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C A S T R O VA L L E Y

R E D E V E L O P M E N T S T R AT E G I C P L A N

alameda county

Alameda County Community Development Agency and Redevelopment Agency

Alameda County Community Development Agency

February 2006

redevelopment

agency

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ACKNOWLEDGEMENTS

Redevelopment Citizens Advisory Committee

Alameda County

Roberta Rivet

Supervisor Nate Miley District 4

Ken Carbone

Seth Kaplan, Staff: District 4

Dean Nielsen

Bob Swanson, Staff: District 4

Jeff Moore Linda Tangren Maryann Francis Al Chamorro Cliff Sherwood John Ryzanych Keith Goddin Brian Hill

Consultant Team Wallace Roberts and Todd/Solomon E.T.C. James K. Stickley, Principal, ASLA John Ellis, Principal, AIA, RIBA

Eileen Dalton, Redevelopment Agency

Stephen Hammond, Principal

Marita Hawryluk, Redevelopment Agency

John Gibbs, ASLA

Lou Andrade, Planning Dept

Brent Raymond

Alex Amoroso, Planning Dept

Khushru Irani

Art Carrera, Public Works Agency Bay Area Economics, Inc. Janet Smith-Heimer Ron Golem Steve Murphy DKS Associates Thomas Krakow, PE Shirley Chan, PE Nelson\Nygaard Consulting Associates Jeffrey Tumlin

A C K N O W L E D G E M E N T S â€¢ C A S T R O VA L L E Y R E D E V E L O P M E N T S T R AT E G I C P L A N

CONTENTS

EXECUTIVE SUMMARY .......................................................... i

INTRODUCTION ..................................................................... 1 1.1 Purpose ................................................................................................ 1 Enhance the Retail Environment ....................................................................................... 2 Foster a Sense of Downtown ............................................................................................ 3

1.2 Project Setting ....................................................................................... 4 1.3 Process .................................................................................................. 5 Engage the Community .................................................................................................... 5 Coordination with the General Plan Update ...................................................................... 5 Consistency with Current Regulatory Documents .............................................................. 5

PHYSICAL SETTING ................................................................ 7 2.1 Land Use ............................................................................................... 8 2.2 Urban Character .................................................................................... 9 2.3 Redevelopment Opportunities and Catalyst Sites ................................... 18

ECONOMIC REDEVELOPMENT POTENTIAL .......................... 21 3.1. Economic Environment ......................................................................... 22 Trade Area Population and Demographics......................................................................... 22 Competitive Trade Areas ................................................................................................... 24 Local Real Estate Market Overview.................................................................................... 26 Retail Leakage Study......................................................................................................... 28 Improving Retailer Performance and Retail Choices ........................................................... 32 Perspectives on Local Retail Environment, Opportunities ................................................... 34 Economic Environment and Directions for Change ............................................................ 38

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3.2. Retail Recommendations ...................................................................... 39 Need for Agency Involvement ........................................................................................... 39 Development Opportunities .............................................................................................. 39

3.3 Redevelopment Framework and Urban Design Strategy ......................... 40 Guiding Principles ............................................................................................................. 40 Redevelopment Framework .............................................................................................. 41

3.4 Strategic Catalyst Sites .......................................................................... 42 Concept and Purpose ....................................................................................................... 42 Library District .................................................................................................................. 44 Village District .................................................................................................................. 46 Tenant Mix Recommendation ........................................................................................... 50 Future Redevelopment Opportunities ................................................................................ 52

PUBLIC REALM IMPROVEMENTS .......................................... 53 4.1 Circulation Issues ................................................................................... 53 Castro Valleyâ€™s Unique Circulation Network ....................................................................... 53 Existing Parking Conditions ............................................................................................... 55 Red Curbs Zones and Driveways ....................................................................................... 55

4.2 Streetscape Plan .................................................................................... 56 Approach ......................................................................................................................... 56 Creating Livable Streets through Traffic Calming ............................................................... 56 Summary: Streetscape Improvements ............................................................................... 57

4.3 Specific Improvements ........................................................................... 58 Circulation Changes within the Public Right-of-Way .......................................................... 58 Pedestrian and Bicycle ...................................................................................................... 61 Parking ............................................................................................................................. 62 Street Trees....................................................................................................................... 66 Gateways ......................................................................................................................... 67 Street Furnishings ............................................................................................................. 69 Building Character ........................................................................................................... 70

COST AND FINANCING STRATEGY ....................................... 71 5.1 Strategy Costs and Financing ................................................................. 71 5.2 Proposed Development Program............................................................ 72 5.3 Financial Analysis of Catalyst Sites ......................................................... 72 Key Factors for Financial Analysis ...................................................................................... 73 Feasibility Gap Analysis ..................................................................................................... 73 Results of Financial Analysis .............................................................................................. 73

5.4 Financing Strategy ................................................................................. 74

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IMPLEMENTATION ................................................................. 75 6.1 Phasing Strategy .................................................................................... 76 Project Timing .................................................................................................................. 76 Retail Catalyst Site Projects ............................................................................................... 78 Streetscape Enhancement Program and Timing ................................................................ 80

6.2 Recommended Implementation Actions ................................................ 82 Catalyst Site Development ................................................................................................ 82 Provide Support to Existing Businesses .............................................................................. 82 Explore Methods for Retailer Attraction ............................................................................ 83 Specific Plan Amendments ............................................................................................... 83 Parking and Business Improvement District ....................................................................... 83 Shared Parking Ordinance ................................................................................................ 83 Develop Main Street Atmosphere ..................................................................................... 84 Pursue Future Phases ........................................................................................................ 84 Pursue Grant Funding Sources .......................................................................................... 84

APPENDICES ........................................................................... 85 Appendix A: Market Research, Retail Leakage Analysis, and Castro Valley Merchant and Shoppers Survey ........................................ 87 Appendix B: Castro Valley Redevelopment Traffic Analysis Technical Memorandum ....................................................... 131 Appendix C: Sample Urban Character Inventory Panoramas ......................... 155

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â€¢ C A S T R O VA L L E Y R E D E V E L O P M E N T S T R AT E G I C P L A N

E X E C U T I V E S U M M A RY

Responding to strong community sentiment, the Alameda County Community Development Agency initiated a process, in July of 2004 to work with the Castro Valley Redevelopment Citizen’s Advisory Committee (CAC) to develop a Redevelopment Strategic Plan for Castro Valley’s “downtown” — specifically focusing on the Castro Valley Boulevard Corridor. The purpose of the Strategic Plan was two-fold: •

•

To create a strategy for retail enhancement in the downtown area primarily along Castro Valley Boulevard and… To develop a physical improvements plan for the Boulevard which focuses on improving the pedestrian environment and creating destination districts connected by a “main street” shopping corridor for the community. Main streets are the focal point for retail health and pedestrian activity in downtowns.

C A S T R O VA L L E Y R E D E V E L O P M E N T S T R AT E G I C P L A N • E X E C U T I V E S U M M A R Y

Retail Enhancement

Destination Districts

The strategy for retail enhancement was to carefully look at existing retail activity and build on its successes and identify potential for additional retail growth in specific retail sectors taking in to consideration, competition with — or gaps in — other regional retail resources.

This potential new retail was analyzed carefully as to where it could have the strongest impact and create the best synergy with existing retail as well as how it could help to create destination “districts” within the downtown area. Three core area districts were identified which are thought

REDEVELOPMENT FRAMEWORK ELEMENTS Target Redevelopment Opportunities Other Redevelopment Opportunities Non-Agency Portion of Target Sites Downtown Gateway Feature

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General Streetscape Improvements

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2-5 Stores (+/-35,000 sf ) Specialty Grocery 1 Store (+/-37,000 sf ) Restaurants 2-4 (+/-18,000 sf ) Home Furnishings 1 Store (+/- 8,000 sf ) Specialty Stores (e.g. book store) 3-5 Stores (+/-52,000 sf )

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Secondary Street Network Public Open Space Improvements

Apparel / General Merchandise

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Primary Streetscape Improvements

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The outcome of the retail analysis and the subsequent recommendations for additional retail potential were very positive. In addition to the recognition that much healthy retail activity already exists in Castro Valley, the study showed strong potential for an additional 150,000 square feet of retail segmented into the following general categories:

to have immediate potential for downtown retail destinations. Each of the three are centrally located and build on the success of an existing retail element or the potential of a near-term use (e.g. the proposed new library). These were identified as Strategic Catalyst Sites. The more immediate

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Redevelopment Framework Plan (2 pages)

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Catalyst Site districts were defined as the Village District, the Library District and the Theater District. In addition, three other districts were identified as having mid- to long-term potential as destination districts. These districts tended to be just outside the downtown central core area

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and were defined as the Transit Village (centering around the BART Station), the East Gateway District and the West Gateway District. (See diagram below for the location of the 6 districts.)

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Village District

The Village district builds on the success of the existing Castro Village shopping center. Much of the feedback from the CAC and the community indicated that this currently acts as the heart of Castro Valley. The concept for this catalyst site is to infill new retail along Castro Valley Boulevard, creating a stronger pedestrian street presence, add a village green at the terminus of Wilbeam to create a symbolic center for the downtown, place a large format bookstore at the corner Wilbeam and Castro Valley Boulevard to help anchor this intersection as the center of downtown, and facilitate the addition of some large format retail (potentially apparel / lifestyle retail) in the interior of Castro Village along with some structured parking. (See accompanying concept drawing of the Village District.)

2,500 sf Retail

7,500 sf Retail 9,800 sf Retail 2,500 sf

8000 sf Retail

Aerial View - Village District Redevelopment Catalyst Site

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Library District

Building upon the recent approval of funding for a new Castro Valley main library and the prospect of its implementation in the near- to mid-term, the Library District catalyst site creates a destination district by combining the library with other mixed use development including specialty grocery, housing, and office space. The new development is proposed to be configured along the frontages of Castro Valley Boulevard and Norbridge to create pedestrian-oriented streets and the Castro Valley Creek park is extended from its current location on Castro Valley Boulevard all the way to Norbridge following the creek alignment and terminating in a “library green” on Norbridge. Mid-rise housing proposed for the corner of Castro Valley Boulevard and Norbridge will bring residents to the downtown area helping to support the new retail and adding vitality to the downtown area. (See accompanying concept drawing of the Library District.)

5,000 sf 5,000 sf

Office

Aerial View - Library District Redevelopment Catalyst Site

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Theater District

Building on the local popularity of the Chabot Theater, the Theater District catalyst site creates a new entertainment destination district just west of the Village District. Centering around the historic Chabot Theater, the proposed development includes an expansion of the theater as well as sites for restaurants, cafes and music clubs all built along the street frontage creating a pedestrian oriented destination with sidewalk dining and additional parking resources behind the restaurants on the north side of Castro Valley Boulevard serving the restaurants as well as providing additional theater parking. (See accompanying concept drawing of the Theater District.) 5,000 sf Retail

Additional Districts

The three additional destination districts were seen as having strong potential for the mid- to long-term with the Transit Village being programmed heavily with housing taking advantage of proximity to the BART Station and the East and West Gateway districts taking advantage of their easy access to and from the freeway.

5,000 sf Retail

8,000 sf Retail 3,500 sf Retail

7,500 sf Retail 5,000 sf Retail

Aerial View - Theater District Redevelopment Catalyst Site

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Creating a Pedestrian “Main Street” for the Community To tie together the new enhanced retail districts and to create a safe, comfortable and attractive pedestrian main street for downtown Castro Valley, a series of street improvements are recommended for Castro Valley Boulevard. These improvements are two-fold:

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To reconfigure traffic lanes with the goals of calming traffic, providing on-street parking and bicycle lanes while still maintaining adequate traffic capacity on the Boulevard and… Provide streetscape improvements such as widened sidewalks, street tree plantings, landscaped bulb-outs, and street furnish-

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ings including downtown gateway markers in order to create a beautiful and inviting pedestrian environment to encourage the community to come here for their shopping and dining and entertainment needs.

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Section - Typical Recommended Streetscape Improvement Concept

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Realizing the Community’s Vision Drawing on input from the CAC and community process, a vision for downtown Castro Valley was drafted and refined to reflect how the community sees itself and what the downtown should ultimately be:

The community of Castro Valley is proud of its high quality of life. Nestled in the hills and canyons of the East Bay, Castro Valley offers a small town character envied by many. The revitalized downtown — a particular point of pride — offers a range of activities and amenities. Residents and visitors alike are attracted by the choices, vibrancy and the diversity of experiences available--socially, culturally, and economically. The downtown offers an assortment of eating establishments, retail opportunities, an expanded cinema, a new Village Green, and other services. These in turn invite and attract people to get out of their cars and stroll along the streets designed with their comfort in mind. The downtown is marked by a strong sense of identity and place. It brings greater definition to Castro Valley and is a source of pride for all.

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INTRODUCTION

1.1 Purpose The purpose of the Redevelopment Strategic Plan is to provide a realistic and focused prescription for change in Castro Valleyâ€™s downtown with a primary emphasis on enhancing the downtown retail environment. This document provides both an overall vision for the downtown and a series of actions that can be sequentially implemented by public and private investment in accordance with market conditions. This plan identifies a specific program for retail enhancement, targets potential redevelopment sites that accomodate new retail, and recommends design strategies to foster positive changes in the urban fabric. It endorses roadway and streetscape improvements for public benefit and to act as catalysts for private development. Economic strategies within this document evaluate the retail market opportunities and target investment on projects that represent the most likely opportunities for success. Ultimately, the desired outcome of this plan is twofold: to enhance the retail environment and foster a sense of downtown:

Main streets are the focal point for retail health and pedestrian activity in downtowns.

C A S T R O VA L L E Y R E D E V E L O P M E N T S T R AT E G I C P L A N â€˘ 1 . I N T R O D U C T I O N

Enhance the Retail Environment

Opportunities to comfortably sit and stroll attract shoppers to the retail main street.

Castro Valley residents agree that their downtown ‘main street’ is Castro Valley Boulevard, a former state highway which provides two miles of retail commercial uses mainly serving the community. Most of the retail development was built from the 1950s to the late 1970s. Though local businesses offer convenience, grocery, pharmacy, and other services, sales of many other goods leak out to nearby commercial areas. This loss of consumer spending to similarly-sized towns limits retail choices for residents, diminishes the local tax base and reduces resources available for downtown improvements. In recent years Castro Valley’s demographics have changed rapidly, and new residents have increased the demand for specialty grocery stores, home furnishings, and other lifestyle shopping opportunities.

parcels and buildings are considered inappropriate for contemporary retail development. In addition, the relatively low commercial vacancy rate and turnover in those properties that do exist, although indicating that they are somewhat healthy, decreases the opportunities to incubate new businesses and encourage entrepreneurial activity. Furthermore, Castro Valley Boulevard in its present arrangement is not an attractive retail commercial setting. The Boulevard functions as a major vehicular thoroughfare, and does little to entice people out of their cars. However, opportunities exist to develop a shopping street that would attract small specialty retailers in a traditional downtown storefront setting, and to greatly improve the pedestrian-oriented experience so vital in today’s successful retail environments.

Existing conditions in the downtown present a number of physical challenges for attracting the latest trends in retail. As currently configured, possible locations for a lifestyle center or smaller box stores are limited. Many of the

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Foster a Sense of Downtown

Residents of Castro Valley desire a downtown to call their own. They appreciate the high quality experience found on many of the revitalized main streets in nearby communities and want to enjoy the same at home. What makes these places so satisfying and how can it happen here? Successful downtowns have a mix of land uses, are vertically integrated with housing and offices above shops, and a balance between vehicular and pedestrian traffic. Main streets within downtowns are areas for focused retail commercial activity that draw pedestrians. Without exception, whether it is a small town or large city, every great downtown has people walking along the streets. Public spaces such as parks, plazas and town squares become focal points for the community. Properly scaled and well designed buildings help define and activate the pedestrian realm, breathing life into downtowns and capturing the spirit of the place.

commercial development responded to the vehicular dominance in both form and function. To create a livable street environment, a new strategy must focus on achieving an equitable balance among pedestrians, bicycles, vehicles and other uses, while developing a mix of amenities and activities that contribute to pedestrian convenience and enjoyment. Great neighborhoods and districts succeed because of the successful pieces within them, which added together equal more than the sum of the parts. It is these elements that define a place and reveal the richness and depth of community life.

Architecture and land use mix should support and strengthen the identity of the downtown.

