RESILIENT EAST BAY 2050
IMPROVE • PREPARE University of Pennsylvania The 21st Century Resilient Waterfront Studio Hillary Austin Angela Eicholtz Christopher DiStasi Shayda Haghgoo Xue Jin Grace MacDonald James Onofrio Jared Patton Xi Wang Fall 2015
EAST BAY The cities of Oakland and Alameda form
Oakland’s residential neighborhoods
has largely been lost to industrial
the core of the East Bay subregion of the
into prime locations for workers who
development
San Francisco Bay Area. Combined, they
can’t afford (or can’t find) housing in
infrastructure.
have a population of over half a million.
San Francisco. Alameda, with much
development
Like the Bay Area as a whole, these
poorer connectivity, has remained a
natural ecosystems in a region where
cities
are
experiencing
and How
transportation can
reintroduce
future
important
significant
low-density, autodependent community
development happens at such a fast
development pressures. The ongoing
that is much wealthier and less diverse
pace? Can the waterfront help to
boom
cycle
for
technology-related
than its neighbors, and their desire to
alleviate the public health inequities
educated
maintain this identity has complicated
faced by different populations in the
workers from around the country
efforts to redevelop the former Alameda
area? How can the waterfront best be
and world to high-wage jobs, and
Naval Air Station, a 900-acre site on the
a boon to the local economy without
as housing production has failed to
western end of Alameda Island.
being overly privatized? How the region
cope with this influx, rents and home
This studio investigates the interaction
addresses these questions will be vital to
prices have skyrocketed. The short
between physical development and
the continued health and growth of the
commute to San Francisco has turned
natural systems. The East Bay waterfront
Bay Area.
industries
2
has
attracted
01
02
EXECUTIVE SUMMARY
EXISTING CONDITIONS 2.1 2.2 2.3 2.4 2.5
Bay Area Context Oakland Alameda East Bay Transportation Environment
03
04
THE PLAN
IMPLEMENTATION & METRICS
3.1 Vision + Goals 3.2 Framework Plans 3.3 Site Plans
4.1 Implementation 4.2 Metrics
3
ACKNOWLEDGEMENTS & AUTHORS
Kate Daniel Program Coordinator, The City and Regional Planning Department, University of Pennsylvania Garlen Capita Senior Associate, Urban Designer, Wallace, Roberts and Todd
SPECIAL THANKS City of Oakland Ed Manasse Strategic Planning Manager Rachel Flynn Director of Planning and Building
Port of Oakland Richard Sinkoff Director of Environmental Programs and Planning
City of Alameda/Alameda Point Lev Kushner Alameda Point Project Manager
SF Municipal Transportation Agency Peter Albert Urban Planning Initiatives Manager
EAST BAY PLANNING STUDIO Hillary Austin Christopher Distasi Angela Marie Eicholtz Shayda Haghgoo Xue Jin Grace Linden Macdonald James Onofrio Jared Patton Xi Wang
4
WRT San Francisco Office Jim Stickley Principal Jillian Nameth Landscape Designer John Gibbs Landscape Architect, Senior Associate
AECOM San Francisco Office Amruta Sudhalkar Sustainability Planner/Project Manager Claire Bonham-Carter Sustainability Principal Luiz Barata Senior Associate Urban Designer Patricia Fonseca Senior Associate Landscape Designer
EXECUTIVE SUMMARY OAKLAND + ALAMEDA, CALIFORNIA
1.1 EXECUTIVE SUMMARY
5
EXECUTIVE SUMMARY The San Francisco Bay Area is a dynamic metropolitan region comprised of three major population centers, nine counties, and just over 7.5 million people. During the next 35 years the region is expected to grow by over two million people, reaching an estimated population of 9.8 million. This
tremendous
growth
is
driven
primarily by migration, as new residents are attracted to the Bay by its agreeable climate,
abundant
wildlife,
unique
arts scene, and surging economy. The technology sector is responsible for much of the Bay’s economic growth during the last thirty years, and is projected to remain the dominant industry as new and larger companies begin to spread north from the traditional tech hub in Silicon Valley. Jobs associated with this industry
Figure 1.1: Oakland - Jack London Square
tend to be clustered at the high and low end of the wage spectrum, which has resulted in a growing economic divide between local residents. This divide is compounded by a growing housing shortage that is affecting all parts of the Bay. Currently, just 44% of new housing construction quotas (set by the Association of Bay Area Governments) are being met each year, resulting in rent burden at nearly every income level. As rents increase, residents are often forced to relocate further from the urban center, resulting in longer commutes and increased congestion. Already, key transit connections are reaching capacity at peak hours, and by 2050, congestion is expected to be the norm. All of these factors add up to a tremendous amount of development pressure, which can be a good thing. This pressure can be used to redeveloped underutilized spaces in a way that improves the quality of life for both current and future residents. 6
Figure 1.2: Alameda - City Hall
SUMMARY There is no place that better demonstrates this potential than the Alameda-Oakland waterfront. Today, this valuable stretch of land is dominated by out-of-date uses, including a navy base that has been vacant for twenty years and an auto-oriented stadium complex that is losing at least one, and possibly all three of its teams. To the north, the sprawling Port of Oakland occupies nearly the entire waterfront, but is expected to downsize during the coming years. Howard Terminal, located adjacent to West Oakland and Jack London Square, was once an important piece of port infrastructure, but is now too small to service modern container ships, and is instead used exclusively for truck and container storage. All of this development potential has attracted the attention of developers, and caused quite a bit of anxiety among Figure 1.3: Oakland - The Port of Oakland
local residents. In May of 2015 antigentrification protestors interrupted an Oakland City Council meeting to raise attention to the effect that high-end redevelopment was having on the city’s historically minority neighborhoods. A resilient development strategy for the Alameda- Oakland waterfront must recognize the importance of preserving local communities while improving the quality of life for residents throughout the Bay. To address complex issues such as sea level rise, drought, housing affordability, and traffic congestion, local governments will need to make large-scale investments to redevelop infrastructure and rework development
patterns.
To
be
truly
resilient, the Oakland-Alameda waterfront must take advantage of these changes to create a better, stronger community for its residents. Is not enough to merely Figure 1.4: Alameda - Alameda Point
bounce back from disaster, to truly thrive, the waterfront needs to bounce back better than it was before.
7
EXISTING CONDITIONS OAKLAND + ALAMEDA, CALIFORNIA
2.1 BAY AREA CONTEXT 2.2 OAKLAND 2.3 ALAMEDA 2.4 EAST BAY TRANSPORTATION 2.5 ENVIRONMENT 8
INTRODUCTION Since before California became part of
become more attractive for use as
the U.S., the Bay Area has been an iconic
residential, commercial and recreational
and fast-growing region and popular
space.
destination. People are attracted to this
development along the Oakland Estuary
region because of its weather, economic
depends on consideration of its role in a
and social opportunity, and beautiful
larger geographic context. This existing
landscape. Built around one of the world’s
conditions report will provide an overview
great natural harbors, the Bay Area and
of the Bay Area, focusing on Alameda and
its waterfronts are inseparable, from the
Oakland’s drivers of economic success
steamboat ferries dominating the water
and considering its issues regarding
in the 19th century to the legendary
housing
images of the Golden Gate Bridge and
environmental conditions and regional
Alcatraz Island. In the last 50 years, a
cooperation in order to develop a
regional emphasis on technology has
successful and resilient waterfront along
diminished the industrial importance
the Oakland Estuary.
of the waterfront, however, the Port of
This section will begin looking at regional
Oakland remains a major economic driver
geographic and economic context, then
and physical presence in the East Bay.
look at the cities of Oakland and Alameda
As the region’s population continues to
more
grow and available land becomes scarcer
transportation
and scarcer, formerly industrial and
systems will be presented.
A
successful
affordability,
closely.
Finally, and
waterfront
transportation,
the
regional
environmental
low-density lands along the waterfront 9
2.1 BAY AREA CONTEXT A DYNAMIC AND GROWING REGION Geographic Context Sonoma
Napa
LI
in the state of California and is made up
CA
The 7,000 square mile Bay Area is located
FO
of nine counties: Alameda, Contra Costa,
RN
Marin, Napa, San Francisco, San Mateo,
PACIFIC
and Oakland are located in Alameda
OCEAN
County, which is in the East Bay sub-
Solano Marin
region of the Bay Area.
Contra Costa
The population of the Bay Area in 2015 is estimated to be around 7.7 million. It is projected to increase by nine percent over
San Francisco Alameda
the next ten years (Figure 2.2), and reach 9.3 million people by 2035. In the last few years, Alameda County’s population has been increasing at an even rate faster than the Bay Area region as a whole.1
Figure 2.1: Bay Area Extent (Top) Figure 2.2: Population Projection for Bay Area by 2015 (Bottom)
10
San Mateo
Santa Clara
IA
Santa Clara, Solano and Sonoma. Alameda
Percent of Income Spent on Housing Oakland
Alameda
Association of Bay Area Govenments (ABAG) Regional Housing Requirements
The Association of Bay Area Governments (ABAG) sets regional housing requirements for the nine county region. As the region’s Council of Governemnts, ABAG receives the authority to set housing quotas from the California Sustainable Communities and Climate Protection Act (SB
Figure 2.3: Housing Burden in Bay Area
375 - 2008).
ABAG incentivizes governments
to adopt its housing quotas with the One Bay Area Grant Program (OBAG), which links federal transportation funds from the Metropolitan Transportation Commission (MTC). Today, every Bay Area community has adopted the ABAG quotas, but no community has suceeded in meeting its responsibilities.
Figure 2.4: Comparison of Population Growth between Alameda County and Bay Area, 2010-2014
Housing and Economy
Housing Stock
Housing affordability is one of the most
On a regional scale, Oakland and Alameda
controversial and serious issues the
are both relatively affordable compared
region faces. Figure 2.3 shows that almost
to surrounding Bay Area cities. Both cities
half of renters pay over thirty percent of
are dominated by single-family detached
their income on rent.Figure 3.32 In the last
dwellings. The median sales price for a
four years Alameda County’s population
2-bedroom home is $510,250 in Oakland
has been increasing at a faster rate than
and $676,000 in Alameda. In comparison,
the entire Bay Area region as a whole
the average price of the same home in San
(Figure 2.4), and region-wide, the housing
Francisco lists at $1,225,000.
industry has been unable to keep up with
Despite having relative affordability for the
new demand. In Oakland and Alameda,
region, both cities have high rent burdens.
residential neighborhoods are made up
In Oakland the average household pays
primarily of single-family bungalows at a
32.7% of their income on housing costs
medium density, with much of the housing
and the rent burden in Alameda trails
stock built prior to 1950. Unlike Alameda,
behind at 28.2%. This housing burden is
Oakland also has a large stock of high-
most pronounced for renters in Oakland.
rise and smaller multi-unit apartment
A household making Oakland’s median
buildings in the downtown.
income for renter households would need to spend 73 percent of their income to pay 11
Oakland’s current median rent listing of
institutions that include UC Berkeley and
of which waterfront development can take
$2,076.
Biosciences Institute, located in Berkeley,
advantage, it is also important to consider
The increase in population and housing
and the Joint BioEnergy Institute located
that the county’s biggest employment
demand in the Bay Area place pressure to
in Emeryville.
sectors are related to service industries,
increase rents. In April 2014, median rents
Another economic driver that sets this
which include retail, accommodation and
in both Oakland and Alameda were 24
area apart from the other Bay Area
food services.5
percent higher than the monthly average
counties is the freight industry. The Port
The spatial distribution of jobs is also
over the previous four years. Sales prices
of Oakland (Figure 2.7) is one of three
worth noting, especially in a region where
have appreciated even faster over the last
“megaports” in California. With only 20
rent pressure forces many employees to
4 years at 44% in Alameda and 98.8% in
berths, it handles much lower container
live far from their workplaces. BART rail
Oakland, bringing both cities well above
volumes than Los Angeles and Long
lines are a popular and accessible way
pre-recession levels. To add the stress of
Beach, which have a combined total of 350
to commute for hundreds of thousands
the residential market, Oakland permitted
berths, yet it contributes greater exports
of residents, but there are still millions
fewer low, moderate, and above moderate
(Port of Oakland 2015).
The Oakland
more who are forced to commute by car
housing units than the regional average.
International Airport (Figure 2.8) is the
The lack of available housing stock creates
second busiest airport in the Bay, but it
a scarcity effect and raises housing prices
handles a significant amount of freight
further.
cargo. With respect to economic drivers
3
4
or carpool.
Employment and Economic Drivers The number of jobs in the Bay is projected to grow as well. Figure 2.5 shows that the number of jobs and employed residents has increased from 2010 and should continue to do so over the next thirty years. It also shows that there are and will be a greater number of jobs than employed residents. Despite the surplus of jobs the region has an unemployment rate of 6.2%, near the current national rate. It is unclear whether the cause of unemployment is cyclical, frictional, or structural. One of the biggest economic drivers of the Bay Area, home to Silicon Valley is innovation, particularly relating to the
Figure 2.5: Job and Employment Growth, 2010-2040
professional, scientific, and technical services
and
information
industries.
Figure 2.6 shows the highest employment sectors for Alameda County. With a low representation of the professional, scientific, and technical services category, development along the waterfront can capture the innovative spirit of the Bay Area and carve a niche for itself in the emerging tech industries related to biotech, life sciences, and clean technology by taking advantage of the proximal dense clusters of nationally and internationally recognized research Figure 2.6: Employment Sector Concentration Comparison 12
BAY AREA CONTEXT
Regional Cooperation Regional planning in the San Francisco Bay
is
currently
handled
by
two
separate agencies; the Association of Bay Area Governments (ABAG) advises local governments on land use issues pertaining
to
affordable
housing,
resource management, and emergency preparedness, while The Metropolitan Transportation
Commission
(MTC)
serves as the region’s metropolitan planning
organization
(MPO)
Figure 2.7: Port of Oakland
and
directs investments in transportation infrastructure. Due to the interrelated nature of land use and transportation planning, these two organizations have a long history of working together to produce long-range plans and advise local governments, but there is growing concern that this arm’s-length cooperation is not enough. Despite the best efforts of these organizations, sprawl, congestion, and rent burden continue to increase, leading some to suggest a full merger of ABAG and MTC to form a new, regionallyelected government to connect land
Figure 2.8: The Oakland International Airport
use and transportation planning in a more meaningful way. Were such
overview of a complex and fast-changing
section will cover the specific context,
an organization to be created, direct
region, attempting to highlight the major
strengths and challenges of the two focus
elections would empower it to pass
issues that form the backdrop of this
cities, Oakland and Alameda.
binding legislation to address the region’s
“resilient waterfront cities” plan. The next
housing crisis, while encouraging better coordination between transportation and land use. In October of 2015 the two agencies announced that they were investigating the feasibility of a merger, though details of what this would look like are not yet available. Nevertheless, the announcement has attracted the attention of local planners, policy makers, and community leaders who are excited to see a more functional Bay Area. The preceding pages offered a very brief 13
2.2 OAKLAND Rooted in industry, Oakland is quickly changing to accomodate growing employment sectors like specialized tech, mobile and web app development, and health care.
In 2013 the American Community Survey
years, Oakland will take the largest share
targeted by Oakland’s 1998 General Plan to
reported that the population of Oakland,
of population growth in Alameda County,
“grow and change”– is an important asset
California, had reached 401,000 people,
putting it at nearly 517,000 residents by
for the city to address these challenges.
just shy of the city’s peak population
2030.6 This growth will present the city
in 1945 – 405,000 – from which it fell
with significant land use challenges of the
precipitously in the post-war years.
sort the city has not seen for more than
Projections anticipate that in the coming
half a century. The Oakland waterfront –
14
OAKLAND Transit Authority (BART) formed in this period, bringing rapid transit to Oakland by the mid-1960s. Growth and Planning By the 1990s, the city’s tune had changed. Oakland
was
experiencing
growth,
primarily in its Hispanic community; though also increasingly among Asians and white residents (Figure 2.10). In response
Figure 2.9: Major Public Works Improvements Including City Hall (left) and parks on Lake Meritt (right) | Source: California Images (Blogspot) & AlamedaInfo
Development History in Five Eras
was characterized by major growth in the
Gold and Steam
port for work. Bordering the waterfront,
First, the California gold rush precipitated
the West Oakland neighborhood – where
its first period of major growth. Rapid
black residents were mostly segregated
industrialization
the
– saw its population grow to five times
waterfront, which became the land
its size prior to the war.9 In 1945, the
terminus of the first Transcontinental
population of Oakland reached its peak:
Railroad. Streetcars were common across
about 405,000 residents called the city
the early city.
home.10 In 1946 a General Motors holding
Quake and Fire
company gained majority control of the
centered
city’s black community, as workers from across the country came to Oakland’s
on
The second era in Oakland began with rubble and flame: the San Francisco
city’s streetcar system and proceeded to dismantle it, replacing the routes with
Oakland
undertook
a
planning
process
with
new
general
progressive,
practical goals. These include increased support for local industry, especially related to the seaport and airport areas; multi-modal transportation and transitoriented development; higher density residential and commercial development downtown; stronger connections to the waterfront, including increased open space and mixed-use development; and mixed-use neighborhood districts that allow for clean industry.Figure 3.49 In the following years, the city released additional plans that explicitly expand upon the directives set out in the 1998 General Plan. These addressed issues including historic
preservation
(1998),
housing
(1999 and 2010), waterfront policy (1999),
earthquake and fire of 1906 drove
buses.Figure 3.50
thousands of new residents into Oakland.
