BE.

DATE: FROM: SUBJECT: ADDRESS: JURISDICTION:

DECEMBER19,2011 BetsyBradley,Director,CulturalResourcesOffice Appealoffourdenialstodemolishthreebuildingsandthesmokestackatthe formerPevelyDairyCompanyPlant B.OfficeBuildingat100103S.Grand D.MilkPlantat362680Chouteau C.Smokestackat100103S.Grand E.Garageat1101Motard PreservationReviewDistrict,NationalRegisterofHistoricPlacesWard17

PEVELYOFFICEBUILDING,110103S.GRAND,WITHMILKPLANTAT3626CHOUTEAUINDISTANCE

OWNER/APPLICANT: St.LouisUniversity

RECOMMENDATION: ThatthePreservationBoardupholdthe denialsofthedemolitionpermitsforthe officebuildingat100103S.Grandand smokestack,alsoat100103S.Grand, andapprovethedemolitionpermitsfor themilkplantat362680Chouteauand garageat1101Motard.

BACKGROUND:

OnNovember18,2009thegroupofthreebuildingsandsmokestackthatcomprisetheformer PevelyDairyCompanyPlantwaslistedintheNationalRegisterofHistoricPlaces.Theownerof thepropertyatthattimewasPrairieFarmsDairyInc.Thelisting,nodoubt,wasmeantto enabletheuseofrehabilitationtaxcreditsforamixeduseredevelopmentprojectproposedfor thepropertybyBruceDevelopmentandRickYackeyannouncedinApril2010.Thatprojectdid notgoforward.WithinthelastyearSt.LouisUniversityacquiredthethreeparcelsthat currentlycomprisetheformerPevelyDairyCompanyPlant.TheCulturalResourcesOffice receivedthreeapplications,eachforthedemolitionofabuilding,onOctober26,2011.The applicationsindicatedthatthethreelotsaffectedwouldbeopenspace.TheDirectordeniedall oftheapplicationsduetotheNationalRegisterlistingandsoundnessofthebuildings.The ownerisappealingthedenials.TheCulturalResourcesOfficereceivedanapplicationforthe demolitionofthesmokestackonNovember17,2011.Thisapplicationwasalsodenied,again becauseoftheNationalRegisterlistingandsoundnessofthestructure,andtheowneris appealingthatdecisionaswell.Thisreportaddressestheproposeddemolitionofallofthe buildingsandthesmokestack.Theseappeals,originallyscheduledfortheNovember28,2011 PreservationBoardmeeting,weredeferredfromthatagendaattherequestoftheUniversity.

SITEPLANPEVELYDAIRYCOMPANYPLANT


B.100103S.GRAND,OFFICEBUILDING,SOUTHSIDE

D.362680CHOUTEAU,MILKPLANT,FACINGSOUTHWEST


E.1101MOTARD,GARAGE,FACINGWEST

C.100103S.GRAND,SMOKESTACK,FACINGSOUTHWEST

RELEVANTLEGISLATION:

St.LouisCityOrdinance#64689 PARTXDEMOLITIONREVIEWS SECTIONFIFTYEIGHT. WheneveranapplicationismadeforapermittodemolishaStructurewhichisi)individually listedontheNationalRegister,ii)withinaNationalRegisterDistrict,iii)forwhichNational RegisterDesignationispendingoriv)whichiswithinaPreservationReviewDistrictestablished pursuanttoSectionsFiftyFivetoFiftySixofthisordinance,thebuildingcommissionershall submitacopyofsuchapplicationtotheCulturalResourcesOfficewithinthreedaysaftersaid applicationisreceivedbyhisOffice. TheformerPevelyDairyCompanyPlant,whichiscomprisedoftheofficebuildingand smokestackontheparcelwiththeaddress100103S.Grand,themilkplantat362680 Chouteauandgarageat1101Motard,islistedintheNationalRegisterofHistoricPlaces. ThepropertieslistedabovearelocatedinaPreservationReviewDistrict. St.LouisCityOrdinance#64832 SECTIONONE.PreservationReviewDistrictsareherebyestablishedfortheareasoftheCityof St.LouisdescribedinExhibitA. SECTIONFIVE.DemolitionpermitBoarddecision. AlldemolitionpermitapplicationreviewspursuanttothischaptershallbemadebytheDirector oftheOfficewhoshalleitherapproveordisapproveofallsuchapplicationsbaseduponthe criteriaofthisordinance.AllappealsfromthedecisionoftheDirectorshallbemadetothe PreservationBoard.DecisionsoftheBoardorOfficeshallbeinwriting,shallbemailedtothe applicantimmediatelyuponcompletionandshallindicatetheapplicationbytheBoardorOffice ofthefollowingcriteria,whicharelistedinorderofimportance,asthebasisforthedecision: A. RedevelopmentPlans.Demolitionswhichwouldcomplywitharedevelopmentplan previouslyapprovedbyordinanceoradoptedbythePlanningandUrbanDesignCommission shallbeapprovedexceptinunusualcircumstanceswhichshallbeexpresslynoted. Notapplicable.AChapter100planthatincludesthepropertiesproposedfor demolitionexpiredin2006. B. ArchitecturalQuality.Structure'sarchitecturalmerit,uniqueness,and/orhistoricvalue shallbeevaluatedandthestructureclassifiedashighmerit,merit,qualifying,or noncontributingbasedupon:Overallstyle,era,buildingtype,materials,ornamentation, craftsmanship,siteplanning,andwhetheritistheworkofasignificantarchitect,engineer,or craftsman;andcontributiontothestreetscapeandneighborhood.Demolitionofsoundhigh meritstructuresshallnotbeapprovedbytheOffice.Demolitionofmeritorqualifyingstructures shallnotbeapprovedexceptinunusualcircumstanceswhichshallbeexpresslynoted. TheresourcelistedintheNationalRegisterincludesthreecontributingbuildings:the officebuildingat100103S.Grand;themilkplantat362680Chouteau;andthe garageat1101Motard.Inaddition,theNationalRegisterpropertyincludesone 10

