HPO may be more detailed than needed. Recommendation: Simplify the criteria in the ordinance and move the supporting sub- categories, guidance, and examples to the Historic Context Statement. 2. Issue: Integrity is included in the City’s criteria for significance. This isn’t a criteria on its own, but a quality that a property which is significant under one of the evaluation criteria must possess to be eligible for listing. Recommendation: Revise the HPO to move Integrity from evaluation criteria to be a condition of eligibility. 3. Issue: San Luis Obispo’s evaluation criteria don’t explicitly distinguish between requirements for designation as a “master list” or “contributing list” property. Recommendation: Establish a clear difference in level of significance and/or integrity for the most significant resources. Historic Preservation Ordinance Update Designation Criteria: Issue 1 California Register of Historical Resources San Luis Obispo Historic Preservation Ordinance Criterion 1. It is associated with events that have made a significant contribution to the broad patterns of local or regional history, or the cultural heritage of California or the United States. B.2. History—Event. Associated with events that have made a significant contribution to the broad patterns of local or regional history or the cultural heritage of California or the United States. Historic event will be evaluated as a measure of: B.2.a. A landmark, famous, or first-of-its-kind event for the city—regardless of whether the impact of the event spread beyond the city. B.2. b. A relatively unique, important or interesting contribution to the city (e.g., the Ah Louis Store as the center for Chinese-American cultural activities in early San Luis Obispo history). B.3. History—Context. Associated with and also a prime illustration of predominant patterns of political, social, economic, cultural, medical, educational, governmental, military, industrial, or religious history. Historic context will be evaluated as a measure of the degree to which it reflects: B.3.a. Early, first, or major patterns of local history, regardless of whether the historic effects go beyond the city level, that are intimately connected with the building (e.g., County Museum). B.3.b. Secondary patterns of local history, but closely associated with the building (e.g., Park Hotel). The HPO includes 13 different evaluation criteria within three main groups according to which a property may be considered significant. These generally correspond to three of the four criteria for listing in the California Register of Historical Resources and National Register of Historic Places. The ordinance could be simplified by keeping the highest - level criteria description and including the subcategories and examples in the Historic Context Statement. California Register of Historical Resources San Luis Obispo Historic Preservation Ordinance Criterion 2. It is associated with the lives of persons important to local, California, or national history. B.1. History—Person. Associated with the lives of persons important to local, California, or national history. Historic person will be evaluated as a measure of the degree to which a person or group was: B.1.a. Significant to the community as a public leader (e.g., mayor, congress member, etc.) or for his or her fame and outstanding recognition—locally, regionally, or nationally. B.1.b. Significant to the community as a public servant or person who made early, unique, or outstanding contributions to the community, important local affairs or institutions (e.g., council members, educators, medical professionals, clergymen, railroad officials). Historic Preservation Ordinance Update Designation Criteria: Issue 1 The HPO includes 13 different evaluation criteria within three main groups according to which a property may be considered significant. These generally correspond to three of the four criteria for listing in the California Register of Historical Resources and National Register of Historic Places. The ordinance could be simplified by keeping the highest - level criteria description and including the subcategories and examples in the Historic Context Statement. California Register of Historical Resources San Luis Obispo Historic Preservation Ordinance Criterion 3. It embodies the distinctive characteristics of a type, period, region, or method of construction, or represents the work of a master or possesses high artistic values. Architectural Criteria. Embodies the distinctive characteristics of a type, period, region, or method of construction, or represents the work of a master, or possesses high artistic values. A.1. Style. Describes the form of a building, such as size, structural shape and details within that form (e.g., arrangement of windows and doors, ornamentation, etc.). Building style will be evaluated as a measure of: A.1. a The relative purity of a traditional style; A.1. b Rarity of existence at any time in the locale; and/or current rarity although the structure reflects a once popular style; A.1. c Traditional, vernacular and/or eclectic influences that represent a particular social milieu and period of the community; and/or the uniqueness of hybrid styles and how these styles are put together. A.2. Design. Describes the architectural concept of a structure and the quality of artistic merit and craftsmanship of the individual parts. Reflects how well a particular style or combination of styles are expressed through compatibility and detailing of elements. Also, suggests degree to which the designer (e.g., carpenter -builder) accurately interpreted and conveyed the style(s). Building design will be evaluated