CPED STAFF REPORT Prepared for the Heritage Preservation Commission HPC Agenda Item #2 June 6, 2017 PLAN4328 HERITAGE PRESERVATION APPLICATION SUMMARY

Property Location: 4 Island Avenue West Project Name: Grain Belt Sign Relighting Prepared By: Nicholas Baker, City Planner (612) 673-3310 Applicant: August Schell Brewing Co. Project Contact: Justin Weinberg, Briggs and Morgan, P.A. Ward: 3 Neighborhood: -East Bank; adjacent to North Loop, Downtown West Request: To allow rehabilitation of and modifications to an existing off-premise sign and sign structure. Required Applications: To allow rehabilitation of and modifications to an existing off-premise Certificate of Appropriateness sign and sign structure within the St. Anthony Falls Historic District.

HISTORIC PROPERTY INFORMATION

Current Name Grain Belt Sign Historic Name Grain Belt Sign 1330-1342 Nicollet Avenue (1941-1950) Historic Address 4 Island Avenue West (1950-present) Original Construction Date 1941, moved 1950 Original Architect Not applicable Original Builder General Outdoor Advertising Co. Original Engineer Not applicable Historic Use Advertising Current Use Advertising Proposed Use Advertising

Date Application Deemed Complete May 3, 2017 Date Extension Letter Sent Not applicable End of 60-Day Decision Period July 2, 2017 End of 120-Day Decision Period Not applicable

Department of Community Planning and Economic Development PLAN4328

CLASSIFICATION

Local Historic District St. Anthony Falls Period of Significance 1848-1941 Criteria of Significance Architecture and social significance Date of Local Designation 1971 Date of National Register Listing 1971 St. Anthony Falls Historic District Design Guidelines (2012) Applicable Design Guidelines Design Guidelines For On-Premise Signs And Awnings (2003)

SUMMARY

BACKGROUND. The Grain Belt Beer Sign is a large, porcelain-enamel sign located on Nicollet Island in the St. Anthony Falls Historic District, directly across the from downtown near the Hennepin Avenue Bridge. The sign was originally constructed by the General Outdoor Advertising Company in April 1941 on the roof of the Marigold Ballroom at 1330-1342 Nicollet Avenue, on the southern edge of downtown. In March of 1950 it was removed from that location and in June of that year was reinstalled at its current location on Nicollet Island. The addition of an illuminated green frame was the most significant change made at this time; the support structure was also modified. Overall the sign is approximately 63 feet wide and 52 feet tall, with a total height, including the base, of approximately 100 feet. The steel structure is supported by concrete footings set into the riverbank and is approximately 40 feet wide and 20 feet deep, with a significant grade difference from the face to the rear.

Historically, the sign was illuminated with incandescent light bulbs located on the letters spelling “Grain Belt Beer” and neon tubes outlining the frame and circular Brewing Company logo in green, bottle cap in amber, diamond logo in red, and. Most of the light bulbs and neon tubes have been broken, but the fixtures are extant. The sign went dark following the closure of the Minneapolis Brewing Company in 1975, was relit in May of 1989 by the G. Heileman Brewing Co, which had purchased the Grain Belt brand, but went dark again in 1991 following sale of the brand to the Brewing Co. The brand was subsequently purchased by the August Schell Brewing Company of New Ulm, MN, in 2001, which purchased the sign in January of 2016.

All of Nicollet Island was listed on the National and Local Historic Registers as part of the St. Anthony Falls Historic District in 1971, the sign itself was individually listed on the National Register in 2016.

APPLICANT’S PROPOSAL. The applicant now proposes to relight the sign using new LED fixtures, to remove a smaller, non-historic sign mounted on the rear of the sign, to wrap the support structure in screening near its base to prevent climbing and vandalism, and to remove several trees growing in the interior of the structure. Work is to be done by their sign contractor, SML Electrical – also responsible for the previous relighting effort.

