Berkeley Marina Area Specific Plan + Berkeley Pier/Ferry Facility Planning Study
COUNCIL WORKSESSION
February 16, 2021 Overview
• Introductions • Review Waterfront issues • Update on status of Pier/Ferry and BMASP projects • Discuss possible solutions and changes • Get City Council feedback History of Berkeley Marina
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 3 Berkeley Marina History
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 4 Existing Berkeley Marina
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 5 Berkeley Waterfront Regulatory Agencies + Land Use Restrictions
Land Use Restrictions • State Lands Commission – Tideland Grant Trust (1913) • BCDC - 100’ Shoreband Jurisdiction • BCDC – 199 Seawall Drive and Parking Lot – Fill Permit (1966) • City of Berkeley Measure L – Open Space Ordinance (1986) • Land and Water Conservation Fund (LWCF) Grants – (early 1980)
Regulatory Agencies • Army Corp of Engineers • BCDC • California Department of Fish and Wildlife • State Regional Water Quality Control Board • State Lands Commission
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 6 Economics of Berkeley Marina Area
Operating Revenues* Operating Expenses Berth Rental Fees (55%) Marina Operations Hotel Lease (21%) Waterfront Maintenance Other Leases (14%) Marina Capital Projects Other Boating Fees (5%) Fund Lease Management Youth Programming (2%) Recreation Programs Other (2%) Internal Service Charges Water-Based Recreation (1%) Debt Service Security Special Events
*Based on FY19 revenue
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/29/2021 page 7 Marina Fund Challenges
Reserves depleted in FY2022
Annual Change in Reserve Balance End of Year Reserve Balance
2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 2024 2025 2026
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/29/2021 page 8 Marina Fund Challenges
• Marina Fund was never set up to succeed. • Low berther fees for decades • Lack of capital replacement fund • Lack of infrastructure replacement
• Fund has now reached the tipping point. • Safety and security issues • Failing infrastructure • COVID-19
• Revenue unable to cover basic operating expenses.
• No additional funds for > $100M in infrastructure needs.
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/29/2021 page 9 Waterfront Funding Gap BMASP Process
Future CIP Identify community supported potential Needs Funding Gap* (G) solutions for new revenue generation
Community Input Process
On-Going O&M Viable Solutions
Funding Gap (G) Revenue Expenditure (R) (E)
*Funding Gap will include sufficient and stable stream of funding to support 5-year CIP Plan
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/29/2021 page 10 Capital Projects Update
1. South Cove East Parking Lot & Restroom 2. Bay Trail Extension – Segment 3 5 3. South Cove ADA Accessible Gangway at Middle Complete 11 Dock 4. South Cove Floating Docks Replacement 15 5. Marina Streets Reconstruction [Bidding] 8 - University Ave (W Frontage Rd to Marina Blvd) A - Spinnaker Way - Marina Blvd 2021 10 6. O&K Docks Electrical Upgrade [Bid by April] Construction 6 5 7. Electronic Bicycle Lockers [Awarding Contract] 14 8. D&E Docks Replacement 12 9. South Cove West Parking Lot Design 7 10. Selective Timber Pile Replacement 1 11. Cesar Chavez Park Restroom 9 12. K-Dock Restroom Renovation 2 4 13. Municipal Pier Structural Assessment & 3 Ferry Facility Feasibility Study Planning 13 14. Marina-wide Sea Level Rise Vulnerability Study 15. Berkeley Marina Area Specific Plan
A CalTrans University Ave/I-80 Interchange Improvement
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 11 Major Capital Projects – Funding Source Marina Grants State Measure Public General PROJECT Enterprise Loans T1 Works Fund Fund
1. South Cove East Parking Lot & Restroom 2. Bay Trail Extension – Segment 3 3. South Cove ADA Accessible Gangway at Middle Dock 4. South Cove Floating Docks Replacement (East & West Docks) 5. Marina Streets Reconstruction (University Ave/Spinnaker Way/Marina Blvd) 6. O&K Docks Electrical Upgrade 7. Electronic Bicycle Lockers 8. D&E Docks Replacement 9. South Cove West Parking Lot (Design Only) 10. Selective Timber Pile Replacement 11. Cesar Chavez Park Restroom (On Spinnaker Way) 12. K-Dock Restroom Renovation 13. Municipal Pier Structural Assessment & Ferry Facility Feasibility Study 14. Marina-wide Sea Level Rise Vulnerability Study
15.COMMUNITY Berkeley WORKSHOP Marina #1Area Specific Plan BERKELEY MARINA AREA specific plan 01/28/2021 page 12 Recently Completed Capital Projects
