Report to PRESERVATION COMMISSION City of Sacramento 915 I Street, Sacramento, CA 95814-2671 www.CityofSacramento.org 3 STAFF REPORT November 18, 2015

Members of the Preservation Commission:

Subject: Review and Comment on the Central Shops Historic District Boundaries (P15-040)

Location/Council District:

Railyards Site: Generally east of , south of City Water Treatment Plant and North B Street, west of 12th Street, north and west of the Alkali Flat neighborhood, north of H Street between 5th and 7th, and northwest of 5th and I Street.

Central Shops Historic District: Generally east of Sacramento River, west of 5th Street, north of the UP railroad tracks and south of Railroad Boulevard.

Assessor Parcel Number: 002-0010-049-0000, 002-0010-052-0000, 002-0010-056-0000

Council District 3

Environmental: Subsequent Environmental Impact Report (EIR)

Recommendation: Staff recommends the Preservation Commission review and comment on the proposed modification to the Central Shops Historic District Boundaries. This proposal is part of a development application requesting to modify the previous Sacramento Railyards entitlements that were approved in 2007 and 2010. This project is in the Residential/ Commercial Mixed Use (RCMU-SPD) zone, Office/Residential Use (ORMU-SPD) zone and the Residential Mixed-Use (RMU-SPD) zone in the Sacramento Railyards Special Planning District.

Contact: Teresa Haenggi, Associate Planner, Community Development Department, (916) 808-7554, [email protected]

Applicant: Jay Heckenlively, Downtown Railyard Ventures, LLC 3140 Peacekeeper Way, McClellan, CA 95652

Owners: Downtown Railyards Ventures, LLC 3140 Peacekeeper Way, McClellan, CA 95652 (LLC Members: Larry D. Kelley, Denton Kelley, Jay Heckenlively, Frank Myers, and Alan Hersh)

Item # 3 Subject: Central Shops Historic District Boundaries (P15-040) November 18, 2015

Figure 1: Vicinity Map

Item # 3 Subject: Central Shops Historic District Boundaries (P15-040) November 18, 2015

Table 1: Project Information General Plan designations: Urban Center High, Urban Neighborhood High Density, Public/Quasi- Public, Parks and Recreation Central Shops Historic District: Urban Center High Existing zoning of site: Residential/Commercial Mixed Use (RCMU-SPD), Office/Residential Use (ORMU-SPD), Residential Mixed Use (RMU-SPD) Central Shops Historic District: Residential/Commercial Mixed Use (RCMU-SPD) Property area: Approximately 244 acres Central Shops Historic District: Approximately 17.4 acres

Background: The original Railyards project (P05-097) was approved by the City Council on December 11, 2007. The project involved the development of a maximum of 12,100 dwelling units, 1.4 million square feet of retail, 1,100 hotel rooms, 2.4 million square feet of office, 485,390 square feet of historic/cultural space, and 491,000 square feet of mixed use.

The 2007 approvals included adding the Central Shops Historic District to the Sacramento Register of Historic and Cultural Resources (See Ordinance in Attachment 8.)

A subdivision modification for minor changes was approved by the Planning and Design Commission in 2012 (P10-040). The changes included revising sections of 5th Street and 7th Streets to show two-way traffic; changing the alignment of 5th and 6th Streets; revising the tentative map to reflect the realignment and to accommodate a parking garage. This revision did not affect the Central Shops Historic District.

The applicant is currently proposing to modify the previous entitlement approvals to increase commercial/office uses, decrease the number of residential units, and to allow for a Kaiser Permanente Medical Center and a Major League Soccer (MLS) stadium. The project concept can be found in Attachment 2 and the proposed land use plan in Attachment 3.

The proposed changes to the approved Railyards project include the following:

1. Modifications to the current Sacramento Railyards Specific Plan to allow a net increase in commercial square footage assumptions by approximately 2,137,000 (which includes the Kaiser facilities) square feet and to decrease the residential units by approximately 6,100 dwelling units; 2. Adjustments to the vehicle and pedestrian/bike circulation plans to reflect the new land uses and address site constraints; 3. Adjustments to the parkland and open space plan; and 4. Adjustments to the boundaries of the West End, Central Shops and Riverfront Districts.

The proposal also proposes modifications to boundaries of the Central Shops Historic District in order to better activate the Central Shops area. The applicant describes its proposal for the district boundary modification in Attachment 4, and maps are provided in Attachments 5 and 6. Staff seeks the Preservation Commissions’ review and comment on the proposed boundary modifications.

Item # 3 Subject: Central Shops Historic District Boundaries (P15-040) November 18, 2015

Central Shops Historic District:

The historic significance of the structures within the Central Shops Historic District is associated with the important dates, people, and features of the Transcontinental Railroad construction, operation, and development of the nation’s railroad system. The Central Shops served as the principle shops of the Pacific Lines and Southern Pacific systems between 1968 and 1990. For approximately 80 years, the Central Shops complex had been recognized as the largest integrated industrial complex west of the Rocky Mountains, and perhaps the Mississippi River.

