DEPARTMENT OF CITY PLANNING RECOMMENDATION REPORT CITY PLANNING COMMISSION DATE: January 8, 2009 TIME: after 8:30 a.m.* PLACE: City Hall, 10 th Floor Room 1010 200 N. Spring Street Los Angeles, CA 90012 PUBLIC HEARING REQUIRED Expiration Date: None CASE NO. CPC-2008-4809-ICO CEQA: ENV-2008-4810-CE Location: Generally bounded by Sunset Boulevard on the north, the Hollywood Freeway on the south, Bonnie Brae Street on the west, and Echo Park Avenue on the east. Council District: 13 Community Plan Areas: Silver Lake Echo Park Elysian Valley Area Planning Commission: East Los Angeles Neighborhood Council: Greater Echo Park Elysian Plan Land Use: Medium, Low Medium II, Community Commercial, General Commercial, Open Space Zones: [Q]C2-1L, C2-1L, R3-1VL, R4-1L, RD2-1VL, RD1.5-1VL, C2-1VL, OS-1XL PROJECT LOCATION PROPOSED PROJECT APPLICANT REQUESTED ACTIONS Generally bounded by Sunset Boulevard on the north, the Hollywood Freeway on the south, Bonnie Brae Street on the west, and Echo Park Avenue on the east. An Interim Control Ordinance to temporarily regulate the issuance of building and demolition permits in a portion of the Silver Lake Echo Park Elysian Valley Community Plan Area within the proposed Echo Park Community Design Overlay (CDO) Study Area as shown on the attached map (Exhibit A). City of Los Angeles 1. Approval of an Interim Control Ordinance to temporarily regulate the issuance of building and demolition permits in a portion of the Silver Lake Echo Park - Elysian Valley Community Plan Area within the proposed Echo Park Community Design Overlay (CDO) Study Area as shown on the attached map (Exhibit A). 2. Adoption of the Categorical Exemption No. ENV-2008-4810-CE. RECOMMENDED ACTIONS 1. Approve and Recommend that the City Council adopt the Interim Control Ordinance (Exhibit B) imposing temporary regulations on the issuance of building and demolition permits which affect the addition, alteration, construction, demolition, reconstruction, rehabilitation, relocation, removal or restoration of the exterior of any building, structure, landscaping, natural feature, or lot, within the proposed Echo Park CDO Study Area. 2. Approve the Staff Report and the Exhibits as the Commission Report; 3. Adopt the Categorical Exemption No. ENV 2008-4810-CE (Exhibit C); 4. Adopt the attached Findings.
S. Gail Goldberg, AICP Director of Planning Report reviewed by: Report prepared by: (Signature in File) (Signature in File) Faisal Roble, Senior City Planner Arthi Varma, City Planning Associate Telephone: (213) 978-1168 Telephone: (213) 978-1240 ADVICE TO PUBLIC: *The exact time this report will be considered during the meeting is uncertain since there may be several other items on the agenda. Written communications may be mailed to the Commission Secretariat, 200 North Spring Street, Los Angeles, CA 90012 (Phone No. 213-978-1300). While all written communications are given to the Commission for consideration, the initial packets are sent to the week prior to the Commission s meeting date. If you challenge these agenda items in court, you may be limited to raising only those issues you or someone else raised at the public hearing agendized herein, or in written correspondence on these matters delivered to this agency at or prior to the public hearing. As a covered entity under Title II of the Americans with Disabilities Act, the City of Los Angeles does not discriminate on the basis of disability, and upon request, will provide reasonable accommodation to ensure equal access to this programs, services and activities. Sign language interpreters, assistive listening devices, or other auxiliary aids and/or other services may be provided upon request. To ensure availability of services, please make your request not later than three working days (72 hours) prior to the meeting by calling the Commission Secretariat at (213) 978-1300.