contributingobject,thePevelysmokestack,whichislocatedontheparcelwiththe address110103S.Grand.TheNationalRegisternominationstatesthattheformer PevelyDairyPlantislocallysignificantunderNationalRegisterCriterionAinthearea ofindustry.Thenominationnotesthatthefacility,whichservedasthecompanys headquartersandproductionplant,aswellasthelocaldistributioncenter, demonstrateschangingstandardsandtrendsinproductsanitationprocesses,milk packagingandsanitizing,andproductdelivery. Theofficebuilding(1915)at1001S.Grandthathousedseveralaspectsofthe operationexhibitstheengineeringaestheticthatisevidentinmanyindustrial buildings,includingthosehousingmanagementandsalesfunctions.Thereinforced concreteloftbuildinghasacommondaylightfactoryformwithfaadegridpatterns withwindowopeningsfilledoriginallywithindustrialsteelsash.Theformalentrance onGrandandtheterracottacorniceacknowledgeitsurbanlocationandthemilk bottlesthatflankitmarktheentrancetotheretailspace.Ametalframeontheroof topsupportstheredlettersspellingPEVELY. Themilkplant(1916,1943,1945)hasamoreutilitarianpresenceandhastwolarge additionsthatwerecompletedaftertheperiodofsignificanceforthecomplex,in 1975and1997.Thegarage(1928),itsarchedroofreplicatingtheshapeofitssteel trussesthatprovideaclearinteriorspanforvehiclemaneuvering,isalsoutilitarian andindustrialinappearance.Itsbrickwallshavelargewindowsfilledwithindustrial steelsash.ThePevelysmokestack(1943),constructedwithradialmasonryunits,has PEVELYletteredfourtimesinwhitebrick,tobeseenfromalldirections.The smokestackisaclassicexampleofthetypeofmasonrychimneysbuiltinindustrial complexesthatwerebothfunctionalandiconic. TwocategoriesofbuildingsdefinedinOrdinance64689arepertinent.HighMerit buildingsarethosethatarecontributingasamajorstructuretoanexistingor potentialCityorNationalRegisterhistoricdistrict;or,deservingofconsiderationfor singlesitehistoricorLandmarkSitedesignation.Meritbuildingsarethosethatare contributingtoanexistingorpotentialCityorNationalRegisterhistoricdistrictor havingauniquearchitecturalstyle. TheCulturalResourcesOfficerecommendsthattheofficebuildingbeconsidereda HighMeritbuildingasitisthemajoroneofthisgroupofbuildings,withoutwhichthe NationalRegisterlistingwouldlikelynothavebeenpossible.Thesmokestack,garage, andmilkplantarerecommendedtobeconsideredMeritbuildingsastheycontribute toanexistingNationalRegisterproperty,butarenotparticularlydistinctiveexamples ofindustrialstructures.Insummary,theCulturalResourcesOfficeagreeswiththe NationalRegisternominationthatrecognizestheprimarilyhistorical,ratherthan architectural,significanceofthisgroupofbuildings. C. Condition.TheOfficeshallmakeexteriorinspectionstodeterminewhetherastructureis sound.Ifastructureorportionthereofproposedtobedemolishedisobviouslynotsound, theapplicationfordemolitionshallbeapprovedexceptinunusualcircumstanceswhich shallbeexpresslynoted.Theremainingorsalvageableportion(s)ofthestructureshallbe 11

