SECTION 4.4: CULTURAL RESOURCES

4.4 CULTURAL RESOURCES

Introduction This section describes existing sensitive cultural and historical resources in the project area, regulations protecting those resources, and the potential for the proposed Corridor Plan and Bay Meadows project to impact these resources.1 Mitigation measures for any significant impacts are also identified. This analysis is summarized from: a review of historic building records; a prior archaeological investigation performed by David Chavez, Consulting Archaeologist, for the City of San Mateo Planning Department; and a cultural resource assessment conducted in June 2001 by Basin Research Associates, a consulting firm specializing in the analysis of cultural resources, to identify prehistoric and historic archaeological resources in the project area and vicinity.2

The Basin Research Associates’ assessment included a review of pertinent literature, an historic and archaeological records search, and an historic architectural evaluation. A traditional archaeological field survey was not conducted for this report due to the urban nature of the project area. A separate records search was also completed for the southernmost portion of the Corridor Plan not covered by the Basin Research Associates’ report. This assessment is also based on current planning area conditions obtained through a reconnaissance survey (conducted on August 15, 2001) and published documents pertaining to the planning area.

Throughout this section, references to the Corridor Plan Area include the Bay Meadows project site unless otherwise noted. The setting discussion prepared for the Corridor Plan Area would also be applicable to the regional and local vicinity conditions of the Bay Meadows project site. Discussion of impacts and corresponding mitigation measures are provided separately for each project.

Existing Conditions

Historical Background

City of San Mateo In May 1861, the construction of a railroad to link San Francisco with San Jose began. The track was completed in January 1864 and the first service through San Mateo was on October 17, 1863. The train made the trip from San Francisco to San Mateo in 37 minutes. The first building to be erected near the tracks was

1 Because differences in potential impacts to cultural resources would not occur between Corridor Plan Scenarios A and Z, no distinction between the development scenarios is made in this evaluation.

2 As this assessment is primarily summarized from a cultural resource assessment conducted by Basin Research Associates, this section incorporates by reference all of the sources from Basin Research Associates’ report. The Basin Associates report is available for review in the Planning Division’s case file for this project.

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the train station, but it wasn't long before buildings were constructed in the area of Main Street and Railroad Avenue. This was the beginning of downtown San Mateo.

The opening of railroad service in San Mateo attracted many wealthy San Franciscans to the area. San Mateo became an ideal place for building summer and weekend homes for people who worked in San Francisco. The resulting population that developed in San Mateo was largely made up of people employed in the service of these great mansions. During this period, the wealthy estate owners bought up large parcels of land, keeping the majority of San Mateo property owned by a few families.

In 1889 there were many important events in the developing San Mateo community. Under head engineer, Herman Schussler, the Crystal Springs dam was completed. The completion of this project assured that the people of San Mateo would have quality drinking water, allowing for further growth in the area. The activity surrounding the construction of the dam further added to San Mateo's growing population. It was in the same year as the dam's completion that William Howard had part of his estate opened for subdivision. Although subdividing had been attempted in the past, this was the first successful attempt at selling smaller plots of land. With this, the middle class moved to San Mateo. In this same year, Richard H. Jury and Charles N. Kirkbride established the Leader, San Mateo's first successful newspaper and one of the earliest proponents of the incorporation of San Mateo. On September 3, 1894, in a vote of 150 in favor of and 25 against incorporation, San Mateo became a town (Postel, 1994).

More than half of the Corridor Plan Area was originally part of a salt marsh prior to its development in the 1800s.

Archaeological Resources

Survey Methodology A prehistoric and historic site record and literature search was conducted by personnel of the California Historical Resources Information System, Northwest Information Center (CHRIS/NWIC), Sonoma State University. In addition, reference materials from the Bancroft Library, University of California, Berkeley, an archaeological investigation by David Chavez, and materials on file at Basin Research Associates, were consulted.

Sixteen cultural resources compliance reports on file at the CHRIS/NWIC include the project area or the areas adjacent to the project area. No cultural resource sites have been recorded in, adjacent, or near the proposed project. One recorded prehistoric site along Laurel Creek is situated one half-mile west of the project area on the banks of Laurel Creek at Hacienda Avenue between 36th Avenue and Hillsdale Boulevard (Basin, 2001).

A previous archaeological field inventory of the Bay Meadows Specific Plan (BMSP) EIR project area was conducted in December 1995 and included a portion of the current Bay Meadows project site. Ground

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surface visibility was extremely limited during the survey as approximately 75% of the project area was covered with pavement, buildings, landscaping, imported soils and sand, gravel or chipped asphalt. No prehistoric or historic archaeological materials were noted during the 1995 inventory. The lack of subsurface cultural material was expected since over half of the area was originally part of a salt marsh prior to development (Basin, 2001). According to the construction manager of the Bay Meadows Phase I development, no cultural resources were unearthed during the 60 months of infrastructure construction (Wong, 2003).

Prehistoric Period Native American occupation and use of the general area appears to extend over 5,000-7,000 years and maybe longer. Archaeological information suggests an increase in the prehistoric population over time due to more efficient resource procurement, storage and increasing political complexity.

The project area was within an environmentally advantageous area for Native Americans falling between the resources of the San Francisco bayshore (shellfish, fish, waterfowl, and tule) and the foothills (acorns, seed, game, and stone). In addition, San Mateo Creek north of the project area, Borel Creek (former Arroyo Mocho) and Laurel Creek through the project area provided year-round sources of water and riparian resources. North-south travel would have been relatively easy between the marshy bayshore and rugged hills and several nearby passes provided access to the interior San Andreas rift valleys and the Pacific Coast.

Amateur archaeologist Jerome Hamilton recorded 40 shellmounds along San Mateo Creek and its immediate vicinity from 1896 to 1936. His survey complements the Nelson inventory of the general Bay region which located 425 shell heaps, earth mounds, and a "few minor localities.” The Hamilton Mounds were field checked during a citywide review of archaeological resources in the City of San Mateo (Basin, 2001).

