ZONING PUBLIC HEARING AND FIRST READING CONSIDERATION TO
REZONE FROM C-1 (OFFICE & INSTITUTIONAL) TO C-1 –DP (OFFICE & INSTITUTIONAL) (DESIGN PRESERVATION) AT 2150 HARDEN STREET (PORTION) (BULL STREET MENTAL HEALTH CAMPUS)
September 16, 2009 at 10:00 a.m. City Council Chambers, 3rd Floor, City Hall, 1737 Main Street Columbia, South Carolina
2150 Harden Street, the portion generally bounded by starting at the northeast corner of the intersection of Bull and Calhoun Street north to Williams Drive; east on Williams, north on Chapel Drive east along Williams Circle past and including the Ensor Building and south down Thompson Street to the Babcock Building and curving Subject Property: east along the perimeter road to include the Mattress Factory building and then immediately south to Mills Drive; west along Mills Drive and then south on Barnwell Street to Calhoun Street returning to the starting point intersection – Department of Mental Health Bull Street Campus, TMS# 11501-01-01(portion) Council District: 2 Rezone to add – DP overlay to a portion of the campus to establish as a City Proposal: Architectural Conservation District Applicant: The Honorable Dr. Belinda Gergel and The Honorable E. W. Cromartie PC Recommendation: Approve Staff Recommendation: Approve
Detail: This proposal involves designating a portion of the historic Bull Street Mental Health Campus as an Architectural Conservation District through the application of a –DP (Design Preservation) overlay. This designation will apply to actions related to the historic structures and select site features within the proposed boundaries; new construction will not be reviewed. A district is proposed instead of designating each building an as individual landmark to allow more flexibility in rehabilitation projects, as Landmark designation generally incurs a more strict set of review standards. Several plans have called for the preservation of the historic resources at this site including the City-wide Architectural Survey (Bryan Study - 1994) and the more recent plan completed by Duany, Plater-Zyberk, & Company for the Central Carolina Community Foundation. This designation strives to balance the protection of the important historic resources, while maintaining flexibility for adaptive reuse and new development. For information on the history and importance of the site, please refer to the attached document titled “Bull Street Mental Health Campus Design Guidelines.” Case History: 08/03/2009 Planning Commission recommends approval of rezoning. (5-3) 08/04/2009 D/DRC recommends approval of designation. (5-1)
Pending Issues: None Staff Contact: Marc S. Mylott, AICP; Director of Development Services/Zoning Administrator Amy E. Moore, Preservation Planner
PAGE 1 OF 1 Zoning Map 2150 Harden St TMS# 11501-01-01 (portion) µ Planning & Development M-2 Services Department Slighs Ave RG-2 Legend C-3 Dart St INTERSTATES PARCELS Harden St Ext. RAILROADS CITY LIMITS RS-3 STREETS RS-3
ZONING MX-2 Zoning Districts C-1 D-1 C-2 RS-1 C-3 Slighs Ave RS-1A C-3A RS-1B C-4 Geiger Ave RS-2 C-5 RS-2 RS-3 M-1 RD M-2 Colonial Dr PUD-R RG-1 PUD-C RG-2 Harden St RG-1A PUD-LS RG-2 PUD-R RG-1 RG-3 PUD-LS-R UTD PUD-LS-E RG-2 Oak St MX-1 Out of City C-1 RG-2 RG-2 RS-3 C-1 RG-1 RD Feet UTD 0 190 380 760 PUD-R RG-1
ORIGINAL PREPARATION/DATE: Wallace St This map was prepared by: Elmwood AveRG-2 David L. Hatcher Franklin St Bull St C-2 July 23, 2009 RS-3 C-3 PUD-R Read St Bull St DISCLAIMER: RG-2 The City of Columbia Department of RG-1 Planning and Development Services RG-1 PUD-C data represented on this map or plan C-3 RG-2 is the product of compilation, as Main St RG-2 Gregg St produced by others. It is provided Scott St RG-2 for informational purposes only and the City of Columbia makes no C-3 representation as to its accuracy. Its RG-2 Harden St use without field verification is at the Henderson St sole risk of the user. Elmwood Ave C-1 C-3 Elmwood Ave Barnwell St Sumter St M-1 Calhoun St Pickens St Laurel St C-4 Marion St C-1 Richland St C-3 C-1 C-3 Blanding St C-5 C-4 C-5 C-3 Taylor St ** DATA SOURCE - CITY OF COLUMBIA, GIS DIVISION
Bull Street Mental Health Campus DESIGN GUIDELINES
SECTION I PURPOSE
Design Guidelines are criteria and standards that the Design/Development Review Commission must consider in determining the appropriateness of proposed work within a historic district. Appropriateness of work must be determined in order to accomplish the goals of historic zoning, which are:
Protect the beauty of the City and improve the quality of its environment through identification, recognition, conservation, maintenance and enhancement of areas, sites and structures that constitute or reflect distinctive features of the economic, social, cultural or architectural history of the city and its distinctive physical features;
Foster appropriate use and wider public knowledge and appreciation of such features, areas, sites, and structures;
Resist and restrain environmental influences adverse to such purposes;
Encourage private efforts in support of such purposes; and
By furthering such purposes, promote the public welfare, strengthen the cultural and educational life of the city, and make the city a more attractive and desirable place to live and work.
SECTION II DISTRICT PRINCIPLES AND GOALS
The Mental Health Campus is an institutional area that is significant in that it illustrates the development of the treatment of mental health in South Carolina. The goals of the historic district are:
1. To preserve the buildings which are architecturally important and/or which help to illustrate the evolution of the campus; 2. To preserve elements of the site and the landscape which continue to be significant and contributing resources; 3. To preserve historically important elements of the site from the Civil War era.
The goal of this district and of these guidelines is to maintain and protect the structures that illustrate this important part of Columbia’s history as well as preserve, conserve, and enhance the character, function, and environment of the district. This task must be accomplished with an appreciation of the development of the district over time, which is critical to its character.
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The following design guidelines are established to apply moderate design control to selected characteristics of original buildings that are necessary to maintain the health and continued vitality of this important and unique area and discourage those elements that may threaten these goals or the goals set forth in Section I.
Please see Appendix A for information regarding financial incentives available for the preservation and redevelopment of these structures.