Table of Contents Project Analysis A-1 Project Summary Background Issue Conclusion Findings..F-1 Charter Section 253 Findings General Plan Findings Boundary Findings CEQA Findings Public Hearing and Communications..P-1 Exhibits A Map B Interim Control Ordinance C ENV 2008-4810-CE D Hardship Exemption Application E Permit History
CPC-2008-4809-ICO A-1 Project Summary Project Analysis The purpose of the Interim Control Ordinance is to continue to protect the neighborhood character and significant architectural resources within the proposed Echo Park Community Design Overlay (CDO) Study Area ( Echo Park Study Area ) until the City Council can act on the establishment of a CDO or appropriate land use regulatory controls. The enactment of the proposed ICO would: Prohibit building permits, grading permits or demolition permits for any Project located in whole or in part within the proposed Echo Park Study Area, unless a Hardship Exemption (Exhibit D) is granted by City Council per Section 6 of the Ordinance. Hardship Exemptions may be granted if the Project is in conformance with the Secretary of the Interior s Standards. The provisions of this Ordinance shall not apply to the issuance of a building permit for interior remodeling of a legally constructed building or for construction consisting of routine maintenance, landscaping, fencing, re-roofing of the same materials or minor exterior repair work, which does not change a defining exterior architectural feature. Remain in effect for a period of three months (with one 3 - month extension) or until the City Council can act on the establishment of appropriate land use regulatory controls. Existing Land Use and Zoning: Subject Properties: The proposed Echo Park ICO area encompasses 235 parcels, comprised primarily of multiple-family dwellings, with some commercial properties along Sunset Boulevard. The zoning on these parcels includes: [Q]C2-1L, C2-1VL, C2-1L, R3-1VL, R4-1L, RD2-1VL, RD1.5-1VL. The land use designations include Medium, Low Medium II, Community Commercial, General Commercial, and Open Space. Surrounding Properties: The immediate areas north of the proposed Echo Park ICO boundaries are zoned [Q]C2 1VL, C2-1VL, R4-1VL, R2-1VL, PF-1XL. The area to the south is the Hollywood Freeway (101), and zoned PF-1XL. South of the freeway, the areas are zoned R3-1VL, RD2-1VL, C2-1VL, OS-1XL. The areas to the east are zoned RD2-1VL-HPOZ, RD2-1VL, and C2-1L, and [Q]C2-1L, and the areas to the west are zoned [Q]C2-2D, R3-1VL, RD2-1VL, [Q]C2-1VL, OS-1XL. Background The Echo Park neighborhood is one of the oldest in the City, just a few miles from the Pueblo of Los Angeles, the birthplace of the city. Echo Park was an early residential suburb of the City, developed in the late 1800 s around the street car transit system, and containing a collection of craftsmen, Spanish-style bungalows, and early period revival homes/apartments. Since most of the Echo Park homes were built before cars became widespread, there are often no garages in the front of or alongside the primary structures on the lots. Through time, carriage houses and later automobile garages began to be built at the rear of the property, with access
CPC-2008-4809-ICO A-2 through a back alley. The pedestrian orientation of the area thus remained even after the advent of the automobile. This original development pattern still exists today. Recognizing this unique development pattern, the Silver Lake Echo Park Elysian Valley Community Plan identified the area around the Echo Park Lake to be studied for eligibility for a historic district (the Echo Park Study Area). In order to protect the potentially historic structures and development patterns while the area was being studied, Council adopted Ordinance No. 178,454 effective March 19, 2007, establishing the Echo Park ICO for a period of 365 days. The ICO regulated the issuance of building permits for exterior work on structures within the Echo Park ICO area. Two extensions to that ordinance were consequently adopted continuing the ICO for another one year. During the full term of this ordinance, a Historic Resources Survey was prepared for the area. Staff analyzed the survey and is preparing a recommendation for a Community Design Overlay as the appropriate permanent regulation to protect the area s unique neighborhood character. Ordinance No. 178,454 is set to expire March 13, 2009, prior to the date when the permanent land use regulations for the area will be adopted. Interim measures continue to be necessary to prevent the alteration, demolition, and re-development of these architecturally significant resources and unique development patterns until a CDO can be adopted. Issue The Echo Park Study Area was identified during the Silver Lake Echo Park Elysian Valley Community Plan Update (adopted in August of 2004) as a potential historic district, deemed eligible for further study. The City contracted with Historic Resources Consultant, Jones and Stokes, who prepared a Historic Resources Survey for the area, evaluating the historic integrity of every structure within the boundaries of the ICO. The Historic Resources Survey found the Echo Park Study Area to be 61% contributing (with approximately 30% unaltered contributors), and eligible for establishment of a historic district. Of the alterations to historic features that have occurred in the neighborhood, some are potentially reversible. For instance, approximately 22% of the alterations made in the proposed Echo Park Study Area since 1997 have been re-roofing repairs and window change outs that may be restored to original status. Many of the homes have cemented front yards in order to accommodate parking needs, another reversible alteration, as documented in the Echo Park Historical Resources Survey. The Survey thus recommends the initiation of land use regulations that