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FILE NO. 180724 ORDINANCE NO. 257-18 [Planning Code - Mint-Mission Conservation District] Ordinance amending the Planning Code to add a new Appendix K to Article 11, Preservation of Buildings and Districts of Architectural, Historical, and Aesthetic Importance in the C-3 (Downtown Commercial) Districts, to create the Mint-Mission Conservation District, which includes certain properties in the area bounded by Fifth Street, Stevenson Street, Minna Street, and Sixth Street, specifically Assessor's Parcel BlockNo.3704, LotNos.003,010,012,013,015,017,018,019,020,021,022,024,028, 029, 034, 035, 059, 079, 113, and 144, and Assessor's Parcel Block No. 3725, Lot Nos. 087 and 088, and designates contributory and significant buildings within that District; affirming the Planning Department's determination under the California Environmental Quality Act; and making public necessity, convenience, and welfare findings under Planning Code, Section 302, and findings of consistency with the General Plan, and the eight priority policies of Planning Code, Section 101.1. NOTE: Unchanged Code text and uncodified text are in plain Arial font. Additions to Codes are in single-underline italics Times New Roman (Ont. Deletions to Codes are in strikethrough italics Times ,\ler1;1 Roman font. Board amendment additions are in double-underlined Arial font. Board amendment deletions are in strikethrough Arial font. Asterisks (* * * *) indicate the omission of unchanged Code subsections or parts of tables. Be it ordained by the People of the City and County of San Francisco: Section 1. Findings. (a) Environmental Findings. The Planning Department has determined that the proposed Planning Code amendment is subject to a Categorical Exemption from the California Environmental Quality Act (California Public Resources Code section 21000 et seq., Historic Preservation Commission BOARD OF SUPERVISORS Page 1 "CEQA") pursuant to Section 15308 of the Guidelines for Implementation of the statute for actions by regulatory agencies for protection of the environment (in this case, landmark designation). Said determination is on file with the Clerk of the Board of Supervisors in File No. 180724 and is incorporated herein by reference. The Board of Supervisors affirms this determination. (b) On March 21, 2018, the Historic Preservation Commission, in Resolution No. 948, adopted findings that the actions contemplated in this ordinance are consistent, on balance, with the City's General Plan and eight priority policies of Planning Code Section 101.1. The Board adopts these findings as its own. A copy of said Resolution is on file with the Clerk of 1 O the Board of Supervisors in File No. 180724, and is incorporated herein by reference. (c) At that same public hearing, the Historic Preservation Commission, in Resolution No. 948, recommended that the Board of Supervisors approve the Mint-Mission Conservation District as set forth herein. A copy of said Resolution is on file with the Clerk of the Board of Supervisors in File No. 180724 and is incorporated herein by reference. (d) Pursuant to Planning Code, Section 302, the Board finds that the proposed amendment to Article 11 will serve the public necessity, convenience and welfare for the reasons set forth in the Historic Preservation Commission Resolution No. 948, which reasons are incorporated herein by reference as though fully set forth. A copy of said Resolution is on file with the Clerk of the Board of Supervisors in File No. 180724. (e) The Board of Supervisors hereby finds that the proposed Mint-Mission Conservation District area is a Subarea within the C-3 District that possesses concentrations of buildings that together create a subarea of architectural and environmental quality and importance that contributes to the beauty and attractiveness of the City, and that its designation as a Conservation District will further the purposes of and conform to the standards set forth in Article 11 of the Planning Code. Historic Preservation Commission BOARD OF SUPERVISORS Page 2 Section 2. Designation of Category I (Significant) Building in the Mint-Mission Conservation District. (a) The Board of Supervisors hereby finds that the following property is over 40 years old, has been judged to be a Building of Individual Importance, and has been rated either Excellent in Architectural Design or Very Good in both Architectural Design and Relationship to the Environment. For these reasons, the Board finds that designating the following property as Category I (Significant) will further the purposes of and