Castro Valley faces a challenge not unlike many communities that have developed in a similar fashion. With a main street that evolved from a state highway, the roadway design focused on the movement of vehicles, not pedestrians. Existing

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1.2 Project Setting 80

680

Marin County

780

San Pablo Bay

Oakland

San Francisco

Costa 680

580

r San F

County

238

CASTRO VALLEY

Bay

an Oce

s co anci

ic Pacif

Contra

24 13

280

880

680

580

Alameda County

San Mateo County

101

San Jose Santa Clara County 17

Santa Cruz County

Regional location

Castro Valley, the largest unincorporated community in Northern California, is located in the East Bay region of the San Francisco Bay Area. It includes urbanized lands east of the Fairmont Ridge and the Eden Planning Area, east of the City of San Leandro, and generally north and east of the City of Hayward. Castro Valley is approximately 38 square miles, of which there are 13 square miles of urban and suburban uses, with residential uses being predominant. The population in the urban area increased 48,619 to 55,273 (or 13%), from 1990 to 2000. It is expected that the Castro Valley population will increase by 8%, to roughly 62,100 residents between 2000 and 2015. The population density, based on 2000 census data, is approximately 4,618 people per square mile. For comparative purposes, Castro Valley is similar in total area, population and density to the Cities of Walnut

Creek (19.45 square miles/64,296 residents; 3305 people/mi2), Pleasanton (22 square miles/63,654 residents/2893 people/mi2) and to a lesser extent the Town of Danville (18.1 square miles/43,243 residents/2305 people/mi2). Among the chief characteristics of Castro Valley is that it is located, as indicated by its name, in a well-defined valley surrounded by hills and open space, whose neighborhoods and streets focus on a local-serving retail district. Although well connected to neighboring San Leandro, Hayward and the rest of the Bay Area, the topography helps to create a distinct community identity. The community is well served by regional transportation systems, including its own Bay Area Rapid Transit (BART) station, located on the downtownâ€™s southern boundary. For this Plan, the downtown is defined as the Central Business District.

Existing downtown main street condition.

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1.3 Process Engage the Community

Coordination with the General Plan Update

The recommendations set forth in this report were shaped on input solicited through a series of six (6) workshops between July 2004 and May 2005. Each workshop was held and coordinated with the bi-monthly meetings of the Castro Valley Redevelopment Citizens Advisory Committee (CAC). One of the process highlights was the introductory workshop—a joint kickoff for both the Redevelopment Strategic Plan and General Plan Update—for which postcards were sent out to each household in Castro Valley. The result was one of the best attended community events in recent memory. Over 300 people gathered in an undersized meeting room at the Eden Medical Center on Lake Chabot Road. Many attendees were standing against the walls, sitting on the floor and spilling into the hallways. Neither the County nor the consulting team could have predicted such a positive turn out. The following workshops, although smaller in number but still well attended (with an average of 100 people) demonstrated a strong community interest in improving their downtown.

Another major planning effort is underway simultaneously with the development of this Plan: the update of the Castro Valley General Plan. The General Plan Update will be carried out in phases, with a completion date scheduled for the end of the 2004-2005 fiscal year. The General Plan team will coordinate with the Redevelopment Agency Strategic Plan team, and incorporate the findings and recommendations into that document for improving Castro Valley’s downtown.

Supervisor Miley presenting at the first community workshop.

Consistency with Current Regulatory Documents

This Plan is an action plan, not a regulatory plan. It provides an overall vision with specific and strategic recommendations for the downtown. The plan is also intended as a ‘blueprint’ for possible future actions that may be considered discretely as opportunities and resources arise. As such the plan is either consistent with current regulatory documents or explicitly defines revisions to current regulatory documents that may be needed in order to implement the measures put forth in the plan.

Example of the community workshop announcement.

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1.4

Project Goals and Objectives

The following goals and objectives were developed and refined during the CAC and Community process to set initial boundaries and guide the planning process:

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An environment that will support economic vitality

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A sense of continuity linking the variety of existing uses and potential new development

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Identify current retail trends, area demand and realistic development opportunities

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A pedestrian friendly main street atmosphere accentuating accessibility to retail locations

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Identify a retail strategy that establishes a framework for retail and mixed-use development and redevelopment infill with the ultimate goal of providing a downtown environment where people want to go and spend time and do their shopping.

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An improved streetscape design

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Establish priorities and timing of development

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Allow for the most productive use of Redevelopment Agency resources

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Identify retail project strategies, along with funding and implementation strategies.

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Define a vision for downtown Castro Valley

Provide the Redevelopment Agency with guiding principles and an implementation tool for future development of Castro Valley

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A downtown where people want to go and spend time

Successful main streets balance pedestrian and vehicular amenities.

Redevelopment projects that mix land uses, such as residential or office above retail, ensure downtown vitality.

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PHYSICAL SETTING

The physical setting and configuration of Castro Valley’s central business district plays a critical role in both its character and function as a commercial district. Perhaps the most significant factor to understand about the physical setting is that it was not originally planned as a commercial district, but evolved somewhat haphazardly over time. Originally, Castro Valley Boulevard was part of U.S. Highway 50, the primary travel corridor linking San Francisco with the Tri-Valley, the Central Valley, and points east. It’s primary function was regional circulation, not serving as the commercial “main street” for the future Castro Valley community. It was only after the Post-World War II growth boom that commercial development began to establish itself along this corridor. Most of the commercial development along Castro Valley Boulevard was established during the 1950’s, 60’s and 70’s. With the reconstruction of Interstate 580 between Castro Valley and Livermore from 1964 through to 1985, Castro Valley Boulevard was decommissioned as a state highway. However, the physical patterns established by its history as a highway corridor were set and remain largely unchanged today.

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2.1

Castro Valley Bouelvard with view towards the hills.

Residential neighborhood character in Castro Valley.

Land Use

The land use pattern in Castro Valley’s central business district can generally be characterized as a long narrow band of commercial uses along Castro Valley Boulevard surrounded by residential uses to the north and south. Generally, the commercial zone is only one parcel deep along The Boulevard, and for the most part these parcels are relatively small. The majority of the commercial development also fronts on and takes access from Castro Valley Boulevard, and does not extend up Castro Valley Boulevard’s cross streets. Redwood Road is the primary exception to these general patterns. It has commercial development fronting it for about a block to the north and south of The Boulevard, and there are also a number of larger parcels located in the vicinity of the Redwood Road/The Boulevard intersection. Commercial uses in the commercial business district include a mixture of local and neighborhood retail, commercial recreation, office, auto-related services, and self-storage. The The Boulevard/ Redwood Road intersection is generally viewed as the community’s retail core because of the concentration of major retail developments in the area, including Castro Village, Safeway, the Albertson’s Shopping Center, and the World Savings Center. The central business district

has very little traditional commercial core-type development. The majority of the commercial development is food and service-oriented (rather than merchandise, apparel, and furnishings) and automobile-oriented (i.e., people generally drive to it). Highway-oriented commercial such as gas stations and fast-food restaurants tend to be concentrated at the west end of the corridor and at Redwood Road near the interchanges with I-580. Residential development in the areas adjoining the central business district include both singlefamily and multi-family residences. The majority of the multi-family development is located north of The Boulevard although a concentration of higher density multi-family housing has been introduced along Wilbeam Avenue, near the BART station. Most of the higher density housing consists of apartments, but there are also some townhouses and condominiums. A series of mobile home parks are located on or near The Boulevard, particularly at the east end of the corridor, east of Yeandle Avenue. Few civic or institutional land uses are located in the central business district, although a few facilities are located just north of the district, including the Eden Medical Center on Lake Chabot

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2.2

The Adobe Art Center on Anita Avenue.

The US Post Office on Santa Maria Avenue.

Road, the Post Office on Santa Maria Avenue, and the Adobe Arts Center on Anita Avenue. Several vacant and underutilized parcels (i.e., parcels with minimal development or improvements) exist along the corridor, but are generally dispersed.

Urban Character

Castro Valley is described by many of its residents as a rural small town. Residential neighborhoods throughout the community are situated on rolling, lushly landscaped hillsides and in green canyons, and some neighborhoods that have been developed without curbs and gutters have a less urban character. In the central business district, these semi-rural characteristics are difficult to find. Although the hillsides provide a dramatic visual backdrop for the downtown, there is little that is natural or rural in the central business district. Even the two creeks that flow from the hills through the downtown have both been engineered for most of their length for the purpose of flood control. Castro Valley Creek, which is naturalized for a short portion south of Castro Valley Boulevard, forms part of Castro Valley Creek Park, the only public open space within the downtown. The Adobe Art Center on San Miguel, one block north of Castro Valley Boulevard, has a large open lawn associated with the facility but is not considered a public space.

New residential neighborhoods outside of the downtown.

A path through Castro Creek Park on the south side of Castro Valley Boulevard.

In many ways, the current character of the central business district can be attributed to its evolution from a state highway corridor. Many of the areaâ€™s current characteristics work against the success of the area as a prosperous business dis-

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facilitate automobile use to the detriment of pedestrian use. The Boulevard and Redwood Road have been designed with very wide right-of-ways and lane widths that accommodate both high volumes of traffic and relatively high speeds (narrow road and lane widths tend to reduce traffic speeds). In addition, on-street parking is prohibited along much of the length of these two streets. This eliminates highly desirable retail parking and removes an element which typically works to slow traffic and buffer pedestrian areas. Not only are the traffic speeds and volumes along these corridors unpleasant for pedestrians, but the widths of these streets also discourage pedestrians from crossing, and reduces the potential for retail synergy developing between uses on opposite sides of the street. In addition, the numerous curb cuts for driveways create areas of conflict between pedestrians and motor vehicles that reduce the area’s attractiveness for walking.

trict or a “downtown” for the community. These characteristics include: •

Long, narrow corridor configuration. The length of the area is scaled for the automobile rather than for the pedestrian. This subtly reinforces building and site design that favors automobile use, rather than supporting pedestrian traffic which is a key component of a healthy commercial district. The lack of depth in the commercial zone to either side of the corridor further reduces the pedestrian orientation of the district by limiting the number of businesses a shopper can comfortably walk to without having to drive and re-park.

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Small and irregular parcel sizes. The predominantly small, irregular size of the parcels fronting on The Boulevard, and their irregular configuration (e.g., narrow and deep, square, wide and shallow) reduces the flexibility of use (e.g., not big enough for some contemporary retail uses), constrains development (e.g., difficult to accommodate both building pad and parking), and inhibits the creation of a regular and recognizable pattern of storefronts that is appealing to shoppers.

The Boulevard is clearly an auto-dominated corridor.

Pedestrians are not always given the right-of-way to vehicles.

• A cluttered streetscape can degrade downtown identity.

Automobile-oriented street design. The district’s streets have been designed to

•

Absence of pedestrian amenities. Even when pedestrians do want to walk, there is little in the way of enhancements to make the experience more pleasant. The sidewalks adjoining the roadways are generally quite narrow and not buffered from passing traffic by on-street parking. In some cases, the sidewalks are too narrow for people to comfortably pass one another due to streetlight

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poles, telephone poles and news racks within the sidewalk. The streetscape lacks consistent street tree planting that would provide shade and aesthetic enhancement, and pedestrianscaled lighting that would create an attractive nighttime environment. There are also no public plazas or park spaces in the central business district where shoppers can rest and people can gather. •

•

Inconsistent/incompatible mix of uses. The evolution of commercial uses along the corridor has resulted in an inconsistent and sometimes incompatible mix of uses that conflicts with the creation of a unified retail district. Rather than having a consistent pattern of uses that enhances the vitality of the retail district by clustering complementary uses, current patterns often have incongruent uses adjoining one another (e.g., garages and auto-service uses adjacent to restaurants). Signs. One of the consequences of having an automobile-oriented corridor is that commercial signs are scaled to capture the eye of and be legible by those traveling by car. The billboards, pole signs, and other commercial signs along The Boulevard and Redwood Road not only create an unappealing visual clutter, but create a pedestrian environment whose scale and character is both foreign and forbidding.

•

Lack of a positive identity. Rather than creating an inviting environment that is distinctive and memorable, the above factors combine to leave the visitor to Castro Valley’s central business district a somewhat anonymous, if not negative, image. Overall, the lasting impression of the downtown is one of too much traffic, hard surfaces (parking lots and roads), and signs, and too little vegetation, shade, and open space.

As discussed in the preceding discussion, the creation of a vibrant central business district involves the interaction of several key physical factors. One of the most crucial is the role that buildings play in helping to define, shape and energize the business district. When located close to the street, ground floor businesses — such as restaurants and cafes — can activate the pedestrian environment, spilling onto the sidewalk to engage passers-by. Retail shops can ply their wares in window displays that entice shoppers into their stores. Indeed, shops and offices need not float in a sea of parking. The arrangement and placement of buildings helps to define the downtown’s fabric and to make great places to live, work and play.

Many land uses are not compatible with a retail main street.

Auto-oriented signage often dominates the streetscape and diminshes downtown character.

The character of buildings in Castro Valley’s central business district varies throughout the corridor. Many of the buildings provide a posi-

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tive contribution, while others seem out of place and do little to support either a pedestrian-oriented retail environment or greater commercial synergy. In an effort to provide greater clarity about how the existing built form influences the function of the commercial district, an urban character evaluation was completed. This analysis aims to be objective in how it measures the value and relative significance of buildings and their contribution to creating a positive urban character by evaluating their functional rather than their aesthetic characteristics. Factors included in the evaluation are: • • • • •

building orientation and setback from the street transparency (ability to see into and enter building from the street) detail and articulation of façade scale of building location of parking and driveways relative to the building

•

flexibility of building type to accommodate a variety of land uses appropriateness of land use for a downtown main street maintenance (i.e., condition) site improvements

•

The analysis looked at each parcel and ranked its contribution to creating a positive urban character as Low, Medium, or High.

•

• • •

•

• Those parcels that were ranked High had the following characteristics: • Strong primary orientation to the street — i.e., the front door, display windows and signs face the primary street • Well-defined street wall — i.e., building is sited adjacent to the sidewalk and gives definition to the public realm • Appropriate scale — i.e., the height and massing of the building neither overwhelms the pedestrian environment nor is dwarfed by the width of the street

• •

•

High level of transparency — i.e., significant areas of clear glazing (windows) on the street-facing facade High level of articulation — i.e., the building façade includes variations in surface planes and volumes and incorporates architectural features that add variety Flexible building type — i.e., building can accommodate other uses than that for which it was originally designed Parking located behind building —– i.e., none of the building’s parking is visible from the street Well-maintained — i.e., the building and site are attractive and in good condition No driveways — i.e., driveways do not enter the property from the primary access street that parallels the front facade Public open space — i.e., some form of open space (a plaza, courtyard, seating area, etc.) is provided for public/semi-public use

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Above: This new development demonstrates the characteristics of a good urban building; it is oriented to the street, has a high level of transparency, has outdoor space, and parking is located to the rear.

Above: Connected buildings and shops uninterupted by driveways and parking create a strong street presence. Windows and doors allow passersby to see what is taking place inside, be it activites or goods for sale.

Below: Arcades and canopies add pedestrian comfort to retail buildings.

Below: Comfortable entry plazas in front of corner buildings become inviting pedestrian environments.

Above: Well-maintained buildings that contribute to and interact with the street increase their chances for success. Below: Buildings that address the street with windows, doors and patios create opportunties to enliven the public realm. Street trees further improve urban character.

Figure 2-1: Examples of Existing Castro Valley Boulevard Buildings with a High Contribution to Positive Urban Character

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Those parcels that were ranked Low had the following characteristics: •

•

Buildings are not oriented to the street — i.e., entries and display windows are oriented to parking lots Buildings do not contribute to a well-defined street wall —i.e., the site is vacant or the building is set well back from the sidewalk and the public right-of-way Buildings are not in scale with their surroundings— i.e., the height and massing of the building either overwhelms the pedestrian environment or is dwarfed by the width of the street or size of the lot

•

Low level of transparency—i.e., building façade has minimal or no clear glazing (windows) on the street-facing facade Low level of articulation — i.e., the building façade presents flat, unvaried surface planes and volumes with little or no architectural detail that adds variety Flexible building type — i.e., building is so unique in its layout and configuration that it is unlikely it can accommodate other uses than that for which it was originally designed Parking is located in front of building — i.e., a parking lot is located in the front setback between the building and the street

•

Not well-maintained — i.e., the building and site are in poor condition and in need of maintenance or removal Multiple driveways — i.e., multiple driveways enter the property from the primary access street that parallels the front facade No public open space — i.e., no open space is provided within the site

Those parcels that received a Medium ranking had characteristics that fell somewhere between the High and the Low rankings.

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Above and Below: Temporary sheds that cover little of the parcel, no matter how quaint and well-maintained, are not well suited for a downtown.

Examples of Existing Buildings with a Low Contribution to Positive Urban Character.

Above: At important intersections, such as the one at Castro Valley Boulevard and Redwood Road, buildings should address the street in a positive manner. Service stations, although necessary, are best located elsewhere.

