**GSA CASE STUDY**

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**BYRON G. ROGERS FEDERAL OFFICE BUILDING**

**AND COURTHOUSE**

**Prepared for:**

**Historic Buildings Program**

**General Services Administration**

**Prepared By:**

**Robinson & Associates, Inc.**

**February 2001**

**GSA CASE STUDY**

**BYRON G. ROGERS FEDERAL OFFICE BUILDING AND COURTHOUSE**

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**INTRODUCTION**

Recently, a GSA First Impressions Initiative improvements project at the
Byron G. Rogers Federal Office Building and Courthouse \-- a 1960s-era
complex in Denver, Colorado \-- was stopped short after it was well
underway by an issue related to its potential historic significance. The
gist of the dilemma was that the project was at the design concepts
phase when the potential historic significance of the complex was
recognized by *Denver: The Modern City*, a new publication citing its
importance to Denver's modern architectural tradition. At issue was
whether the complex of buildings, despite its relatively recent date of
construction, rose to a certain level of historic significance, and, if
so, what the appropriate GSA response was.

Principal to the successful resolution of the issues were: 1)
academically correct historical evaluations of the property's
eligibility for listing on the National Register of Historic Places; 2)
careful consultation and consensus- building among principal
stakeholders from the GSA, the State Historic Preservation Office, and
others; and 3) GSA's stewardship of its historic building stock and
ability to incorporate good preservation planning into an ongoing and
important project.

**THE GSA'S FIRST IMPRESSIONS INITIATIVE**

The mission of the GSA's nationwide First Impressions Initiative is to
enhance the public's perception of the GSA and the Federal government by
improving the appearance and efficiency of GSA buildings. The Initiative
focuses on public spaces in buildings, including more identifiable
entries, improved security flow, improved signage, and removal of
clutter from public spaces. Four pilot projects kicked off the
Initiative -- Byron Rogers was one of these four projects.

GSA's goals for the First Impressions improvements at Byron Rogers were
to draw attention to the only secured entry point to the office tower
(hidden at the juncture of the tower and courthouse), to provide
adequate queuing space for lobby security screening, to upgrade
perimeter security screening, and to encourage use of the plaza spaces.
Project plans called for a principal new glass entry structure
incorporating new security and screening devices, the removal of the
canopy linking the buildings at the ground level, and the removal of
certain key components such as a bronze art column.

Other more practical considerations in the Byron Rogers improvements
were -- in today's more customer-focused and business-oriented climate
\-- GSA's need to make improvements to the buildings to compete with
rents in the Denver downtown office market and to correct the building
tenants' negative perception of the property. Also, very strict
scheduling and budget constraints existing for the GSA were taken into
account.

While the importance of these improvements was evident, at the same time
there were historical issues related to the plans, including the design
compatibility of the new entrance structure and the removal of certain
character-defining features such as the canopy and bronze art column.

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**GENERAL ARCHITECTURAL DESCRIPTION OF THE BYRON ROGERS FEDERAL BUILDING
AND**

**COURTHOUSE**

The Byron G. Rogers Federal Building and Courthouse (originally the U.
S. Courthouse and Federal Office Building) is a skillful example of an
innovative style in the Modernist Tradition of architecture termed
Formalism or Neo- Formalism. Each component of the Byron Rogers complex
is an equally important element of the overall design. The entire
ensemble is a carefully composed set of related components--a dynamic,
geometric set of forms that consist of the low 5-story courthouse
building pavilion and the monolithic 18-story slab of the office tower,
linked by two perpendicular exterior canopies (or covered walkways) and
anchored by a landscaped plaza consisting of the canopy, trees, lawn
panels, and outdoor seating areas. Richness of materials and
incorporation of site-specific artwork give a special quality to the
complex. Construction of the complex was completed in 1965 to the design
of associated and noted local architectural firms, James Sudler
Associates and Fisher and Davis.

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**THE NATIONAL REGISTER ELIGIBILITY OF THE COURTHOUSE COMPLEX**

Since the courthouse complex is less than 50 years of age, its National
Register eligibility was judged under the standards for exceptional
significance contained in *National Register Bulletin 22: Guidelines for
Evaluating and Nominating Properties That Have Achieved Significance
Within the Last Fifty Years*. Particular application was made of
National Register Criterion A, qualities of significance associated with
"events which have made a significant contribution to the broad patterns
of our history," and Criterion C, qualities of significance associated
with "distinctive characteristics of a type, period, or method of
construction, or that represent the work of a master, or that possess
high artistic values \..."