as a measure of: A.2.a. Notable attractiveness with aesthetic appeal because of its artistic merit, details and craftsmanship (even if not nec essarily unique); A.2.b. An expression of interesting details and eclecticism among carpenter-builders, although the craftsmanship and artistic quality may not be superior. A.3. Architect. Describes the professional (an individual or firm) directly responsible for the building design and plans of the structure. The architect will be evaluated as a reference to: A.3.a. A notable architect (e.g., Wright, Morgan), including architects who made significant contributions to the state or region, or an architect whose work influenced development of the city, state or nation. A.3.b. An architect who, in terms of craftsmanship, made significant contributions to San Luis Obispo (e.g., Abrahams who, ac cording to local sources, designed the house at 810 Osos—Frank Avila’s father’s home—built between 1927 – 1930). Historic Preservation Ordinance Update Designation Criteria: Issue 1 The HPO includes 13 different evaluation criteria within three main groups according to which a property may be considered significant. These generally correspond to three of the four criteria for listing in the California Register of Historical Resources and National Register of Historic Places. The ordinance could be simplified by keeping the highest - level criteria description and including the subcategories and examples in the Historic Context Statement. California Register of Historical Resources San Luis Obispo Historic Preservation Ordinance Criterion 4. It has yielded, or has the potential to yield, information important to the prehistory or history of the local area, California, or the nation. ? Historic Preservation Ordinance Update Designation Criteria: Issue 1 The HPO includes 13 different evaluation criteria within three main groups according to which a property may be considered significant. These generally correspond to three of the four criteria for listing in the California Register of Historical Resources and National Register of Historic Places. The ordinance could be simplified by keeping the highest - level criteria description and including the subcategories and examples in the Historic Context Statement. California Register of Historical Resources San Luis Obispo Historic Preservation Ordinance Integrity is a requirement for eligibility, not an evaluation criterion. “Integrity is the authenticity of a historical resource’s physical identity evidenced by the survival of characteristics that existed during the resource’s period of significance. Historical resources eligible for listing in the California Register must meet one of the criteria of significance described above and retain enough of their historic character or appearance to be recognizable as historical resources and to convey the reasons for their significance.” (Office of Historic Preservation Technical Assistance Series #6) Authenticity of a historical resource’s physical identity evidenced by the survival of characteristics that existed during the resource’s period of significance. Integrity will be evaluated by a measure of: C.1. Whether or not a structure occupies its original site and/or whether or not the original foundation has been changed, if known. C.2. The degree to which the structure has maintained enough of its historic character or appearance to be recognizable as a historic resource and to convey the reason(s) for its significance. C.3. The degree to which the resource has retained its design, setting, materials, workmanship, feeling and association. (Ord. 1557 § 3 (part), 2010) Historic Preservation Ordinance Update Designation Criteria: Issue 2 The HPO includes “integrity” as a criterion for evaluation, rather than a condition of eligibility. This may be corrected by rewording the ordinance to align with the California Register and National Register applications of integrity. What are the differences in protection and opportunity between “Master List” and “Contributing List” properties? A property must be designated on the “Master List” to be eligible for a Mills Act contract. What other incentives and protections are available to this level of designation? How do staff and the CHC distinguish between eligibility for “Master List” and “Contributing List” status when: •Nominating a property for designation? •Reviewing a proposed project at a designated property? Historic Preservation Ordinance Update Designation Criteria: Issue 3 The HPO defines the process for designating “Master List” and “Contributing List” properties: Historic Preservation Ordinance Update Designation Process CHC reviews application based on eligibility criteria CHC recommends listing to City Council Completed application, supporting evaluation Owner submits application What documentation required? CHC, ARC, PC, or CC request listing City Council acts to list Public hearing Notices to owner, public. Questions: •How long does this typically take, from beginning to end? •Does City Council hold a public hearing or take public comment? •How can this be streamlined? •Is there a desire in the CHC to consider affirmative owner consent prior to designation, a policy not to designate against explicit owner objection, or a process for public support of designation when owners object or do not consent? Historic Preservation Ordinance Update For Future Discussion •Historic Districts (clarifications in criteria, nomination requirements, and review procedures) •“Minor alterations” (define specific actions which may be exempt from review?) •Other questions / concerns in working with the HPO? Cultural Heritage Committee April 22, 2024