Estuary Policy Plan

Home , Downtown Oakland, Flagship (broadcasting), Lake Merritt, Oakland Estuary, Old Oakland

Table of Contents

Executive Summary ...... vii

Section I: Background ...... 1 Introduction ...... 3 Study History ...... 3 Purpose and Role of the Plan...... 6 Plan Organization ...... 7 The Estuary Shoreline ...... 11 Multiple Jurisdictions ...... 14 Trends in Military Use of the Shoreline ...... 15 Emerging Roles for the Estuary Shoreline ...... 18

Section II: Objectives ...... 21 Land Use ...... 23 Market Trends ...... 23 Issues and Opportunities ...... 28 Land Use Objectives ...... 29 Shoreline Access and Public Spaces ...... 33 Shoreline Access ...... 33 Issues and Opportunities ...... 36 Shoreline Access & Public Space Objectives ...... 37

Executive Summary iii Regional Circulation & Local Street Network ...... 43 Barriers ...... 43 Issues and Opportunities ...... 44 Regional Circulation & Local Street Network Objectives ...... 45

Section III: District Recommendations ...... 51 Jack London District ...... 53 Land Use ...... 56 Shoreline Access and Public Spaces ...... 67 Regional Circulation, Local Street Improvements Transit & Parking ...... 73 Oak to Ninth Street District ...... 83 Shoreline Access & Public Spaces ...... 86 Land Use ...... 92 Regional Circulation & Local Access ...... 95 San Antonio/Fruitvale District ...... 103 Land Use ...... 103 Shoreline Access & Public Spaces ...... 113 Regional Circulation & Local Street Improvements ...... 116

Section IV: Moving Forward ...... 125 Steps Towards Implementing the Estuary Policy Plan...... 127 Summary of Land Use Classifications ...... 132

Appendix: ...... 139 A. Jack London District Potential Designated Historic Properties & Districts ...... 141

Index...... 142 Credits ...... 144

iv Oakland Estuary Policy Plan List of Figures I-1. Regional Context ...... 4 I-2. Oakland Neighborhoods Adjacent to Estuary...... 5 I-3. Planning Area Districts ...... 7 1-4. Activity Centers ...... 13 I-5. Jurisdictions ...... 16 & 17 II-1. Existing Land Use ...... 24 & 25 II-2. Existing Public Access and Open Space ...... 34 & 35 II-3. Illustrative Shoreline Access and Public Space Plan ...... 40 & 41 II-4. Illustrative Circulation Plan ...... 46 & 47 III-1. Jack London District: Current Ownership ...... 54 III-2. Jack London District: Existing Land Use ...... 55 III-3. Central Jack London District: Illustrative Development Strategy ...... 58 III-4. Jack London District: Existing Public Access and Open Space...... 65 III-5. Jack London District: Illustrative Shoreline Access and Public Space Plan...... 66 III-6. Jack London District: Illustrative Circulation ...... 72 III-7a & b. Jack London District Illustrative Street Cross Sections ...... 76 & 78 III-8. Oak to 9th District: Current Ownership ...... 84 III-9. Oak to 9th District: Existing Land Use...... 85 III-10. Oak to 9th District Illustrative Public Space Key Map ...... 87 III-11. Oak to 9th: Bird’s-Eye Illustrative Perspective ...... 89 III-12. Clinton Basin Illustrative Cross Section ...... 96 & 97 III-13. 5th Avenue Illustrative Cross Section ...... 98 III-14. Oak to 9th District: Illustrative Circulation ...... 99 III-15. San Antonio/Fruitvale District: Current Ownership ...... 104 III-16. San Antonio/Fruitvale District: Existing Land Use ...... 105 III-17. San Antonio/Fruitvale District Sub-District Map ...... 106 III-18. San Antonio/Fruitvale District: Illustrative Cross Sections ...... 117 III-19. San Antonio/Fruitvale Illustrative Circulation ...... 118 & 119

Executive Summary v III-20. San Antonio/Fruitvale District: Illustrative Cross Sections (cont’d ...... 120 & 121 III-21. Fruitvale Avenue Illustrative Cross Sections ...... 122 IV-1. Land Use Classifications ...... 130 & 131

Appendix A. Jack London District Potential Designated Historic Properties & Districts...... 141

vi Oakland Estuary Policy Plan Executive Summary

As the twenty-first century approaches, na- reinforced by the goals, objectives and poli- tinuous landscaped parkway with promenades, tional and international trends have created cies established by the General Plan Congress bikeways and shoreline trails, is recommended. new opportunities for the urban waterfront in the 1998 update of the Oakland General In addition to enhancing existing facilities, new and its role for the City of Oakland. Recog- Plan. parks are proposed at the mouth of the Lake nizing this potential and the strategic nature Merritt Channel, at the site of the Ninth Av- of the Oakland Estuary, the Port of Oakland The basic premise of the plan and its preced- enue Terminal, at Union Point, and within the and City of Oakland have undertaken the ing efforts is that the Estuary is a resource of Jack London District. preparation of this plan to reinforce Oakland’s citywide and regional significance. This area identity as a livable city on the bay. cannot be viewed as a single-purpose district Further, the Estuary Plan proposes a variety isolated from the city, but rather as a diverse of uses that strengthen Oakland’s position as The “Estuary Policy Plan” (Also referred to as and multifaceted place that connects the city an urban center, accommodate economic the ‘Estuary Plan’) includes objectives and and the bay. growth, and encourage development that policies to enhance the future of the area of complements the downtown and adjacent Oakland between Adeline Street, the Nimitz The Estuary Policy Plan calls for a system of neighborhoods. Freeway, 66th Avenue and the Estuary shore- open spaces and shoreline access that provides line. The plan is a result of community recreational use opportunities, environmental The plan reinforces the Jack London District concerns first articulated by the League of enhancement, interpretive experiences, visual as the East Bay’s primary dining and enter- Women Voters in its award-winning report amenities, and significant gathering places. A tainment venue, by promoting mixture of entitled “The Waterfront: It Touches the World; series of individual parks, open spaces and retail, dining, entertainment and visitor-serv- How Does It Touch Oakland?” , subsequently shoreline access points, connected by a con-

Executive Summary vii ing uses oriented to significant gathering places cate for a variety of reasons. If that occurs, the tivities along Lower Broadway, toward the and public access areas along the water. plan suggests land use priorities for an appro- downtown. At the same time, development priate transition to new urban development of the area between Estuary Park and the The plan proposes the preservation of indus- in the future. Ninth Avenue Terminal will create a signifi- trial areas which are necessary to support cant place for Oaklanders to gather for events, Oakland’s port, as well as the city’s role in food The Estuary Policy Plan also proposes signifi- and achieve a long-held objective of connect- processing, manufacturing and distribution. In cant measures to improve both regional and ing the Estuary to the Lake Merritt Channel, addition, the emerging trend toward loft-type local access. The proposed circulation system Lake Merritt, and inland neighborhoods. residential and off-price retail establishments is aimed at reducing the barrier effect of the in the Jack London District is encouraged to freeway by improving on and off ramps and Redevelopment at Embarcadero Cove is continue. by enhancing local vehicular access to inland planned to create additional windows to the areas. Estuary. A new park at Union Point and im- The plan proposes the large-scale transforma- provements to the shoreline should create a tion of the area from the Lake Merritt Chan- The plan recommends creating a continuous new focus along the water for Brooklyn Ba- nel to the Ninth Avenue Terminal into a mix landscaped recreational parkway, accommodat- sin, San Antonio, Fruitvale, Central East Oak- of artisan work/live lofts, hotel, cultural and ing pedestrians and bicycles as well as transit land, and other inland neighborhoods. Exten- commercial-recreational uses that will comple- and vehicular access, along the entire five-and- sion of the Martin Luther King, Jr. Regional ment the planned open spaces and parks along a-half-mile length of waterfront, between 66th Shoreline westward to High Street will also the water. Avenue and the Jack London District. This provide open space opportunities for East parkway would help knit together the diverse Oakland residents and visitors to enjoy the The plan recommends strengthening the liv- parts of the Estuary shoreline, thereby estab- environment of San Leandro Bay. ability of existing and future residential devel- lishing an identity of Oakland as a waterfront opment within the Kennedy Tract, and sug- city. Finally, the Estuary Policy Plan recommends gests new opportunities for small-scale office, some critical first steps in implementing the business and commercial establishments. In The Estuary Policy Plan also emphasizes the plan and achieving the vision. It identifies what certain areas (e.g., around the Con-Agra facil- need for connection between waterfront uses is necessary to move on to the next level of ity in the San Antonio/Fruitvale District), the and inland areas. The plan promotes enter- action. plan supports the retention of existing indus- tainment-oriented development in the Jack tries, but acknowledges that they may relo- London District, and extending waterfront ac-

