LAWRENCE HISTORIC RESOURCES COMMISSION

ITEM NO. 8: L-17-00533

STAFF REPORT

 

A.      SUMMARY

 

L-17-00533  Public Hearing for consideration of placing the property located at 413 E. 7th Street, the Santa Fe Depot, on the Lawrence Register of Historic Places.  Submitted by The City of Lawrence, property owner of record.

 

The public hearing for the nomination of the structure to the Lawrence Register of Historic Places will be held at 6:30 p.m., or thereafter, in the City Commission Room at Lawrence City Hall located at 6 E 6th Street.

 

This report includes the proposed environs definition for 413 E. 7th Street, the Santa Fe Depot.

 

 

B.      HISTORIC REGISTER STATUS

 

413 E. 7th Street, the Santa Fe Depot, is not listed on any historic register.  The property has been nominated for the Register of Historic Kansas Places and the National Register of Historic Places and will be considered by the Kansas Sites Board of Review on November 18, 2017.

 

C.      REVIEW CONSIDERATIONS

 

1)      History Summary

 

See attached nomination.

 

 

2)      Architectural Integrity Summary

 

See attached nomination.

 

 

3) Historic and Current Context Description and Environs Definition

 

Historic character information is based on historic photographs, maps and the Historic Resources of Lawrence, Douglas County Kansas Lawrence Modern 1945-1975 Multiple Property Documentation Form approved by the National Park Service in 2014. Current character is based on observation.

 

Because the Santa Fe Depot was constructed in 1955, the City of Lawrence has aerial photos of the property and the surroundings since the construction of the structure.  These photos show that there has been very little change in the 250’ context area since the construction of the building. The commercial and light industrial areas in the area continue the same types of structures and the residential character to the southwest remains. Parking areas to the west and south of the structure continue to exist as well as the railroad right-of-way to the north.

 

Environs Definition Based on the Historic and Current Context Description


 

The environs of the Santa Fe Depot have not significantly changed during the historic period and should be reviewed as four areas. The areas consist of open space on a northwest/northeast axis, the railroad right-of-way on the same axis, the light industrial and commercial areas to the northwest and southeast, and the residential structures to the southwest.  Each of these areas were present at the time of construction and are important to the overall character of the context of the depot.  Therefore, proposed alterations should be evaluated for their relationship to the depot in context with their historic and existing character. 

 

Area 1 Green Space between the Santa Fe Depot and the Kansas River

The primary character of this area in relationship to the Santa Fe Depot has been open space to the river.

All projects will be reviewed administratively by the Historic Resources Administrator. The primary focus of review is maintaining the overall open greenspace. Structures larger than 800 sf should meet the intent of the Criteria set forth in 22-505.

If the project does not meet the Criteria set forth in 22-505, the project will be forwarded to the Historic Resources Commission for review. (*It should be noted that projects in this area will also require review for development in the floodplain.)

 

Area 2 Rail Road Right-of-Way

No building permits are required in this area and therefore no review is required in this area. (*It should be noted that projects in a portion of this area will also require review for development in the floodplain.)

 

Area 3 Commercial and Light Industrial Area

There are no cohesive patterns in this area. 

All projects will be reviewed administratively by the Historic Resources Administrator. The primary focus of review is maintaining the overall character of the area as it relates to the depot including the types of the structures. It is not anticipated that this area will return to residential use. Demolition will be approved if a new structure is proposed. New construction should reflect the overall scale and massing of the existing structures in Area 3.

Projects that do not meet the overall scale and massing of the existing structures in Area 3 will be forwarded to the Historic Resources Commission for review.

 

Area 4 Residential Area

This area maintains the residential character that is very important to the environs of the Santa Fe Depot.

The proposed alteration or construction should meet the intent of the Criteria set forth in 22-505. Important design elements include scale, massing, site placement, height, directional expression, percentage of building coverage to site, setback, roof shapes, rhythm of openings, and sense of entry.  Demolition of properties shall be approved if a compatible structure is proposed on the site.  Maintaining views to the listed property and maintaining the rhythm and pattern within the environs are the primary focus of review.