conform to the standards set forth in Article 11 of the San Francisco Planning Code. 1 O (b) Pursuant to Sections 1102 and 1106 of the Planning Code, the following property is hereby designated Category I (Significant): Address 44-48 Fifth Street Assessor's Assessor's Block No. Lot No. 3704 Name of Building Oakwood Hotel ( c) Appendix A of Article 11 of the Planning Code is hereby amended to include this property. (d) This property shall be subject to further controls and procedures pursuant to the Planning Code and Article 11. Section 3. Designation of Category IV (Contributory) Buildings in the Mint-Mission Conservation District. (a) The Board of Supervisors hereby finds that the following properties are over 40 years old, have been judged to be either a Building of Individual Importance or Contextual Importance and have been rated either Very Good in Architectural Design or Excellent or Very Historic Preservation Commission BOARD OF SUPERVISORS Page 3 Good in Relationship to the Environment. For these reasons, the Board finds that designating the following properties Category IV (Contributory) will further the purposes of and conform to the standards set forth in Article 11 of the San Francisco Planning Code. (b) Pursuant to Sections 1102 and 1106 of the Planning Code, the following properties are hereby designated Category IV (Contributory): Address 431 Jessie Street 440-444 Jessie Street 471 Jessie Street 2-4 Mint Plaza 6-8 Mint Plaza 10 Mint Plaza 936-940 Mission Street 948 Mission Street 953-957 Mission Street 966 Mission Street 968 Mission Street 972-976 Mission Street 980-984 Mission Street 986 Mission Street/481 Jessie Street Historic Preservation Commission BOARD OF SUPERVISORS Assessor's Assessor's Block No. Lot No. 3704 3704 3704 3704 3704 3704 3704 3704 3725 3704 3704 3704 3704 3704 Name of Building Wobbers Printing & Engraving Hale Brothers warehouse & offices Chronicle Hotel Piedmont Hotel/Alkain Hotel Ford Apartments/Mint Mall Toledo Scale Co. Dohrmann Hotel Supply Company Brunswick-Balke-Callender Co. Billiard Table Manufacturing Hulse Bradford Carpets & Draperies Page 4 1443 Stevenson Street 13704 I 059 (c) Appendix D of Article 11 of the Planning Code is hereby amended to include these properties. (d) These properties shall be subject to further controls and procedures pursuant to the Planning Code and Article 11. Section 4. The Planning Code is hereby amended by revising Section 1103.1 to read as follows: SEC. 1103.1. CONSERVATION DISTRICT DESIGNATIONS. The following Conservation Districts are hereby designated for the reasons indicated in the appropriate Appendix: (a) The Kearny-Market-Mason-Sutter Conservation District is hereby designated as set forth in Appendix E. (b) The New Montgomery-Mission-Second Street Conservation District is hereby designated as set forth in Appendix F. ( c) The Commercial-Leidesdorff Conservation District is hereby designated as set forth in Appendix G. (d) The Front-California Conservation District is hereby designated as set forth in Appendix H. (e) The Kearny-Belden Conservation District is hereby designated as set forth in Append ix I. (f) The Pine-Sansome Conservation District is hereby designated as set forth in Appendix J. (g) The Mint-Mission Conservation District is hereby designated as set forth in Appendix K. Historic Preservation Commission BOARD OF SUPERVISORS Page 5 Section 5. The Planning Code is hereby amended by adding Appendix K to Article 11, to read as follows: APPENDIX [(TO ARTICLE 11 MINT-MISSION CONSERVATION DISTRICT. SEC. 1. FINDINGS AND PURPOSES. It is hereby found that the area known and described in this Appendix as the Mint-Mission area is a Subarea within the C-3 District that possesses concentrations of buildings that together create a subarea of architectural and environmental quality and importance that contributes to the beauty and attractiveness oft he City. It is further found that the area meets the standards for designation of a Conservation District as set forth in Section 1103 of Article 11 and that the designation of said area as a Conservation District will be in fitrtherance of and in conformance with the purposes of Article 11 ofthe Planning Code. This designation is intended to promote the health, safety, prosperity, and welfare o[the people of the City through the effectuation of the purposes set forth in Section 1101 of Article 11 and the maintenance o[the scale and character ofthe Mint-Mission area bv: (a) Protecting and preserving the basic characteristics and salient architectural details of structures insofar as these characteristics and details