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HomeMy WebLinkAbout21385 CCOA-DEMO Determination15 W Lamme Street, Deaconess Hospital, CCOA & Demo Application 21385 Page 1 of 4 SECTION 2: FINDINGS Project meets City of Bozeman Design Guidelines for Historic Preservation and the Neighborhood Conservation Overlay and Section 38.340.050 Bozeman Municipal Code. Project meets City of Bozeman Design Guidelines for Historic Preservation and the Neighborhood Conservation Overlay and Section 38.340.050 Bozeman Municipal Code with conditions, see Section 5, Staff Analysis below. Project meets City of Bozeman Design Guidelines for Historic Preservation and the Neighborhood Conservation Overlay and Section 38.340.050 Bozeman Municipal Code, see attachment. PLANNER SIGNATURE Sarah Rosenberg, AICP, Associate Planner DIRECTOR SIGNATURE Anna Bentley, AICP, Interim Director & Deputy Director of Community Development NCOD CERTIFICATE OF APPROPRIATENESS DEMOLITION DECISION SECTION 1: APPLICATION Date: March 8, 2022 File Number: 21385 Address: 15 W. Lamme Street (Historic Deaconess Hospital) Project Description: Application to demolish the historic Deaconess Hospital. The structure is currently vacant. Per UDC 38.340.080.A.3 and 38.340.110, the building has been deemed an unsafe structure. As part of the deconstruction, the applicant proposes to salvage as much of the historic materials to be repurposed in the future, as appropriate and feasible. 15 W Lamme Street, Deaconess Hospital, CCOA & Demo Application 21385 Page 2 of 4 SECTION 3: CONDITIONS OF APPROVAL Please note that these conditions are in addition to any required code provisions identified below. These conditions are specific to the development: 1. The applicant is advised that unmet code provisions, or code provisions that are not specifically listed as conditions of approval, does not, in any way, create a waiver or other relaxation of the lawful requirements of the BMC or state law. 2. As part of the deconstruction efforts, the property owner will salvage as much of the historic building materials as possible be repurposed, as appropriate and feasible, including the exterior brick, terracotta entablature, original wood windows, terracotta window sills and head details, Roman Ionic terracotta columns at the entry, Deaconess Hospital sign at entry, and the railing at central interior staircase. The applicant is advised to work with the City of Bozeman Historic Preservation Officer during the process of salvaging the materials. 3. It is the property owner’s responsibility to ensure that the demolition of the west wall of the Old Hospital building adjacent to the neighboring apartment building to the west is done in a safe manner. Prior to removal of the west wall of the Old Hospital building, the property owner must conduct a structural analysis. Prior to removal of the west wall of the Old Hospital building, the property owner must notify residents of the adjacent apartment building of the demolition. The notice must provide the time frame for completion of demolition of the west wall of the Old Hospital building and any safety protocol necessary for the residents to be aware. SECTION 4: PROPERTY DETAILS The Deaconess Hospital was constructed in 1920 and designed by local architect, Fred Willson. It was developed as a 50-bed hospital and then state-of-the-art surgery and care facility. In 1944, a three-story west-wing was added to serve as the nurses’ dormitory. This wing now serves as residences and is not part of the demolition application. The Mountain View Care Center to the east was connected to the Deaconess Hospital in 1971. A demolition permit (21311) was granted for this portion of the building in fall, 2021. It was not considered a historic contributing structure. The hospital served as a health facility until 1986 when the new hospital was built near Sunset Hills Cemetery. Levels 1 and 2 of the Deaconess Hospital were converted into a senior nursing care facility. Levels 3 and 4 remained vacant. As outlined in the Historic Property Record Survey done in 2016, the property exhibits historic significance and considered eligible for listing on the National Register of Historic Places (NRHP) for its association to Bozeman’s History, Fred Willson, and exhibiting distinctive and unique characteristics in the design. In order for a property to be placed on the NRHP, the property owner must give permission for it to go through that analysis. Neither the current or past property owners ever pursued this designation. 15 W Lamme Street, Deaconess Hospital, CCOA & Demo Application 21385 Page 3 of 4 The public notice period was conducted from February 16 – March 3, 2022. Twenty four public comments were received outside of the public notice period. Five public comments were received during the public notice period. All public comments received were in opposition of the demolition. Many encouraged restoration and renovation efforts for adaptive reuse. Others encouraged incorporating the design and materials into the new building. The public comment received before and during the notice period can be found here. The City of Bozeman Historic Preservation Advisory Board (HPAB) submitted a public comment. The letter is attached to the end of this staff report. In summary, HPAB is recommends the following: 1. Incorporate salvageable, historic materials into the new structure. 