Disinvestment and “Renewal”
(2002 and 2007, respectively), disaster
Moreover, the city annexed land in 1909
The post-war period was characterized
recovery (2009), and energy and climate
that roughly doubled its size. From 1900
by disinvestment and population decline
(2012), among others. In addition, the
to 1910, Oakland grew from just 67,000
in countless American cities, and Oakland
city released area-specific plans that go
residents to 150,000. One consequence
was no different. Throughout the late 1950s
deeper into specific projects. Those that
was major overcrowding in the city’s
and 1960s, the city bled manufacturing
primarily address the waterfront include
bicycle and pedestrian transportation
The booming
jobs and residents – especially white
the Waterfront Trail Plan (2001) and the
population paved the way for major
residents – while Alameda County saw
Central Estuary Plan (2013). Others include
public works improvements, including
simultaneous increases.
parks around Lake Merritt and the city’s
renewal” efforts led to the decimation of
Community Transportation Plan (2010),
Beaux-Arts City Hall, as well as several
much of West Oakland, as freeways were
the
early skyscrapers that still stand today.
plowed through historic neighborhoods
Oriented Development Plan (2011), the
After litigation, the city gained control of
and countless blocks were demolished
Broadway Valdez District Specific Plan
its waterfront from railroad interests.
for new housing. The freeways also cut
(2014), the Lake Meritt BART Station Area
Wartime Shuffle
off waterfront access along much of
Plan (2014), the West Oakland Specific
Oakland’s coastal areas. The Bay Area
Plan (2014), and the Coliseum Area Plan
segregated Chinatown.
7,8
World War II set off the next era, which
Figure 3.39
“Urban
the
Harrison
Street/Oakland
International
Boulevard
Avenue Transit-
15
a much less traditional makeup of households. Just a third of households are married-couple families, while 15 percent are headed by single mothers and 6 percent by single fathers. The remaining households, nearly half the city, are nonrelatives or single householders living alone. Oakland’s population is severely undereducated compared to national and local averages, and there is a wide disparity across the city. One in five residents
Figure 2.10: Fruitvale Village Transit-Oriented Development
did not complete high school, but 10
(2015). The last two of these address the
not a majority. The city’s Black residents
waterfront insofar as these areas abut
number over 100,000, about a quarter
Oakland’s estuary (Figure 2.11).
of the population. There is also a large presence of Asian residents both native
Demographics
percent hold a masters degree. Incoming residents are often (but not always) more educated,
attracted
by
employment
sectors demanding educated workers.
and foreign. A quarter of Oakland residents
Oakland, like California’s other large cities, is a diverse place with different ethnic groups represented in large numbers. Whites are the largest demographic, but at 40 percent of the population are
are Latino. While the citywide population is quite diverse, the city struggles with segregation and equal access to resources and amenities. Compared to Alameda, Oakland has
Figure 2.11: Historic Timeline of Oakland
1900 16
Gold and Steam
1950 Quake and Fire
Wartime Shuffle
2000 Disinvestment and “Renewal” Growth and Planning
OAKLAND
Employment + Trends
proximity to the Central Valley gives it a
The economy of Oakland is a reflection
direct line to these goods. Oakland Airport
of the city’s position within the region
services
and its historic focus on shipping and
flights. In 2014, it was the second busiest
related industries. The city has been
airport in the Bay Area behind San
simultaneously
Francisco Airport.
a
large,
independent
domestic
and
international
urban center of the East Bay region
While the transportation sector has a
and a satellite of its alpha world city
long history dedicated to Oakland, there
neighbor San Francisco. While Oakland is
are emerging industries transforming the
a major employment center and home to
area. Health Care and Social Assistance
corporate headquarters, a large portion
is the second largest employment sector.
of its workforce commutes daily to San
In addition, the Professional, Scientific,
Francisco and other cities around the Bay.
and Technical Services sector is seeing
This subsection focuses on the current
rapid growth in Oakland. Oakland’s more
and future city economy as well as the
affordable climate serves as a refuge for
housing market
companies in these sectors.
Oakland’s median household income
is seeing small tech start ups and non-
is below the state’s average at $49,721.
profits relocate to the area. These small
The median income has been increasing
companies
since the 1960s but not evenly throughout
people make up a majority of Oakland’s
the city. The high income areas, such as
workforce.
Jack London Square, saw substantial
Oakland’s economy is also defined by its
growth after the redevelopment of
proximity to San Francisco, where part of
former warehouses which cater to young
its labor force is employed. As more new
professionals. Median household income
arrivals to the San Francisco workforce
in Jack London Square skyrocketed
are unable to afford the city’s astronomical
from less than $10,000 a year in 1960 to
rents and seek housing in Oakland, the
over $100,000 in 2010. In contrast, the
cross-Bay connections that get them back
lower income areas nestle around the
and forth become increasingly vital to the
Port of Oakland where there has been
region’s functionality. These connections,
little investment. As a result, the median
as well as rails and freeways running up
Figure 2.14: Coliseum District Houses Oakland’s Professional Sports
household
Oakland’s
and down the East Bay, are also major
restaurants to the east.
waterfront ranges from $39,000 to over
determinants of the form and structure of
Waterfront access is lacking along much
$100,000 depending on the neighborhood.
Oakland’s cityscape.
of Oakland’s waterfront (Figure 14). The
income
along
employing
Oakland
between
1-10
14
2010, it employed 9,849 people. Oakland’s economy owes its large employment sector to two major transportation centers: the Port of Oakland and the Oakland
Airport.
Framing
Oakland’s
waterfront on opposite ends, both serve the region to move exports to their intended destinations. The largest export for the Port of Oakland was non-durable goods comprising of fruits and nuts. Its
Figure 2.13: Oakland’s Main Hospital, Kaiser Permanente
Port and industrial uses are one reason
Oakland’s largest employment sector is transportation and warehousing. In
Figure 2.12: Entrance into Port of Oakland’s Jack London Square Development | Garlen Capita
Oakland Urban Design Analysis The core of Oakland is defined by the freeways that form a ring around the CBD, and Lake Merritt to the east of downtown. Along the waterfront there are a variety of uses, from the towering container stacks at the Port, to the redeveloped Jack London Square near the CBD, to cement and metal processing plants, lighter
for this, but there are also a number of
transportation-related
barriers
separating downtown and the residential areas from the waterfront. I-880, a fourlane expressway, varies between being elevated in the downtown and at-grade in most of the eastern part of the city. In addition, the rail right-of-ways for Amtrak and for BART are at grade in eastern parts of the city.
industry and even marinas and pier 17
Figure 2.15: URBAN DESIGN ANALYSIS OAKLAND WATERFRONT
AERIAL
OPEN SPACE
18
LAND USE
CIRCULATION
19
2.3 ALAMEDA The geographic center of the Bay Area, Alameda maintains a quaint, small town character due to its “island” isolation from the East Bay. Alameda has a unique history and context
globalized economy.
municipal matters than a common law
within the Bay Area region. While San
At the same time as the City of Alameda
city. Development in Alameda Point is
Francisco, Oakland, Santa Clara and other
preserved a suburban, family-centric
subject to the regulations of the charter
cities around the harbor have developed
character, the western third of the island
which gives the Planning Board the power
into diverse economic hubs with large
was home to Naval Air Station Alameda
to investigate and recommend plans for
workforces and mixed housing typologies,
Point for five decades until the base
future development and improvement
Alameda
successfully
realignment program in the 1990s. For
of the city and also stipulates that the
fought to keep their island city isolated
two decades, the city has grappled with
maximum density for any residential
from the rapid change and development
the site, struggling to balance locals’ anti-
development within the city “shall be
in the rest of the region. Small bungalows
development tendencies, the prime value
one housing unit per 2,000 square feet of
and Victorian houses, quaint Main Street
and location of the land, and the high cost
land” except for the housing authority’s
and lush streets and small parks give the
of remediating and redesigning a military
replacement of low cost housing units.15
city a character more in line with the
facility for civilian population and use.
Currently, Alameda is less racially diverse
small towns of Northern California than
Alameda is a charter city, which means
than the rest of the Bay Area, and about
the hustle and bustle of the Bay Area’s
that the city has more control over its
sixty-five percent of residents speak only
20
residents
have
ALAMEDA English in the home.16
Chinese, Japanese, Scandinavian, and
opened in 1940, and the airfield operated
Proposition 13, a ballot initiative that
German settlers. In 1853 one town was
continuously for fifty-six years.Figure
passed in 1978, is also important in
officially founded as Alameda, and by 1872
World War II doubled the population of
relation to Alameda and property taxes.
all three communities were incorporated
the city due to the naval base. The 1990s
Proposition 13 rolled back a house’s
under
was
Base Realignment and Closure Program
assessed value to that of 1976, and put a
originally a peninsula attached to the
slated the base for closure, and formal
cap on property tax rates to limit the
mainland near the present day Oakland
military operations ceased in 1995.
increase to two percent a year. The only
Airport, but between 1874 and 1902
Since the closure of the naval base,
way property taxes can significantly
industrial companies dug a channel to
the City of Alameda has struggled to
increase is if the property is sold, and the
expand shipping facilities for both Oakland
redevelop the land. The entire area was
house is reassessed at the current market
and Alameda. Rail and ferry service played
built on fill and much of the area was
rate value.17 This strains school funding,
a pivotal role in development because the
contaminated after military use. The city
but does not help to explain the anti-
city served as a connection between both
has been planning the redevelopment of
development feelings of many residents
transit modes.
Alameda Point since 2000. There are land
of Alameda. Some of the public schools in
Around World War I, shipping became an
constraints due to the Tidelands Trust,
Alameda are ranked highly, while others
important industry for the city. Resorts
soil and groundwater contamination,
are about average. Some of the high
along the coastline made Alameda a
sea level rise, transportation limitations,
schools meet college readiness standards,
popular destination for recreation and
historical preservation, and public trust
while others do not.
sporting events with many celebrities
requirements.Figure 3.64 As of 2015, 75 percent
visiting. These resorts closed when local
of the cleanup is finished, and it will be
train and ferry services ended due to
complete around 2019.22
18
City History Miwok Indians inhabited Alameda for 3,500 years until about 1820. In 1851 the area was purchased for $14,000 and three different
communities
were
created
consisting of Italian, Portuguese, Spanish,
one
charter.
19
Alameda
3.63
the increase of car use. In 1935 Alameda deeded the US Government 100 acres of land on the west end of the island and 929 acres of tideland for the Naval Air Station (Figure 2.16). The naval base Figure 2.16: The Naval Air Station Alameda, California, USA, 1946-1947 | Source: U.S. Naval Aviation News February 1947
21
Figure 2.16 -2.18: ALAMEDA EMPLOYERS
Demographics Alameda’s population is considerably less Black and Hispanic, better educated, and higher-earning than its neighbor. Only a few thousand African Americans live on this island of 75,000, while nearly a third of the population is Asian. Only 12 percent claim Latino ethnicity. Alameda’s population is less spatially segregated than Oakland’s, with White and Asian populations evenly mixed across the city and some slight concentrating of Black and Latino populations in the western end of Alameda Island. 30 percent of the population graduated
Figure 2.17: Alameda Point’s warehouses attract green energy employment sector.
college, with a third of those holding an advanced degree. Still, 9 percent of Alamedans did not graduate high school, about half of Oakland’s rate. In general, the population is older and made up more of stable “traditional” married-couple families, who make up 47 percent of households, with much lower prevalence of
single-parent
and
non-relative
households than in Oakland.23
Employment + Trends Alameda’s
economic
character
is
completely different from its neighbor,
Figure 2.18: Downtown Alameda provides local goods and services to its residents.
Oakland. The city’s economic engine is primarily its residents, who work highpaying jobs in Oakland, San Francisco and elsewhere, while paying property and income taxes in Alameda. Alameda’s largest employment sector is in professional services, employing over 4,000 people in 2013. In the next 20 years, Alameda County Economic Development department estimates this sector will grow by an additional 20,000 jobs countywide. While it is likely Alameda will absorb some of this growth, it will be important Figure 2.19: Alameda’s Neighborhoods with Its Unique Historic 2-Story Victorian Bungalows 22
ALAMEDA
median household income of $60,190. This
and will build an outpatient clinic on
wealth is not equally distributed. Income
some of the land, and the rest will remain
is heavily skewed to the right, with the
undeveloped.25 The current developer
highest concentration of households
is Alameda Point Partners. The city is
earning between $30,000 to $35,000 per
currently ready to develop Site A, a 68-
year. Geographically, the higher earners
acre mixed-use neighborhood.
are clustered on the east side of the city
The take away for further planning
and along Bay Farm Island.
measures on Alameda Point are to ensure sensitivity towards residents. Based on
Figure 2.20: “Big White” Officers Housing | Source: Alameda Point Info
Alameda Point Redevelopment
past actions and opinions, they do not
In 2001, Alameda selected Alameda Point
transit accessibility. Community input
want further development on the island,
Community Partners to develop the defunct Naval Air Station. This developer was a partnership between four different entities, whose proposal was estimated to cost $2 billion and take about fifteen years to complete. In July 2006, the city and the Navy agreed on a $108 million purchase deal. Shortly after, in September 2006 Alameda Point Community developers decided to withdraw from the project.24 In May 2007, the City of Alameda chose SunCal Companies as the new master developer. The plan was to develop 770 acres, and they entered an exclusive negotiating agreement
in
July.
The
developer
Figure 2.21: Environmental Cleanup at Seaplane Lagoon | Source: Alameda Point Info
began community input and developed
for the city to remain competitive among
due to the economy and other reasons
surrounding municipalities. While the professional services sector has been the largest employer in Alameda since the 1980s, the city has seen a recent growth in biotechnology and green energy. The East Bay region is known as a hub for renewable energy and Alameda is leading the effort. Today Alameda generates 80% of its energy use from renewable sources. In Alameda, the median household income of $75,212 is well above California’s
preliminary plans, but they were stalled that were unclear. In 2010 the city council voted unanimously to terminate the exclusive negotiating agreement and halt the proposal. One reason that contributed
which can hamper their already limited throughout the development process will help insure that the developer and their plans take the community’s best interest into consideration. The current plan, which limits the number of new homes but attracts jobs focuses on the existing community’s interests.26 Alameda can learn from San Diego’s waterfront development by building flood protection as the area is being developed. Alameda Point is completely fill and is located on low-lying land. With the inevitable effects of climate change, the city should strive to protect their future development from flooding. They should also look to San Diego’s interagency collaboration as a good model for development of Alameda Point. The new development plans require cooperation between the city and federal government agencies.
to the termination of this agreement was a city initiated ballot measure that defeated the project in 2010 by 85%. In 2013 the City of Alameda gained title to about 1,400 acres of land and water previously owned by the Navy. In 2014, the U.S. Department of Veterans Affairs gained title to about 625 acres of land
23
Figure 2.22: URBAN DESIGN ANALYSIS ALAMEDA POINT
FIGURE GROUND
OPEN SPACE
24
LAND USE
CIRCULATION
25
ALAMEDA POINT URBAN DESIGN ANALYSIS Ownership, Land Use and Zoning The federal government retains the western portion of Alameda Point up until Monarch Street, and maintains it as a nature reserve area. The north shoreline, the marina and coast on the south side and adjacent water, and a block-wide belt connecting the two waterfronts belong to the public trust, and are zoned as Open Space, Adaptive Reuse, Town Center, and Enterprise from north to south.
Figure 2.23: Existing View of Alameda Point and Its Waterfront | Xue Jin
Among other developable areas, most land is proposed to be mixed use, including the district for adaptive reuse from previous military and industrial legacies, the development of a town center that connects residential use to the waterfront, and an “enterprise zone.” The only purely residential area is in the northeast corner of Alameda Point, which is connected to the east and together forms the Main Street Neighborhood of the city’s proposal. Figure Ground and Open Space Network
Figure 2.24: Northwest Territories on Alameda Point with Port of Oakland in Background | Alameda Point Info
Suggested by the figure ground diagram, Alameda Point has an even lower building density than the rest of the city, following the
city
charter
density
restriction
mentioned earlier. At Alameda Point, the units are mainly 1-2 story detached homes with small building footprints of around 300 square feet. In contrast, in the mixed-use area the building footprints (and parcel size) tend to be relatively large (with a max of around 3500 square feet). Also, very few buildings exist in federal and state owned lands, and along the
Figure 2.25: Bay Trail at Alameda Point | Alameda Point Info
waterfront. The low density and sparse street
Alameda City Public Works Department
and active and pleasant streetscape in
network leaves a lot of area unbuilt. A
from Main Street. The rest of the open
Alameda Point, and waterfront could be a
massive amount of the land adjacent to
spaces are mainly either plazas or public
great opportunity for creating the green,
buildings is surface parking space, and
spaces for community activities (antique
lively atmosphere.
there are a few well-managed public open
faire, skate park, etc.) Despite the private
In addition, currently Bay Area trails exist
spaces available. Four of the five major
open spaces in the residential district,
along the east boundary of Alameda Point
ones are sports fields, and the other one
there is currently a lack of parks of various
on Main Street and south waterfront, and
is an “entry plaza” leading towards the
sizes (particularly small ones at nodes)
trail lines are proposed for almost the
26
ALAMEDA whole shoreline and two connections
Main Street and West Midway Avenue. As
north shoreline facing Oakland and the
inside the area.
for connection with outside of the island,
marina area around Seaplane Lagoon
Circulation and Connectivity
there is only a ferry terminal in Alameda
could become highlight of Alameda Point
Point, providing transit to Oakland and
and start point for developing public
San Francisco. No road, tunnel or bridge
attractions,
exists at this stage.
transportation.
the connection is more organic and
“Image of the City�
Alameda City, Alameda Point
efficient, matching the building fabric and
Given the above analysis, it is reasonable
There is likely to be a clash between
access needs for residents. In the federally
to say that Alameda Point currently has
the design and feel of historic Alameda
and state reserved areas, limited access
rising activity from west to east. The west
and any successful proposal to develop
is available with not particularly well-
part is more passive and natural-oriented,
Alameda Point. Economic factors and
defined and efficient local roads. In the
while the east part houses community
the availability of transit connections
mixed-use district, a simple hierarchy of
activity and residential needs with higher
will greatly influence the design and
road system exists, yet local roads are not
connectivity. Edges are created by the
success of the site, but Alamedans have
linked up very well, causing some detours
natural boundary of the water and the
demonstrated their ability to stand in
when navigating.
manmade
ownership.
the way of developments they perceive
Three east-west roads connect the
Currently landmarks are mainly sports
as worsening the picturesque qualities
area with the rest of Alameda: West
facilities and successful adaptive-reuse
of their community. A primary objective
Midway Avenue-Willie Stargell Avenue,
examples (for winery, arts, etc.). Nodes
of this existing conditions analysis is to
West Atlantic Avenue-Ralph Appezzato
exist mainly along major access paths, bus
strike a balance between the needs and
Memorial Parkway, and Pacific Avenue.
route, ferry terminal, and public plazas.
desires of Alameda residents and those of
One bus route (31) is also available along
For waterfront potentials, the whole
the greater East Bay.