Existing incandescent bulbs are to be replaced with new LED bulbs and fixtures in warm white, with color- changing capability – closely matching the lit and unlit appearance. Original neon would be replaced with similarly-sized contour LED, matching the original green, red, and amber, again with color-changing capability. (Originally proposing to use red in place of both the original red and amber areas, the applicant has since revised their proposal to retain a distinction between the amber bottle cap and red diamond logo.) The LED tubing is mounted on a solid, continuous backing, in contrast to traditional neon which is raised from the sign surface. The applicant proposes to locate the brackets affixing this backing to the sign surface using the same mounting holes used for the traditional neon tube supports. On the surface of the sign itself, they propose only minor rust removal, with possible graffiti removal and minor paint touch-ups as needed.

Also proposed is a new, expanded metal security screen wrapping the sign structure, elevated slightly above grade at the street-facing side at the top of the riverbank and wrapping straight around towards the river side of

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the structure, including a horizontal base to deter climbers from entering the structure from below. The fencing will be approximately 15 feet tall on three of the four sides, terminating in and angled overhang to deter climbing; the river facing portion will terminate at or near the existing catwalk below the front face of the sign. The fencing will be powder-coated black to match the existing structure. Five existing trees growing within or near the base of the sign would be removed or cut back.

The applicant proposes to match or approximate the historic lighting sequence as closes as possible – with each letter, G*R*A*I*N*B*E*L*T, and then the world BEER lighting individually, flashing three times, and then restarting the sequence. All other elements would be lit in a solid state. They also propose to use the color- changing capabilities of the new LED bulbs and fixtures to introduce specialized coloration for a number of occasions throughout the year:

• Veteran’s Day, Memorial Day, 4th of July: red, white and blue. • Christmas Eve and Christmas Day: green and red. • St. Patrick’s Day: all green • Minnesota Sports: sign to be lit in team colors to commemorate division or championship titles (up to three days), as well as playoff appearances (day of game)

PUBLIC COMMENTS. The Downtown Minneapolis Neighborhood Association has submitted a letter in support of the project. Any additional correspondence received prior to the public meeting will be forwarded on to the Heritage Preservation Commission for consideration.

ANALYSIS

CERTIFICATE OF APPROPRIATENESS The Department of Community Planning and Economic Development has analyzed the application to allow rehabilitation of and modifications to an existing off-premise sign and sign structure within the St. Anthony Falls Historic District, based on the following findings:

1. The alteration is compatible with the designation of the landmark or historic district, including the period and criteria of significance. Staff finds that the proposed work to the sign is generally compatible with and continues to support the criteria and period of significance for which the district was designated. The St. Anthony Falls Historic District is significant for its architecture and historical connections to commerce, industry, and transportation; large scale outdoor advertising was a common feature of the landscape during the latter part of its period of significance in the early to mid-20th century. The Grain Belt sign, strategically positioned for a high level of visibility from downtown, is a rare remaining example of this, and is tied to a leading brand and significant industry of this era. The proposed screening, powder coated in black to match the existing sign structure, will have minimal visibility while better securing access to the sign structure. The proposed tree removal, while taking place in a sensitive area, is necessary to maintain the long term stability of the structure and further restrict access. The LED bulbs very closely approximate the historic condition. The contour LED proposed will differ fairly significantly in appearance from the historic neon tubing when both lit and unlit – particularly in the continuous, solid backing that will fill what would have traditionally been a void behind the neon. The visibility of this change will, however, diminish with distance from the sign, and as the applicant has stated they will use existing holes for the neon tube supports to affix the contour LED to the face of the sign, this will be a reversible change. Staff, however, does not consider the proposal to change the colors of the sign to be historically appropriate – particularly given the large number of occasions proposed and the prominent, highly visible location of the sign. This would be a radical departure from the historical appearance of the sign, and would create something of a precedent, as no comparable proposal has been approved in the LED relighting of other large, historic neon signs in the district.

