HomeMy WebLinkAboutItem 05 - Historic Significance Determination for 1013 Ella & 2028 Jennifer
Figure 1: Subject Property (1013 Ella)
Department Name: Community Development
Cost Center: 4003
For Agenda of: October 22, 2019
Placement: Consent
Estimated Time: N/A
FROM: Michael Codron, Community Development Director
Prepared By: Walter Oetzell, Assistant Planner
SUBJECT: HISTORIC SIGNIFICANCE DETERMINATION FOR A CONTRIBUTING
LIST PROPERTY AT 1013 ELLA STREET AND 2028 JENNIFER STREET
RECOMMENDATION
As recommended by the Cultural Heritage Committee (CHC), adopt a Resolution
(Attachment A) determining that the structure at 1013 Ella does not meet eligibility criteria for
listing as an Historic Resource and removing the property from the Contributing Properties List
of Historic Resources.
DISCUSSION
The owner of the property at 1013 Ella Street
has applied for a determination of historical
significance of the property, and requests that
the property be removed from the City’s
Inventory of Historic Resources, as provided in
§ 14.01.060 (C).
Site and Setting
The property is a residential parcel at the western end of Ella Street, at its intersection with
Jennifer Street, about 225 feet south of the Jennifer Street bridge across the Union Pacific
Railroad right-of-way (Attachment B). It lies within the East Railroad area, a neighborhood
dating back to the 1880’s and closely related to the growth of the Southern Pacific Railroad in
San Luis Obispo. Though the area exhibits a concentration of architecturally and historically
important homes, it has not, to date, been established as an Historical Preservation District.
The site is developed with two single-family dwellings: the primary dwelling, built around 1920
(see Figure 1), described in City records as Craftsman in style, and a small dwelling at the
Jennifer Street frontage, built in 1948. The “Jennifer Street” building does not have significance
as a historic resource and is not the subject of this application; the architect of the building is
unknown. Historic Survey file records (Attachment C)1 provide limited architectural information
about the property, noting stucco siding and gable roof.
1 CDD Historic Property Record (“Yellow File”) for 1013 Ella St.
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Historic Listing
Historic preservation policies are set out in the Conservation and Open Space Element (COSE)
of the City’s General Plan. Significant historic and architectural resources are to be preserved
and rehabilitated, and their demolition, or substantial change to them, is to be avoided (COSE
§ 3.3). The City’s Historic Preservation Ordinance (SLOMC Ch. 14.01) implements these
policies.
Property may be designated as a Contributing List Resource where buildings or other resources
maintain their historic and architectural integrity, meet one or more historic significance criteria,
and contribute, 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.2
In 2007, this property was added to the City’s Inventory of Historic Resources as a Contributing
List Resource (Attachment D) as part of a group of 25 properties in the area added to the
Inventory “due to their historical or architectural significance to their neighborhood and to the
community.” No further findings about the significance of the property were set out in the
resolution.
EVALUATION
Two documents discussing the property’s history and historical and architectural characteristics
were submitted with this application (see Attachments E and F)- A “property history”3 prepared
by Betsey Bertrando and a “significance evaluation”4 prepared by James Papp, PhD, a historian
and architectural historian. Both reports discuss the history of the property, including interesting
and notable people and times, but do not identify significant associations with singularly
important persons or events that would serve as a basis for historical listing. The Papp evaluation
notes the compromised historical integrity of the primary dwelling, resulting from alterations
over its history, and concludes that the building lacks “the attention to purity or integrated
expression of the Craftsman style, either in overall conception or detail work, that would qualify
it” for inclusion in City’s Inventory of Historic Resources.5
Criteria for Historic Resource Listing
In order to be eligible for historical designation, a resource must exhibit a high level of historic
integrity and satisfy at least one of the evaluation criteria listed in § 14.01.070 of the City’s
Historic Preservation Ordinance. The Ordinance also provides that, while it is the general intent
that property is not removed from historic listing, property may be removed if it is found to no
longer meet eligibility criteria for listing (§ 14.01.060 (C)). In evaluating the historic significance
of the property, the CHC considered whether, and to what degree, the property satisfies these
criteria. For convenience, these criteria have been provided for reference as Attachment G to this
report. The following sections are a summary of the assessment of the historical status of 1013
Ella, as provided in the Historic Property Evaluations prepared for the property.