are compatible with the Conservation District." (b) Providing scope for the continuing vitality ofthe District through private renewal and architectural creativity, within appropriate controls and standards,· (c) Maintaining a separate identity from the adjacent Kearnv-Market-Mason-Sutter Conservation District through the preservation ofthe District's small- to medium-scale industrial, residential, and commercial buildings. SEC. 2. DESIGNATION. Historic Preservation Commission BOARD OF SUPERVISORS Page 6 Pursuant to Section 1103.1 of Article 11 ofthe Planning Code, the Mint-Mission area is hereby designated as a Conservation District. SEC. 3. LOCATION AND BOUNDARIES. The location and boundaries ofthe Mint-Mission Conservation District shall be as designated on the Mint-Mission Conservation District Map, the original of which is on file with the Clerk ofthe Board ofSupervisors under File No. 180724, which Map is hereby incorporated herein as though fitlly set forth and a facsimile of which is reproduced herein below. The Mint-Mission Conservation District encompasses Lot Nos. 003, 010, 012, 013, 015, 017, 018, 019, 020, 021, 022, 024, 028, 029, 034, 035, 059, 079, 113, and 144 of Assessor's Block No. 3704 and Lot Nos. 087 and 088 of Assessor's Block No. 3725. SEC. 4. RELATION TO CITY PLANNING CODE. (a) Article 11 oft he City Planning Code is the basic law governing preservation of buildings and districts of architectural importance in the C-3 District oft he City and County of San Francisco. This Appendix is subject to and in addition to the provisions thereof (Q) Except as may be specifically provided to the contrary in this Code, nothing in this Appendix shall supersede, impair or modify any City Planning Code provisions applicable to property in the Mint-Mission Conservation District, including, but not limited to, regulations controlling uses, height, bulk, coverage, floor area ratio, required open space, off-street parking, and signs. SEC. 5. JUSTIFICATION. The characteristics of the Conservation District justirying its designation are as follows: (a) History o(the District. The Mint-Mission Conservation District is representative ofthe post-1906 San Francisco earthquake and fire reconstruction period and the evolution of!and use patterns at the northern edge o[the South of Market neighborhood dating to the mid-nineteenth century. The District retains a mix of residential hotels, small scale commercial buildings, warehouses and manufacturing facilities reflective ofthe area's role as the center ofindustrial production in San Historic Preservation Commission BOARD OF SUPERVISORS Page 7 and manufacturing facilities reflective of the area's role as the center ofindustrial production in San Francisco and the major supplier of mining equipment, heavy machinery and other goods to the western states. Residential hotels provided housing for the largely single men employed by the nearby factories and manufacturing operations and in seasonal or tempormy positions along the waterfront. This land use pattern was replicated during the reconstruction of South of Market following the 1906 earthquake and fire. The District encompasses a cohesive concentration of reinforced concrete and brick masonry buildings constructed between 1906 and 1930. The District is particularly notable as it is a survivor of the extensive redevelopment of So Ma in the late twentieth century during which much of the building stock from the period when the neighborhood served as the city's industrial and 1 0 manufacturing center was razed. {b) Basic Nature of the District. The District is characterized by small- to mid-scale industrial, residential, and commercial buildings ranging in height from one to ten stories, with the predominate height between two and five stories. Most buildings in the District are constructed on through-lots with visible rear elevations. The District includes several warehouses and industrial lofts. three residential hotels with commercial ground floors, and a former bank. Twenty-two properties are located in the District, 19 of which are Category I-IV buildings. (c) Architectural Character. The buildings are primarily constructed of reinforced concrete and brick masonry and are largely industrial in style and feature Classical Revival detailing typical of early 20th century commercial architecture in San Francisco. Ornament on residential and mixed-use buildings consists of belt courses, arches, moldings and drip pendants, applied cast shields or swag, and corniced rooflines often featuring brackets, modillions, and dentil moldings. The District's buildings