would preserve the City s valuable resources and protect them from further alterations. Upon considering the various planning priorities, including the area s designation as a Framework-designated Community Center, the unique development pattern of the area, and community response, staff is recommending the establishment of a Community Design Overlay with a historic preservation focus, as a flexible tool to achieve preservation as well as to accommodate other planning priorities for the area. The area retains much of its unique, original development pattern and many of the structures are significant architectural resources. The integrity of these resources can be protected with permanent regulations which will ensure that any new development is consistent with the area s distinct neighborhood character. During the full term of the original Interim Control Ordinance, staff has actively pursued permanent regulations for the area. Since March of 2007, a Historic Resources Survey was completed by Jones and Stokes, staff analysis of the Survey was completed, eight small group meetings were held with community organizations and stakeholders, and a staff recommendation for permanent regulations was drafted. Additionally, a public workshop has
CPC-2008-4809-ICO A-3 been scheduled for January 20, 2009. That would conclude the outreach phase prior to establishing permanent regulations. Conclusion Ordinance No. 178,454, the Echo Park ICO, which has been in place since March of 2007, has successfully been able to ensure that the neighborhood character has not been lost. There are several more steps, however, that staff must complete in order to adopt a CDO to provide protection for architecturally significant structures and original development patterns. Since staff is actively pursuing adoption of permanent regulations for the area, the new ICO for the area only needs to be in effect for a three month period, with one three month extension. Until such permanent regulations are ultimately adopted, however, the area could fall threat to unsightly alteration or demolition if the current ICO expires. Interim measures should continue to be effective to protect the area from irreversible erosion of the area s neighborhood character until a CDO can be adopted.
CPC-2008-4809-ICO F-1 FINDINGS 1. Charter Section 253. For the immediate preservation of the public peace, health, and safety, the proposed ordinance contains an Urgency Clause making it effective upon publication. At its meeting on August 11th, 2004 the City Council adopted the Silver Lake Echo Park Elysian Valley Community Plan Update which included a number of implementation programs to effect its goals and policies. One of these programs called on the Planning Department to conduct necessary research to establish an Historic Preservation Overlay Zone (HPOZ) or other implementation tool to preserve and protect neighborhood character in the Echo Park area. The Echo Park neighborhood is one of the oldest in the City, developed as an early residential suburb of the City in the late 1800 s. It contains a collection of craftsmen, Spanish-style bungalows, and early period revival homes/apartments. Nearly 70% of the homes within the Echo Park Study Area were built prior to 1941, with half of those built prior to 1915. In order to protect the historic structures and development patterns while the area was being studied, Council adopted Ordinance No. 178,454 effective March 19, 2007, establishing the Echo Park ICO for a period of 365 days. The ICO regulated the issuance of building permits for exterior work on structures within the Echo Park ICO area, ensuring that incompatible rehabilitation or demolition does not occur. Applicants who wish to pull a building permit for exterior work are required to go through a Hardship Exemption Application process, with approval from City Council. The City has undertaken a study to assess the area s eligibility for a historic district. The City contracted with a consultant, Jones and Stokes, to prepare a Historic Resources Survey. The Survey is complete and has been analyzed by staff. Several technical corrections to the survey were initiated and completed. In addition, eight small group meetings were held with owners and occupants within the Echo Park Study Area, and stakeholder community organizations in order to gather a community response to permanent regulations for the area. Planning staff has been engaging in analysis of the survey, of community input, and of other planning priorities for the area, including its designation as a Framework identified Community Center. Staff has concluded that an HPOZ is not the right tool for the area, as (a) the Survey identified a threshold of contributors that does not meet the standard of an HPOZ and (b) identified the majority of those contributors as having multiple alterations. The area s architecturally significant structures and original, in-tact development pattern, however, do merit regulatory protection. Staff has identified a CDO as the appropriate tool to (1) preserve significant structures and ensure that further deterioration of such structures does not occur, (2) protect the area s original development pattern and pedestrian orientation, (3) ensure that the area s unique neighborhood character is maintained. Two extensions to the original Interim Control Ordinance (No. 178,454) were adopted continuing the ICO for another one year. Currently, Ordinance No. 178,454 is set to expire March 13, 2009, prior to the date when permanent regulations can be adopted. Staff has identified the CDO as the appropriate tool to protect the area s neighborhood character. Interim measures continue to be necessary, however, to prevent the alteration, demolition, and re-development of the architecturally important resources that enhance the neighborhood s character.