The Central Shops Historic District represents the historic core of the Railyards site. This district consists of seven historic brick railyards buildings from the original Yard, constructed between 1868 and 1917. The Sacramento Railyards Specific Plan defines the Central Shops Historic District by its historic structures as well as the plazas and other open areas that will provide places for uses such as open air markets, cafés and other uses that will increase the accessibility to the historic features.

The current Railyard Specific Plan scales down development along Camille Lane to respect the historic context and to provide a variety of pedestrian paths to connect Camille Lane with the historic shops. The West End District, which is adjacent to the west, north and south of the Central Shops Historic District, contains a transition zone that imposes specific standards for development next to the Central Shops Historic District. The purpose of the Transition Zone is to ensure that new development is compatible with the historic structures.

The Historic and Cultural Resources section of the Specific Plan provides more information on the context and history of the Central Shops (See Attachment 9). The following is a link to the Railyards Specific Plan: http://portal.cityofsacramento.org/Community-Development/Planning/Long-Range/Specific%20Plans

Anticipated Entitlements: Based upon the current proposal, the entitlements listed below would be necessary. The list includes entitlements that require City Council approval. Therefore, the Preservation Commission would make a recommendation on the request to modify the Central Shops Historic District boundaries to the Planning and Design Commission, who would then make recommendations on all entitlements to the City Council. The City Council would have final approval. Staff will be returning to the Preservation Commission in early fall for action on the modifications to the district boundaries. At this stage, staff is looking for early input on the applicant’s proposal.

x General Plan Amendment – designations x General Plan Amendment – circulation element x Rezone x Specific Plan Amendment x Special Planning District Amendment x Design Guideline Amendment x Development Agreement Amendment x Bikeway Master Plan Amendment x Historic District Amendment

Item # 3 Item # 3 Item # 3 Attachment 1: Aerial

Railyards

Central Shops Historic District

Item # 3 Attachment 2

PROJECT CONCEPT

The Sacramento Railyards project site, a 244-acre site in downtown Sacramento, is located immediately north of the Central Business District, east of the Sacramento River and Interstate 5 (I-5) south of North B Street and the Richards Boulevard area, and west of the Alkali Flat Neighborhood (See Figure 1, City of Sacramento Districts Map). The Specific Plan Area is located in the Central City Community Plan (CCCP) area and Downtown area of the City of Sacramento.

Figure 1, City of Sacramento Districts Map Redevelopment of the Railyards area offers a unique opportunity to reinforce and implement the City of Sacramento’s (City) 2035 General Plan vision to be “the most livable city in America”. The Railyards area has the potential to expand the role of the Central City as Sacramento’s regional employment center, commerce, government, sports and entertainment, housing, and education and culture, and to create a transit-oriented mixed-use district as an integral extension of the Central Business District and as a key regional destination. The General Plan emphasizes the following six themes which create the basic framework for updating the 2007 Railyards Specific Plan to match the City’s current goals and policies: i Making greater places; i Growing smarter; i Maintaining a vibrant economy; i Creating a healthy city; i Living lightly-reducing our “carbon footprint”; and i Developing a sustainable future.

Item # 3 By focusing on regional employment opportunities, cultural destinations, and high-quality residential neighborhoods, the proposed Railyards Specific Plan advances the policies of the General Plan, which calls for improved land use efficiency and reduced GHG emissions through healthy jobs-housing balance; multi-modal connectivity; urban centers with jobs, housing, shopping, services, and transit; and advanced green building practices.

The proposed Specific Plan retains and builds upon the primary objectives as laid out in the 2007 adopted Railyards Specific Plan: i Integrate the Railyards area into the fabric of the existing Central City. The Railyards have historically been isolated from the City. Now the opportunity exists to integrate the area from all points, not just downtown, into a seamless patch of the City fabric. i Create a dynamic 24-hour mixed-use urban environment that provides a range of complementary uses- including cultural, office, hospitality, sports and entertainment, retail, health care, educational and open space-and a mixture of housing products, including affordable housing. i Connect the Railyards area with Sacramento’s downtown office, retail, residential, and government centers; as well as Old Sacramento, the Richards Boulevard area, and the adjacent Alkali Flat neighborhood, using pedestrian and bicycle connections, roadways, and public transportation routes. i Connect the Railyards to the Sacramento River waterfront, and allow for hotel, public open space, residential waterfront and recreational uses, consistent with the visions of the 2003 Riverfront Master Plan, that will result in a vibrant waterfront, valuable to the region and the City. i Transform the Railyards from an underutilized and environmentally contaminated industrial site into a transit- oriented, attractive, and nationally renowned mixed-use urban environment. i Capitalize on the historic Central Shops buildings as a heritage tourism draw and as inspiration for a mix of uses that will help to create a culturally-vibrant, urban community. i Create a development that is a regional draw for the City of Sacramento due to its geographic location downtown near the Sacramento River waterfront and its unique mix of transportation, residential, health care campus, cultural, office, hospitality, sports and entertainment, retail, and open space uses and historic sites. i Provide a mixture of uses that complement and support the City’s planned Sacramento Intermodal Transit Facility (SITF) and the State’s Central Valley High-Speed Rail terminus, connecting the Central City to the region, the state and beyond. i Create a sustainable community that utilizes green building technology, water conservation measures and renewable energy sources.