Above: This building has high transparency, interesting architectural form, and a plaza at the corner. However, one cannot enter directly from the street; the main entrance is situated towards the parking lot to the rear.

Below: Buildings which do not address the Boulevard, are surrounded by parking, and are not flexible to accomodate a range of uses are inappropriate for a main street.

Below: This new strip development has a deep setback from street with parking in front, with most of the building not oriented to the street. However it does have ample planting along the streetfront, and two smaller buildings located at the street corners.

Examples of Existing Buildings with a Low Contribution to Positive Urban Character.

Examples of Existing Buildings with a Medium Contribution to Positive Urban Character.

Figure 2-2: Examples of Existing Buildings with a Low and Medium Contribution to Positive Urban Character.

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Figure 2-3 shows the range of contribution of each parcel and building to urban character determined by the evaluation. As shown in the figure, the areas with the highest consistent ranking include two areas where traditional-style storefronts predominate: the south side of The Boulevard from just west of Nunes Avenue to just east of Wilbeam Avenue, and the north side of The Boulevard just west of Park Way. The areas with the lowest consistent ranking include the far eastern and western ends of The Boulevard near the freeway and the area around the The Boulevard/Redwood Road intersection. Examples of the photographic surveys used in the Urban Character Analysis are included in the Appendices.

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Figure 2-3: Urban Character Analysis (2 pages)

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2.3

Redevelopment Opportunities and Catalyst Sites

High Potential for Redevelopment - vacant parcels, underutilized or inappropriate land use, large surface parking areas

��

Minimal Improvements Recommended: highly positive contribution - positive street character, well maintained, well distributed land uses

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Upgrade/Retrofit Recommended: moderately positive contribution - well maintained but in need of material update and/or street character improvements, redistribution of land uses

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Potential Catalyst Sites: individual parcel or amalgamation of parcels that possess a high level of �� potential to act as catalysts for positive redevelopment �� in adjacent and surrounding areas ��

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High Redevelopment Potential. Parcels that are vacant, underutilized, occupied by a use that is considered inappropriate or incompatible with the concept of a walkable retail district, or is occupied by large areas of surface parking;

West Gateway Theater Village Transit Village Library East Gateway

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•

Moderate Potential for Redevelopment: underutilized parcels, low to poor street character

1 2 3 4 5 6

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The Urban Character analysis was the first step in identifying where potential opportunities for redevelopment are located. Those parcels identified as having a Low positive contribution to the area’s urban character represent the first cut of areas that were considered for redevelopment. Since a key goal of this plan is to identify the most productive use Redevelopment Agency resources to stimulate redevelopment in the business district, the next step in the process was to narrow the range of possible redevelopment areas to a few key catalyst sites where strategic interventions would have optimum beneficial impact on the retail environment. The first step was to characterize each parcel according to its potential and need for redevelopment. Each parcel was identified as being in one of four categories:

POTENTIAL REDEVELOPMENT CATALYST DISTRICTS

CATALYST SITES/REDEVELOPMENT POTENTIAL

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Figure 2-4: Potential Catalyst Site Analysis (2 pages)

•

Moderate Redevelopment Potential. Parcels that are marginally underutilized and with low to poor street character; Upgrade/Retrofit Recommended. Parcels where existing development makes a moderately positive contribution to the urban character and is well-maintained, but is in need of material renovation and/or street character

improvements, and requires some re-location of inappropriate land uses; •

Minimal Improvements Recommended. Parcels where existing development makes a highly positive contribution to the urban character, are well-maintained, have positive street character, but would be enhanced with minor improvements.

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In addition to these four categories, the analysis of potential catalyst sites also identified one Major Retail Activity area. The area along the north side of Castro Valley Boulevard between Redwood Road and Santa Maria that includes Safeway, Castro Village, and a number of smaller parcels, represents an amalgamation of parcels that possesses a high level of potential to act as catalysts for redevelopment in adjacent and sur-

rounding areas. The results of the redevelopment potential analysis is shown in Figure 2-4. Based on this analysis, the next step in identifying the primary catalyst sites or zones was to identify areas or groups of parcels that present strategic advantages and/or greater retail potential. This evaluation incorporated a number of factors or criteria, including the identification of:

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•

Clusters of highly redevelopable parcels, including parcels that are vacant, underutilized or contain inappropriate uses, whose redevelopment would result in a substantial cumulative change in character;

•

Clusters of highly and moderately redevelopable parcels whose consolidation would enhance development potential by creating larger and more flexible development sites;

•

Areas with generally strong urban character that could easily be leveraged with strategic interventions on a few key parcels and public streetscape improvements;

•

Areas with a cluster of strong retail tenants (e.g., Castro Village area) that could easily be leveraged with strategic interventions on key parcels or the public streetscape; and

•

Areas where redevelopment and/or streetscape improvements can be coupled with existing and/or planned facilities (e.g., BART station, proposed library, etc.) to generate substantial change in character.

The result of this evaluation was the identification of six potential redevelopment catalyst zones (see Figure 2-4). From west to east, the catalyst zones include: 1. The “West Gateway District” where a cluster of parcels on the south side of Castro Valley Boulevard that are currently occupied by a divergent mix of uses including a lumber yard, veterinary office and miniature golf course are proposed for redevelopment. 2. The “Theater District” where redevelopment of parcels on both sides of Castro Valley Boulevard are intended to enhance and build upon the presence of the Chabot Theater.

The “Village District” where redevelopment on the north and south sides of Castro Valley Boulevard is intended to build on the retail strength of Castro Village and a cluster of traditional storefronts on the south side of the corridor.

4. The “Transit Village District” where BART’s surface parking areas can be redeveloped with a higher density of transit-oriented uses by creating structured parking. 5. The “Library District” where proposed development of the new library and the extension of Castro Creek Park can serve as new civic catalysts for redevelopment of adjoining parcels. 6. The “East Gateway District” where redevelopment of the Rite Aid site and adjoining parcels on the north side of Castro Valley Boulevard are intended to improve the character of the corridor and improve site utilization. The retail market analysis in the following chapter discusses which of these catalyst zones have been identified as near-term targets for redevelopment and the development program and urban design concepts proposed for each.

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ECONOMIC REDEVELOPMENT POTENTIAL

In order to maximize the retail potential for Castro Valley’s downtown, redevelopment goals for the downtown area include improving sales at existing merchants, attracting new retailers to the area, improving the retail mix to provide Castro Valley residents with more shopping choices, and strengthening the sense of place and identity of Castro Valley Boulevard. Successful redevelopment efforts to provide Castro Valley residents with expanded retail choices must be grounded in an understanding of the interaction between the following key factors: • • • • •

Demographic profile of Castro Valley residents and the types of retailers it will interest; Types of retailers who are likeliest to locate in Castro Valley versus the surrounding East Bay region; Existing types and amount of available retail space, and how local real estate market conditions affect the potential for new retail development. Current retail spending patterns of Castro Valley residents and how much of that spending can reasonably be attracted back to the local area to support new stores; and Factors affecting the interest and ability of new retailers to locate in Castro Valley, as well as the plans of existing merchants to remain, expand or change their merchandise offerings.

This chapter considers each of these key factors.

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3.1. Economic Environment Trade Area Population and Demographics

Retailers position their merchandise offerings and services at targeted segments of the population; the demographic profile of an area helps them decide whether the residents there are likely to patronize a new location. Different retailers focus on different characteristics, but items of interest can include household composition, income, and education, among others.

evaluate the customer base for potential locations in Castro Valley versus other potential locations in surrounding communities. Detailed tables showing age distribution, household income distribution, educational attainment, occupations of employed residents, and composition of the local workforce, are presented in Tables A-1 through A-6 in Appendix A. Key findings from the demographic analysis include: •

A comparative demographic analysis was conducted to understand how prospective retailers might evaluate a prospective Castro Valley location versus other areas. Castro Valley’s population and household demographics were identified for the Castro Valley Local Trade Area, as shown in Figure 3-1, comprising the Census designated places of Castro Valley, Fairview, as well as the Five Canyons Area, using data from the 1990 and 2000 Census, as well as 2004 projections from Claritas, a private data provider. These were then compared to: (1) the Inner East Bay Subregional Trade Area, as shown in Figure 3-2, that includes the Castro Valley Local Trade Area along with the Ashland and Cherryland areas and the cities of Hayward and San Leandro; and (2) the Greater East Bay Regional Trade Area that consists of Alameda and Contra Costa Counties. These comparisons highlight how retailers may

•

The population in the Castro Valley Local Trade Area in 2004 was approximately 79,000 people in 29,500 households. On a number of demographic measures, the Castro Valley Local Trade Area is better positioned than the Subregional Trade Area or greater East Bay Regional Trade Area for merchandise targeted at households with greater discretionary income, as well as entertainment and dining options:

•

Median age in the Castro Valley Local Trade Area was relatively older in 2004 at 39 years versus 35 years for the Subregional Trade Area and the Greater East Bay Regional Trade Area, consistent with a population in its peak earning and spending years.

•

Median annual household income in the Castro Valley Local Trade Area at $75,223 in 2004, is considerably higher than the Subre-

gional Trade Area at $61,183 or Greater East Bay Regional Trade Area at $67,738. •

Average household size in the Castro Valley Local Trade Area in 2004 at 2.6 persons was smaller than the Subregional Trade Area at 2.9 persons, and the Greater East Bay Regional Trade Area at 2.7 persons.

•

The homeownership rate in the Castro Valley Local Trade Area in 2000 at 69 percent of households is higher than the Subregional Trade Area at 63 percent and the Greater East Bay Regional Trade Area at 61 percent.

•

More Castro Valley Local Trade Area residents in 2000 worked in professional, technical, management, and business jobs at 56 percent of working residents, versus 44 percent in the Subregional Trade Area, and 41 percent in the Greater East Bay Regional Trade Area.

•

For other measures, the Castro Valley Local Trade Area is comparable to the Greater East Bay Regional Trade Area, and somewhat less so to the Subregional Trade Area. All three trade areas are relatively strong compared to state-wide national averages and thus attractive to various types of retailers.

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Conclusions

Chart 3-1: Median Household Income, 2004

The Castro Valley Local Trade Area has strong demographics, with growing population, high incomes, an educated middle-aged population in its peak buying years, and good occupations. There is a large enough population to create total potential consumer spending that is attractive to a wide range of retailers. The household demographic profile indicates significant disposable income and an orientation to better quality goods, services, and entertainment that would typically be attractive to retailers of specialty grocery, restaurants, some apparel, gifts, housewares, movie theaters, bookstores, and home furnishings retailers.

$100,000 $80,000

$75,223

$67,738

$61,183

$60,000 $40,000 $20,000 $ Castro Valley Local Trade Area Source: Clarita, BAE, M2004 edian

Sub-Regional Trade Area

East Bay Region

Household Income, 2004 Source: Clarita, BAE

Chart 3-2: Educational Attainment, 2000

100% Graduate or Professional Degree

80%

Bachelors Degree Associate Degree

60%

Some College, No Degree

40%

High School Diploma 9th to 12th Grade, No Diploma

20%

Less than 9th Grade

0% Castro Valley Local Trade Area

Sub-Regional Trade Area

East Bay Region

Source: U.S. Census, BAE, 2004

Educational Attainment, 2000 Source: U.S. Census, BAE

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Competitive Trade Areas

In addition to the definition of trade areas in the previous section that is based on demand geography -- where most potential shoppers live or work – trade areas can also be defined by the location of different categories of competing retail stores and their respective trade areas. For the purposes of discussing competition between retailers and chain store locations in this section, three types of retail trade areas are most significant: Competitive Local Trade Area – usually 1 to 1.5 miles, representing the area from which most daily or weekly shoppers live (e.g., grocery). In denser areas, this trade area is also applicable to many casual restaurants (Figure 3-1). Competitive Subregional Trade Area – usually 3 to 5 miles, representing the area that attracts most shoppers for apparel, discount merchandise, etc., along with many finer restaurants (Figure 3-2). Competitive Regional Trade Area – usually 10 to 15 miles, representing the area from most shoppers for occasional purchases come (e.g., “comparison goods” like suits, furniture, cars).

This results in the following geography for the competitive local market area and subregional trade areas. For the purposes of retailer analysis, the competitive regional trade area is defined as the combination of Alameda and Contra Costa Counties. The location of subregional and regional retail was mapped in order to understand the potential for Castro Valley to attract these types of tenants. For example, Figure 3-3 shows the results of mapping Target and Walmart stores in the area; this map indicates that the existing trade area for these two retailers covers Castro Valley: The location of regional malls were mapped to indicate the extent to these properties and their comparison goods retailers would be expected to attract Castro Valley residents. As shown in Figure 3-4, Castro Valley lies within the competitive trade areas for three major regional malls and their tenants: Bayfair Mall in San Leandro (currently being renovated and repositioned), Southland Mall in Hayward, and Stoneridge Mall in Pleasanton.

Conclusions

The trade area analysis suggests that retailers who draw from a larger regional trade area, including many “big box” tenants, larger multiplex theaters, smaller department stores, and others may be more interested in locations in the San Leandro – Hayward as well as the Pleasanton – Dublin area since the East Bay’s geography allows stores in these locations to draw from a larger portion of the surrounding East Bay area without creating overlapping trade areas. This means that most of the retail opportunities for Castro Valley will be from retailers whose competitive trade areas are more local-serving and subregional. These types of retailers can include food retailers, restaurants, entertainment, bookstores, lifestyle merchandise and apparel, among others. Such retailers, either independents or chains, who are not currently in Castro Valley or the surrounding area could be interested in a Castro Valley location. Examples of the types of retailers that might be interested in a Castro Vally location include T.J. Maxx, Chico’s, and Forth and Towne (apparel); Whole Foods Markets (grocery); P.F. Chang’s, Outback, and Sweet Tomatoes (dining); Cost Plus World Market and Container Store (home furnishings); Borders Books and Music, Williams Sonoma, and the Body Shop (specialty retail).

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5 mile radius Target

3 mile radius

Local Trade Area

Castro Valley

580

Castro Valley

880

Target

880

Walmart

San Leandro

Target

580

Ashland

Walmart

Target

580

Cherryland 680

Target Fairview

680

Walmart

Hayward Target Figure 3-1: Castro Valley Local Market Area

Figure 3-3: Area Target and Wal-Mart Stores

Bay Street

Subregional Trade Area 580

Castro Valley

880

San Leandro 580

Southshore Mall

580

10 mile radius 5 mile radius

Castro Valley

880

Bay Fair 580

Stoneridge Mall

Ashland Southland Mall

Cherryland 680

Fairview Hayward

Figure 3-2: Sub-regional Trade Area

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Union Landing

680

Figure 3-4: Regional Malls near Castro Valley

Local Real Estate Market Overview

Retail and other real estate market conditions shape the feasibility of potential new retail development in Castro Valley, and new projects in adjacent communities may absorb some of the potential market support identified in the leakage study. A survey of current real estate market conditions along Castro Valley Boulevard was conducted in 2004, including available spaces and asking lease and sales rates for retail, office, rental residential, and for-sale multi-family residential. These uses were considered because they may be included in a mixed-use development anchored by retail uses, a contemporary development type desired by lifestyle-oriented and other retailers. Detailed summary information from this research is presented in Tables A-7 through A-10 in Appendix A. The conclusions from this analysis, by use, include: Retail – the market for retail space has limited vacancy. Retail brokers note that clients are interested in locating in Castro Valley but cannot find suitable space. There is a dichotomy in rental rates, with smaller spaces in older buildings on Castro Valley Boulevard renting for $1.10 to $2.00 per square foot per month, triple-net1. At the other end of the scale, newer space in a modern retail center, the 580 Marketplace, has an asking rate of $2.75 per square foot per month.

The available spaces tend to be small, with no larger spaces that would be attractive to regional and national tenants in various retail categories desired in Castro Valley. A small strip center was recently constructed at the corner of Lake Chabot Road and Castro Valley Boulevard, information on its rental rates was not available. While there are no other identified new retail developments in Castro Valley, nearby projects that draw from the Castro Valley Local Trade Area can indicate the attractiveness of the area to new development. Less than two miles away in Hayward, at the corner of Foothill and B Streets, Blake-Hunt Ventures is developing a 102,000 square foot retail center that will open in late 2005 / early 2006 and contain a 12-screen Century Theatre multiplex, and a range of other retail spaces from 1,500 to 15,000 square feet targeting lifestyle and restaurant tenants. Office – there is limited number of available vacant small office spaces in Castro Valley. There is a notable concentration of real estate-related offices, including brokers, title firms, and others. There is also a cluster of medical office users, mostly located around Eden Hospital. Only one vacant office space was identified, a medical Space that is leased on a “triple-net” basis means tenants are responsible for all costs for maintenance, property taxes, and insurance. It is typical of retail leases, and some types of office space.