2 See Historic Preservation Ordinance § 14.01.020 for definition of Contributing List Resource or Property
3 Bertrando, Betsy (2019). The Albert Robert Fulton House
4 Papp, James (2019). Evaluation of the Historic Architectural Significance of 1013 Ella Street
5 Ibid. § 10 (B), pg. 14
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Architectural Criteria (§ 14.01.070 (A))
Style and Design. The primary dwelling on the property is described as Craftsman in style. The
Craftsman style stressed simplicity of design, hand-craftsmanship, and the relationship to the
climate and landscape. Several character-defining features of the style are described in the City’s
Historic Context Statement (Attachment H), and the style is fully discussed in Section 4 of the
Papp report, along with representative local examples. While the dwelling exhibits some of these
features, such as horizontal massing and a gabled roof, it does not embody6 the characteristics of
the style in a successfully integrated manner. For example, the form and dimension of the porch,
porch uprights, knee bracing, window surrounds, and similar elements depart from those
characteristics of the Craftsman style. Many much better examples of this style exist in the
neighborhood and throughout the City, as shown in Sections 6 and 7 of the Papp report.
Architect. Both submitted reports include a history of the property, with no architect identified
for the dwelling, and the property owner A.R. Fulton named as the contractor. A. R. Fulton was
not known as a notable architect or builder.
Historic Criteria (§ 14.01.070 (B))
Person. The history of the property, including its owners and occupants over time, is described in
both submitted reports. Though several of these people were participants in the broad patterns of
local history, and likely were interesting individuals, none are shown to have been prominent in,
or to have made unique or distinctly outstanding contributions significant to, local, state, or
national history.
Event and Context. Though the property is in the East Railroad Area, an area closely associated
with the growth of the railroads in San Luis Obispo, there is no evidence that this pro perty was
associated with any famous or “first-of-its-kind” event or with a notably important, unique, or
distinctly interesting contribution to the City. Nor does the property constitute a prime
illustration of, or intimate connection with, the growth of the railroads, rising to a level of
historical significance.
Integrity (§ 14.01.070 (C))
As discussed in Section 10 of the Papp evaluation, the integrity of the building has been
diminished by modifications made to it, including a utility and staircase extension, a likely
addition to the north façade, alteration of rafters and beams, and modifications to the porch that
obscure its original form and the windows within.
Previous Advisory Body Action
On September 23, 2019 the CHC reviewed the request and recommended that the City Council
remove the property from the Contributing Properties List of Historic Resources.
Policy Context
The recommended action on this item is supported by historical preservation policies set out
section 3.0 of the Conservation and Open Space Element of the City’s General Plan, and with
procedures and standards for listing of historic resources set out in §§ 14.01.060 & 14.01.070 of
the City’s Historic Preservation Ordinance.
6 Ibid, § 3, pg. 3 referencing the dictionary definition: “to make concrete and perceptible.”
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Public Engagement
Public notice of this hearing has been provided to owners and occupants of property near the
subject site, and published in a widely circulated local newspaper, and hearing agendas for this
meeting have been posted at City Hall, consistent with adopted notification procedures for
development projects.