RAILYARDS DISTRICTS CONCEPT Similar to the 2007 Railyards Plan, the proposed plan will be comprised of five districts, as shown in Figure 2, Railyards Districts Map. i Depot District. The connection point of the Railyards site to the Downtown, and home of the new Sacramento Intermodal Transportation Facility (SITF) and its accompanying transit-supportive uses and adjacent mixed uses. i Central Shops District. A mixture of shops, museums, music clubs, galleries, theaters, restaurants and a farmers’ market within and surrounding the historic Central Shops buildings. i West End. This district links the entire Railyards project to the Sacramento River with pedestrian-oriented streetscapes and a range of entertainment, cultural, medical campus, office, and retail activities that add to the regional draw of the Railyards area.

Item # 3 i East End. This will be a new residential mixed use neighborhood that captures the spirit of the city’s traditional open space-oriented neighborhoods with a linear urban park and an open-air sports stadium, seating up to 25,000, for soccer and other sports, entertainment, and civic events. i Riverfront District. This area is the location where the Railyards site connects to the waterfront, with restaurants, a hotel, housing, parks and open space, all featuring spectacular views.

Figure 2, Railyards Districts Map

These districts mix dense urban residential neighborhoods, a historic museum, shopping, and market district, a grand intermodal transit station, a medical campus, a soccer stadium, pedestrian-oriented streets, shopping, entertainment complexes, riverfront access, and vertical high-rise buildings that combine office and housing uses with retail. With all these uses in close proximity, the Railyards area will offer an unprecedented urban network of living, working and entertaining possibilities for the region.

Item # 3 Total Tracks Tracks (acres) South of Item # 3 1,000 ft 1,000 7.5 12.9 20.4 62.4 0.046.8 62.4 0.031.5 46.8 0.2 31.7 148.2 13.1 161.3 Tracks Tracks (acres) North of 100 500 KEY Boundary Site Open Space Water Land Use | Density Maximum - 230 du/ac FAR ORMU | 8.0 Maximum + 230 du/ac FAR RCMU | 5.0 Maximum + 310 du/ac FAR RMU | 1.0 Sports Overlay Facility Use Transit Open Space Easement (with public access) Street Private Tunnel Pedestrian 0 250 ce/Residential ce/Residential nements N SACRAMENTO RAILYARDS SACRAMENTO Offi Mixed Use (ORMU) Residential/ Mixed Commercial Use (RCMU) Residential Mixed Use (RMU) Open Space (OS) Total Note: All numbers are subject to change with further plan All numbers are subject to change Note: refi ttachment 3: Proposed Railyards Land Use Plan

A 16th St 16th

15th St 15th N 12th St 12th N

DATE 2015 20 Oct.

14th St 14th

t

REVISION 16 S LOT 51b St 13th LOT 64

N B St

C St

th St th 3 LOT 51a St 12th DRAWING NO. DRAWING 001

Richards Blvd LOT 52d LOT 63b St 11th LOT 52a

LOT 52b 10th St 10th

LOT 52c LOT 52e N 7th St 7th N LOT 50 LOT 69b LOT 63a LOT 69d

LOT 69a D St LOT 56b

LOT 65

LOT 69c LOT 56d 9th St 9th

E St DRAWING TITLE DRAWING Land Use - Option 1 LOT 56a LOT 56c

F St LOT 67 LOT 62 LOT 70b St 7th LOT 49b LOT 49a

LOT 57b G St LOT 70a LOT 57d

H St LOT 57a

LOT 57c I St

LOT 48a LOT 71 St 6th LOT 48b

LOT 65 LOT 61 LOT 58b LOT 47a 8th St 8th LOT 58d LOT 47b LOT 58a LOT 46a LOT 58c LOT 46b LOT 03b LOT 43b LOT 73a LOT 03d LOT 73b LOT 59b

LOT 43a

LOT 59d LOT 42 LOT 60 LOT 12a N B St LOT 12b St 7th

LOT 03a LOT 17

LOT 03c LOT 59a LOT 45 5th St LOT 59c 5th LOT 44 LOT 04e

LOT 15d

LOT 15b LOT 41 St 6th LOT 02f LOT 20 LOT 02g LOT 15c LOT 40 LOT 15a LOT 72 LOT 21b LOT 22 LOT 04c LOT 04d LOT 04a LOT 04b LOT 11