SECTION III HISTORIC SIGNIFICANCE, DESIGN CHARACTERISTICS, & BOUNDARY DESCRIPTION
A. HISTORY The nineteenth century in America was an era of monumental change. The country expanded with the addition of new states, an industrial revolution that began after the American Revolution continued throughout most of the century, and the Civil War divided the nation. At the same time, America experienced dramatic changes in the method of caring for the mentally ill. In the early nineteenth century, the mentally ill were cared for in private homes and poorhouses, but this soon became impractical as population densities increased, towns grew, and the economy expanded. Reformers called for the creation of state asylums that served a socially mixed clientele, and the state of South Carolina was among the first few states to answer this call.1 In 1821, following the persistence of South Carolina Congressman Colonel Samuel Farrow and Charleston Senator Major William Crafts, South Carolina became the second state to pass legislation establishing and financing a state hospital for the mentally ill. When it opened in 1828, the new hospital was known as the South Carolina Lunatic Asylum. Famed South Carolina architect, Robert Mills, designed the new asylum (known today as the Mills Building), which was influenced by British innovations. The hospital included rooms that faced south to provide fresh air and sunlight, hidden hinges and locks to avoid a prison-like feel, and it was one of the first fireproof structures in America.2 Today, some scholars cite this architecturally, and historically, important building as the nation’s oldest surviving mental hospital building.3 It also is listed on the National Register of Historic Places and is a locally landmarked structure. Just prior to the Civil War it became apparent that the Mills Building was overcrowded. A new hospital (later known as the Babcock Building) was commissioned and constructed under the direction of George E. Walker, an architect from Charleston, and nationally known architect Samuel Sloan of Pennsylvania. The building was constructed in four stages between 1857 and 1875. The oldest portions of the building are the north and south wings. The south wing housed the male patients, while the north wing housed the female patients. At the center of this massive structure were the hospital’s administration offices.4
1 Peter McCandless, “Curative Asylum, Custodial Hospital: The South Carolina Lunatic Asylum and State Hospital,” in The Confinement of the Insane: International Perspectives, 1800-1965, ed. Roy Porter and David Wright (Cambridge: Cambridge University Press, 2003), 173. 2 Odell Associates Inc., “Feasibility Study for the Mills Building,” City of Columbia Files, Planning and Development Services Department. 3 Peter McCandless, “A Female Malady? Women at the South Carolina Lunatic Asylum, 1825-1915,” Journal of the History of Medicine and Allied Sciences 54, no. 4 (1999): 551. 4 Bull Street Mental Health Complex, City of Columbia Files, Planning and Development Services Department. Bull Street Campus Draft Guidelines 5/09 2
While the South Carolina Lunatic Asylum is important for being one of the oldest mental institutions in America, the Babcock building makes the 178-acre hospital campus even more significant in the overall history of mental health care. The Babcock Building’s design represents a revolutionary new sensitivity to caring for the mentally ill. Architect Samuel Sloan worked with Dr. Thomas Story Kirkbride, an influential doctor from Pennsylvania, in the design of multiple mental institutions. Dr. Kirkbride recommended comprehensive planning for the comfort and advanced care of the patients. The architectural manifestation of what became known as the “Kirkbride system” was a linear plan composed of repeated blocks linked together on each side of a central administration building.5 Sloan used this overall plan for the Babcock Building and designed it in the Italian Renaissance style. Other aspects of the “Kirkbride system” included: open grounds for gardens, a location near a city, manageable wards, segregation of patients by gender, an absence of patient-rooms below ground, plenty of windows, gas lighting, and room sizes of eight feet by ten feet with twelve foot ceilings. When approaching the South Carolina State Legislature to obtain funding for the project in 1853, the asylum physician, D.H. Trezevant, proposed using the “Kirkbride system.” When it was complete, the South Carolina State Mental Hospital building displayed many of the “Kirkbride system” traits; however, the design opted for large, open floor plans.6 The building eventually acquired the name Babcock, after Dr. James Woods Babcock who served as the asylum’s superintendent from 1891-1915. Babcock was a native South Carolinian and was the hospital’s first superintendent trained in psychology. He is nationally known for diagnosing cases of pellagra (a deadly niacin deficiency). Locally, he is known for expanding the hospital’s campus by ordering the construction of many buildings and the redirecting of roads, both of which are largely responsible for the campus’ appearance today. The following structures are attributed to Babcock during his tenure as superintendent: a laundry constructed around 1908; accommodations for African-American patients built in the late 1800s or early 1900s; a bakery established between 1898 and 1904; a mattress factory built in the early 1900s that at first served as a paint shop/storage facilities. Several of the structures built during Babcock’s tenure as superintendent still stand today among many other buildings built throughout the twentieth century. The later additions include: the LaBorde Building, built in the 1920s for white, male tuberculosis patients; the Ensor Building from the 1930s that served as a research laboratory; the Williams Building constructed in 1938 for patients addicted to drugs and alcohol; the Benet/Horger complex, which served as the campus’ auditorium and library beginning in 1955; and a series of five cottages built in the 1930s to house asylum staff. All of the buildings present at the campus today, in addition to the open grounds, reflect an evolution in mental healthcare that occurred in the nineteenth and early twentieth century and are deserving of protection and adaptive reuse today. In addition to Robert Mills, Samuel Sloan, Dr. Thomas Story Kirkbride, and Dr. Babcock, the Mental Health Complex has other significant individuals associated with it. One such person is Page Ellington who was a subcontractor for Clark Waring, a contractor who worked on a portion of the Babcock Building. Ellington was a talented African-American brick mason who, in 1884, had worked on the steeple spire at First Presbyterian Church of Columbia after it was destroyed in a storm. He helped Dr. Babcock in designing many of the buildings on the grounds of the state hospital.7 Page Ellington’s own house is another Columbia landmark located at 614
5 Babcock Building, Columbia, Richland County, South Carolina, Nomination to the National Register of Historic Places, 1981. 6 Babcock Building, Nomination to the National Register. 7 The State Newspaper, 28 February 1910. Bull Street Campus Draft Guidelines 5/09 3
Blanding Street. Before the end of slavery, Ellington was said to have belonged to “old Mr. McCully, who lived where the Main Street church now stands until Sherman burned him out.” Ellington originally lived in North Carolina, and following emancipation became part of an elite group of African Americans within Columbia. He has been described as a man who “…deserves special mention…He was a hard student and kept up with all the affairs of the day for many years. He was employed by the State Hospital to look after the building. He was a good architect and could make all of his drawings. He was thoroughly reliable in every respect. You could depend on what he told you about anything. He had the respect and confidence of everyone who knew him.” For an African-American working in the post-Civil War era of the South, this kind of tribute was surely more than well-earned.8 Aside from these architecturally and culturally significant buildings, the South Carolina Department of Mental Health’s Bull Street campus likely features considerable below-ground assets. Beginning in 1864, Asylum Superintendent Dr. John Parker reluctantly opened the hospital grounds as a Civil War prisoner camp.9 Due to this, and the campus’ use as a mental health facility, significant archaeological evidence and artifacts most likely can be found within the grounds surrounding the previously discussed buildings.
