Title
PLN19-0385 - Alameda Marina Certificate of Approval - 1815 Clement Avenue, Alameda Marina - Applicant: Pacific Shops, Inc. Public hearing to consider the Rehabilitation Plan for existing contributing buildings #15, 16, 17, 19, and 27 and non-contributing building #18 in the Alameda Marina Historic District at the Alameda Marina site, and consideration of Certificate of Approval for the demolition of non-contributing building #14, and potential demolition/reconstruction of contributing building 21 and non-contributing buildings #5, 13, 25, and 26 to facilitate shoreline rehabilitation under the approved Alameda Marina Master Plan. The environmental effects of the proposed project were considered and disclosed in the Alameda Marina Master Plan EIR (State Clearinghouse #2016102064). No further environmental review is required under the California Environmental Quality Act (CEQA)
Body
To: Chair Saxby and
Members of the Historical Advisory Board
From: Allen Tai,
Secretary to the Historical Advisory Board
BACKGROUND
On July 6, 2017, the Historical Advisory Board (Board) designated seventeen buildings located at Alameda Marina, Buildings 1, 4, 6, 12, 15, 16, 17, 19, 21, 22, 27, 28, 29, 31, 32, 33, 34, and the graving dock as contributing buildings and features to the Alameda Marina Historic District. Three buildings (Buildings 16, 19, and 27) have been determined to be individually eligible for the National Register of Historic Places.
On July 10, 2018, the City Council certified the Alameda Marina Master Plan Environmental Impact Report (EIR) and on July 24, 2018, approved the Alameda Marina Master Plan for mixed use development and major rehabilitation of the shoreline. As part of approving the Alameda Marina Master Plan and certifying the EIR, the City Council made a conscious decision to facilitate the demolition of a number of existing buildings to allow for buildout of the Alameda Marina Master Plan.
On April 4, 2019, the Board approved a Certificate of Approval for the demolition of 24 of the 37 buildings on the Alameda Marina site, which includes the demolition of 11 contributory buildings (Buildings 1, 4, 6, 12, 22, 28, 29, 31, 32, 33, and 34) and 13 non-contributory buildings (Buildings 2, 3, 7, 8, 9, 10, 11, 20, 23, 24, 35, 37, and 39). The Board also approved an interpretive signage and history walk program according to the mitigation measures required under the EIR.
The applicant currently requests the Board approve:
1) Rehabilitation Plan for contributing buildings 15, 16, 17, 19, 27 and non-contributing building 18
2) Certificate of Approval for demolition of contributing building #21 (for gate house re-creation), and demolition of non-contributing building #14 and potential demolition/reconstruction of non-contributing buildings #5, 13, 25, and 26 for shoreline rehabilitation
The applicant has submitted plans for the above depicting existing buildings and proposed changes (Exhibit 1). The Alameda Marina Master Plan and the Historic Resources Evaluation report, which provided historical background information on individual buildings on the site are available on the City website at: <http://www.alamedaca.gov/Departments/Planning-Building-and-Transportation/Planning-Division/Major-Planning-Projects>
A copy of the Mitigation Monitoring and Reporting Program from the EIR, which lists the required environmental mitigation measures to be implemented by the Alameda Marina project is provided as Exhibit 2.
DISCUSSION
Rehabilitation Plan
Since April 4, 2019, the applicant has continued to work on feasibility studies and the design for rehabilitating the remaining buildings on the Alameda Marina site. Pursuant to the Mitigation Measure CUL-1a under the EIR, any alteration and rehabilitation work to the exteriors of the existing National-Register eligible buildings 16, 19, and 27 must meet the Secretary of the Interiors Standards, if feasible. The applicant is therefore requesting Board review of the Rehabilitation Plan for buildings 16, 19, and 27, as well as other remaining buildings 15, 17, and 18.
Building 16, 1829 Clement Avenue, 1940, National Register Eligible
Building 16 was built in 1940 as General Engineering & Dry Dock’s administration building. The building is a two-story, wood-frame, stucco-clad office building with a concrete slab foundation and a flat roof. The exterior of the building is the most elaborate and intact of any building on the property. Its original main entrance contains a pair of single-panel, glazed wood doors with brass hardware and sidelights. Designed in the Streamline Moderne style, the exterior is divided into horizontal bands by stucco relief moldings. Few alterations have been made to the building except for double-hung vinyl replacement windows and stairs to the second floor on the east elevation.