LOT 10

LOT 5 LOT 23 St 5th LOT 02e LOT 24 LOT 26 LOT 25 LOT 27 LOT 9b LOT 06d LOT 06b

LOT 28

LOT 21a 4th St 4th LOT 9a

LOT 02d Camille Lane Camille LOT 02c LOT 06c LOT 06a

LOT 29

Railyards Blvd Railyards LOT 8b St 3rd LOT 30 LOT 07d

LOT 32 LOT 07b South Park St. Park South LOT 8c

LOT 02b

LOT 8a LOT 02a Bercut St Bercut LOT 31 Interstate 5 Interstate LOT 07c LOT 07a 3e 33d1 33d1 LOT 3 LOT LOT LOT 33c LOT 33b

LOT 33a ac 5.0 LOT 35 LOT 01

LOT 34

Jiboom St Jiboom

SACRAMENTO RIVER SACRAMENTO Proposed Bridge Proposed Land Use - Option 1 Attachment 4

CENTRAL SHOPS CONTEXT AND DESCRIPTION (Provided by Applicant)

The location of the Central Shops District is accessed off of 5th Street and Camille Lane to the north of the mainline. Please refer to Attachment 5, District Plan 2015, for the location and boundary of the Central Shops District.

During the preparation of the last approved Railyards Specific Plan in 2007, the City’s Preservation Board worked closely with the then applicant to create specific policies and design guidance for how the Central Shops buildings are to be preserved, adapted for new uses, and interface with any new buildings within the district boundary and in the Transition Zone.

Attachment 6, Central Shops District Changes, overlays the 2015 land use parcels on the approved 2007 land use parcels to show where the Central Shops District boundary is being proposed for change. The primary driver for this change is slight northward alignment of the Camille Lane and shifting the Transition areas from the eastern and western boundaries to mostly the north of the historic district. This shift in the Transition Zone allows for a more gradual transition from the Union Pacific railway tracks, through the Central Shops District, to the more dense and urban areas north of Camille Lane in the West End District. The Interstate 5 abutting the Central Shops District to the west creates a physical barrier and transition between the River District and the Central Shops District. In general, the proposed boundary change requested for the Central Shops District will increase the land acreage within the district from 11.6 acres (2007) to 12.5 acres (2015), while retaining the same Transition Zone acreage as 7.2 acres (2007, 2015). Although not on a contiguous parcel, the existing water tank located north-west to the intersection between Camille Lane and 5th Street will be part of the proposed Central Shops District boundary, as the structure will be preserved at current location.

The primary purpose of redesignating the Central Shops District boundary is to retain existing historic buildings and adjoining proposed plaza areas to the west within the district boundary, while changing the designation of parcels with new buildings on lots 8, 9, 15 to Transition Zones. This strategy allows the new buildings to better adapt and reinterpret the historic architectural style, massing, and form of the existing Shop buildings. The buildings in the Transition Zone may be designed to be creatively compatible in height and setbacks posed by the Central Shops District to the south and urban scale of the West End District to the north. A dedicated bike-pedestrian plaza connection is proposed along the northern edge of the Central Shops District to provide clear, attractive, and activated multi-modal connection through the historic district to the river.

Attachment 7 includes photos of the Central Shops area and drawings of the existing buildings, as excerpted from the 2007 Nomination Application to the National Register of Historic Places.

Item # 3 Attachment 5 - Existing and Proposed Districts 



Item # 3 Attachment 6 - Central Shops District Changes

$77$&+0(17



Item # 3 Attachment 7: Photographs

Modern Photographs of the Central Pacific Shops

Item # 3 Boiler Shop

Old Erecting Shop Door

New and Old Erecting Shop New Erecting Shop

Item # 3 Erecting Shops (Blacksmith Shop on right)

Car Machine Shop

Item # 3 Car Machine Shop, Planing Mill, and Car Shop No. 3

Car Shop No. 3, Planing Mill, and Car Machine Shop

Item # 3 Blacksmith Shop

Pattern Shop

Item # 3 Paint Shop

Paint Shop Three Story Outhouse

Turntable (Boiler Shop and Firing Lane in Background)

Item # 3 Modern Photographs of the Central Pacific Mainline

  Reconstructed California Stream Navigation Co. Depot Reconstructed Central Pacific Freight Depot 

  Reconstructed Central Pacific Passenger Station 

 Reconstructed Sacramento Waterworks (now Sacramento Central Pacific mainline (Reconstructed Central Discovery Museum) in middle distance. Roundhouse portion Pacific Passenger Station on left) of California State Railroad Museum visible right.

