To: PUBLIC AMENITIES COMMISSION
From: Stacey Kinsella, Senior Planner
TITLE
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RECEIVE AND FILE AN OVERVIEW OF PRESERVATION
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EXECUTIVE SUMMARY
The Preservation Ordinance (No. 2554) was adopted by the Redondo Beach City Council on August 31,1989 (Title 10, Chapter 4). The purpose of the Preservation Program is to identify and protect historic resources that represent significant elements of the City’s history. Per Municipal Code Section 10-4.104, a historic resource is defined as “any improvement, building, structure, landscape, sign, feature, site, place or area of scientific, aesthetic, educational, cultural, architectural, or historic significance to the citizens of the City”.
BACKGROUND
Historic Resources Inventory
Prior to the adoption of the Preservation Ordinance, preservation consultants performed a windshield survey of the southern region of Redondo Beach in 1986. The survey resulted in the identification of approximately 1,400 properties as potential historic resources. The survey included some commercial properties, but focused primarily on residential resources. Another survey was conducted in 1996 (see attached), which focused on the region of Redondo Beach north of 190th Street. This survey identified approximately 1,565 properties as potential historic resources. A partial re-survey of south Redondo Beach was conducted in 2000 to update the information collected in 1986 and to incorporate historic resources that became fifty years of age since the original survey effort.
The City’s Historic Resources Inventory includes the properties identified during the various survey efforts. Because properties age and resources not previously identified are lost to redevelopment, it is considered good practice to periodically re-survey city neighborhoods. In 2022, the City Council approved the allocation of $175,000 for a new citywide historic resources inventory. The new survey aims to be comprehensive, including both commercial and residential properties. The survey will also go beyond a “windshield” method and require that preservation consultants walk neighborhoods to properly assess each site. The Request for Proposal has been drafted and will most likely be released to the public in early 2025.
Historic Context Statement
Between survey efforts, the City’s Historic Context Statement was created in 1995 (see attached). The context statement provides an overview of the City’s history, highlighting the major growth milestones of the community. The context statement details the early ranching life, California statehood in 1850, the wharves and lumber shipping along the coastline, as well as the focus of becoming a seaside resort destination. Investors like Henry Huntington hoped to cultivate a high-end community with beachside amusements as well as lucrative industrial ventures. Storms damaged the wharves and city residents desired the removal of the railroad and shipping pollution immediately adjacent to the beach. The dual vision for Redondo Beach as both an industrial money-making port and a resort destination shifted into one, more cohesive plan - to be a resort community serving residents and tourists.
The northern portion of the City, beyond 190th Street, was originally agricultural land with small farms growing specialty crops like the Spineless Cactus. The farming community was largely self-managed through the creation of a cooperative stock company and various associations. Oil strikes in this region brought some financial investments in the early 1920s, however, there was a real need for public services. Fortunately, the city annexed this area in 1927 which provided paved roads, expanded school services, and a new fire station. Farming and oil prospecting slowly shifted into subdivisions for housing. In response to World War II, employees of the defense industry moved their families here, which gave way to a commercial boom along Aviation and Artesia Boulevards.
Landmark Designation
While the Historic Resources Inventory identifies potentially historic properties, not all properties surveyed will be found eligible for local landmark designation. In order for a property to be found eligible as a local historic landmark, the property must meet the following criteria (10-4.201):
a) It exemplifies or reflects special elements of the City’s cultural, social, economic, political, aesthetic, engineering, or architectural history; or
b) It is identified with persons or events significant in local, state or national history; or
c) It embodies distinctive characteristics of a style, type, period, or method of construction, or is a valuable example of the use of indigenous materials or craftsmanship; or
d) It is representative of the notable work of a builder, designer, or architect; or
e) Its unique location or singular physical characteristic(s) represents an established and familiar visual feature or landmark of a neighborhood, community, or the City.
The designation of a potentially historic property as a local historic landmark is voluntary and requires that the owner of record submit a completed Landmark Designation application. Staff performs in-depth research of the Planning, Building, and Library records. The application and supporting research are reviewed during the public hearing process for the criteria outlined in Municipal Code Section 10-4.201.
Properties that are approved for designation are also eligible for the Mills Act contract. The Mills Act legislation was enacted in 1972 and is the main economic incentive for historic landmark designation. The Mills Act can provide up to a 50% reduction in property taxes in exchange for the ongoing maintenance and restoration of a designated historic resource. After a property is designated by the Commission, a Mills Act Contract is prepared and presented to the City Council (most often on Consent). After City Council approval, the contract is recorded and the Los Angeles County Assessor re-calculates the property taxes. The City currently has 112 Mills Act properties, with four additional contracts pending.
The Mills Act contract details the Secretary of Interior’s Standards for Rehabilitation (SISR) of historic properties, as established through the National Park Service. The SISR are the very foundation of the Preservation Program, often referred to as the “prescriptive standards” in Title 10, Chapter 4. Properties that adhere to the SISR are categorically exempt from further environmental analysis per Section 15331 of the California Environmental Quality Act (CEQA). Inversely, detrimental alterations to a cultural resource (not adhering to the SISR) may be considered an environmental impact per CEQA and may require further environmental review. The Secretary of Interior’s Standards (www.nps.gov/subjects/taxincentives/secretarys-standards-rehabilitation.htm <http://www.nps.gov/subjects/taxincentives/secretarys-standards-rehabilitation.htm>) are as follows:
1. A property shall be used for its historic purpose or be placed in a new use that requires minimal change to the defining characteristics of the building and its site and environment.