Three points of potential significance evaluated under Criterion C
included: 1) the place of the courthouse complex as an example of the
innovative architectural style in the Modern Movement termed Formalism
(both within a national and local context); 2) its importance within the
body of work of the two noted Denver architectural firms; and 3) the
design as an important piece of public architecture constructed during
the 1960s.

In this complex analysis, multiple sources were taken into
consideration:

-   an examination of the place of the Courthouse complex within the
    sweeping Federal design initiative inspired by the Kennedy
    administration in the 1960s that called for a higher quality of
    civic architecture;

-   an examination of the courthouse complex as a formative or
    distinguished example of the Formalist style;

-   an examination of the importance of the complex within the body of
    work of the two noted architectural firms responsible for its
    design;

-   an examination of the complex as an important piece of public
    architecture constructed during the 1960s;

-   a comprehensive site survey and visual analysis of Denver's modern
    architectural context;

-   interviews and meetings with experts in Denver's modernist
    architectural tradition and key professionals familiar with the body
    of work of the two architectural firms, including the widow of James
    Sudler (a former Colorado State Historic Preservation Officer); a
    longtime senior design associate with James Sudler Associates; and
    the authors of *Denver: The Modern City;*

-   discussions regarding the importance of the plaza and related
    landscape architecture issues with professional staff at the
    National Park Service's Cultural Landscape Initiative;

-   comparative analysis of buildings of the 1960s in the Modernist
    Tradition, examination of successful National Register designations
    for mid- to late-20th-century buildings, and examination of policy
    and decision-making involving exceptions to the National Register's
    50-year rule (all undertaken via National Register database
    inquiries);

The conclusion of this intensive evaluation was that the U.S. Courthouse
and Federal Office Building complex, while it was anticipated *would*
fully meet the National Register criteria for listing as a property
*more* than 50 years of age, *did not* meet the exceptional significance
test specifically required for properties *less* than 50 years of age.
However, it was determined to hold clear *future* significance as the
combined work of two highly talented and recognized local architectural
firms, as a skillful example of the Modernist Tradition under the newly
emerging definition of Formalism, and as a strong element in the civic
and city planning history of the City of Denver. These preliminary
*future* points of significance could not at this time be adequately
placed in context to meet the test of **exceptional** significance
required for National Register listing of a property less than 50 years
old. Nevertheless, there was the recognized goal of protecting the
property's character-defining features for future historic designation.

**RESOLUTION OF THE FIRST IMPRESSIONS CONCEPT DESIGN AND HISTORIC
SIGNIFICANCE OF THE PROPERTY**

A series of meetings and design charettes sponsored by GSA brought a
broad range of stakeholders and issues together for resolution. As a
result of this process, the SHPO and local experts in the Modernist
architectural tradition agreed that no basis existed for justifying
"exceptional significance" and the listing of the Byron Rogers complex
in the National Register of Historic Places. They stressed, however, the
**future** National Register eligibility and significance of the complex
and considered it eligible for listing in the State Registry.
Participants established a common goal of respecting the integrity of
the existing property without freezing the building in time. The GSA
made a commitment to address and respect the character-defining aspects
of the Byron Rogers complex, discussed revisions to the existing First
Impressions design concept plan to address retention of
character-defining features, and received design comments from the
meeting participants.

The result of the process was architectural design scheme for the
courthouse complex which accomplished the following:

-   A revised glass entrance pavilion was designed, a transparent box
    incorporating greatly improved queuing and security screening.
    Within it, original water features with a modified pool design \--
    which provided a distinct amenity \-- were reinstated..

-   The bronze art column, difficult to incorporate into the entrance
    pavilion space, was moved to the plaza and incorporated into its
    landscape design.

-   The canopies, as key design elements linking the buildings,
    sheltering pedestrians, and establishing a sense of scale for the
    buildings, were retained. The position of the new entry pavilion was
    adjusted to start just behind the existing canopy. A small glass
    canopy was designed between the new pavilion and the existing
    covered walkway.

-   The plaza's landscape design incorporated a new diagonal path (with
    landscaping) to provide clear pedestrian circulation to the new
    entrance pavilion. Other plaza modifications included the
    reinstatement of original flat lawn panels, benches, and trees.

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