viii Oakland Estuary Policy Plan In total, the Estuary Policy Plan is a waypoint in a community-wide dialogue that has been underway for many years. It follows up on ideas that were first presented several decades ago; more recently reinforced by the League of Women Voters and the Oakland General Plan. It is both a recognition of the importance of this unique asset to Oakland, and a long-range vision of the Estuary’s potential.

At the same time, the plan initiates a series of steps that can achieve the vision. By begin- ning now, and working hard, Oakland can enhance the waterfront, fulfill its unmet potential, and reclaim its role as a true waterfront city.

Executive Summary ix x Oakland Estuary Policy Plan I Background

Section I: Background 1 The 5.5-mile long Estuary Planning Area extends from Adeline Street on the west to 66th Avenue on the east.

2 Oakland Estuary Policy Plan Introduction

In 1996, the Port of Oakland and the City of Oakland can claim the most extensive and di- In the early 1990s, public dialogue about Oakland embarked on an unprecedented co- verse bay shoreline of any community in the Oakland’s waterfront began with the update operative effort to develop the first plan in region. Yet, for many, the experience of the of the Open Space, Conservation and Recre- Oakland’s history focused specifically on the Oakland waterfront is fragmented—limited ation Element of the Oakland General Plan. Estuary shoreline (Figure I-1). The Estuary to specific areas, such as the highly visible ship- At about the same time, the League of Women Policy Plan represents an effort conducted over ping terminals or the commercial activities and Voters published a report, “The Waterfront. It a period of approximately 18 months to pre- special events at Jack London Square. Al- Touches the World; How Does it Touch Oak- pare a plan for 5 1/2 miles of urban water- though its shoreline extends for 19 miles along land?” ( June 1993), which focused on the front within the heart of the city and port. the edge of the city, Oakland is more often waterfront. The report strongly promoted viewed as an inland gateway at the hub of mul- Oakland’s identity as a waterfront city. This This effort encompassed a planning area ex- tiple rail and highway corridors than as a wa- report became a call to action for waterfront tending from Adeline Street to 66th Avenue, terfront city. advocates and the community at large. including all of the lands on the water side of I-880 within Port and City jurisdiction. The STUDY HISTORY The efforts of the League of Women Voters study area touches many of the city’s neigh- spawned the Waterfront Coalition, a grassroots borhoods as well as downtown, and is brack- In recent years, community interest in the citizens organization that, in turn, sparked even eted at the ends by Oakland’s airport and sea- waterfront has increasingly focused a desire for broader interest and support for waterfront port (Figure I-2). improved public access, environmental qual- revitalization. In 1995, a charrette was spon- ity, civic image and identity, recreation, and sored by the Port and the City to help formu- other publicly oriented activities.

Section I: Background 3 SAN FRANCISCO COUNTY

ALAMEDA COUNTY Berkeley 13 80 Orinda

123 24

Treasure Emeryville Island

580 Piedmont 80 CO Outer 980 N T A R L A SAN A COS Harbor TA 13 M C EDA C O . FRANCISCO O. 580 Lake Merritt OAKLAND 880 S NAS ALAMEDA a Fruitvale n 80 F Estuary 260 r Alameda a Planning Area 61 n 77 c i s c 880 o 185 B a 101 280 y San Leandro Bay

61 185

OAKLAND INTERNATIONAL San AIRPORT Leandro

FIGURE I-1: Regional Context

4 Oakland Estuary Policy Plan late a vision for the waterfront that would, in turn, provide additional policy support.

At the time, the Oakland General Plan was being updated, overseen by a community-wide advisory committee known as the General Plan Congress. A Waterfront Subcommittee of the General Plan Congress was formed. In 1996 the General Plan Congress published its draft Goals, Objectives and Policies report for the entire waterfront area. The policies recognized the waterfront as having untapped potential for redevelopment, publicly oriented activities, and enhanced public access. One of these policies specified the need for more detailed study and planning in the Estuary portion of the waterfront.

Hence, the Oakland Estuary Policy Plan.

The Estuary Plan project has been undertaken as a joint effort by the Port of Oakland and the City of Oakland. The plan incorporates comments and input from other public agencies, including the Bay Conservation and De- velopment Commission (BCDC), East Bay Regional Parks District (EBRPD), the Trust for Public Lands, the City of Oakland Life Enrichment Agency—Parks, Recreation and FIGURE I-2: Oakland Neighborhoods Adjacent to the Estuary

Section I: Background 5 Cultural Services, and the Oakland Museum. ing, traffic engineering; as well as numerous ! Enhance and promote the city’s waterfront Draft concepts and recommendations were others offering expertise in specialized techni- for the economic benefit of the commu- presented to the City-Port Liaison Commit- cal areas. nity, with emphasis on Oakland’s position tee, the City Planning Commission, and the as a leading West Coast maritime terminal Board of Port Commissioners. PURPOSE & and a primary Bay Area passenger and cargo ROLE OF THE PLAN airport. Guidance, input, and direction in the planning process were also provided by the Estu- The Estuary Policy Plan has been prepared in ! Connect the waterfront to the rest of the ary Advisory Committee, a diverse group rep- an attempt to address issues and concerns that city, with emphasis on linking the adjacent resenting a broad spectrum of community in- have arisen related to continuity and accessi- neighborhoods and downtown directly to terests. The advisory group was facilitated by bility of the shoreline, the quality and charac- the waterfront, reducing physical barriers the nonprofit organization Oakland Sharing ter of new development, and the relationship and the perception of isolation from the the Vision. This group also helped organize of the shoreline with surrounding districts and water’s edge, and improving public access the community involvement process. Mem- neighborhoods. More specifically, the plan to and along the waterfront. bers of the Advisory Committee committed builds upon the goals for the waterfront pre- significant energy and effort to shaping the pared by the General Plan Congress. The goals ! Preserve and enhance the existing natural planning effort. They met nine times in pub- are summarized as follows: areas along the waterfront. lic sessions, and hosted a public workshop with consultants and staff. ! Increase the awareness of the waterfront The Estuary Policy Plan is intended to be in- throughout the city and region, and maxi- corporated into the General Plan, which in- To assist in preparing the draft of the Estuary mize the benefit of Oakland’s waterfront cludes elements regarding Land Use & Trans- Plan, the Port and City engaged a team of con- for the people of the city. portation, Open Space, Conservation & Rec- sultants led by ROMA Design Group. ROMA reation (OSCAR), Historic Preservation, served as the lead firm, directing the efforts of ! Promote the diversity of the waterfront by Housing, Noise andd Safety. an Oakland-based team of consultants, includ- providing opportunities for new parks, rec- ing Hansen/Murakami/Eshima, associated ar- reation, and open space; cultural, educa- Compared to the General Plan, the Estuary chitects; Hausrath Economics Group, urban tional and entertainment experiences; and Policy Plan has a more focused geographic economists; Gabriel-Roche, Inc., public par- new or revitalized retail, commercial and scope, and is therefore more specific in nature. ticipation and transportation; Korve Engineer- residential development. In addition to policy recommendations that

6 Oakland Estuary Policy Plan Market St. Lake Merritt Oakland Fruitvale Ave. 14th St. International Blvd. 980 14th Ave. International Blvd. Broadway Oak St. High St.