Item # 3  View looking south along the Looking south towards the present Union Pacific mainline Central Pacific mainline and I Street Bridge approach (in background)

  Looking northeast along the Central Pacific mainline Southern Pacific’s industrial  water tower   

Item # 3 Attachment 8: Ordinance

Item # 3 Item # 3 Item # 3 Item # 3 Item # 3 Item # 3 Item # 3 Item # 3 Item # 3 Item # 3 Item # 3 Item # 3 Item # 3 Attachment 9

Historic and Cultural Resources Section of Specific Plan

S ACRAMENTO RAILYARDS SPECIFIC PLAN

Approved by the Sacramento City Council on December 11, 2007 Resolution Number 2007-908

Item # 3 HISTORIC AND CULTURAL RESOURCES 9

This chapter provides a summary of the historic and cultural resources within the Sacramento Railyards Specific Plan Area and provides guid- ance on the preservation and development of the Plan Area’s historic and cultural resources. The chapter begins by describing the prehistoric and historic context of the site, followed by more specific background information about cultural and historic resources on the site. Since the majority of the Railyards’ historic resources are concentrated in the Central Shops and Depot District, this chapter focuses on those portions of the Plan Area.

Item # 3 9 HISTORIC AND CULTURAL RESOURCES

A. Prehistoric and Historic Context Lake, or China Lake, which lay between present day G and I Streets and 2nd and 6th Streets, on For approximately 8,000 years prior to European what is now the southern part of the Railyards exploration and settlement, this part of the site. As industrial waste related to railroad activ- Sacramento River valley was inhabited by indig- ity intensified, this lake became known as China enous nomadic tribes. In particular, the conflu- Slough. The 6th Street and I Street levees were ence of the two major rivers, the now-named built at Sutter Lake in the 1850s in an early effort Sacramento and American Rivers, provided at flood control in this burgeoning business dis- an unusually rich and varied environment for trict. human habitation. Over time, members of the Nisenan tribe settled in the valley, subsisting on The origins of the Sacramento Railyards lie with hunting, gathering and fishing. Evidence exists the coming of rail to the City in the early 1860s. of habitation especially in the areas of what is The Central Pacific Railroad was founded in now Downtown and the southern portions of 1861 by a group of Sacramento businessmen, what is now the Railyards. often referred to as the “Big Four:” Leland Stanford, Charles Crocker, Mark Hopkins, and With the arrival of Europeans in the early 1800s, C.P. Huntington. They were recruited to invest the native population was either displaced or dec- in the railroad company by engineer Theodore imated by disease. The first European to settle in Judah, who was leading an effort to build the the area was John Sutter. Sutter, a German-Swiss California component of the planned trans- pioneer, established a farm and small trading col- continental railroad. In 1861, Central Pacific ony called New Helvetia at the current location was chosen to build the western portion of of midtown Sacramento in 1839. He also estab- the Transcontinental Railroad, from Sacramento lished a sawmill in the Sierra Nevada foothills, through the central Sierra Nevada range to where, in 1848, an employee discovered gold on Promentory Point, Utah. The company built a the American River, leading to the Gold Rush of foundry and a passenger depot in the area of Old 1849. The City of Sacramento was incorporated Sacramento bounded by Front Street, I Street, in 1849. With the influx of new population 2nd Street, and K Street. Tracks were laid north following the Gold Rush, Sacramento began to along Front Street, east along I Street, north grow quickly under the guidance of Sutter’s son, up 6th Street, and east again along the B Street John Sutter, Jr. levee. Central Pacific Railroad began to fill in Sutter Lake in 1863 in anticipation of its facilities The area at the southeast section of the conflu- expansion. ence of the Sacramento and American Rivers was a strategic location for regional trade and com- It soon became necessary to construct a number merce as early as the 1850s. Much of this area of fabrication and maintenance shops in the area was subject to periodic flooding from both the to service railroad operations. A site was chosen rivers and a seasonal water body known as Sutter for the development of these facilities, which

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Item # 3 HISTORIC AND CULTURAL RESOURCES 9

form the core of the area known as the Central Shops into the former lake area. Tracks were Shops, just north of Sutter Lake. A trestle was relocated from I Street north to their current built across the Sutter Lake inlet, effectively alignment with H Street. The Southern Pacific cutting off the Lake from the Sacramento River Depot and the Railway Express Building were and connecting the northern and southern dis- constructed between H Street and I Street in tricts of the rail operations. Construction of the 1925. Central Shops began in 1867 and continued at a rapid pace until 1888, marking the first building Despite a slowdown in activity during the Great “boom” at the Railyards. Depression years, the Railyards remained the largest industrial site west of the Mississippi until The Transcontinental Railroad, linking Omaha, early in World War II. There were a series of Nebraska, and Sacramento, California, was com- factors leading to the decline of activity at the pleted in 1869, one of the most significant Railyards. With the rise of airline travel after events in the history of the growth of the World War II and competition with the grow- nation and California. By 1894, the Shops ing highway network, railroad activity declined. had become the one of the two largest railroad The work in the shops was cut back with change- manufacturing and repair facilities in the coun- over to diesel electric locomotives and passenger try. Buildings constructed in the Central Shops traffic fell. Sacramento water-borne transporta- district during this time include the Roundhouse, tion activities were relocated to West Sacramento the Machine/Erecting Shop, the Boiler Shop, with the completion of the Sacramento River the Woodworking and Car Manufactory, the Deep Water Channel. By the early 1970s, the Blacksmith Shop, the Car Machine Shop, the completion of Interstate 5 between the old river- Paint Shop, the Powerhouse, the Pattern Shop, front embarcadero and the Railyards site cut off the Privy, Car Shop #3, the Pit Transfer Table river-to-rail direct access. and the Flat Transfer Table. In 2007, most of the Railyards site lies vacant and The second surge of construction activity took underutilized, except for the two historic shops place in the period from 1910 to 1925. The structures being used by the State of California Sacramento Bee reported that the Central Pacific Railroad Museum for maintenance and restora- Railroad doubled the size of its facilities in less tion of rolling stock. The improvements and than a decade, adding nine large new buildings development as envisioned in this Specific Plan in the Central Shops in just a few years. Some is designed to publicly reclaim the Railyards area of this development was enabled by the ongoing as an important piece of the heritage and fabric fill of Sutter Lake. In 1906, Southern Pacific of Sacramento. Railroad (Central Pacific’s successor) took con- trol of the entire Sutter Lake site, and by 1910 the lake was completely filled. The Railyards facilities were expanded south, from the Central