All projects except for demolition of main structures, new infill construction, or large additions (25% or greater than the footprint of the existing structure) will be reviewed administratively by the Historic Resources Administrator. The proposed alteration or construction should meet the intent of the Criteria set forth in 22-505. The main issues in the review are the continuation of the residential character of the area and whether the project will encroach upon, damage or destroy the environs of the listed property. If the project does not meet the Criteria set forth in 22-505, the project will be forwarded to the Historic Resources Commission for review.

 

Major projects (demolition of main structures, new infill construction, and large additions greater than 25% of the footprint of the existing structure) will be reviewed by the Historic Resources Commission. The proposed alteration or construction should meet the intent of the Criteria set forth in 22-505. The main issues in the review are the continuation of the residential character of the area and if the project will encroach upon, damage or destroy the environs of the listed property.

 

 

 

 

 

 

 

 

 

 

 

 

 

4)      Planning and Zoning Considerations

 

The Santa Fe Depot is located on property owned by Burlington Northern Santa Fe Railroad.  The City of Lawrence owns only the structure on the railroad owned property. 

 

There are six zoning districts represented in the 250’ context area surrounding the Santa Fe Depot. (*It should be noted that all six districts are located in the regulatory floodplain and are included in the Floodplain Management Regulations Overlay District.)  These districts are:

 

Single Dwelling Residential District

The primary purpose of the RS Districts is to accommodate predominantly single detached dwelling units on individual Lots. The districts are intended to create, maintain and promote housing opportunities for individual households, although they do permit nonresidential uses that are compatible with residential neighborhoods. The RS5, Single-Dwelling Residential District is distinguished by 5,000 square feet per lot.

 

Multi Dwelling Residential Districts (RM24, RM12D)

The primary purpose of the RM districts is to accommodate multi-dwelling housing. The districts are intended to create, maintain and promote higher density housing opportunities in areas with good transportation access.  The RM districts are primarily differentiated on the basis of maximum allowed

net density. The RM24, Multi-Dwelling Residential District will allow for 24 dwelling units per acre.

The RM12D District is differentiated from the other RM districts on the basis of building type and the maximum allowed net density. In the RM12D district, the building type is restricted to duplexes or attached dwellings of 2 units. Only one principal building per lot is permitted in this district.

 

General Industrial District

The IG, General Industrial District, is primarily intended to accommodate moderate and high-impact industrial uses, including large scale or specialized industrial operations requiring good transportation access and public facilities and services. The district is generally incompatible with residential areas and low-intensity commercial areas.

 

General Industrial District with Urban Conservation Overlay

The IG-UC, General Industrial District with the Urban Conservation Overlay District zoning, is a specific use district that allows for the base zoning, the IG, to have specific design standards applied to the zoning area.  For this specific area, the Urban Conservation Overlay District Overlay is the 8th and Pennsylvania Urban Conservation Overlay District with the Design Guidelines 8th and Penn Neighborhood Redevelopment Zone the design standards for the district.   

 

Open Space District

The OS, Open Space District, is a special purpose base district intended to preserve and enhance major open space and recreational areas by protecting the natural amenities they possess and by accommodating development that is compatible with those natural amenities.

 

 

5)      Fiscal Comments

 

There are no monetary benefits directly associated with nomination of a structure to the Lawrence Register of Historic Places at this time.  However, Chapter 22 of the Code of the City of Lawrence does identify mechanisms for financial incentives. If these programs become available in the future, structures listed on the Lawrence Register will be eligible for participation.

 

Listing on the local register does help preserve built resources important to Lawrence's history and helps to maintain streetscapes in older neighborhoods through environs reviews.

 

The original information submitted with nominations for properties to the Lawrence Register is kept on file in the City Planning office for public review and consultation with regard to development projects within the notification area.  Copies of this information are also on file at the Kansas Collection in Spencer Research Library on the University of Kansas main campus and at the Watkin’s Community Museum.  This type of information is useful, for example, if present or future property owners seek nomination to the State or National Register of Historic Places.

 

 

6)      Positive/Negative Effects of the Designation

 

The positive effect of designation is the creation of a permanent record of the historical significance of an individual property, for its architectural quality or its association with a significant local individual or event.  This provides the local Historic Resources Commission, an advisory board, with pertinent historical data which can help to provide an ‘historic' perspective to property owners when they desire to improve, add on, or redevelop a property within an older section of the City.