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office space is asking $1.46 per square foot per month, triple-net. The reconstruction of Eden Hospital is understood to include new medical office space, although project details were not available. Rental Residential – this market is relatively soft with a current vacancy rate of nearly 8 percent and a slight decline in rents in 2004 of nearly three percent compared with 2003. Based on a survey of larger apartment complexes with 50 units or more, current rental rates appear to range between $1.30 to $1.34 per square foot per month for 2-bedroom units, to $1.50 per square foot per month for 1-bedroom units. Nearly 70 percent of these larger complexes were built in the 1960’s, with the remainder built in the 1980’s and 1990’s. No new market-rate rental residential developments were identified in Castro Valley. For-Sale Residential – multifamily for-sale residential was evaluated, as this product type might be located on the upper floors of a mixeduse development with ground floor retail. The multifamily for-sale market is strong; based on recorded sales data for the last 12 months through August 2004 provided by FARES, the median sale value of a multifamily unit in Castro Valley was $349,500. No new multifamily developments were identified in Castro Valley,

although in the adjacent City of Hayward there is extensive development of new townhouse style units in the downtown area. These units are selling in excess of $400 per square foot for 2- and 3-bedroom units, with sale prices approaching $490,000. Conclusions

Current commercial and rental residential real estate market conditions in Castro Valley, as measured by rental rates, are weak and less than what is needed to support the cost of new development. However this may be based on the older and less functional nature of much of Castro Valley’s inventory of buildings. Newer retail space in Castro Valley, as well as proposed new projects in Hayward, appear to be able to generate high enough rents to support new development. New mixed-use development in Castro Valley anchored by retail would be most viable with forsale residential on upper floors. Although not yet built in Castro Valley, office condominiums have proven popular in other communities and may be appropriate for inclusion in new mixed-use development.

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Retail Leakage Study

With strong Castro Valley demographics supporting retail in the local and subregional trade areas, the next step in assessing retail opportunities is an analysis of current retail expenditures and potential opportunities by Castro Valley residents, both locally and elsewhere, and estimation of how much of the retail sales that now “leak” into other areas could be recaptured in Castro Valley. This analysis is done through a retail leakage study that uses confidential taxable retail sales data as reported by retailers to the California State Board of Equalization and obtained by Alameda County.

spending leakage analysis is then analyzed to determine how much can be captured at existing underperforming Castro Valley retailers versus how much can be accommodated in new retail stores. Castro Valley Sales vs. Nearby Communities

In 2002, the most recent full year sales data available during plan preparation, Castro Valley per capita taxable retail sales were substantially lower than comparison cities in the East Bay, as shown in Table 3-1 and Chart 3-3, which further breaks down taxable retail sales by major categories (excluding automotive sales).

The actual level of retail sales in Castro Valley was analyzed and compared with what would be expected, by retail category, based on overall retail spending patterns in the region (Alameda and Contra Costa Counties) and the share of retail spending that a community like Castro Valley can typically expect to capture. Actual Castro Valley retail sales in a given retail category that were less than what would be expected represent a “leakage” of potential Castro Valley retail spending going into surrounding communities. Conversely, categories where actual Castro Valley retail sales are higher than what would be expected constitute an “injection”, or potential retail spending from other communities instead occurring in Castro Valley. The amount of retail

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Table 3-1: Taxable Per Capita Retail Sales,

Chart 3-3: Per Capita Retail Sales, 2002 (Taxable Excluding Automotive)

2002 City

Per Capita Taxable Sales $16,000

Castro Valley

$1,934

Lafayette

$5,355

Hayward

$6,143

Danville

$6,334

San Ramon

$8,562

San Leandro

$11,777

Pleasanton

$13,444

Walnut Creek

$13,458

Dublin

$15,693

California Statewide

$14,000

$12,000

$10,000

$8,000

$6,000

$6,102 $4,000

Source: CA State Board of Equalization; BAE, 2004. $2,000

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on m Ra Sa

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Source: CA State Board of Equalization; BAE, 2004.

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Retail Leakage Calculations

Tables A-12 through A-15 in Appendix A contain tables that set forth the step-by-step calculations of retail leakage and supportable new retail space in Castro Valley. The first step in this analysis involved determination of the following amount of taxable retail sales leakage by retail category in 2002: • • • • •

Apparel/General Merchandise Leakage = 73 percent of potential, or $108 million. Grocery Stores Leakage = 24 percent of potential, or $30 million. Eating/Drinking Leakage = 50 percent of potential, or $39 million. Home Furnishings Leakage = 85 percent of potential, or $33 million. Other/Specialty Stores Leakage = 78 percent of potential, or $161 million.

The challenge is that not all types of stores will be able to capture all possible sales and eliminate all leakage. This is due to the presence of competing malls, such as Stoneridge and Southland, as well as the preference of some retailers to locate where there are larger regional-serving clusters of retailers, rather than in a more localserving retail environment such as Castro Valley.

cally hope to recapture resulted in an estimate of $58 million per year in new sales that could be captured in Castro Valley, if appropriate stores were available. The next step involved evaluating the actual annual taxable sales per square foot of Castro Valley retailers, compared to industry standards for various retail categories. This analysis was used to identify underperforming categories of existing retail, and calculate how much of the $58 million in capturable leakage could go to the existing approximately 600,000 square feet of stores along Castro Valley Boulevard, versus providing support for new retail stores, as shown in Table 3-2 and Chart 3-4: The final step in the leakage analysis involved consideration of how many square feet of new retail stores in the retail categories with leakage could be supported in Castro Valley. This analysis considers the typical size of stores in each category. Based on the identified leakage, there is sufficient support for approximately 150,000 square feet of new space, however the actual supportable amount of space is likely to be in a somewhat larger range of 135,000 to 165,000 square feet or more of net new stores, in the following categories:

Adjustments to estimate the amount of additional retail leakage that Castro Valley could realisti-

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Table 3-2: Allocation of Annual Taxable Sales Leakage in 2002 to Existing vs. New Stores Sales Improvement Potential, Existing Castro Valley Stores

$ 11.8 million

Sales Potential for New Stores in Castro Valley

$ 46.2 million

Total Capturable Retail Leakage

$ 58.0 million

Source: BAE, 2004.

Apparel/General Merchandise Grocery Stores (specialty) Restaurants Home Furnishings Specialty and Other Stores

2 to 5 stores 1 store 2 to 4 stores 1 store 3 to 5 stores

In the Entertainment category there is also potential for additional movie theater screens (e.g., Chabot Theatre expansion).

Chart 3-4: Castro Valley Current Sales Capture and Leakage

100% 80% 60% 76%

40% 20%

50% 27%

0% Apparel Stores/ General Merchandise Stores

Food Stores

Eating and Drinking Places

15%

22%

Home Furnishings and Appliances

Other Speciality and Retail Stores

Current Leakage Potential Capture

Source: BAE, 2004.

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taxable sales that are lost due to below-average sales by Castro Valley retailers, but also improve shoppers’ perceptions of the quality of existing retail choices;

Improving Retailer Performance and Retail Choices

While nine to 16 net new stores in approximately 150,000 square feet of additional retail space may seem relatively modest relative to goals for improving retail choices for Castro Valley residents, there are additional opportunities that merit consideration: •

Programs that help existing merchants to improve their merchandising and facilities can not only capture the $11.8 million in annual

•

The current estimated 600,000 square feet of retail space along Castro Valley Boulevard will continue to experience turnover in tenants and rehabilitation and replacement of existing buildings. As this existing stock of retail space is retenanted and redeveloped, there is the opportunity to attract new retail-

Chart 3-5: Additional Sales in Castro Valley

Other Specialty and Retail Stores

Home Furnishings and Appliances

Eating and Drinking Places

Food Stores

Apparel Stores/General Merchandise

000 000 000 000 000 000 000 000 000 00, ,000, ,000, ,000, ,000, ,000, ,000, ,000, ,000, 0 , $6 $4 $8 $2 $10 $12 $16 $14 $18 Improvement to Existing Stores New Sales

Source: BAE, 2004.

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ers with higher quality offerings that better match the desires of Castro Valley shoppers; and â€˘

Creation of sites to accommodate new retail development will likely require land assembly that includes existing built properties. The complexity and costs of land assembly, especially given the many small parcels along Castro Valleyâ€™s retail core, will limit the amount of new retail space that can be created.

These factors mean that while the net supportable increase in retail stores is likely to be approximately nine to 16 stores in approximately 150,000 square feet, the total number of potential new retailers is higher. This would occur as redevelopment of existing retail spaces accelerates as a result of this Plan, and the redeveloped space attracts newer retailers with more appropriate offerings who replace a number of the existing underperforming stores.

Conclusions

There is significant potential support for new additional stores in Castro Valley that could attract some of the current retail spending by residents in other communities. This could support a net increase of nine to 16 new stores and up to 150,000 square feet, in the retail categories of apparel, general merchandise, grocery, restaurants, home furnishings, and specialty stores. An even larger number of new retailers in various retail categories can be attracted to Castro Valley, due to future turnover in existing retail tenants and redevelopment or replacement of existing store buildings to support contemporary new retail development.

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sites for new projects, and the fragmented nature of property ownership makes it prohibitively complex for developers to assemble sites without public agency involvement.

Perspectives on Local Retail Environment, Opportunities

Castro Valley has strong demographics, a significant leakage of retail spending into surrounding communities, and definite opportunities to support additional stores in the local trade area. The sales leakage analysis shows that sales levels of its existing retailers, as a whole, are somewhat underperforming. Such a situation would be expected to result in significant new retail real estate development, and an influx of new retailers. To understand the factors that may inhibit the expected market response, interviews and surveys were conducted with stakeholders, retail industry experts, and existing Castro Valley residents as well as merchants.

•

There are a number of retailers who want to open locations in Castro Valley, however the lack of large enough spaces and appropriate locations is a barrier. Retailers understand that a Castro Valley location will easily draw Hayward residents, but are not as certain that they can draw a similar proportion of Castro Valley residents to a Hayward location.

•

New retailers who have opened locations in Castro Valley, such as Trader Joe’s, have found that their stores perform better than projected, underscoring its potential to support new types of retail.

•

Some property owners and tenants, such as RiteAid, are interested in redevelopment of their obsolete properties. However, the difficulty of redeveloping a site while keeping a store operating, as well as acquisition of adjacent property if needed, is a major impediment.

•

Some existing business owners are interested in expansion. Some see it as necessary to counter competitive pressure from new developments in nearby areas such as Hayward.

Stakeholder Perspectives

The planning effort sought to incorporate the experience and recommendations of firms and individuals currently active in the local retail market. This was done by stakeholder interviews with real estate brokers and owners, selected anchor tenants, and others who work with Castro Valley retailers. Interviews with a dozen stakeholders either currently involved in Castro Valley retailing or interested in future participation identified the following themes: •

Castro Valley has strong potential for new retail development, however there are limited

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merchants). None of the respondents plan to close their businesses.

Merchant Perspectives

A survey was conducted of all Castro Valley retailers located on Castro Valley Boulevard and adjacent side streets, to identify the fullest range of issues as well as potential opportunities for existing retailers. This resulted in a total of 108 responses. A summary of the survey instrument, as well as survey findings, is contained in the Table A-11 in Appendix A. Key findings from the merchant survey responses include: •

A primary orientation to Castro Valley. Most merchants have long-term experience in Castro Valley, and have been in the same location for 10 years or longer (70 percent of respondents). Sales to Castro Valley residents are the primary source of business, representing more than half of all sales (84 percent).

•

Sales have been up in the last five years, increasing by more than five percent (41 percent of respondents), or stable (28 percent). However, sales decreases of more than five percent over the past two years were also reported (29 percent).

•

Most merchants plan to remain in their location or have no plans (67 merchants), while a smaller proportion plan to remodel, expand, or relocate in Castro Valley (6

•

Apparel and restaurants were the most desired new businesses (24 percent of respondents preferring women’s or men’s apparel, 12 percent teen or children’s apparel, and 15 percent sit-down restaurants). The next most preferred type of business is a bookstore (11 percent), and specialty retail (10 percent)

•

The leading response for ideas to improve Castro Valley retail is street and storefront improvements (28 percent of respondents), following by better marketing and promotions (22 percent). More parking was the third choice (16 percent), followed by a better mix of stores and retail types (11 percent).

Resident Perspectives

A telephone survey of Castro Valley residents was conducted both to quantify current shopping patterns and obtain opinions about desired new stores for Castro Valley. A total of 110 randomly selected responses were obtained, providing a statistically valid sample for analysis. A complete summary of the survey findings, as well as the survey instrument, is contained in Table A-16 in Appendix A. The surveys show that Castro Valley Boulevard functions as a strong local-serving retail and entertainment district, with key findings about potential changes including:

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•

There is modest interest in a new specialty grocery store, with 13 percent naming Whole Foods or Andronico’s.

•

Casual family or ethnic restaurants are the most popular dining spots. Only 34 percent of respondents dine in Castro Valley most frequently, with cited reasons for going out of town a specific restaurant (24 percent), variety (22 percent), and lack of local options (18 percent). The most frequently mentioned new restaurants were Outback, Black Angus, Sweet Tomatoes, and Fresh Choice.

•

Top choices for new entertainment to attract to Castro Valley include a new concert or live music venue (32 percent), new or expanded movie theater (21 percent), new or expanded live theater (20 percent), family-oriented recreation (12 percent), and a new nightclub (6 percent).

•

The most popular types of new stores to attract to Castro Valley are general merchandise / discount stores, followed by apparel, and books.

•

Interestingly, 51 percent of residents do not care if new stores are chains, while 35 percent said they would be more likely to shop at a chain, and only 12 percent said they would be less likely.

•

Preferences for improvements to Castro Valley Boulevard to make it more attractive include general beautification and clean up (31 percent), improved mix of retail tenants (10 percent), an improved pedestrian environment (10 percent), and improved parking (nine percent). Nine percent stated that they like Castro Valley Boulevard exactly as it is, and wouldn’t like to see changes to it.

Retail Panel Perspectives

A panel of retail industry experts was convened to generate ideas for revitalization of Castro Valley retail. The members of the panel included brokers representing retailers active in the Bay Area but not currently in Castro Valley, as well as representatives of Castro Valley retailers. A complete summary of the survey findings is contained in the Appendix. Key findings from the panel include: •

Many retailers prefer a Castro Valley location over one in Hayward or San Leandro – however, they aren’t able to find sites, particularly for larger users. Retailers focus on areas in spurts, and if sites aren’t available they’ll move on to places with available locations. Conversely, once a retailer opens in a new community, others will be attracted.

•

Parking problems are actually a good sign – they indicate an area is popular, and it

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encourages shoppers to lengthen their visits, resulting in more sales. Retailers will be flexible on parking to get into a desired location that is superior to alternative locations. •

Community vision and support for tenancies is very important. Peet’s Coffee was unwilling to locate a store in Alameda, but petitions with 1,500 signatures got Peet’s to change its mind, and that store is now the fifth best-performing store in the entire company.

•

Many of the existing retail properties are family owned and have been successful in remaining leased without significant effort by the owners. This has led to a lack of currently available retail sites. Property owners can be motivated by identifying their properties as a priority for improvements to benefit the community. Various partnership strategies were discussed to get property owners to redevelop their properties, including participation in a joint venture with a developer, or joining a voluntary parcel assembly.

•

Upzoning property can create value that motivates property owners to sell. Tax-deferred exchanges can be used to encourage owners of newly upzoned properties to trade them to retail developers.

Conclusions

Conditions are favorable for new retail in Castro Valley, and Castro Valley residents are interested in additional retail choices that include more “fast casual” dining, another bookstore, specialty retail and limited apparel, more live entertainment, increased movie theater choices, and possibly a specialty grocery store. Examples of the types of retailers that match these preferences include T.J. Maxx, Chico’s, and Forth and Towne (apparel); Whole Foods Markets (grocery); P.F. Chang’s, Outback, and Sweet Tomatoes (dining); Cost Plus World Market and Container Store (home furnishings); Borders Books and Music, Williams Sonoma, and the Body Shop (specialty retail). The addition of movie theater screens, through expansion of the Chabot Theatre or another project, is also supported by resident preferences. Most Castro Valley merchants have been in operation for 10 years or more and are unlikely to expand their businesses despite market support for additional retail. Merchants are supportive of new apparel stores, restaurants, bookstores, and specialty stores; their preferences for other actions to enhance retail are, in order, street and storefront improvements, better marketing and promotions, and in third place more parking. There are barriers to retailers opening new locations due to limited suitable existing loca-

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tions or sites for new development. This barrier also affects those existing businesses that wish to expand, including those who see expansion as necessary due to competitive pressures. There is a need to motivate long-term owners of potential retail sites, potentially through upzoning or other voluntary actions to partner with retail developers or sell or trade their properties to enable needed new retail development. Economic Environment and Directions for Change

The retail economic assessment of Castro Valley shows that the community’s location creates strong potential for additional new local-serving and regional retail. The community’s demographic profile is of interest to a range of retailers, including specialty grocery, restaurants, some apparel, gifts, housewares, movie theaters, bookstores, and home furnishings retailers. Currently there is a significant leakage of retail spending out of Castro Valley, and substandard sales performance by a number of retailers. This suggests a mismatch between existing retail choices and what residents desire. There appears to be market support for up to a net increase of 150,000 square feet or more of new retail uses, as well as substantial rehabilitation or replacement of existing retail space that could accommodate additional new retailers.