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Item # 3 9 HISTORIC AND CULTURAL RESOURCES

B. Historic and Cultural Resources ♦ Southern Pacific Sacramento Shops, Historic American Engineering Record (HAER), CA- This section documents the specific historic and 303, 2001-2002. cultural resources found in or adjacent to the ♦ Historic Architectural Survey Report for the Plan Area. To the extent that information is 7th Street Extension Project, City of Sacramen- available, significant features and characteristics to/CALTRANS, January 2001. are identified as well as historical background ♦ Historic Property Survey Report for the 7th information. The goals and policies found Street Extension Project, City of Sacramento/ in Chapter 4 of this Plan specifically address CALTRANS, March 2001. the preservation and adaptive reuse of historic ♦ and cultural resources described in this section. National Register Nomination Form, Southern Information about these historic resources is Pacific Depot, obtained June 1994. derived from several documents, including: ♦ Preliminary Visual Survey and Qualitative ♦ Archaeological Survey Report/Historic Study Engineering Study on the Southern Pacific Rai- Report for the 7th Street Extension Project, City lyard Buildings, Nolte and Associates, March of Sacramento/CALTRANS, December 2000. 1990. ♦ ♦ Central Pacific/Southern Pacific Railroad Rai- Railyards Specific Plan, City of Sacramento, lyards Historic Property Inventory and Evalu- adopted December 1994, revised April 1997. ation Report, Union Pacific Railroad Compa- ♦ Railyards Specific Plan EIR, City of Sacramen- ny, March 1998. to, June 1992.

TABLE 9.1 DESIGNATIONS OF HISTORIC RESOURCES

Potentially Listed on Listed as Listed on Listed on Structure or Eligible for National State State Local District National Register Landmark Register Register Register Central Shops X District Site of China Slough X (Sutter Lake) Water Tower X Southern Pacific X X X Depot Railway Express X X X Building

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Item # 3 HISTORIC AND CULTURAL RESOURCES 9

For the purposes of description, the Plan Area is its economy. Buildings in the Central Shops, divided into two major subareas of historic and as delineated below, were included in a special cultural resources. The Central Shops District survey area and a city-designated historic district contains the oldest and the largest quantity of will be created to protect and guide the rehabili- historic structures on the Railyards site. The tation and development of the district pursuant Depot District to the south was developed later, to the Historic Preservation Chapter, 17.134, of at the former site of Sutter Lake. the City Code.

1. Central Shops The following text describes the architectural The Central Shops District forms the historic and structural elements of buildings within the core of the Railyards site, and is noted for its col- Central Shops area, as described in the study lection of late-19th century industrial buildings. completed by Nolte Associates in 1990, as well This district was the one of the largest industrial as the historic functions of the buildings. The sites in the country in the early 20th century, locations of the buildings described below are and had a fundamental role in the history of shown in Figure 9-1. California’s settlement and the development of

11

09 05 08 02 06

01. Erecting Shop 02. Masonry Water Closet 04 03. Blacksmith Shop 04. Car Shop 3 07 03 01 05. Planing Mill 06. Paint Shop 07. Boiler Shop 08. Turntable 09. Car Machine Shop 10 10. The Depot 11. Water Tower