 

The public accessibility of this information is also a resource as it can be used by realtors, builders/developers, and others in the community prior to a property's resale, redevelopment or rehabilitation.  In a more general sense, this information can be used by the Chamber of Commerce and existing businesses and industries to ‘identify' one of the facets that makes up Lawrence's Quality of Living.

 

Additional effects of designation are the creation of an arbitrary, 250' environs notification and review area. Within this 250' circle, projects which require city permits, e.g., demolition, redevelopment, renovation or modification, require review by Historic Resources staff or the Commission.  These environs reviews permit scrutiny of proposed development/redevelopment by individuals sensitive to historic preservation.

 

A Certificate of Appropriateness or a Certificate of Economic Hardship is required to be issued by the Historic Resources Commission before a City permit can be issued for the proposed project.  If the Historic Resources Commission denies a Certificate of Appropriateness or a Certificate of Economic Hardship, the property owner can appeal to the City Commission for a new hearing.  The City Commission can uphold the decision of the HRC or it can grant the proposed development over the Historic Resources Commission's action.

 

Examples of projects which would require review and approval are projects involving the exterior of a building, and demolitions or partial demolitions. Minor changes which require a city permit can be administratively approved by the Historic Resources Administrator.

 

7)      Summary of Applicable Designation Criteria

 

Chapter 22, of the City Code is the Conservation of Historic Resources Code for the City of Lawrence. Section 22-403 of this code establishes criteria for the evaluation of an application for nomination to the Local Register of Historic Places. 

 

 

 

 

D.  CRITERIA FOR EVALUATION AND DESIGNATION - Section 22-403

 

Nine criteria are provided within this section for review and determination of qualification as a Landmark or Historic District.  These criteria are set forth below with staff's recommendations as to which this application qualifies for:

 

(1)   Its character, interest, or value as part of the development, heritage or cultural characteristics of the community, county, state, or nation;

The Santa Fe Depot is significant as the continuation of the development of the City of Lawrence in conjunction with the railroads, both passenger and freight.  It has been utilized almost continually as an active station since construction.

 

(2)  Its location as a site of a significant local, county, state, or national event;

 

(3)    Its identification with a person or persons who significantly contributed to the development of the community, county, state, or nation;

 

(4)  Its embodiment of distinguishing characteristics of an architectural style valuable for the study of a period, type, method of construction, or use of indigenous materials;

 

(5)  Its identification as a work of a master builder, designer, architect, or landscape architect whose individual work has influenced the development of the community, county, state or nation;

 

(6)   Its embodiment of elements of design, detailing, materials, or craftsmanship that render it architecturally significant;

 

413 E. 7th Street, the Santa Fe Depot, is one of the best examples of Midwest Mid-Century Modern architecture in Lawrence.

 

(7)  Its embodiment of design elements that make it structurally or architecturally innovative;

 

(8)  Its unique location or singular physical characteristics that make it an established or familiar visual feature;

The Santa Fe Depot is an iconic structure at the northern terminus of the historic east Lawrence neighborhood and four blocks east from the primary central street of Lawrence’s commercial district. It is the primary structure for current AMTRAK passengers passing thru Lawrence and was the 1st structure associated for many incoming students and visitors in the mid to late 1950s and early 1960s.

 

(9)  Its character as a particularly fine or unique example of a utilitarian structure; including, but not limited to farmhouses, gas stations, or other commercial structures, with a high level of integrity or architectural significance.

 

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The HISTORIC RESOURCES CODE establishes a procedure to follow in the forwarding of a recommendation to the City Commission on applications for listing on the local register.

 

"Following the hearing the commission shall adopt by resolution a recommendation to be submitted to the city commission for either (a) designation as a landmark or historic district; (b) not to designate as a landmark or historic district; or, (c) not to make a recommendation.  The resolution shall be accompanied by a report to the city commission containing the following information:

 

The Historic Resources Commission needs to formulate its recommendation in response to the following subsections section 22-404.2 (B):

 

(1)    Explanation of the significance or lack of significance of the nominated landmark or historic district as it relates to the criteria for designation as set forth in section 22-403;

(2)    Explanation of the integrity or lack of integrity of the nominated landmark or historic district;

(3)    In the case of a nominated landmark found to meet the criteria for designation:

 

(a)    The significant exterior architectural features of the nominated landmark that should be protected; and,

(b)    The types of construction, alteration, demolition, and removal, other than those requiring a building or demolition permit that cannot be undertaken without obtaining a certificate of appropriateness.