are largely clad in smooth finish stucco or brick, with a few structures clad with rusticated stucco, terra cotta, and concrete. (d) Uniqueness and Location. The District is comprised of one of the few intact concentrations of residential hotels, small-scale commercial buildings, warehouses and manufacturing facilities Historic Preservation Commission BOARD OF SUPERVISORS Page 8 remaining in the South of Market neighborhood. The District is reflective of the land use patterns developed in SoMa in the late nineteenth century and continued following the 1906 earthquake and fire. Twenty-two buildings are located in the District. Five of the buildings located within the District were constructed between 1906-1907, one of which is a partial survivor of the 1906 earthquake and fire. The District is unique in that most o(its buildings are constructed on through-lots with visible rear elevations. The District is adjacent to the Kearny-Market-Mason-Sutter Conservation District and borders the 6th Street Lodginghouse Historic District. The Old Mint, a National Historic Landmark, is located across from the eastern border and pre-dates the period of significance oft he District. The District is particularly noteworthy as it survived the mid-twentieth century redevelopment ofSoMa during which much of the area's building stock dating to the period when the neighborhood served as the city's manufacturing center was razed. (e) Visual and Functional Unity. The District is a cohesive mix of small- to mid-scale buildings with common architectural character and vocabulary. CO Dynamic Continuity. The District is located at the intersection ofthe major large-scale retail and commercial fimction of Market Street and the mix of small-business storefronts, residential hotels and industrial buildings converted to office and residential use that characterize the South of Market neighborhood. Cg) Benefits to the City and its Residents. As the anchor to the district, the Old Mint is surrounded by the mix of residential hotels, industrial, manutacturing and warehouse structures found in the District. Mint-Mission is unique to San Francisco as it is one of the few remaining intact clusters of buildings that reflect South of Market's nineteenth-century fimction as the city's industrial and manufacturing center. SEC. 6. FEATURES. The exterior architectural features of the Mint-Mission Conservation District are as follows: (a) Massing and Composition. Buildings in the District are rectangular in plan, with the Historic Preservation Commission BOARD OF SUPERVISORS Page 9 exception of two L-shaped structures. Multi-story buildings feature multiple bays and two- or three- part vertical compositions consisting of a base and shaft or a base, shaft and capital. The majority of the buildings within the District occupy the entirety of their lots and are built to the front property line. One and two st01y buildings largely feature flat roo{S with simple cornices. Projecting cornices with modillions, scrolled brackets, shield motifs, egg and dart molding, and decorative low-relief panels are found on several of the District's multi-story buildings. (Q) Scale. The buildings are small- to medium-scale with heights ranging from one to ten stories, with the predominate height between two and five stories. The majority of the buildings are built on the entirety of their lots and are primarily 1500-9000 square feet in size, with the exception of three buildings that are approximately 12, 000 square feet. (c) Materials and Colors. Buildings in the District are primarily clad in terracotta, smooth and polychrome brick, stone tiles and smooth or rusticated stucco or concrete. Masonry is the predominate framing, but two buildings located in the district are steel frame. One is a brick masomy structure and the other is reinforced concrete. Ornamentation materials are largely stucco, brick, terra cotta tile, and wood. Wood is commonly used for window framing, millwork and ornamentation. Materials and paint are generally light colors and light to medium earth tones. (d) Detailing and Ornamentation. Ornament on the District's residential and mixed-use buildings consists of belt courses, decorative millwork, brick corbelling, and projecting bracketed cornices with dentil molding, applied cast shields and molding. Industrial buildings commonly feature simple cornices, flat facades with little ornament, and punched window openings. These shared details, along with the common height, scale, and materials found in the district create a cohesive grouping of buildings. Historic Preservation Commission BOARD OF SUPERVISORS Page 10 SEC. 7. STANDARDS AND GUIDELINES FOR REVIEW OF NEW CONSTRUCTION AND CERTAIN ALTERATIONS. (a) All construction of new buildings and all ma;or alterations, which are subject to the provisions o[Sections 1110, 1111 through 1111. 