2. Rebuild the façade with a mix of salvaged materials and new materials. 3. Document as much of the structure before further demolition occurs including taking photos, creating details architectural plans of both the interior and exterior (i.e. HABS Level II documentation). 4. Make documentation available to the public for free. 5. Incorporate plaques and/or information panels of the history of the building. 6. Create a film in collaboration with interested citizens of the hospital’s history. SECTION 5: STAFF ANALYSIS & FINDINGS The provisions for an unsafe structure, section 38.340.110 of the Unified Development Code (UDC) whether historic or non-historic, take priority over other provisions for demolition. The applicant provided a report from DCI Engineers that outlines the unsafe nature of the structure. The City of Bozeman chief building official reviewed the report and conducted a site visit and made a determination that the structure is considered unsafe. See exhibit A at the end of this report for the Chief Building Official’s determination letter. Therefore, the review authority may approve demolition and subsequent development when the property is considered unsafe. Per 38.340.110.A, reclamation of the site to a safe, graded condition where storm-water runoff and weeds are controlled is an appropriate replacement and subsequent development. Any structure approved for demolition must be fully documented as outlined in section 38.340.120, documentation and administrative procedures. The applicant provided digital versions from MSU Special Collections of the original drawings of the Deaconess Hospital done by Fred Willson. In 2016, a historic inventory survey was conducted on the structure that provides a brief history of the property, the significance of the structure, detail on the architectural design, and photographs. Staff has found that the digital drawings and the survey satisfy the documentation standards. The applicant also agrees to salvage as much of the historic building materials as possible and to repurpose them as appropriate and feasible, which includes the exterior brick, terracotta entablature, original wood windows, terracotta window sills and head details, Roman Ionic terracotta columns at the entry, Deaconess Hospital sign at entry, and the railing at central interior staircase. See exhibit B at the end of this report for salvage materials exhibit provided by the applicant. SECTION 6: NOTICE & PUBLIC COMMENT 15 W Lamme Street, Deaconess Hospital, CCOA & Demo Application 21385 Page 4 of 4 SECTION 7: APPEALS You have the right to appeal this decision of the Community Development Director pursuant to the provisions of Article 38.250 of the Bozeman Municipal Code. Please note that this decision is also subject to appeal by other aggrieved parties as defined by Sec. 38.700.020 of the Bozeman Municipal Code. Such appeals must be filed pursuant to the provisions of Sec. 38.250.030 of the Bozeman Municipal Code. An appeal must be filed within 10 working days following the date of this decision. If a valid appeal is filed, no further action on the project may proceed until a decision on the appeal is made by the City Commission, and the Community Development Department and Building Division will not be able to approve any building permits or to perform any inspections related to this CCOA. CONTACT US Alfred M. Stiff Professional Building 20 East Olive Street 59715 (FED EX and UPS Only) PO Box 1230 Bozeman, MT 59771 phone 406-582-2260 fax 406-582-2263 planning@bozeman.net www.bozeman.net October 6, 2021 Andy Holloran HomeBase Partners 20 North Tracey Avenue Bozeman, Montana 59715 406.3404.1799 Subject: Report and Notice Re: Original Deaconess Hospital at 15 W. Lamme Mr. Holloran, This letter is to serve as my report regarding the unoccupied original Deaconess Hospital building at 15 W. Lamme (Hospital), pursuant to 2018 International Building Code (IBC) section 116.2. You have requested allowing the demolition of the Hospital under section 38.340.080.A.3 of the Bozeman Municipal Code (BMC), which requires a determination that the building is an unsafe structure, I have determined that the building is an unsafe structure in its current condition based on my own observations and technical reports provide by you. This letter constitutes notice of my determination that the Hospital an unsafe structure in its current condition pursuant to IBC section 116.3. Additionally, IBC section 116.3 provides, “… Such notice shall require the person thus notified to declare immediately to the building official acceptance or rejection of the terms of order.” Please immediately respond to this letter in writing indicating your acceptance or rejection