No known or recorded prehistoric sites have been recorded on, adjacent to, or in the vicinity of the project area. The closest known mound site, Hamilton Mound #22, is situated approximately one mile west of the project area on the west bank of the northwest fork of Laurel Creek. A recorded prehistoric site, CA-SMa- 104, is midden in nature and is situated along Laurel Creek approximately one half-mile west of the project area (Basin, 2001).

Historic Period

The project is within the Ramaytush subdivision of the Costanoan,3 which included much of present day San Mateo and San Francisco Counties. Based on Spanish mission records and archaeological data, researchers have estimated a population of 1,400 for the Ramaytush group in 1770 (Basin, 2001).

3 The term Costanoan, as applied by anthropologists, does not imply the existence of a politically unified entity, but rather, refers to different groups of people who shared similar cultural traits and belonged to the same linguistic family. An estimated 200 people of partial Costanoan descent currently reside in the greater San Francisco Bay Area; these individuals now generally prefer the term Ohlone to the anthropologists' Costanoan (Basin, 2001).

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The project area was probably situated at or near a primary settlement of the Ssalson tribelet of the Ramaytush. The Ssalson (San Mateo Area) included seven villages and the main villages of Altagmu, Aleitac, and Uturbe were said to be located along branches of San Mateo Creek. Other tribelet settlements located more distantly include sipliskin in San Bruno, lamsin (or Las Pulgas), and puyson in the Belmont/San Carlos and Palo Alto areas, respectively.

The aboriginal lifeway apparently disappeared by 1810 due to its disruption by EuroAmerican diseases, a declining birth rate, the cataclysmic impact of the mission system and the later secularization of the missions by the Mexican government. The Costanoan were transformed from hunters and gatherers into agricultural laborers who lived at the missions and worked with former neighboring groups such as the Yokut, Miwok, and Patwin. After secularization of the missions between 1834 and 1836, some Native Americans returned to traditional religious and subsistence practices while others labored on Mexican ranchos. Thus, multi-ethnic Indian communities grew up in and around Costanoan territory and provided informant testimony to ethnologists from 1878 to 1933. Former mission neophytes formed multi-tribal Indian communities in various locales (Basin, 2001).

Hispanic Period Spanish explorers in the late 1760s and 1770s were the first Europeans to traverse the San Francisco Peninsula. The first party, that of Gaspar de Portola and Father Juan Crespi, traveled up the coast in search of Monterey Bay but failed to recognize it based on previous descriptions. In the fall of 1769, they first sighted San Francisco Bay from a ridge on the Peninsula. Sergeant Jose Francisco Ortega scouted the area although his exact route remains uncertain. The second Hispanic exploration party, that of Fernando Javier Rivera and Father Francisco Palou, reached the San Francisco Peninsula in late 1774. They selected the Palo Alto area for a mission site, but continued to travel north to San Francisco (Basin, 2001).

Despite Rivera and Palou's recommendations, the lack of a deep harbor near Palo Alto prompted the establishment of both the mission and presidio in San Francisco. In 1776, Colonel Juan Bautista de Anza and Father Pedro Font traveled from Monterey to San Francisco to select the settlement sites. Font, who accompanied Anza's expedition, commented in his diary entry dated Tuesday, March 26, 1776, about a small village of Native Americans on Laurel Creek. This village is likely that of Los Laureles (the Laurels) as named by the Spaniards by 1789. An 1801 document refers to the lower part of the laurelles, likely the valley area in the angle of the hills. They also commented on the existence of “a good-sized village situated on the banks of the arroyo of San Mateo.” On March 29, 1776, the party of explorers camped at the banks of San Mateo Creek north of the project area at Arroyo Court and the north side of Third Avenue in present-day San Mateo (Basin, 2001).

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The Juan Bautista de Anza National Historic Trail 1776 places their northward route along present-day El Camino Real/State Route 82 and their return along Skyline Boulevard.4 El Camino Real/State Route 82 ran from Mission San Diego de Alcala, San Diego to Mission San Francisco de Asis (Mission Dolores), in San Francisco. El Camino Real is listed in The California History Plan and is also a State of California landmark. As a landmark designated #770, it is automatically on the California Register of Historical Resources (California Register). A few months after the return of Anza and Font to Monterey, Lieutenant Jose Moraga led a party of 193 colonists up the Peninsula to settle at the mission and presidio, also camping on San Mateo Creek en route (Basin, 2001).

By 1800, almost all of the Native Americans of the Peninsula had been brought into the mission fold, and as a result the mission area became overcrowded. In addition, the sandy and windswept land made for poor farming, so in the 1780s Palou established a rancheria in San Pedro Valley to re-settle the neophytes and provide food for both the mission and presidio. This settlement was successful until 1791, when an epidemic decimated the native population. Soldiers from the presidio were sent out to round up new converts from the East Bay, and soon a new rancheria was established in San Mateo (Basin, 2001).

In 1793, an adobe was built at the rancheria on the north bank of San Mateo Creek along El Camino Real, the trail connecting the San Francisco outpost with Monterey. This "Hospice" or Outpost of Mission Dolores adobe is within a recorded site (CA-SMa-6) and is located about 10 blocks north of the northern part of the project area (Basin, 2001).

The project area is located on both ungranted land and within lands of the Pulgas Rancho (the fleas) or Cochenetas (variously Cochinitas or little pigs) which extends from San Mateo Creek to Palo Alto. Originally this rancho nacional of the San Francisco Presidio was claimed to have been granted by Governor Diego de Borica in 1795 to Jose D. Arguello and, later by Governor Pablo Vicente de Sola in 1820 or 1821. The formal grant by Governor Jose Castro was made on November 27, 1835 to Luis Arguello and was patented to Maria de la Soledad Ortega de Arguello on October 2, 1857 for 35,240.47 acres.

No Hispanic Period dwellings or other structures are known to have existed in or adjacent to the project area although the locations of the two palizadas,5 an oxide house, and several rammed earth buildings on the Pulgas Rancho are not known. The known locations of the Rancho Pulgas structures were distant to the south of the project area (Basin, 2001).