In terms of inner connection, the street network
has
distinct
characteristics
across districts. In the residential district
boundaries
of
commercial
nodes
and
Figure 2.26: Warehouses and ScareCo Haunted Attraction at Alameda Point | Xi Wang
27
2.4 EASY BAY TRANSPORTATION THE CENTER OF TRANSPORTATION IN THE BAY AREA Like other major metro areas, the Bay
RIDG BAY B
Area has abundant transportation options across many modes of travel. Like in New
E
WEST 880
TR
AY BART TUBE ANSB
OAKLAND
PORT OF OAKLAND
York, the great natural harbor is both an
0 980
DOWNTOWN Lake Merritt
economic boon and major impediment to JACK LONDON SQUARE
POINT
hard to achieve and form a major chokepoint
OAKLAND
EAST OAKLAND
ALAMEDA
infrastructure. Cross-Bay connections are
580
FRUITVALE
ALAMEDA
on both road and rail networks. In addition to a vast network of interstate and state highways, arterials and collector streets, the Bay’s high population density supports many options. Oakland International Airport connects 10 million people annually to and
San Francisco Bay
San Leandro Bay
from the Bay Area. In addition, rail transit
O.CO COLISEUM
BAY FARM ISLAND
serves as a major connector, with around 400,000 annual boardings and departures
OAKLAND AIRPORT
at Jack London Square Amtrak station, with the Sacramento-Oakland Capital Corridor accounting for 70 percent of this. The local rail network, Bay Area Rapid Transit (BART) is headquartered in Oakland. It serves the area with eight stops and connects to San
RIDG BAY B
Francisco, Berkeley, and surrounding East Bay suburbs. Alameda County (AC) Transit
E
WEST 880
TRANS
BAY BART TUBE
PORT OF OAKLAND
operates buses within Alameda County.
OAKLAND
0 980
DOWNTOWN Lake Merritt
Alameda City is served by AC Transit (including express bus service to and from San Francisco), BART shuttle service, and two
ALAMEDA POINT
580
OAKLAND
EAST OAKLAND JACK LONDON SQUARE
FRUITVALE
ALAMEDA Figure 2.27: Existing BART, Amtrak, and Ferry Network for Oakland-Alameda Figure 2.28: Projected Congestions at Peak Hours for 2040
San Francisco Bay
San Leandro Bay BAY FARM ISLAND OAKLAND AIRPORT
28
O.CO COLISEUM
TRANSPORTATION
Figure 2.29: Over Capacity of BART Commute at Peak Hour from Oakland to San Francisco | Shayda Haghgoo
Figure 2.30: Congestion When Commuting among Major Cities in Bay Area ferry systems. The strong population influx in
15% and 17% of workers used public transit
While congestion is a large concern for
recent years is having strong effects on traffic
while over 70% used personal cars to
the region (Figure 2.28 and Figure 2.30),
congestion. More than 70% of employees
make their commute.
The convergence
employees are increasingly working from
drive to work. With only a few connection
of three interstate systems plays a role
home. In 2000, 4% of Alameda’s work force
points to San Francisco, the bridge and
in
automobile-dominated
reported working from home—same as
tunnel connecting Oakland are seriously
commute patterns. While transportation
the national average. In 2013 however,
burdened at peak hours. Similarly, Alameda’s
patterns look similar between Alameda
over 10% of the work force reported
dependence on automobiles creates a
and Oakland, the cost of commuting
working from home. If 15% of employees
burden on its connections to the mainland,
is almost double in Alameda where
worked from home in 2030, this would
primarily in the two tunnels connecting the
residence have to pay additional tolls
take an additional 1,000 people off the
western portion of the island with Downtown
and BART fares. In Oakland, there is also
congested roadways at rush hour.
Oakland.
a higher prevalence of households who
In 2013, the commute patterns of Alameda
are transit dependent due to lack of car
and Oakland were very similar. Between
ownership.
Oakland’s
29
2.5 ENVIRONMENT Overview
recognized
have recognized the importance of
Environmental systems and change form
that during the coming years cities
confronting these issues head on, and
the underlying context of development
such as
Oakland and Alameda will be
have committed themselves to significant
in the Bay Area, and is far too neglected
confronted with serious and far-reaching
reductions in green house gas (GHG)
in
environmental
emissions.
the
popular
For
conversation
that
decades
we
and
have
climate-related
Specifically,
Oakland
will
focuses primarily on rents, jobs and
challenges. Many of these challenges,
reduce its government-generated GHG
transportation. From the construction of
such as water quality and habitat loss,
emissions by 36% of 2005 levels by 2020,
massive aqueducts to fuel the region with
may be mitigated through urban design
while Alameda will reduce their emissions
water drawn from the east to ambitious
and smarter development standards,
by 25%.
plans to create wetlands along the Bay’s
while others, such as sea level rise and
By
southern shore, development in this
increasing droughts, are to greater or
proactive,
area has often meant overcoming and
lesser extents unavoidable, and will
Oakland and Alameda plan to not only
controlling the constraining aspects of
instead
adaptation-based
reduce the human impacts of climate
the natural environment.
approach. Both Oakland and Alameda
change, but also create a more healthier,
require
an
approaching
these
community-based
more resilient region. 30
issues
in
a
way,
ENVIRONMENT 880
TRANS
Sea Level Rise
PORT OF OAKLAND
Sea level rise is perhaps the single greatest threat that climate change poses
OAKLAND
ALAMEDA
to the East Bay area (Figure 2.31). Together,
0 980
WEST
BAY BART TUBE
POINT
the cities of Oakland and Alameda have
DOWNTOWN Lake Merritt
580
OAKLAND
EAST OAKLAND JACK LONDON SQUARE
FRUITVALE
ALAMEDA
approximately 25 miles of coastline, almost all of which has seen industrial, commercial, or residential development of some kind. This close relationship between the region’s residents, economy, and the bay itself is both a strength and
San Francisco Bay
San Leandro Bay
O.CO COLISEUM
BAY FARM
a potential challenge, as rising water
ISLAND
levels will likely threaten key regional OAKLAND AIRPORT
infrastructure during the coming years. Finding a win-win solution that both protect the region from increasingly powerful storm surges and floods, while simultaneously
increasing
Figure 2.31: Oakland-Alameda Sea Level Rise Scenarios (1 to 6 Feets)
parkland,
habitat, and regional connectivity must be a key feature in any development strategy. Oakland The Oakland International Airport is likely the most vulnerable piece of infrastructure in the Bay Area. Much of the airport was built using artificial fill, and the entire facility would be submerged by just one foot of sea level rise. The site is even more vulnerable when storm surges and localized flooding are taken into consideration. The airport is located directly between two golf courses, which represent a potential asset for creating a green infrastructure-based stormwater management plan to better protect the airport and Bay Farm Island area.
Figure 2.32: Oakland Lake Merritt Makeover to Enhance Transit and Environmental Quality | MTC
Additionally, the city’s port is inherently
Alameda
vulnerable to sea level rise, which will
Alameda
the
recommends that any development on
require significant resiliency planning
westernmost end of the island, is at
this site adopts a hybrid approach to
during the years to come. The city itself,
significant risk for flooding resulting
stormwater management that includes
on the other hand, is fairly well protected
from sea level rise and storm surges.
the construction of seawalls and levies,
from the ocean by a buffer of industry,
Much of this area was originally a military
the addition of more fill to raise the
highways, and parks, meaning that
airport built on artificial fill, resulting
area’s elevation, and the establishment of
Oakland residents themselves are unlikely
in a low-lying area with significant
wetland buffers between new buildings
to be displaced by modest amounts of sea
drainage problems. The City of Alameda’s
and the coast.
current Master Infrastructure Plan (MIP) Point,
located
at
level rise (1-6 feet). 31
a number of programs to help water
Drought and Water Conservation
customers reduce their usage. Specifically,
The East Bay Municipal Utility District
showerheads and faucet aerators, free of
the utility provides a number of water-
(EBMUD) is responsible for overseeing water supply in the Oakland-Alameda region. On April 14, 2015 EBMUD declared a Stage 4 Critical Drought, calling for a mandatory 20% reduction in current water use and adding a 25% temporary surcharge
for
excessive
use.
These
measures were created in response to the state’s historic drought, as local reservoirs have dropped to just 46% of capacity. Current precipitation levels for the East Bay area are just 62% of normal, meaning that conditions are unlikely to improve in the near future. To help address this problem in both the short and long-term, EBMUD has created
conserving devices, such as low-flow charge, and also serves a clearinghouse for information on conservation strategies ranging from rain barrels and greywater systems to low-impact landscaping and rain gardens. Additionally, the State of California provides a number of grants, tax rebates, and subsidies for projects related to water conservation. Currently, most of water conservation efforts in the Bay Area focus on urban consumers, rather than the farmers who use most of the region’s surface and ground water. If conditions do not improve, it may become necessary to reduce the water rights of local farmers, which would likely have a serious impact on the regional economy.
880
TR
0 980
WEST
AY BART TUBE ANSB
PORT OF OAKLAND
ALAMEDA POINT
OAKLAND
DOWNTOWN Lake Merritt
580
Water Quality Water quality is an inherently regional issue, and as such, it cannot be addressed by Oakland or Alameda alone (Figure 2.33). Currently, the single biggest threat to the San Francisco Bay’s water is the combined sewer system in the city of San Francisco. Because this system carries stormwater and sewage in a single pipe, the system often becomes overwhelmed during heavy rain, causing raw sewage to be released into the region’s waterways. Other threats to water quality in the San Francisco bay include industrial waste, agricultural runoff, and general litter.
Local Flooding Despite
current
drought
OAKLAND
EAST OAKLAND JACK LONDON SQUARE
FRUITVALE
ALAMEDA Figure 2.33: Groundwater Threat
San Francisco Bay
San Leandro Bay BAY FARM ISLAND OAKLAND AIRPORT
32
conditions,
localized flooding resulting from heavy
O.CO COLISEUM
ENVIRONMENT 880
rains and storm surges is still a major
TRANS
cause for concern. When flooding occurs
PORT OF OAKLAND
in the East Bay, excessive stormwater can overwhelm the system, causing it to
OAKLAND
DOWNTOWN Lake Merritt
580
OAKLAND
EAST OAKLAND
ALAMEDA
back up and overflow in the areas with
0 980
WEST
BAY BART TUBE
JACK LONDON SQUARE
POINT
the lowest elevation. These areas are
FRUITVALE
ALAMEDA
often the poorest in the city, and when they overflow, local residents are exposed to toxic waste, dangerous, fast moving water, and severe property damage. To reduce both the frequency and intensity of these floods, EBMUD spends more than
San Francisco Bay
San Leandro Bay
O.CO COLISEUM
BAY FARM
$200 million every year to expand sewer
ISLAND
capacity through green infrastructure OAKLAND AIRPORT
projects and new and improved pipes and pumping stations.
Earthquakes The East Bay area is situated directly
Figure 2.34: Oakland-Alameda Flood Plain and Landslide Zones 880
TRANS
PORT OF OAKLAND
above the Hayward Fault, meaning that
0 980
WEST
BAY BART TUBE
OAKLAND
DOWNTOWN Lake Merritt
580
OAKLAND
a large, 7.0-magnitude earthquake will likely take place in the near future.
ALAMEDA
According to the City of Oakland, three
POINT
out of every four homes in the city were
EAST OAKLAND JACK LONDON SQUARE
FRUITVALE
ALAMEDA
constructed before 1950 when building codes were updated to better protect against earthquakes. Because of this, if a powerful earthquake were to hit today, the East Bay region would experience a
San Francisco Bay
disproportionate number of injuries and
San Leandro Bay
O.CO COLISEUM
BAY FARM
deaths caused by partial or complete
ISLAND
building collapse. Today’s building codes
OAKLAND AIRPORT
mandate the inclusion of foundation clamps, chimney braces, and other safety measures that would reduce the impact of such an earthquake, but apply only to new
Figure 2.35: Oakland-Alameda Liquefaction Susceptibility
buildings and/or those undergoing major renovations.
runway, but also isolate the region from
Bay Area airports, such as Oakland
disaster-relief shipments. The Alameda
International, are particularly vulnerable
Point and Bay Farm Island regions of
to the effects of earthquakes due to their
Alameda, which were also built on fill, are
expansive paved areas built largely on fill.
similarly vulnerable to liquefaction.
Specifically, these runways are susceptible to liquefaction during a major earthquake event, which would not only destroy the
33
HOME FOR ENDANGERED SPECIES
Figure 2.36: Tern Watch Program at Alameda Point | Alameda Point Environmental Report
Heat and Air Quality
Figure 2.37: California Least Tern and Chick at Alameda Point | Photo by Eleanor Bricetti
880
During the coming years, climate change
TRANS
PORT OF OAKLAND
is expected to cause an increase in the frequency and intensity of heat waves in the San Francisco Bay area, leading to
ALAMEDA POINT
both an increase in heat-related illness
0 980
WEST
BAY BART TUBE
OAKLAND
DOWNTOWN Lake Merritt
OAKLAND
580
EAST OAKLAND JACK LONDON SQUARE
FRUITVALE
ALAMEDA
and deaths and a decrease in the region’s air quality (Figure 2.38). To address these issues, Alameda and Oakland will need to increase green space and tree cover to reduce the heat island effect, while also discouraging private automobile
San Francisco Bay
San Leandro Bay BAY FARM
use, which contributes to smog and air
ISLAND
pollution.
OAKLAND AIRPORT
Endangered Species Shortly after its closure, the former military base at Alameda Point was declared a wildlife refuge, and today, the area is home to a colony of endangered California least terns (Figure 2.37). These migratory
birds
traditionally
inhabit
open, rocky beaches where they nest among the rocks, scavenging for fish and insects living in the sand. Absent this environment, least terns in the Bay Area 34
O.CO COLISEUM
Figure 2.38: Oakland-Alameda Asthma-Related Emergency Room Visits Per 10,000 Residents have taken to the open, rocky terrain of
destroy the habitat that they help to
Alameda Point’s abandoned runways.
preserve (Figure 2.36). Furthermore, these
A small group of volunteers from the
birds are protected by the Endangered
Audubon Society work to protect this
Species
colony from natural predators such as the
proposal will need to preserve or expand
burrowing owl, and are actively opposed
the island’s least tern habitat.
to any development plan that would
Act,
and
any
development
ENVIRONMENT
Figure 2.39: Oakland Wetland | Alameda Point VA Blogsport
Public Health
In
many
cities
rapid
hazardous waste, diesel emissions and
It is common for the discourse on climate
industrialization and factory production,
other types of pollution. Health inequities
change and the environment to focus on
the worst environmental hazards in the
are pervasive and deeply rooted in the
destruction: loss of property and life, the
East Bay are bordered by low-income,
East Bay.
cost of rebuilding, and the uncertainty
minority (primarily Black) populations.
of planning for a unpredictable future.
The
These problems are serious and worthy
Department
of in-depth consideration, but the human
health report regularly that highlight
element of environmental burdens should
the drastic differences in health status
not be overlooked. Environmental justice
across races. Blacks suffer from chronic
concerns have been more in vogue in
conditions and diseases correlated to
recent years, but the extreme disparities
diet, lifestyle and exposure to pollutants
in health outcomes based on race, income
at rates two to three times or higher
and geographic location here make it
than Whites. City neighborhoods with
worthy of special consideration.
high Black populations have the highest
Alameda
built
County releases
concentrations
of
by
Public a
sites
Health
community
generating 35
THE PLAN OAKLAND + ALAMEDA, CALIFORNIA
36
3.1 VISION + GOALS 3.2 FRAMEWORK PLANS 3.3 SITE PLANS
37
Source: Lacunha Photo
3.1 VISION Development on the Alameda-Oakland waterfronts will focus on multifunctional hubs that showcase regionally-applicable strategies to accelerate improvement in residents’ well-being and prepare for social, economic, and environmental change.
38
GOALS
Create a green and accessible waterfront that improves residents’ health and protects against environmental threats.
Ensure a reliable and accessible multimodal transportation network to extend residents’ mobility, alleviate congestion, and reduce pollution.
ENVIRONMENT TRANSPORTATION Accelerate regional affordable housing growth in a pattern that improves health, safety, and environmental quality.
Increase pathways to middle and higher wage employment for undereducated and lowincome residents to improve their economic security.
HOUSING
ECONOMICS 39
3.2 FRAMEWORK ENVIRONMENT Introduction
change. To address these threats and
Airport, and complete the San Francisco
The high quality of life enjoyed by Bay
maintain a high quality environment
Bay Trail along the waterfront. Together,
Area residents is made possible by a
that area residents have come to expect,
these interventions will help to restore
number of natural systems working
this plan calls for the establishment of a
the region’s waterfront to the public
in conjunction to provide a healthy,
shoreline overlay zone to restore riparian
realm while simultaneously protecting
enjoyable environment. Unfortunately,
habitat along the coast. Additionally, the
the city and its residents from four and
many of these natural systems face serious
plan will implement an aggressive tree
a half feet of sea level rise, reducing the
threats from excessive development,
planting campaign, restore key wetlands
effects of air and noise pollution, and
mismanagement, and continuing climate
on the grounds of Oakland International
providing 25 miles of recreational trails and natural habitat.