16th Ave. Adeline St. 5th Ave. 880 San Leandro St. 29th Ave.

Coast Guard Embarcadero Island Oakland Estuary Jack London Oak-9th

San Antonio- ParkSt. Alameda Fruitvale San Leandro FIGURE I-3: Planning Area Districts Bay 66th Ave.

will be integrated into the General Plan, a com- Plan recommendations will also be reflected and the East Bay Regional Parks District panion document, the Estuary Plan Implemen- in the Oakland Waterfront Public Access (EBRPD). tation Guide, will be prepared. The Imple- Plan,which will identify public access oppor- mentation Guide will identify specific steps tunities for the entire Oakland waterfront. PLAN ORGANIZATION to be undertaken to implement the recom- The Estuary Policy Plan may also serve as a mendations of the Estuary Policy Plan. These basis for revisions and amendments to the The Estuary Policy Plan presents recommen- include detailed strategies and work programs BCDC San Francisco Bay Area Seaport Plan, dations related to land use, development, ur- to create and implement projects, site design plans for the regional San Francisco Bay Trail, ban design, shoreline access, public spaces, re- and development standards, funding and in- and planning documents prepared by other regional circulation, and local street improve- stitutional strategies, and other administrative gional agencies, such as the Association of Bay ments for the entire waterfront and individual steps necessary to carry out the Estuary Policy Area Governments (ABAG), the Metropoli- districts within it. Plan. tan Transportation Commission (MTC), East Bay Municipal Utilities District (EBMUD)

Section I: Background 7 Section I includes all of the introductory ele- Section IV of the plan, entitled “Moving For- ments, which provide an overview and sum- ward”, describes the next steps in implement- mary of the planning process, the planning area ing the Policy Plan. It identifies the critical and surrounding context, major plan concepts activities necessary to sanction the plan, gives and recommendations. decision-makers and staff direction to begin to implement the plan, and establishes the Issues to be resolved, opportunities to improve regulatory controls necessary to insure com- the situation and objectives to be realized are pliance with it. described in Section II of the plan. They are organized by functional topics: Land Use, Shoreline Access, Public Spaces, Regional Circulation, and Local Street Improvements.

Section III of the plan recommends policies for each of the three districts within the Estu- ary planning area. As shown in Figure I-3, these districts include:

! ‘Jack London District’, extending from Adeline Street to Oak Street;

! ‘Oak-to-Ninth Avenue District’, from Oak Street to the Ninth Avenue Marine Termi- nal; and

! ‘San Antonio/Fruitvale District’, from 9th Avenue to 66th Avenue.

8 Oakland Estuary Policy Plan Section I: Background 9 Oakland’s harbor circa 1882, at the present-day Jack London Waterfront, supported a diverse range of maritime and commercial activities.

10 Oakland Estuary Policy Plan The Estuary Shoreline

Oakland, California has a waterfront. more like a river. It is linear in form and con- ern city and national transportation hub. The tained, rather than open and expansive like settlement which became Oakland was first es- In Oakland, the shoreline of San Francisco Bay the broader bay. It creates an environment tablished on the Estuary, at a transshipment point extends 19 miles, from San Leandro Bay to that is intimate in scale and character. It frames where water-borne goods were off-loaded and the Oakland-San Francisco Bay Bridge. At dramatic views to the San Francisco and Oak- transferred to transport and land networks. its northern end, the shoreline is dominated land downtown skylines. by the Port of Oakland’s marine terminals. Over the years, the waterfront has been domi- At the southern end lies Oakland International The Estuary is an urbanized edge that has de- nated by the development of the Port of Oak- Airport. Between the seaport and the airport veloped over a span of more than 100 years of land. Extensive backland area and rail connec- is the five-and-a-half-mile Estuary shoreline city history. Unlike the hillside areas of the tions have given the Port the competitive edge (Figure I-4). The Oakland Estuary is one of city, this area is intensely developed, with ur- needed to become one of the largest container California’s most diverse shores, encompass- banization extending all the way to the water’s ports on the West Coast. Additionally, the ing a variety of physical environments and set- edge. Very little open space or vegetated area Oakland Airport’s central location within the tings, each with its own distinct quality and exists, with the notable exceptions of Estuary prosperous bay region has made it one of the character. Park and the Martin Luther King, Jr. (MLK) fastest growing air passenger and cargo facili- Regional Shoreline. ties in the United States. These two centers Today, the Estuary can be viewed as a single support more than 20,000 direct jobs within community resource that binds together the Oakland’s waterfront figures prominently in the region, but they are both land intensive shorelines of Alameda and Oakland. Com- the history and life of the city. It is both the operations that make it difficult for residents pared to other parts of the bay, the Estuary is birthplace and birthright of what is now a mod- to take advantage of the waterfront.

Section I: Background 11 Most of the improvements were made once the ping. This shift in technology proved to be a trial purposes. In the mid 1800s, the village City wrested control of the waterfront from valuable investment for the City and the of San Antonio on San Antonio Creek (now the railroads in the early 1900s. The shoreline Port—one that would establish Oakland’s within the incorporated limits of Oakland) was extended westerly to the San Francisco position in the region and West Coast as a ma- supported an active wharf and lumber indus- incorporated limits following a momentous jor international port of call for the transship- try supplied by redwoods from the nearby hills. court case that finally settled the long-stand- ment of goods. In what is now Jack London District, early ing controversy between the City and the rail- uses included fishing, shipping and maritime roads over tidelands. As a result of this growth, Oakland’s water- commerce, and iron works located along First front has been dramatically transformed and Second streets west of Broadway. With After that, Oakland experienced a period of through filling, dredging, and shoreline stabi- the advent of rail access, the Estuary became city building that brought municipal docks, lization efforts. The shoreline was once a se- the terminus for agricultural goods and pro- quays, wharves, and belt line railways to the ries of coves, bays, inlets, and tidal marshlands duce, and agricultural processing facilities, such waterfront. fed by creeks and watercourses from the hills; as Con Agra, were also built. over time, human activity advanced it incre- With the advent of air travel in the late 1920s, mentally outward into the bay. The Estuary In recent decades, the industrial and commer- the City acquired land for a commercial air- was narrowed by filling and lengthened by cial character of the Estuary area have contin- port that became the starting point for many dredging until it became a linear tidal canal ued to evolve. history-making transpacific flights. In 1936, that connects San Francisco Bay with San Le- the San Francisco-Oakland Bay Bridge was andro Bay. In the southern and inland portions of the completed, signaling the emergence of the shoreline (San Antonio, Fruitvale and Central automobile for personal travel; thirteen years At the same time, Oakland residents have long East Oakland areas) business offices and large- later, in 1949, the six-lane Eastshore Freeway supported the notion of a commercial water- scale commercial uses have been developed in (now I-880) was constructed through Oak- front. A number of major investments in what was once a traditional industrial area char- land. shoreline and infrastructure improvements acterized by manufacturing and agricultural were approved, primarily for the purpose of processing. Further to the north and west, in Following the ship-building years of World expanding trade and commerce. the area now known as Embarcadero Cove, War II, Oakland’s port facilities shifted to the hotels and motels, offices and restaurants have Outer Harbor, where a good supply of In addition to the port facilities, the Estuary been built along the narrow stretch of shore- backland could support containerized ship- has historically served commercial and indus- line once occupied by marine-related busi-

12 Oakland Estuary Policy Plan nesses, and marinas have been built along the water’s edge, providing for recreational boating use.