The applicant proposes to replace the non-original stairs on the east elevation, which extend away from the building, with new stairs running along the side of the building. Plans also include relocating existing electrical meters mounted on the front elevation and accessible ramp upgrades on the back side. These improvements will enhance the appearance of this National Register-eligible historic building.
Building 19, 1827 Clement Avenue, 1941-42, National Register Eligible
Building 19 is a three-story, steel-frame, corrugated iron-clad shop with a concrete slab foundation and a gable roof. The building was built in 1941-42 and retains a high degree of integrity from the World War II period. The building features multi-lite steel industrial windows arranged in nearly continuous bands. The building has several steel, hollow-core man doors and several metal roll-up freight doors along its first floor level. Building 19 is the largest of the industrial buildings surviving from the World War II period on the Alameda Marina property. Aside from the roof, which was replaced in the 1990s, and several new interior partitions, Building 19 has undergone few alterations. The applicant proposes minor exterior changes to the building, consisting of primarily repairs and repainting of the exterior shell.
The most noticeable alteration being proposed involves existing industrial roll up doors on the east, west and south elevations. The doors would be replaced with new formal building entrances. The new building entrances feature double doors with an approximately 13-foot tall glass surround consisting of transoms and sidelights. The design includes small awning and fin signs that project over the new entrances. Flanking the entrance doors are metal panels on either side, attached to a wide horizontal rail above to mimic sliding doors typical of industrial architecture of this period. The same entrance design would be added to the north elevation where no entrance currently exists.
Building 27, 1801 Clement Avenue, 1940, National Register Eligible
Building 27 is a two-story, wood-frame, stucco-clad office building with a concrete slab foundation and a flat roof built in 1940. The building has a wedge-shaped plan and is fenestrated with a mixture of double-hung vinyl replacement windows and some original wood windows. It retains its original entrance, which contains a single-panel, glazed wood door with brass hardware and rectangular sidelights. Two smaller entrances were added to the building over time, but overall, few alterations have been made to the building.
The applicant proposes to keep the existing building in its current form, except for removing the two non-original entrances on the north and east elevations. New windows that match existing windows will be installed where the doors are removed.
Buildings 15 and 17 (contributing), and 18 (non-contributing), 1825-27 Clement Avenue, 1940-41
Built around 1940-41, Buildings 15, 17, and 18 compose a single structure historically used as a powerhouse, compressor house, and transformer. The three sections together comprise a one-story, wood-frame, plywood- clad commercial building with a combination shed and gable roof. The largest section, Building 17, is capped by a monitor roof. Buildings 15 and 18 are small shed-roofed additions built on the north side of Building 17. The building exterior features original metal awning sash windows and aluminum sliders from subsequent alterations. In regard to alterations, Buildings 15, 17, and 18 were remodeled in the 1990s, including the enclosure of the formerly open Building 18, the replacement of the original corrugated iron cladding with plywood, and the insertion of aluminum slider windows into the formerly blank wall of Building 18. Around the same time, the corrugated metal roof was replaced with plywood and asphalt shingles. While Buildings 15 and 17 are contributing structures, Building 18 is not a contributor.
The applicant proposes to seismically retrofit the building for future adaptive reuse. Per the plans, aluminum slider windows will be replaced with windows matching original multi-lite awning sash windows. Existing plywood siding will also be removed and metal siding restored.
Certificate of Approval
Building 21 (contributing) - Gate House Re-creation
Attached to Building 16, Building 21 was once the location of three turnstiles forming the gate house entrance into the shipyard. In the 1960s, the turnstiles were removed and the north and south walls enclosed. Currently, the building is a one-story, wood-frame, structure with a concrete slab foundation and a flat roof resembling the adjacent Building 16. The north façade is now concealed behind fencing. The heavily altered building is a contributing structure that is now used as an architect’s office.
The applicant proposes to demolish the building and recreate a new entry gate structure. The proposed entry will mark the formal entrance into the redeveloped Alameda Marina site. The new design features a flat canopy supported by pylons arranged to form three entry “lanes” mimicking the old gated entry. A two-story “guard shack tower” matching the height of the adjacent Building 16 is also proposed as an architectural feature with no actual interior volume. A 46’ tall flag pole is proposed to the left of the tower feature.
Building 21 has a low degree of historical integrity due to previous alterations. The building was originally a covered open-air portal containing three turnstiles that form the entrance gate to the site. The proposed plans to demolish the heavily altered building and reconstruct a new gateway into the Alameda Marina site will more accurately reflect the site’s period of significance, honoring the original purpose of the structure as an entrance to the site. Staff recommends the Board comment on the design of this contemporary re-creation of the old gate house and incorporate changes in design as conditions of approval.