evaluatedtodeterminetheextentofreconstruction,rehabilitationorrestorationrequired toobtainaviablestructure. 1. Soundstructureswithapparentpotentialforadaptivereuse,reuseandorresale shallgenerallynotbeapprovedfordemolitionunlessapplicationofcriteriain subsectionsA,D,FandG,four,sixandsevenindicatesdemolitionisappropriate. Thereisnoevidenceuponvisualinspectionthatthethreebuildingsandthe smokestackarenotsound.Thethreebuildingshavevaryingpotentialfor reuse.Thesmokestackhasaprimarilyiconicfunctionasavisuallandmark. 2. Structurallyattachedorgroupsofbuildings.Theimpactoftheproposeddemolition onanyremainingportion(s)ofthebuildingwillbeevaluated.Viabilityofwallswhich wouldbeexposedbydemolitionandthepossibilityofdiminishedvalueresulting fromthepartialdemolitionofabuilding,orofoneormorebuildingsinagroupof buildings,willbeconsidered. Theentirecomplexisproposedfordemolition. D.NeighborhoodEffectandReusePotential. 1. NeighborhoodPotential:Vacantandvandalizedbuildingsontheblockface,the presentconditionofsurroundingbuildings,andthecurrentlevelofrepairand maintenanceofneighboringbuildingsshallbeconsidered. ThevicinityofthePevelyPlanthaschangedsignificantlyduringthelastseveral yearsasneweducationalandmedicalinstitutionaluseshavereplaced industrialones.Thepropertyat10211029,theMissouriBeltingCo.facility, locatedimmediatelysouthofthePevelyPlantonGrand,isillustrativeofthe formerdominantuseandiscurrentlyvacant.TheBeeLinetruckingfreight stationbuildingsnorthofChouteauandthePevelyDairyPlanthavejustbeen demolished.ThispropertyisoneoftheUniversitysacquisitionsinthearea duringthelastfewyears. Othernearbybuildingsareingoodrepair.TheImagineAcademyof EnvironmentalScienceandMathislocatedimmediatelywestofthePevely PlantcomplexatthecornerofChouteauandSpring.TheUniversitysrecently builtEdwardA.DoisyResearchCenterstandsontheeastsideofS.Grand, oppositethepropertynowunderconsideration.Twofastfoodrestaurantsin modernbuildingsoccupythenortheastquadrantoftheS.GrandandChouteau intersection.Neighborhoodpotentialisnotidentifiedasadetrimenttoreuse oftheformerPevelybuildings. 2. ReusePotential:Thepotentialofthestructureforrenovationandreuse,basedon similarcaseswithintheCity,andthecostandextentofpossiblerenovationshallbe evaluated.Structureslocatedwithincurrentlywellmaintainedblocksorblocks undergoingupgradingrenovationwillgenerallynotbeapprovedfordemolition. Whileallofthebuildingsinthecomplexhavepotentialforreuse,theoffice buildingatthecornerofS.GrandandChouteaumaybethemosteasily adaptedfornewuses.Therearemanyexamplesofthereuseofreinforced