880
0
980
PORT OF OAKLAND
580
Lake Merritt
ALAMEDA POINT
San Leandro Bay
OAKLAND AIRPORT Figure 3.1: Environmental Summary
40
ENVIRONMENT
Restored wetlands on the Oakland waterfront. Source: AlamedaPointEnvironmentalReport.wordpress.com
Framework A truly resilient plan must be based on
SEA LEVEL RISE
a sound understanding of the natural systems at work in the area. In the East Bay, this means carefully analyzing sea
FLOODING + LANDSLIDE
level rise, local flooding and landslide risk, liquefaction zones, and air and water contamination. The cities of Oakland and Alameda are projecting
their
waterfronts
to
see
approximately four and a half feet of sea level rise by the year 2100, threatening critical
infrastructure
property.
27
and
damaging
The impacts of this rise in sea
LIQUEFACTION RISK POLLUTION ASTHMA RATE GROUNDWATER CONTAMINATION
41
Opportunities and Constraints for the Environmental Framework
level will be felt most intensely in the lowlying areas bordering San Leandro Bay and at the eastern edge of Alameda Point. Oakland International Airport is the single most vulnerable location in the East Bay, and would be completely submerged by
880
In addition to flooding from sea level rise,
0
980
just one foot of sea level rise. PORT OF OAKLAND
580
Lake Merritt
the East Bay is also at risk for localized flooding from major rain events. Currently, this flooding is most severe in the former
ALAMEDA POINT
wetlands surrounding San Leandro Bay, though sea level rise and an increase in the frequency of El NiĂąo events will put more of the East Bay at risk.28 San Leandro Bay
The heavy rain events that cause local flooding at the waterfront also erode upland soils, and sometimes lead to catastrophic mudslides. These events do not directly affect the waterfront, but do highlight the importance of finding a
OAKLAND AIRPORT
sustainable solution for housing at the waterfront. The East Bay is running out of
Figure 3.3: Asthma-Related Emergency Room Visits
good places to build, which highlights the importance of redeveloping underutilized spaces, such as those at the waterfront. When moist, unstable soils experience severe shaking, as occurs during an earthquake, the soil often loses its form and begins to behave as a liquid. Much of the present day waterfront was built
880
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580
Lake Merritt
on reclaimed wetlands using fill dredged from the bay´s floor, creating conditions that are prime for liquefaction. These
ALAMEDA POINT
areas can still be developed, but doing so requires careful planning to insure that the structures can withstand these forces. Preparing for liquefaction is expensive, San Leandro Bay
but ultimately unavoidable. Pollution in the East Bay comes from many
OAKLAND AIRPORT
Figure 3.2: Pollution
42
sources, but few are as impactful on local communities as the interstate highway system and the Port of Oakland. The port is serviced around the clock by a fleet of diesel trucks that help to load, unload, 880
and transfer the 2.4 million TEUs of freight
0
980
PORT OF OAKLAND
that pass through the port each year29,
580
Lake Merritt
and while these trucks help to keep the East Bay´s economy strong, they also emit large quantities of particulates into the air.
ALAMEDA POINT
These diesel emissions are concentrated in the low-income neighborhoods of West Oakland and East Oakland. The effects of diesel emissions in the East Bay are clearly seen in the region´s San Leandro Bay
asthma
rates.
Although
general
air
pollution is concentrated near the Port of Oakland and the city’s highways, the volume of pollutants is so great that the entire City of Oakland is affected. With such widespread effects, it will not be
OAKLAND AIRPORT
possible to relocate residents away from contaminants or address the issue solely
Figure 3.4: Groundwater Threat Sites
through a wildlife buffer. The legacy of industrial activity in the East Bay has left Oakland and surrounding communities full of “groundwater threat” sites, where there is localized presence 880
of toxins and other pollutants. These
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580
contaminants can be relatively benign
Lake Merritt
in non-agricultural areas. However, the possibility of more flooding events is cause for concern, as it will be harder
ALAMEDA POINT
to keep contaminated water separated from the public supply. Remediation can be costly, but the increasing likelihood that groundwater contamination will become a public health hazard makes San Leandro Bay
this investment an important part of environmental strategy.
OAKLAND AIRPORT
Figure 3.5: Liquefaction Susceptibility
43
CREATE A GREEN AND ACCESSIBLE WATERFRONT THAT IMPROVES RESIDENTS’ HEALTH AND PROTECTS AGAINST ENVIRONMENTAL THREATS.
alamedapointva.blogspot.com
GOAL 1 - Restore balance between urban and natural environments. GOAL 2 - Reestablish the waterfront as a public use area. GOAL 3 - Design open spaces the showcase the beauty of the Bay and provide functional safeguards against climate change. Strategies
rise and habitat loss, a 75-foot shoreline overlay will be established throughout
Shoreline Overlay By the year 2100 the Bay is expected to see as much as four and a half feet of sea level rise, resulting in significant damages to public infrastructure and private property throughout the region. This rise in sea level will affect not only areas directly adjacent to the Bay, but also lands further inland as floodplains expand and storm surges become more severe. Prior to 1850 much of the East Bay was occupied by salt marches and freshwater wetlands that both protected the region from flooding while providing important habitat
for
the
97
endangered
or
threatened species that live in the area.30 In the 150 years since the 1849 Gold Rush first attracted large-scale settlement, 90% of these wetlands have been lost, resulting in a fractured landscape that provides neither adequate habitat nor protection from coastal flooding.31 To address these duel issues of sea level
44
Oakland-Alameda
waterfront.
New
buildings will not be permitted within this overlay, and Bay-Friendly Landscape practices will be required. Additionally, parcels larger than one acre in size will be required to incorporate public access into their land management plans. Historically,
the
Alameda-Oakland
waterfront has been dominated by industrial uses, and while this is slowly changing, the Port of Oakland and
Figure 3.6: 305-acre wetland at Oakland International Airport continues to collect water
surrounding industrial buildings still play a vital role in sustaining the region’s economy.
To
insure
the
continued
prosperity of these institutions, they will be permitted an exemption from the
overlay’s
setback
requirement,
butmust instead demonstrate the ability to cope with sea level rise through an a comprehensive adaptation plan that incorporates a variety of tools to address future challenges while protecting one of the region’s largest employers.
Figure 3.7: Precedent: Santa Barbara, CA | Source: James Wapotich
ENVIRONMENT
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Lake Merritt
ALAMEDA POINT
San Leandro Bay
OAKLAND AIRPORT Figure 3.8: Environmental Framework Airport Wetland Restoration
California provides a great example for
Oakland International Airport (OAK) is the
how wetland restoration can be used to
most vulnerable piece of infrastructure
protect against both sea level rise and
in the East Bay today. The airport itself
seasonal flooding. Similar to OAK, SBA was
was built on reclaimed wetlands in 1927,
built on fill during the first half of the 20th
and will experience catastrophic flooding
Century, and similar to OAK, these tidal
with just one foot of sea level rise. To
wetlands placed the airport in danger of
prevent this disaster, a multipronged
severe flooding. To prevent birds from
approach will be necessary. Santa Barbara
nesting on airport grounds, common
Municipal Airport (SBA) in Santa Barbara,
practice is to drain local wetlands and
45
7 Principles of Bay Friendly Landscaping
32
1) Landscape Locally 2) Landscape for Less Landfill 3) Nurture the Soil 4) Conserve Water 5) Conserve Energy 6) Protect Water & Air Quality 7) Create Wildlife Habitat
block tidal flows, which is what was done in both Santa Barbara and Oakland. In 2005 SBA took the unprecedented step of reestablishing the tidal flow to these wetlands, and allowing native bird species to reestablish themselves. This action was done in cooperation with the Federal Aviation Association (FAA) and is widely regarded as a success. Not only did the project restore 400 acres of wetlands and protect the airport from flooding, bird strikes at the airport actually decreased, as these tidal streams ecosystem tend to attract smaller, low-flying birds rather than the mallard ducks and Canadian Geese.33 Bird strikes are a serious risk for aviation, so before any action is taken Oakland International Airport should partner with the FAA to carefully study the site to see if
Street Trees
widely documented, and include such
Both Oakland and Alameda are named
important functions as air and water
for the forests that once grew there and
filtration, heat absorption, and noise
with a concerted effort, these forests
reduction. Many wealthier neighborhoods
can be reestablished. Although the City
already have healthy tree canopies, but
of Oakland has not conducted a street
this is often not the case in lower-income
tree inventory, the 2012 Energy and
areas. These areas tend to have sparser
Climate Action Plan explicitly mentions
tree canopies and are also the areas most
the important role that a healthy urban
affected by noxious uses such as highways
forest plays in maintaining a high quality
and factories.
of life. For their part, the City of Alameda
To help alleviate these conditions, the
has a long history of protecting tree cover
high-risk communities of West Oakland
and has twice completed comprehensive
and East Oakland will be targeted for
street tree inventories. These studies have
street tree improvements through a new
revealed that while trees are prominently
partnership between the City of Oakland
featured throughout the island, the trees
and Urban Releaf, a non-profit group
themselves are overwhelmingly non-
that currently plants approximately 800
native, with London planes Platanus
new trees each year (Figure 3.10).35 This
acerifolia accounting for a full 24% of the
partnership will focus on improving both
city’s trees.34
the quantity and quality of street trees by
The benefits of urban trees have been
insuring that 75% of all trees planted are
such an approach is practical. Restoring tidal flow to the 305-acre site between the two runways would significantly improve the facility’s ability to cope with sea level rise, but will likely not be enough on its own (Figure 3.6). Instead, the wetland restoration should be considered in conjunction with a larger stormwater management plan that uses a series of bioswales, levees, and rain gardens located at both the airport and the two surrounding golf courses.
Figure 3.9: Non-native, water-intensive trees on Dolores Street, San Francisco | Source: Jimmy Onofrio 46
Figure 3.10: Urban Releaf
Figure 3.11: MLK Jr. Regional Shoreline Between Airport & Coliseum | Source: Jared Patton
native and/or drought tolerant species.
in biking, walking, and jogging, while
The survival of these street trees will
also reconnecting communities to their
be dependent on a watering strategy
waterfront and providing a buffer between
that utilizes gray water. Additionally,
sensitive habitat and urban development.
the street-tree partnership will focus on
To fill these gaps, a two-phased approach
community engagement through planting
should be taken. In phase one, the
parties and tree maintenance trainings to
Bay
insure the long-term viability of the urban
Commission (BCDC) will partner with the
forest.
cities of Oakland and Alameda to formalize
Connecting the Bay Trail
and improve existing segments of the Bay
The San Francisco Bay Trail Plan was adopted by the Association of Bay Area Governments (ABAG) in 1989 and has since grown to include more than 338 miles of pedestrian trails covering 67% of the Bay’s length. At full build-out the trail is expected to include 500 miles of pedestrian paths, connect 47 cities, and thousands of acres of open space and parkland.36 The Alameda-Oakland waterfront already features several segments of Bay Trail, but they have not yet been connected to
the
larger
network.
Connecting
these segments to both each other and the network at large will drastically increase the amount of open space available for local residents interested
Conservation
and
Development
Trail. Along more scenic stretches these improvements will focus on resorting native landscaping, while more urban stretches will seek to highlight the unique urban and industrial history of the East Bay through interpretive signs and cooperative planning with the Port of
require little more than landscaping and pavement along the waterfront, while in other instances a pedestrian bridge will be needed, such as the intersection with the Fruitvale Bridge. Many of these expansions will be established as private landowners come into compliance with the shoreline overlay, which requires public access to the waterfront on parcels greater than one acre. These extensions will not only connect existing segments of the trail, but also seek to add new green spaces to the total network and provide equitable access for the low income neighborhoods,
specifically
targeting
waterfront properties with attractive views of the city and bay.
Oakland and other waterfront industries. These improvements will also focus on creating a single unified design for the trail as it passes through the OaklandAlameda waterfront, with the goal of making the trail function as a destination for visitors and residents alike. Phase two of this process will involve targeted expansions of the trail to connect the many fragmented sections. In some cases, these connections will
47
3.2 FRAMEWORK TRANSPORTATION Introduction
a strained transportation system with
A resilient transportation system is one
conflicting interests between the different
that can adapt to a variety of unexpected
transportation providers and limited
events and is dependable for all residents
access to areas of need and the waterfront.
to feel secure about the reliability of
The Bay Area is a fast growing region with
their mode of choice.
Based on the
job growth out-pacing housing, forcing
definition of a resilient transportation
people to live further away from where
system, the existing conditions display
they work.
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580
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ALAMEDA POINT
San Leandro Bay
OAKLAND AIRPORT Figure 3.12: Transportation Summary 48
TRANSPORTATION
Transit and personal automobiles in Oakland. Source: Post Gazette
Framework To further determine areas to address in our transportation section, constraints
POPULATION DENSITY
were mapped out to spatially show areas in need of intervention. For every transportation
system,
population
JOB DENSITY
density is the driving factor for its success and financial viability. In the East Bay, the densest populations are grouped
ACCESS TO WATERFRONT
around Lake Merritt, East Oakland, and Central Alameda.37 population
density,
In addition to job
distribution
ACCESS TO TRANSIT
shows the employment density for the area.38
Downtown Oakland and West
Oakland have the highest concentration
TRANSIT COMMUTERS
of jobs within the region. In addition, it is important to note that Emeryville, a municipality to the north of our study site,
VEHICLE OWNERSHIP CAPACITY/CONGESTION 49
Opportunities and Constraints for the Transportation Framework
has a high concentration of employment with big box retailers servicing the East Bay. The densest areas are close to major transportation centers, such as Bay Area Rapid Transit (BART) stations. Waterfront access helps determine the level of interventions needed to connect
880
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PORT OF OAKLAND
580
Lake Merritt
residents to the waterfront. While Oakland and Alameda have a great waterfront, it is not very accessible. The 980 freeway
ALAMEDA POINT
and Amtrak right-of-way creates a barrier with limited access points. In addition, the few existing access points lack an inviting atmosphere.
The overpasses
San Leandro Bay
from Downtown Oakland to the Jack London Square waterfront lack lighting and have little walking activity, leading to an unsafe atmosphere for pedestrians to access the waterfront. While the local framework analysis shows
OAKLAND AIRPORT
the densest populations are close to transit and the waterfront lacks access,
Figure 3.13: Access to Waterfront
the transportation framework needs to address the current system in the regional Bay Area context. The regionalserving Bay Area Rapid Transit and the San Francisco Bay Ferry service only a fraction of the East Bay region. The highest number of transit commuters are concentrated around BART and ferry
880
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580
Lake Merritt
ALAMEDA POINT
San Leandro Bay
OAKLAND AIRPORT
Figure 3.14: Access to Transit
50
stations. As the distance increases from the transit stations, East Bay residents become more reliant on personal vehicle ownership. 880
980
PORT OF OAKLAND
Since many people in the
East Bay are automobile dependent, the
0
580
final component is traffic congestion in
Lake Merritt
the East Bay. The current road network exhibits traffic flows exceeding the capacity of the infrastructure.39 Alameda
ALAMEDA POINT
has even more limited transit connections hindering its opportunity to unlock the development potential of the former Naval Base at Alameda Point. The tubes San Leandro Bay
connecting Alameda to Oakland already apply pressure on its carrying capacity. The Bay Bridge displays congestion problems during peak commuting hours between East Bay and San Francisco. In addition to automobile infrastructure,
OAKLAND AIRPORT
the BART transbay tube can no longer increase frequency during peak hours and the ferry system has a record number
Figure 3.15: Transit Commuters
of users, often failing to fit everyone on the boat.40 Based on the framework analysis, a focused effort needs to be made activating the waterfront, coordinating different transportation modes, increasing service, 880
and connecting high priority areas like
0
980
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580
Alameda Point, West Oakland, and Jack
Lake Merritt
London Square to the rest of the region.
ALAMEDA POINT
San Leandro Bay
OAKLAND AIRPORT
Figure 3.16: Vehicle Ownership
51
ENSURE A RELIABLE AND ACCESSIBLE MULTIMODAL TRANSPORTATION NETWORK TO EXTEND RESIDENTS’ MOBILITY, ALLEVIATE CONGESTION, AND REDUCE POLLUTION.
Post Gazette
GOAL 1 - Create a strategic system that coordinates local and regional transportation agencies GOAL 2 - Develop a robust and flexible transit network that responds to system shocks and demographic changes GOAL 3 - Provide routes and access points that connect the waterfront to the East Bay and Bay Area regions Strategies
a strategic implementation of multimodal
be utilized soon after natural disasters
The future transportation plan for the East
transit infrastructure would be a more
unlike bridges and tubes, which need
Bay has a regional, local, and last mile
effective approach that would have a far
engineering inspections.
component. Expanding the ferry system
greater impact for the communities that it
The transportation network for the ferry
will strengthen the regional connections
serves. In addition, BART’s long range plan
system in the East Bay will add a stop to
between Alameda and Oakland.
Bus
focuses on existing system improvements
Alameda Point South. With the planned
Rapid Transit (BRT) and streetcars foster
like increasing car lengths, adding new
new developments on the former navy
local integration throughout Oakland and
doors, and upgrading its transit guidance
base, the new terminal will help residents
Alameda and connect to regional-serving
systems. These improvements will better
connect to San Francisco and the
transit.
service the growing Bay Area region.
remaining region. The new ferry terminal
The final link to connecting
41
will be built by either the site developer
riders will be addressed through last mile
Regional Ferry System
transportation services: Alameda-Oakland
The ferry system is an underutilized
water taxi, an Alameda Point shuttle, and
regional transportation system in the Bay
the introduction of autonomous vehicles.
Area. While not used to its full potential,
Bay Area Rapid Transit (BART)
residents in the East Bay are taking note.