Shoreline Reconstruction and Impact on Existing Buildings
A major component of the Alameda Marina Master Plan project is the multi-million dollar rehabilitation of the dilapidated seawall and supporting shoreline infrastructure. In recent months, the applicant has completed further engineering tests and construction studies. The applicant has determined that the non-contributor buildings 5, 13, 14, 25 and 26, which are located along the shoreline, may be structurally infeasible to leave in place while major construction work is being performed under or immediately around the buildings.
Demolition of Building #14
Building 14 is a two-story, wood-frame, plywood-clad recreational building with a gable roof that was built in 1940. The building sits above a wooden wharf. The building has been altered over the years, most notably with its original corrugated metal siding replaced with plywood siding. The building is not a contributing building in the Historic District.
According to the applicant, Building 14 will need to be demolished and the building will not be rebuilt as it is economically infeasible to strengthen the underlying wharf and the building itself to deal with seismic events and sea level rise. The engineering analysis supports this conclusion because both the current wharf structure and the building itself do not meet minimum requirements for life safety under the California Building Code. With the removal of the building, the underlying wharf will have a lower load demand, and retrofitting activities of the wharf’s frame can occur.
Demolition/Reconstruction of Buildings #5, 13, 25 and 26
Due to the underlying wharf condition, Building 5 will need to be moved from its current location in order to seismically retrofit the wharf, and then either placed back on the wharf and rehabilitated, or demolished based on its structural integrity. Buildings 25 and 26 are located 3' below projected sea level rise, and are adjacent to a failing sea wall. Similar to Building 5, Buildings 25 and 26 will need to be moved in order to raise the grade and repair the underlying shoreline conditions, and then either placed back in their current location or demolished based on their structural integrity. The applicant anticipates a strong likelihood these buildings will simply require demolition due to their poor structural integrity and their inability to survive any relocation. Should these buildings ultimately require demolition, the applicant proposes replacement buildings that replicate the shape, form and massing of the original structures. The overall rebuilt/rehabilitated architectural aesthetic for these buildings will include metal siding and industrial windows similar to Building 19.
Conclusion
Rehabilitation Plan - Staff finds the proposed Rehabilitation Plan for National Register eligible buildings 16, 19, and 27 to be consistent with overall historic preservation goals for the site and Secretary of the Interior’s Standards. Staff also finds the proposed Rehabilitation Plan for Buildings 15, 17, and 18 to also be consistent with overall historic preservation goals for the site. The proposed alterations consist of mostly restoration and rehabilitation work that benefit the overall historic character of Alameda Marina. Staff recommends the Board review and comment on the proposed Rehabilitation Plan and then approve the Rehabilitation Plan with conditions of approval.
Certificate of Approval - Staff recommends the Board approve the Certificate of Approval request for Buildings 5, 13, 14, , 25 and 26 in order to allow planning for major construction of the shoreline to continue and for Building 21 to reconstruct a new gateway into the Alameda Marina site. Demolition of buildings to facilitate the Master Plan-approved activities was already granted by the City Council, and environmental impacts from demolition and appropriate mitigation measures have been already disclosed in the Alameda Marina Master Plan EIR. Staff finds the proposed reconstruction plans for buildings 5, 13, 21, 25 and 26 are consistent with the character of the Alameda Marina historic district and would future enhance the integrity of the remaining group of buildings that form the boatyard commercial core.
PUBLIC NOTICE
A newspaper ad for this project was published on August 22, 2019. Property owners and residents within 300 feet of the project’s boundaries were also notified of the public hearing and given the opportunity to review and comment on the proposal.
ENVIRONMENTAL REVIEW
The environmental effects of the proposed project were considered and disclosed in the Alameda Marina Master Plan Final EIR (State Clearinghouse #2016102064). No further environmental review is required under the California Environmental Quality Act (CEQA) for the proposed improvements.
RECOMMENDATION
Staff recommends the Board approve the proposed Rehabilitation Plan for Buildings 15, 16, 17, 18, 19, and 27 and Certificates of Approval for the demolition of non-contributing building #14, and potential demolition/reconstruction of contributing and non-contributing buildings #5, 13, 21, 25 and 26 with findings and conditions of approval set forth in the draft resolution (Exhibit 3).
Respectfully Submitted,
Allen Tai, Planning Services Manager
Exhibits:
1. Project Plans dated August 12, 2019
2. Mitigation Monitoring and Reporting Program
3. Draft Resolution