While this would normally result in new retailers being attracted to Castro Valley, with new retail development to provide new locations, this has not occurred because of barriers based on the age and form of much of Castro Valley’s retail space. Existing spaces tend to be smaller and obsolete for modern retailing; they cannot attract contemporary retailers and consequently generate low rental rates. The large number of small parcels makes it extraordinarily difficult to assemble large enough sites for new development. Retailers are interested in opening locations in Castro Valley, and rental rates for the limited amount of newer retail space in Castro Valley suggest that new development is feasible. These findings suggest that actions to enhance Castro Valley Boulevard and increase retail choices for Castro Valley residents should include creation of sites that can accommodate new development to meet the space needs of contemporary retailers. Programs to assist existing property owners with building renovations, and help retailers increase their sales would be complementary actions to further redevelopment goals.

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3.2. Retail Recommendations

little new real estate development is occurring to meet this demand.

Need for Agency Involvement

The retail economic analysis described in the previous section demonstrates that Castro Valleyâ€™s location and demographic profile appeals to a range of retailers, and that residents and merchants alike are interested in additional shopping choices for value-priced apparel and lifestyle retailers, casual dining restaurants, and book and music stores, as well as possibly another specialty grocery store. This mix of new stores could complement and enhance existing Castro Valley retailers. For example, potential expansion of the Chabot Theatre would increase local entertainment choices, while also benefiting new nearby restaurants and entertainment uses and helping to create an entertainment-oriented node. Apparel and lifestyle retailers, and book and music stores, could be located so as to strengthen existing retail clusters and encourage pedestrian movement between them. As described earlier, new retailers are looking to locate in Castro Valley but are stymied by a lack of suitable available locations. The large number of small and functionally obsolescent buildings, and long-term owners without the capacity or interest to redevelop their property means that

Redevelopment Agency involvement is needed to facilitate creation of functional and modern retail space to accommodate the types of retail desired by Castro Valley residents and other merchants. The Agency currently has a loan program for faĂ§ade improvements to assist existing retailers improve the appearance of their stores. Increasing the funds available for this program, as well as developing additional programs to provide existing merchants with technical assistance in merchandising, promotion and advertising, and other areas could help existing retailers increase sales. As described at the end of Chapter 2, the analysis of existing conditions and redevelopment potential pointed to key zones where two conditions were present; 1) the existence of a critical number of parcels with redevelopment potential that could be aggregated to accommodate a redevelopment project and, 2) the potential for a successful catalyst use (either existing or planned for the near future) that could be leveraged to help make the new redevelopment successful. Development Opportunities

There should be a focus on promoting the development of new key discrete retail nodes through

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a multi-phase effort that corresponds to available Agency resources. The Agency should prioritize locations that require land assembly for new development to occur, and are in strategic locations that would strengthen existing Castro Valley retail as well as attract future nearby development interest. It is essential for the Agency to focus on a limited number of sites that can produce catalytic change that spills over into adjacent areas, rather than diluting its resources over a large area with little noticeable change. The concept of a catalyst site is that its successful development with Agency assistance proves viability of new development in the area. These types of developments successiveley tend to attract a larger amount of new additional private development activity to the surrounding area that would not necessarily seek Agency involvement. Successful development of catalyst sites produces this result by reducing perceived risk, strengthening the local real estate market, and increasing property owner and developer interest. The catalyst sites should be focused along the central portion of Castro Valley Boulevard, roughly from the Chabot Theatre on the west to the new Library site on the east. This corridor contains the densest concentration of retail uses along the Boulevard, and once revitalized will create spillover demand for the remainder of Castro Valley Boulevard as well as nearby locations such as the BART station site. 40

It is necessary that Agency investment be focused so that it results in clearly successful projects that exemplify the desired types of redevelopment, rather than being spread broadly among numerous projects that would have a much less visible result. A set of catalyst sites is recommended to stimulate discrete retail nodes, including: •

•

An entertainment-oriented node with a range of restaurants and other retailers that generate evening activity; A lifestyle-oriented node that offers new apparel choices, home furnishings, and books and music; and A specialty retail node that offers high quality food items, as well as other specialty and convenience goods.

An essential aspect of the strategy is a coordinated set of streetscape, traffic, and other public improvements that will enhance the attractiveness and identity of the new retail nodes. Detailed program recommendation of specific tenant mix are given later in this chapter and tied to specific development zones as described hereafter.

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3.3 Redevelopment Framework and Urban Design Strategy

• •

Guiding Principles

Once having gained an understanding of the physical and economic settings of the study area as well as the specific retail program recommendations, the project team developed a series of “guiding principles” to help direct the physical structuring of the strategic plan to address these factors. These principles were based on feedback received from the first community workshop in July 2004 in which the overall goals and objectives for this project were developed and are also rooted in a professional understanding of what contributes to a healthy downtown environment from both a physical and economic perspective. The guiding principles for the Castro Valley Redevelopment Strategic Plan are: •

•

Strengthen and diversify the retail shopping options on Castro Valley Boulevard for residents and employees Improve urban conditions along Castro Valley Boulevard and establish it as the downtown main street Create a stronger sense of “downtown” for Castro Valley by creating public destinations

•

• •

Maintain and enhance Castro Valley’s small town environment Develop a stronger identity and sense of place for the community Create a pedestrian-oriented downtown Castro Valley that also improves circulation and parking Enhance quality of public space Encourage opportunities for cultural arts

Redevelopment Framework

The Redevelopment Framework is a synthesis of the physical environment considerations and retail / economic considerations. Taking those factors and structuring the downtown area in a way that best accommodates retail enhancement and provides a functional and aesthetic setting for the downtown to thrive. It identifies several factors for improving the urban design structure of the downtown and gives priority to specific key projects. The framework is organized into two basic categories: Strategic Catalyst Sites – which accommodate the recommended retail program – and Public Space Improvements – which address physical improvements to the street and public realm (the later will be described in detail in the next chapter).

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The Redevelopment Framework plan (Figure 35) identifies three priority catalyst sites and three additional opportunity sites with longer term potential. These sites were designated as key zones for redevelopment activity. The priority sites were selected based on several factors: their central locations – supporting the goal of a downtown core area; the existence of a strong existing “draw” use or one that is planned for the near term – be it a commercial or civic use; and lastly the availability of adjacent potential redevelopment parcels that could be aggregated to create a significant project opportunity to complement the “draw” use. The longer term opportunity sites were selected based on availability of underutilized land and proximity to either transit or freeway access. The Redevelopment Framework also defines key public space improvements to complement the catalyst sites. These improvements, including circulation and parking improvements, streetscape enhancement, key public greenspace elements and identity gateway elements will combine to create a high quality setting within which the redevelopment sites can achieve their full potential (these public improvements are described in greater detail in the next chapter).

3.4 Strategic Catalyst Sites

REDEVELOPMENT FRAMEWORK ELEMENTS Target Redevelopment Opportunities

��

General Streetscape Improvements Secondary Street Network

��

Public Open Space Improvements

��

Primary Streetscape Improvements

��

The purpose of the strategic catalyst sites is to demonstrate to the larger retail and development industry that viable retail sites can be assembled

Downtown Gateway Feature

��

Although there are a number of potential catalyst sites along the Boulevard, over the next 10 years or so, Agency resources are likely to be sufficient to create public/private partnerships for only a few locations. This means that the Agency needs to identify a subset of several strategic catalyst sites that represent those locations that are a priority on which to focus its efforts.

Non-Agency Portion of Target Sites

��

Concept and Purpose

Other Redevelopment Opportunities

� ��

Three strategic catalyst sites are proposed as areas of retail-focused redevelopment with the intent of improving the near-term economic performance of the downtown and the physical condition of the public realm. Conceived as districts within the downtown, these sites are strategically located along the central portion of the Boulevard. Areas in between the three strategic catalyst opportunity sites are expected to continue to improve and benefit as a result of their proximity to new development. Redevelopment on these sites takes advantage of major projects either existing or planned within the downtown, and addresses the space needs of possible additional retail opportunities.

��

Figure 3-5: Redevelopment Framework Plan (2 pages)

in Castro Valley and successful projects built and leased. Once this has been established, a much larger amount of private development activity is likely to result, and this activity rather than Agency action is what will be primarily responsible for the revitalization of Castro Valley Boulevard retail and properties. The additional private investment activity will also spill over towards either end of Castro Valley Boulevard, leading to

redevelopment of properties that are not within the priority areas targeted by the Agency. While the Agency has sufficient resources for a minimal number of catalyst sites, a larger number has been identified so that if ownership or other development issues impede redevelopment of a strategic catalyst site, the Agency can be in a position to respond accordingly. This will help

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��

�

��

the Agency ensure that new development occurs and that it does not get bogged down in any one particular site. The catalytic effects that attract much greater levels of private investment and development arise from the momentum of built and leased projects. Potential catalyst sites should be prioritized, with those sites with the greatest potential for catalytic

effect identified as strategic catalyst sites. At the same time, if ownership or other development issues impede redevelopment of a strategic catalyst site, the Agency should be prepared to move on to other sites on its list. Catalytic benefits that stimulate much greater levels of private investment and development result from creating momentum through built and leased projects.

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The three target catalyst sites were identified centrally within the downtown area. Two are located at either end of the Boulevard main street, the Library District and the Theater District, with the third, the Village District, in the center (see Figure 3-5: Redevelopment Framework Plan). In all cases, the development schemes that follow are conceptual and represent what is considered

a potential viable scenario given market parameters and urban design goals. Any redevelopment initiative undertaken would require the participation and cooperation of owners, tenants and other associated parties to make it successful and in the process, may entail alterations or refinements to the concepts shown.

5,000 sf 5,000 sf

Library District

Situated at the eastern end of the downtown and bounded by Castro Valley Boulevard, Norbridge Avenue and Redwood Road, the Library District will act as a gateway to the revitalized “Main Street”. The block configuration is arranged to provide strong definition of the street with buildings pulled up to the sidewalk and consolidated parking located to the rear. Circulation through the block will be greatly improved with internal roads in both the east-west and north-south directions. The key project in the Library District is the much heralded new Castro Valley Public Library on Norbridge Avenue. The library will serve the modern literacy needs of the community and provide much needed public meeting spaces. In addition to the Library, this catalyst site will be the home of a new Library Green—an extension of the existing Castro Valley Creek Park—and a new 10,000 square foot office building. Together, these three projects will serve as the civic heart for Castro Valley. 44

Office

Figure 3-6: Aerial View - Library District Redevelopment Catalyst Site

Another large ingredient in the Library District is 59,000 square feet of reconfigured retail commercial property. A new specialty grocery accounts for a significant portion of this, housed in a new 35,000 square foot building along Castro Valley Boulevard sharing the frontage

with an improved and reconfigured Longs Drug Store replacing their existing facility. New retail properties across the street from the grocery and drug store will help anchor the four corners of the intersection between Castro Valley Boulevard and Yeandle Avenue. An extension of Yeandle

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5,000 sf

Figure 3-7: Plan View - Library District Redevelopment Catalyst Site

will connect from this intersection south to Norbridge providing enhanced vehicular and pedestrian connectivity through the district. A new east-west connector from Norbridge to Redwood will further enhance connectivity. Together these two internal streets will help create a much

needed secondary circulation network to relieve pressure on the major arterials. The Library Districtâ€™s close proximity to BART makes it an ideal location for transit -oriented residential infill. This is the only catalyst site with

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a significant housing component. The recommended program is for 138 total new housing units. Included are 128 apartment units in four floors over a parking podium, with an additional 10 town homes with tuck under parking. This development will be appropriately designed to

take advantage of its highly visible location at the corner of Norbridge and Castro Valley Boulevard.

2,500 sf Retail

Village District

Conceived as the center of downtown Castro Valley, the Village District builds on the success of existing businesses of Castro Village and takes advantage of underutilized parcels along the Boulevard to put forth a dynamic pedestrian-oriented retail district. The Village District is located along Castro Valley Boulevard primarily between San Miguel Avenue and Wilbeam Avenue. Common to all catalyst sites, development is arranged and reconfigured to provide strong definition of the street with buildings pulled up to the sidewalk and consolidated parking located in the interior of the parcels. The existing Castro Village Shopping Center is this catalyst site’s anchor. Locally referred to as the ‘Village’, this shopping center provides the largest amount of retail square footage in the downtown. Improvements to this include both pubic space improvements and redevelopment opportunities. A new Village Green, perpendicular to the Boulevard and aligned with Wilbeam and the Village Clock Tower, will provide the first significant public space in the downtown core. This Green is meant to provide the new symbolic town center for the downtown.

7,500 sf Retail 9,800 sf Retail 2,500 sf

8000 sf Retail

Figure 3-8: Aerial View - Village District Redevelopment Catalyst Site

New retail opportunities will be located along the Boulevard, to hold the street and provide definition to the downtown. These range from smaller floorplates of 6,000 sf to 9,000 sf up to a 23,000 sf space for a new bookstore at the corner of Castro Valley Boulevard and Wilbeam. Internal parking in three separate zones will be recon-

figured to accommodate the needs of shoppers within the reconfigured district. Within Castro Village a proposed reconfiguration and relocation of surface parking in the interior of Castro Village will open up valuable space for significant additional retail opportuni-

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2,500 sf 7,500 sf 8,000 sf

9,600 sf

2,500 sf

Figure 3-9: Plan - VIllage District Redevelopment Catalyst Site

ties totaling 75,000 square feet of new apparel / lifestyle retail located to the north of the existing Safeway grocery. 260 rooftop parking spaces will accompany this project. While much of this may occur through private initiative, redevelopment assistance should be available to facilitate land assembly and hazardous materials remediation as

appropriate. To the north of this development on Jamison Way will be a 15,000 square foot neighborhood-scaled commercial mixed use property. Two smaller 2,500 square foot buildings will house retail and be located to hold the corners of large parking lots on either side of the Safeway, one internal to the Village, and the other at the

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corner of Castro Valley Boulevard and Redwood Road. On the south side of Castro Valley Boulevard, the largest development will be a 23,000 square foot bookstore, holding the southwest corner of Wilbeam and the Boulevard. A new and more 47

appropriately sized 15,600 square foot retail building will replace the former Daugherty’s Department Store. Located to the rear of these two properties will be a large 216 space consolidated shared surface parking lot, intended to serve customers of the downtown. On the north side of the Boulevard between Santa Maria and San Miguel, three new retail developments are proposed for a total of 29,800 square feet. All buildings will be situated close to the street to define the edge of the public realm. A large 227-space consolidated and shared surface parking lot will be located to the rear of the buildings the entire width of the block. 5,000 sf Retail

Theater District

5,000 sf Retail

8,000 sf Retail 3,500 sf Retail

From the west, the Theater District—like the Village District—will act as an anchor for and gateway to the revitalized “Main Street”. The District’s program will take advantage of the current and future success of the Chabot Theater, bring restaurants and cafes to the street, and create a destination for evening activity in the downtown. The focus of this catalyst site will be the 7,500 square foot expansion of the existing theater. Acting as bookends to the Theater will be two reconfigured parcels with new buildings totaling 10,500 square feet of potential retail.

7,500 sf Retail 5,000 sf Retail

Figure 3-10: Aerial View - Theater District Redevelopment Catalyst Site

On the north side of the Boulevard, across from the Theater and between Anita Avenue and Wisteria Street, are three new retail buildings totaling 17,700 square feet. A 130 space parking lot will be located to the rear of these properties. This lot

will shared by the tenants in the area and provide much needed additional capacity for the Theater. The concept for this block is that theater patrons will park in the larger lot to the north and walk past restaurants and cafes on their way to and from the theater – encouraging them to stop and patronize those businesses.

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5,000 sf

7,700 sf

5,000 sf

3,500 sf

5,000 sf 5,000 sf

5,000 sf

7,000 sf

Figure 3-11: Plan - Theater District Redevelopment Catalyst Site

To the west of the Theater between Baker and Rutledge Roads will be two new retail buildings amounting to 11,500 square feet. A shared parking lot will be located behind these buildings, with 26 parking spaces.

