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City of Berkeley Downto W N Area Plan City of Berkeley Downtown Area Plan Historic Resource Evaluation 5 November 2008 prepared for Lamphier-Gregory Urban Planning & Environmental Analysis Oakland, CA prepared by Architectural Resources Group Architects, Planners & Conservators, Inc. San Francisco, CA Historic Resources Evaluation City of Berkeley, Downtown Area Plan 5 November 2008 I. OVERVIEW/INTRODUCTION At the request of Lamphier‐Gregory, Architectural Resources Group (ARG) has prepared this historic resource evaluation of the Draft Berkeley Downtown Area Plan. The Downtown Area Plan (DAP) is subject to the California Environmental Quality Act (CEQA) because it is a discretionary project that may impact potential historic resources in the plan area. Public Resource Code Section 21084.1 states “a project that may cause a substantial adverse change in the significance of an historical resource is a project that may have a significant effect on the environment.” CEQA defines substantial adverse change in the significance of a resource as the physical demolition, destruction, relocation, or alteration of the resource or its immediate surroundings such that the significance of the resource is materially impaired (CEQA Guidelines 15064.5(b)). The significance of a historic resource is considered to be materially impaired when a project demolishes, or materially alters in an adverse manner, those characteristics that convey its historic significance and/or account for its inclusion on a historic resource list. ARG’s review is based on the Downtown Area Plan (DAP) as adopted by the Downtown Area Plan Advisory Committee (DAPAC), a memorandum from the Berkeley Planning & Development on “DAP Height and Bulk Assumptions” dated 8 September 2008, which updated Policy LU‐1.4.1— LU‐1.4.3 and the following maps or graphics: • EIR Building Height Assumptions (DRAFT), no date. • Potential Streetscapes & Open Space Network, no date. • Historic Resources and Potential Development Opportunity Sites, revised 24 April 2008. The assessment of impact of the DAP on archaeological resources was not part of the scope of this report. METHODOLOGY ARG evaluated the DAP which was adopted by the Downtown Area Plan Advisory Committee (DAPAC) at the end of November 2007. ARG also reviewed the DAP Appendices “Recommendations on ‘City Interests in University Properties’” and “Recommendations on Center Street.” In order to evaluate the impact of the DAP on historic resources, the resources first need to be identified. Although there have been numerous historic resource survey efforts that have encompassed parts of Downtown Berkeley, none comprehensively surveyed the area covered by the current DAP. In preparation for the DAP, at the request of Lamphier‐Gregory, in 2006 and 2007 ARG conducted a reconnaissance survey of and prepared a historic context statement for the Downtown area. At the request of the LPC‐DAPAC Subcommittee, in lieu of California Department of Parks and Recreation 523 (DPR) forms as part of an intensive‐level survey, efforts were directed toward the creation of a reconnaissance survey list incorporating a more extensive set of attributes and conditions than had initially been conceived. As part of the evaluation, ARG ARCHITECTURAL RESOURCES GROUP Architects, Planners & Conservators, Inc. Historic Resources Evaluation City of Berkeley, Downtown Area Plan 5 November 2008 2 gave a preliminary evaluation of the integrity of the resources (high, good, fair, or poor), and verified assessor’s estimated year of construction. An intensive level survey was not conducted, and therefore evaluations of individual significance or eligibility were not made. ARG identified 178 properties that were over 45 years of age, retained a high, good, or fair level of integrity, and had not been documented in past surveys. For the purposes of this report, historic resources will be those noted on the “Historic Resources and Potential Development Opportunity Sites” map included in the “Historic Preservation & Urban Design” chapter and any of the 178 properties identified by ARG as potential resources needing further evaluation. It is unlikely that all of these 178 properties would be historic resources per CEQA , however, without completing an intensive‐level survey, the list cannot be narrowed. For more information on past survey efforts as well as ARG’s 2007 Berkeley Downtown Survey, see “IV. Historic Resources.” II. PROJECT DESCRIPTION For the Project Description, see Draft Environmental Impact Report, Chapter 3: Project Description of the Draft Environmental Impact Report. III. HISTORICAL BACKGROUND Located within Alameda County, California, the development of the City of Berkeley was heavily influenced by East Bay transportation routes and the establishment of the