of the terms of this order. Timeline and Investigation: August 25, 2021 Received Structural Conditions Assessment via emailed from Andy Holloran. The Structural Conditions Assessment conducted by DCI Engineers states “the heavy nature of the building and the deterioration of the upper-level concrete makes it susceptible to failure or severe damage in a design seismic event. The recommended upgrades are critical to ensure life-safety no matter the future use of the building, and it should not be occupied without these repairs.” DCI Engineers Summary: Required - Exterior Wall and Parapet Bracing, Concrete Repairs: Based on our understanding of the extents of the renovation, the IEBC does require bracing of the unreinforced masonry and hollow clay tile walls (all exterior walls), which can be achieved through connections to the existing roof and floor structure and new interior metal or wood stud furring walls. Repairs to all damaged or deteriorated concrete structural elements will also be required prior to occupancy. Recommended- New Lateral System: Finally, the installation of a code- approved lateral system is highly recommended to improve life-safety for the building occupants with the introduction of a new CMU shear wall system as shown in Appendix A. Any modification to the occupancy of the roof or any new additions to the building would also trigger the required installation of this system. “Overall, the building requires significant upgrades to ensure it can function adequately and provide life-safety to the occupants following a renovation or adaptive reuse. A thorough cost-benefit analysis is highly recommended as to what can be reasonably salvaged while still providing a functional and safe building from all aspects in conjunction with the structural integrity.” September 3, 2021 Received TD&H Engineering report on pre-renovation asbestos and lead paint inspection via email from Andrew Gault. City of Bozeman Building is not certified to determine the asbestos level so our analysis of the threat asbestos pose to public health and safety is dependent on the TD&H Engineering report: “37 HAs sampled during the inspection were determined by laboratory analysis to contain asbestos in quantities greater than 1%. These are shown in Table 1 below.” Asbestos A total of 37 areas of ACM were identified. Two materials were identified as having 2% chrysotile. The first material, drywall joint compound, is considered non-ACM according to the EPA’s wallboard system clarification. The second material, CMU surface texture, was reanalyzed using the PLM 400-point counting method and found to contain less than 1% asbestos; therefore, the material qualifies as non-asbestos-containing per EPA guidelines. However, as OSHA does not recognize a lower limit of asbestos, certain OSHA regulations apply when any detectable amount of asbestos may impact employees involved in the renovation activities. Lead paint Results: Results A total of 22 paint HAs tested positive for lead-based paint, and a further 102 paint HAs were analyzed as lead-containing and are shown in Table 3. Results of all painted surfaces analyzed are contained in Appendix D, and XRF sample locations are shown in Appendix E. September 3, 2021 Site visit – As you requested, I conducted a site visit with DCI’s engineer on September 3, 2021. In Attendance: • Ben Abbey - Bozeman Building • Scott Mueller - Bozeman Fire • Sarah Rosenberg – Bozeman Planning • Danielle Garber – Bozeman Planning • Andrew Gault – Owner Rep. • Matthew Hubbard – DCI Engineers • Jami Lorenz – DCI Engineers Scott, Sarah, Danielle, and I arrived at the north entrance and met with Andrew, Jami, and Matthew and entered the building, moving to the third floor. On the third floor I observed that all structural member had been exposed and no finished wall covering was present. I notice that there were no interior walls present, the area was fully open, and it was in extreme disrepair. Matthew walked Scott and me through the damage critical areas. I witnessed areas of concrete broken away exposing reinforcement bar (rebar) in structural concrete columns and beams. I also saw beams with obvious stress cracking visible. I asked if they had performed any additional tests, like x-ray. Matthew said they had not performed any destructive testing or x-ray. He explained that they have mainly preformed visual analysis. Walking further through the 3rd floor, he explained that the hollow-clay tile with the exterior brick veneer was not providing gravity structural support, which is also outlined in the report. This exterior brick veneer was in between the structural columns and beams as covering for the exterior of the building and did not appear to be offering structural support as Mathew had explained. We moved to the 4th floor, which was the most damaged and aged area in the entirety of the structure. I observed the entire floor in extreme disrepair. I actually tapped with my boot on one of the damaged concrete columns and pieces of concrete crumbled off fairly easily. There