Bay Trail Extension – Phase 3- South ADA Gangway Remodeled berther restrooms Cesar Chavez Park East Shoreline Cove Stabilization
Currently Bidding
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 13 Decaying Infrastructure
Misc finger dock Low lyingD Area& E docks – South Cove Aged Sheetpile Wall – South Cove
Shocking Photos
South Cove
D&E/Docks
Decaying Timber Piles Low lying Area – Marina Blvd Low lying Area – University Ave
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 14 Landside Infrastructure Needs: est. $23M
UTILITY SIDEWALKS/ PAVEMENT PARKING LOTS IMPROVEMENTS REHABILITATION PATHWAYS ($10.5 M) ($4.5 M) ($3.4 M) ($4.6 M)
Vital improvements needed within the next 20 years to Sewer University Ave F & G Dock Lot, O Cesar Chavez Dock and Yacht upgrade decaying Collection (Marina Blvd to Park Perimeter Seawall Dr) Club Lot, J & K infrastructure. System Dock Lot Trail
N Dock and Skates Emergency Fire Marina Seawall Dr Lot, Launch Ramp Service Lot, L & M Dock Boulevard Trail Lot, Lordships’ Lot
Stormwater Completion of Construction of Quality South Cove West Lot Bay Trail Master Improvements Plan
General Sidewalk/ Pathway Upgrades
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 15 Waterside Infrastructure Needs: est. $64.5M to $108M
Shoreline & Dredging, Pier, Infrastructure Docks Over-Water and Breakwaters Maintenance $35M $10.5M to $12M $19M to $61M TBD
Dredging SLR/Shoreline (South Cove Sailing Dock Replacement Stabilization Basin & Marina Entrance) $35M Cost: $5.8M to $7M $4M to $6M
South Sailing Basin Berkeley Pier Seawall Design/Construction Replacement $15 to $55M (TBD) $4.8M
Future Infrastructure Costs $87.5M – $131M
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 16 BMASP + Pier/Ferry Planning Study
• Introductions of Consultant Teams • Project Timelines • BMASP Overview • Pier/Ferry Planning Study Overview BMASP Project Team HARGREAVES JONES Prime / Landscape Architecture & Planning San Francisco, CA
BLUHON GROUP* Community Engagement Berkeley, CA
COMMUNITY MOFFATT & NICHOL Marine and Shoreline Engineering Oakland, CA
BKF ENGINEERING KEYSER MARSTON Civil Engineering Financial Analysis & Strategic Walnut Creek, CA VIABLE SOLUTIONS ECONOMICS Economic Planning Berkeley, CA RINCON CONSULTANTS CEQA & EIR Specialists Oakland, CA NELSON\NYGAARD* CONSULTANTING ASSOCIATES Transportation Planning *Also on the Pier/Ferry Study Project Team San Francisco, CA
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 18 BMASP Project Team Hargreaves Jones waterfront park expertise CRISSY FIELD over 30 waterfront projects San Francisco, CA over 23 water bodies master planning through implementation
SOUTH LAKE UNION PARK Seattle, WA
SOUTH POINTE PARK QUEEN ELIZABETH OLYMPIC PARK Miami Beach, FL London, UK
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 19 Pier/Ferry Study Project Team GHD, Inc Prime / Maritime Infrastructure San Francisco, CA
BLUHON GROUP* Community Engagement Berkeley, CA COMMUNITY Mott MacDonald Coastal Engineering San Francisco, CA
Marcy Wong Donn Logan NELSON\NYGAARD* FEASIBILITY STUDY Traffic & Mobility Architects CONSULTANTING ASSOCIATES Architectural Transportation Planning Berkeley, CA San Francisco, CA
SEA Engineering Underwater Inspection Santa Cruz, CA *Also on the BMASP Project Team
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 20 Pier/Ferry Study Project Team San Francisco Bay Area Kevin Connolly Water Emergency Transportation Authority Manager, Planning & Development
Michael Gougherty Senior Planner
Taylor Rutsch Planner
22 WETA Route Map 12 Vessels
7 Terminals
4 Routes
Peak Capacity 1,802
7,583 Daily Riders
5 Peak Hour Landings at SF Ferry Bldg
$33M Operating Budget
WETA 44 Vessels 16 Terminals
Strategic Plan 12 Routes
740% increase in Peak Capacity
5x the Daily Riders
25 Peak Hour Landings
$144M Operating Budget Pier/Ferry Study & BMASP Timelines
1/21 Workshop #1
2/16 City Council Work Session BMASP/Pier-Ferry
(3) Focus 3/4 WETA June Sept City/WETA approvals; approve MOU amendment Group Board Workshop Workshop #3
#2
FerryStudy
-
Pier BMASP
Meeting #1 Meeting #2 Meeting #3 Meeting #4 January 28, 2021 Aug/Sept 2021 Feb/Mar 2022 TBD 2022 Project Introduction Specific Plan Design Specific Plan EIR Public Scoping Challenges & and Financial Model Refinement Meeting Conceptual Opportunities Options Workshop BMASP Goals & Process BMASP Goals
Develop a specific plan to set the Waterfront on a sustainable path.