The Ninth Avenue Terminal still remains in use—one of two such maritime facilities east of the Alameda-Oakland Tubes (the other being the Encinal Terminals across the Estuary in Alameda).

The Jack London District is far more com- mercially oriented than any other portion of the Estuary shoreline, and has seen the greatest amount of change along the waterfront in the past 20 years. The mix of restaurant, retail, theaters, entertainment and office uses has transformed Jack London Square into a primary entertainment venue, and has provided opportunities for Oakland residents and visitors to experience the waterfront. Throughout the Estuary, development patterns the grid pattern of streets and older warehouse Furthermore, the development of work/live vary. There are large superblocks of industrial buildings within the Jack London District cre- housing has added to the traditional commer- land; islands of remnant neighborhoods; the ates an attractive urban scale that is well con- cial manufacturing and industrial character of narrow, arching shoreline along the old Brook- nected with the surrounding city. adjacent inland areas, and has helped to estab- lyn Basin; and the urban grid that extends from lish this inland area as a lively urban mixed- the surrounding city through the Jack Lon- On the other hand, barriers to the water exist use district. don District to the water. Variations in the in many forms along the Estuary. Interstate urban pattern affect the opportunities for con- 880 is the most obvious of many physical bar- nection and infill development. For instance, riers that separate the waterfront from the rest

Section I: Background 13 of the city. At the Lake Merritt Channel, the Throughout the study area, infrastructure and Also included in the study area are lands and rail lines, a major sewer line and the overhead other built facilities are aging. Although there water within the jurisdiction of the Port of freeway combine to create a formidable physi- have been some recent transportation improve- Oakland. The Port is a unique agency of city cal and visual barrier that interrupts the link ments (e.g., the Amtrak station at Jack Lon- government, which is given the responsibility between Lake Merritt and the Estuary. To the don Square, removal of the Union Pacific by the Oakland City Charter to own, develop south of the Lake Merritt Channel, the free- tracks on 3rd St.), little investment has been and manage lands along the Estuary within way becomes an at-grade facility, and thus an made over the years in ongoing maintenance the specified area of Port jurisdiction. even more imposing barrier. and repairs. There are many areas of the waterfront where improvements are needed, not In its development role, the Port acts as a land- Major thoroughfares, which traverse the en- so much to expand capacity, but to upgrade lord; offering sites to lease to the private de- tire length of the city, may lead to the Estuary conditions. Along the I-880 freeway, which velopment community and taking an active shore, but often in an unceremonious fash- is now nearly 50 years old, substandard con- role in project development. The Port also ion. Broadway, one of the city’s most impor- ditions exist relative to the spacing of intersec- has the unique authority to undertake its own tant streets, terminates in an ambiguous zone tions, and seismic improvements are needed. land use planning, project planning, and project of parking, service delivery trucks, and pedes- Roads and utilities need to be repaired, and in approval. It reviews and approves building trians in the area south of the Embarcadero. some areas the shoreline needs to be reinforced. projects on private property within its area of jurisdiction, and undertakes its own environ- East of the Lake Merritt Channel, Fifth Av- MULTIPLE JURISDICTIONS mental review and certification process. enue crosses under the freeway and changes alignment as it meets the Embarcadero. Other Like most other urban waterfronts, many gov- Although the Port manages these lands, it does important streets— 16th Avenue, Fruitvale ernmental agencies have jurisdiction within the so “in trust” on behalf of the State of Califor- Avenue, High Street, and 29th Avenue/Park Estuary area (Figure I-5). The study area in- nia. Ultimate authority over their use is main- Street—enter the Estuary area, and immedi- cludes significant amounts of inland areas, tained by the California State Lands Commis- ately shift alignment or meet difficult inter- within which the City has jurisdiction and sion under the public trust (aka ‘Tidelands sections, and thus add to the overall sense of provides regular municipal services. Planning Trust’) doctrine. Tidelands Trust properties disorientation experienced along many por- and development within the jurisdiction of are limited to uses that promote maritime tions of the waterfront today. the city are subject to typical municipal regu- trade, transportation and commerce, public latory review and permitting authority. recreation and open space.

14 Oakland Estuary Policy Plan Port jurisdiction includes a much larger area dates. Also, a number of quasi-public agencies to approximately 10,000 acres within the Bay than Port-owned land within the Tidelands and institutions, including Laney College and Area. Trust, and includes private as well as public the Peralta Community College District, con- properties. trol lands within the Lake Merritt Channel In the East Bay, several military bases in Oak- area . land and Alameda have closed; each with its In addition to the City, the Port and State own implications for the region and for the Lands Commission, the San Francisco Bay Private land parcels tend to be relatively smaller Estuary planning area. For instance, the 125- Conservation and Development Commission in size, with the exception of certain indus- acre FISC site in Alameda, across the Estuary (BCDC ) exercises considerable influence over trial sites such as Con Agra and Owens- from Jack London Square, is being pursued as Estuary sites that lie within a 100-foot ‘Shore- Brockway. However, some key parcels have a mixed commercial, office and residential line Band’ that surrounds the entire San Fran- been assembled under single ownership and project, which would help to reinforce this part cisco Bay. Within its area of jurisdiction, could undergo dramatic changes. Such parcels of the Estuary as an activity center. BCDC insures that development is consistent include those associated with the Produce Mar- with the San Francisco Bay Plan and the San ket in the Jack London District, Fifth Avenue Within Oakland, the reuse of the Oakland Francisco Bay Area Seaport Plan. Addition- Point, and Tidewater Business Park. Army Base provides an opportunity to con- ally, BCDC reviews and has permit authority solidate maritime activities away from the In- over all individual waterfront projects that are TRENDS IN MILITARY USE ner Harbor into the Outer Harbor. Currently, developed within the Shoreline Band, to in- OF THE SHORELINE significant portions of the Estuary area are used sure that they maximize public access to the for maritime support: (e.g. truck and container Bay and minimize the amount of bay fill that From a regional perspective, several current storage, break-bulk cargo handling, and port- is used. trends will help to shape the future of the Es- related operations). Locating these activities in tuary. Perhaps the most significant of these is areas such as the former army base could not In addition, other large public property own- the changing status of military lands. For over only improve efficiency of operations, but also ers within the Estuary area will play a role in 50 years, much of the shoreline in the Bay free up the Estuary shoreline for a variety of the implementation of this Plan. They in- Area has been occupied by military uses estab- uses beneficial to surrounding neighborhoods. clude Alameda County, the East Bay Munici- lished at the onset of World War II. Recent pal Utility District (EBMUD), the East Bay downsizing of the armed services has brought Regional Park District (EBRPD), and a myriad about the closure of many bases, amounting of state agencies with specific functional man-