The Bay Area Rapid Transit system was
The primary ferry service provider, Water
initially considered to be the main
Emergency
solution to the transportation problem
(WETA) provides regular service and
in the East Bay and region. By adding a
is designated as the main emergency
second transbay tube, it would increase
responder during disaster events.
capacity, connect Alameda and Oakland’s
recent BART strike led to an extreme
waterfront, and increase resiliency in
increase in ferry riders.42
their system.
However, a cost-benefit
strike negotiations ended, ferry ridership
analysis proved that with the high cost of
maintained levels similar to those during
implementing a new BART TransBay Tube,
the strike period. Ferries are proven to
52
Transportation
Authority
The
After the
or the City of Alameda.
Traditionally,
WETA ferry terminals are built by private developers or municipalities.
The Bay
Farm Island ferry terminal and boat was financed by both the developers who built the North Face headquarters and the City of Alameda.43 The expansion of WETA follows New York City’s resiliency plan for ferries.44 The addition of new routes, expanding frequency, and purchasing new boats will help the Bay Area during emergencies, like earthquakes, terrorist attacks, and strikes on
other
supporting
transportation
TRANSPORTATION
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ALAMEDA POINT
San Leandro Bay
OAKLAND AIRPORT Figure 3.17: Transportation Framework services. The proposed updates to the
Century (MAP-21), help from the regional
ferry system will cost approximately $4
MPO, and investment through private
million per ferry. The operating cost totals
developers.46
$1.7 million, and the construction of the
By expanding the ferry system, the Bay
new terminal will cost between $3 and $5
Area will be more resilient and the East
million.
Bay waterfront will open up with activity
The expansion of ferries will be funded by
spurring off from the ferry terminals.
45
federal grants: Transportation Investment Generating Economic Recovery (TIGER) and Moving Ahead for Progress in the 21st
53
880
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580
Lake Merritt
ALAMEDA POINT
San Leandro Bay
OAKLAND AIRPORT
Figure 3.18: Oakland-Emeryville Streetcar Oakland Streetcar System
The proposed streetcar system connects
improved public transportation system.
Oakland sits at the center of teh Bay Area’s
the waterfront via Jack London Square
The existing street network on the
transportation system.
All the major
and Howard Terminal to West Oakland,
proposed route is underutilized.
transportation systems feed into or out of
Emeryville,
Oakland.
wide sidewalks and streets, it encourages
Oakland. BART’s headquarters are situated
The proposed route will hit four BART
cars to travel through at high speeds and
in Downtown Oakland
and freeway
stations. By strategically routing the
discourages pedestrian foot traffic.
systems merge together before heading
streetcar to BART stations and near the
implementing a streetcar on these local
across the Bay Bridge to San Francisco.47
waterfront, it will open opportunities for
streets, it will produce a redesign that is
In addition, WETA plans on moving its
users to easily connect to the regional
more attractive, safer, and accessible to
ferry maintenance facility to Alameda
transportation providers. In addition, it
existing and future transportation riders.
and
Downtown
With
By
On a county level, Alameda
will pull people to current and future job
The redesign will use the space more
County (AC) Transit provides bus services
centers of Downtown Oakland, Howard
efficiently and still provide travel and
locally and to major job centers, like
Terminal, and Jack London Square. The
parking lanes for personal automobiles.
San Francisco.49 To improve the existing
added convenience of the streetcar
infrastructure, local transportation needs
system will potentially push people away
to be improved.
from personal automobiles to using the
Point.
48
54
Figure 3.19: Proposed Regional Transit Network 0
980
PORT OF OAKLAND
OAKLAND 580
ALAMEDA POINT
SAN FRANCISCO
ALAMEDA 880 OAKLAND AIRPORT
San Francisco Bay
280
SAN FRANCISCO AIRPORT
Alameda BRT/Light Rail
the low-density development pattern
A Bus Rapid Transit route will provide
The island of Alameda lacks the luxury of
in Alameda will not be sustainable and
the
connections to East Bay and the region.
density will need to increase over the next
connect Alameda to regional-serving
The existing connections comprise of
35 years.
transportation modes, such as BART and
one-way tunnels at the north end of the
A new public transportation system
ferries.50
island and three bridges further south.
for Alameda Island will connect it to
corridor, which traverses from Alameda
The growing population in the Bay Area
East Bay and the region. The proposed
Point to the Fruitvale BART station, we see
places pressure on Alameda Island to
interventions will offer reliable service
that a BRT with itsown right-of-way can be
increase their density but the increase
and remove the reliance of personal
supported. The study of a BRT on Alameda
will collapse the existing transportation
automobiles
system.
encouraging density.
reliability
and
convenience
to
By using the Central Avenue
thus
looked at the possibility of connecting to
The new transit
Downtown Oakland. However, Fruitvale
Alameda remains low and the island
will unlock the development potential for
is more viable to service all Alameda
shows high automobile ownership. With
Alameda Point, while preserving the small
residents
the pressure on housing development,
town feel in the rest of the city.
allows for BRT users to immediately
As a result, the population in
on
the
island
and
the
Fruitvale
station
55
Figure 3.20: Street Section - Before Street Car
Figure 3.21: Street Section - With Street Car
56
TRANSPORTATION
Figure 3.22: Oakland Street Car Rendering
57
880
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PORT OF OAKLAND
580
Lake Merritt
ALAMEDA POINT
San Leandro Bay
OAKLAND AIRPORT
Figure 3.23: Alameda BRT/Light Rail board the trains versus Downtown and
Last Mile Interventions
an Alameda Point shuttle system will
West Oakland stations, which often see
The BRT/light rail route will solve access
frequently circulate around Alameda
The
to and from Alameda Island. However,
Point connecting the development sites.
Alameda Point terminus places it near the
the last mile connections will make public
The new developments in Alameda Point
new ferry terminal. By creating multi-
transportation more convenient and
will consist of commercial, retail, and
modal options, it will help people get to
useful for users. A water taxi shuttle will
residential. The mixture of uses will cater
their destinations faster and with ease.
offer more frequency from Alameda Point
to the Alameda Point residents and be a
The implementation of BRT, opens doors
to the Howard Terminal/Jack London
one-stop shop for needs and goods.
to increase its level of service. As density
Square employment center. The water
The final component to solve the
grows around the existing BRT route,
taxi will immediately connect people
congestion crisis is inviting private
Alameda will introduce a light rail system
from the island to the new streetcar
companies to invest in an autonomous
on the island. The light rail system will
and existing bus routes within Oakland.
vehicle pilot program on the island.
use the existing BRT right-of-way. Light
The water taxi can incentivize people
With companies like Uber and Lyft, the
rail will provide a more reliable service
to locate on the Alameda Point site as
private sector is playing more of a role
and increase capacity to get people from
jobs and housing grow in the immediate
in providing transportation services.
point A to point B.
area.
Currently, Alameda is a test site for
overcrowding during peak hours.
58
51
In addition to the water taxi,
TRANSPORTATION the
Department
of
Mercedes, and Google.
Transportation, 54
The plan will
expand autonomous vehicles by setting standards for implementation. The private companies will license vehicles similar to a taxi service. Once registered, we see
880
0
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PORT OF OAKLAND
580
Lake Merritt
the conversion of an existing warehouse to store the autonomous vehicles during off-peak hours.
There will be several
ALAMEDA POINT
carshare stations on the island. The user will call an autonomous vehicle by an app on their personal device. The autonomous vehicle will transport the user from point
San Leandro Bay
A to point B. The autonomous vehicle carshare system will provide a more convenient option for errands than the personal automobile. The transportation component in the Resilient East Bay 2050 plan creates
OAKLAND AIRPORT
an adaptive system by coordinating transportation modes and agencies to be
Figure 3.24: Alameda Point Shuttle + Water Taxi
effective in day-to-day interactions and emergencies.
880
0
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PORT OF OAKLAND
580
Lake Merritt
ALAMEDA POINT
San Leandro Bay
OAKLAND AIRPORT
Figure 3.25: Alameda Island Autonomous Carshare
59
Figure 3.26: Street Section - Before BRT
Figure 3.27: Street Section - With BRT
60
TRANSPORTATION
Figure 3.28: Alameda BRT Rendering
61
3.2 FRAMEWORK
HOUSING
Introduction
Framework
It is clear the existing housing stock is
The bay area at large has a heavy housing
household earning the median income
not meeting the needs of the region. To
burden. Within the nine county region,
in Oakland would need to dedicate 73% of
better understand housing in the region,
more than half of all residents pay over 30%
their income to afford Oakland’s current
housing was evaluated through many
of their income towards housing costs.
median listing rent of $2,076.56
different lenses.
Housing burdens are equally prevalent
What
among renters and homeowners and
housing costs? Between March 2013 and
present across all major income brackets
March 2014, 17,000 new jobs were added
reported by the census.55
in the East Bay, but housing production
In Oakland, the effects of rising housing
has not kept pace with demands. One
880
costs are even more pronounced. A
0
980
PORT OF OAKLAND
is
580
Lake Merritt
ALAMEDA POINT
San Leandro Bay
OAKLAND AIRPORT Figure 3.29: Environmental Summary 62
driving
these
unaffordable
HOUSING
Most neighborhoods in Oakland and Alameda are low density. Source: Trulia.com
of the big reasons housing production has not kept up, is Proposition 13. In the state of California municipalities are only allowed to raise the tax rate by 2% per
RENT BURDEN
year while there is no restriction put on income or business tax. This incentivizes municipalities to put their energy and
TRANSIT ACCESS
zoning towards policies which attract business rather than housing. Another reason the city is limiting residential growth is traffic. The CEQA
POVERTY
approval process and residential input for approvals often slow development projects based on concerns of traffic. And you really cannot blame them. In Alameda,
AGE OF STRUCTURE
75% of all residents commute off the island for work. Of those less than 15% use public transit. In Oakland, it is only slightly better
PARK ACCESS 63
Opportunities and Constraints for the Transportation Framework at 19%. With rates like these, 1% population growth annually would lead to another 1 million cars at the current rate.57 Another factor we looked at was poverty. Poverty in and of itself is not a good thing but the affects are often amplified when there are significant clusters.58 There is a large economic disparity between Oakland residents, leading to a high housing burden for low-wage earners. More than 14,000 housing units in low- to
880
0
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580
Lake Merritt
moderate-income flatland neighborhoods are at risk for collapse or other damage in a major earthquake. A 2008 Association
ALAMEDA POINT
of Bay Area Governments (ABAG) study found that as many as 14,700 of Oakland’s multifamily housing units are in “soft story” buildings, which means the open San Leandro Bay
floor space on the ground floor makes them a high risk for collapse or damage
OAKLAND AIRPORT
Figure 3.31: Rent Burden
880
0
980
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580
Lake Merritt
ALAMEDA POINT
San Leandro Bay
OAKLAND AIRPORT
Figure 3.30: Transit Access 64
during an earthquake. We used homes built before 1950 as a proxy for those most at risk. These structures would also be the most at risk for lead paint, asbestos, and earthquake risks. Another factor we looked at was park access. Park access is an important recreational amenity, but it also offers 880
significant health benefits. According to
0
980
PORT OF OAKLAND
580
the UCLA Center for Policy and Health
Lake Merritt
Research, California citizens who lived near parks were more likely than those who did not to get increased physical
ALAMEDA POINT
activity.59 The Bay Area is in the midst of an affordability crisis. With strong job and population growth, there is a much San Leandro Bay
higher demand for housing than supply. Our solution to the region’s affordability crisis relies on a regional approach.
OAKLAND AIRPORT
Figure 3.32: Families Living Below The Poverty Level
880
0
980
PORT OF OAKLAND
580
Lake Merritt
ALAMEDA POINT
San Leandro Bay
OAKLAND AIRPORT
Figure 3.33: Park Access 65
ACCELERATE REGIONAL AFFORDABLE HOUSING GROWTH IN A PATTERN THAT IMPROVES HEALTH, SAFETY, AND ENVIRONMENTAL QUALITY.
West Oakland Works
GOAL 1 - Increase the speed of housing production at all levels GOAL 2 - Diversify the housing stock to meet the needs of a shifting demographic GOAL 3 - Distribute affordable and market rate housing GOAL 4 - Protect homes and residents from environmental risks and hazards GOAL 5 - Equip residents and elected leaders to mitigate the effects of change Strategies
Euclidian distance but not within the ½
other factors such as schools, park access,
mile network distance because of a large
or crime. Including these measures will
highway, they could partner with the city
help insure that affordable housing is
and incentives to measure transit access
to finance a pedestrian bridge.
distributed more equitably throughout
in network distance rather than Euclidian
Update regional housing goals and
the region.
distance.
funding
Fortunately, many cities in the Bay Area
Currently, the Association of Bay area
are already implementing policies such as
Governments
transit oriented zoning overlays and Low
regional
housing
Income Housing Tax Credits to encourage
evaluate
municipalities’
transit access. While these programs are
affordable housing supply based on
great initiatives, they define transit access
population, capacity and job growth.
by a Euclidian distance not a network
These goals do not, however, account for
Change the language in city documents
distance. The problem with this is while they may be geographically close to a transit stop, residents cannot always access them; many times walls or large highways are in the way. By changing the language, this will ensure policies intended to encourage transit access are effective in increasing transit accessibility and will encourage public private partnerships to fund infrastructure improvements to expand access. For example if a developer was within a ½ 66
(ABAG)
sets
goals
affordability. ability
No city has reached its housing goals
for They for
set by ABAG. Faced with balancing their budgets against Proposition 13, many cities opt to encourage job growth, which carries less municipal cost. By attaching transportation
funding
to
housing
production, there will be more of an incentive to reach housing goals.
HOUSING
Address Network Distance
Require Adaptability
Connect Housing Goals to Funding
Create Approval Committee
Allow Diverse Housing Types
Dedicate Funding Streams Figure 3.34: Housing Framework
67
Create a regional committee to facilitate the CEQA process for TOD Another reason housing production has remained slow are the barriers related to the California CEQA process. By creating a regional committee to pre approve projects located near transit stops the approval process can be sped up. Develop a funding mechanism to support accessory dwelling units (ADUs) Accessory dwelling units have many benefits. They can help increase the supply of affordable housing and they consume less water and energy than traditional single family homes. The cost associated with building a unit has a higher local multiplier, circulating more of the money into the local economy. Finally, they can also provide a stream of income to home owners who construct them. This could help thousands of existing residents avoid the threat of foreclosure. Today, many cities are begging to see
Figure 3.35: Approval Committee
the value of ADUs. They are beginning to allow them in the zoning code and in some cases, even encourage their construction. While attitudes are positive,
Figure 3.36:
68
the path to constructing these types of units is often mired with difficulty. The average accessory dwelling unit can cost anywhere from 10,000 to 70,000 dollars to construct. Most homeowners would need a loan to construct one but banks have been reluctant to loan money towards new building practices such as these. A regional housing fund can be used to guarantee loans made by banks. Modeled off of small business loan programs, this would encourage banks to loan out money at little risk while not costing the city anything other than the cost of a reserve. Allow more diversity in housing types The existing zoning codes in most cities currently use language to define housing standards based on dwelling units. This type of delineation does not allow for more flexible housing types such as cohousing strategies, which might have fluid Figure 3.37: Example of Co-Housing
or adaptable units with shared central facilities such as kitchens and gathering spaces.
Figure 3.38: Example of Adaptive Reuse
69
3.2 FRAMEWORK
ECONOMY
Summary The existing conditions of the East Bay indicated that the economy is booming for high- and low-wage jobs, but the middle-wage job sector is getting left behind. To create the framework for economic development, various layers of analysis were combined to determine where the opportunity and need sites are in the study area.
880
0
980
PORT OF OAKLAND
580
Lake Merritt
ALAMEDA POINT
San Leandro Bay
OAKLAND AIRPORT Figure 3.39: Economics Summary 70
ECONOMY
Figure 3.40: East Oakland with Unemployment Rate of 11.6%. West Oakland has an unemployment rate of 12.7%. Source: 2013 ACS, Google Maps
Framework Both East and West Oakland are high poverty areas (Figure 3.32).60 In this analysis, poverty was used as a proxy
POVERTY
for high need, and was equated with a lack of economic mobility. Poverty and unemployment are interrelated. Oakland
TRANSIT ACCESS
as a whole has an unemployment rate of 8.9 percent while West and East Oakland have unemployment rates of 12.7 and 11.6 percent respectively.61 Transit access was
PROFESSIONAL JOBS
also added as an analysis layer to show the accessibility points near the study area (Figure 3.30).
MEDICAL JOBS
One of the more significant layers was a heat-map depicting the number of professional jobs in Oakland and Alameda (Figure 3.41). The map shows clusters 71
Opportunities and Constraints for the Economic Framework of
professional
jobs
(legal
services,
accounting and payroll, architectural and engineering, design, computer systems, management, research and development, advertising,
and
other
professional
services) in Downtown Oakland, in Alameda near the two tunnels, and near Oakland International Airport.62 A market demand analysis revealed a high demand for office space in Downtown Oakland. In Oakland, there is a low vacancy rate,
880
0
980
PORT OF OAKLAND
580
Lake Merritt
ranging between 4.6 and 6.3 percent, of Class A office space and rents are increasing (Figure 3.42). To add to the
ALAMEDA POINT
demand, there is currently no new office space under construction in Oakland, let alone the entire East Bay according to 2015 Quarter 3 market reports on office San Leandro Bay
space.63 There is currently no R&D space in Oakland, but the sector is growing and the recently released Coliseum Area Plan by the Oakland City Planning Department proposes to capitalize on this growing sector by providing the needed
OAKLAND AIRPORT
space between the Airport and existing Coliseum. According to the Cushman and
Figure 3.41: Professional Jobs Heat Map
Wakefield 2015 Q3 Warehouse and R&D Market analysis, R&D has a vacancy of 7 percent for the entire East Bay.64 There is little demand for office space on Alameda Island. The office vacancy for the northern half of the island is 31 percent, and the rent is about $29 per square foot per year, almost $16 per square foot per year lower The
than rentable space in Oakland.65
existing industries on Alameda Point, one of the intervention sites, include artisan products,
food
production,
alcohol
71
and spirits (beer, wine, and vodka), clean technology industries, high tech manufacturing, and maritime uses.
