Attachment B - Staff Report - Z-31-20-7.pdf

City of Phoenix — Formal (2020-10-07)

Extracted text (via pymupdf) 12421 characters

Staff Report: Z-31-20-7
July 16, 2020
INTRODUCTION
Z-31-20-7 is a request to establish Historic Preservation (HP) overlay zoning for the
property located at the northwest corner of 22nd Avenue and McDowell Road [2202
West McDowell Road] known historically as the Produce Center Building. Maps and
photos of the subject property are attached.
STAFF RECOMMENDATION
Staff recommends that rezoning request Z-31-20-7 be approved.
BACKGROUND
In November 2019, S. Emmanuel Petrus, representing the current property owner,
Mountain Village Group Homes, Inc., contacted the City of Phoenix Historic
Preservation Office to inquire about HP zoning for the subject property. After
researching the property, staff made a recommendation on February 24, 2020 that it
was eligible for historic designation. Mr. Petrus then submitted formal paperwork
requesting that the City proceed with an application for HP zoning. At his request, the
HP Commission voted to initiate HP zoning for the subject property on May 18, 2020.
PROPERTY HISTORY
In 1953, Phoenix businessman Ralph Eaton oversaw the construction of a two-story
office building to support grower/shipper operations near the BNSF Railway’s Mobest
Yard. Eaton was a prominent vegetable grower and shipper and was also president of
the Vegetable Growers Association, representing a $20 million industry in the Salt River
Valley.
An Arizona Republic article from July 12, 1953 notes that Eaton had already leased
office space to several agriculture-related operations when construction of the building
began. These tenants included the Stanley Fruit Company, the Federal Fruit and
Vegetable Inspection Service, the Federal-State Market News Service, and the Arizona
Fruit and Vegetable Standardization Service. The article states that “all of these offices
originally were in the Security Building 20 years ago. The move is one that began
several years ago, when the shipping firms began leaving their downtown offices and
establishing suitable quarters at their shipping sheds.” Eaton clearly sought to
Attachment B

Staff Report: Z-31-20-7
July 16, 2020
Page 2 of 4

capitalize on this trend as the article further noted that “several of the valley’s largest
packing sheds are adjacent to the new Eaton building.” A second article dated January
31, 1954 announcing the building’s completion identified additional tenants as WESCO
Foods Company, Atlantic Commission Company, Bemis Brothers Bag Company, and
Pacific Fruit Express. The article stated the new building was now the “headquarters of
the vegetable and melon growing and shipping industry” in Phoenix.

Eaton hired Phoenix architect Lester Laraway to design the new building. Laraway,
who had worked in California for many years, came to Arizona in 1936 to work for the
firm of Lescher & Mahoney. He later formed a partnership with Lester Byron before
starting his own firm in 1947. Laraway designed municipal buildings, churches, and
several elementary schools. The building was constructed by the Eaton Construction
Company, also owned by Ralph Eaton, at a cost of $80,000. Eaton’s construction firm
also opened an office in the building after it was completed.

The two-story, rectangular-shaped Produce Center Building with central courtyard was
completed in January of 1954. The July 12, 1953 Arizona Republic article discussing
the proposed construction noted that the building would have “some interesting
architectural features, such as the second-floor projecting on the east and south to give
shade to the floor below, and the use of horizontal steel louvers to control direct sunlight
through windows.” The January 31, 1954 article highlighted the landscaped patio at the
courtyard and noted that interior balconies, reached by open stairways, served as
hallways for second floor offices.

In the mid- to late 1960s, transportation and trucking companies began to locate in the
building, with government agencies related to agriculture retaining a presence.
However, by 1975 there were no agricultural-related firms or agencies remaining within
the Produce Center Building. This reflected a broader decline in vegetable production
in the Salt River Valley as total harvested acres of lettuce—a primary crop—dropped
from 28,240 in 1965 to 11,300 by 1971.

The building continued to be used as offices for transportation and trucking companies
into the 1980s. By the early 1990s, the building had been converted to an adult video
store. In June 2019, the property was acquired by the current owners in June 2019 for
use as an office.

