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Keeping “The Town” in Downtown: an Assessment and Recommendations to Support Racial Equity in the Downtown Oakland Specific Plan

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Keeping “The Town” in Downtown: an Assessment and Recommendations to Support Racial Equity in the Downtown Oakland Specific Plan Keeping “the Town” in Downtown: An Assessment and Recommendations to Support Racial Equity in the Downtown Oakland Specific Plan 2018 I-SEEED Equity Team (consultant to the Planning Bureau) City of Oakland Planning Bureau The I-SEEED Equity Team is led by the Institute for Social, Economic, Environmental, and Educational Design (ISEEED) With the partnership of: • Julia Liou and Mike Lok, Asian Health Services • Greg Hodge, Khepera Consulting • Jme McLean, Mesu Strategies, LLC • Eric Arnold, Oakulture • Kalima Rose, PolicyLink • Sarah Filley, Popuphood, LLC • Dwayne Marsh, Race Forward I. Introduction .................................................................................................................................. 4 II. Executive Summary .................................................................................................................... 5 III. Context for Racial Equity Work ........................................................................................... 12 IV. Purpose and Focus of this Racial Equity Assessment ................................................. 17 V. Assessment Methodology .................................................................................................... 20 VI. Racial Inequities in Oakland ................................................................................................. 24 VII. Priority Racial Equity Stakeholders .................................................................................... 46 VIII. Assessment of Community Engagement ........................................................................ 75 IX. Assessment of Adverse and Equitable Impacts in Proposed Land Use Options and Recommendations to Advance Equity .................................................................... 80 X. Assessment of Proposed Implementation Strategies ................................................. 83 XI. Discussion and Recommendations to Advance Equity .............................................. 86 XII. Conclusion .................................................................................................................................. 99 2 Photo credit: Eric Arnold 3 I. Introduction Throughout its history, the city of Oakland has been drawn and redrawn along the lines of race, with each evolution marked by major demographic and spatial transformation. Today, Oakland is amidst another transformation, one that offers its communities the promise of security and opportunity, or a continued legacy of struggle over power and access. Downtown Oakland is at the heart of the San Francisco Bay, a region renowned for its remarkable abundance: its talent, culture, innovation, beauty, and diversity. Downtown Oakland has the potential of becoming a breadbasket for all of the city’s communities, providing access to jobs, services, and goods to ameliorate the social, physical, and economic wellbeing of the city’s most valuable resource: its people. However, while many look to the growing crop of skyscrapers downtown as a sign of abundance and progress for the city, many longtime residents regard these buildings as a symbol of doom. As new jobs flow in, and new people flock to the city as in decades past, many longtime residents ask, will there be places to live? Will there be small businesses, jobs and economic opportunity? Will there be access to arts & culture? How will the city retain the unique identity that has set it apart from the rest? As the City of Oakland sets goals and lays out plans to shape downtown’s future, it must not look past widening income, health, and opportunity gaps affecting Oakland’s residents today. A racial equity framework is essential for ensuring that decisions today will improve conditions for all. Oakland’s diverse residents, workers, and partners know that racial equity is much more than words in a values statement. Racial equity is a concrete outcome to be realized for Oakland’s communities, and requires analyses and processes. For Oakland to achieve equitable development, equity must be embedded into the policy-making, program implementation and resource allocation decisions of the City government. This report summarizes the findings of an assessment of equity impacts and recommendations designed to support an equitable Downtown Oakland Specific Plan. It represents a first step toward developing the practices the City needs in order to keep the promise of “the Town” – a place where people from all racial/ethnic backgrounds, income-levels, genders, abilities, can thrive – alive. During the past 15+ months the Equity Team has supported a community engagement and equity process, which has centered the lived experiences, local knowledge, voices and visions of Oakland community members. Oaklanders spoke loud and clear about the importance of equity and inclusiveness in the Downtown Oakland Specific Plan (DOSP) process for a city with Oakland’s unique diversity, cultural history, growing innovation economy, and dynamic cultural assets. They shared the wisdom that comes only with the experience of growing up in the Town, making ends meet in the Town, and making it in the Town. They also shared strategies and ideas for getting from where we are and where we need to be for racial equity. While many Oakland residents feel immense pride in, and connection to their deep cultural heritage, many do not see their communities, cultural identities, or artistic traditions represented or supported in planning documents to date, the Oakland that has been emerging in recent years, or conditions that are rapidly displacing longstanding residents. 4 This memo draws from over 15 months of community engagement, research and analytical processes that included in-depth interviews, community leader trainings, community asset-mapping, equity meetings, neighborhood meetings, disparity data analysis, and more. This memo aims to align these ideas, people, resources, vision, into a comprehensive set of recommendations, analysis, and strategies for institutionalizing racial equity and putting it at the very heart of making a “Downtown for everyone.” II. Executive Summary The greatest threat to racial equity in downtown Oakland is the rampant displacement of communities of color—the businesses, cultural spaces, nonprofits and homes that community members can afford. When persistent disparities in income, housing cost burden, educational outcomes, transportation access, and health outcomes continue to worsen, market-driven development alone cannot mitigate these factors. Therefore, if downtown is meant to serve all the people of Oakland, its development priorities must be focused on utilizing its land use powers, infrastructure, cultural and civic investments, and its public lands to ensure the protection of people from displacement; the rehousing and repatriation of those who have been pushed out; the protection and investment in Oakland’s cultural heritage; a focus on youth; and a transparent and inclusive governance structure that prioritizes outcomes for people over capital. The Equity Team analyzed the disparity indicators identified in the Downtown Oakland Disparity Report and concluded that three population lenses should be brought to bear in prioritizing strategies for the City to pursue in advancing racial equity through the Downtown Oakland Specific Plan (DOSP): residents and businesses most at risk of displacement from downtown; Oakland residents needing access to downtown; and historically & culturally relevant communities. These three population lenses informed the selection of the top options that can deliver on racial equity in downtown because they highlight many of the same challenges impacting economically disadvantaged African American, Asian and Pacific Islanders, Native American, and Latino residents. The Equity Team made overarching procedural recommendations that will enable the realization of equity results from the implementation of the DTOSP [the detail of these recommendations can be found starting on page 76 of the full Racial Equity Impact Analysis]. Recommendation #1: Develop, codify and act upon a more nuanced understanding of Oakland’s communities of color. Recommendation #2: Augment the attention to “place-keeping” and “placemaking” with a focus on “people” in the land use options by linking health equity, social, economic, and cultural outcomes with changes to the built environment. Recommendation #3: Establish SMART (Specific, Measurable, Actionable, Relevant and Time-bound) goals for desired future conditions in the DOSP and clearly connect them with Implementation Strategies for the proposed land use options and specific equity targets. Recommendation #4: Define collaborating departments and articulate specific mechanisms for collaboration. 5 Recommendation #5: Structure ongoing community engagement and accountability infrastructure to co-design and deliver on equity. Recommendation #6: Apply and deepen the intersectional lens to the Downtown Oakland Specific Plan by explicitly considering health, local economic development, and long-term tenure of priority populations and businesses in all land use options and Implementation Strategies. Recommendation #7: Establish transparent measurement and accountability systems within the DOSP for formal adoption and enforcement. The Equity Team also evaluated the 115 strategy options identified by lead planners on the Downtown Oakland Specific Plan, Dover, Kohl and Partners, derived from a spectrum of stakeholder engagements, best practice research, and other
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