66
All
of these job sectors require low rent and large spaces. Currently Alameda is disconnected from the rest of the Bay Area due to the lack of public transit. The site currently has a very low density and
72
Figure 3.42: Office Space in Oakland. Although vacancy is low, there is virtually no new office construction.
a lot of open space, making it difficult to create an immediate demand for higher density and higher-wage jobs. Another clustered sector that is important to note for the Oakland and Alameda sites were medical jobs (Figure 3.43). Healthcare is a large and important employment sector in the Bay Area, but the heat-map 880
demonstrates that the concentration
0
980
PORT OF OAKLAND
580
of healthcare services is in Northern
Lake Merritt
Oakland on the border of Berkeley, CA.67 The lower-income communities show a farther distance from the healthcare jobs
ALAMEDA POINT
and are therefore farther from medical care. The California Office of Statewide Health
Planning
and
Development
has designated the southern half of Oakland as a Primary Care Shortage San Leandro Bay
Area (Figure 3.44).68 This means that the residents living in the designated area lack access to routine healthcare and have to use hospital emergency rooms for all ailments, not just emergencies.
OAKLAND AIRPORT
As stated previously, there are various medical facilities located in the East Bay. The largest is Kaiser Permanente, a
Figure 3.43: Medical Jobs Heat Map
large medical group whose headquarters are located in Oakland. There is also a proposed Veterans Hospital located on the northern portion of Alameda Point.69 If this hospital is built, there will be even more medical jobs in the region. 880
Based
0
980
PORT OF OAKLAND
on
the
analysis,
certain
employment centers stood out as areas
580
Lake Merritt
to expand economic opportunities for the surrounding neighborhoods. In the summary map, Figure 3.39, the blue areas
ALAMEDA POINT
represent
middle-wage
employment
clusters and the yellow represents areas designated as high need. From this analysis, the Resilient East Bay 2050 plan will utilize the synergy from the existing San Leandro Bay
job
clusters
to
promote
economic
development and job creation at key sites along the waterfront.
OAKLAND AIRPORT
Figure 3.44: Primary Care Shortage Area 73
INCREASE PATHWAYS TO MIDDLE AND HIGHER WAGE EMPLOYMENT FOR UNDEREDUCATED AND LOW-INCOME RESIDENTS TO IMPROVE THEIR ECONOMIC SECURITY.
West Oakland Works
GOAL 1 - Encourage the growth of job opportunities for local residents GOAL 2 - Establish educational and job training programs GOAL 3 - Foster diverse economic districts that support a range of industries in a dense and connected urban fabric Strategies
educational services for those living in were
high poverty areas. This is similar to the
established to provide a framework for
West Philadelphia Skills Initiative run by
implementation. The following policies
University City District, but on a much
will help fulfill the economic goals of the
larger scale. The training is directly related
plan:
to the industries previously mentioned in
From
these
goals,
strategies
the framework section.
Tax Breaks for Local Employment Tax Breaks for Local Employment will
Public-Private Partnerships
incentivize companies to hire locally by
Public-Private
receiving a predetermined tax credit or
education
discounted rate based on the number
companies partner with local public
of local employees. This is similar to the
schools in Oakland to provide college
Federal Work Opportunity Tax Credit.
readiness skills and mentoring in the
in
partnerships which
larger
with stable
STEM sector.
Enterprise Zones Enterprise Zones located on both the
Urban Design Standards
Howard Terminal and Coliseum sites
Urban design standards to foster the
will provide job opportunities for nearby
creation of diverse economic districts
low-income communities by offering
that are flexible and resilient based on
temporary tax credits or temporarily
market demand over time.
reduced to
state
businesses
business who
income meet
tax
certain
requirements. Workforce Development Workforce development through the creation of a job-training center on Howard Terminal to provide training and 74
RESIDENTIAL
The framework for economic development
OFFICE
RETAIL
OFFICE
RETAIL
LIGHT INDUSTRIAL
focuses on serving the high need areas as well as utilizing the existing job clusters. Both the high need areas and job clusters surround the Howard Terminal and Coliseum site.
Figure 3.45: Adaptable Structure Types
ECONOMY
WEST OAKLAND 0
PORT OF OAKLAND
ALAMEDA POINT
EAST OAKLAND
OAKLAND AIRPORT
Figure 3.46: Economic Framework
75
Job Training Howard Terminal will be the main site for economic development because a jobs training center will locate there. This center will serve residents in both East and West Oakland due to current disinvestment in these areas. The training programs will center around professions that promote economic mobility and stable middle-income jobs. The possible training programs at the site will include:
These programs are focused in particular employment sectors. The program sectors connect to both our intervention sites as well as the Bay Area region to provide employment opportunities for those who need them most. The healthcare training provided at Howard Terminal can connect to the existing
Kaiser
Permanente
to
the
north, the proposed Veterans hospital on Alameda Point, and the primary care facilities incorporated into the Coliseum.
• Health system administrator
The lab technician and information
• Patient sitter
technology training will not only connect
• Healthcare IT
to the proposed Biotech and R&D area in
• Certified medical assistant
the Coliseum plan, it will also connect to
• Lab technician • Computer programing/coding • Information technology analyst • Transportation
operation
and
maintenance
880 980
PORT OF OAKLAND
580
Lake Merritt
ALAMEDA POINT
San Leandro Bay
Figure 3.47: Howard Terminal job training pathways 76
the existing industries in the Bay Area that
accommodate diverse industries, districts
are booming and in need of employees
should not only accommodate various
with training. (map from slides) The
needs throughout an area but also so
job training center at Howard Terminal
that each building can adapt to a range
can partner with the local community
of uses. Adaptable structures help protect
college to offer an accredited AA degree
against the adverse effects of market
for lab technicians. This profession earns
change and extend the usable life of
a nationwide average of $40,000 (higher
structures. At the most basic level, floor
in the Bay Area) and is expected to grow
plate depth and ceiling height limits can
The nearby community
maximize adaptability between office,
colleges do not currently offer a similar
residential, and retail uses. Standard
degree so it would help fill the education
designs such as the MultiSpace concept
gap in a high demand industry.
by Reid Architecture out of Manchester,
Design Standards
England, will further maximize structural
by 20% by 2022.
70
All of the sites should be home to a diverse range of businesses to protect municipalities and their residents against outsized effects of market changes. To
880
Municipalities
should
adopt such standards – where possible, integrating them into zoning and building codes.
0
980
PORT OF OAKLAND
adaptability.
580
Lake Merritt
ALAMEDA POINT
San Leandro Bay
77
3.3 SITE PLAN HOWARD TERMINAL NEW TRANSIT AND JOB HUB
980
et St
reet
3rd
Stre
et
r. W ro W
est
Clay
Port of Oakland
Stre
et
ade
.K.J
arc
M.L
Emb
ay
Mark
Filbe
rt Str
eet
880
Jack London Square
Figure 3.48: Site Plan for Howard Terminal
78
HOWARD TERMINAL Howard Terminal is the future hub of
880
eet
employment and a regional transit system.
et St
Current Conditions
reet
Filbe
rt Str
980
Mark
3rd
The site plan encompasses 57 acres, and
Stre
et
r. W
ay
has proposed transit improvements in the
arc
has become obsolete. The new container ships do not have enough space to turn around in that part of the estuary. The site
ade
ro W
est
Stre
Emb
but as barges have grown larger, the area
Clay
Terminal was an integral part of the port,
et
M.L
.K.J
surrounding 37 acres. Historically, Howard
Port of Oakland
is currently being used as storage space for other terminals. There is pressure for the Port of Oakland to redevelop the site into alternate uses like the Port did
Jack London Square
with Jack London Square, yet still retain ownership. Howard Terminal enjoys the privilege of proximity to downtown Oakland, and exceptional waterfront access and view. It also has the potential to be a gateway to
Figure 3.49: Existing Circulation
nearby West Oakland, an area in which the economic analysis demonstrated to have a high need for economic opportunities for
880
eet
its residents. However, Howard Terminal
980
et St
Oakland due to Amtrak’s right of way and
reet
rt Str Filbe
is not currently connected to the rest of
3rd
Mark
its current port use (Figure 3.49).
.K.J
r. W
to the Estuary Policy Plan Area, where
a rising tourism and entertainment
Port of Oakland
arc
ade
ro W
est
Stre
Emb
marketability of the site (Figure 3.50). It is
Clay
light industrial spaces promote the
et
M.L
a mix of residential, office, retail, and
also just northwest of Jack London Square,
et ay
Howard Terminal is located adjacent
Stre
destination in Oakland. Part of Howard Terminal is within the boundary of the State Tidelands Trust, a legal designation that limits land
Jack London Square
use to maritime, regional serving, and recreational uses. Specifically at Howard Terminal,
the
planned
residential
development could take place only where it is more than 400 feet from the shoreline. The site is located on infill and faces
Figure 3.50: Surrounding Land Use 79
Current Conditions for Howard Terminal
contamination problems from port uses. Contaminants were found in the fill layer
880
eet
of the soil and the 3-inch surface of the
980
et St
and annual monitoring of groundwater,
reet
rt Str Filbe
groundwater. Due to the existing soil cap
3rd
Mark
it is not currently posing health and
et ay
ecological risks, but a full remediation of
Stre
.K.J
r. W
the site is proposed before development
entity that contaminated the soil.
arc
ade
ro W
est
Stre
Emb
by the Port of Oakland because it was the
Clay
environmental remediation is financed
et
M.L
to meet residential standards. By law, the
Port of Oakland
Jack London Square
Figure 3.51: Tidelands Trust and Residential Restriction Boundary
Figure 3.52: Site Contamination Issue Resulted from Land Fill and Port Use | Source: John Barnhill 80
HOWARD TERMINAL
THE NEW HOWARD TERMINAL WILL BE A TRANSIT AND EMPLOYMENT CENTER THAT SERVES NOT ONLY THE REST OF OAKLAND BUT ALSO THE WHOLE EAST BAY AREA.
GOAL 1 - Encourage the growth of job opportunities for local residents GOAL 2 - Establish educational and job training programs GOAL 3 - Create efficient and attractive public transportation options GOAL 4 - Create a waterfront accessible to all residents New Transit Hub Howard Terminal will be the next regional transit hub where multiple modes of transit all come together within a quartermile walking distance. The plan proposes to relocate the Amtrak station and ferry terminal from Jack London Square, and reroute existing bus routes servicing Jack London Square to include Howard Terminal’s waterfront. The new streetcar system connecting to West Oakland,
Figure 3.53: Jack London Square | Source: Xue Jin
Downtown, and Emeryville will also serve the site and integrate into the existing transit network.
eet
880
et St
Filbe
New Employment Hub
reet
rt Str
980
3rd
Mark
The new development of the site will
.K.J
r. W
area as well as downtown and nearby
it would be developed for non-port uses. Port of Oakland
arc
ade
ro W
est
Stre
Emb
the port will continue to own the land, but
Clay
similar to Jack London Square because
et
M.L
neighborhoods. The development will be
The job training center will be the main
et ay
better connect it to the surrounding
Stre
focus of the site and promote economic development. It aims to connect West and East Oakland residents to the site through professional training which will empower Jack London Square
residents with economic mobility. The main land use for the site will be mixed-use office and commercial with residential in the allowable areas, determined by the Tide Lands Trust. The commercial space would be located at the
Figure 3.54: Proposed Transit System 81
eet
880
reet et St
Filbe
rt Str
980
3rd
Mark
street level, facing the main thoroughfare
Stre
r. W
ay
where most pedestrians would access the
M.L
.K.J
site and the ferry. Mixed-use office space
demand needs to be met. By developing
arc
ade
ro W
est
Stre
office space, but also because there is a
Clay
Emb
would play off of the synergy of downtown
et
would fit the site not only because it
lack of Class-A office space in Oakland and
et
Port of Oakland
Class A office spaces with primary access to transit, we hope to draw the demand from downtown to our site. The primary focus is to serve and provide additional
Jack London Square
middle-income jobs. With accompanied retail and residential development, the site has the potential to become a very active 24/7 district and will help catalyze activities in the nearby Jack London Square.
Policy The policies at the site include tax
Figure 3.55: Land Use Mix
JOB TRAINING CENTER
COURTYARD OFFICE SPACE
breaks for local employment. A company located at the site can receive a tax credit similar to the federal government’s Work Opportunity Tax Credit if they hire Oakland residents. The site would also be designated an Enterprise Zone
Office
Office
Job Training
Office + Retail
to encourage companies to locate in this underserved area by providing tax incentives. A workforce development program would be established at the site to
FLEXIBLE RESIDENTIAL SPACE
OFFICE WITH PARKING GARAGE
provide nearby residents an opportunity to improve their employability skills
Residential
similar to the West Philadelphia Skills
Office
Initiative. This will help create a resilient
Office
Parking
Parking
Office + Retail
Office + Retail
city by providing residents with the training needed to hold middle-wage jobs in the local economy. Also, a partnership between larger stable companies and local public schools should be established to provide funding for education and after school programs focused on STEM skills and college readiness in underserved areas of Oakland. 82
Figure 3.56: Block & Building Typology
HOWARD TERMINAL
Site Plan
We s
880
t Oa
Filbe
street grid that carries the block size and
et St
streets from the existing urban fabric. A
3rd
Mark
typical block size in Downtown Oakland
Stre
Dow
nto
et
wn
Oak
land
.K.J
arc
parking garage and courtyard office
ade
ro W
est
Stre
Emb
Two major building types, office with
Clay
flexible parcel and building typologies.
et
M.L
the block size to be 300ft*300ft, with
from tenants and further break down the
980
r. W
and layout of the site, we determine
space, will accommodate different needs
d
ay
is 300ft*200ft. Limited by the actual size
klan
reet
rt Str
eet
The site plan starts with creating a
Port of Oakland
blocks. Currently, people can only access the site through two main streets - Market Street and Martin Luther King Junior Way
Oakland Waterfront
due to the Amtrak barrier. We propose to open up Filbert Street, and create a
Jack London Square
street hierarchy for the site. The primary boulevard is a complete street that also accommodates buses and shuttles. Adjacent to the entry plaza, a generous
Figure 3.57: Street Hierarchy
public space with wide sidewalks will be created. Secondary streets enable oneway commutes into and out of the site
Figure 3.58: Primary Street Section
as well as waterfront access. The local streets create small-scale, intimate space for commuters and office users. All streets on site are bike friendly, with additional bike access along the waterfront’s Bay Trail. The open space system also reiterates Howard Terminal’s relationship with adjacent sites. The landscape buffer to the west will separate the site from maintained industrial and port uses, and a green bridge to the east will connect the site with Jack London Square. When entering Howard Terminal from various public transit modes, the entry plaza, with a direct view of the waterfront park, welcomes the commuters. The park serves to maximize public access, maintain Howard Terminal’s original industrial spirit with the cranes, and provide space
Source: Milwaukee Lakefront Gateway Plaza Design/ Smart Growth America/ Architectus
83
for temporary programing. Ferry, water taxi, and the bay trail enable people to enjoy the park’s great views from different perspectives. Overall Howard Terminal will become a dynamic and healthy office, retail, job training and residential destination for the city and region.
Costs for Howard Terminal Much of the cost to develop Howard Terminal will come from private capital. The
buildings
will
be
constructed
by developers and development will be driven by market demand. The environmental remediation likely needed on the site has to be paid for by the Port of Oakland based on an environmental remediation law that states the company who contaminated the site has to pay for remediation. The cost is estimated to be $133 million to remediate up to standards of residential living.72 The Port of Oakland can utilize the US EPA Brownfields Grant, the Revolving Loan Fund Program through the state government, as well as Cleanup Loans and an Environmental Assistance California 880
eet
980
rt Str Filbe
cost of remediation. The parks and open
et St
space cap be paid for by fees charged to
3rd
Mark
developers. The maintenance cost for the parks can be funded by an added charge
r. W M.L
.K.J
The funding for the job training center could come from a variety of sources, but
Emb
mainly grants and donations. A nonprofit is typically created to run the center, which will avoid charging prohibitive fees and tuition to trainees. Some sources
et ay
to parking fees.
Stre
Port of Oakland
arc
ade
ro W
est
et
both
Stre
Loan
Clay
Neighbors
funding programs to help pay for the
reet
to
for funding can include the Workforce Innovation Fund, the Social Innovation Fund, grants from the Pew Charitable Trust, United Way, and the Claniel
Jack London Square
Foundation. The center can also ask for voluntary donations from businesses who recruit trainees. The cost to train local residents will range between $1,200 and $33,300 per person depending on the program and the duration of training. 73 84
Figure 3.59: Open Space System
Figure 3.60: Waterfront Park
Source: Arup, Milwaukee Lakefront Gateway Plaza Design Competition, Privately Owned Public Space | NYC Department of City Planning, The City of Portland
Figure 3.61: Open Space Precedents 85
3.3 SITE PLAN
COLISEUM A HEALTHY COMMUNITY DESIGN
Figure 3.62: Site Plan for Coliseum
86
COLISEUM The Coliseum area in 35 years is envisioned to become a healthy community that will support employment, residential development, and the improvement of public health in the local area.