2. The historic character of a property shall be retained and preserved. The removal of historic materials or alteration of features and spaces that characterize a property shall be avoided.
3. Each property shall be recognized as a physical record of its time, place, and use. Changes that create a false sense of historical development, such as adding conjectural features or architectural elements from other buildings, shall not be undertaken.
4. Most properties change over time; those changes that have acquired historic significance in their own right shall be retained and preserved.
5. Distinctive features, finishes, and construction techniques or examples of craftsmanship that characterize a historic property shall be preserved.
6. Deteriorated historic features shall be repaired rather than replaced. Where the severity of deterioration requires replacement of a distinctive feature, the new feature shall match the old in design, color, texture, and other visual qualities and, where possible, materials. Replacement of missing features shall be substantiated by documentary, physical, or pictorial evidence.
7. Chemical or physical treatments, such as sandblasting, that cause damage to historic materials shall not be used. The surface cleaning of structures, if appropriate, shall be undertaken using the gentlest means possible.
8. Significant archeological resources affected by a project shall be protected and preserved. If such resources must be disturbed, mitigation measures shall be undertaken.
9. New additions, exterior alterations, or related new construction shall not destroy historic materials that characterize the property. The new work shall be differentiated from the old and shall be compatible with the massing, size, scale, and architectural features to protect the historic integrity of the property and its environment.
10. New additions and adjacent or related new construction shall be undertaken in such a manner that if removed in the future, the essential form and integrity of the historic property and its environment would be unimpaired.
Certificate of Appropriateness
Owners of designated landmarks may still request modest additions and alterations through the Certificate of Appropriateness (COA) application process. Allowing appropriate improvements that are subordinate to, and do not detract from, the original cultural resource extends the life of the property. The criteria for approval of Certificate of Appropriateness requests (10-4.403) are as follows:
1. Conforms to the prescriptive standards adopted by the Commission; and
2. Will not detrimentally alter, destroy or adversely affect any exterior improvement or exterior architectural feature; and
3. Will retain the essential elements that make the resource significant.
As stated in the previous section of this report, the “prescriptive standards” refer to the Secretary of Interior’s Standards for Rehabilitation. Thus, the SISR are a critical component of the criteria for COA approval.
Very minor revisions, such as window changes, are presented to the Minor Alterations Subcommittee. The subcommittee is comprised of two commissioners. Larger projects that include additional square footage and/or changes to the character-defining features of the cultural resource, require Commission review. Staff is able to administratively review general maintenance activities, such as roof repairs and like-for-like replacement of exterior materials.
The COA application process also allows for requests to demolish a historic resource (10-4.404). If the property is found to be eligible for designation and/or it is already designated as a historic landmark, the request for removal is reviewed by the Commission. The application submittal must include “specific written and verifiable documentation refuting that the property meets the criteria for designation as a landmark…” (10-4.311).
In addition to the criteria noted above, the city also created design guidelines in 1991 (see attached). The guidelines serve as an additional coaching document for the evaluation of COA applications. This document is particularly useful because it highlights the prevalent architectural styles in the city and details the various character-defining features for each.
Certified Local Government
The City of Redondo Beach is a Certified Local Government (CLG), which is a program that was established in 1980 through amendments to the National Historic Preservation Act of 1966. Being a CLG City means that Redondo Beach has adopted a local preservation ordinance, has established a commission, has an inventory of potentially historic properties, allows for public participation in the preservation program, and the city enforces State and Local laws in relation to the designation and protection of cultural resources. To maintain the status as a CLG, the City of Redondo Beach must have at least four public hearings a year, there must be at least two commissioners with qualifying technical background in historic preservation, the Commission must engage in annual training, and all preservation activities must be reported to the State Office of Historic Preservation on an annual basis. The main body of the CLG Annual Report is attached for reference. The final report and all the required attachments may be viewed online at: City of Redondo Beach - File #: PC24-0756 (legistar.com) <https://redondo.legistar.com/LegislationDetail.aspx?ID=6648345&GUID=59DCF694-3BEC-406C-B8A7-0980D6DB2AF0&Options=&Search=> For the previous reporting period from October 2022 to September 2023, the following actions took place:
• Four public hearings
• Four Minor Alterations Subcommittee meetings
• Three Local Historic Landmarks designated
• Four Certificate of Appropriateness applications reviewed
• Staff attended the California Preservation Conference (CPF)
• Staff completed the SISR Bootcamp educational series by CPF
• Staff provided two educational presentations to the Commission
• Staff performed various maintenance reviews, site research, and inspections
Being a CLG City not only reflects the City’s dedication to historic preservation, but also adds credibility to the determinations made by Staff and the Commission. CLG cities have access to technical assistance from the State, access to competitive grant funding, and access to educational programs. Beyond the practical benefits, protecting the City’s cultural resources provides a unique sense of place, enhances existing neighborhoods, and gives the community a meaningful identity. Lastly, honoring the City’s heritage is also an opportunity to learn from those early development patterns. Understanding the past often helps us better plan for the future.
ATTACHMENTS
Preservation Ordinance Title 10, Chapter 4
Historic Resources Survey
Historic Context Statement
Design Guidelines
CLG Annual Report 2022-2023
Overview of Preservation Presentation