B. DESIGN CHARACTERISTICS See Appendix B for information on each building included in the district.
C. BOUNDARY DESCRIPTION
The entire campus is approximately 180 acres, but the proposed district is about one quarter of this and is sited on the southwest corner of the campus. The boundary proposed incorporates key buildings and site elements, which together illustrate the evolution of the campus. Also included are the Robert Mills Building, the South Gate and the Wall, all of which are already locally landmarked structures. While these buildings are already protected, including them in the district makes it clear that they too are an important piece of the history of the institution. Boundary lines therefore, run from the northeast corner of the intersection of Bull and Calhoun Street north to Williams Drive; running along Williams Circle to the north, past and including the Ensor Building and moving south down Thompson Street; from here curving east along the perimeter road to include the Mattress Factory building and then immediately south to Mills Drive; moving west along Mills Drive and then south on Barnwell Street down to Calhoun Street. The entire wall on Calhoun Street and up Bull Street to the main entry is included in the district.
Structures within these boundaries which require individual review include:
1. Babcock Building 2. Mills Building 3. Williams Building 4. Male and Female Dining Halls 5. Bakery
8 J.F. Williams, Old and New Columbia: 1786-1929, (Epworth Orphanage Press, Columbia, SC, 1929), 147. 9 Bull Street Mental Health Complex, Planning and Development Services Department. Bull Street Campus Draft Guidelines 5/09 4
6. Laundry Building 7. Mattress Shop 8. LaBorde 9. Parker Annex 10. Chapel of Good Hope 11. Benet/Horger Building 12. Ensor Building 13. Bungalows 14. South Gate and Wall
Please see Appendix B for pictures and information for each building.
SECTION IV ADMINISTRATION
A. ACTIONS THAT REQUIRE DESIGN REVIEW 1. Additions/Enclosures visible from the public right-of-way on designated buildings 2. Actions that alter the exterior appearance of an original building 3. Demolition or relocation 4. Alterations to existing site features and significant trees and shrubbery
B. ACTIONS THAT DO NOT REQUIRE REVIEW
1. New construction 2. General maintenance and repairs on original buildings that do not alter the exterior appearance* 3. Work not visible from a public right-of-way 4. Interior work
* Any cleaning of masonry requires a review of the cleaning methods intended to be employed. This may be reviewed at staff level.
See Columbia Code of Ordinances Section 17-655 for more detailed information.
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SECTION V GUIDELINES FOR ADDITIONS
A. PRINCIPLES It is often necessary to increase the space of a building in order for it to continue to adapt to the owner's needs. While additions are permitted, they should serve to reinforce and not detract from the existing architectural form and design of the building.
Additions should not significantly alter original distinguishing qualities of buildings such as the basic form, materials, fenestration, and stylistic elements. They should be clearly distinguished from original portions of building and should result in minimal damage to it. Character defining features of the historic building should not be radically changed, obscured, damaged, or destroyed in the process of adding new construction. The size and scale of the new addition should be in proportion to the historic portion of the building and clearly subordinate to it. Additions should be attached to the rear or least conspicuous side of the building. They should be constructed so that if removed in the future, the essential form and integrity of the building will be unimpaired.
B. GUIDELINES 1. Site additions so that they do not detract from or obstruct important architectural features of the existing building or others around it, especially the principle façade. 2. Design additions to be compatible with the original structure in materials, style and detailing. 3. Limit the size and scale of additions so that the integrity of the original structure is not compromised.
SECTION VI GUIDELINES FOR MAINTENANCE & REHABILITATION
A. GENERAL PRINCIPLES Rehabilitation is a practical approach to historic preservation. It is the process of repairing or altering a historic building while retaining its historic features. It represents a compromise between remodeling, which offers no sensitivity to the historic features of a building, and restoration, which is a more accurate but costly approach to repair, replacement, and maintenance.
Rehabilitation guidelines are limited to the review of exterior elements visible from the right- of-way. The priority of the guidelines is to ensure the preservation of a building's character- defining features while accommodating an efficient contemporary use.
1. DOORS a. Principles Significant features such as doors and entrances should be preserved wherever possible. Changes to door size and configuration should be avoided. Replacement doors should either match the original or substitute new materials and designs sympathetic to the original. Bull Street Campus Draft Guidelines 5/09 6
Sometimes new entrances are required for practical reasons or to satisfy code requirements. Placement of new entrances on principal facades should be avoided. New entrances can result in loss of historic fabric and detailing and change the rhythm of bays. New entrances should be compatible with the building and be located on side or rear walls that are not readily visible from the public right-of-way. If a historic entrance cannot be incorporated into a contemporary use for the building, the opening and any significant detailing should, nevertheless, be retained.
b. Guidelines i. Install new openings so that they carry on the same rhythm of existing openings and are compatible in size, materials and design. ii. Retain and repair historic door openings, doors, screen doors, trim, and details such as transoms, sidelights, pediments, and hoods, where they contribute to the architectural character of the building. iii. Replace missing or deteriorated doors with doors that closely match the original, or that are of compatible contemporary design. iv. Place new entrances on secondary elevations away from the main elevation.
2. WINDOWS A. Principles Windows are a significant character-defining feature of any structure. They are like a piece of good furniture. Original windows were constructed so that individual components could be repaired, instead of requiring an entire new unit if one piece breaks or rots. This often means that an existing, historic window can be repaired for far less cost than a replacement. Additionally, historic windows can be made more energy efficient with minimal effort. Consult with City historic preservation staff for assistance on window repair and upgrade.