To the east of Nunes Avenue, a new 5,000 square foot retail building will take the place of a Boulevard-fronting parking lot. A new 70 space shared surface parking lot will be located to the rear of this building.

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Tenant Mix Recommendation POTENTIAL NET NEW CASTRO VALLEY RETAILERS

A/M

F/A

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Examples: P.F. Chang’s; Outback; Sweet Tomatoes (a) 17,656 Supportable New Sq. Ft. (b) 2 to 4 Stores Location: Entertainment/Theater District; West Village

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Eating and Drinking Places

OS OS

Other Specialty (Books, Music, etc.) Examples: Borders Books and Music; Williams Sonoma; Body Shop (a) 52,658 Supportable New Sq. Ft. (b) 3 to 5 Stores Location: Castro Village; West Village; Entertainment/Theater District

(a) Retailers named as illustrative examples; their appearance here is not a recommendation nor does it indicate the retailer’s interest in a Castro Valley location. ��

Theatre District – Entertainment and dining oriented retail that can feed off an expanded Chabot Theatre. The target retailers should complement before and after-movie experiences, and could include small liveentertainment venues and cultural uses. Attention should be paid to retailers who will operate in the evening to create a nighttime activity node.

E/D

E/D E/D

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•

Village District – Specialty retailers, such as bookstores, music vendors, and goods such as kitchen and housewares, décor, and bath items. These retailers should be able to attract lifestyle-oriented shoppers already drawn to the area by the Castro Village and offer complementary retail choices that stimulate movement back and forth across Castro Valley Boulevard.

Groceries/Food Stores Example: Whole Foods Markets (a) 36,813 Supportable New Sq. Ft. (b) 1 store Location: Library District

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Home Furnishings and Appliances Examples: Cost Plus World Market; Container Store (a) 8,078 Supportable New Sq.Ft. (b) 1 store Location: Castro Village ��

Apparel/ General Merchandise Examples: T.J. Maxx; Forth and Towne (Gap); Chico’s (a) 34,822 Supportable New Sq. Ft (b) 2 to 5 stores Location: Castro Village

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The recommended tenant mix for the catalyst sites seeks to create a retail environment along Castro Valley Boulevard that supports distinct nodes and encourages pedestrian activity and extended shopping visits. The target mix for each site is:

(b) Square footage is based on retail leakage study. Note that catalytic effects of new development may increase the amount of net new retail space that can be supported in the local trade area. Does not include existing retailers or new stores in existing retail properties (including those redeveloped in the future). ��

Source: BAE, 2005.

Figure 3-12: Potential Net New Castro Valley Retailers by Category and Catalyst Site (2 pages)

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Library District – Convenience goods, such as a new supermarket and remodeled drug stores, as well as specialty retail, sporting goods, casual dining, and services that can be combined with visits to the new Library. Retail choices should appeal to all generations and activity levels.

The Castro Village is considering opportunities to enhance its tenant mix, and retailers offering various types of apparel as well as lifestyle goods, including home furnishings, represent key opportunities.

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F/A

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A/M

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E/D

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Figure 3-12 shows the categories and amount of supportable new retail based on the retail leakage study, and those catalyst sites where it has the best potential and is also likeliest to strengthen the creation of a retail node. The Agency can negotiate developer commitments to target tenant mix for those projects

that it provides support to or has other involvement. Developers of private projects will pursue those particular tenants that in their judgment best meet their objectives for tenant mix in their project, creditworthiness and rental rates, and are active in the market. Decisions on tenant mix in new catalyst projects, which are unlikely to commence leasing sooner than two to three years from the date of this Plan, should be based

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on the tenants that are actively looking for retail space at that time and are interested in a Castro Valley location, new tenants at other nearby competing projects, and opportunities to complement existing Castro Valley merchants.

the downtown. Existing parking would be replaced with structured parking, with no net loss of capacity. The Agency should be expected to play a significant role in coordinating the work of BART and other stakeholders to ensure an outcome that benefits the community.

Future Redevelopment Opportunities

The framework identifies three additional redevelopment opportunity sites that should be explored in more detail. These sites could potentially take advantage of large, underused parcels throughout the downtown. Located on the outer edge of the Central Business District, these sites could act as gateway projects that further enhance the downtown with new transit oriented housing and mixed use retail commercial activities. The identification of strategic catalyst sites is meant to focus the Agency’s efforts, but not to limit its involvements in other locations that may be significant for improving the quality of life in Castro Valley in the future. Following are three opportunity sites that may offer mid- to longterm opportunity for redevelopment: •

Transit Village. The BART station parking lot represents one of the largest underutilized properties in Castro Valley, and one that presents a great opportunity to connect the station with the retail node at the Village District and strengthen the identity of Castro Valley in general. Future mixed-use development at the site should be expected to contain a significant amount of ground floor retail use and upper floor residential. The presence of a significant population of new residents in this location will further ensure the success of retail throughout

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West Gateway District. The lumberyard site at the west end of Castro Valley Boulevard, as well as the adjacent veterinary office with its large surface parking area, and the SBC corporation yard, constitute a large property with excellent freeway visibility and access. These property owners have no near-term plans for redevelopment. However, as Castro Valley revitalization proceeds, there is likely to be greater interest in redevelopment of these properties, and the Agency may play a key coordination role. This opportunity site will be key in defining the character and identity of the community at this important western entrance. East Gateway District. Similar to the West Gateway District, this underutilized area at the eastern entrance to the community — which includes the existing Rite Aid site — offers similar potential for redevelopment and is equally important in setting the identity of the community as one approaches

from the east. Both this zone and the West Gateway District may be ideally suited for commercial uses that are more automobileoriented given their proximity and access to the freeway — allowing the retail in the central downtown zone to cater more heavily to pedestrian-oriented uses. This is where such uses as tire stores, gas stations and larger format retail could be located. As such it will be all the more important to regulate the nature and character of development in these two gateway areas so that it supports the image of Castro Valley that is desired by the community. •

Other Miscellaneous Infill Sites. Success with the catalyst sites is likely to increase interest in redevelopment or smaller infill sites along Castro Valley Boulevard and adjacent side streets for various mixed-use development. Such development may also present an opportunity to create denser for-sale multifamily residential product that is not currently available in Castro Valley, targeted at first-time homebuyers as well as empty nesters wishing to remain in the community. The Agency may provide various types of technical assistance, support for land assembly, or other measures to stimulate infill development.

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PUBLIC REALM IMPROVEMENTS

4.1 Circulation Issues Surrounded by rolling hills that frame the community, views from downtown are enjoyable for both drivers and pedestrians. However, the existing street environment is characterized by traffic congestion, inconsistent travel lane and center median widths, various sizes of sidewalk, inconsistent and sparse street tree planting, highway style street lighting and few pedestrian amenities. Walking along Castro Valley Boulevard, one feels open and exposed. Throughout North America, the traditional manner in which communities have developed is from a planned grid of streets and blocks. This pattern allows communities to guide future growth in a manner that supports connectivity, permits an even flow and distribution of traffic, and provides a variety of routes to all parts of the community for pedestrians, cars and bikes alike. Castro Valley’s Unique Circulation Network

Castro Valley began as a rural agricultural settlement. Large farms dotted the hills with local roads connecting the various farmsteads with regional roads. The community’s primary regional road—Castro Valley Boulevard—was later developed as a state highway and was well connected to other regional roads such as Cull Canyon Road, Lake Chabot Road, Strobridge Avenue and Redwood Road. As Castro Valley’s population grew additional roads were extended up into the canyons and foothills to connect the various neighborhoods that developed on these former farmsteads. The network of streets that exists today is a result of this piecemeal incremental growth and has been largely shaped by regional transportation infrastructure. One can see from Figure 4-1: Existing Castro Valley Circulation Patterns,

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EXISTING VEHICULAR CIRCULATION Interstate 580 Freeway Primary road ��

Secondary road

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Tertiary road Secondary road (proposed) Road to be removed

Figure 4-1:Existing Castro Valley Circulation Patterns

that few opportunities exist for the movement of traffic in the east-west direction within the downtown area other than on the Boulevard, or north-south other than Redwood and Lake Chabot Roads. This discontinuous network of local streets and cul-de-sacs funnels traffic onto a few key distributor roads, resulting in busier streets with more congestion. Circulation for pedestrians and bicycles in this auto-dominated system is all the more challenging because of these conditions. A major concern expressed by residents is the level and speed of vehicular traffic on the Boulevard and throughout the community. This high volume arterial roadway is parallel to Interstate 580 with interchanges located at each end of the Boulevard. Many believe that the majority of traffic in Castro Valley is generated by vehicles attempting to divert around congestion on the 580 where it intersects with State Highway 238. Although a portion of the traffic along the Boulevard does originate from the freeway, it is difficult to determine with any certainty whether or not the overall congestion is from residents or non-residents cutting through the community. With a population approaching 60,000 and a hierarchical, disconnected street network, it is reasonable to conclude that a significant amount of the traffic in the downtown is created from within Castro Valley and its outlying neighborhoods.

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The State and County have carried out numerous studies and have proposed numerous improvements to the regional and local road network. These improvements include major projects such as freeway interchange modifications and road widening along with minor projects such as changes to intersection signalization along Castro Valley Boulevard. Together these improvements could significantly reduce traffic along the downtown segment of the Boulevard (between Redwood Road and Lake Chabot Avenue) as indicated in Appendix B: DKS Traffic Summary Report (2005). The DKS Traffic Summary Report, completed as part of this Plan, further analyses various approaches to circulation improvements and traffic calming. The analysis focuses on the reduction of traffic on Castro Valley Boulevard. It further examined the potential of maximizing the diversion of traffic from Castro Valley Boulevard onto other arterial and collector streets such as Norbridge as a means of reducing traffic impacts on the Boulevard. Several alternatives were examined for traffic reduction, traffic calming and traffic diversion which are all explained in detail in Appendix B: Traffic Summary Report (2005). The alternatives analyzed included measures to divert traffic off Castro Valley Boulevard; measures to calm traffic on the Boulevard by

way of lane narrowing, the provision of on-street parking and the use of bulb-outs; and even the elimination of traffic lanes to create one lane of traffic in each direction with diagonal parking as a means of restricting and slowing traffic. Unfortunately the later measure proved too much of a strain on the available traffic network and the model showed the system breaking down with a number of intersections reaching a Level of Service (LOS)1 F performance. A LOS F represents a traffic condition at capacity with extremely long delays of 80 seconds or longer. Queues may block upstream intersections. Where this solution has worked in other communities, the conclusion here was that Castro Valley simply does not currentl have sufficient alternative routes in the existing network to absorb the diverted traffic caused in this alternative. The overall conclusion of the DKS report is that a four-lane Castro Valley Boulevard with reduced lane widths and other key traffic calming improvements would slow traffic, divert some traffic to Norbridge and other streets while maintaining the necessary minimum of traffic capacity on the Boulevard itself. The recommendations would also greatly improve physical conditions for pedestrians, cyclists as well as vehicles, and foster a stronger retail environment within the downtown. 1 Level of Service analysis is explained in more detail in the Traffic Report – Appendix B.

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Existing Parking Conditions

A windshield parking survey was carried out as part of the traffic analysis report (Appendix B). The survey assessed parking patterns during peak traffic periods, parking occupancy, pedestrian patterns and bicycle usage to determine where improvement opportunities exist. Throughout the central business district on weekdays, onstreet parking is highly used as is the BART parking lot. Larger retail lots are more active in the evenings and weekends. However, at no time during the week or weekend was the total parking capacity for the central business district fully in use. Red Curbs Zones and Driveways

There currently exist along the Boulevard a number of ‘red curb’ no parking zones. Red curbs are generally situated at intersections and emergency zones. In Castro Valley, many of the red curbs are used to permit free right hand turning movements and reduce vehicle stacking depths at intersections. Downtown parking is largely located on individual parcels. Although they provide access and convenience to businesses, the large number of driveways and parking lots disrupt pedestrian circulation and diminish opportunities for strengthening urban character. Combined with the irregular street network and inconsistent block pattern, the red curb zones and individual driveways substantially reduce the potential for on-street parking opportunities. 55

crosswalks are where the two meet and are the focus for improving pedestrian safety.

4.2 Streetscape Plan

The intent of traffic calming is straightforward: make drivers more aware of their surroundings to improve the livability of streets. Accomplishing this heightens the comfort and safety for all users. Traffic calming in Castro Valley will be achieved by increasing ‘friction’ along the street, through the addition of street trees, on-street parking and narrower travel lanes. Each technique forces drivers and passengers to take greater notice of their environment. This has an added benefit as well: slowing down traffic enhances opportunities to observe small-scale retail commercial enterprises perhaps overlooked when traveling at higher speeds. Although traffic calming reduces overall

Approach

Leveraging the conclusions of the Traffic Report, the Plan’s approach for improving streetscape conditions along the main street corridor of Castro Valley Boulevard is to re-balance the activities within the pedestrian and travelway realms. The pedestrian realm is defined as the portion of the street between buildings in the public right-ofway where pedestrian-related activity takes place: the sidewalks and bulb-outs. The travelway realm is the portion of the street where vehicles and bicycles are accommodated. Intersections and

To rebalance the street so that all users feel safe and comfortable requires the use of several tools and techniques. The specific improvements that follow in this section consider the entire street right-of-way as an integrated whole, and that no one mode of travel or land use dominates. Creating Livable Streets through Traffic Calming

One important tool in the rebalancing of street functions is the use of traffic calming techniques.

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Figure 4-2: Overall Streetscape Plan (2 pages)

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Summary: Streetscape Improvements

The recommended streetscape improvements for Castro Valley Boulevard will create a downtown main street that can accommodate the various modes of circulation and activities necessary for a healthy, small-town retail environment. A summary of the recommended improvements is listed below. These elements are described in greater detail in the sections that follow:

• • • • • • • • • •

2 travel lanes in each direction: 10 feet wide each Shared center turning lane Planted center median Bike lanes Maximize parallel on-street parking Consistent street trees Bulb outs and reduced crossing width Widened sidewalks (12 feet wide each side) High quality street furnishings Character elements such as gateway markers and public art opportunities

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vehicle speed, the travelway must retain its ability to accommodate the appropriate traffic volume, or else the entire street network in the community will suffer. The Plan is not proposing to stop or remove cars because a certain level of traffic is necessary in a successful downtown. It is simply recommending that traffic slow down to accommodate other functions necessary for a healthy downtown.

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4.3 Specific Improvements As previously discussed, the Plan’s approach to create a livable downtown street environment in Castro Valley first requires calming traffic. The measures that enhance calming can generally be described as the application of three measures: Vehicular travel and turning lanes along the Boulevard will be reconfigured and reduced to 10 feet. Opportunities for on-street parking and bulb-outs will be increased through the reduction of ‘red curb’ no parking zones and the consolidation of driveways. The center median will be standardized and reconfigured, using the additional width to enlarge sidewalk dimensions. Circulation Changes within the Public Right-

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Final Streetscape Recommendation

Several alternative street configurations were explored before reaching the final recommendation. The final recommendation specifies two 10-foot traffic lanes in each direction, a shared center turning lane (interrupted intermittently by center median islands), 5-foot bike lanes in each direction, an 8-foot parallel parking lane contained by bulb-outs at each intersection and 12-foot sidewalks (see Figures 4.3: Plan and 4.4: Cross-Section). This configuration provides what is considered the best balance of accommodating traffic — given current and projected traffic 58

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Figure 4-3: PlanTypical Recommended Streetscape Improvements with Four Traffic Lanes and Parallel Parking. Features that differ from the Possible Future Conversion (see Figure 4-5 ) are within red boxes.

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levels and network constraints — and pedestrian / bike improvements. The scheme offers significant improvements in sidewalk widths, bike lanes (there are currently none), space for street trees and safe crossings at intersections. Possible Future Streetscape Conversion

In addition to the recommended configuration, other scenarios were studied including one travel lane in each direction, diagonal parking, the inclusion of a continuous center median with left turn pockets, and various combinations of

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street furnishings, gateways and character elements. As mentioned earlier, the one-lane option — assuming current and projected traffic levels and network configuration — led to very high levels of traffic congestion along the Boulevard, causing delays in both directions and reducing the performance of several intersections to LOS F. Diagonal parking, although more convenient to enter from the travel lane, would exacerbate this congestion along the street with each reverse turning movement when cars exit the diagonal parking spaces.