was additional significant damage exposing rebar in multiple places on the columns and ceiling concrete beams. I witnessed rebar tightly bundled together when it was originally placed. Matthew explained that the type of rebar used was smooth bar and bundled together as it was in the Hospital, is not the best practice in structural performance. He also went on to say that the 4th floor would likely collapse in a strong seismic event and noted that Bozeman is in the Seismic Design Category D, which is the most susceptible to seismic events. Therefore, a seismic event could cause further damage or total failure of the structure. Specifically, he opined that if the fourth floor roof were to collapse it would cause “pancake collapse” of the stories below. I also saw a steel column and steel beam on the fourth floor that appeared to be shoring up the ceiling and asked what these are supporting or installed for. They did not have a known reason for it. Andrew thought it may be additional support for roof top mechanical equipment in that area on the exterior of the roof. These did not appear to me to be attached to the building structure in a manner that would properly transfer any load they might be supporting. We then moved to the basement from the fourth floor to look at the Fire alarm panel where Scott Mueller inspected the fire alarm system for the building. He provided the following comments below: As a summary of findings from our site visit on Friday, September 3rd, 2021, I offer the following: Verbal and visual confirmation that the fire alarm system was still active and functioning but had communication trouble displayed on FACP. This possibly means system not being monitored per code. Also fire sprinkler system was reportedly still active per Andrew. I reminded Andrew that if the systems are active they need to be fully maintained without any impairments. Such as alarm trouble signals. I further suggested that the alarm system could be scaled back to only monitor the fire sprinkler system as the building is not occupied and would stand to protect structure. As proposed for demolition, I strongly agreed with the proposal and fully support securing the entire building from un-authorized access. Please accept these observations and contact me if you have further questions. Scott Mueller. Determination: IBC Section 116.1 provides: Structures or existing equipment that are or hereafter become unsafe, insanitary or deficient because of inadequate means of egress facilities, inadequate light and ventilation, or which constitutes a fire hazard, or are otherwise dangerous to human life or public welfare, or that involve illegal or improper occupancy or inadequate maintenance, shall be deemed an unsafe condition. Unsafe structures shall be taken down and removed or made safe, as the Building Official deems necessary and as provided for in this section. A vacant structure that is not secured against entry shall be deemed unsafe. In accordance with the International Building Code, the hospital meets the provisions of an Unsafe Structure. Considering supporting factors in the reports and my site visit with the engineer, the dilapidated state and disrepair of the structure throughout the upper floors, stress cracking, exposed rebar, crumbling concrete off of supporting members, the building poses a danger to public health and safety. The findings and observations I made during my site visit, the structural integrity of the concrete supporting columns and beams constitutes a danger to the public health and safety because in the event of a seismic event, the entire building could collapse killing people in nearby residential buildings and causing immense damage to property. The presence of asbestos in the Hospital is a danger to public health and safety because it requires proper disposal and removal in a controlled manner. In the event of a fire the system would fail to properly notify officials because the fire alarm system has been inadequately maintained, which could result in an undetected fire becoming large and hard to fight or potentially spreading to other nearby residential buildings. Conclusion: It is my determination under the 2018 IBC Section 116.1 Conditions, that the building at 15 W. Lamme is an unsafe structure and poses a dangerous condition to the public. My observations are bolstered by the structural conditions assessment and the asbestos report conducted by licensed professionals and provided by the property owner. The building owner must immediately secure the building, including boarding up windows and securing all ingress and egress access points into the building to prevent any occupancy of the structure. Please confirm to me in writing as soon as practicable that the building has been secured against any occupation of the structure and immediately respond to this letter in writing indicating you acceptance or rejection of determination of this order. Sincerely Ben Abbey Interim Chief Building Official Cc: Martin Matsen, Director of Community Development DEM CHECKLIST DEM SUBMITTAL15 West Lamme St. SALVAGED MATERIAL EXHIBITSBrickThe color, pattern and texture of the existing brick at the old hospital has been documented in the images below. There is potential to reuse this brick in the subsequent development in non-structural or load bearing applications, but all brick will be salvaged throughout demolition of the existing structure. There are areas at the facade where it is evident that an infill brick was manufactured to match the existing brick selection. 