ENVIRONMENTAL REVIEW
Consideration of continued eligibility of this property for historic listing is exempt from the
provisions of the California Environmental Quality Act (CEQA), as it is does not have the
potential for causing a significant effect on the environment, and so is covered by the general
rule described in CEQA Guidelines § 15061 (b) (3). The determination of continued eligibility
for historic listing is limited to review of whether the subject site remains eligible for historic
resource listing according to the criteria set forth in the City’s Historic Preservation Ordinance
FISCAL IMPACT
Budgeted: No Budget Year: 2019
Funding Identified: No
Fiscal Analysis:
Funding
Sources
Total Budget
Available
Current Funding
Request
Remaining
Balance
Annual
Ongoing Cost
General Fund $0 $0 $0 $0
State 0 0 0 0
Federal 0 0 0 0
Fees 0 0 0 0
Other: 0 0 0 0
Total $ $ $0 $0
The project will have no fiscal impacts since the property is not currently eligible for historic
preservation benefits (i.e. Mills Act) and the historic designation of the property has no bearing
on City fiscal resources.
ALTERNATIVES
1. Maintain 1013 Ella on the City’s Inventory of Historic Resources, based on findings that
satisfy the criteria for Historic Resource Listing set out in the City’s Historic Preservation
Ordinance.
2. Continue the item for additional information or discussion.
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Attachments:
a - Draft Resolution
b - Vicinity Map
c - Historical Preservation Record
d - Council Resolution 9875 (2007)
e - Albert Robert Fulton House (Bertrando)
f - Evaluation of Historic Architectural Significance (Papp)
g - Evaluation Criteria
h - Craftsman Style (Context Statement)
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R ______
RESOLUTION NO. _____ (2019 SERIES)
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF SAN LUIS
OBISPO, CALIFORNIA, REMOVING THE PROPERTY AT 1013 ELLA
STREET AND 2028 JENNIFER STREET FROM THE CONTRIBUTING
PROPERTIES LIST OF HISTORIC RESOURCES (HIST-0337-2019)
WHEREAS, the applicant, Bill Reeves, submitted on May 23, 2019, an application to
remove the property located at 1013 Ella Street and 2028 Jennifer Street (“the Property”) from the
Contributing Properties List of Historic Resources (HIST-0337-2019); and
WHEREAS, the Cultural Heritage Committee of the City of San Luis Obispo conducted
a public hearing in the Council Hearing Room, Room 9, of City Hall, 990 Palm Street, San Luis
Obispo, California on September 23, 2019 to consider the application, and recommended that the
City Council remove the Property from the Contributing Properties List of Historic Resources; and
WHEREAS, the City Council of the City of San Luis Obispo conducted a public hearing
in the Council Chamber of City Hall, 990 Palm Street, San Luis Obispo, California on October 22,
2019 for the purpose of considering removal of the Property from the Contributing Properties List
of Historic Resources; and
WHEREAS, notices of said public hearings were made at the time and in the manner
required by law; and
WHEREAS, the City Council has duly considered all evidence, including the record of
the Cultural Heritage Committee hearing and recommendation, testimony of the applicant and
interested parties, and the evaluation and recommendations by staff presented at said hearing.
NOW, THEREFORE, BE IT RESOLVED by the Council of the City of San Luis Obispo
as follows:
SECTION 1. Findings. Based upon all the evidence, the Council makes the following
findings:
a) The property is not historically significant under the Architectural Criteria set out in
§ 14.01.070 (A) of the City’s Historic Preservation Ordinance. Modifications to the
primary structure on the property have diminished the ability of the building to convey
a pure form of its architectural style. The building is not a rare example of the
Craftsman style, nor does this style represent a particular social milieu or period of the
community, as it was widely popular in the region and across the country during the
early 20th Century. The building does not exhibit any particular expression of artistic
merit, details, or craftsmanship. No significant architect is associated with the building.
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Resolution No. _____ (2019 Series) Page 2
b) The property is not historically significant under the Historic Criteria set out in
§ 14.01.070 (B) of the City’s Historic Preservation Ordinance. The property is not
associated with persons significant to the community as public leaders, public servants,
famous persons, or persons making outstanding contributions to local affairs or
institutions, whose contributions stand above other active and successful persons of the
era. It was not associated with any landmark, famous, or first-of-kind event or unique,
important, or interesting contribution to the City. It is associated with ongoing
residential development of the City, but not with early, first, secondary, or major
patterns of local history.