Section I: Background 15 16 Oakland Estuary Policy Plan Section I: Background 17 As a protected water space, it is one of the most tion of the Jack London Cinema and Yoshi’s attractive sites within the Bay Region for wa- jazz club to the existing restaurants has also EMERGING ROLES FOR THE ter-oriented sports, particularly boating. Sail- contributed greatly to the attractiveness of the ESTUARY SHORELINE ing has an established presence in the estuary, area as an entertainment destination in the East which has become the largest single focus of Bay. Changes in military lands, transportation recreational boating in the Bay Area. There is a technology, and the economy of the city pro- long-established tradition of rowing, canoeing Traditional industry, warehousing and gen- vide the opportunity to transform the declin- and kayaking, all of which are well suited to eral commercial uses continue to play an im- ing industrial waterfront into one of the city’s the calm, smooth waters of the area. portant part in maintaining the role of the most vibrant and valuable assets. Already, a Estuary as a place of employment. number of new roles for the Estuary have be- Throughout the Estuary area, urban pioneer- gun to emerge. They form the fundamental ing is underway, with the introduction of work/ Both traditional and emerging roles for the building blocks for the creation of an urban live and artist studio spaces into mature indus- estuary area could be further reinforced as trans- waterfront which accommodates diverse ac- trial and commercial districts. New neighbor- portation projects are undertaken. The projects tivities, and which is physically accessible to hoods are being established, and existing neigh- will create a stronger link between the water- residents and visitors. borhoods are expanding and diversifying. New front and the surrounding city. Recent rail- uses are occupying older buildings, forming road consolidations resulted in the removal of The Estuary area is a unique environment idiosyncratic combinations within distinctive one set of tracks that transverse the Estuary which intrinsically lends itself to active and districts. shoreline. Seismic improvements planned for passive recreation. The shoreline offers op- the I-880 freeway by Caltrans offer the po- portunities for a wide variety of water-ori- Adjacent to downtown, the Jack London Dis- tential to modify existing interchanges and ented recreational activities, including fishing, trict is evolving into a citywide and regional provide greater access to the waterfront. viewing, sitting, bicycling, jogging, walking, center for urban recreational pursuits, includ- and birdwatching. The Bay Trail and the ing dining, shopping and entertainment. Finally, public access improvements planned MLK Regional Shoreline, in the southern by the Port and City, in conjunction with the portion of the estuary, contribute greatly to Through the concerted efforts of the Port of City of Alameda, will result in new opportu- the emerging role of the Estuary as a place Oakland, Jack London Square has also become nities for pedestrian and bicycle movement for recreation and open space. the city’s primary venue for celebrations, pa- along the shoreline. rades, races, and major events. The recent addi-

18 Oakland Estuary Policy Plan This is a unique moment in time for Oakland’s waterfront. Guided by a long-range plan and goal for sustainability, livability, and accessibility, revitalization of the waterfront can occur, and the Estuary can become an attractive amenity that adds to the identity and overall livability of the city as a whole.

Section I: Background 19 20 Oakland Estuary Policy Plan II Objectives

Section II: Objectives 21 The Estuary shoreline will support a broad range of land uses and activities.

22 Oakland Estuary Policy Plan Land Use

During the past several decades, with the ad- MARKET TRENDS Warehouse, Distribution, and Storage. Ware- vent of containerized cargo handling facilities housing, distribution and storage activities are and the development of the Inner and Outer Traditional Heavy Manufacturing. As in prominent along the waterfront as well as in harbors at the Port of Oakland, the traditional other urban areas, older heavy industrial uses other industrial areas of Oakland. The seaport, role of the mid Estuary shoreline as a place for continue to decline along the waterfront as the airport, major freeways, and a central lo- maritime trade, transportation, commerce, and markets change, facilities become obsolete, and cation in the region are the factors supporting industry has declined. Although the only cargo the region expands outward. Existing opera- the transportation and wholesale trade indus- handling facility remaining in the Estuary plan- tions remain because of significant investments tries in the planning area. Facilities are gener- ning area is the Ninth Avenue Terminal, a in facilities and continued good proximity and ally characterized by large land areas and rela- number of industries still remain that were once access to markets and suppliers. The enclave tively minimal warehouse structures and dock- water related or provided support services for of food-related businesses in the San Anto- ing facilities. While there is a demand for such an economic base that has now shifted else- nio/Fruitvale area is an example where some facilities, the planning area does not offer sig- where. The closure of large military bases on older operations have remained and newer, nificant locational advantages over other loca- the waterfront is likely to further the trend more specialized operations have moved in tions in East Oakland, West Oakland, and else- toward consolidation of maritime industries because of the availability of facilities and good where along the I-880 corridor. Over time, to the west, and could open up new market proximity to markets. The Owens-Brockway improvements that capitalize on the water- opportunities for the future of the Estuary facility is an example of a large production fa- front location and enhance the attractiveness shoreline. cility with significant capital investment that and value of the planning area for other uses is likely to remain viable. are likely to make the area less desirable for warehouse, distribution and storage activities.

Section II: Objectives 23 24 Oakland Estuary Policy Plan Section II: Objectives 25 Construction Industry. The construction in- Light Industrial Activities. Within the plan- uses. Locations in the planning area with the dustry has remained healthy in Oakland. There ning area, there have been some transitions strongest potential for such development in- are a number of construction-related business from heavier industrial to lighter industrial clude those offering an attractive, high-ame- operations in the planning area. These busi- uses. Examples of light industrial uses in the nity environment; good access and proximity nesses are there because of the area’s central area include light manufacturing firms, boat to services; a quiet, somewhat contained site location, freeway accessibility, and available repair and sales operations, artisans, graphics area; and a certain critical mass or minimum land. Investment in capital facilities is not and printing businesses, construction contrac- scale of development. substantial in most cases. Like the warehouse, tors and special trades, and security and busi- distribution and storage uses, the planning area ness service firms. Most of these types of uses A waterfront setting, views, recreation facili- no longer offers significant locational advan- have located in existing older buildings, adapt- ties, and open space all enhance the market- tages for construction uses, and water access is ing space as needed, although the stock of large, ability for such uses. Although Oakland has not as critical. It is likely that, over time, the older buildings is not always well-suited for not established itself in the R&D market, at- planning area will become less desirable for this market. tributes of portions of the planning area could such uses. be competitive. There is the potential for future growth of Wholesale Produce Industry. The wholesale light industrial activities in the planning area. Office. Office uses have been growing within produce industry in Oakland is centered at the Development of flex-type space that allows the planning area. The mix of uses and his- Oakland Produce Market in the Jack London businesses with different activities and func- torical quality of the Jack London District District. However, market operations are not tions would be desirable, as would improve- support a less-traditional office niche in close expected to remain there over the long term. ments to enhance the desirability of older in- proximity to the Oakland Central Business A recent City study identified that physical dustrial areas by providing some level of ame- District (CBD). The area’s convenient loca- conditions of the existing facilities are inad- nity, upkeep, and security. tion and its opportunities for new space, for equate for modern, efficient operations, and interesting space in older industrial buildings, that the type of modern distribution facility Research and Development. Research and and for owner-occupied office space have at- needed cannot be provided at the current lo- Development (R&D) and various high-tech- tracted a wide variety of smaller office ten- cation. Eventual relocation of the wholesale nology uses have been expanding in the inner ants, including architects, consultants, media- produce market will offer opportunities for East Bay as growth continues in these sectors related firms, and insurance, law, and other reuse of the area. throughout the region. Campus-type business professional service firms. The demand for park development is desired by many of these office space is expected to continue to grow.