2 1/4” 7 5/8” DEM CHECKLIST DEM SUBMITTAL15 West Lamme St. Terracotta EntablatureAn entablature is a classic roman order of architecture describing the ornamental detailing found at the top of buildings and porticos. The entablature is made up of the cornice as the top third, a frieze as the middle, and architrave typically forming the base. This images below show the detailing referred to as the terracotta entablature . The salvageable material is not limited to the areas shown in the images below, but are being utilized as specific examples. The applicant intends to salvage all terracotta detailing similar to the conditions shown below. Terracotta Cornice at Entry Portico Terracotta Cornice at Building Entablature DEM CHECKLIST DEM SUBMITTAL15 West Lamme St. Original Wood WindowsAs documented in 2021, the old hospital has a total of 86 windows of various sizes throughout the existing structure - 29 at the south facade, 19 at the east facade, 15 at the west facade, and 23 at the north facade. Some of the windows included in this count are documented in the document to follow this narrative as new windows. Based on the brick infill sections seen clearly at the basement level of the building and other areas, it is evident that the originally constructed fenestration design was altered over the years to better suit the needs of the changing occupancy. These areas are indicated in the following drawing with a red diagonal hatch as an overlay over the orignial elevations included in Fred Willson’s 1918 construction documents. Also clearly indicated by a diagonal hatch are the facade areas that were later covered with the construction of, what is now an adjacent apartment building to the west and Mountain View Care Center to the east. Terracotta Window Sills and Head DetailsIn addition to salvaging the wood windows mentioned above, the applicant also plans to extract as many terracotta sills and keystones sandwiched between the brick arch detailing above each window. KEYSTONE KEYSTONE WINDOW SILL WINDOWSILL MOUNTIN VIEW WEST MOUNTIN VIEW WEST MOUNTIN VIEW WEST could not verify newstairwell new stairwell could not verify newwindow newdoor newwindow newwindownewwindow new glassblock wall newdoor newstairwell DEM CHECKLIST DEM SUBMITTAL15 West Lamme St. Roman Ionic Terracotta Columns at EntryThe four terracotta columns at the entry are designed with ionic column capitals, a fluted column shaft and traditional column base. These columns support the building entry’s entablature, made up of the cornice, frieze and architrave detailing. While the entry staircase was reconfigured since its original design in 1918, the columns were left untouched supporting the entry portico. DEM CHECKLIST DEM SUBMITTAL15 West Lamme St. Deaconess Hospital Sign at EntryThe old deaconess hospital entry features a traditional roman Entablature siting above the capitals of the ionic columns. Within that Entablature is the Frieze, in the old hospital’s case made of brick and serving as home of the terracotta entry signage that reads “Deconess Hospital”. It appears this sign was carved and erected in 6 pieces, which will be a consideration when the applicant’s demolition team attempts to salvage this sign. DEM CHECKLIST DEM SUBMITTAL15 West Lamme St. Railing at Central Interior StaircaseThe orientation and layout of the central staircase is best shown by the original construction documents of each floor plan. At the first floor plan the orientation actually changes direction between a shared landing. The original design of the central staircase railings ties into the exterior railings seen bridging the space between the terracotta columns and enclosing the exterior granite stairs leading up to the first floor entrance. The body of the railing features a grouping of four vertical balusters and a central circular element, that is repeated the length of the railing. A wood hand rail acts as the cap to this design and bridges the gap between each railing post located adjacent to each landing. Unfortunately, the original stair’s riser, treads and landings no longer comply with current code standards for stair design. As a result, this railing when salvaged will not be able to be utilized as another stair railing, but has potential to be featured in other decorative or ornamental ways. 3’-3” RISER = 11” TREAD = 10” The images included on these two pages are intended to show the existing conditions associated with the stairs, landings and handrails/railing at the interior staircase. DEM CHECKLIST DEM SUBMITTAL15 West Lamme St. 3’-3”