Repair of a historic window is the best first step when confronted with a damaged or deteriorated unit. If after careful evaluation, window frames and sash are so deteriorated they need replacement, they should be duplicated.
Replacement windows must be selected with care. They should generally match in terms of original sashes and framing, pane size, configuration, glazing, materials, muntin and mullion detailing, and profile. Small differences between replacement and historic windows can make big differences in appearance.
If 50% or more are deteriorated or missing, then wholesale replacement of windows is allowable. When choosing replacements, the qualities of the original windows should be used as criteria. Consider the following features of the original: • trim detail; • size, shape of frame, sash; • location of meeting rail; • reveal or set-back of window from wall plane; • materials, reflective qualities of glass. • muntin, mullion profiles, configuration. Bull Street Campus Draft Guidelines 5/09 7
B. Guidelines i. When technically and economically feasible, repair of deteriorated or damaged windows shall be preferred over replacement. ii. If replacement of a small number of units is deemed necessary after evaluating the sill, frame, sash, paint and wood surface, hardware, weather-stripping, stops, trim, operability, and glazing, replace with units that match the original in detailing, size, reflective quality, and materials. iii. If wholesale replacement is found to be necessary, either match the original unit or substitute a unit appropriate to the structure’s period of significance, maintaining the use of historic materials. iv. Improve the thermal performance of existing windows and doors through adding or replacing weather stripping and adding storm windows which are compatible with the character of the building and which do not damage window frames.
3. ROOF PITCH/MATERIAL A. Principles Roofs are highly visibly components of historic buildings. They are an integral part of a building's overall design and often help define its architectural style. The original shape and pitch of the roof should be retained.
Where existing roofing material is non-original, the existing roof may be retained, replaced in a manner known to be accurate based on documentation or physical evidence, or treated in a contemporary style.
B. Guidelines i. Preserve the original roof form in the course of rehabilitation ii. Preserve historic roofing materials and repair with similar materials. iii. Retain or replace where necessary: dormer windows, cupolas, cornices, brackets, chimneys, cresting, weather vanes, and other distinctive architectural or stylistic features that give a roof its essential character.
4. EXTERIOR SIDING A. Principles y Masonry Masonry features, such as brick cornices or terra cotta detailing, and surface treatments, modeling, tooling, bonding patterns, joint size and color are important to the historic character of a building. These features should be retained.
While masonry is the most durable historic building material, it is also the most susceptible to damage by improper maintenance or repair techniques or abrasive cleaning methods. Sandblasting and other abrasive cleaning methods are specifically prohibited. Sandblasting not only changes the visual qualities of brick, it damages or destroys the exterior glazing, increasing the likelihood of rapid deterioration of the brick and water damage to the interior of the building
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Painting historic masonry is another concern. The color of masonry, particularly brick, is often an important part of the character of a building. In addition to color, the bonding pattern, treatment of mortar joints, and texture are significant parts of brick buildings. Where brick and other masonry finishes were unpainted, they should generally remain so. Painting obscures detailing and alters the distinguishing original qualities of a building. Under some circumstances, particularly where the brick quality is poor or abrasive cleaning methods have been used, painting brick may be appropriate as a protective measure.
B. Principles y Wood Where original wood siding exists on a structure, it should be retained. If it becomes necessary to replace deteriorated boards, match the replacements to the characteristics of the original. Important characteristics of wood siding that should be considered in its repair or replacement are board size, width of exposure, length, and trim detail such as corner boards.
One of the greatest threats to wood siding is the application of non-historic surface coverings such as aluminum and vinyl siding, or stucco. Application of non-historic exterior finishes results in either the removal or covering of historical materials and details. Decorative trim around doors, windows, and under rooflines is frequently removed. Detailing of the wood itself, such as beveling or beading, is also lost. Board width, length, and exposure are generally changed, thus altering the scale and appearance of the building. Artificial siding also frequently damages the fabric underneath. It can trap moisture and encourage decay and insect infestation.
In cases where artificial siding is already in place, its removal is not necessary under the guidelines. An owner may retain the material or remove it. If, however, the material is removed, it must be replaced with historically appropriate materials.
C. Guidelines i. Identify, retain, and preserve masonry features that are important to defining the overall historical character of the building such as walls, brackets, railings, cornices, door pediments, steps, and columns; and joint and unit size, tooling, and bonding patterns, coatings, and color. ii. Clean masonry surfaces with the gentlest method possible, such as water and detergents and natural bristle brushes. Sandblasting is prohibited. iii. Retain wooden materials and features such as siding, cornices, brackets, soffits, fascia, window architrave, and doorway pediments. These are essential components of a building's appearance and architectural style. iv. Repair or replace, where necessary, deteriorated material duplicating in size, shape, and texture the original as closely as possible. Consider original characteristics such as board width, length, exposure, and trim detailing when selecting a replacement material. v. Artificial replacement siding over wood or brick is not permitted. vi. Where a structure has asbestos or masonite as original siding, it may be replaced with wood, brick, or cement fiberboard. Bull Street Campus Draft Guidelines 5/09 9
SECTION VII DEMOLITION
A. Principles The demolition of an historic building should be an action of last resort. When a structure is demolished, the community loses a part of its history, which cannot be replaced. One of the character defining features of this area is the close proximity of structures, which creates a tightly woven neighborhood structure. When a house is removed and not replaced, the fabric of the neighborhood is undermined. Accordingly, such requests are reviewed very deliberately and require detailed information. Additionally, the removal of a structure without a replacement should be permitted in only the most extreme of circumstances and when all other options have been exhausted.
B. Criteria for Review Reprinted from Code of Ordinances for City of Columbia & Rules & Regulations of Design/Development Review Commission.