26 Oakland Estuary Policy Plan Lower cost office space in the Embarcadero Outside of Jack London Square, eating and ity to downtown, and the availability of large Cove area has also attracted office uses. That drinking establishments that take advantage warehouse buildings. These types of locations location’s relative isolation from other office of water views and ambiance are evident, but in the planning area are likely to remain at- activities has been offset by a waterfront set- not plentiful. There is potential for growth tractive to larger retail uses. ting and lower cost space with surface park- of these uses as new development occurs, pub- ing. lic access and open space improvements are Hotels/Motels. Hotels and motels in the plan- made, and larger numbers of people are attracted ning area have been very successful. Lodging Commercial. A range of commercial uses and to the waterfront. in the Embarcadero Cove area offers moder- activities exist along the waterfront, and have ately priced rooms on the waterfront with been increasing in importance over time. Po- Larger scale retail uses also have been success- good freeway accessibility and proximity to tential exists for increased commercial activity ful in the planning area. A mix of retailers of- the Oakland Airport. Additional hotel devel- throughout the planning area. fering home furnishings, children’s and spe- opment will soon be under construction in cialty items, and off-price goods provide a that area. Lodging in the Jack London Dis- As a destination for dining, entertainment and shopping attraction in the Jack London Dis- trict includes moderately priced hotel/motel retail uses, Jack London Square’s performance trict. Retailers are doing well and sales have units and a full-service hotel at the waterfront. has improved significantly since the early been increasing. There is potential to add simi- Potential exists for a higher amenity waterfront 1990s. Major new attractions (Jack London lar types of retailers nearby. Oakland and the hotel in the Jack London District. Over time, Cinema, Barnes and Noble, Yoshi’s), estab- inner East Bay are very underserved in goods re- hotels are a potential use for other waterfront lished restaurants, and numerous special events tailing. locations, particularly in the Oak -to- Ninth now bring thousands of people to the area. area, after new open space and recreation uses There is momentum to build on and great Good freeway accessibility and visibility, the are developed there. potential to strengthen and expand the area as availability of a large, formerly industrial sites, a stronger and desirable destination for retail, and a location on a major route (I-880) are Housing and Work/Live. Residential uses in dining and entertainment activities. key factors in the recent development of a large the planning area range from single-family new retail uses such as the Super K-Mart in units in the Kennedy Tract neighborhood to Additional unique uses and attractions, as well the San Antonio/Fruitvale area. Other large higher density units and loft housing in the as physical improvements, will be important retailers (e.g. Arvey’s Paper) have located in the Jack London District and work/live units in to create a more inviting “people place” that more industrial areas of the Jack London Dis- transitioning industrial areas. The mixed-use better capitalizes on its waterfront setting. trict because of freeway accessibility, proxim- character of the planning area makes it attrac

Section II: Objectives 27 tive for work/live activities, which are com- There also is the potential for additional work/ neighborhoods mitigated. The new uses can patible with both the industrial and residen- live and loft housing in the Jack London Dis- help to strengthen the economy of the city tial areas. Work/live studios in the older in- trict in the future. There are some opportuni- and shape Oakland’s identity as a waterfront dustrial waterfront areas are relatively afford- ties for additional conversions of warehouse city an identity that will be a source of pride able among such uses in the East Bay, and are buildings to work/live lofts and some oppor- and enjoyment for residents and visitors for attractive to artisans and craftspeople working tunities for new construction. Prices and rents years to come. on the premises as well as to incubator-type in the area will eventually reach levels high businesses. Work/live and loft housing in the enough to cover the costs of newly constructed More specifically, the Estuary Policy Plan rec- more central portions of the Jack London loft housing and work/live projects. The ommends reconfiguring land use patterns District is more attractive to East Bay artisans district’s industrial/artistic feel, its mix of uses, along the shoreline, to build upon the follow- and entrepreneurial professionals, and com- and its urban development pattern are impor- ing opportunities: mands higher prices and rents. Throughout tant aspects of the area’s desirability for urban, the planning area, work/live and loft housing nontraditional types of housing. ! Urban Entertainment and Mixed Uses has been developed through the conversion and Extending from the Waterfront to the City rehabilitation of older warehouse and indus- ISSUES & OPPORTUNITIES Center and Chinatown. The Jack Lon- trial buildings. don District has been established as a re- With the decline of its historic industrial, ware- gional destination for retail, dining and en- There is the potential for more work/live uses housing and commercial uses, there is the op- tertainment, and as a lively mixed-use dis- and housing in the planning area in the fu- portunity to establish a new role for the Estu- trict. There is now the distinct potential to ture. Improvements that capitalize more on ary—one that emphasizes a publicly spirited build on the successes of the area, create a the waterfront location in the San Antonio/ place that is tied more closely to the surround- stronger regional destination, and establish Fruitvale District could enhance the attractive- ing neighborhoods and districts. activity centers that benefit the city as a ness of that area for additional conversions of whole. The strength of the entertainment/ existing buildings to work/live activities. The In the future, successes in certain areas (such as mixed-use segments of the economy offers development of new housing in this formerly Jack London Square) can be extended, exist- an opportunity to realize a long-held city industrial area would require public investment ing residential neighborhoods reinforced, new objective to connect the waterfront (physi- in infrastructure and amenities, and would mixed-use neighborhoods established, viable cally and economically) to downtown Oak- need to be done at a scale large enough to cre- industries supported, and incompatibilities land. Intensifying these uses at Jack Lon- ate a neighborhood identity. between heavy industrial uses and residential don Square, and expanding them along the

28 Oakland Estuary Policy Plan Broadway Street corridor will realize that area offers the largest single opportunity in Objective LU-1: Provide for a broad mix- objective. Oakland to provide for dramatic, large- ture of activities within the Estuary area. scale economic development, plus a main ! Redevelopment of Declining Commercial public space at the waterfront. As the waterfront changes away from indus- and Industrial Areas. Some portions of trial, warehousing and maritime support uses, the Estuary shoreline are underutilized, due A system of inter-connected open spaces a broader range of new uses should be encour- in large part to the decline of the industrial can connect the Estuary shoreline with Lake aged that are complementary with the exist- base that historically has dominated the Es- Merritt. There is potential to build upon the ing uses that remain. Development should tuary. Today, the Estuary provides an op- diverse nature of the shoreline and provide build upon the value of the waterfront as a portunity area for new uses that contribute for a variety of water-oriented recreational community amenity and attraction. to and/or benefit from a waterfront envi- activities (both passive and active). These ronment. It can also be a valuable resource recreational uses can be complemented by A variety of uses can contribute in making the in fostering nontraditional land uses within public-oriented activities, including hotels Estuary of value to Oakland’s community and existing buildings (such as work/live, arti- and restaurants, as well as nonprofit insti- an attractive regional destination. A balance san studios, incubator, commercial and tutions, cultural facilities, and existing ar- of uses and activities such as commercial, rec- R&D). tisan studios on private property. reation, and residential - both traditional and non-traditional - will add to a dynamic water- At the same time, these older buildings rep- LAND USE OBJECTIVES front. Additionally, innovative mixes of cul- resent the history of the city. To the extent tural arts, institutions, and events that entice possible, they should be preserved and Objectives for land use recognize the Estuary people to experience and enjoy the waterfront adapted to contemporary re-use. as an attractive location for development op- in a variety of ways should be included. Mea- portunities and intensification of a variety of sures should be established to protect against ! Reuse of the 5th Avenue to 9th Avenue activities. They are based on and reinforced incompatibilities between diverse uses. Area. The possibility of consolidating by the objectives in the General Plan Elements maritime operations in the Oakland Outer addressing Land Use & Transportation (1998), Objective LU-2: Provide for public activities Harbor creates opportunities for a major Open Space, Conservation & Recreation that are oriented to the water. redevelopment effort in an area extending (OSCAR; 1996), Historic Preservation (1994) from the Ninth Avenue Terminal to the and Housing (1992). The Estuary waterfront should be developed mouth of the Lake Merritt Channel. This in keeping with the spirit of the public trust,