c) The removal of the property from the City’s Contributing Properties List of Historic
Resources is consistent with the Historic Preservation Ordinance because the buildings
on the property lack significance within the historical contexts addressed by the
Evaluation Criteria for Historic Resource Listing set out in § 14.01.070 of the City’s
Historic Preservation Ordinance. The eligibility of the property for inclusion in the
California Register of Historical Resources and in the City’s Inventory of Historic
Resources has been formally evaluated by an architectural historian. As described in
Historical Resource Evaluations prepared for the property, the primary structure on the
property does not appear eligible for inclusion in the California Register, and the
evaluation supports the conclusion that the property is not a candidate for inclusion on
the City’s Inventory, and is not a historical resource for the purposes of the California
Environmental Quality Act (CEQA).
SECTION 2. Environmental Review. Consideration of continuing eligibility of this
property for historic listing is exempt from the provisions of the California Environmental Quality
Act (CEQA), as it is does not have the potential for causing a significant effect on the environment,
and is covered by the general rule described in CEQA Guidelines §15061(b)(3).
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Resolution No. _____ (2019 Series) Page 3
SECTION 3. Action. The City Council of the City of San Luis Obispo does hereby
determine that the structures located on the Property do not meet eligibility criteria for listing as
Historic Resources and removes the Property from the Contributing Properties List of Historic
Resources.
Upon motion of Council Member __________, seconded by Council Member _________,
and on the following roll call vote:
AYES:
NOES:
ABSENT:
The foregoing resolution was adopted this ______ day of ________________, 2019.
____________________________________
Mayor Heidi Harmon
ATTEST:
____________________________________
Teresa Purrington
City Clerk
APPROVED AS TO FORM:
_____________________________________
J. Christine Dietrick
City Attorney
IN WITNESS WHEREOF, I have hereunto set my hand and affixed the official seal of the City
of San Luis Obispo, California, this ___________ day of ____________________, ___________.
____________________________________
Teresa Purrington
City Clerk
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ATTACHMENT 1
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ATTACHMENT 1
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RESOLUTION NO. 9875 (2007 Series)
A RESOLUTION OF THE COUNCIL OF THE CITY OF SAN LUIS OBISPO
ADDING PROPERTIES LOCATED AT 1342 BRECK STREET; 1013, 1015, 1240, 1255,
1265, 1345 #17 ELLA STREET; 1672 FAIRVIEW STREET; 1043,1127, 1205, 1215, 1234,
1236 GEORGE STREET; 1136, 1139, 1140,1204 IRIS STREET; 1985, 2105 JOHNSON
AVENUE; 907, 2056 RACHEL STREET; 1908 RUTH STREET; AND 2006, 2033
SWAZEY STREET TO THE CONTRIBUTING PROPERTIES LIST OF HISTORIC
RESOURCES.
WHEREAS, in 1983 the City Council adopted Resolution No. 5197 establishing the
Master List of Historic Resources" and "Contributing Properties List" (collectively referred to as
Historic Resources "), along with procedures for adding properties to the listing; and
WHEREAS, on February 27, 2006, March 27, 2006, and November 27, 2006, following
such procedures the Cultural Heritage Committee held public hearings to consider recommending
to the City Council the addition of several properties in the City of San Luis Obispo to the
Contributing Properties List due to their historical and/or architectural significance to their
neighborhood and to the community; and
WHEREAS, at said meetings, the Cultural Heritage Committee reviewed the historical
documentation on the following properties and recommended that the City Council add these
properties to the Contributing Properties List of Historic Resources:
1. 1342 Breck Street
2. 1013, 1015, 1240, 1255, 1265, 1345 #17 Ella Street
3. 1672 Fairview Street
4. 1043, 1127, 1205, 1215, 1234, 1236 George Street
5. 1136, 1139, 1140, 1204 Iris Street
6. 1985, 2105 Johnson Avenue
7. 907, 2056 Rachel Street
8. 1908 Ruth Street
9. 2006 and 2033 Swazey Street
WHEREAS, this City Council considered this recommendation at an advertised public
hearing on February 20, 2007 pursuant to historic preservation guidelines established by Council
Resolution No. 6157 (1987 Series).