1. The historic or architectural significance of a building, structure, or object;
2. A determination of whether the subject property is capable of earning a reasonable economic return on its value without the demolition, consideration being given to economic impact to property owner of subject property;
3. The importance of the building, structure, or object to the ambience of a district;
4. Whether the building, structure, or object is one of the last remaining examples of its kind in the neighborhood, city or region;
5. Whether there are definite plans for the reuse of the property if the proposed demolition is carried out, and what the effect of those plans on the character of the surrounding area would be;
6. The existing structural condition, history of maintenance and use of the property, whether it endangers public safety, and whether the city is requiring its demolition;
7. Whether the building or structure is able to be relocated, and if a site for relocation is available; and
8. Whether the building or structure is under orders from the city to be demolished, and this criteria shall be given more significance than the above-mentioned criteria.
C. Types of Information In addressing each of the demolition criteria the DDRC may require the following types of information:
1. Estimate of the cost of demolition, and estimate of the cost of renovation;
2. Report from an engineer, architect, or contractor as to the structure(s) on the property and their suitability for rehabilitation;
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3. Estimated market value of the property in its current condition; after demolition, after renovation of the existing property for continued use, with proposed redevelopment;
4. Estimate from an architect, developer, real estate consultant, appraiser, or other real estate professional experienced in rehabilitation or reuse of the existing structure(s) on the property;
5. Information on any current negotiations to buy, rent, or lease property;
6. All appraisals obtained within the previous two (2) years by the owner or applicant in connection with the purchase, financing or ownership of the property;
D. Except in the case where a structure poses an extreme life-safety hazard, the demolition of a structure shall not be approved until the plans for its replacement have been reviewed and approved by the Design/Development Review Commission
SECTION VIII RELOCATION
The only buildings viable for relocation are the five bungalows on the northwest side of the district. These buildings were used as residences for staff and later, were often used as offices. These buildings remain intact and it would be optimal for them to be reused. However, should this not be possible, it is strongly encouraged that these cottages be moved to appropriate lots on or outside the campus rather than demolished.
A. Principles Much of a building’s value is in its context: the street on which it sits, the buildings that surround it, the landscape. Therefore a building should remain in its context unless its existence is threatened by encroachment or it cannot be preserved in the original location.
B. Guidelines Moving a building out of the district is typically not permitted unless the building does not contribute to the district's historical or architectural significance, or has irretrievably lost its architectural and historical integrity; however, relocation is preferable to demolition if the bungalows cannot be preserved in their original locations.
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SECTION IX SITE FEATURES
A. Principles In addition to the buildings on site, the hardscape and the landscape also play a pivotal role in the history of the campus.
The most important feature of the hardscape is the allee leading into the campus with its terminal axis at the Babcock Building. The allee and circular drive was clearly introduced as a graceful entry to an important site as well as to accentuate the grandness of the Babcock building. Pickens Street, intersecting with the allee and drive to the Babcock, picks up from the original grid of the city and continues through the campus, ending with the dignified Williams Building.
At least a century ago, research verified that plants and gardens were an effective treatment tool for all manners of illness, and patients at the Columbia’s mental health campus benefited from hortitherapy. From its earliest days, and as a part of the ‘moral treatment’ ideal upon which the asylum was founded, the campus grounds and its landscaping were considered an integral part of the mental health program. Patients were encouraged to both enjoy and work on the grounds as they could. Consequently, great care was taken with plantings and upkeep. Today, some of the trees on the grounds are easily over 100 years old, and there are both exotics and common southern plants to be found. Trees along Pickens Street and the allee were undoubtedly planted to provide calming landscaping for patients as well as to frame the two important buildings at their axes. The various species of oaks along the edges of Pickens Street should be retained or replanted with like species as needed. The magnolias (Magnolia grandiflora) along the allee were planted in the late 1890s by Superintendent Babcock; understandably, not all of them are now in optimal health. If any of the magnolia trees are found not to be viable by a certified arborist, they should be replanted with healthy magnolia trees.
Given the history of the site, digging anywhere on campus during the course of building may result in unearthing artifacts, particularly behind the south wing of the Babcock Building. A prisoner-of-war encampment was placed there during the Civil War. Any artifacts uncovered during building are best placed in the hands of the South Carolina Institute of Archaeology and Anthropology, an organization qualified to handle artifacts and document their history.
B. Guidelines 1. The entry allee, circular drive, and the continuance of Pickens Street through campus should be retained as well as their plantings. Should a certified arborist advise the necessity of the removal of a tree, like species are appropriate. 2. Grand trees (see City of Columbia Landscape and Tree Preservation Ordinance) in the district are considered an amenity both to the site and to the City. Builders/architects are encouraged to work around or to incorporate these trees into building plans. To this end, a comprehensive tree inventory for a parcel shall be conducted and submitted at the earliest schematic design phase to the City’s land development planner and the historic preservation planner.
3. Proposals that include the removal of any groves of trees and/or grand trees or any trees 12” dbh and larger shall be reviewed by the City’s land development planner per the landscape ordinance and in consultation with the historic preservation planner.
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4. There are significant plantings of sassanquas, camellias, and azaleas, and others which are well established and should be retained if possible. 5. In the event of artifacts being unearthed, property owners are encouraged to stop work and contact the South Carolina Institute of Archaeology and Anthropology. 6. Should human remains be found on-site, work should stop and local law enforcement and the county coroner must be contacted. Additionally, property owners are also encouraged to contact SCIAA.
SECTION XI DEFINITIONS Please also see the Land Development ordinance for additional definitions.
Addition: 1. Construction that increases the living or working space of an existing structure, and is capable of being mechanically heated or cooled. (ex. porch enclosures, room additions, etc.) 2. An alteration that changes the exterior height of any portion of an existing building. 3. Any extension of the footprint of the structure, including porches and decks.
Appropriate: Suitable for, or compatible with, a structure or district, based upon accepted standards and techniques for historic preservation and urban design as set forth in the Secretary of the Interior’s Standards and these guidelines.
Architectural feature/element: Any of the component parts that comprise the exterior of a building, structure or object that convey the style of a building. (ex. Victorian, Bungalow, etc…)
Character-defining feature: a detail or part of a structure that imparts style or design and distinguishes it from other structures (ex. porch railings, decorative windows)
Compatible: to conform or be in harmony with the components of the style of a building or the character of a district.
Contributing (building/structure/site): A building, structure or site that reinforces the visual integrity or interpretability of a historic district. A contributing building is not necessarily "historic" (50 years old or older). A contributing building may lack individual distinction but add to the historic district's status as a significant and distinguishable entity.