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concreteloftbuildingsinthecity.Yetthelong,narrowofficebuildinghas unalterableandlimitingaspectstoit,includingitslocationattheedgesofthe sidewalksoftwobusystreets.Thegarage,withitstrussroofandlackof interiorcolumns,wouldlenditselftousesthatrequireunobstructedspace. Themilkplantmaypresentthemostchallengesforreuse,asitwasbuiltwith varyingfloorheightstohouseextensivemachineryandaprocessingoperation. 3. EconomicHardship:TheOfficeshallconsidertheeconomichardshipwhichmaybe experiencedbythepresentowneriftheapplicationisdenied.Suchconsideration mayinclude,amongotherthings,theestimatedcostofdemolition,theestimated costofrehabilitationorreuse,thefeasibilityofpublicorprivatefinancing,theeffect oftaxabatement,ifapplicable,andthepotentialforeconomicgrowthand developmentnthearea. Noevidenceofeconomichardshiphasbeensubmitted. E.UrbanDesign.TheOfficeshallevaluatethefollowingurbandesignfactors: 1. Theeffectofaproposedpartialdemolitiononattachedorrowbuildings. Theofficebuildingandmilkplantareattached.Thoughbothareproposedfor demolition,itseemslikelythatonecouldbedemolishedandtheotherone keptstanding. 2. Theintegrityoftheexistingblockfaceandwhethertheproposeddemolitionwill significantlyimpactthecontinuityandrhythmofstructureswithintheblock. ThesectionofSouthGrandbetweenLafayetteAvenueandtheviaductover therailyardsnorthofChouteauhasbeenquitevariedinfunctionand thereforehasavarietyofbuildingtypesandnostrongsenseofcontinuityand rhythm.Althoughcommentscanbemadeonthistopic,theblockfaceisnot theprimaryfactorintheurbandesignofthearea. ThewestblockfaceonGrandnorthofHickorywasarowofthreeindustrial loftbuildingsuntilrecently.Thedemolitionin2009ofthePevelyicecream factorybuildingat1101S.Grandafterafirewasalosstothecontinuityofthe blockfront.ThefourstoryPevelyofficebuildingholdsthecorneratGrandand Chouteau.ThesmokestackispositionedbackfromtheGrandAvenueedgeof thepropertyandisnotperceivedfirstandforemostasacomponentofthe blockface. OnChouteauAvenue,theadjoiningofficebuildingandmilkplantcreatealong, solidblockfrontthatextendsforapproximatelyhalfoftheblock.Though alterationshavereducedthevisualattractivenessofthemilkplant,the Chouteaufaadeoftheplanthasthepotentialtobepartofastrongand coherentblockface.AparkingareaseparatestheImagineAcademy, occupyingaformerindustrialbakerybuilding,atthecornerofChouteauand Spring,fromthePevelyportionoftheblockfront.

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ThegarageonMotardisvisiblefromGrandonlysincethelossofthePevelyice creamfactory.AmodernbuildingstandsadjacenttotheGarageontheshort Motardblockfront. 3. Proposeddemolitionofbuildingswithuniqueorsignificantcharacterimportanttoa district,street,blockorintersectionwillbeevaluatedforimpactonthepresent integrity,rhythm,balanceanddensityonthesite,block,intersectionordistrict. Thisaspectofurbandesignhasstrongbearingontheconsiderationofthese demolitionapplications.Thecornerofficebuildingandchimneyhavea distinctiveindustrialcharacter.Thelocationofthecomplexattheintersection oftwoheavilytraveledthoroughfaresanditsgeographymakethePevelyplant ahighlyvisiblecomponentinthelandscapeandavisuallandmark.Thelossof theofficebuildingandsmokestackwouldnoticeablyalterthepresent integrity,balance,anddensityoftheplantsite,thenorthernportionofthe block,andaprominentintersection. 4. Theeliminationofuseswillbeconsidered;however,thefactthatapresentand originalorhistoricuseofasitedoesnotconformtopresentzoningorlanduse requirementsinnowayshallrequirethatsuchanonconformingusetobe eliminated. ThethreeparcelsthatcomprisethePevelyPlantarezonedJIndustrial DistrictandhavetheStrategicLandUsecategoryofOpportunityArea. F. ProposedSubsequentConstruction.Notwithstandingtheprovisionsofanyordinancetothe contrary,theOfficeshallevaluateproposedsubsequentconstructiononthesiteofproposed demolitionbaseduponwhether: 1. Theapplicanthasdemonstratedsitecontrolbyownershiporanoptioncontract; Yes. 2. Theproposedconstructionwouldequalorexceedthecontributionofthestructureto theintegrityoftheexistingstreetscapeandblockface.Proposalforcreationof vacantlandbydemolition(s)inquestionwillbeevaluatedastoappropriatenesson thatparticularsite,withinthatspecificblock.Parkinglotswillbegivenfavorable considerationwhendirectlyadjoining/abuttingfacilitiesrequireadditionaloffstreet parking; Theinitialdemolitionapplicationsindicatedthatthelotswouldbecomeopen space.TheUniversityisnowproposingtodevelopanAmbulatoryCareCenter onthesiteoftheformerPevelyDairyPlant.TheCulturalResourcesOfficehas notseenanysiteplansforthisproject.Universityrepresentativeswillpresent theprojectattheBoardmeeting. 3. Theproposedconstructionwillbearchitecturallycompatiblewiththeexistingblock faceastobuildingsetbacks,scale,articulationandrhythm,overallarchitectural characterandgeneraluseofexteriormaterialsorcolors; TheSt.LouisUniversitypresentationattheBoardmeetingwilladdressthis topic.