Section II: Objectives 29 Objective LU-3: Expand opportunities and promote economic development and All of this economic activity will succeed in enhance the attractiveness of the Estuary as employment opportunity in Oakland. the Estuary area because of the unique business a place to live. environment created by the waterfront’s Waterfront locations are attractive areas for amenities. Strong economic links should be The Estuary has been a place for people to businesses and commercial uses. Oakland’s forged between the waterfront and the rest of live, with neighborhoods established close to Estuary can accommodate a wide variety of the City, so that the benefits derived from jobs on inland sites. The mix of jobs and uses which will add to the economic helath waterfront development are realized in the housing is characteristic of urban waterfront and well-being of the City. Opportunities Estuary study area and beyond. locations, and provides a precedent for modern range from hotels, restaurants, and day mixed use. It should remain so. entertainment venues to retail, general office Objective LU-5: Provide for the orderly space, cultural facilities, and business parks. At transformation of land uses while In the future, opportunities to develop hous- the same time, existing commercial and acknowledging and respecting cultural and ing should be supported in the Estuary study industrial uses that are already extablished and historical resources. area. An expanded residential population and which also contribute to the City’s tax and associated services would support commercial employment base should be encouraged to Transformation of the Estuary should take and recreational uses, and over time generate expand. These are all ‘growth industries’, which place in an orderly fashion, incrementally, and neighborhoods. A larger day and night popu- present the opportunity for Oakland’s in consideration of the long-range goals of the lation would add to the safety and livability residents and business community to receive city. of the waterfront. Development should be direct and indirect economic benefits. designed to avoid the feeling of ‘gated’ or pri- The Estuary Policy Plan calls for changes in vate communities.1 Employment opportunities, the tax base, and land use and new development projects that spin-off activities should expand with the will be implemented over an extended time Objective LU-4: Develop the Estuary area introduction of new waterfront developments. frame, within the context of a dynamic urban in a way that enhances Oakland’s long-term In addition, the tax revenue derived from new environment. Infill of vacant and underutilized economic development. development will add to the ability to develop parcels, as well as demolition or buildings the open space and other amenities which are adapted for reuse should occur while respect- The waterfront has historically been, and envisioned. ing cultural and historic resources, when ap- continues to be, an important place to plicable.

1 See Oakland General Plan, Land Use Transportation Element, Policy W9.3.

30 Oakland Estuary Policy Plan The waterfront is one of the city’s most his- should be aligned and designed to enhance toric areas. There are several districts, sites and/ greater continuity of land use. This will allow or buildings of significance, which should be the Estuary area to become a more integral respected, assessed, and preserved, if feasible.2 part of the city. More specifically, Broadway, Webster, Fifth, 29th, Fruitvale, 42nd and High Objective LU-6: Create greater land use Streets should be assessed and carefully de- continuity between the Estuary waterfront signed when they are reconstructed to promote and adjacent inland districts. clear and safe means of access from inland neighborhoods to the waterfront. The historic development patterns in the Estuary study area have resulted in a unique juxtaposition of industrial, residential, and commercial uses, plus divisive transportation corridors. It is an objective of the Estuary Plan to minimize the adverse impacts associated with incompatible uses.

Currently, there is a break in the land use pattern as it meets the Estuary shoreline. Adjacent neighborhoods and districts are interrupted by transportation corridors, thus exaggerating the contrast between activities along the shoreline and those in inland areas of the city.

While the regional transportation corridors are here to stay, local-serving roadways and streets

2 See Oakland General Plan, Historic & Preservation Element, Policies 3.0 series.

Section II: Objectives 31 The Estuary shoreline will include a wide range of open space experiences.

32 Oakland Estuary Policy Plan Shoreline Access & Public Spaces

The planning of open space in Oakland has However, Robinson identified a significant However, recreational activities such as fish- long focused on the physical features of the problem which has only partially been re- ing, viewing, sitting, bicycling, jogging, and city—in particular, the creeks and canyons solved: Residents had “no access to their glo- walking, have increased in recent years, along leading from the hills to the Estuary. rious waterfront on one of the most beautiful with recognition of the shoreline’s value as bays of the world.” habitat for wildlife and as a place for Over 100 years ago, in 1888, landscape archi- birdwatching, nature walks, and interpretive tect Frederick Law Olmsted made a proposal Although Lake Merritt, the creeks and hill- and educational experiences. for a “wildwood” chain of parks throughout sides were viewed as important elements in the city. Later, in the early 1900s, Mayor Mott Olmstead’s chain of parks and open spaces SHORELINE ACCESS engaged the world-famous planner Charles within the city, the shoreline was not origi- Mulford Robinson to prepare a plan for the nally conceived in open space terms. At the Efforts to develop public access along the city. The 1905 Robinson plan established a turn of the century, when parks and play- shoreline have been guided by BCDC, which system of parks and playgrounds under the grounds were being built in inland areas, docks (in a joint effort with the City and the Port) is newly created Oakland Park Commission, and and wharves, were being constructed on the currently preparing a public access plan for the laid the foundation for a regional park sys- waterfront. Although the Robinson plan had entire Oakland waterfront, including the Es- tem. Following bond approval, a period of identified the concept of building a recre- tuary shoreline. In addition, the EBRPD is park development ensued. Lakeside Park sur- ational pier at the foot of Broadway, the wa- developing plans to extend the Martin Luther rounding Lake Merritt was developed, and terfront was principally seen as a place of com- King, Jr. Regional Shoreline (an environmen- Lake Merritt itself became the first official merce. tal reserve on the eastern end of the planning wildlife refuge in the state of California. area).

Section II: Objectives 33 34 Oakland Estuary Policy Plan Section II: Objectives 35 San Francisco Bay Trail the city. In particular, recreational boating has tire Jack London waterfront and occur over a expanded dramatically. day or weekend (such as the boat show, Festa, Regional interest in a continuous pedestrian etc.). Major concerts have been very success- and bike path along the bay has resulted in Plans are underway by the Port, City, and other ful, and over the past three years, attendance efforts coordinated by the Association of Bay entities to improve and expand boating facili- has tripled to crowds as large as 15,000. Other Area Governments (ABAG) to create a 400- ties. Specifically, the Port is rebuilding its 160- events include weekly farmers’ markets, con- mile Bay Trail in nine bay counties. In Oak- berth marina at Jack London Square and Cal certs, special celebrations and rallies, which land, 21 miles of the Bay Trail are planned, Crew has proposed the relocation and expan- typically attract around 1,000 people and are but only 8.5 miles have been completed, pri- sion of its boathouse within the Union Point typically staged at the foot of Broadway. marily on existing public streets in the Em- area. In addition, a new Aquatics Center is barcadero Cove and Jack London Square ar- planned in Estuary Park, which would expand ISSUES & OPPORTUNITIES eas. the programs that currently take place on Lake Merritt and provide boating instruction and What was evident to Charles Robinson in Water Spaces similar activities. 1905, to the League of Women Voters in 1993, and to the General Plan Congress in 1996, is Certain recreational activities fit well within Special Events still an issue today. Although several places the confines of protected water of the Estu- exist where public waterfront access has been ary. Small boat sailing, rowing, canoeing, and Through the efforts of the Port of Oakland, provided (eg., MLK Regional Shoreline, Jack kayaking established a presence along the wa- the waterfront has increasingly developed into London Square, Estuary Park, Portview Park, terfront, and are activities well suited to the the primary location for Oakland’s civic several fishing piers, etc), the Estuary shore- calm, smooth waters of the Estuary. The tra- events, community celebrations, and cultural line is not a cohesive open space system. dition of rowing dates from the early 1900s, activities. Some of these are major events at- when the University of California (Cal Crew) tracting several thousand people, such as Cir- Existing sites are isolated from one another located its boathouse in the area amid ware- que du Soleil, the Fourth of July fireworks, and from the rest of the city and often not houses and agricultural industrial businesses. lighting of the Christmas tree, and boat pa- well identified or developed. Open space is fre- Recreational interest in the shoreline has in- rades. quently shared with automobile traffic. The creased with time, particularly as industrial and only existing city park within the area, Estu- warehouse activities have shifted away from Others are large events that are somewhat less ary Park, is difficult to find and is poorly main- the mid Estuary to the western periphery of intensive, and may be spread out over the en- tained. Furthermore, some of the prominent