4 The National Trails System Act as amended through P.L. 102-461, October 23, 1992 defines three types of national trails: National scenic trails, National recreation trails, and National historic trails. National historic trails are extended trails which follow as closely as possible and practicable the original trails or routes of travel of national historical significance. They are established to identify and protect a historic route, plus its historic remnants and artifacts, for public use and enjoyment.

5 Palizada structures, a Spanish variant of the Kentucky log house, were ". . . constructed of poles set upright in the ground and bound together with leather thongs; it was roofed with earth or thatch and sometimes whitewashed in the interior with lime made from sea shells” (Basin, 2001).

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American Period The initial population explosion on the Peninsula was associated with the Gold Rush (1848), followed later by the construction of the transcontinental railroad (1869). Still later, European immigration and the development of a prosperous dairy industry had an impact on population growth in the area. Until about World War II, San Mateo County was dominated by a predominantly agricultural or rural land-use pattern (Basin, 2001).

San Mateo County was created in 1856 from the southern part of San Francisco County and enlarged by annexing part of Santa Cruz County in 1868. The town of San Mateo began to develop in the 1860s. The cultural landscape mainly consisted of large estates and farms from San Francisco to Palo Alto. The City of San Mateo developed into a "business district" in the middle of farm country, complete with “waterfront and shipping industry located where [San Mateo] Creek became a tidal slough.” City growth accelerated with the arrival of the railroad in 1863 and the first plat of the City of San Mateo consisted of about 16 blocks around the railroad depot. Growth accelerated after the San Francisco earthquake and fire of 1906 and World War II (Basin, 2001).

Communities in the project area and vicinity include "Homestead," an 1870 subdivision located near Borel Creek near Borel Avenue and 19th Avenue;6 Beresford, after the Beresford Park subdivision at about 25th Avenue which dates to 1883; and, Laurel Creek, an 1889 subdivision, later named Cottrell on the south side of Laurel Creek. The 1896 USGS topographic map, surveyed in 1892, shows the communities of Homestead and Cottrell, El Camino Real and the railroad tracks with only two east-west oriented streets between them in the northern part of the project area with one continuing west of El Camino Real. At this time, there were three other east-west streets north of Laurel Creek on the west side of El Camino Real. In 1892 and 1914, about 10 structures were located in the project area between El Camino Real and the railroad tracks and one on the west side of El Camino Real in the project area.

The increasing suburban growth in the project area resulted in the annexation of what was known as South San Mateo about 1930. The first retail and office buildings associated with subdivisions in the southern part of San Mateo opened in 1937 at the northwest corner of El Camino Real and 25th Avenue. Developer David Bohannon purchased 848 acres from Buleigh H. Murray west of El Camino Real for a proposed shopping mall and residential complex of apartments and 5,000 homes. He built the first part of his Hillsdale Subdivision in 1940 just west of the project area on Hacienda Street near 31st Avenue along Arbor and Briar Lanes. He replaced the Southern Pacific station variously known as Laurel Creek, Cottrell, Beresford, and Bay Meadows with the Hillsdale train station in 1941 and donated the land for the Hillsdale Branch Library in 1952 (Basin, 2001).

The locations of thirteen 19th century residences that were once present in the project area have been identified. Ten of these structures were located in the project area between El Camino Real and the railroad

6 Also known as Mocho Creek and the Arroyo Mocho (Basin, 2001).

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tracks, one was located on the west side of El Camino Real, and two were located just south of 36th Avenue, north of 39th Avenue, with one structure on the west side of El Camino Real and one of the east side. The location of these archaeologically sensitive areas is shown on Figure 4.4-1.

No historic sites have been recorded in, adjacent to, or near the proposed project area. Previous subsurface impacts to these potential resources are unknown and buried building foundations, privies, trash deposits, and as yet unknown cultural materials associated with other pre-1900 buildings and structures may be present at their former locations.

Historical Architectural Resources

Survey Methodology The principal objective of the architectural field review conducted for the project area was to identify properties within the project area needing further consideration to determine California Register eligibility. The field portion of the review was completed by consulting architectural historian, Mr. Ward Hill, assisted by Mr. Woodruff Minor, on June 5 and 26, 2001 (Basin, 2001). Additionally, historic building records were reviewed along with an archaeological investigation prepared for the City of San Mateo by David Chavez and a separate records search completed by the CHRIS/NWIC for the area of the Corridor Plan extending from 36th Avenue south to the southern boundary of the Corridor Plan Area at North Road.

Regulatory Background In September, 1992, Governor Wilson signed Assembly Bill 2881 which created more specific guidelines for identifying historic resources during the project review process under the California Environmental Quality Act (CEQA):

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. For purposes of this section, an historical resource is a resource listed in, or determined eligible for listing in, the California Register of Historical Resources.7

Consequently, under Section 21084.1 of the Public Resources Code, an historic resource eligible for the California Register would by definition be an historic resource for purposes of CEQA compliance. The Final Guidelines for nominating resources to the California Register were published January 1, 1998. Under the regulations, a number of historic resources are automatically eligible for the California Register if they have been listed under various State, national or local historic resource criteria. Therefore a discussion of the qualifications for eligibility on the California Register, as well as the relevant national and local historic resource laws and policies, follows.

7 California State Assembly, Assembly Bill 2881, Frazee, 1992. An Act to Amend Sections 5020.1, 5020.4, 5020.5, 5024.6 and 21084 of, and to add Sections 5020.7, 5024.1, and 21084.1 to, the Public Resources Code, relating to historic resources.

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Source: EDAW, Inc. 2003 N 0 400 800 1200 feet 1 Historical Buildings FIGURE 4.4-1 Archaeologically Sensitive Areas Corridor Plan Study Area Project Area Archaeologically Sensitive Areas and Buildings Bay Meadows Project Site Potentially Eligible for the California Register of Historic Places San Mateo Corridor Plan and Bay Meadows Specific Plan Amendment EIR 4.4-8 February 2004 SECTION 4.4: CULTURAL RESOURCES

California Register of Historical Resources. The California Register of Historical Resources (California Register) identifies the State’s historical resources and includes architectural, historical, archaeological, and cultural resources. The California Register includes properties listed in or formally designated eligible for the National Register of Historic Places (National Register), and also includes California Registered Landmarks from No. 770 onward.8 A resource can be a building, site, structure, object or historic district.