CPC-2008-4809-ICO F-2 During the current term of the ICO, ten Hardship Exemption Applications were approved by the City Council. The City Council approves a Hardship Exemption when the project is in conformance with the Secretary of the Interior s Standards. Ten structures that might otherwise have been by-right projects thus went through a review process to ensure that any significant features would not be lost and that any new development would enhance the existing neighborhood character. A lapse in the effectiveness of this ordinance could compromise the neighborhood character of the proposed Echo Park ICO area, by continuing to allow building alteration and demolition permits for structures within its boundaries. The success of the current ICO in preventing significant alterations and demolitions reiterates the need for such continued protections. The current ICO has prevented the loss of original materials on five structures and reviewed rehabilitation and new construction on five other properties, ensuring that new construction is consistent with existing neighborhood character. These potential losses would have included the loss of original wood windows and the loss of original wood siding through a request to stucco an entire structure. Without the existing ICO, approximately 5% of the area s architecturally significant resources could have been lost over the last 20 months. It is thus imperative that interim regulations that prevent the loss of historic resources continue to be in effect. Staff has demonstrated an active role in establishing permanent regulations over the area through (1) the completion of a Historic Resources Survey, (2) the conducting of several small group meetings with community organizations and both owners and occupants of the ICO area, and (3) the development of a recommendation for permanent regulations for the area. Thus, only a three month temporary ICO (with one three-month extension) is requested in order to protect any architecturally significant resources in the area. 2. General Plan Consistency. The subject ordinance is in substantial conformance with the purposes, intent and provisions of the General Plan and is in conformity with public necessity, convenience, general welfare and good zoning practice in that it provides protections to the significant buildings and development patterns in the Echo Park Study Area until appropriate land use regulatory controls become effective. The proposed ordinance is also consistent with and responsive to the following issues, opportunities, and objectives of the Silver Lake Echo Park Elysian Valley Community Plan (a portion of the land use element of the General Plan adopted August 11, 2004) in that it imposes temporary prohibitions on the issuance of building permits for the addition, alteration, construction, demolition, reconstruction, rehabilitation, relocation, removal or restoration of the exterior of any building, structure, landscaping, natural feature, or lot, within the Echo Park ICO area. Objective 1-3: Preserve and enhance the varied and distinct character and integrity of existing single and multiple family neighborhoods. Policy 1-3.1: Seek a higher degree of architectural compatibility and landscaping for new infill development to protect the character and scale of existing residential neighborhoods. Program: Prepare a historic resource survey or other necessary studies to establish a Historic Preservation Overlay Zone or other Supplemental Use District, as appropriate, to protect the neighborhood character and period architecture of the area generally bounded by Douglas St., Elysian
CPC-2008-4809-ICO F-3 Park, the 5 Freeway, the Glendale Freeway, Glendale Blvd., Berkeley Avenue, Benton Way, and Temple Street. Objective 1-5: Preserve and enhance neighborhoods with distinctive and significant historic or architectural character. Policy 1-5.1: Protect and enhance the historic and architectural legacy of the Plan area s neighborhoods. Program: Include Echo Park Lake in future neighborhood conservation and preservation efforts with the goal of protecting park facilities and significant viewsheds to and from the lake. Objective 16-1: Ensure that the community s historically significant resources are protected, preserved, and/or enhanced. 3. Boundaries. The proposed Interim Control Ordinance (ICO) would cover the proposed Echo Park CDO area, which is generally bounded by Sunset Boulevard on the north, Echo Park Avenue on the east, the Hollywood Freeway on the south, and Bonnie Brae Street on the west, as shown on Exhibit A. 4. California Environmental Quality Act. The proposed Interim Control Ordinance (ICO) is exempt from the California Environmental Quality Act of 1970 (CEQA), pursuant to Article 19, Section 15308, Class 8, which "consists of actions taken by regulatory agencies, as authorized by state or local ordinance, to assure the maintenance, restoration, enhancement, or protection of the environment where the regulatory process involves procedures for protection of the environment". The proposed Interim Control Ordinance will place a temporary moratorium on construction activities that could result in incompatible alterations or the demolition of irreplaceable structures in the Echo Park neighborhood. Ultimately these activities could erode the valuable neighborhood character of the Echo Park Study Area.
CPC-2008-4809-ICO P-1 PUBLIC HEARING AND COMMUNICATIONS A Public Hearing on this matter will be held at the City Planning Commission meeting on January 8, 2009.