6, and 1113, shall be compatible with the District in general with respect to the building's composition and massing, scale, materials and colors, and detailing and ornamentation, including those features described in Section 6 of this Appendix. Emphasis shall be placed on compatibility with those buildings in the area in which the new or altered building is located. In the case of major alterations, only those building characteristics that are affected by the proposed alteration shall be considered in assessing compatibility. Signs on buildings in conservation districts are subject to the provisions o[Sectionl 111. 7. The foregoing standards do not require, or even encourage, new buildings to imitate the styles of the past. Rather, they require the new to be compatible with the old. The determination of compatibility shall be made in accordance with the provisions o[Section 309. (b) The guidelines in this Subsection are to be used in assessing compatibility. (1) Composition and Massing. New construction should maintain the district's essential character by relating to the prevailing height, mass, proportions, rhythm and composition of existing Significant and Contributory Buildings. The height and massing of new buildings should not alter the traditional scale of existing buildings, streets and open spaces. In addition to the consideration of sunlight access for the street, an appropriate streetwall height is established by reference to the prevailing height of the buildings on the block and especially that of adjacent buildings. ![the adjacent buildings are ofa significantly di[[erent height than the rest of the buildings on the block, then the prevailing height of buildings on the block should be used as a guide. A setback at the streetwall height can permit additional height above the setback without brealdng the continuity of the street wall. Historic Preservation Commission BOARD OF SUPERVISORS Page 11 Most existing buildings are built to the property or street line. This pattern, except in the case of caretitlly selected open spaces, should not be broken since it could damage the continuity of building rhythms and the definitions of streets. The standard proportions of new buildings should be established by the prevailing streetwall height and width of!ots. To ensure that an established set of proportions is maintained, it is necessary to break up the facades of new buildings into smaller sections that relate to those existing proportions. The design of a new structure should repeat the common pattern of two and three part vertical compositions. A base element is necessmy to define the pedestrian environment. This division of a building allows flexibility in the design of the ground st01y while encouraging uni(Ormity of the upper stories. (2) Scale. A major influence on scale is the degree to which the total facade plane is broken into smaller parts (e.g., by detailing, fenestration, and bay widths) which relate to human scale. The existing scale of small- to medium-sized buildings (Ound in the District should be maintained. This can be accomplished in a variety of wavs. including a consistent use of size and complexity of detailing in regards to surrounding buildings, continuance of existing bay widths, maintenance of an existing streetwall height, and incorporation of a base element (of similar height) to maintain the pedestrian environment. Large wall surfaces, which increase a building's scale, should be broken up through the use of detailing and textural variation. Existing fenestration (windows and entrances) rhythms and proportions which have been established by lot width or bay width should be repeated in new structures. The spacing and size of window openings should (Ollow the sequence set by Significant and Contributory structures. Large glass areas should be broken up by mullions so that the scale ofglazed areas is compatible with that of neighboring buildings. Casement and double-hung windows should be used where possible. (3) Materials and Colors. The use of!ike materials can relate two buildings of obviously different eras and styles. Similarly, the use of materials that appear similar (such as Historic Preservation Commission BOARD OF SUPERVISORS Page 12 substituting concrete for stone) can link two disparate structures, or harmonize the appearance of a new structure with the