In order for a resource to be eligible for the California Register, it must satisfy all of the following three criteria:

A. A property must be significant at the local, State or national level, under one or more of the following four criteria of significance (these are essentially the same as the National Register criteria with more emphasis on California history):

1. the resource is associated with events or patterns of events that have made a significant contribution to the broad patterns of local or regional history and cultural heritage of California or the United States. 2. the resource is associated with the lives of persons important to the nation or to California's past. 3. the resource embodies the distinctive characteristics of a type, period, region, or method of construction, or represents the work of a master, or possesses high artistic values. 4. the resource has the potential to yield information important to the prehistory or history of the state or the nation (this criteria applies primarily to archaeological sites).

B. The resource retains historic integrity (defined below); and,

C. It is 50 years old or older (except for rare cases of structures of exceptional significance).

The California Register regulations define “integrity” as “. . . the authenticity of a property's physical identity, evidenced by the survival of characteristics that existed during the property's period of significance,” that is, it must retain enough of its historic character or appearance to be recognizable as an historical resource. Following the National Register integrity criteria, California Register regulations specify that integrity is a quality that applies to historic resources in seven ways: location, design, setting, materials, workmanship, feeling and association.9 A property must retain most of these qualities to possess integrity.

The State Historic Preservation Office (SHPO) also maintains the Directory of Properties in the Historic Property Data File. Properties in the Historic Property Data File are not protected or regulated.

8 Landmarks from Nos. 1 through 769 and California Points of Historical Interest will be evaluated and recommended to the State Historical Resources Commission for inclusion in the California Register when criteria for evaluating properties for listing are adopted.

9 The definition of integrity under the California Register follows National Register of Historic Places criteria. Detailed definitions of the qualities of historic integrity are in National Register Bulletin 15, How to Apply National Register Criteria for Evaluation, published by the National Park Service. National Register Bulletin 15 is online at www.cr.nps.gov/nr/publications.

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California History Plan. The California History Plan (Plan) was issued in the 1970s by the State Department of Parks and Recreation to show how California would comply with the National Historic Preservation Act. It includes information on historic features in California on a county by county basis.

The Plan proposes implementation of a comprehensive program to preserve and interpret California's historic resources. These resources, also referred to as historic features, are defined as the "objects, sites and structures. . . [that] are all that physically remain of an event or activity that played an important part in the development of a local area, the state, the nation or even of other nations.” The actual plan is to increase the staff, funding and responsibilities of the Department of Parks and Recreation to inventory California's history resources, determine each feature's significance, and coordinate the preservation and interpretation of selected features. This proposal is outlined in volume one of the Plan. The second volume is an initial inventory of some 3,000 historic features compiled from various historic site registers. With additional staff, funding, federal and local assistance, the authors expect this list to eventually include approximately 50,000 historic features. Subsequent annual volumes are proposed that will update the statewide inventory, and include revisions of the long range plans outlined in volume one, as well as describe future preservation proposals.

National Register of Historic Places. The criteria for listing on the National Register of Historic Places (National Register) was developed by the Department of Interior for identifying historic resources throughout the United States. Properties can be eligible for the National Register on a national, State, or local level of significance, so that a building that is, for example, significant in the context of the history of a specific city or region, like the City of San Mateo, could potentially be eligible for the National Register at a local level of significance. A structure is considered to be eligible for the National Register if it meets the following criteria:

1. It is a least 50 years of age; 2. It retains integrity of location, design, setting, materials workmanship, feel, and association; and, 3. It has one or more of the following characteristics: • it is associated with events that have made a significant contribution to the broad patterns of our history; • it is associated with the lives of persons significant in our past; • it embodies the distinctive characteristics of a type, period, or method of construction, represents the work of a master, possesses high artistic values, or represents a significant and distinguishable entity whose components may lack individual distinction; and/or, • it has yielded, or may be likely to yield, information important in prehistory or history.

County of San Mateo Historic Properties Directory. The California State Department of Parks and Recreation issues a Historic Properties Directory for each county in the State of California and updates the directories every month. The

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directories serve to identify all properties potentially eligible for local registers, the California Register, and the National Register.

City of San Mateo The City of San Mateo Zoning Code requires that a “. . . proposed development preserve and enhance existing site elements such as, but not limited to, heritage trees, topography, waterways, important historical or architectural resources, views, natural open space and archaeological sites. . . ” (City of San Mateo, 2003).

The City of San Mateo General Plan and Downtown Specific Plan also include policies concerning Historic Preservation, including the following:

General Plan. The Conservation and Open Space Element of the City of San Mateo General Plan includes the following policies concerning historic preservation:

C/OS 8.1: Historic Preservation. Preserve, wherever feasible, historic buildings as follows:

• Prohibit the demolition of historic buildings until a building permit is authorized subject to approval of a planning application for site development. • Require the applicant to submit alternatives on how to preserve the historic building as part of any planning application and implement methods of preservation, unless health and safety requirements cannot be met. • Require that all exterior renovations of historic buildings conform to the Secretary of the Interior’s Standards for Rehabilitation and Guidelines for Rehabilitating Historic Structures. • Historic building shall mean buildings which are on or individually eligible for the National Register or Downtown Historic District contributor buildings as designated by the 1989 Historic Buildings Survey Report. The City Council by resolution may add or delete any building which it finds does, or does not, meet the criteria for the National Register or other criteria defined by the City Council to establish buildings of local historic significance.

C/OS 8.2: Historic Districts. Consider the protection of concentrations of buildings which convey the flavor of local historical periods or provide an atmosphere of exceptional architectural interest or integrity, after additional study.

C/OS 8.3: Structure Rehabilitation. Promote the rehabilitation of historic structures; consider alternative building codes and give historical structures priority status for available rehabilitation funds.

C/OS 8.4: Inventory Maintenance. Establish and maintain an inventory of architecturally, culturally, and historically significant structures and sites.

C/OS 8.5: Public Awareness. Foster public awareness and appreciation of the City’s historic, architectural, and archaeological resources.