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2. The alteration will ensure the continued integrity of the landmark or historic district. Both the City of Minneapolis’ Heritage Preservation Regulations and the National Register of Historic Places identify integrity as the authenticity of historic properties, and recognize seven aspects that define a property’s integrity: location, design, setting, materials, workmanship, feeling, and association. Staff finds that, with the recommended conditions and with the exception of the color-changing proposal - the proposed modifications will not impact the continued integrity of the Grain Belt Sign or the St. Anthony Falls Historic District, and that it is respectful of the historic nature of the sign and its surroundings while helping facilitate the restoration of the sign’s lighting components. Location: Though originally mounted on the roof of the Marigold Ballroom on the south side of downtown, the sign was at that location only nine years, and has been on its current site for the past 67 years. The sign is popularly known for its current location, and it is here that it has acquired its greatest historical significance. The proposal will not impact the location of the sign. Design: Design is the combination of elements that create the form, plan, space, structure, and style of a property. Character-defining features and the overall design of the sign – including the coloration of the original porcelain-enamel panels and the location, coloration, and historic lighting pattern of the lit elements - will be preserved. The non-historic sign mounted on the rear of the structure – not part of the original design, will be removed. Setting: Setting is the physical environment of a historic property. The project site is in the ‘Nicollet Island Bank & East Channel River Corridor’ portion of the St. Anthony Falls Historic District – noted for its steep banks and volunteer vegetation – and immediately adjacent to the ‘Nicollet Island Central Mixed Use District’ – today primarily characterized by the adjacent DeLaSalle High School. A number of changes to the area have taken place since the districts period of significance – including the removal of Nicollet Island commercial district and the widening of the Hennepin Avenue Bridge, however the sign’s placement on the riverbank, orientation towards downtown, and proximity to Hennepin Avenue all remain consistent. The project would remove several trees from the riverbank, however, as conditioned, sufficient natural vegetation would be maintained surrounding the sign structure to maintain the natural appearance of the riverbank. Materials: Materials are the physical elements that were combined during a particular period of time and in a particular pattern or configuration to form a historic property. The original porcelain-enamel panels of the sign face will remain in place with minimal cleaning and touch-ups as required. The new contour LED will be affixed to the sign face using the existing locations of the neon tube supports. While the contour LED will constitute a change in material from the original neon tubing, very little of this tubing remains in place on the sign today. Workmanship: Workmanship is the physical evidence of the crafts of a particular culture or people during any given period in history. Among the most significant aspects of workmanship found on the original sign is the large-scale installation of neon, increasingly rare today. The proposed project will replace this with modern, flexible, contour LED which does not require the same skills in terms of fabrication and installation. As noted above, however, very little neon tubing remains on the sign at present, and what does is entirely non- functional, so very little will be lost in the course of the prosed project. Feeling: Feeling is a property’s expression of the aesthetic or historic sense of a particular period of time. The sign today retains integrity of feeling in its unlit state, retaining the historic design, materials, and workmanship that identify it as late streetcar-ear outdoor advertisement. Restoring it to its lit condition with appropriate coloration – and matching the historic lighting sequence, which included the lighting of each letter and then the word ‘beer’ individually, then flashing before restarting – will enhance this integrity of feeling. The proposed changes of color, however, would give the sign a very different – and entirely contemporary– feeling, dramatically changing the appearance of the sign on a large number of occasions throughout the year and diminishing its ability to convey an authentic feeling of historic outdoor advertising. Association: Association is the direct link between an important historic event or person and a historic property. The Grain Belt sign is a strong visual representation of the brand and its historic association with Minneapolis, and stands as an important connection the history of brewing in the city. The proposed relighting will strengthen this association in terms of visibility; however the introduction of non-historic color

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schemes giving the sign a wholly contemporary appearance could weaken the strength of this historic association.

3. The alteration is consistent with the applicable design guidelines adopted by the commission. The St. Anthony Falls Historic District Design Guidelines were adopted in 2012. The intent of the design guidelines is to protect the integrity and character of the district and to ensure that new development occurs in a manner that is sensitive to the historic character of this unique place. The following design guidelines are applicable to the proposal.

Signs

Historic signs within the historic district have become character defining elements of the district’s and city’s identity.