achieve financial sustainability support community needs • keep Marina Fund operational • Marina: slips, business, clubs, etc. • develop a viable financial model • Recreation and environmental stewardship
address infrastructure needs adapt to climate change • prioritize capital projects • Assess SLR vulnerability • Identify funding sources • Identify mitigation and adaptation measures
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 27 BMASP Process
Community & User Input Site Challenges
Current Projects
Current & Past BMASP Studies Process
Sea-Level Rise Governing Policies Ferry Feasibility Study Specific Plan & CEQA Requirements CEQA Guideline 15168
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 28 Marina Case Studies (5)
Pillar Point Harbor Alamitos Bay Marina
Dana Point Harbor Former San Leandro Marina
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 29 San Francisco Marina
4 2 A 3 1 San Francisco | State Tidelands ←B
Public Owner/Operator C City & County of San Francisco D↓ 667 marina slips Onsite Offsite 1 West Harbor A Fort Mason 39 acres | water 2 East Harbor B Crissy Field 19 acres | land 3 Marina Green C Palace of Fine Arts 4 Yacht Clubs D Chestnut St
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 30 San Francisco Marina Recent Capital Investment Marina rebuild supported by higher fees, shift to larger slips
West East • $27M renovation of West Harbor Slips 325 342 completed in 2013 Renovation Year 2013 Not Completed • Replaces & reconfigures docks and slips Avg. Slip Length 43’ 28’ Slip Occupancy 98% 75% • Phase 1 financed by DBW loans 30’ Berth Rate $14.47/ft. $10.44/ft. repaid through increased fee revenue Annual Fees Per Slip $8,000 $2,400
• Phase 2 will replace & reconfigure East Harbor docks and slips • Partially funded by PG&E 3.3X settlement
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 31 Pillar Point Harbor
A B Half Moon Bay| State Tidelands 4
C 5 Public Owner/ Operator 1 2 San Mateo County Harbor District 3 369 marina slips
Onsite Offsite 45 acres | water (marina) 1 Rec Marina A Harbor Village +/-20 acres | land 2 Comm. Marina B HMB Brewing 3 Pier/ Fisheries C Chowder House 4 Shops & Restaurants 5 Boat Launch
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 32 Pillar Point’s Special District Funding Model Special district property tax provides flexibility to encourage diversity of uses
Special district owner/operator receives $0.03/$1 of county prop taxes • Property taxes represent 2/3 of district revenues, help fund capital needs
Dedicated funding provides flexibility to encourage uses that generate modest direct revenues, but provides spinoff benefits, such as commercial fishing • Commercial fishing vessels occupy half of berths; 98% occupancy • 3 whole fishery leases on pier (4 hoists) • Fresh fish sales permitted off boats • Draws visitors to restaurants & charter boats
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 33 Alamitos Bay Marina 3 Long Beach| State Tidelands B
4 A
2 Public Owner/Operator 1 City of Long Beach 3 2 1,646 marina slips 1
Onsite Offsite 200 acres | water 1 Yacht Clubs A New Coastal Mall 10 acres | land 2 Commercial Areas B Existing Shopping Center 3 Marinas 4 Marina Boatyard Water Taxi
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 34 Alamitos Bay Marina Rebuild Project Marina rebuild supported by lean operating budget; upland development follows
Rebuilt & reconfigured 1,646 slips over 13 years • +/-15% increase in average slip length
$105M rebuild financed by bonds secured by marina fund net revenues (3 marinas) San Pedro Fish Market (opened 2020) • Operating expenses = 56% gross revenues • Slip fee increases have averaged 2.3%/year
Upland development has followed: • waterfront restaurant & brew pub (City land) • 215K sf coastal mall (private land) Ballast Point Brewing (opened 2016)
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 35 Dana Point Harbor ↑ A A B→ Dana Point| State Tidelands 5 2 1 4 3 1 Public Owner/Private Operator Orange County
2,254 marina slips Onsite Offsite 1 Marinas A Hotels 170 acres | water 2 Hotel/Commercial B State Beach 107 acres | land 3 Yacht Club 4 Shipyard 5 Ocean Institute