The Downtown Plan, an area plan of the General Plan, includes the following policies concerning historic preservation:

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HP-1: Downtown Historic Character. Preserve and retain the historic and architectural character of structures within the downtown.

HP-2: Historic District. Establish a local historic district along portions of Third Avenue and B Street, developing regulations to protect the overall historic and architectural character and integrity of the area.

HP-3: Financial Incentives. Give historic structures priority status for available rehabilitation funds and provide financial incentives for their maintenance and rehabilitation.

HP-4: Health and Safety Requirements. Provide for maintenance of basic health and safety requirements in historic buildings.

HP-5: Individually Eligible Buildings. Prohibit partial or complete demolition of individually eligible buildings, unless health and safety requirements cannot be met. Provide for continued maintenance of individually eligible buildings. All exterior renovation work shall conform to Secretary of the Interior Standards for Rehabilitation and the Guidelines for Rehabilitating Historic Structures.

HP-6: Contributor Buildings. Prohibit demolition of contributor buildings unless there are no other feasible alternatives because of economic, social, or other conditions. All exterior renovation work shall conform to the Secretary of the Interior Standards for Rehabilitation and the Guidelines for Rehabilitating Historic Structures.

HP-7: New Construction and Alteration of Buildings. Not Considered Either Individually Eligible or a Contributor. New construction or alteration of buildings not considered as either individually eligible or a contributor shall comply with established design guidelines for compatibility with historic structures (City of San Mateo, 1999).

Resources Potentially Eligible for the National Register

Corridor Plan Area There are no properties on the National Register within the project area. There are 18 properties on the National Register in the City of San Mateo that are outside of the Corridor Plan Area.

The historic significance of the Bay Meadows grandstand was evaluated in a 1995 EIR for the proposed Bay Meadows Card Club. That EIR concluded that although the Bay Meadows grandstand was old enough to be considered for listing in the National Register, the structure was not considered eligible for the National Register because of the lack of “integrity.” (Integrity is the ability of a property to convey its significance.) The EIR determined that physical changes in the grandstand structure after the 1930s impaired the structure’s integrity (ESA, 1995).

The Bay Meadows grandstand, as well as the buildings in the barn and stable area, were again reviewed in the EIR prepared for the original Bay Meadows Specific Plan – Bay Meadows Phase I (EDAW, 1996). At that time, the barn and stable area again appeared not to meet the criteria for listing in the National Register. Neither the grandstand nor the barn and stable area has ever been found eligible for the California Register or

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for listing on the City of San Mateo’s local register. The barn area and practice track were demolished as part of the implementation of the Bay Meadows Phase I development.

Bay Meadows Project Site Bay Meadows Grandstand Building. The Bay Meadows grandstand building, which was originally constructed in the 1930s, is old enough to be considered for listing in the National Register. However, numerous additions and modifications have been made to it that date from the 1960s through the 1970s. Although Bay Meadows would meet the criterion for listing in the National Register because of its continuous association with providing recreational facilities to the residents of the Bay Area, the additions and modifications that have been made to the grandstand building have compromised the architectural and historical integrity of the original structure. As a result, the grandstand building does not embody the distinctive historical or architectural characteristics of the 1930s, which is the period in which the grandstand building would have achieved its significance (EDAW, 1996).

Bay Meadows Racetrack. As part of the implementation of the Bay Meadows Specific Plan, the 40-acre practice track and 35-acre barn area were demolished and new barns were constructed in the center of the racetrack. Thus the form, plan, space, structure and style of the overall track as it existed in the 1930s has continued to be altered over time. The mere fact that important events took place at a property is not sufficient to meet the criteria for listing in the National Register. For example as noted above, the property needs to retain its integrity as measured by seven qualities, including “feeling” and “association.” A property’s “feeling” is an expression of the aesthetic or historic sense of a particular period of time. A property retains its association with historic events if it is a place where the event or activity occurred and the place is sufficiently intact to convey that relationship to an observer. Like feeling, “association” requires the presence of physical features that convey a property’s historic character. Here, so little of the original 1930s facilities remain that the overall property can no longer be considered eligible.

Eligibility of Bay Meadows Project Site as an Historic District. The buildings on the Bay Meadows project site would not be eligible for the National Register as contributing features of an historic district because the integrity of the grandstand, the most prominent structure at Bay Meadows, has been seriously compromised. The original grandstand was virtually demolished in the 1950s when it was remodeled and expanded, and it received additional alterations in the 1960s and 1970s. However, given that little survives of the original grandstand from 1934, the integrity of Bay Meadows as an historic district has been seriously compromised (EDAW, 1996).

Resources Potentially Eligible for the California Register Potentially significant architectural properties listed on or eligible for the California Register located in or immediately adjacent to the project area were identified. No California Register-listed, significant local, State, or federal historic properties, landmarks, etc. have been recorded within or adjacent to the project area.

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The architectural field review conducted by Basin Research Associates identified eight buildings in the project area as potentially eligible for the California Register. Each of these buildings is described below and is shown on Figure 4.4-1.

1. 1641 Palm Avenue—Bob Reed's Service Station Bob Reed's Service Station at 17th and Palm Avenues is a wood-frame structure with brick veneer and stucco exterior. The building has a red tile roof with prominent exposed rafters. The gas station is a rare surviving example from the 1930s in San Mateo. The building is identified as potentially eligible for the National Register in the Historic Properties Directory for San Mateo County.

2. 1705 Palm Avenue—Palm Theater The Palm Theater, an early 1950s Art Moderne neighborhood movie theater, has a prominent green & white marquee and large entry way recessed below a thin concrete cantilever. The building has a long rectangular plan and it is constructed of reinforced concrete. The theater appears to retain a high level of historic integrity. It is the only movie theater remaining today in San Mateo. The theater may be eligible under Criteria 1 and 3 of the California Register.

3. 1712 Ivy Street—Neo-Classical House This c. 1910 neoclassical revival house is a wood-frame structure covered with clapboard siding. The house has a prominent rounded corner bay with a conical roof and a dormer with a hipped roof. The house is on a raised base. A prominent stair leads to the entrance porch. The recessed front entrance porch has paired Ionic columns set on a perimeter wall. This house is an excellent example of its period and style in San Mateo. The house appears to retain excellent historic integrity. The building is identified as potentially eligible for the National Register in the Historic Properties Directory for San Mateo County.

