Attachment B - Staff Report - Z-76-25-8.pdf
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Staff Report: Z-76-25-8 July 29, 2025 Central City Village Planning Committee Meeting Date: August 11, 2025 Historic Preservation Commission Hearing Date: August 18, 2025 Planning Commission Hearing Date: September 4, 2025 Request From: R-3 CCSIOD (Multifamily Residence District, Central City South Interim Overlay District) (0.33 acres) C-3 CCSIOD (General Commercial, Central City South Interim Overlay District) (0.65 acres) Request To: R-3 CCSIOD HP (Multifamily Residence District, Central City South Interim Overlay District, Historic Preservation) (0.33 acres) C-3 CCSIOD HP (General Commercial, Central City South Interim Overlay District, Historic Preservation) (0.65 acres) Proposal: Historic Preservation Overlay for Emmanuel Church of God in Christ Location: Southeast corner of 16th Avenue and Buckeye Road Owner: Emmanuel Church of God in Christ, Inc. Applicant: City of Phoenix Historic Preservation Commission Representative: Maura Jackson, Planner III Staff Recommendation: Approval Background The subject property was not included in any of the historic property surveys completed by the City of Phoenix HP Office at the time of the request for designation. The most relevant survey is the 2004 African American Historic Property Survey. In 2004, this property would have been just under 50 years of age, which is typically the benchmark for inclusion in historic resource surveys. The surrounding neighborhoods were acknowledged within the survey, but not specifically detailed. ATTACHMENT B Staff Report: Z-76-25-8 July 29, 2025 Page 2 of 6 Designation was requested in 2024 by Steve Colter, a representative of the current property owner. After review and evaluation, the property was recommended individually eligible for listing on the Phoenix Historic Property Register (PHPR) under Criterion A for its association with African American ethnic heritage in Phoenix. Designation was initiated by the City of Phoenix HP Commission on February 10, 2025. Property Overview The construction of this building began in 1961 by the Church organization, largely led by Elder Felton King. Following a pause in construction, construction resumed and was completed in 1963 with no change to the plans. This initial portion of the church featured a rectangular plan for a sanctuary with a main entrance on the north side. Additional entrances from the parking lot are on the west side, and vertical windows line the east and west sides, pairs alternated by exterior pilasters. The interior of the building is oriented with the seated occupants facing the south side, where a choir loft, stage, and baptismal font are set. Beyond this area further to the south, there is storage and office space. A small annex building was added in 1982, then replaced by a more substantial addition between 1991-2001 which connects perpendicularly to the south side of the original portion. This addition encloses the parking lot. The overall building footprint has remained unchanged since then. Permits name a few contractors for plumbing and other items but do not indicate a specific architect or builder. Instead, the Church is listed as the owner to complete the work. Architecturally, the church exhibits elements of Midcentury Modern design details, although pared down from high-style examples. There is geometric breeze block along the walkway near the church entrances, the roof overhang is deep and angled, and the stained-glass windows on the north side feature typical colors and pattern of this era. The building’s design – with side doors, narrow windows, and siting on the parcel – shows a dependence on the automobile and interior lighting as well as air conditioning. The later addition ties into the detailing with a different geometric breeze block and shorter pilasters. This portion has even more understated stylistic elements which further differentiate it as an addition and subordinate to the original church. The church was an important community space for African Americans in Phoenix serving the surrounding neighborhood comprising the area bounded by 7th to 15th Avenues and Buckeye Road to the Maricopa Freeway and the area bounded by 11th to 17th Avenues and Lincoln Street to Buckeye Road, also referred to as West Side I and West Side II in the 2004 African American Historic Property Survey. The neighborhood is described as including mixed architectural styles with a high number of vacant lots and small multi-family units as well as new infill houses as of 2004. Although these areas were not recommended eligible at the time of survey due to low integrity, a high level of significance was identified. The areas were noted as retaining much of the residential street patterns and showing the relationship between neighborhoods, Staff Report: Z-76-25-8 July 29, 2025 Page 3 of 6 churches, and commercial properties on major perimeter streets. This church was also important beyond the immediately surrounding neighborhood; many church members also resided in the Matthew Henson Public Housing complex just northeast of the West Side developments. 