NOW THEREFORE BE IT RESOLVED by the Council of the City of San Luis Obispo
that based on the Cultural Heritage Committee's recommendation, documentation as described in
the Historical Resource Inventory for each property, on file in the Community Development
Department, public testimony, the staff report, and on the City's Historical Preservation Program
Guidelines the following:
R 9875
ATTACHMENT 4
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Resolution No. 9875 (2005 ries) O
Page 2
SECTION 1. Addition to Contributing Properties List. The following properties have been
found to contribute to the historic and architectural character of the City and to meet the criteria for
inclusion on the Contributing Properties List, and are hereby deemed Contributing Properties:
1. 1342 Breck Street
2. 1013, 1015, 1240, 1255, 1265, 1345 #17 Ella Street
3. 1672 Fairview Street
4. 1043, 1127, 1205, 1215, 1234, 1236 George Street
5. 1136, 1139, 1140, 1204 Iris Street
6. 1985, 2105 Johnson Avenue
7. 907, 2056 Rachel Street
8. 1908 Ruth Street
9. 2006, 2033 Swazey Street
SECTION 2. Environmental Determination. The City Council hereby determines that this
action is not a "project" as defined in Article 20 of the California Environmental Quality Act
CEQA) since it does not have the potential for resulting in a physical change in the environment,
and therefore, is not subject to environmental review requirements.
SECTION 3. Publish Revised Contributing Properties List. The Community Development
Director is hereby directed to amend the Contributing Properties List to include the properties listed
above and to publish revised historic resource listings for public distribution.
SECTION 4. Recording of Historic Properties. The City Clerk is hereby directed to record the
properties' historic designation with the County Recorder, pursuant to State Law.
On motion of Council Member Settle, seconded by Vice Mayor Mulholland and
on the following roll call vote:
AYES: Council Members Carter and Settle and Vice Mayor Mulholland
NOES: Council Member Brown and Mayor Romero
ABSENT: None
The foregoing resolution was passed and adopted this 20th day of February 2007.
ATTACHMENT 4
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Resolution No. 9875 (200'f-Series)
Page 3
F.160619
Audrey Hoop~
City Clerk
APPROVED AS TO FORM:
Jo a . Lowell
City Attorney
Mayor David F. Romero
ATTACHMENT 4
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Zoning, or remove the property from historic listing if the structure on the property no longer
meets eligibility criteria for listing, following the process for listing set forth herein.
14.01.070. Evaluation Criteria for Historic Resource Listing
When determining if a property should be designated as a listed Historic or Cultural Resource,
the CHC and City Council shall consider this ordinance and State Historic Preservation Office
(“SHPO”) standards. In order to be eligible for designation, the resource shall exhibit a high
level of historic integrity, be at least fifty (50) years old (less than 50 if it can be demonstrated
that enough time has passed to understand its historical importance) and satisfy at least one of the
following criteria:
A. 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.
(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. The relative purity of a traditional style;
b. Rarity of existence at any time in the locale; and/or current rarity although the
structure reflects a once popular style;
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.
(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. Notable attractiveness with aesthetic appeal because of its artistic merit, details and
craftsmanship (even if not necessarily unique);
b. An expression of interesting details and eclecticism among carpenter-builders,
although the craftsmanship and artistic quality may not be superior.
(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:
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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.
b. An architect who, in terms of craftsmanship, made significant contributions to San
Luis Obispo (e.g., Abrahams who, according to local sources, designed the house at
810 Osos - Frank Avila's father's home - built between 1927 – 30).
B. Historic Criteria
(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:
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. 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).
(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:
(i) A landmark, famous, or first-of-its-kind event for the city - regardless of whether
the impact of the event spread beyond the city.
(ii) 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).
(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:
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. Secondary patterns of local history, but closely associated with the building (e.g.,
Park Hotel).
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