architectural character ofa conservation district. The preferred surface materials for this District are brick, stone, and concrete simulated to look like terra cotta or stone. The texture ofsurfaces can be treated in a manner so as to emphasize the bearing fimction of the material, as is done in rustication on historic buildings. Traditional light colors and earth tones should be used in order to blend in with the character of the district. Dissimilar buildings may be made more compatible by using similar or harmonious colors, and to a lesser extent, by using similar textures. (4) Detailing and Ornamentation. A new building should relate to the surrounding 1 O area by picldng up elements from surrounding buildings and repeating them or developing them for new purposes. Detailing of a similar shape and placement can be used without directly copying historical ornament. The new structure should incorporate prevailing cornice lines or belt courses and may also use a modern vernacular instead of that of the original model. SEC. 8. TDR: ELIGIBILITY OF CATEGORY V BUILDINGS. Category V Buildings in that portion of the Mint-Mission Conservation District that is in the C- 3-0 Use District as shown on Sectional Map 1 of the Zoning Map are eligible for the transfer of TDR as provided in Section 1109(c). IL IL IL IL IL IL IL IL Historic Preservation Commission BOARD OF SUPERVISORS Page 13 JESSIE ST F= lO • • STEVENSON ST ~ ........•........ MINNA ST • • I ~···········~---~~-~--~~~~·~··&•••••• • • • • • • • • • j!l Ii ~•es~••••••••••••••••••••~ • I • • • • • II I • • • f--. (ll ~ f--: Z• ~= • • • • • • ···--~~~~-~~·~~~ • • • MISSION ST f-- •'.fl Section 6. Effective Date. This ordinance shall become effective 30 days after enactment. Enactment occurs when the Mayor signs the ordinance, the Mayor returns the ordinance unsigned or does not sign the ordinance within ten days of receiving it, or the Board of Supervisors overrides the Mayor's veto of the ordinance. Section 7. Scope of Ordinance. In enacting this ordinance, the Board of Supervisors intends to amend only those words, phrases, paragraphs, subsections, sections, articles, numbers, punctuation marks, charts, diagrams, or any other constituent parts of the Municipal Code that are explicitly shown in this ordinance as additions, deletions, Board amendment Historic Preservation Commission BOARD OF SUPERVISORS Page 14 additions, and Board amendment deletions in accordance with the "Note" that appears under the official title of the ordinance. n:\legana\as2018\1800206\01278154.docx Historic Preservation Commission BOARD OF SUPERVISORS Page 15 City and County of San Francisco Tails Ordinance City Hall I Dr. Carlton B. Goodlett Place San Francisco, CA 94102-4689 File Number: 180724 Date Passed: October 23, 2018 Ordinance amending the Planning Code to add a new Appendix K to Article 11, Preservation of Buildings and Districts of Architectural, Historical, and Aesthetic Importance in the C-3 (Downtown Commercial) Districts, to create the Mint-Mission Conservation District, which includes certain properties in the area bounded by Fifth Street, Stevenson Street, Minna Street, and Sixth Street, specifically Assessor's Parcel Block No. 3704, Lot Nos. 003, 010, 012, 013, 015, 017, 018, 019, 020, 021, 022, 024, 028, 029, 034, 035, 059, 079, 113, and 144, and Assessor's Parcel Block No. 3725, Lot Nos. 087 and 088, and designates contributory and significant buildings within that District; affirming the Planning Department's determination under the California Environmental Quality Act; and making public necessity, convenience, and welfare findings under Planning Code, Section 302, and findings of consistency with the General Plan, and the eight priority policies of Planning Code, Section 101.1. September 24, 2018 Land Use and Transportation Committee - CONTINUED October 01, 2018 Land Use and Transportation Committee - RECOMMENDED October 16, 2018 Board of Supervisors - PASSED ON FIRST READING Ayes: 11 - Brown, Cohen, Fewer, Kim, Mandelman, Peskin, Ronen, Safai, Stefani, Tang and Yee October 23, 2018 Board of Supervisors - FINALLY PASSED City l1nd County of San Francisco Ayes: 11 - Brown, Cohen, Fewer, Kim, Mandelman, Peskin, Ronen, Safai, Stefani, Tang and Yee Pl1gel Printed l1f 12:42 pm on 10124/18 File No. 180724 London N. Breed Mayor City and C~u11ty of Sa11 Francisco Page2 I hereby certify that the foregoing Ordinance was Fl NALLY PASSED on 10/23/2018 by the Board of Supervisors of the City and County of San Francisco. f,. Angela alvillo Clerk of the Board I\/ :t/ JiJ 1'6 Date Approved Pri11ted at 12:42 pm 01110124118