4. 1753 Gum Street—Craftsman Style House and Adjacent Orchard The c. 1910 Craftsman Style house and the adjacent 1-2 acre orchard may be a rare surviving farm in San Mateo. The property includes outbuildings east of the house. The wood-frame house has a raised base, exterior clapboard siding and a gable roof with exposed rafters and front brackets. The property may be eligible for the California Register under Criterion 1 because of its associations with local patterns of history.

5. Fiesta Gardens International School—1001 Bermuda Drive The early 1950s Fiesta Gardens School was constructed in conjunction with the adjacent residential community. The wood-frame buildings have flat roofs with two-story sections with diagonal roofs. The exterior walls are covered with narrow, vertical wood siding. The buildings include classrooms and school offices. The school may be eligible for the California Register under at least Criterion 3 as a locally significant example of a Post-World War II Modernist school design.

6. 2446-2456 S. El Camino Real, 8 & 12 West 25th Avenue—Art Deco Apartments and Retail Shops This large, c. 1930 Art Deco Style building occupies a very prominent corner at El Camino Real and West 25th Avenue (addresses on both streets). The two-story building has ground floor retail and apartments above. The especially elaborate, stepped cast-concrete cornice creates dramatic building profile. A series of large pointed arch inset panels run between the first and second floors. While the storefronts have been remodeled, overall the building appears to retain a high level of integrity. The building appears to be significant under Criterion 3 of the California Register. The building is identified as potentially eligible for the National Register in the Historic Properties Directory for San Mateo County.

7. 2645 S. El Camino Real—Ah Sam Florist Retail Store and Greenhouses in Back This c. 1950 Modernist retail store for this longtime San Mateo business appears to be significant under both Criteria 1 and 3 of the California Register. The wood-frame, stucco retail building with a prominent

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glazed storefront appears to date from the 1950s. East of the retail building are two original c. 1930s greenhouses related to the Ah Sam nursery operation. The Ah Sam business is probably the only surviving link to San Mateo's horticultural past. Flower nurseries, often operated by individuals of Asian or Italian descent, were common in the vicinity of the Southern Pacific Railroad tracks throughout the San Francisco Peninsula from the 19th century to the post-World War II years.

8. 3333 South El Camino Real—Hillsdale Southern Pacific Railroad Depot The 1941 Hillsdale Depot is a wood-frame classical style building. A 1991 historic evaluation of the Southern Pacific Railroad Depot conducted by Caltrans indicated it was not eligible for the National Register (Caltrans, 1991). The Depot needs to be re-evaluated under California Register criteria.

Impacts and Mitigation Measures

Significance Criteria In accordance with Appendix G of the CEQA Guidelines, the proposed Corridor Plan and Bay Meadows project could have a significant impact to cultural resources if they would:

• Cause a substantial adverse change in the significance of a historical resource as defined in Section 15064.5 of the CEQA Guidelines; • Cause a substantial adverse change in the significance of an archaeological resource pursuant to Section 15064.5 of the CEQA Guidelines; • Directly or indirectly destroy a unique paleontological resource or site or unique geologic feature; or • Disturb any human remains, including those interred outside of formal cemeteries.

Section 15064.5 defines an historical resource as a resource listed in, or determined to be eligible by the State Historical Resources Commission for listing in the California Register. A resource is considered eligible for inclusion on the California Register if it “is associated with events that have made a significant contribution to the broad patterns of California’s history and cultural heritage; is associated with the lives of persons important in our past; embodies the distinctive characteristics of a type, period, region, or method of construction, or represents the work of an important creative individual, or possesses artistic values; or has yielded, or may be likely to yield, information important in prehistory or history.” In addition, listing in a local register of historical resources, or any object, building, site, area, place, record or manuscript that a lead agency determines, by substantial evidence “in light of the whole record,” may be considered to be historically significant.

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Methodology

The potential for the proposed Corridor Plan10 and Bay Meadows project to impact cultural resources is discussed below. Mitigation measures for any significant impacts are also identified. The discussion of impacts and corresponding mitigation measures are provided separately for each project.

Corridor Plan Impacts and Mitigation Measures

Archaeological Resources Impact Cultural-CP1: Adoption of the Corridor Plan (Scenarios A and Z) would increase the likelihood that unidentified, potentially significant, subsurface cultural resources in the Corridor Plan Area could be adversely affected as a result of ground-disturbing construction activities. This is a potentially significant impact.

Adoption of the Corridor Plan would increase the probability of redevelopment in the Corridor Plan Area and therefore could potentially increase the probability that unknown or unrecorded subsurface resources would be disturbed. Construction activities associated with a particular development or infrastructure project within the Corridor Plan Area involving ground-disturbing activities such as grading, excavation, or construction of building foundations or other subsurface structures, could adversely impact subsurface archaeological sites that may be located on the project site but have yet to be identified. As described above, based on the records search and field survey conducted for this EIR, as well as previous surveys, no indications of archaeological resources were found or have been previously recorded in or adjacent to the project area.

Mitigation Measure Cultural-CP1: The City of San Mateo shall require implementation of a monitoring and response procedure during construction of any proposed project within the project area in order to avoid adverse effects on potentially significant archaeological resources. Specific steps in the procedure are described below:

Cultural-CP1a: Prior to construction, the construction contractor and subcontractors shall be informed of the legal and regulatory consequences of knowingly destroying cultural resources or removing artifacts, human remains, bottles, and other significant cultural materials from the site. Significant cultural materials include but are not limited to: aboriginal human remains; chipped stone; groundstone; shell and bone artifacts; concentrations of fire-cracked rock; ash and charcoal; shell; bone; and historic features such as privies or building foundations.

Cultural-CP1b: If, during any phase of project construction, archaeological resources or human remains are discovered, work shall be halted within a 50-foot radius of the find. Work shall not be resumed until the find has been evaluated and potential significance determined by a qualified professional archaeologist.