ELIGIBILITY CRITERIA

The eligibility criteria for HP overlay zoning and listing on the PHPR are set forth in
Section 807.D of the City of Phoenix Zoning Ordinance. To qualify, a property must
demonstrate significance in local, regional, state, or national history, architecture,
archaeology, engineering, or culture, according to one or more of the following criteria:

Staff Report: Z-31-20-7
July 16, 2020
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A. The property is associated with the events that have made a significant
contribution to the broad pattern of our history;
B. The property is associated with the lives of persons significant in our past;
C. The property embodies the distinctive characteristics of a type, period, or method
of construction, represents the work of a master, possesses high artistic values,
or represents a significant and distinguishable entity whose components may
lack individual distinction; or
D. The property has yielded or may likely yield information integral to the
understanding of our prehistory or history.

In addition to the significance requirement, the property must also be at least 50 years
old or have achieved significance within the past 50 years if it is of exceptional
importance. The property must also possess sufficient integrity of location, design,
setting, materials, workmanship, feeling, and association to convey its significance.

EVALUATION

The design of the two-story, rectangular-shaped building remains intact, with its
character-defining interior courtyard and second story projections on the eastern and
southern facades. The primary alterations to the building have occurred with materials.
The first-story section of the wall above the brick was a continuous line of framed
windows. This section was framed in and covered with stucco sheathing. The original
louvers over the second story windows were replaced with metal roll-down blinds;
however, the blinds were recently removed, and the original windows are still intact.

Overall, the building retains sufficient integrity to convey its significance as a midcentury
office building. While its Modern design is notable, the building’s primary significance is
under Criterion A for its association with agriculture in Phoenix during the mid-20th
century. It was an important hub for agricultural activity during that time, and it
represents the evolving patterns of commerce as activities moved from the downtown
area to the emerging industrial zone along McDowell Road.

BOUNDARY JUSTIFICATION

Section 807.E states that, when applying the evaluation criteria in Section 807.D, the
boundaries of a historic district should be drawn as carefully as possible to ensure that:

1. The district contains documented historic, architectural, archaeological or natural
resources;
2. The district boundaries coincide with documented historic boundaries such as
early roadways, canals, subdivision plats or property lines;
3. Other district boundaries coincide with logical physical or manmade features and
reflect recognized neighborhood or area boundaries; and

Staff Report: Z-31-20-7
July 16, 2020
Page 4 of 4

4. Other non-historic resources or vacant land is included where necessary to
create appropriate boundaries to assist in meeting the criteria in Section 807.D.

The proposed HP zoning boundary encompasses 0.86 gross acres and includes the
entire parcel, as well as the adjacent right of way, which is customary for rezoning
cases. It coincides with documented historic boundaries as much as possible and
follows parcel lines and street monument lines.

CONCLUSION

The rezoning request Z-31-20-7 to establish Historic Preservation (HP) overlay zoning
for the subject property should be approved for the following reasons:

1. The property meets the significance, age, and integrity requirements for HP
overlay zoning set forth in Section 807.D of the Zoning Ordinance; and
2. The proposed boundaries meet the eligibility criteria outlined in Section 807.E.

Writers
K. Weight
H. Ruter
7/16/20

Team Leader
M. Dodds

Attachments:
Sketch Map (1 page)
Aerials (2 pages)
Photos (4 pages)
Newspaper Articles (2 pages)