Demolition: Active deconstruction in whole or in part of a building, object, or site.
Elevation: 1. Height in terms of distance from grade; 2. an exterior wall of a building, usually used in referring to portions other than the façade.
Enclosure: To close off a previously exterior open space, through the installation of walls or other devices.
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Exterior Change: An action that would alter the appearance of a structure. Examples include: change in roof pitch or form, or replacing or covering exterior siding with substitute material, reducing, enlarging, closing or relocating window or door openings
Façade: An exterior side of a building; usually the front elevation of the building.
General maintenance and repair: Work meant to remedy damage due to deterioration of a structure or its appurtenances or general wear and tear, which will involve no change in materials, dimensions, design, configuration, color, texture or visual appearance.
Major: Substantive; substantial; as in considerable amount of.
Muntin/Mullion: The strips of the window that divides the glass into panes or lights. Muntins are horizontal, mullions are vertical.
New Construction: The construction of any freestanding structure on a lot that ordinarily requires a permit. This may apply to a variety of activities such as storage buildings, carports & garages, secondary dwellings, etc.
Non-contributing (building/ structure/site) A building, structure or site which no longer reinforces the visual integrity of the district either because it is a vacant parcel, it is a structure that was built outside of the period of significance of the district or it is an historic structure that has lost its integrity through inappropriate additions or the loss of three or more of its original character defining features i.e. porch, windows, siding.
Period of Significance: a. For an individual structure: the date of construction plus or minus ten years; b for a district, the span of time from the date of the oldest building within the boundaries to the date by which significant development ended.
Secondary Front Yard: The non-primary side of a building on a corner lot.
Shall: What must happen.
Should: What must happen unless evidence is presented to illustrate why an alternative is more suitable.
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APPENDIX A
FINANCIAL RESOURCES FOR DEVELOPMENT
In order to promote and encourage private efforts, resources are available to assist with the preservation and rehabilitation of the protected buildings on this site. The Bailey Bill, a significant tax abatement measure adopted by the City of Columbia, is available specifically for the historic buildings which are denoted here as part of the district. Other buildings on campus, unless landmarked locally, are not eligible for the City’s version of the Bailey Bill. Buildings listed on the National Register may be eligible for tax abatement through Richland County. Additionally, tax credits available through the South Carolina Department of Archives and History may be used in conjunction with the Bailey Bill, when buildings are deemed eligible.
Information about the City of Columbia’s Bailey Bill may be found under the ‘Planning and Development Services’ page at http://www.columbiasc.net/.
Inquiries about Richland County’s version of the Bailey Bill may be directed to Joe Cronin, Research Manager, at [email protected].
Information about tax credits administered by the South Carolina Department of Archives and History may be found at http://shpo.sc.gov/.
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APPENDIX B
Bull Street Mental Health Campus
Historical Overview
The 178-acre campus began as a mental health asylum in the early 1800s. The campus, one of only a handful in the United States at that time, represented a revolutionary new sensitivity to caring for the mentally ill, based in part upon the philosophies of Dr. Thomas Story Kirkbride from Pennsylvania. An influential doctor and advocate of this system, Dr. Kirkbride recommended comprehensive planning for the comfort and advanced care of patients. Everything from the plaster on the walls to views from all parts of the building to the situation of all buildings on the land was considered. The earliest buildings on campus were built in the 1820s and the latest ones in the 1980s. Later structures tended to be accessory buildings, such as sheds or greenhouses; architecturally important buildings spanned the years between the 1820s and the 1960s. The Robert Mills designed circa-1828 South Carolina State Asylum and the central portion of the Babcock Building are both listed in the National Register of Historic Places; the South Carolina State Asylum and the center portion of the Babcock Building are also locally landmarked structures.
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The Babcock Building
History
One of the earlier buildings the South Carolina Department of Mental Health’s Bull Street campus, the Babcock Building was built in stages from 1857 to 1875 to be the heart of the entire campus for the treatment of the mentally ill. The oldest parts of the building are actually the wings, which separately housed white male and female patients. These were the work of architects George E. Walker, from Charleston, and Samuel Sloan, from Pennsylvania. The central portion of the building is the most recently built and was completed by 1875. It formerly housed the institution’s administration offices and staff.
Architectural Overview
An excellent example of the Italian Renaissance Revival style, the Babcock Building is a four- story brick building composed of a rectangular central building with two wings. The two wings are positioned to the north and south of the central building and are composed of four rectangular blocks of three and four stories. The south wing, built 1857-1858 and 1870-1876, was the first portion of the building to be constructed. The three-story blocks connect the four-story blocks to one another and to the central building. The four-story blocks have rusticated ground stories, and
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stone courses separate the first and second stories as well as the third and fourth stories. Stone quoins define the corners of these blocks. The three-story blocks also have rusticated ground stories with arched windows. A stone course separates the first and second stories. These blocks notably have a forward projecting central portion distinguished by stone quoins and wooden pediments with brick tympanums. These sections also have pedimented, tabernacle window frames on their second story, a feature absent from the rest of the windows. The block is capped with a brick cornice and a brick parapet that runs behind the cornice and the pediments.
Chapel window Detailing of 1882 section of building
Construction on the north wing, begun in 1880, repeats the composition and detail of the south wing. The only difference in the north wing’s design is that the northern-most, three-story block does not have the central pedimented portion. The 1888 and 1919 Sanborn Fire Insurance maps indicate that both wings consisted of two, three-story blocks and two, four-story blocks; however, the northern most three-story block of the north wing has a later, fourth-story brick addition.
Designed as a focal point, the central portion of the building projects forward of its two wings. Entrance to the building is granted by a formal portico with a broad stairway ascending to the second floor. The portico’s wood entablature is supported by Roman Doric columns, and the
Bull Street Campus Draft Guidelines 5/09 18 corners of the forward projecting bay are detailed with vermiculated stone quoins. Above the portico, on the third story, is a central doorway that opens onto the roof of the portico. This doorway has a stone pediment and is intersected by a stone course separating the third and fourth stories. The majority of the central building’s windows have simple stone surrounds. Large modillion blocks accent the entablature of the portico and that of the entire building. A twelve- sided cupola featuring two-over-two sash windows graces the rear section of the central building and serves as a visual focus for the entire complex.