10 Because differences in potential impacts would not occur between Corridor Plan Scenarios A and Z, no distinction between the development scenarios is made in this evaluation.

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Cultural-1CPc: If the qualified archaeologist determines that any finds are significant, then representatives of the construction contractor, the City of San Mateo, and the qualified archaeologist shall determine the appropriate course of action. In the event that human remains are discovered, the provisions outlined in CEQA Guidelines Section 15064.5 shall be implemented. This would require consultation with the Native American Heritage Commission, if the remains are Native American.

Cultural-CP1d: All artifacts or samples collected as part of the initial discovery, monitoring, or mitigation shall be properly preserved, catalogued, analyzed, evaluated, and curated along with the associated documentation in a professional manner consistent with current archaeological standards.

Significance After Mitigation: Less than significant. ______

Historical Architectural Resources Impact Cultural-CP2: Adoption of the Corridor Plan (Scenarios A and Z) could result in improvements to and redevelopment along El Camino Real/State Route 82, a State of California landmark listed in The California History Plan. This would be a less than significant impact.

El Camino Real/State Route 82 is a State of California Landmark, is on the California Register of Historical Resources, and is listed in The California History Plan because it follows the northward route of the 1776 Juan Bautista de Anza National Historic Trail. Adoption of the Corridor Plan would not change the existing alignment of El Camino Real/State Route 82 and therefore would not affect its status as a historic landmark. The proposed project would have no impact on the value of El Camino Real/State Route 82 as a National Historic Trail. As previously mentioned, The National Trails System Act as amended through P.L. 102-461, October 23, 1992 defines three types of national trails: National scenic trails, National recreation trails, and National historic trails. National historic trails are extended trails which follow as closely as possible and practicable the original trails or routes of travel of national historical significance. They are established to identify and protect a historic route, plus its historic remnants and artifacts, for public use and enjoyment.

Mitigation Measure Cultural-CP2: None required. ______

Impact Cultural-CP3: Adoption of the Corridor Plan (Scenarios A and Z) would increase the likelihood that one or more of the eight buildings and structures identified as potentially eligible for the California Register could be substantially altered. This would be a significant impact.

Adoption of the Corridor Plan would increase the probability of redevelopment in the Corridor Plan Area and therefore could increase the probability that one or more of the California Register-eligible structures would be demolished or substantially altered. Demolition or a lesser form of substantial alteration would make a building ineligible for listing on the California Register that otherwise would have been eligible. This would be a significant impact.

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Mitigation Measure Cultural-CP3: At such a time as an application for a development project is submitted to the City that involved substantial alteration or demolition of one or more of these historic resources, the project would be subject to environmental review compliance under CEQA and administered by the City. If the environmental review for the development proposal concludes that the proposal would result in a significant impact to an historic resource, the City would require implementation of the following measures:

Cultural-CP3a: Before project implementation, the project sponsor of the specific development proposal shall consider feasible alternatives to demolition/substantial alteration and, if not feasible, then the City shall require the project sponsor to retain an architectural historian to completely record the historic resource(s) to the standards of a Historic American Engineering Record. Recordation of the resource(s) would result in permanent documentation of the architectural, visual, and historic context of the resource(s) and would give historians and others access to documentation on pre-project conditions.

Cultural-CP3b: Prior to occupancy of the project, the City shall require that a public interpretive feature such as a plaque or sign be installed in a public space on the project site.

Significance after Mitigation: Significant Unavoidable. ______

Impact Cultural-CP4: Adoption of the Corridor Plan (Scenarios A and Z) would potentially result in the demolition of the Bay Meadows Racetrack, including its related structures. This would be a less than significant impact.

Adoption of the Corridor Plan would be expected to result in redevelopment of the Bay Meadows property, which would result in the demolition of the Bay Meadows Racetrack, including its grandstand and accessory structures. The grandstand, the most prominent structure at Bay Meadows, was previously substantially compromised by changes made in the 1960s and 1970s. As part of the implementation of the Bay Meadows Specific Plan in 1997, the barn areas, stable and practice track were demolished and new barns were constructed in the racetrack in-field. The track has been the subject of two earlier historic resources assessments, one in 1995 when a card room was proposed at Bay Meadows, and again in 1996 in connection with the Bay Meadows Specific Plan. These assessments concluded that neither the grandstand nor the barn and practice track area qualified as historic resources. The changes that have taken place since the approval of the Bay Meadows Specific Plan created further alterations to the historic appearance of the track and its environment.

Similarly, the historic resource assessment conducted for this EIR in 2001 by Basin Research Associates indicated that the structures located within the barn and stable area do not appear to be individually eligible for the National Register or the California Register as they either are not old enough or are not exceptional examples of their type. Additionally, the buildings do not appear to be eligible for the National Register or California Register as contributing features to an historic district (including the grandstand and the racetrack) because the integrity of the grandstand has been substantially compromised. Therefore, the Corridor Plan

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would result in less than significant impacts related to historic architectural resources on the Bay Meadows property.

Although the racetrack (including its related facilities) is not considered an historical resource, during the scoping process, several commenters expressed the perception that the loss of the racetrack would have an impact on a historic resource. Because the racetrack does not appear to be eligible for listing on the California Register, the Corridor Plan would result in less than significant impacts, and no mitigation is required. Nonetheless, because of the issues raised during the scoping process, the following Improvement Measures are recommended so that the history of the track may be appropriately documented:

• Prior to demolition of the Bay Meadows site, the sponsor of the project should take steps to document the site in accordance with Historic American Building Survey (HABS) procedures as stipulated by the National Park Service. Through extensive research, a written narrative, drawings, site plans, and large format photography, HABS documentation would provide a comprehensive record of the history of the facility and its builders and patrons, the historical context within which it was built, its construction methods, and its physical features; and • Prior to demolition of the Bay Meadows site the sponsor of the project should provide an opportunity for the San Mateo County Historical Society to survey the site prior to demolition and remove any fixtures or other site components the Society would deem as valuable for its archives.