Current Conditions The Coliseum has had the reputation of being a major sports center for fifty-
Damon Slough
years, and is currently home to the Oakland Raiders, Oakland Athletics, and Golden State Warriors. This area consists of two sports venues: Oracle Arena for professional basketball and special events, and the O.co Coliseum for professional football, baseball and special events. Surrounding the sport venues are giant surface parking lots. In the southwest portion of the site facing San Leandro Bay, there are big box industrial buildings with surrounding parking lots. Consisting of approximately 300 acres along Interstate 880 (I-880) and adjacent
Martin Luther King Jr Regional Shoreline
Figure 3.63: Existing Wetland
to a BART station and an Amtrak station, the
Coliseum
possesses
important
transportation assets to support the creation
of
a
thriving
new
urban RT
BA
district over the next 35 years. With the
n
io at
St
completion of the elevated rail shuttle (Oakland Airport Connector) to the Coliseum BART station in Fall 2014, the Coliseum is no more than 15 minutes tat kS tra
Am
away from the airport. Yet the presence
ion
of the freeway and railroads separate the waterfront from the city and East Oakland nieghborhoods. Wetlands exist at the waterfront, such as the Martin Luther King Regional Shoreline, and the Damon Slough. But because of the drought, the total wetland area has been decreasing, which causes the species living in the wetlands to be endangered. The lack of wetland surrounding the site will also lead to flooding with heavy rains or sewer overflow. Unique natural resources make this area a great opportunity to be developed into a community with an
Ground Barrier Elevated Barrier
Figure 3.64: Surrounding Land Use 87
Existing Plan for Coliseum Site attractive open space system which also serves as green infrastructure to address stormwater and create valuable habitat.
Existing Plans for the Coliseum Area The City of Oakland issued Coliseum Area Specific Plan in April 2015. The Specific Plan established the basis for land use and regulatory policies, and public-private investment that will coordinate phased development over the next 20 to 25 years. One of the goals in the Specific Plan is to create a state-of-the-art sports and
VISION AND SUMMARY
entertainment district that reinvents
Figure 3.65: Aerial View of Current Coliseum Site | Source: oraclearena.com
the sports experience in the Bay Area. However, we do not believe that all three sports teams are staying - the Golden State Warriors have already confirmed
Sub-Area B Commercial / Light Industrial
Sub-Area D Airport and Logistics Related
Sub-Area E Waterfront Open Space
moving to Mission Bay in San Francisco,
& EBMUD Operations
Sub-Area C Manufacturing/R&D District
and it is unlikely that the Raiders will stay. This leaves the Oakland A’s baseball team as the only team left at the site. Also as a result of the completed analysis, the Coliseum can better serve Oakland and its residents as a strong mixed-use district instead of as a sports destination. Another critique for the existing plan is
Sub-Area A Sports & Entertainment
the goal of an ‘airport city’. The Oakland
Chapter 1
& Transit-oriented Mixed Use
CHAPTER 1
Airport Connector and the Oakland International Airport are believed to be powerful engines of local economic development. But, the airport will be 1.3.3 Land Use Plan
FigureJRVD+City 1.2: Coliseum Area Plan Conceptual Buildout Figure 3.66: Coliseum Area Specific Plan Conceptual Buildout | Source: ofSpecific Oakland
Source: JRDV / City of Oakland
10
underThe water just 1 foot sea level Specificafter Plan establishes an appropriate mix, density and orientation of development rise. Once the airport is inundated, the uses to improve the business environment and provide opportunities live, work and so-called airport city will tosuffer. Instead play in the Coliseum Plan Area. It outlines
tivate economically airport, wea physically proposeattractive, that this site should
AM TRA K
healthy and socially animated district, where utilized as not another very mixedone does currently exist.strong See Figure 1.3 for a conceptual mix of land uses.
COLISE UM WAY
use neighborhood.
A
DR O SA N LE AN
HE
ST .
BA LD W I
GE
NB
ER
GE
R
N ST .
EN TE RP
AY RI SE W
RD EDE S AVE .
880 FWY
E B
C
HE GE NB ER
SAN LEANDRO BAY
D
Martin Luther King Jr Regional Shoreline Park
RR
LEGEND Transit Oriented Mixed Use Sports Mixed Use Commercial/Light Industrial
GE
To implement the Specific Plan’s Vision, the Specific Plan provides strategies that will be able to adapt to future decisions regarding the sports franchises and respond to changes in market conditions. In particular, the Specific Plan allows for a variety of alternative development scenarios within the limits of available and future infrastructure (See Figure 1.4). If one or more of the new sports venues is not constructed, for example, the Specific Plan’s allowable development program could be built at a lower Floor Area Ratio (FAR), resulting in non-sports uses, such as Science and Technology, housed within buildings of lower height.
66 TH AVE
be
* *
BAR T
of the land planned dedicated to the use andmini-city urban design policies to cul-
D
Manufacturing/R&D Regional Commercial Airport-Related Logistics Open Space Utility Transit Station Sub-Area Boundary
*
N
Figure 3.67: Conceptual Land Use Plan | Source: JRVD+City of OaklandwFigure 1.3: Conceptual Land Use Plan 88
COLISEUM
THE NEW COLISEUM WILL BECOME A HEALTHY COMMUNITY PROVIDING HOUSING, JOBS, AND WATERFRONT ACCESS
GOAL 1 - Build a regionally significant jobs and housing area GOAL 2 - Create a high density TOD mixed-use district GOAL 3 - Create an accessible waterfront and open space network Site Plan The current stadiums will be replaced by a new baseball stadium more suitable in size and use. Development will be a mix of commercial and residential uses with a high-density core near the new baseball stadium and a TOD around the existing BART station. Major wetland restoration is also a focus of the plan, which serves our environmental and public health goals. Our plan for the healthy community proposes significant wetland restoration along the coast and channel to protect not only the endangered species, but also the site’s future development against flooding. There will be green bridges for pedestrians connecting the residential area to the mixed-use core across the freeway. In addition, Coliseum Park will provide a large public open space for people on the site and in the surrounding communities. A high-density development will take advantage of the good transit access, especially in the mixed-use district near the transit center. Although the area surrounding the BART station will be transit oriented, the heights of the
Primary Street Secondary Street Trail
buildings taper off towards the existing single-family
housing.
Also,
building
heights near the waterfront taper off to
Figure 3.68: Proposed Street Hierarchy
maximize the views of the estuary. In terms of land use and programming, the southern border of the site will be a mix of office space, and a biotech flex
89
Green Bridge
office space with labs. This will utilize the momentum of the existing proposal for
Coliseum Park
an R&D district south of the site and can increase employment for local residents who are trained as lab technicians at Howard Terminal. There will also be a the newly built sports stadium, where primary health care services will become an important driver. The goal is to diversify
nd tla We
high density mixed use development near
the job market and make the site more economically resilient. Together with the wetland, Coliseum Park, and other public open spaces, the plan approaches individual health improvement in a holistic way.
Economic Development The coliseum site will be the location of an enterprise zone. This will encourage local hiring of Oakland residents. Based on the mix of jobs at the site, it will support the job training center at Howard Terminal.
Figure 3.69: Environmental System GREEN BRIDGE, VANCOUVER
PRECEDENT: QUNLI WETLAND PARK, CHINA
The site will connect the residents of East Oakland to middle-wage jobs. The local businesses, especially those in R&D, biotech, and the offices located in the core of the site will partner with local schools to provide mentoring and apprenticeships through a public-private partnership. The southern portion of the site will feed off of the science and technology cluster that is starting to exist, but is also proposed in Oakland’s Coliseum plan. R&D has a low vacancy (7%) in the East Bay which means it is in high demand.74 This should be included in the first phase of job creation at the site. This use will provide a buffer between the existing industrial space and the proposed mixed-use core of the site. San Jose has a very successful biotech development, the Biocube, with flex office space and labs for life science and clean 90
Figure 3.70: Precedents for Environmental System
COLISEUM technology.75 This type of development and occupant would be well suited for the light industrial R&D proposed area of the site. It could house many pharmaceutical research companies, which are notorious for both providing middle-wage jobs as well as partnering to fund initiatives to improve STEM education. They are also very willing to work with the jobs training center and have been known to hire lab technicians from accredited jobs training programs. Another big sector that will tie the Coliseum site to Howard Terminal and the workforce development center is healthcare. Healthcare is a high need industry in the East Oakland and Fruitvale neighborhoods.76 Hospitals are about 20 minutes away by car. Doctor’s offices,
Ground Level Retail
preventive care, and social services are
Residential
needed on the site. These uses can be
Mixed Use Office (Hightech, Bio Lab)
integrated into the core of the site to provide easy access for the surrounding neighborhoods. nurses
aids,
Professions healthcare
IT,
such
as
medical
secretary positions can be taught at the workforce development center and with the transit connections, some of the training can be provided on site and at the center. The main economic development premise of the Coliseum site is to find what industries are in demand and fill that demand. Diversification of employment sectors in Oakland instead of relying on the traditional Tech sector for the area will make the city more resilient to booms and busts in the economy.
Figure 3.71: Building Typology 91
92
COLISEUM
93
3.3 SITE PLAN ALAMEDA POINT OPPORTUNITY AND ISOLATION Background At 1,560 acres, the former naval air station at Alameda Point is nearly a quarter the size of the entire island of Alameda. Its 878 developable acres have the potential to change the face of the East Bay. Today, Alameda Point is home to a range of businesses, including clusters in food
ALAMEDA POINT NORTH
production, clean technology, artisan products, specialty wine and spirits, recreation, among others. Notable uses include “Spirits Alley,” a row of distilleries and vintners in the northern section of the site; the Alameda Point Antiques Faire, located in the north-west, which draws thousands of visitors to the area TOWN CENTER (PHASE 1)
monthly; and autonomous vehicle testing by companies like Mercedes and Google, which take advantage of the site’s wide open tarmac. The site is also home to the USS Hornet, a former naval aircraft carrier that is today a permanent museum on the southwest corner of Seaplane Lagoon. Despite a variety of uses, Alameda Point is dominated by expansive areas of open pavement. The site is relatively
ALAMEDA POINT SOUTH
isolated from the surrounding residential neighborhoods, which are fairly low density, due to largely separate street network and a circulation pattern that directs traffic around rather than into the site – vestiges of the site’s history as a restricted base. The site lacks both easily accessible amenities and access to regional transportation networks. Nonetheless, Alameda Point is home to perhaps the best views of San Francisco in the Bay – and it is, for the most part, a blank slate, ready to be crafted to new
Figure 3.72: Site Plan for Alameda Point North and South, inclusing existing plans for the Town Center site.
94
users’ needs.
ALAMEDA POINT PORT OF OAKLAND
Existing Plans for the Site
ALAMEDA POINT NORTH
VA HOSPITAL
The naval station closed in 1997. Since then, the city has been through three separate planning processes to develop the site. The first master developer
WILDLIFE REFUGE
ADAPTIVE REUSE TOWN CENTER (PHASE 1)
dropped out when the Navy sought to charge over $100 million for the site. To justify the Navy’s price, the second master developer planned 4,800 units for the site – a concept that residents overwhelmingly rejected amid concerns
SAN FRANCISCO BAY
SEAPLANE LAGOON
about density and congestion. The Navy finally agreed to convey the site to the city at no cost in 2011 with the condition
ALAMEDA POINT SOUTH
that no more 1,425 units be built. The city agreed to this proposal and, in line with residents’ expressed preferences, declared that the focus of the site would be jobs development – not housing.
Figure 3.73: Existing Site Plan the rate at which developers are typically
the idea of attracting a single master
The Future of Alameda Point
Alameda Point’s disconnection from the
developer; instead, the site has been split
Alameda Point is one of very few large,
region and lack of urban amenities make
into separate sections to be developed
open development sites in the Bay Area.
it undesirable for companies who have a
separately. The first section that will be
Development on the site has the potential
range of other proximate options. Higher
completed, for which a developer has
to make measurable impacts on housing,
residential densities on Alameda Point will
already been secured, is the central “Town
jobs, transportation, and environmental
support new transportation infrastructure
Center,” which is slated to include 800
issues. Existing plans for the northern and
and a mixed-use urban fabric to that will
residential units – 25 percent affordable
southern portions of the site will produce
attract new commercial demand. Greater
– and 600,000 square feet for commercial
disconnected, suburban residential and
densities will also help finance the level of
space. The development will include a
office-park developments at even lower
environmental infrastructure that will be
new ferry terminal just east of the USS
densities than exist elsewhere in Alameda.
necessary to protect the site from future
Hornet. The area to the south of the Town
Moreover, demand for new commercial
threats.
Center, which extends for over 200 acres,
construction in Alameda is exceedingly
The process of developing Alameda Point’s
is zoned entirely for commercial uses. The
low. In Alameda North, the office market
878 usable acres will take decades. As the
city has stated a desire to attract a major
that includes Alameda Point, the average
city pursues its plans, it should do so in a
anchor tenant around which others may
asking rent is $29.52 square foot per year,
manner that ensures the site’s maximum
cluster. The area to the north of the Town
which is about $15 less than the average
adaptability to future market shifts. Unlike
Center, labeled the “Main Street” area, is
asking rent in Oakland.77 This rent price
Howard Terminal and the Coliseum
zoned for residential use. With the overall
is one of the lowest for the entire Bay
district, it is less clear which industries
limit to 1,425 units on Alameda Point, the
Area. Additionally, as of the 3rd quarter
(or types of residents) will find the site
Main Street area will be limited to 600
of 2015 office vacancy on the island sits
most attractive when new construction
units – averaging 2 units per acre.
at 30.9 percent -- three times higher than
becomes feasible.
Currently,
the
city
has
abandoned
willing to build new.78
95
alamedapointenvironmentalreport.wordpress.com
Views of San Francisco
skytamer.com
Naval Air Base
96
alamedapointantiquesfaire.com
USS Hornet Museum
Large Scale Events
ALAMEDA POINT
Wide Open Spaces
l.yting.com
TV and Film Production
fortunedotcom.com
Autonomous Vehicle Testing
97
3.3 SITE PLAN
AP SOUTH ADAPTABLE ECONOMIC DEVELOPMENT Site Plan Spanning over 200 acres, the area south of Alameda Point’s Town Center should seek to attract a diverse range of businesses and residents in a dense urban fabric that transitions seamlessly to surrounding neighborhoods. A mixeduse, amenity-rich, transit-focused, and environmentally
integrated
site
will
set the stage for increased commercial demand. New transit options will relieve additional pressure on the transportation system as Alameda Point expands, and environmental infrastructure will create a solid base where development will be ready for the site’s varied natural threats. To reach full build-out in the mold described above, the city will need to pursue a strategic plan spanning from programming interventions in the short term to phased transit improvements and a new zoning code that will shape development. The following strategies will help implement the goals.
Figure 3.74: Site Plan for Alameda Point South
0
98
1/8
1/4
1/2 mile
AP SOUTH
1. Program major site resources to draw users into the site. Designate the nearly 16-acre parking lot directly adjacent to the USS Hornet as a rentable space for concerts, fairs, and other outdoor events. In the short term, programming the site will raise awareness about its size and potential and it will draw significant foot traffic to the area – especially as the Town Center development begins to come online. Pairing even space with the USS Hornet will raise the profile of that tremendous cultural resource and help to give the site a distinct identity. Figure 3.76: The lot beside the USS Hornet could be programmed with large events to draw visitors in.
2. Redirect circulation into the site rather than around it in order to better integrate the site with the rest of the city. (a) Establish a future streets plan that will dictate the location of future rightsof-way in a tightknit urban grid with new connections to adjacent neighborhoods wherever possible, (b) redirect Central Avenue to flow directly onto West Ticonderoga Avenue instead of onto Main Street in order to draw circulation into the site, and (c) install a traffic circle at West Ticonderoga Avenue and Orion Street to privilege Orion Street as a major site thoroughfare. As a Naval base, Alameda Point was not meant to be easily accessible by outsiders. In order to transition the site to a seamless neighborhood in the city, its circulation pattern must be integrated into the whole. A future streets plan will put developers on the hook to follow an efficient urban street grid that will be adaptable to diverse future uses. Diverting traffic off of Main Street from Central Avenue will draw traffic into the site and open up opportunities to create lively, Figure 3.75: Development should foster active street life with retail and an attractive public realm, building off of the base’s distinctive architecture with the addition of environmentally sensitive infrastructure. 99
well-traveled interior streets, contrasting
professional offices, cultural facilities,
and streetscape elements to provide an
with the wide and fast expanse of Main
residential
outdoor public amenity, prevent flooding
Street. The new traffic circle will then
entries, and other active uses.
units
with
individual
during high rain events, and collect
privilege Orion Street as the main cross-
Streetfronts designated for the “Active
graywater for local irrigation.
island thoroughfare within the site.
Ground Floor Use” should be overlaid on
Designate the Green Streets and Corridors
Orion Street and West Ticonderoga Avenue
as indicated in the Green Network Map
3. Accommodate active ground floor
from Orion Street to Central Avenue,
(See Figure 3.87) as priority locations
uses in new development along major
as well as at any critical neighborhood
for
corridors.
transition intersection or around any new
rain gardens and sidewalk rainwater
Establish “Active Ground Floor Use” zones
major public spaces.
collectors; and establish a new central
with the following standards to ensure
Building off of the new traffic pattern
park space on the northern portion of the
designated ground floors will include
established in the last recommendation,
site, around which dense urban office and
active uses and design. The zone should
active ground floor use zones will
residential development should cluster.
dictate:
further privilege Orion Street and West
Public amenities such as parks and
Ticonderoga
site
attractive streets appeal to residents and
thoroughfares. Active ground floor uses
employers by creating a stronger sense
will create a lively urban streetscape,
of place and providing an opportunity to
inviting
and
interact with a diverse range of people.
• Wall openings should comprise at
automobiles. These standards expand on
Additionally, if new public spaces do not
least 70 percent of the façade facing
the definitions put forward in Alameda’s
serve the dual purpose of providing public
the major street.
Town Center and Waterfront Precise Plan
amenity and managing environmental
and extend their reach along major roads.
hazards such as flooding, then the site
• Building entrances at least every 70 feet. • Interior ground floors should be level with the adjacent sidewalk.