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 36 Dana Point Harbor Revitalization Project Public-private partnership will revitalize marina and waterfront commercial district
Following adoption of land use plan, County entered into a 66-year ground lease with master developer to: • Operate marina • Replace/repair/reconfigure existing infrastructure • Revitalize commercial core, develop new revenue- generating uses in accordance with land use plan: - 2 hotels with 266 total rooms - 110,000 SF of new commercial uses
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 37 Former San Leandro Marina
3 San Leandro A
1 4 Formerly Public Owner/Operator 2 City of San Leandro B 462 marina slips (to be dismantled)
Onsite Offsite 23 acres | water (marina) 1 Marina A City Golf Course 37 acres | land 2 Pier/ Yacht Club B Marina Park 3 Hotel/ Commercial 4 Boat Launch
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 38 Redevelopment of Former San Leandro Marina After underinvestment, marina to be replaced with mixed-use development
• With slip occupancy at 40%, City ended marina dredging in 2009 • City entered into agreement to ground-lease marina land, sell adjacent city golf course for mixed-use development with: • 220-room hotel • 20,000 sf restaurant/ banquet facilities • Up to 500 housing units • Rec. amenities (boat launch, Bay Trail) • Marina slips will be dismantled
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 39 Case Study Reflections Explore potential solutions for new revenue generation
Potential New Facilities Potential Fees, Taxes, Bonds A Additional Hotel A Parking Fee B Restore Berkeley Pier with Regional Ferry Service B Vehicle Entrance Fee C Restaurant C Special Assessment Tax D Boat Slip Reconfiguration D Infrastructure Bond Measures E New Businesses or Activities F Special Events Community Input Process G Event/Party Areas H Fish Market/Commercial Fishing Amenities I Recreation Businesses Viable Solutions Funding Gap (i.e. B+D+K = G) (G)
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 40 Potential Economic Benefits of Ferry Service by Land Use Hotel Retail Food & Beverage Recreation
• Generate new or extended • Capture “grab & go” • Capture weekday commuter • Draw visitors from across stays commuter spending spending the Bay
• Enhance event revenue • Support growing West • Capture recreational • Gain exposure to outbound Berkeley work force weekend/evening spending locals • Attract new hotel • Attract new retail • Attract new uses • Join a network of regional destinations
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/29/2021 page 41 BMASP - What we are working on - Baseline Evaluations Existing Amenities and Operations Assessment
Includes: • Market Demand Trend Analysis • Informs future capital project planning process
Existing Infrastructure Assessment – Waterside and Landside Facilities
Includes: • Cost Estimates for each capital projects • Prioritize capital projects per importance to the Marina operation and Community Input
End Product = 5-year Capital Improvement Plans [Expenditure]
Marina Enterprise Fund Financial Assessment
Includes: Community • Existing Marina Enterprise Fund Financial Analysis Workshop #2 • Revenue Generating Opportunities and Constraints Analysis Aug/Sept 2021 • Identify feasible solutions with Community Input to Alleviate Funding Gap
End Product = Implementation Strategy Memo [New Revenue Source(s)] COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 42 Berkeley Pier/Ferry Facility Planning Study Multi-use Pier – Recreational Placemaking
Outdoor Recreation
Access to the Bay
Fishing
Bay Views
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/29/2021 page 44 Pier Structural Assessment — Project History
2015 2016 2017 2018 2019 2020 2021
Dec 2017 May 2019 Jan 2021 Draft Structural City/WETA Community Assessment Report MOU Engagement
July 2015 Sept 2018 Oct 2019 Pier Closes Draft Small-Scale Ferry Feasibility Study on WETA- Terminal Feasibility Study scale Ferry Facility
Underwater Inspection Under Deck Condition Pier Alternatives – Rehabilitate, Retrofit or Replace
Replacement Pier Length vs Total Project Cost
$38M
$34M ROM Project Cost Range $30M (3,000 LF Pier) $26M
$22M Repair/Rehabilitation $20M to $30M Project CostProject $18M