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: 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. Significance Emmanuel Church of God in Christ is eligible for historic designation under Criterion A, for its association with African American ethnic heritage in Phoenix as an important neighborhood-serving church and center of civic organizing in the “New Homes” area of Phoenix. History The initial congregation was of the same denomination, The Church of God in Christ (COGIC), and the current denomination of the Buckeye Road church remains as such. The COGIC denomination itself grew out of the Pentecostal Holiness denomination as a result of the 1906 Azusa Street Revivals. The current congregation’s original church building, called Church #3, was built in affiliation with the COGIC denomination in 1934. This earlier building was located at 13th Avenue and Sherman, just a few blocks north of the current Buckeye Road location. The 1936 founding members of Emmanuel were also the first members of the church Trustee Board: Elder Felton King Sr. "President" Staff Report: Z-76-25-8 July 29, 2025 Page 4 of 6 (later Bishop Felton King Sr.), Sister Blanche Wright "Secretary", Brother Paul Washington "Deacon", and Brother McKinley 'Pop' Brewer "Deacon." Although the Buckeye Road church building wasn’t constructed until the 1960s, the same early congregation had been well established and had been associated with this neighborhood for decades prior. During this time of transition to a new location, the surrounding neighborhood experienced growth, particularly with residential development. Community Impact The integration of this church within the neighborhood reinforced its role as a community institution in addition to its religious function. The church’s civic importance to the area included its advocacy in naming the Mary McLeod Bethune School (1310 South 15th Avenue) which opened in 1947, honoring the prominent African American educator and civil rights activist. This school was built to serve the nearby Matthew Henson housing community, which was home for many members of Emmanuel Church of God in Christ as well. Later the church community pushed for a park to serve the school and surrounding "New Homes" neighborhood, and Alkire Park (1602 West Pima Street) was established in 1953, followed by Randy Johnson Field in 2001. This was a huge effort for the neighborhood; since this area was predominantly made up of Blacks and Latinos, the community had previously been limited to use of only Grant Park and Harmon Park. The church was instrumental in amplifying a community voice for social and civic change. Church efforts were equally important in promoting safety within the community. The church worked to curb gang violence particularly rampant in the early 1980s to the late 1990s. This church also served as a venue for many political events and civil rights movements. Specifically, it was a place where NAACP presidents and members, such as Lincoln Ragsdale, Cloves Campbell Sr., Calvin Goode, Judge Cody Williams and Charles Fanniel, met to strategize the next steps in African American progress for Phoenix. This is an example of a church with a strong relationship to its neighborhood setting, and the Emmanuel Church continues to serve the Central Phoenix community. In the 2004 African American Historic Property Survey, a category of significant buildings identified included more modest churches with smaller congregations that were embedded within neighborhoods. Unlike other churches that were built mainly on prominent streets, these churches were integrated in the middle of neighborhoods or conveniently sited at the edge of the neighborhoods they served. This integration within the neighborhood reinforced the role of the church as a community institution in addition to its religious function. Staff Report: Z-76-25-8 July 29, 2025 Page 5 of 6 Integrity With the exception of the rear addition, the building has had minimal alterations since construction. Part of the interior has been recently renovated to provide updated restrooms, but the significant interior spaces remain intact. The sanctuary’s interior features an original wood ceiling, unique patterned window glass, and original doors. Each aspect of integrity has been retained to convey significance for this property. The neighborhood patterns are still present, and its location at a prominent corner within the New Homes neighborhood conveys the significance of this church for the surrounding areas. 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 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 0.98 gross acres. It has been drawn to include the subject parcel in its entirety as well as the adjacent portion of the right way, as is customary in rezoning cases. The proposed boundary contains the documented historic resources and follows parcel lines and street monument lines as much as possible. The proposed boundary will exclude the separate parcel to the south, also owned by the Church, because it contains no documented historic resources. Findings The rezoning request Z-76-25-8 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. Stipulations None Staff Report: Z-76-25-8 July 29, 2025 Page 6 of 6 Writer Maura Jackson July 29, 2025 Team Leader Kevin Weight Exhibits Sketch Maps (1 page) Aerial Photo (1 page) Article from the Arizona Tribune, “Church Groundbreaking Ceremony Held at Site,” March 31, 1961, p. 6. (1 page) Historic Building Permit Records (3 pages) Current Photos of Property (4 pages) ¯ 0 0.04 0.08 0.02 Miles CENTRAL CITY VILLAGE COUNCIL DISTRICT: 8 APPLICANT'S NAME: APPLICATION NO: GROSS AREA INCLUDING 1/2 STREET AND ALLEY DEDICATION IS APPROX. MULTIPLES PERMITTED CONVENTIONAL OPTION * UNITS P.R.D OPTION REQUESTED CHANGE: FROM: TO: DATE: REVISION DATES: AERIAL PHOTO & QUARTER SEC. NO. ZONING MAP * Maximum Units Allowed with P.R.D. Bonus 5/30/2025 City of Phoenix Historic Preservation Commission Z-76-25-8 0.98 Acres QS 8-25 F-7 C-3 CCSIOD ( 0.65 ac.) R-3 CCSIOD ( 0.33 ac.) C-3 HP CCSIOD ( 0.65 ac.) R-3 HP CCSIOD ( 0.33 ac.) 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"7 l!' • , ;7 000 - - t--- •11.ti • • • • Attachment: Current Photos of Property Figure 1. Exterior north and west façades, looking towards southeast from parking lot, 2025. Figure 2. Exterior breezeblock at west façade, 2025. Attachment: Current Photos of Property Figure 3. Church cornerstone, installed on lower right corner of the north façade, 2025. Figure 4. Interior view of stained glass window on north façade, taken from upper balcony facing north, 2025. Attachment: Current Photos of Property Figure 5. Interior view of original wooden ceiling and supports, taken from upper balcony, facing southwest, 2025. Figure 6. Original interior door heading from narthex into sanctuary, 2025. Attachment: Current Photos of Property Figure 7. Interior view towards front of sanctuary, 2025. Figure 8. Interior window pattern detail, 2025.