Mitigation Measure Cultural-CP4: None required. ______

Bay Meadows Project Impacts and Mitigation Measures

Archaeological Resources Impact Cultural-BM1: The proposed Bay Meadows project would result in ground-disturbing construction activities that could adversely affect unidentified, potentially significant, subsurface cultural resources on the Bay Meadows project site. This is a potentially significant impact.

Project-related construction activities within the Bay Meadows project site involving ground-disturbing activities such as grading, excavation, or construction of building foundations or other subsurface structures, could result in potentially significant impacts to any subsurface archaeological sites that may be located on the project site but have yet to be identified. As described above, based on the records search and field survey conducted for this EIR, as well as previous surveys, no indications of archaeological resources were found or have been previously recorded in or adjacent to the project site.

Mitigation Measure Cultural-BM1: The project sponsor shall implement a monitoring and response procedure during construction of the proposed project in order to avoid adverse effects on potentially significant archaeological resources on the project site. Specific steps in the procedure are described below:

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Cultural-BM1a: Prior to construction, the construction contractor and subcontractors shall be informed of the legal and regulatory consequences of knowingly destroying cultural resources or removing artifacts, human remains, bottles, and other significant cultural materials from the site. Significant cultural materials include but are not limited to: aboriginal human remains; chipped stone; groundstone; shell and bone artifacts; concentrations of fire-cracked rock; ash and charcoal; shell; bone; and historic features such as privies or building foundations.

Cultural-BM1b: If, during any phase of project construction, archaeological resources or human remains are discovered, work shall be halted within a 50-foot radius of the find. Work shall not be resumed until the find has been evaluated and potential significance determined by a qualified professional archaeologist.

Cultural-BM1c: If the qualified archaeologist determines that any finds are significant, then representatives of the construction contractor, the project sponsor, the City of San Mateo, and the qualified archaeologist shall determine the appropriate course of action. In the event that human remains are discovered, the provisions outlined in CEQA Guidelines Appendix K shall be implemented. This would require consultation with the Native American Heritage Commission, if the remains are Native American.

Cultural-BM1d: All artifacts or samples collected as part of the initial discovery, monitoring, or mitigation shall be properly preserved, cataloged, analyzed, evaluated, and curated along with the associated documentation in a professional manner consistent with current archaeological standards.

Significance After Mitigation: Less than significant. ______

Historic Architectural Resources Impact Cultural-BM2: The proposed Bay Meadows project would result in the demolition of the Bay Meadows Racetrack, including its related structures. This would be a less than significant impact.

The proposed project would result in the demolition of the Bay Meadows Racetrack, including its grandstand and accessory structures. The grandstand, the most prominent structure at Bay Meadows, was previously substantially compromised by changes made in the 1960s and 1970s. As part of the implementation of the Bay Meadows Specific Plan in 1997, the barn areas, stable and practice track were demolished and new barns were constructed in the racetrack in-field. The track has been the subject of two earlier historic resources assessments, one in 1995 when a card room was proposed at Bay Meadows, and again in 1996 in connection with the Bay Meadows Specific Plan. These assessments concluded that neither the grandstand nor the barn and practice track area qualified as historic resources. The changes that have taken place since the approval of the Bay Meadows Specific Plan created further alterations to the historic appearance of the track and its environment.

Similarly, the historic resource assessment conducted for this EIR in 2001 by Basin Research Associates indicated that the structures located within the barn and stable area do not appear to be individually eligible for the National Register or the California Register as they either are not old enough or are not exceptional

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examples of their type. Additionally, the buildings do not appear to be eligible for the National Register or California Register as contributing features to an historic district (including the grandstand and the racetrack) because the integrity of the grandstand has been substantially compromised. Therefore, the proposed project would result in less than significant impacts related to historic architectural resources.

Although the racetrack (including its related facilities) is not considered an historical resource, during the scoping process, several commenters expressed the perception that the loss of the racetrack would have an impact on a historic resource. Because the racetrack does not appear to be eligible for listing on the California Register, the project would result in less than significant impacts, and no mitigation is required. Nonetheless, because of the issues raised during the scoping process, the following Improvement Measures are recommended so that the history of the track may be appropriately documented:

• Prior to demolition of the Bay Meadows site the project sponsor should take steps to document the site in accordance with Historic American Building Survey (HABS) procedures as stipulated by the National Park Service. Through extensive research, a written narrative, drawings, site plans, and large format photography, HABS documentation would provide a comprehensive record of the history of the facility and its builders and patrons, the historical context within which it was built, its construction methods, and its physical features; and • Prior to demolition of the Bay Meadows site the project sponsor should provide an opportunity for the San Mateo County Historical Society to survey the site prior to demolition and remove any fixtures or other site components the Society would deem as valuable for its archives.

Mitigation Measure Cultural-BM2: None required. ______

REFERENCES

Basin Research Associates, Initial Study (Revised) - Cultural Resources (Archaeological/Architectural), Phase II Corridor Plan EIR and Bay Meadows II Specific Plan EIR, City of San Mateo, San Mateo County, August 31, 2001.

Caltrans District 4, Environmental Analysis Branch, Historic Property Survey Report, 635001, Caltrain-Hillsdale Train Depot, January, 1991.

Chavez, David, Draft Citywide Archaeological Investigations, City of San Mateo, California, May, 1983.

City of San Mateo, San Mateo Cinema and Main Street Garage, Draft Environmental Impact Report, Chapter III.G -- Cultural Resources, April, 1999.

City of San Mateo, Municipal Codes, Chapter 27.62: Planned Developments—Special Use Permits, 2003.

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EDAW, Bay Meadows Specific Plan and Route 101/Hillsdale Boulevard Interchange Modifications Project, Draft Environmental Impact Report, October, 2003.

Environmental Science Associates (ESA), Bay Meadows Card Club Environmental Impact Report, March 6, 1995.

Postel, Mitchell P., San Mateo, A Centennial History, San Mateo County Historical Society (as summarized by the City of San Mateo), 1994.

Wickert, Linda, Survey Coordinator, San Mateo County Historical Association, City of San Mateo Historical Building Survey Final Report, September, 1989.

Wong, Dennis, Swinerton Management and Consulting, Inc., Memorandum to Dan Cohen, EDAW, Inc., November 24, 2003.

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