University of California, Berkeley. The principal commercial center for Berkeley began to take shape in 1876 when Francis Kittredge Shattuck and J. L. Barker persuaded the stockholders of the Central Pacific Railroad (later Southern Pacific) to run a spur line through Shattuck’s property. Rail access provided the impetus for new commercial growth in what became Downtown Berkeley. Further, the relocation of the University to lands just east of downtown in 1873 also provided opportunity for commercial growth to support the University community. When the Town of Berkeley was incorporated in 1878, Shattuck Avenue was already established as the city’s “Main Street.” By the 1890s a fully operational rail line with steam trains ran along Shattuck Avenue terminating at what is now Berkeley Square and Shattuck Square. Additional commercial centers established during Berkeley’s early history were West Berkeley (Ocean View), North Berkeley (Berryman’s) and the Telegraph Avenue area, south of the University of California campus. Others which came later were the Elmwood area along College near Ashby, San Pablo Avenue, South Berkeley (formerly the Lorin District), and Thousand Oaks along Solano Avenue. The 1906 Earthquake resulted in an influx of new residents to Berkeley, and businesses in the downtown quickly began to accommodate the expanded population. Downtown Berkeley became a bustling business, commercial, and light industrial center in the 1920s and continued to grow and expand into the 1940s. As with many commercial downtowns in California, post‐ World War II suburban expansion resulted in the creation of new residential and commercial areas away from the historic commercial core. ARCHITECTURAL RESOURCES GROUP Architects, Planners & Conservators, Inc. Historic Resources Evaluation City of Berkeley, Downtown Area Plan 5 November 2008 3 Today, Berkeley’s commercial downtown is eclectic, with numerous businesses, government agencies, and educational institutions reflective of Berkeley’s wealth of ethnic diversity established after World War II. Close proximity to the University of California, Berkeley campus and access to public transportation has enabled Berkeley to expand, grow and thrive. Throughout the downtown there is a mix of older commercial buildings, post‐war development and more recent modern additions to the commercial core. The historic resources present in downtown reflect a wide range of themes and historic contexts including: residential and commercial development; civic, government and educational institutions; transportation; recreation; and cultural groups. For a more detailed history of Berkeley’s Downtown, see the Context Statements in Downtown Berkeley Historic Resources Reconnaissance Survey report by ARG dated August 2007. IV. HISTORIC RESOURCES LISTED PROPERTIES There are many resources that relate to the identified historic contexts associated with Downtown Berkeley. Within the survey area there are 16 resources currently listed on the National Register. These same 16 resources are listed on the California Register; National Register‐listed resources are automatically entered into the California Register (California Code of Regulations Title 14, Chapter 11.5, Section 4851.3). There are 76 resources designated as Berkeley Landmarks and 2 resources designated as Berkeley Structures of Merit. There is 1 historic district present: the Downtown Berkeley Civic Center District (local and National Register designated). There are 66 resources that are on the State Historic Resources Inventory. PREVIOUS SURVEYS CONSULTED There have been numerous historic resource survey efforts that have encompassed parts of Downtown Berkeley. While there is general agreement across previous surveys, many inconsistencies exist, and none comprehensively surveyed the area covered by the current DAP boundaries. Previous surveys include: • 1978 State Historic Resources Inventory (SHRI) • 1987 Berkeley Architectural Heritage Association (BAHA) Survey • 1990 Downtown Plan with BAHA Contributing and Significant buildings identified • 1990 Downtown Plan and EIR • State Historic Preservation Office Cultural Heritage Resource Information System Historic Property Data File for Alameda County, City of Berkeley – printed by State on June 16, 2006 • City of Berkeley Staff Survey ‐ Preliminary staff survey in early efforts for the 2006 Downtown Plan revision ARCHITECTURAL RESOURCES GROUP Architects, Planners & Conservators, Inc. Historic Resources Evaluation City of Berkeley, Downtown Area Plan 5 November 2008 4 • AC Transit Survey (2006) ‐ AC Transit environmental review for the Rapid Transit project 2007 RECONNAISSANCE SURVEY In preparation for the DAP, in 2006 and 2007 ARG conducted a reconnaissance survey of the Downtown area and prepared a historic context
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