Southern Pacific Depot Complex

Central Shops

Study Area Boundary Figure 9-1. Historic Structures

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Item # 3 9 HISTORIC AND CULTURAL RESOURCES

a. Erecting Shop (Building 1) d. Car Shop 3 (Building 4) Construction of the Erecting Shop began in 1867, This building accommodated several functions, and took place in four distinct phases. The origi- beginning with the Governor and Injector Shop nal Engine Rebuild Shop and the Component and later extending to adjacent shops on the Rebuild Shop were constructed circa 1869. Both southern end of the building. The Governor were added onto in 1875, and again in 1888. and Injector Shop were first extended from the Finally, in 1905 or 1906, the Erecting Bays were southeast corner of the Locomotive Wheel Shop expanded to the west of the Erecting Shop. The in 1869. It is a two-story building with 18-inch building is single-story, and is constructed with brick masonry walls. The Rotating Equipment unreinforced brick masonry with no interior Shop and the Air Room were the next extensions walls or lateral load resisting frames. The Engine to the building, added in 1872. They are virtu- Rebuild Shop and Component Rebuild Shop has ally identical one-story buildings with 35-foot- a gable roof of metal decking, and the Erecting high ceilings and windows lining the full length Bays have a separate metal deck roof, both of of the buildings. Finally, the Passenger Car which are supported by an elaborate truss sys- Truck Shop was added to the south end of the tem. building in 1888, consisting of two stories plus a loft above the second floor. b. Building 2-Masonry Water Closet (Building 2) e. Planing Mill (Building 5) The Water Closet found at the joined corner of The Planing Mill was the first project developed the Locomotive Wheel Shop and the Governor in the Central Shops area. Construction of the and Injector Shop served workers in the Central building began in 1867 and was completed in Shops area. Built in 1878, the structure is a three- 1869. It is a three-story unreinforced masonry story, unreinforced masonry building with tim- structure with metal roof decking. Originally the ber roofing members and a metal roof deck. building was used as a Car Shop and Locomotive Wheel Shop, where freight and passenger cars c. Blacksmith Shop (Building 3) were constructed on the first floor. The second Various iron parts, including brake beams, floor contained the Pattern Shop, Cabinet Shop spikes, and coupling links, were manufactured and the Mechanical Offices, and later included an in the Blacksmith Shop, which was constructed Upholstery Shop. in 1869. It is a single-story structure of about 22,000 square feet, divided into north and south f. Paint Shop (Building 6) sections. The exterior walls consist of cast-in- This building, constructed in 1873, was origi- place concrete pilasters, which replaced masonry nally used for painting rail passenger cars. Now walls sometime after 1915. The original cor- approximately 300 feet long by 180 feet wide, rugated steel roof decking is supported by 8x8 the Paint Shop was originally 225 feet long and wood roof trusses. The Machine Shop is the 70 feet wide, with five wings extending from the south section of the building and the north sec- sides for final painting, lettering, and varnish- tion is the Repair Gang Shop.

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Item # 3 HISTORIC AND CULTURAL RESOURCES 9

ing. In 1892, the wings were removed and the floor, and the Plating Room, the Brass Room building widened. In 1894, the building was and Upholstery Shop were located on the second lengthened to its present dimensions. Today floor. A small machine shop and rug cleaning the building is divided into two sections, with a area were later added to the second floor. masonry wall dividing the building. The north section, now known as the Electric Shop, is a j. Water Tower (Building 11) two-story unreinforced masonry structure with A water tower is located northeast of the Central a corrugated metal deck roof; the second story Shops. While the exact date of its construction is was added after 1873 to accommodate paint shop unclear, the water tower could be historically sig- offices. The south portion of the building is now nificant due its functional and spatial association known as the Traction Motor Shop, and is a one- with the Central Shops. In addition, the tower‘s story masonry building with no interior walls or height also makes it a visual landmark for the lateral load-resisting structures. Railyards. The structure consists of a cylindrical tank of riveted metal panels supported 70 feet g. Boiler Shop (Building 7) above the ground by five trussed legs. The Boiler Shop was constructed sometime after 1888 as a new locomotive truck/fabrication k. Site of China Lake shop when the Railyard had outgrown its first China Lake, also known as Sutter Lake and Boiler Shop. The building is a single-story wood later, China Slough, once existed as a seasonally framed structure with three bays. The central flooded lake at the future site of the Railyards. bay is the highest, at 28 feet, and has clerestory The lake stretched between G Street, I Street, windows on both sides above the side bays. Two 2nd Street, and 6th Street. By the early 1850s, overhead cranes are mounted on rails that run residences occupied much of the southern and the length of the center bay. The building has eastern shorelines of the lake, and the Central corrugated steel siding and corrugated transit Pacific Railroad facilities would gradually begin roofing panels. to dominate its northern edge. The lake was commonly regarded as a nuisance due to its h. Turntable (Building 8) stench and tendency to flood areas of central A transfer table is located to the northwest of Sacramento. Beginning in 1863, Central Pacific the Erecting Shops. It is representative of several Railroad filled in China Lake from the north transfer tables that served to move locomotives and west, largely with sand from the American and cars through different stages of construc- River, and by 1910 the lake was completely filled tion. and claimed for Railyard activities. The site of the former lake is designated a State Historic i. Car Machine Shop (Building 9) Landmark (No. 594). The Car Machine Shop was constructed in 1888. Car wheel sets were manufactured on the first

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Item # 3 9 HISTORIC AND CULTURAL RESOURCES