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It is important to note that this study recognizes that the overall traffic picture in Castro Valley could change in the future — both in terms of traffic volumes as well as improvements to the overall network. It is possible that at some point, traffic conditions could change to the extent that the one-lane-in-each-direction option could be feasible. Accordingly, the recommended configuration has been designed to accommodate this potential change in the future as follows:

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Figure 4-4: Section - Typical Recommended Streetscape Improvements with Four Traffic Lanes and Parallel Parking

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•

The sidewalk and curbline could remain the same as well as the dimension of the center turning lane and medians. The travel and parking lanes could be converted from two 10-foot traffic lanes, a bike lane and a parallel parking lane to a 16-foot travel lane, a 17-foot diagonal parking lane and no bike lanes (see figures 4.5: Plan and 4.6: Cross-Section). In addition to restriping of lanes and parking the only other change would be to extend bulbout out to the widthof the diagonal parking zone.

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The advantages of this conversion would be to provide an additional traffic calming measure, enhance the parking supply (increasing from 5 spaces per 100 feet in the parallel parking scenarion to 7.5 spaces per 100 feet in the diagonal scenario), shorten the distance to provide a safer pedestrian crossing, and provide a general configuration and character associated with small downtown main streets. A two-lane pilot test could be conducted at any point that the County and Community feel that other improvements such as the 2-way Norbridge conversion, the additional 80 interchanges and 238 widening have improved conditions on Castro Valley Boulevard to the extent where a one lane scenario may be feasible.

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Figure 4-5: Plan- Potential Streetscape Conversion to Two Traffic Lanes and Diagonal Parking. Features that differ from the Final Streetscape Configuration (see Figure 4-3) are within red boxes.

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Pedestrian and Bicycle

Improvements for pedestrian circulation focus on increasing room along the sidewalks and reducing crossing distance across large streets. Additional space along sidewalks provides the opportunity for retail activities—such as cafes, restaurants, bookstore and other shops—to spill out into the public realm. In Castro Valley, sidewalks will be increased and standardized to 12 feet on each side. Intersection crossing distances will be reduced by adding bulb outs with a maximum crossing distance of 60 feet along the Boulevard. For bicyclists, improvements will include the addition of formal on-street bike lanes on both

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sides adjacent to the parking lane. Combined with the reduced travel lanes and vehicular speed, cyclists will enjoy a safer and friendly downtown.

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Figure 4-6: Section- Potential Streetscape Conversion to Two Traffic Lanes and Diagonal Parking

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Parking

Although the Traffic Study indicated no shortage of parking in the downtown area with the current level of retail activity, there will be a future need as the future land use strategy will increase the amount of retail, dining and entertainment space along Castro Valley Boulevard. In addition, many comments were received during the community process regarding a perceived lack of convenient parking in specific locations within the downtown shopping areas. A Parking Strategy for the Downtown

In order to address both the increased parking needs due to increased retail uses as well as the perceived lack of convenient parking, two approaches were pursued as a part of the Strategic Plan. The first measure is to reorganize parking as a part of the redevelopment opportunity sites, providing well-organized, accessible parking behind the retail uses along Castro Valley Boulevard. These reorganized, aggregated parking areas can be seen in the district plans described in Chapter 3 for each of the three catalyst sites â€”Theater District, Village District and Library District.

ists a significant amount of red-curb areas where the road design can be modified to introduce onstreet parking. This will have multiple benefits. In addition to providing an increased amount of convenient parking along Castro Valley Boulevard, the parking also serves to enhance traffic calming and encourage pedestrian activity on the Boulevard. Inherent in this recommendation is the strategy to pursue shared-parking for adjacent retail uses as opposed to multiple individual parking areas for each retail use. With this strategy, an overall efficiency can be achieved leading to a potential reduction in the required parking ratio when apÂŹplied as an average across all grouped retail uses. Shared parking enables parking resources in a central area to be utilized by several uses with parking demands that peak at different times of the day. Shared parking creates opportunity to maximize buildable square footage for new development projects on small lots typically found in older downtown areas such as Castro Valley where individual parcel parking requirements would typically limit such development. This strategy is being applied increasingly in many similar communities with very desirable results.

The second measure to increase parking efficiency and convenience is to maximize on-street parking. As described earlier, there currently ex-

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Future Parking Need for Catalyst Sites

Library District

The future parking needs have been studied for each catalyst site with the objective of accommodating the new retail additions to each of these districts. The new parking recommendations are summarized as follows:

As shown in the Plan, the Library District is conceived as a complete redevelopment of the available parcels. The proposed development for this catalyst site includes a total of 111,200 sf of retail, community use and office building space to replace the existing 33,949 sf. The shared off-street parking supply would include a total of 337 parking spaces. For the residential units development proposed for the Library District, an additional 138 parking spaces will be provided with all parking accommodated on-site within the residential parcels. This ratio would improve further when on-street parking spaces are added into the mix.

Theater District

Based on the proposed redevelopment concept, the Theater District adds only 962 sf of new retail, but with reconfigured sites and buildings, amalgamated parcels, and shared parking opportunities fully realized, 86 new parking spaces are created, not including on-street parking with the reduction of red-curb no-parking zones. This provides for a total of 249 parking spaces which creates a parking ratio of 3 spaces per 1000 sf of retail. The ratio is further improved to 4.5 when potential on-street parking spaces are included. Current Alameda County Parking Ordinance requires 4 spaces per 1000 sf; so there is actually a cushion of parking supply in this area to address the perceived shortage of convenient parking at peak times.

Village District

The Village District is conceived as two distinct but related areas: the existing Castro Village and the two adjacent blocks located immediately to the south and west of Castro Village. Amalgamated shared off-street parking lots are proposed behind both of the blocks adjacent to the Castro Village. For Castro Village, the proposed parking

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re-configuration does not include the Safeway grocery store parking spaces and is calculated for two scenarios: the addition of a 1-story parking structure and a 2-story parking structure within Castro Village. The parking supply is proposed to be shared by both areas due to their close proximity. For the 1-story parking structure scenario, Castro Village increases in total parking supply from 632 to 785 spaces for an additional 64,000 sf of retail space. The adjacent blocks to the south and west of the Castro Village increase their parking supply from 328 to 443 spaces for an additional 18,251 sf of retail. Overall the Village District parking ratio is 4 spaces per 1000 sf. When adding a possible 172 on-street parking spaces along Castro Valley Boulevard, the total number of spaces increases to 1400 with a ratio of 4 spaces per 1000 sf. For the 2-story parking structure scenario, an additional 260 spaces are added. This increases the total district parking supply including the 172 on-street spaces to 1660 spaces, providing a ratio of 5 per 1000 sf. A summary of proposed future parking for each district — both on- and off-street — is provided in table 4-1 on the following page.

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Table 4-1: Castro Valley Parking Analysis Catalyst Site

Current Off-street Parking

Proposed Off-street Parking

Parking Ratio #/per 1000 sf

Building Square Footage

Parking Count

Proposed Off-Street + On-Street: Parallel Parking

Proposed Off-Street + On-Street: Diagonal Parking

Building Square Footage

Parking Count

74,548

163

75,510

249

339

384

33,949

167

111,200

337

266

399

Castro Village

152,205

632

216,217

785

1045

Village District adjacent blocks

101,883

328

120,134

443

254,088

960

336,351

1228

1488

4 - 4.4

1400-1660

1486-1746

1-story garage

Parking Ratio #/per 1000 sf

2-story garage

Theater District

Library District

Village District

Village District TOTAL

Note: On-street parking supply was calculated first by determining the approximate curb side availability for parking, taking into account major shared driveways and intersections. This is a planning level count taken from an aerial photograph for we did not have more accurate base date. There was no current inventory available of existing on-street parking spaces to make a comparison. However, due to the location of red curb zones as indicated in the DKS windshield survey of parking in the downtown, we can assume that the addition of on-street parking spaces will increase supply on Castro Valley Boulevard mostly to the west of Redwood Road.

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Street Trees

Trees are often considered the single most important characteristic of a good street. They help scale down buildings and wide streets to a pedestrian-oriented level. Street trees and other plantings provide visual relief in an urban setting. They can strengthen the natural and small town identity of Castro Valley, and bring status and prestige to the addresses along that street. A row of large street trees can help define the boundary between the travel way and pedestrian realm. The

Trees help create comfortable downtown streets

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environmental benefits of street trees are many: they intercept stormwater from entering creeks and the stormwater collection system, improve air quality by capturing pollutants and reducing urban heat island effects, and provide cooling to streets and buildings, often up to 20 degrees difference in the California warm season. In Castro Valley, street trees will be planted to form a continuous and uniformly spaced tree canopy along the Boulevard. The recommended

tree species will have tall branching habit and wide canopy. They will be planted on 25 foot spacing in trenches with structural soil to facilitate healthy root growth. Large trees will be planted in the center median to help scale down the street. Additional trees will be situated at bulb-outs in additional planter areas located at each intersection. The desired effect is to visually reduce the width of the street at intersections, further calm traffic and create the illusion of shorter blocks—all important factors for developing a pedestrian friendly downtown.

Figure 4-7: Typical Street Tree Placement Shading Roadway and Sidewalk with Additional Trees at Bulbouts

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Gateways

Gateways announce entry and passage into distinct areas. They provide an initial on-street visible expression of and reinforce awareness of the community and downtown main street concept. They further support vehicular and pedestrian orientation. In Castro Valley, two types of gateway markers are proposed: District and Downtown. The following gateway design descriptions are conceptual, with the intent of guiding general character, shape and size. Once the County and

Community are ready to proceed with implementation, detailed gateway design should be developed using these concepts as general guidance. The District Gateways is shown to be 15 feet in height with a slightly tapered 5 foot square base, located in the center median at the main entries to Community, and oriented and scaled to vehicular traffic. The Downtown Gateways is shown as 10 feet in height with a slightly tapered 3.5 foot square base, located in bulb-outs at main entries to the revitalized downtown Boulevard and oriented and scaled to pedestrian traffic. (See

Redevelopment Framework Plan - Figure 3-5 for proposed gateway locations). The gateway markers should be constructed of natural materials and be traditional in style. A lantern atop each marker could provide a signature night-time element for the Boulevard. Each marker may provide an opportunity to introduce a public art component to the street environment (see gateway markwers concept elevations: Figures 4-8 thru 10).

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Figure 4-8: Conceptual Design - Gateway Markers

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Figure 4-9: Conceptual District Gateway Placement

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Figure 4-10: Conceptual Downtown Gateway Placement

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Street Furnishings

Street furnishings enhance community livability and help to define downtown character. All street furnishings in Castro Valley will be of high quality materials and emphasize a traditional small town style. All furnishings will be low maintenance and easy to replace in needed. The street furnishing palette includes: •

•

pedestrian-scale street lights to help humanize the street experience and spatially define the pedestrian realm trash receptacles, benches, bike racks, multiple publication newsracks and bollards to further enhance the public environment by providing places to sit and observe

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�� Figure 4-11: Recommended Street Furnishings ��

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SOLOMON ��

Building Character

Discussion throughout the process encouraged certain characteristics for future development. The character and form of buildings fronting on Castro Valley Boulevard are considered to have a significant effect of the appearance and quality of experience on the Boulevard. Accordingly, a series of architectural considerations were discussed which would help to establish some controls over the type of building designs developed along the Boulevard. These included: •

• •

•

establishing build-to lines on the back of sidewalk to increase pedestrian visibility / function and enhance pedestrian scale; encouraging more than one story buildings to lend scale to the wide street dimension; encouraging retail on the ground floor of new buildings with other uses such as office and residential on upper floors and; developing architectural style guidelines that respect Castro Valley’s character.

A successful downtown main street requires a delicate balance between the physical dimensions of the street and well-suited land uses. When enriched with articulated and appropriately-scaled building character, shade-giving street trees, and expressive materials and furnishings, residents and visitors alike will feel welcome to stroll, shop and stay.

Although full architectural guidelines were not a part of the scope of this study, the Strategic Plan recommends that these types of architectural controls be further developed and instituted as part of tthe redevelopment strategy.

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C O S T A N D F I N A N C I N G S T R AT E G Y

5.1 Strategy Costs and Financing Implementation of the identified development and project strategy will need to occur in phases, both to match the amount and timing of available Agency funds, as well as the marketâ€™s ability to absorb newly developed space for retail and other uses. This also maximizes opportunities for improved market conditions to reduce the need for Agency support in later phases. Formulation of the implementation plan starts with identification of currently available Agency funds. Pro forma (financial projections) analysis of the proposed development program was conducted to determine the feasibility of proposed projects and identify the estimated need for Agency support. This information on needed funding was then used to formulate a phasing plan that matches available resources. Finally, options for Agency implementation actions are outlined.

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5.2 Proposed Development Program The identification of catalyst sites to stimulate development all along Castro Valley Boulevard is described in previous sections. The development program for each of the catalyst sites aims to work within the physical dimensions of potentially available sites, reinforce the desire to retain strong existing retailers, and reduce the need for Agency support. The total proposed development program for all the catalyst sites combined includes approximately: • • • •

•

166,000 square feet of net new retail space1; 10,000 square feet of upper story office space; 116 new market-rate townhouse-style forsale residential units; 28 below market-rate rental residential units affordable to households at or below 60 percent of the Area Median Income; and There would be a range from 1228 to 1488 total parking units provided in surface offstreet parking, depending on either a 1-story or 2-story parking structure.

The catalyst sites primarily consist of numerous small parcels that will require Agency action to assemble them into large enough sites for new development. The proposed sites have been configured to exclude buildings housing strong existing retailers, reducing acquisition cost. The total area to be acquired is approximately 21.6 acres. This acquisition strategy relies primarily upon willing sellers and because it requires up-front purchase by the Agency it represents a “maximum cost” scenario. If the Agency can instead facilitate the formation of joint ventures between property owners and developers, or alternate partnership arrangements, or tax-deferred exchanges, it would eliminate or reduce Agency costs.

5.3 Financial Analysis of Catalyst Sites Detailed financial projections (pro formas) were prepared for each of the proposed strategic catalyst sites and projected development program. The basis for the financial analysis is the point in time at which the project has been fully leased or sold, when it has generated maximum value. In order to prepare the pro formas, estimates were made of total development costs. These include construction costs, soft costs (architects and engineers, other professional services, insurance, and including impact fees charged on new development by the County and other agencies), construction financing, land acquisition costs (including land assembly), costs for relocation of existing tenants, and Agency transaction costs associated with property acquisition. The cost projections also include typical developer profit and other expenses associated with lease-up.

This amount is within the range of supportable net new retail space identified in the leakage analysis.

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Projected revenue were calculated, as well as operating expenses for rental projects, and the resulting net operating income (revenues minus expenses) was used to project the value of completed project based on current market valuation rates. For-sale projects project total value based on assumed sale prices, less sale expenses. The final step in the pro forma analysis involves comparing the difference between the project’s value when completed and fully leased (or fully sold for for-sale projects) with total development cost. If the value of a completed development project is greater than its total development cost (including reasonable returns to investors), there should be sufficient equity and debt financing available from capital markets, and limited or no need for Agency financial assistance. If however the value of the completed project is less than the total development cost, then it has a negative value (or “feasibility gap”), and it is assumed that without Agency financial assistance the project will not be built.

Key Factors for Financial Analysis

The proforma analysis identified the following characteristics for the development proposed by the Strategy: •

The estimated land acquisition costs are high because of the costs associated with assembling a large number of small parcels, as well as related including relocation expenses and transaction costs. Assuming the Agency purchased all the land for the catalyst sites from willing sellers, total acquisition costs are estimated at approximately $47.3 million. Total streetscape and other public improvement costs to support the Plan are initially estimated at a total of $15 million spread over several phases.

Feasibility Gap Analysis

The pro forma analysis shows that each of the proposed strategic catalyst sites has a feasibility gap, i.e. the value of the completed new project is less than its total development cost. This results from the need for extensive land assembly of numerous small parcels to create development

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projects that can attract developer interest and result in large enough tenant spaces to attract the new types of retail desired by Castro Valley residents. The assumption is that without Agency assistance, the market will not develop projects that are worth less than their cost of development. It is an appropriate use of Agency funds to offset the feasibility gap in order to attract developer interest and create the new types of desired retail. Results of Financial Analysis

Table 5-1 on the following page is a summary table that describes the results of the proforma analysis for the initial phase versus subsequent phases, including required Agency assistance. It also shows the total Agency support required to implement the Strategy.

5.4 Financing Strategy The required Agency support would be financed through separate tax increment finance bonds issued by the Agency for each individual phase, as shown in Table 5-1. The Agency’s projected level of available financial support for projects matches the cost of Phase 1 project assistance and public improvements. The actual amount available for future phases will need to be determined based on the additional increment that is generated by the initial new development supported by the Agency, as well as the additional private investment and development that it stimulates on nearby properties.