In 1916, George E. Lafaye designed two, one-story dining halls attached at the easternmost end of the central building. They are constructed of brick with steel truss roofs. Between 1893 and 1898, two stories of a four-story addition were constructed at the rear of the southern four-story block of the north wing. It was designed to match the building’s original design. The top two stories were constructed between 1904 and 1910. Two other additions were constructed and later demolished. These additions were the Taylor Building, which was built adjacent to the south wing between 1898 and 1904 (subsequently razed in 1974), and the North Building that was constructed adjacent to the north wing between 1904 and 1910.
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Laundry Building
Laundry Building, 1992
History
The Laundry building was built in the latter 1880s. As recommended by Dr. Kirkbride’s system, the structure was separated from the main administrative and housing building and was placed directly behind and to the east of the Babcock Building for convenience. The laundry building was supremely practical, not only housing the laundry, but also a mill, a carpentry shop, and an engine shop over time.
Architectural Overview
The level of care built into a structure intended for utilitarian purposes is clear. The 1919 Sanborn shows a footprint somewhat similar to the one there today with additions fairly clear as the building’s uses grew. The masonry building features three front-gabled extensions which cross over a lateral gabled main structure. Decorative brickwork, rectangular gable vents, and a louvered center tower are some of the detailing included on the building. The original standing seam metal roof is still largely intact. Although some doors have been bricked over and some window replacement throughout has occurred, original placement of openings is still obvious.
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Parker Annex
History
The Parker Annex was built by 1919 and is situated to the southeast of the Babcock Building. Originally built to support additional patients from the, circa-1897 Parker Building (demolished in 1980), this building housed male African-American patients.
Architectural Overview
The Parker Annex is a two-story, rectangular masonry building with an original hipped standing seam metal roof. There is a low-pitched front gable at the center of the roof on the front elevation. The front façade features three bays across its upper story and single or tripartite double hung windows with granite sills. Brickwork is laid in an English bond pattern. A flat- roofed porch of metal supported by metal poles extends across the first level. This was a later addition to the building. At the rear of the building is a two-story, flat roofed “tower” connected to the main structure. The rear elevation of this tower has two windows on each floor, while each side has one window per floor.
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LaBorde Building
History
The LaBorde Building was built in the late 1920s to house white males suffering from tuberculosis. It sits in close proximity to the Parker Annex, on the southernmost side of the campus.
Architectural Overview
Built about 1929, the LaBorde Building is a simple, one-story frame structure with a brick veneer and foundation that has been painted white. The building consists of a central, front gabled section with side gabled wings that are connected to the main building by flat-roofed hyphens. A unique feature of the LaBorde Building is the parapetted gable ends on each of the buildings. The standing seam metal roof of each wing has two gabled vents on each side of the structure. The gabled ends of the wings also have rectangular vents. The central building has an arched vent with a keystone above the door on the front façade. The roof of each portion of the building has a flared eave.
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Male and Female Dining Halls
Dining Hall, 1992
History
Two distinct dining halls, one for males and one for females, were established either shortly after the completion of the Babcock Building or in conjunction with its final building phase, around 1918. Each building parallels the wings on the Babcock Building and flanks its perpendicular rear wing, originally used as a kitchen, on its left and right sides. Thus, the dining halls were physically and visually separate from one another but connected to the kitchen and conveniently close to living quarters.
Architecture
Like all buildings composed under the Kirkbride system, these structures were built solidly and to last. Dr. Kirkbride, while not advocating elaborate buildings, felt that key structures for patients should not be clapboard or in any way temporary in appearance or function. Therefore, the use of masonry in all these buildings reflects this philosophy. The one-story rectangular dining halls feature substantial windows to allow for sunlight and fresh and have parapetted gables. Windows are largely double-hung wood windows with a variety of pane configurations, ranging from 6/6 to tripartite windows. All have stone lintels. Some changes to the windows have taken place over the years, including the enclosure of some with brick. The buildings are now connected to the back of the Babcock Building by way of a gabled connected walkway.
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Bakery
History
The bakery building was constructed between 1898 and 1904. Located behind the north wing of the Babcock Building, this support structure is separated from the main living quarters as recommended by the Kirkbride system. It is possible that some of the patients worked in the bakery or other service buildings, as the Kirkbride system proposed useful labor as a healing mechanism for capable patients.
Architectural Overview The bakery is a small building composed of three bays with a gabled roof in the center bay. as the building may initially have been a simple long rectangle. Additions possibly were incorporated over time to meet the growing demands of increasing numbers of patients. Like the other buildings on campus, it is composed of brick. The entry features an arched doorway with a transom and sidelights. The building also has almost floor to ceiling windows with arched openings that mimic the arch of the doorway. The original standing seam metal roof still remains. The square center cupola and the flanking rectangular cupolas (all three act as vents) provide an interesting and unusual note of detail in the roofline.
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Mattress Factory
History
The construction date of the building appears to be between 1900 and 1904 as the building first appears on Sanborn maps as a paint shop and storage facility in 1904. By 1919, its use had shifted to that of a print shop and a mattress factory. It is likely that residents at the hospital came to work here, as they were able and that their products were used for the asylum’s benefit. Although not an elaborate building, the structure is solid and well proportioned and may be a good candidate for adaptive re-use.
Architectural Overview
This is a simple and utilitarian rectangular masonry building with gabled ends and a corrugated steel roof. Window openings appear to be unchanged with some original windows still extant. A firewall at the roof occurs about two-thirds way down the building. Additionally, a lateral gabled vent on the ridgeline is a unique feature of this simple building. A wooden structure with a shed roof has been added onto the north side of the building in the recent past.
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Ensor Building
History
The Ensor Building reflects the middle period of construction on the Bull Street Campus. Built in the 1930s, it was built to serve as a research laboratory. One of the smaller institutional buildings on campus, it is situated to the east of the Williams Building.
Architectural Overview
The Ensor Building, constructed between 1935 and 1939, is a rectangular two-story, brick veneer structure with a flat roof. Its front façade is three bays wide, with each bay being separated by a brick pilaster with stone capital beneath a wide entablature and cornice. The left and right facades are broken into eight bays, with the front and rear most bays separated from the others by similar brick pilasters with stone capitals and entablature. The bases of these pilasters sit above a belt course. The entire structure is capped with a parapet.