2. Southern Pacific Railroad Sacramento 3. I Street Bridge Depot Adjacent to the Plan Area and spanning the The Southern Pacific Railroad Sacramento Sacramento River is the I Street Bridge, which is Depot, shown as building 10 in Figure 9-1, was listed on the National Register of Historic Places. constructed in 1925, during the second building There are three approaches to the I Street Bridge boom at the Railyards site. It is listed, with its on the east, or Plan Area, side of the bridge. adjacent REA Building, on the National Register None of these approaches are contributing fea- of Historic Places, the California Register of tures of the I Street Bridge. One of the approach- Historical Resources, and the Sacramento Register es, the Jibboom Street Overhead, is anticipated of Historic and Cultural Resources. Designed by to be removed and a replacement ramp will be the San Francisco firm of Bliss and Favrille in a constructed, as described in Chapter 7. simplified Mediterranean style, the building is faced in an Italian pink brick and framed with 4. Archaeological Resources structural steel and concrete. A sloping roof is Many archaeological resource surveys have been covered in russet-colored Mediterranean tiling. performed in the Railyards area over the past 30 In 1926, an average of 64 passenger trains passed years. Historic-period surveys have generally through the Sacramento station daily. The yielded artifacts associated with the settlement Depot replaced three previous depots located and development of downtown Sacramento, but on Front Street and another nearby site, and has pre-historic surveys have been less productive. served as a central gathering point and landmark Virtually the entire site has been extensively for decades. Today, the Depot is used as the pri- disturbed and either paved or filled, making mary station for Amtrak and Capitol Corridor an exhaustive pre-historic-period archaeologi- service in the Sacramento region. cal survey exceedingly difficult. Artifacts and other cultural resources could be discovered The Depot is three stories tall and the first during construction, and mitigation measures in level originally included a waiting room, ticket the Specific Plan Environmental Impact Report counter, baggage room, restaurants, and offices addresses the proper procedure and treatment for for district agents. The second floor housed identification of any subsurface resources prior offices for the Southern Pacific’s lines between to construction and that might be encountered San Francisco and Portland, as well as the during construction activity. company’s private telephone exchange. The third floor included an assembly hall and storage The Plan Area may contain artifacts from the his- rooms. A mural on the east wall of the wait- toric period, particularly extending back to the ing room, created by San Francisco artist John early 1850s when the eastern and southern edges MacQuarrie, depicts development of the first of Sutter Lake were first occupied. Early houses Transcontinental Railroad, with images of the east of Sutter Lake were located behind the 6th “Big Four” investors, engineer Theodore Judah, Street levee, so the easternmost part of the site a Chinese steamer, and the first building of the adjacent to 7th Street may contain historic arti- Central Pacific Railroad.

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Item # 3 HISTORIC AND CULTURAL RESOURCES 9

facts from that period. The site of Sutter Lake the Historic Transition Zone, which has been may also contain historic pieces associated with established to ensure that new development refuse deposits that were common on the shores. adjacent and immediately proximate to the his- The rest of the site has been occupied by railroad toric Central Shops complements these historic facilities since the settlement of Sacramento, and resources in the Specific Plan Area. The City some subsurface industrial artifacts may exist. of Sacramento has adopted the Secretary of the Interior’s Standards for the Treatment of Historic Properties as its standards for review C. Central Shops Historic District of preservation development projects within Historic Districts. Also, additional design guid- A City of Sacramento historic district will be ance specific to both the Historic District and designated pursuant to the Historic Preservation the Historic Transition Zone is provided in the Chapter, Chapter 17.134, of the City Code to Sacramento Railyards Design Guidelines. Please ensure preservation of the historic resources in refer to Chapter 5 of this document for informa- the Central Shops area. The proposed Historic tion on allowable building heights within the District’s boundary is shown in Figure 9-2. Central Shops Historic District.

Also shown in Figure 9-2 is the boundary of BANNON STREET BANNON

NORTH B STREET

JIBBOOM STREET

iNTERSTATE 5iNTERSTATE 5TH STREET

BERCUT DRIVE

NORTH B STREET

SOUTH PARK STREET NORTH PARK STREET

JUDAH STREET SOUTH PARK STREET

6TH STREET STANFORD STREET STANFORD

CROCKER STREET CROCKER 7 TH STREET HUNTINGTON STREET HUNTINGTON

RAILYARDS BOULEVARD 8 TH STREET

RAILYARDS BOULEVARD 9 TH STREET

NORTH 10TH STREET

CAMILLE LANE

6TH STREET JIBBOOM STREET JIBBOOM STEVENS STREET

D STREET

E STREET F STREET 5TH STREET Transition Zone

Central Shops Historic District F STREET G STREET

8TH STREET

6TH STREET

9TH STREET Plan Area Boundary

H STREET 10TH STREET G STREET

11TH STREET 0 200 400 Feet NORTH

12TH STREET Figure 9-2. Central Shops Historic District

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