Intent

Preserve historic signs. Efficiently use signage for identification and way finding that do not create false sense of security or sign clutter.

7.15 Historic signs should be maintained and preserved.

Includes freestanding signs, roof top signs, painted wall signs, signs integrated into buildings.

Materials

Original building materials also are key features of historic buildings. They are important to the significance of the district as a whole, and also contribute to a sense of visual continuity in many places. They also convey the technology of the time in their construction methods.

Intent

Historic building materials should be preserved in place. The treatment that requires the least intervention is preferred.

Requirements

8.10 Preserve original building materials.

a. Do not remove or alter original building materials that are in good condition or that can be repaired.

b. Remove only those materials which are deteriorated beyond repair and must be replaced.

8.11 Repair deteriorated primary building materials.

a. Patch, piece-in, splice, consolidate or otherwise upgrade existing materials, using recognized preservation methods.

8.12 When replacing materials on primary surfaces, match the original material in composition, scale and finish.

a. Replace only the amount required.

8.13 Do not use imitation materials as replacements in primary locations.

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b. Alternative materials that convey a character similar to the historic material will be considered in some secondary locations when replacement with the original is not feasible. They must have a similar finish and be proven durable in similar installations in Minneapolis.

Nicollet Island Bank and East Channel River Corridor

Intent

Retain and enhance historic infrastructure alignments, such as the railroad corridor. Retain the natural volunteer vegetation character of the existing river banks. The natural character of the steeply sloped riverbanks serves two primary functions: it retains the natural character of the riverbanks that can be found along much of the Mississippi in the Twin Cities area and it serves to stabilize the banks with extensive roots systems and natural successional processes.

Requirement

10.52 Maintain a passive natural riparian character.

Staff Comment: With the conditions of approval, the proposal is largely in compliance the St. Anthony Falls Historic District Design Guidelines. The applicant’s proposal would maintain one of the most visible and recognizable historic signs in the city. The original porcelain enamel panels, which remain in good condition, will be retained and preserved using minimally invasive methods. The neon tubing and incandescent bulbs are largely non-extant, and those remaining are in non-operational condition. The proposed LED lighting – particularly the contour LED replacing the traditional neon tubing – is a non-historic material, however it will return the sign to an operable condition while conveying a similar character, particularly when lit. The selective tree removal proposed will maintain a passive natural riparian character in the area surrounding the sign while improving long-term security and stability of the sign structure. The proposal for recurring color changes, however, would dramatically alter the character of the lit sign in a manner Staff does not consider consistent with these guidelines.

The Design Guidelines for On-Premise Signs and Awnings were adopted in 2003, and primarily address regulation of new signs in historic districts; the applicable guidelines are analyzed below:

1. In General:

b. Historic signs: Maintenance or restoration of existing historic signs is encouraged and should not be counted in number of allowable signs.

Staff Comment: The applicant’s proposal will retain and partially restore one of the most visible and recognizable historic signs in the City. The Guidelines for On-Premise Signs and Awnings do not address specific treatments or restoration methods for historic signs.

4. The alteration is consistent with the applicable recommendations contained in The Secretary of the Interior’s Standards for the Treatment of Historic Properties. Staff finds that the proposal, as conditioned, meets the following Secretary of the Interior’s Standards for the Treatment of Historic Properties. • 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. • Most properties change over time; those changes that have acquired historic significance in their own right shall be retained and preserved. • Distinctive features, finishes, and construction techniques or examples of craftsmanship that characterize a historic property shall be preserved.

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• 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. • 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 proposed work will retain and preserve the historic character of the sign. A small amount of remaining neon tubing will be removed; however these materials are largely non-extant at present. Preservation of the sign will recognize the changing character of the St. Anthony Falls Historic District over time, preserving a highly visible and recognizable example of large-scale outdoor advertising that has acquired a significant degree of significance in its own right, being individually listed on the National Register. While the historic medium of neon lighting constitutes a distinctive feature and example of craftsmanship characterizing the property, very little material remains extant today. The new contour LED, while not entirely matching the original material in all respects – particularly in the nature of the solid and continuous backing which will be affixed to the sign surface – will be mounted to the sign face in a manner which will not destroy historic materials and will constitute a reversible change to the sign. The proposed security screening, likewise, will be visually compatible with the original sign structure in color and appearance, and will be mounted in a way as to avoid damage to the historic structure.