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4. Theproposedusecomplieswithcurrentzoningrequirements; ThepropertyiszonedJIndustrialDistrict,whichallowsforarangeofuses. 5. Theproposednewconstructionwouldcommencewithintwelve(12)monthsfrom theapplicationdate. TheSt.LouisUniversitypresentationattheBoardmeetingwilladdressthis topic. G. CommonlyControlledProperty.Ifademolitionapplicationconcernspropertyadjoining occupiedpropertyandifcommoncontrolofbothpropertiesisdocumented,favorable considerationwillgenerallybegiventoappropriatereuseproposals.Appropriateusesshall includethoseallowedunderthecurrentzoningclassification,reuseforexpansionofan existingconforming,commercialorindustrialuseorauseconsistentwithapresently conforming,adjoiningusegroup.Potentialforsubstantialexpansionofanexistingadjacent commercialusewillbegivendueconsideration. St.LouisUniversityownsadjacentpropertyandisproposingtoexpanditsmedical center.Thenewusewouldbeconsistentwithapresentlyconformingadjoininguse group. H. AccessoryStructures.Accessorystructures(garages,sheds,etc.)andancillarystructureswill beprocessedforimmediateresolution.Proposeddemolitionofframegaragesoraccessory structuresinternaltocommercialorindustrialsiteswill,inmostcases,beapprovedunless thatstructuredemonstrateshighsignificanceundertheothercriterialistedherein,which shallbeexpresslynoted. NoneofthebuildingsarecategorizedasaccessorystructuresintheNationalRegister nominationorbytheCulturalResourcesOffice. COMMENTS:

TheOrdinancegoverningthereviewofproposeddemolitionsinPreservationReviewDistricts andNationalRegisterlistedpropertiesprovidesanextensiveanalyticalframeworkwithinwhich toconsidertheproposedactions.Intheevaluationofthiscomplexofbuildings,itbecomes clearthatthestructuresdifferinarchitecturalqualityandprominenceinthebuiltenvironment. Theofficebuildingstandsoutasasound,HighMeritbuilding,oneadaptablefornewuses;its retentionandreusewouldmaintainsomeoftheexistingcharacteroftheblockfront, streetscapeandneighborhood.Maintainingthesmokestackonthepropertyisseenas desirableduetoitsiconicroleinthecitysskyline.Theofficebuildingandsmokestackprovide importantcontextforeachother. Oftenhistoricpreservationistsaskwhyacombinationofnewbuildingsandnewuseofhistoric buildingsisnotpursuedinaredevelopmentproject.Thisisavalidquestioninthisinstanceand itmaybethatsuchasolutionispossible.Thechallengeinthisapproachisadaptinghistoric buildingsfortheusesneededbythepropertyowner.Theapprovalofthedemolitionpermits forthetwoMeritbuildings,thegarageandthemilkplant,wouldprovideadditionalareasfor thesitingoftheproposedfacilityandwouldconstituteanacceptableamountofchangetothe

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urbandesignofthearea.Reusingthemostsignificanthistoricresource,theofficebuilding,and keepingthesmokestackstandingbesideit,wouldbeanalternativethatreflectstheintentof thedemolitionreviewdistricts,thepremiseofwhichisthatthehistoricbuildingstockisan assetofthecityanditsreuseshouldbeencouraged. COMMUNITYCONSULTATION:

TheCulturalResourcesOfficehasreceivedemailsfromover20individualsopposedtothe demolitionsoftheformerPevelyDairyPlantbuildings.Severalmessagesurgetheretentionof onlythecornerofficebuildingandthesmokestack.Onepersonhasexpressedsupportforthe demolitions.

CONCLUSION:

TheproposedsubsequentconstructionoftheAmbulatoryCareCentercannotbeevaluatedat thetimethesecommentswerepreparedandneedstobeconsideredoncepresentedatthe PreservationBoardmeeting.TheCulturalResourcesOfficerecommendsthatthePreservation Boardapprovethedemolitionofthemilkplantat362680Chouteauandthegarageat1101 Motard,asthelossoftheseMeritbuildingswouldhaveanacceptableeffectontheurban designandthestreetscape.TheCulturalResourcesOfficealsorecommendsthatthe PreservationBoardupholdthedenialofthedemolitionoftheofficebuildingasitisasound, HighMeritresourceandhasreusepotential,andtheiconicsmokestack.Thesetwostructures ontheparcelwiththeaddress100103S.Grand,areprominentinthestreetscapeandtheir losswouldhaveanoticeableeffectonthephysicalfabricoftheneighborhoodandurban design. CONTACT:

BetsyBradley Telephone: Fax: EMail:

PlanningandUrbanDesign,CulturalResourcesOffice 3146223400x206 3142593406 bradleyb@stlouiscity.com

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