(D)  In the case of a nominated historic district found to meet the criteria for designation:

(1)   The types of significant exterior architectural features of the structures within the nominated historic district that should be protected;

(2)   The types of construction, alteration, demolition, and removal, other than those requiring a building or demolition permit that cannot be undertaken without obtaining a certificate of appropriateness.

(3)   A list of all key contributing, contributing and noncontributing sites, structures and objects within the historic district.

(E)  Proposed design guidelines for applying the criteria for review of certificates of appropriateness to the nominated landmark or historic district.

(F)  The relationship of the nominated landmark or historic district to the on-going effort of the commission to identify and nominate all potential areas and structures that meet the criteria for designation.

(G) A map showing the location of the nominated landmark or the boundaries of the nominated historic district.

 

 

 

 

 

 

 

 

E.       RECOMMENDATION:

 

Staff is of the opinion the 413 E. 7th Street, the Santa Fe Depot, qualifies for designation as a Landmark on the Lawrence Register of Historic Places pursuant to Criteria #1, #6, and #8 as described in Section 22-403.

 

Staff recommends the 413 E. 7th Street, the Santa Fe Depot for designation as a Landmark on the Lawrence Register of Historic Places pursuant to Criteria #1, #6, and #8  as described in Section 22-403.

 

If the Historic Resources Commission recommends this property for local nomination, the Commission should adopt a resolution for recommendation to be submitted to the City Commission for designation as a landmark.  In addition to the resolution, the Commission should direct staff to prepare a report to accompany the resolution including the information set forth in Section 22-404.2 and the environs definition.   

 

Staff recommends the following for the report to the City Commission:

 

(1)    Explanation of the significance or lack of significance of the nominated landmark or historic district as it relates to the criteria for designation as set forth in section 22-403;

The Santa Fe Depot is significant for its Midwest Mid-Century architectural style, its contribution to the growth and development of the City of Lawrence associated with the railroad, and its iconic location.

 

 (2)   Explanation of the integrity or lack of integrity of the nominated landmark or historic district;

       

The Santa Fe Depot has tremendous integrity both on the exterior and interior.

 

(3)    In the case of a nominated landmark found to meet the criteria for designation:

(A)    The significant exterior architectural features of the nominated landmark that should be protected; and,

       

        The structure’s form, fenestration pattern, exterior cladding, wide overhanging eaves, flat roof, wall signs, canopies, pipe columns, cement plaster soffits surfaces, glass curtain walls, aluminum vestibule entrances both pattern, size, and locations, cut limestone entry walls, windows, doors, and sills, planter boxes, chimney, and roof band.   

 

(B)    The types of construction, alteration, demolition, and removal, other than those requiring a building or demolition permit that cannot be undertaken without obtaining a certificate of appropriateness.

 

The structure’s form, fenestration pattern, exterior cladding, wide overhanging eaves, flat roof, wall signs, canopies, pipe columns, cement plaster soffits surfaces, glass curtain walls, aluminum vestibule entrances both pattern, size, and locations, cut limestone entry walls, windows, doors, and sills, planter boxes, chimney, and roof band should require a Certificate of Appropriateness.

 

 (E)   Proposed design guidelines for applying the criteria for review of certificates of appropriateness to the nominated landmark or historic district.

 

U.S. Secretary of the Interior's Standards for Rehabilitation, published in 1990, and any future amendments, in addition to any criteria specified by Chapter 22 of the Code of the City of Lawrence, Kansas.

 

The HRC has adopted an Environs Definition for the Santa Fe Depot to delineate how environs review will be conducted in relation to the listed property. (See above)

 

(F)    The relationship of the nominated landmark or historic district to the on-going effort of the commission to identify and nominate all potential areas and structures that meet the criteria for designation.

 

A primary goal of the HRC is to build a Register of properties which show the diversity and growth of Lawrence since its inception.  The nomination of this property is another step toward registering a wide variety of historic properties which together present a visual history of Lawrence’s past.  The goal of the Lawrence Register of Historic Places is to represent all socioeconomic strata; businesses and industries which illustrate the diversity that has been prevalent in Lawrence since its inception.

 

(G)    A map showing the location of the nominated landmark. (Attached)