5. The alteration is consistent with the spirit and intent of the preservation ordinance, the applicable policies of the comprehensive plan, and the applicable preservation policies in small area plans adopted by the city council. The preservation ordinance is intended to promote the recognition, preservation, protection, and reuse of historic properties and districts, to promote the economic growth and general welfare of the city, to further educational and cultural enrichment, and to implement the policies of the comprehensive plan. The proposed sign – as conditioned – would conform to the preservation ordinance and the applicable preservation policies of the comprehensive plan: Heritage Preservation Policy 8.1: Preserve, maintain, and designate districts, landmarks, and historic resources which serve as reminders of the city's architecture, history, and culture. 8.1.1 Protect historic resources from modifications that are not sensitive to their historic significance. Heritage Preservation Policy 8.12: Raise awareness of the history of Minneapolis and promote the quality of the built environment. Granting the certificate of appropriateness will be in keeping with the spirit and intent of the preservation ordinance. The alterations, as conditioned, will not negatively alter the essential character of the St. Anthony Falls Historic District or the Grain Belt sign itself, while the re-lighting of such a highly visible and recognizable landmark in and of itself could raise awareness of this piece of the City’s history.

RECOMMENDATIONS

The Department of Community Planning and Economic Development recommends that the Heritage Preservation Commission adopt staff findings for the applications by the August Schell Brewing Co. for the property located at 4 Island Avenue West in the St. Anthony Falls Historic District: A. Certificate of Appropriateness. Recommended motion: Approve the certificate of appropriateness to allow rehabilitation of and modifications to an existing off-premise sign and sign structure within the St. Anthony Falls Historic District, subject to the following conditions: 1. Approval of the final plans by the Department of Community Planning and Economic Development.

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2. The proposed security screening will be attached to the existing sign structure using existing bolt holes or clamped-on mounting brackets to avoid drilling new holes into the structure. 3. The proposed contour LED tubing will be affixed to the sign surface at the same location as and using the existing holes for the historic neon tube supports; care will be taken to avoid the need for introducing any new openings in the surface of the original porcelain-enamel panels. 4. Proposed tree removal must be completed in accordance with section 551.520 of the Zoning Code. Best management practices shall be utilized to prevent erosion, and vegetation ensuring a “continuous natural cover” shall be restored as soon as feasible following the completion of construction, to maintain the natural appearance of the riverbank in accordance with the Shoreland Overlay District provisions of the Zoning Code and Historic District guidelines, with proposed plantings to be reviewed and approved by staff. 5. The restoration of the historic color scheme (warm white, green, red, and amber, as outlined above) and historically accurate lighting sequence (including the lighting of each letter and then the word ‘beer’ individually, then flashing, and then restarting the sequence) are considered appropriate and are approved. 6. The proposed commemorative and recurring color changes are not considered appropriate and are not approved. 7. By ordinance, approvals are valid for a period of two years from the date of the decision unless required permits are obtained and the action approved is substantially begun and proceeds in a continuous basis toward completion. Upon written request and for good cause, the planning director may grant up to a one year extension if the request is made in writing no later than June 6, 2019. 8. By ordinance, all approvals granted in this certificate of appropriateness shall remain in effect as long as all of the conditions and guarantees of such approvals are observed. Failure to comply with such conditions and guarantees shall constitute a violation of this Certificate of Appropriateness and may result in termination of the approval.

ATTACHMENTS

1. Preservation Map 2. Oblique aerials 3. Historic aerials 4. Historical background 5. Existing conditions photos 6. Project description and findings submitted by applicant 7. Site plan & building elevations 8. Sign proposal 9. Correspondence

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