A-1
A-2
C-3
GRAND AVE
MCDOWELL RD
21ST AVE
23RD AVE
22ND AVE
WILLETTA ST
GRANADA RD
ALMERIA RD
§¨¦
17
Black Canyon/Maricopa
Freeway Specific Plan
I-17
19TH AVE
7TH AVE
CENTRAL AVE
7TH ST
16TH ST
24TH ST
SR 51
MC DOWELL RD
THOMAS RD
INDIAN SCHOOL RD
G
r
an
d
C
a
n
a
l
ENCANTO VILLAGE
CITY COUNCIL DISTRICT: 7
I
APPLICANT'S NAME:
APPLICATION NO.
Z-31-20
GROSS AREA INCLUDING 1/2 STREET
AND ALLEY DEDICATION IS APPROX.
0.86 Acres
MULTIPLES PERMITTED
* Maximum Units Allowed with P.R.D. Bonus
A-2
A-2 HP
CONVENTIONAL OPTION
N/A
N/A
* UNITS P.R.D. OPTION
N/A
N/A
City of Phoenix Historic Preservation Commission
DATE:
6/22/2020
REVISION DATES:
AERIAL PHOTO &
QUARTER SEC. NO.
QS 13-24
ZONING MAP
G-7
REQUESTED CHANGE:
FROM: A-2 ( 0.86 a.c.)
TO:
A-2 HP ( 0.86 a.c.)
Document Path: S:\Department Share\Information Systems\PL GIS\IS_Team\Core_Functions\Zoning\sketch_maps\2020\Z-31-20.mxd
Z-31-20
0.055
0
0.055
0.0275
Miles

A-1
A-2
C-3
GRAND AVE
MCDOWELL RD
21ST AVE
23RD AVE
22ND AVE
WILLETTA ST
GRANADA RD
ALMERIA RD
§¨¦
17
Black Canyon/Maricopa
Freeway Specific Plan
Maricopa County Assessor's Office
I-17
19TH AVE
7TH AVE
CENTRAL AVE
7TH ST
16TH ST
24TH ST
SR 51
MC DOWELL RD
THOMAS RD
INDIAN SCHOOL RD
G
r
an
d
C
a
n
a
l
ENCANTO VILLAGE
CITY COUNCIL DISTRICT: 7
I
APPLICANT'S NAME:
APPLICATION NO.
Z-31-20
GROSS AREA INCLUDING 1/2 STREET
AND ALLEY DEDICATION IS APPROX.
0.86 Acres
MULTIPLES PERMITTED
* Maximum Units Allowed with P.R.D. Bonus
A-2
A-2 HP
CONVENTIONAL OPTION
N/A
N/A
* UNITS P.R.D. OPTION
N/A
N/A
City of Phoenix Historic Preservation Commission
DATE:
6/22/2020
REVISION DATES:
AERIAL PHOTO &
QUARTER SEC. NO.
QS 13-24
ZONING MAP
G-7
REQUESTED CHANGE:
FROM: A-2 ( 0.86 a.c.)
TO:
A-2 HP ( 0.86 a.c.)
Document Path: S:\Department Share\Information Systems\PL GIS\IS_Team\Core_Functions\Zoning\sketch_maps\2020\Z-31-20.mxd
Z-31-20
0.055
0
0.055
0.0275
Miles

MCDOWELL RD
23RD AVE
22ND AVE
ALMERIA RD
22ND AVE
2144
2211
1777
1700
2244
2230
2225
2202
2220
2247
2220
2125
2120
2121
2211
2105
2212
2111
2227
2310
1402
1700
Produce Center Building
2202 West McDowell Road
Proposed Historic Preservation (HP) Zoning Overlay
±
2202 West McDowell Road

Z-31-20-7
2202 West McDowell Road
Produce Center Building

View of building from intersection of 22nd Avenue and McDowell Road, looking
northwest, January 2020.

Southeast corner of building with gated entrance to interior courtyard located along
eastern façade, looking northwest, January 2020

Z-31-20-7
2202 West McDowell Road
Produce Center Building

View of building from McDowell Road, looking northeast, January 2020

Northeast corner of building, looking southwest, January 2020

Z-31-20-7
2202 West McDowell Road
Produce Center Building

Photo from Arizona Builder & Contractor showing building under construction, October
1953

Photo from Arizona Republic showing completed building, January 1954

Z-31-20-7
2202 West McDowell Road
Produce Center Building

Aerial photo depicting Produce Center Building at far right, 1957

View of building with second story windows uncovered, looking northwest from
intersection of 22nd Avenue and McDowell Road, February 2020