Table 5-1: Projected Castro Valley Boulevard Redevelopment Strategy TIF Bond Financing Requirements Catalyst Sites

Initial Phase: Village District

Net Cost – Project Assistance + Public Improvements $7,091,787

Future: Theater District

$21,170,399

Future: Library District

$5,015,087

Final: Village District

$14,031,311

Total

$47,308,584

The eventual total cost of Agency support, and the amount of needed Tax Increment Finance bonds, is likely to be considerably less than the total amount shown. New development resulting from the first and subsequent phases of Plan implementation is expected to generate substantial new private investment and development in addition to those projects supported by the Agency. This will in turn increase the value of future projects, reducing the needed Agency support for strategic catalyst projects in the later phases.

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I M P L E M E N TAT I O N

The overall goal for implementation of the Strategic Redevelopment Plan is to generate the maximum positive impact on the retail environment along Castro Valley Boulevard in the shortest feasible time based on available Agency resources. To this end, the implementation of redevelopment along Castro Valley Boulevard needs to be both strategic and opportunistic. While the primary focus of this plan is on identifying the strategic interventions that the Agency can make to catalyze redevelopment and retail expansion along the corridor, it is also recognized that there are likely to be developer- and landowner-initiated projects that are not identified in the plan that will deserve Agency support. The intent of Agency assistance is to encourage and support, not supplant, private redevelopment initiatives. Thus, it is important that the Agency be open and responsive to all opportunities that further Castro Valleyâ€™s redevelopment objectives.

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retail area, the area around Castro Village, and then move out incrementally to the west and east respectively.

6.1 Phasing Strategy Project Timing

The redevelopment projects identified in this plan are of two general types: redevelopment of privately-owned parcels (mainly focused on retail enhancement) and streetscape or public right-ofway improvements. The proposed phasing strategy for implementation of these projects is based on consideration of a number of factors including: level of potential benefit (i.e., catalytic effect) of the proposed project, the cooperation and participation of affected landowners and businesses, and the availability of Agency resources. While the Agency clearly has greater control of the timing of the streetscape improvements, the concept is to link the timing of the streetscape improvements with the proposed phasing of the catalyst projects to ensure the greatest impact. In identifying projects that will have the maximum near-term impact, priority should be given to catalyst projects that will enhance the existing retail core, and generate interest that can spill over into adjacent areas, rather than starting with outlying areas that have lower existing concentrations of retail where it will be much harder to reach a level of activity that will attract many more shoppers and new retailers. Thus, the recommended phasing strategy would be to build on and expand Castro Valleyâ€™s strongest existing

The intent is that the first phase will introduce new retail uses within, adjacent to and across Castro Valley Boulevard from Castro Village and implement streetscape improvements that will demonstrate the potential for a pedestrian-oriented environment that can attract new types of retailers. The intent would be to create a critical mass that demonstrates what can be accomplished in other locations along the corridor. If a lack of landowner and business owner cooperation delay proposed first phase projects, the Agency should move forward with other catalyst projects as appropriate. Subsequent phases will define the western and eastern ends of Castro Valleyâ€™s retail core. Which of these redevelopment initiatives goes first will depend on a number of factors including market timing, the ability to aggregate land parcels, the success in forming public/private partnerships, etc. The Agency should remain flexible as these factors play themselves out. On the western end redevelopment will help to ensure the long-term viability of the Chabot Theatre, a significant and popular community amenity and asset. The intent would be to at-

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tract entertainment and dining uses to this area that will generate greater night-time activity and strengthen the pedestrian-oriented retail core between the Chabot Theatre and the Phase 1 improvements in the Castro Village area. On the eastern end redevelopment would seek to build on the activity that the new Castro Valley Library will create, and surround it with a mix of new retail and residential uses to activate the area along Castro Valley Boulevard between Norbridge and Redwood Road. Later initiatives will build on the success of these earlier phase projects by conducting the site assembly needed to accommodate additional dining, specialty retail, and other uses to complete the pedestrian-oriented retail corridor between the Village and Theatre Districts. This phase has the greatest potential for being completed in large part by private sector-activity, based on the success of earlier catalyst sites.

desired results. In the course of attempting to acquire property or implement proposed projects, the Agency may encounter property owners unwilling to participate in parcel assembly or joint ventures, or other barriers specific to a particular site. Faced with such a situation, the Agency would be expected to proceed with those projects that can be more readily done. Thus, it is important that the implementation sequence remain flexible. To this end, the phasing strategy should be reviewed on an ongoing basis. The Agency should also be prepared for new opportunities that may arise in the future that may not have been previously considered but that would further the goals for Castro Valley Boulevard retail revitalization. Momentum is a key factor in attracting greater levels of retailer and developer interest, and this can occur as a result of development at other sites than the ones identified in this Plan, or with a different phasing plan.

This Plan identifies a series of projects and their phasing that seeks to maximize synergistic effects with existing Castro Valley retail and provide the expanded retail choices sought by the community. While the recommendations provided in this Plan are considered optimal in terms of the identified goals and principles, there are alternative projects and timing that could produce the

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Retail Catalyst Site Projects

The phasing strategy envisions that the three strategic catalyst sites will be developed as four discrete projects, in four phases over a period of 10 to 15 years. This will result in the addition of approximately 40,000 to 50,000 square feet of new retail space in each phase from the catalyst projects. Phase 1 Retail Catalyst Project

The first catalyst project is a portion of the Village District, envisioned as new pedestrian-oriented retail cluster centered on the intersection of Wilbeam Avenue and Castro Valley Boulevard. A large bookstore and other specialty and lifestyle-oriented retailers will be included in new development at the southwest corner of the intersection. A new retail building will be developed on the existing surface parking lot on the north side of Castro Valley Boulevard just east of Santa Maria Avenue to give better definition and retail presence to the street. In addition, a new Village Green will be created on the north side of the Boulevard aligned with Wilbeam Avenue and the Village Clock Tower. This project will help define a retail node on both side of Castro Valley Boulevard, as well as strengthening the core retail area that spans from the Chabot Theatre on the west to Wilbeam Avenue on the east. Streetscape and open space improvements along Castro Valley Boulevard from San Miguel Avenue to just east of Wilbeam Avenue will help to visually connect 78

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Figure 6-1: Redevelopment Catalyst Site Phasing Strategy (2 pages)

these two sites on either side of Castro Valley Boulevard, and encourage pedestrian traffic between them. Additional Phase 1 Retail Catalyst Project activities may include redevelopment support for private developer / owner initiatives to consolidate parcels, address hazardous materials issues, reconfigure parking facilities and add new retail structures within Castro Village itself.

Subsequent Phasing for Other Retail Catalyst Projects

The Theater District project includes expansion of the Chabot Theatre to accommodate additional screens and the addition of adjacent restaurants and retail. This project will also include development of space opposite the theater on the north side of Castro Valley Boulevard. This project will secure the long-term future of the

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Chabot Theatre by making it more competitive with new theaters in Hayward, as well as provide the cornerstone for a new entertainment district that will attract significant nighttime dining and shopping.

other properties extending east to Norbridge. It will accommodate both a new Longs Drug Store (sited closer to Castro Valley Boulevard) as well as a new specialty grocery store, such as a Whole Foods or Andronicos, and new residential uses.

The Library District project, capitalizing on the creation of a new library, will involve redevelopment of the existing Long’s Drug Store and

Construction of the remainder of the Village District, along the north side of Castro Valley Boulevard, west of the Castro Village (between

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Santa Maria and San Miguel) would be another subsequent project. This project will introduce a variety of restaurant, specialty retail, and lifestyle-oriented stores, completing the pedestrianoriented retail district between Wilbeam Avenue and the Chabot Theatre.

Streetscape Enhancement Program and Timing

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Future Redevelopment Opportunities Non-Agency Portion of Target Sites

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Redevelopment Catalyst Sites

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Phase 1 improvements should take place as soon as possible, and subsequent phases should be implemented as soon as Agency resources area available. Subsequent phases are interchangeable in their timing and can be switched depending

Streetscape Improvements Phasing: Initial and Subsequent

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•

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Phase 1: Redwood to San Miguel Avenue (exact location to be determined) Subsequent Phase: San Miguel Avenue west to Wisteria Street Subsequent Phase: Wisteria Street west to Lake Chabot Road

Secondary and Future Streetscape

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•

Primary Streetscape Improvements

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In addition to redevelopment of individual private parcels, a major component of the redevelopment strategy is the redevelopment and enhancement of the Castro Valley Boulevard public right-of-way to create a more attractive and pedestrian-friendly environment as the “front door” to the corridor’s retailers. These improvements are generally phased to correspond with the priorities assigned to the retail catalyst site projects, but are not dependent upon them. Given the positive influence that the streetscape improvements are projected to have on retailers along the entire corridor, the improvements will be implemented as quickly as Agency resources permit. The recommended phasing of the streetscape improvements (see Chapter 4) is:

STREETSCAPE IMPLEMENTATION

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Figure 6-2: Streetscape Improvements Phasing Strategy (2 pages)

on other influencing factors or can be developed simultaneously as a single phase if resources permit. All phases assume improvements to both sides of Castro Valley Boulevard. The focus of the Redevelopment Strategic Plan is on enhancing the retail core consistent with available Agency resources. Thus, the Plan

discusses streetscape improvements and phasing of those improvements only for the section of Castro Valley Boulevard between Redwood Road and Lake Chabot Road where it will have the greatest near-term impact. The intent is that ultimately streetscape improvements will be provided along the entire length of the corridor. Ideally, the phasing of those improvements should

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be coincident with redevelopment activities along the street frontages in those areas.

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6.2 Recommended Implementation Actions Catalyst Site Development

Pursue recommended catalyst site development in concert with available opportunities, with initial efforts to focus on the Village District Catalyst site, building on the strength of Castro Valley’s strongest existing retail area. One of the Agency’s first steps will be to begin contacting property owners to provide information and education on the types of property development opportunities that exist within a redevelopment project area, exploring methods for property assemblage, and owner participation opportunities with parcels integral in larger scale development opportunities. Potential options will include: •

•

Entering into Owner Participation Agreements that will allow the Agency to partner with the property owner and develop a project jointly; Working with owners of eligible properties to educate them on opportunities to use taxdeferred exchanges to place catalyst sites in development while preserving their existing low tax basis;

•

Purchasing redevelopment sites by the Agency with its funds, for future resale or lease to retailers or developers through implementation of Disposition and Development Agreements.

There are also other types of technical assistance that the Agency can provide to facilitate land assembly and redevelopment in which it will not be an active player. An example includes assistance to owners in obtaining Brownfield remediation funds for sites with existing environmental contamination, and otherwise working with environmental regulatory agencies to achieve satisfactory remediation of sites. The Agency should work with the Planning Department and Castro Valley Municipal Advisory Committee (CAC) to “upzone” catalyst site properties to allow denser development, consistent with the provisions of this Plan. This can provide additional value that property owners can benefit from in future land sale or development. The Agency’s preferred approach is to work with willing owners on a voluntary basis, to the extent feasible. Use of governmental eminent domain powers is not preferred and would occur only as a last step if there are no other practicable arrangements. The Agency’s commitment to working

with existing property owners is important for generating broad-based community support for its revitalization activities. Provide Support to Existing Businesses

The Agency’s existing Facade Improvement Program should be expanded, with particular emphasis on buildings within and adjacent to the strategic catalyst sites. This relatively low cost program can further enhance improvements to the appearance of Castro Valley Boulevard that will occur within the catalyst sites and as a result of streetscape and other public improvements. Other potential actions that could be explored by the Agency would be support for additional marketing and promotion of Castro Valley retailers, as well as technical assistance on improved merchandising, that would complement the Chamber’s additional activities. The Agency should continue to promote and develop activities that encourage increased pedestrian activity within the downtown business area such as the Fall Festival and Farmers Market. The County should continue to enforce code enforcement and billboard removal programs to further enhance the visual appeal of the business district.

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The Agency should coordinate the economic development efforts outlined within the Strategic Plan with the broader efforts that are underway in the greater unincorporated area for development of a coordinated Economic Development Strategic Plan. Explore Methods for Retailer Attraction

The Agency should pursue strategies with retail consultants to further develop optimal retail mix and tenanting strategies for catalyst sites. The Agency should develop marketing materials describing the community’s demographics and redevelopment opportunities, providing an overview of the area’s strengths and assets for future business and retailer attraction. The Agency could use its list of catalyst sites as well as property it has acquired and sites under its control to directly market Castro Valley to targeted retailers. The Agency’s ability to assist with securing appropriate sites and providing other assistance could help strengthen retailer interest. Another method would be for the Agency to market Castro Valley opportunities to retailers and developers through International Council of Shopping Centers (ICSC) meetings. ICSC is the leading trade group for the retail real estate in-

dustry, and many public agencies use its meetings as a forum to market their jurisdictions. Specific Plan Amendments

The County should undertake a comprehensive review of the Castro Valley Central Business District Specific Plan (1993) and make necessary amendments to bring the plan into consistency with this Redevelopment Strategic Plan. Areas of specific concern include land use designations, development objectives, design policies, circulation and parking policies, and street improvement standards.

and residential property owners to enhance trade, economic viability, and livability. Such districts would provide funding mechanisms that would allow businesses and property owners within a defined area to establish a special assessment district. Funds raised by the district via assessments and parking revenues could be used to support activities such as: • • •

Acquisition, construction or maintenance of parking facilities for the benefit of the area; Landscaping and decoration of public areas; Promotion of public events in public places in the area; Provision of maintenance and security of parking areas and common public areas; or Management, planning, and promotion of the area, including the promotion of retail trade activities in the area.

The County should review the current zoning along the Castro Valley Boulevard corridor to ensure that existing zoning will support and accommodate the development proposed by this Redevelopment Strategic Plan.

•

The County should explore development of commercial Design Guidelines.

Shared Parking Ordinance

Parking and Business Improvement District

The Agency should work with the local business community to explore the interest in and feasibility of setting up a Shared Parking and Business Improvement District to aid general economic development and neighborhood revitalization along Castro Valley Boulevard, and to facilitate cooperation among local merchants, businesses,

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•

The County should draft and adopt a Shared Parking Ordinance that supports the concept of shared surface parking lots through actions such as requiring commercial landowners to provide access easements to accommodate access to rearloaded parking areas, requiring the preparation of shared parking plans for multiple-parcel redevelopment projects, and establishing a parking district as a legal entity to deal with liability issues and parking management. As part of the shared

parking ordinance, the County should revise its parking standards to provide parking standard reductions for areas with shared parking.

Theater District, providing a link to the western retail sites, and the Library District providing the link to the east.

The Agency should pursue final design of gateway monument markers and identify key locations for initial installation.

The County’s initial efforts to establish a shared parking facility should begin within the Village Catalyst Site and focus on a solution for the properties located along the north side of Castro Valley Boulevard, within the block between Santa Maria and San Miguel.

The Agency should pursue pedestrian friendly circulation improvements along Castro Valley Boulevard by calming traffic through implementation of a four lane streetscape design with narrower travel lanes, bicycle lanes and on street parking that includes accommodations for an alternate two lane design if warranted in the future. In addition the streetscape will also include other amenities such as wider tree lined sidewalks, creating additional space along sidewalks that provide opportunity for retail activities to spill out into the public realm, new street furnishings and gateway markers. The streetscape first phase build-out should be located along Castro Valley Boulevard, adjacent to the Village District Catalyst Site between Redwood Road and San Miguel Avenue.

Pursue Future Phases

Develop Main Street Atmosphere

The Agency’s initial efforts to facilitate creation of a central sense of place in Castro Valley should be to concentrate on the development of a green space at the intersection of Willbeam and Castro Valley Boulevard within the Castro Village and pursue development of an adjacent site to accommodate additional community gathering facilities such as a large bookstore. The Agency should focus its economic redevelopment efforts to promote retail development that will provide a strong roster of day and evening dining, shopping and entertainment offerings. The circulation pattern should draw visitors along the boulevard through future development of other catalyst sites including the

The County should work with BART to pursue redevelopment of the BART station area into a high density, mixed use development that increases BART ridership and enhances the quality and character of the station area. Pursue Grant Funding Sources

Some of the costs for Plan implementation, particularly improvements that encourage pedestrian and bicycle usage, could be covered through grants from the Metropolitan Transportation Commission, through its transportation improvement funding programs. Other circulation and streetscape improvements may be funded through the recently enacted renewal of the federal TEA-21 transportation funding act.

The County should pursue implementation of other related circulation improvements in a timely fashion (i.e. creation of Norbridge as a 2 way bypass; improvements at Strobridge intersection; and a two lane pilot test for some portion of Castro Valley Boulevard between Redwood Road and Strobridge Avenue) to further enhance traffic calming efforts along Castro Valley Boulevard.

6 . I M P L E M E N TAT I O N • C A S T R O VA L L E Y R E D E V E L O P M E N T S T R AT E G I C P L A N

Wallace Roberts & Todd/ Solomon E.T.C. 1328 Mission Street, Fourth Floor San Francisco, CA 94610 415.575.4722 www.wrtdesign.com