$14M Seismic Strengthening $35M to $55M $10M
Replacement $25M to $35M $6M $2M
Pier Length (lineal feet)
i.e. ~$17M for a 1,000 LF new pier Supporting Policies & Studies
City of Berkeley Water Emergency Transportation Authority
Policy: Policy: • City General Plan Updates (2001) • System Expansion Policy (2015): Standards & process for new ferry services. • Climate Action Plan (2012): Sustainable transit • Strategic Plan (2016): Identifies Berkeley as a • Local Hazard Mitigation Plan (2019): High near-term project. priority action for emergency response • Emergency Response Plan (2016): Sets WETA Studies: role in provision of emergency water transportation. • Berkeley Municipal Pier Structural Assessment • Plan Bay Area 2050 (pending): Includes Berkeley • Small-scale Ferry Transportation Feasibility ferry service as ‘Regionally Significant Project.’ Study on Waterside Improvements Phases of the MOU
Current Phase Subsequent Phases
Feasibility Design/Permitting Construction & Operations
• Feasibility Study • Design development • Bidding • Ongoing service • Public Engagement • CEQA/NEPA • Construction • Long-term maintenance • WETA & City Council • Permitting
Approved Preferred 2021 2024 2026 Conceptual Alternative Estimated
Note: MOU may be terminated at any phase upon mutual agreement.
Parking & Mobility Considerations
Two Key Questions to Answer:
How will people get to/from new ferry What opportunities exist to create mobility service in the Waterfront? enhancements in the Waterfront? Parking & Mobility Considerations
1 2 3 Develop baseline Compare mode share to Consider supportive travel mode share for ferry existing infrastructure programs & enhancements
On a typical day, how many passengers How many ferry riders could the What programs & enhancements would would use each travel mode to get Waterfront support with existing support non-drive-alone travel & to/from ferry? parking, transit, multimodal facilities? improve access to the Waterfront?
In Process Parking & Mobility Opportunity to improve bike/ped facilities and expand parking along University Ave Considerations Potential bike lockers/racks, transit improvements, shared mobility services, and designated pick- up/drop-off area
Initial Findings:
• City/WETA goal is to accommodate ferry service with 250 spaces. • Parking management strategies could accommodate many spaces in existing lots. • Initial target of 60% ferry riders to arrive by bike, walking, transit, carpooling and other Opportunity to improve and Parking expand parking along shared travel modes. Seawall drive Upcoming Public Input Opportunities
• Online Questionnaire at project website • Project email: [email protected] • Community Workshops #2 • Pier/Ferry Planning Study – targeted for June 2021 • BMASP - targeted for Sept 2021 • Community Workshops #3 tba Council Worksession Discussion Topics #1 What revenue-generating solutions/funding mechanisms should be studied in greater depth and evaluated for feasibility at the Berkeley Waterfront?
Potential New Facilities Potential Fees, Taxes, Bonds A Additional Hotel A Parking Fee B Restore Berkeley Pier with Regional Ferry Service B Vehicle Entrance Fee C Restaurant C Special Assessment Tax D Boat Slip Reconfiguration D Infrastructure Bond Measures E New Businesses or Activities E Others? F Special Events G Event/Party Areas H Fish Market/Commercial Fishing Amenities I Recreation Businesses J Others?
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 58 Council Worksession Discussion Topics
#2 What kind of uses/amenities and locations should be evaluated? existing facilities facilities existing and programs
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 59 Council Worksession Discussion Topics #3 What waterside and landside access concepts for a Berkeley Pier/Ferry terminal should be explored?
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 60 2050 Sea Level Rise (SLR) Impacts
• 2019 Draft Study 1.1' SLR + 20-YR STORM • Berkeley Marina less affected • Shoreline: +10 FT NAVD88 • 2050 SLR (+1.1 FT) • 17% Likely to Occur 2050 Tides • Waves make a difference
1.1' SLR + King Tide 100-YR EX TIDE
2050 SLR 2050 King Tide Dec 2018 +7.0 FT
COMMUNITY WORKSHOP #1 BERKELEY MARINA AREA specific plan 01/28/2021 page 61