• Outdoor café seating is permitted.
to
Avenue
as
pedestrians,
major
bikers,
uses
include
retail,
infrastructure,
especially
risks major damage as the climate
• Awnings and canopies are encouraged. • Permitted
green
4. Establish a green network of parks
changes. Alameda Point’s green network should establish at least one central green
PORT OF OAKLAND
PORT OF OAKLAND
VA HOSPITAL LL
ATLANTIC
SEAPLANE LAGOON
PACIFIC
CENTRAL
100
PACIFIC
CENTRAL
SAN FRANCISCO BAY
Figure 3.77: Existing Circulation
ORION
ORION
FERRY POINT
SEAPLANE LAGOON
WILDLIFE REFUGE
LL
MAIN
MAIN
ATLANTIC
WILLIE STARGE
W. MIDWAY
FERRY POINT
WILLIE STARGE
W. MIDWAY
SAN FRANCISCO BAY
Figure 3.78: Existing Circulation
AP SOUTH space away from the waterfront around which interior blocks can be oriented, and development should accommodate on-street and alleyway rain gardens to increase attractiveness and permeable
ATLANTIC AVENUE
space.
MAIN STREET
5. Connect new transit options together at a new ferry terminal transit hub, and provide ample provide space for a BRT
SEAPLANE LAGOON
or light rail system, which may become feasible in the future with increased
PACIFIC AVENUE
Transit systems should join together at a central hub to maximize local residents’ access to local and regional destinations.
ORION
FERRY POINT
density.
This will also provide a focal point for transit-oriented mixed-use development. To
prepare
for
future
TICONDEROGA
population
increases, ample road width and station space should be provided for BRT and light rail options. More detail is provided
HORNET
in the transportation section of this plan.
0
1/8
1/4
1/2 mile
Figure 3.80: Active Ground Floor Use zone (orange) and green network.
After
TICONDEROGA
OL NC LI
LI
IN
IN
NC
MA
MA
OL
N
N
Before
TICONDEROGA
NT
RA
CE L
HANCOCK
HANCOCK
CE
NT
RA
L
Figure 3.79: Reorientation of Central Avenue will re-establish the street grid and draw traffic into the site 101
around a new major public open space,
ensure a diverse range of users on the
should accommodate office, retail, and
site, this zone should restrict residential
residential uses – not just across the zone
uses yet still remain fairly narrow
but also within any building constructed.
geographically, in order to minimize
The heart of the site, adjacent to the new
the potential for “dead zones” in street
6. Implement adaptable and attractive
Town Center, has the potential to attract
life. Moreover, dead zones should be
building standards in designated zones
large corporate tenants in the mid- to
minimized by the use of high street
as defined by the Development Zones
long-term; but, regardless of who initially
frontage and transparency requirements.
Map (Figure 3.81) in accordance with
occupies buildings, the structures should
In Zone D areas, uses should be limited
Recommendation 5 in the Economy
be built to standards that will allow future
to Light Manufacturing, Food Production,
section of this plan, including both
users to easily adapt them to any allowed
R&D, Wholesaling & Distribution, Office,
form-based requirements and usage
use, as is recommended in the Economy
Retail,
limitations in areas where a particular
section of this plan. This will extend the
(excluding residential) built to standards
commercial use should be privileged.
lifetime of the structure and allow a
defined in Figure 3.82. Just off of the site’s
In Zone A areas, uses should be limited
greater diversity (and continuity) of tax
major thoroughfares and adjacent to the
to residential with ground floor retail
paying users.
waterfront, larger floor plates, greater
and buildings should be constructed to
In Zone C areas, uses should be limited to
setbacks, and higher ceilings will be
adaptable standards defined in Figure
Light Manufacturing, R&D, Wholesaling
appropriate to allow for certain space-
3.82. Purely residential zones should
& Distribution, Office, Retail, and other
intensive uses. The marine industry in
provide two functions: to transition
compatible uses (excluding residential)
particular, which is well suited to Alameda
between adjacent low-density residential
built to standards defined in Figure 3.82.
Point, must be provided locations in which
neighborhoods and to maximize the
In this district, structures should also
to expand. While these structures may not
number of people living in close proximity
be built to adaptable standards as is
be as adaptable as others on the site, they
to transit hubs.
recommended in the Economy section
should be held to fairly high frontage and
In Zone B areas, uses should be limited to
of this plan, but uses should be limited to
transparency standards to ensure a dense
professional offices, retail, residential, and
commercial types. Light manufacturing
urban fabric and active streetscape.
other compatible uses built to standards
and R&D users require some insulation
defined in Figure 3.82. The core of the site,
from high residential rents. In order to
and
other
compatible
Zone A: Residential Townhomes
Source: Lennar Corporation
102
uses
Zone B: Commercial Mixed Use
B A D
0
1/8
1/4
Zone C: Commercial Flex
C A 1/2 mile
Figure 3.81: Alameda Point South Development Zones
Zone C: Commercial Warehouse
Zone B Zone C Zone D Mixed Use Flex Warehouse Street frontage (%)
90% (front); 80% side
80% (front); 60% (side)
40% (front and side)
Ground floor height
12 ft (single story); 18 ft - 24 ft (double story)
12 ft (single story); 18 ft - 24 ft (double story)
12 ft (single story); 18 ft - 36 ft (double story)
Ground floor depth
50 ft - 150 ft
50 ft - 150 ft
--
Upper floor height
9 ft - 12 ft
9 ft - 12 ft
9 - 14 ft
Upper floor depth
50 ft - 70 ft
50 ft - 100 ft
--
Maximum height 60 ft 40 ft 40 ft Allowable uses Professional offices, retail, Light Manufacturing, R&D, Light Manufacturing, R&D, residential, and other Wholesaling & Distribution, Food Production, Wholesaling compatible uses Office, Retail, and other & Distribution, Office, Retail, compatible uses and other compatible uses (excluding residential) (excluding residential) Figure 3.82: Building Standards for Alameda Point South zones 103
3.3 SITE PLAN
AP NORTH ENVIRONMENTALLY SENSITIVE DENSITY Current Conditions As part of the ongoing process of redeveloping Alameda Point, and in accordance with the General Plan, the City is currently drafting a specific plan for the Alameda Point North “the Main Street Neighborhood”. The city’s current vision limits the number of residence on alameda Point to 1,400.
ALAMEDA POINT NORTH
When you subtract the 800 units going in at “Site A” this leaves the Main Street Neighborhood with a population density of approximately 2/acre. Considering the majority of Alameda is approximately 9du/acre (Figure 3.84) this is far more suburban than the existing fabric of the island and nowhere near the 20du/acre needed to support mass transit. And the guidelines for sea level rise require future developments to plan for TOWN CENTER (PHASE 1)
18 inches. While sea level rise is predicted to rise about 4.5 feet by 2100, the region is prone to storm surges, which can temporarily elevate the water table by an additional 4-6 feet. Under the existing scenario, the Main Street Neighborhood is destined to be
Figure 3.83: Site Plan for Alameda Point North
a
sprawling
suburban
development,
dependent on cars, prone to flooding, with an overcrowded school system that only 0
1/8
1/4
1/2 mile
the wealthy can afford. But what if there was a way to increase the density without increasing traffic? Or a way to provide affordable housing which could still cover the cost of the hefty infrastructure? With the frameworks of our Resilient East Bay 2050 plan we envision a future where all of these are possible.
104
AP NORTH
Figure 3.84: Aerial of a typical Alameda neighborhood at 9 dwelling units per acre
Figure 3.85: Aerial of Alameda Point North 105
PHASE I: BAY TRAIL + FERRY EXISTING FERRY TERMINAL
Site Plan Phase 1: Bay Trail + Ferry The plan for Alameda Point North would begin with increased ferry service. This would help alleviate the existing demand since the ferry is already over capacity. It
ALAMEDA POINT NORTH
would also serve as vital infrastructure in the event an earthquake shuts down bridges and tunnels. Extending the bay trail would help connect people to the waterway and expand the regions’ bike network. But it would double as a levee to guard against sea level rise and storm surge. In the plan
TOWN CENTER (PHASE 1)
you can see the trail will dip around the existing industry to the east of the ferry terminal. We intend to leave the industry as is, but as sea level rise increases and barges become too big to access the inner estuary this section will eventually return back to wetland. By 2050 this area will become a natural habitat and a key part of the bay trail.
WETLAND RECLAMATION
106
PHASE II: MAIN DEVELOPMENT Phase 2: Main Development With the levee and bay trail in place to
mitigate
against
sea
level
rise,
development would begin along a central “green way” (Figure 3.86). This corridor would include passive green design which could hold up to 5 inches of rainfall in a 24 hour period (the amount estimated during el Niño). It would serve as a recreation space during dry weather and double as a storm water management system during ALAMEDA POINT NORTH
heavy rainfalls. Since developments located along park property typically charge a 1-3% rent premium, the additional revenue can be used to fund the storm water system. The buildings would extend five stories.79
TOWN CENTER (PHASE 1)
Phase 3: Completion After the build out of the properties along the “green corridor” the new development would extend to full build out. With the transportation
improvements
to
the
region, we expect reduced parking to be required to allow for more units. In total there will be about 3,000 new residents, and with the number of additional residents on Alameda Point South, the density will be great enough to
ALAMEDA POINT NORTH
support the BRT/light rail transportation phases,
help
expand
schools,
and
help manage sea level rise and storm water without overwhelming existing infrastructure.
TOWN CENTER (PHASE 1)
PHASE III: COMPLETION 107
Figure 3.86: Central “Green Way”
108
AP NORTH
Figure 3.87: Waterfront Park
109
Figure 3.88: Rendering of the Central “Green Way” - Normal
110
Figure 3.89: Rendering of the Central “Green Way” - Flodding
111
IMPLEMENTATION & METRICS OAKLAND + ALAMEDA, CALIFORNIA
112
4.1 IMPLEMENTATION 4.2 METRICS
113
4.1 IMPLEMENTATION A DYNAMIC AND GROWING REGION This plan will follow a three-phase implementation strategy beginning with
Phase Two
Phase Three
Phase two includes years 6-15, and will
The third and final phase of Resilient East
intended
see a shift away from policy interventions,
Bay 2050 will occur from year 16 until the
to set the stage for future development,
focusing instead on more concrete
plan’s conclusion in year 35. During this
and slowly progressing to more concrete,
projects. Specific interventions during
phase, planners will focus primarily on
capital-intensive interventions.
this period include the purchase of new,
evaluating progress towards the plan’s
larger ferries, expansions of the San
key goals, and adjusting interventions
Phase One
Francisco Bay Trail, rerouting bus lines
accordingly.
Phase one of Resilient East Bay 2050
to Howard Terminal, establishing bus
include an expansion of the Alameda Self-
includes the first five years of the plan’s
rapid transit (BRT) on Alameda Island, and
Driving Car Pilot Program and potentially
life, and will focus primarily on creating
creating a new water taxi servicing the
also upgrading the Alameda BRT line to
the policies and partnerships necessary
Oakland-Alameda channel. During this
light rail.
to set the plan in motion. This phase
phase, the first signs of redevelopment at
As planners begin to take a more advisory
will also include minor infrastructure
Alameda Point, Howard Terminal, and the
role in the waterfront’s development,
projects, such as trail improvements, soil
Coliseum will become apparent.
private developers will assume more
policy-related
interventions
These
adjustments
may
remediation, and park expansions, which
responsibility for realizing the plan’s
will provide private developers with more
vision. Through the work of these
certainty about future development sites.
developers, a full build-out of the
The very first interventions realized
Coliseum, Howard Terminal, and Alameda
during this phase will be zoning reforms
Point will be realized prior to completion
to enable mixed-use, transit-oriented
of the plan in 2050.
development
at
the
Coliseum
and
Alameda Point. Howard Terminal will also be rezoned for mixed-use, but must first undergo an intensive soil remediation process, financed by the Port of Oakland. Once
this
increased
rezoning densities
has will
occurred, be
further
encouraged by improving ferry service through a new ferry dock at Alameda Point and an increased frequency in ferry service. New partnerships with autonomous vehicle developers and local organizations such as Urban Releaf will be created during this period, which will not only further the framework specific goals, but also buttress the plan by establishing grassroots support. The end of phase one (years 4-5) will see the beginning of more capital-intensive projects such as the Oakland streetcar.
114
Figure 4.1: Alameda BRT
Phase 1: 0-5 Years • Zoning updates
• Establish partnership with Urban Releaf
• Increase funding for TOD
• Soil remediation at Howard Terminal, Alameda Point, and Coliseum
• Self-driving vehicle pilot program • New Ferry Dock at Alameda Point • Bay Trail improvements • Increased ferry service
• New parks and wetland habitat at Howard Terminal and Coliseum • New Oakland streetcar
Phase 2: 5-15 Years • Relocating Amrtak Station and Ferry to Howard Terminal • Conduct airport wetland study • Adding bus service to Howard Terminal
• Extention of Bay Trail through the Waterfront
• Purchasing of new ferries
• New water taxi at Alameda Point North
Phase 3: 16+ Years • Light Rail study at Alameda
• Review and expand self-driving car pilot progam
Figure 4.2: Alameda Light Rail
115
4.2 METRICS A DYNAMIC AND GROWING REGION While much of the success of Resilient East Bay 2050 will be experienced as qualitative improvements in quality of life for local residents, there are several key metrics that will be met before the
Environment
Transportation
ll 25 miles of natural shoreline are
ll Four new transportation hubs are
preserved
established
ll The East Bay is protected from 4.5 feet of sea level rise uu Public access is provided for all
metrics are organized according to the
waterfront lots greater than one
interrelated and play a crucial role in the plan’s overall success
acre
surrounding
use uu TOD design improves pedestrian safety
uu Bay-Friendly Principles
Landscaping insure
waterfront
habitat for 90 endangered species and 250 species of migratory birds ll 2,000 trees are planted each year
ll Four
new
modes
of
public
transportation are established uu Diverse transportation system is less vulnerable to environmental and economic shocks
uu 75% of new trees planted are native or drought tolerant
ll 16 miles of new public transportation routes are added
uu No one species makes up more than 15% of the urban forest
uu Social and economic isolation is reduced across the East Bay Region
ll Air pollution and ambient noise levels reduced in high-risk neighborhoods ll •305 acres of airport tidal wetlands are restored
ll 23,000 – 60,000 new transit riders each day uu Major reduction in total green house gas emissions
uu Oakland International airport is
ll Extension and improvement of Bay
protected for 4.5 feet of sea level
Trail improves pedestrian access to
rise and local flooding from heavy
the waterfront and its parks
rain events uu Total bird strike events are reduced ll District heating and cooling systems implemented
at
Alameda
Point,
Howard Terminal, and the Coliseum uu Sets
precedent
for
future
redevelopment projects in the Bay and across the country ll 25 miles of public recreation trails established uu Expanded Bay Trail buffers shoreline habitat from development uu Interpretive signs and accessible viewpoints
improve
local
knowledge of the East Bay’s unique climate, culture, and economy uu Public access to the waterfront is restored 116
density
hubs reduces private automobile
plan’s completion in 2050. Although these document’s four frameworks, they are all
uu Increased
AP NORTH
Housing
Economy
ll 23,000 – 45,000 new housing units are
ll 123,000 – 239,000 jobs added at
constructed uu More
Howard Terminal and the Coliseum
diverse
housing
design
promotes economic diversity
flexible commercial spaces added at
ll Redefined TOD standards emphasize uu Better functioning TOD projects ABAG-MTC
affordable
agency
housing
goals
jobs-training center should be fluid
links
and move with the market demand for
to
each sector. If it was a static number
transportation funding uu TOD
projects
coliseum point ll The number of residents trained at the
network distances ll Merged
ll 1.5 million – 2.8 million square feet of
become
each year, the training program more
frequent uu Increased in percentage of housing quotas being met
would be less successful because it would not follow the market demands and provide trainees with a skilled job after program completion.
ll More adaptive design allows the
ll Tax incentives are provided for
housing stock to respond to market
businesses employing local residents.
preferences
ll Increased access to economic mobility for residents who live in underserved areas.
Figure 4.3: Coliseum plan from above 117
ENDNOTES 5. California Department of Finance, “Demographic Research - California Department of Finance.” Sacramento, CA, 2015. <http:// www.dof.ca.gov/research/demographic/dru/ index.php>. 6. American Fact Finder, U.S. Census Bureau, “2000 to 2010 Economic and Social Characteristics of US and Bay Area.” 2011. 7. Ibid. 8. Metropolitan Transportation Commission, “Vital Signs 2015 – Seaport Activity.” San Francisco, CA, 2015. <http://www.vitalsigns. mtc.ca.gov/seaport-activity> 9. American Fact Finder, U.S. Census Bureau, “2000 to 2010 Economic and Social Characteristics of US and Bay Area.” 2011. 10. Association of Bay Area Governments, “Projections 2009.” <http://www.abag.ca.gov>. 11. “The Planning History of Oakland California.” <http://oaklandplanninghistory.weebly. com>. 12. City of Oakland, “City of Oakland Historic Preservation: An Element of the Oakland General Plan,” p. 6. Oakland, CA, 1998. 13. “The Planning History of Oakland California.” 14. City of Oakland, “City of Oakland Historic Preservation,” p. 9. 15. “The Planning History of Oakland California.” 16. Ibid. 17. City of Oakland Community and Economic Development Agency, “Envision Oakland: City of Oakland General Plan, Land Use and Transportation Element,” p. 2-5. Oakland, CA, 1998. 18. American Fact Finder, U.S. Census Bureau, “2013 American Communities Survey: Economic and Social Characteristics of the City of Oakland.” 2014. 19. City of Alameda, “Charter of the City of Alameda, California.” p. 39. Alameda, CA, 2002. <http://alamedaca.gov/sites/default/files/ document-files/files-inserted/2012_alameda_city_charter_0.pdf> 20. American Fact Finder, U.S. Census Bureau, “2013 American Communities Survey: Economic and Social Characteristics of the City of Alameda.” 2014. 118
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