The entrance to the Ensor Building is inset into a surround with an arched, stone pediment. Leading to this entryway is a covered walkway with a flat roof and metal posts. It connects the Ensor Building to the Williams Building as well as other buildings within the complex. It is likely a later addition. The Ensor Building has unique windows that are metal, inverted-T casements with fixed vertical panes.
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Williams Building
History
The Williams Building was built in 1938 and originally served patients addicted to drugs and alcohol. It sits at the far point of Pickens Street within the campus and as such plays a pivotal visual role by securing the end of that axis.
Architectural Overview
Constructed circa 1938, the Williams Building is largely a two-story, red brick structure. It is built into a grade so that the right portion of the building has three floors, while the left side appears to have only two stories that are fully above ground. Its central section slightly projects on the front façade, and is separated into bays by pilasters. Large Tuscan columns set on high bases support the structure’s two-story pedimented portico.
Beneath the portico, on the first-story, are three recessed archways with keystones. The central archway contains the main entrance while the two flanking archways contain arched, multi-light windows with panels below. The entrance door has an arched, multi-light window above it that mirrors the arches of the flanking windows. The other first-story windows on this projecting section have stone surrounds with capstones. The windows likely have been altered from their original state and replaced with metal-framed casements with vertical, fixed panes.
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Flanking the central projecting section are two-story wings. These wings have single entrance doors to the lowest level of the building and are plainer than the central projection. The stone cornice of the central section continues the length of the entire building.
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Benet/Horger Buildings
History
The Benet/Horger complex was constructed about 1955. The Benet Building served as the mental health campus’ auditorium, while the Horger Building served as a library. Although these buildings were not built during the institution’s initial period of construction, they serve as examples of the campus’ architectural evolution during the twentieth century.
Architectural Overview
The Benet Auditorium is a rectangular, red brick building with three stories at the rear. Its flat roof features a stone cornice. The middle section of its façade is covered in cut stone from foundation to roofline. This stone area contains three entrances, each having double doors with transoms above. A basement level is visible along the left elevation of the building. This level contains approximately ten windows, while the main level has only two situated toward the rear of the building. There may have been other windows at some point, but those no longer remain. This left elevation also has two entrances covered by a flat metal roof.
The rear of the Benet Auditorium shows evidence of all three floors. The basement level has six windows, the main story has four windows, and the top floor has only two windows. The Horger Library connects to the Benet Auditorium along the right elevation toward the rear. The front half of the auditorium’s right elevation mimics that of the left elevation.
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Horger Library is a one story, irregularly shaped red brick structure. A single entrance with flanking windows takes up the majority of the building’s façade. The double doors of the entryway match those doors found on the Benet Auditorium. The windows on either side of the doors consist of two large pieces of fixed glass with smaller fixed panes above and below. Stone separates these windows from the entryway. The main portion of the library is square and is connected to the auditorium via a rectangular structure situated at the rear of the auditorium/library complex. This rectangular portion is two stories high with several windows on each level. Its right elevation has a secondary entrance covered with a flat roof. The rear elevation has many windows on both the first and second stories. These vary from larger, double windows on the left and right sides of the rear elevation to smaller windows at the center this elevation. Like the Benet Auditorium, the entire Horger Library has a flat roof with a stone cornice.
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Cottages
History The cottages are estimated to have been built in the early 1930s; early structures appear on Sanborn maps as early as 1904 listed as ‘Female Ward’, Superintendent’s House, etc. It is clear that these structures were used to house staff for the asylum, including doctors.
House number 1:
Nursing Administration Building
This one-story, modestly sized Bungalow with simple Arts and Crafts detailing is typical for its period of construction. It rests on a brick foundation and it built of frame construction with a later vinyl-clad exterior. The original windows include single and double frames with 4/1 wood windows. The entryway is recessed and has a unique arched, multi-light wood door. The right elevation of the house has a gabled side porch with brick columns and a slab floor. French doors lead into the house from the porch. The cross-gabled roof is covered with an original metal seam roof. The house has experienced some modifications over the years, but its basic form and style remains the same.
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House number 2:
Facility Director’s Building
The former Facility Director’s house is a one-story Bungalow that also displays Arts and Crafts detailing. It is set on a brick foundation, and its frame construction is covered with vinyl siding, which was a later addition to the structure. The front of the house has a front gabled porch with Doric columns that flank the larger brick porch supports. The house maintains its original 6/1 wood windows. Its entryway has a more modern front door; however, it still maintains a transom. While the vinyl siding has hidden some of the details of the house, the decorative braces indicative of the Arts and Crafts style are still visible. The cross-gabled roof retains its original metal, seam roof.
House number 3:
The third house found among this row of cottages is another one-story Bungalow with Arts and Crafts detailing. The front façade has a front gabled porch with large brick columns. The porch rails are metal, which is obviously a later addition. The vinyl siding that covers the house is a later addition as well. Original 4/1 and 3/1 wood windows can be found throughout the house. The original metal, seam room is still extant today.
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House number 4:
This one-story cottage displays the familiar braces and other Arts and Crafts details found on the other houses; however, it appears that more detailing has been covered up over the years, especially with the addition of the vinyl siding. Its main entryway is situated under a gabled, engaged porch that is supported by very large brick columns. In between these columns are three narrow, wooden square columns. Original 6/1 wood windows can be found throughout the house, and the original metal seam room remains. A gabled dormer jets out from the roof along one of the primary facades. This may have had a vent or some small windows when it was originally constructed. It has since been covered in vinyl.
House number 5:
This cross-gabled, 1 1/2 story Bungalow with Arts and Crafts detailing is the only all brick house in this group. Its front façade has a front gabled porch supported by two brick columns. The
Bull Street Campus Draft Guidelines 5/09 33 right elevation of the house contains a hip-roofed bay window that sits under a gabled projection. Throughout the house are a variety of window groupings ranging from a single window to a triple window. These window are all 4/1 original, wood windows. It also has a metal, seam roof that is currently beginning to rust. Aside from its all brick exterior, this house has two other unique features. It is the only house that has faux timbering in its gables, and there is a gabled one-story addition at its rear. This addition is vinyl-clad with a multi-light door shaded by a shed roof.
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