36 Oakland Estuary Policy Plan spaces that are used for major civic celebra- ! Continuous Shoreline Access / Fill In Gaps ! Tidelands Enhancement. Additional tidal tions and events are subject to future develop- in the Bay Trail. A continuous Bay Trail marshland enhancement areas to provide ment. immediately adjacent to the shoreline, with valuable habitat for birds and other wild- a separated pedestrian path (where physi- life species, and new opportunities for bird Despite tremendous community interest in ex- cally feasible) as well as a continuous recre- watching and other educational/interpretive panding open space and recreational opportu- ation-oriented boulevard that accommo- experiences. nities along the Estuary, the creation of a co- dates pedestrians and bicyclists and provides hesive open space system has been stymied by for vehicular and transit access. ! Connections to New Parks and Open existing ownerships and water-related busi- Spaces. Connections to new parks and nesses, interrupted roadways, and barriers cre- ! Waterfront Parks. New waterfront parks open spaces planned along the opposite ated by rail spurs. along the Bay Trail, ranging from additional shore, in Alameda and on Coast Guard Is- urban spaces for intensive recreational ac- land, to reinforce the Estuary as a primary Yet, the waterfront offers many opportunities tivities to large open areas for performances, open space for the communities adjoining it. to add to the amount and quality of public competitive events, or civic celebrations. recreational space. It has the capability to sup- SHORELINE ACCESS & port a wide variety of recreational activities, ! Boating and Water-Oriented Recreation. PUBLIC SPACE OBJECTIVES (particularly water sports), and the potential Additional facilities for boating, in particu- to provide visual relief, opening up intensely lar, to facilitate the transition of smaller craft Objectives for access and public spaces recog- developed urban areas to the bay. A number (canoes, rowboats, kayaks) into the water. nize the emerging role of the waterfront as a of opportunities exist to create a “necklace” of key place for open space and recreation within open spaces along the Estuary. As changes in ! Link to Lake Merritt. A public open space the city and region. It builds upon the objec- land use occur, continuous public access punc- and pedestrian linkage along Lake Merritt tives for public access, open space, and recre- tuated by larger open spaces and linked to the Channel between Estuary Park and Lake ation articulated in various planning docu- rest of the city, will become an attractive ele- Merritt, to build upon the recreational ments, most notably the Open Space, Conser- ment of a revitalized waterfront. value of the lake and the Estuary, and to vation and Recreation Element (1996) and the create stronger ties with the surrounding Land Use and Transportation Element (1998) Opportunities to establish a larger and more communities, in a manner that maintains of the General Plan. coherent network of shoreline access and public the high quality of regionally significant recreational spaces include: wildlife habitat.

Section II: Objectives 37 Objective SA-1: Create a clear and Cove, Brooklyn Basin and Coast Guard Is- A number of parks and larger open spaces are continuous system of public access along the land; and the lively areas within the Jack Lon- proposed that would build on the intrinsic Estuary shoreline. don District. Each of these special qualities character of the shoreline and provide for a should be reflected in the design of parks, wide range of recreational experiences. The Provision of continuous shoreline access is an promenades, and open spaces. intent is to create series of parks and other important goal embraced by both regional and publicly accessible spaces, capable of accom- local communities. Futhermore, it is a spe- General objectives for the provision/enhance- modating a wide variety of recreational activ- cific mission of BCDC and ABAG’s Bay Trail ment of open space and associated facilities at ity, connected by a shoreline promenade. program, and a prime objective of the East all locations include: These could include: Bay Regional Park District. In the Oakland segment, the intention is to provide a con- ! Preservation and protection of the natural ! A portion of the “Meadow” in front of tinuous system of public waterfront spaces, features, wildlife and vegetation; the Port Building in Jack London Square; and to provide for a continuous open space network which connects all waterfront ele- ! An easily identifiable standard sign system ! A new “Green” to anchor Phase 2 devel ments, which provides a variety of waterfront that can be implemented throughout the opments at Jack London Square; experiences. open space system, to provide directional/ orientation/interpretive information; ! A new “Greenway” extending along Webster Within the parameters of safety and security, Street to connect Jack London Square to development of public facilities should be un- ! Physical improvements to increase visitor the inland neighborhoods; dertaken according to site-specific standards, comfort, safety, and pleasure (eg. separated based on the physical capacities and program- paths, landscaping, lighting, observation ! Expansion of Estuary Park; ming needs of the particular site. pads, comfort stations, trash receptacles, furniture, emergency services, vehicular ! A series of parks in the 5th-9th Avenue There is a diverse sequence of spaces along the parking, etc.) area; shoreline, including the protected nature of the Lake Merritt Channel; the marshy habitat Objective SA-2: Punctuate the shoreline ! A new park at Union Point; and that extends to Damon Slough; the expansive- promenade with a series of parks and larger ness of the Fifth Avenue Point shoreline edge; open spaces. ! Expanded and improved facilities along the sheltered character of the Embarcadero the MLK Regional Shoreline.

38 Oakland Estuary Policy Plan Objective SA-3: Emphasize visual corridors junction with the EBRPD, neighborhood or- awareness and understanding of the contribu- and open space links to surrounding inland ganizations and other interested parties to en- tion the Estuary makes to the quality of life in areas. sure that the recreational activities provided Oakland today, all waterfront facilities should help to meet identified needs. be considered as potential visitor centers. To To make the Estuary shoreline more accessible, the extent feasible, significant historic sites and links to inland areas should be strengthened. Objective SA-5: Enhance natural areas along buildings should be preserved, adapted for re- Visual corridors and physical links to the wa- the shoreline. use, and explained. Open space and shoreline ter should be provided at regular intervals along access areas should be programmed to include the shoreline, using the grid of city streets in There are significant opportunities along the educational and interpretive elements.. Ac- their full widths, to enhance the connection Estuary shoreline and Lake Merritt Channel tivities such as historic walks and self-guided between inland areas and the water. In addi- to enhance remnant tidal marshes and other tours should continue to be offered. Plaques tion, the design of open spaces should pro- natural areas. These areas can add to the visual or appropriate markers that recognize and mote opportunities to appreciate views and enjoyment and diversity of the shoreline, and commemerorate the waterfront’s history waterfront amenities from inland areas. At expand wildlife habitat for birds and other should be encouraged.3 the same time, key corridors should be extended species. They can also create outdoor areas for outward to the Estuary itself, to provide view- direct learning and experiences related to na- To the extent feasible, significant historic sites ing experiences that are unique to the Estuary. ture. and buildings should be preserved, adapted for re-use, and explained. Open space and shore- Objective SA-4: Develop opportunities for Objective SA-6: Encourage the development line access areas should be programmed to in- recreational activities that are oriented to the of educational and cultural programs and clude educational and interpretive elements. waterfront and serve identified neighborhood interpretive facilities that enhance needs. understanding of the waterfront environment.

Recreational areas along the waterfront should The Estuary shoreline is an ideal site for learn- meet the needs of the region and the city as a ing about nature, the history of the city, the whole, as well as specific adjacent neighbor- economic activities supporting it, and the hoods and districts. Programming of larger unique recreational and leisure activities avail- recreational areas should be undertaken in con- able to residents. In order to enhance public

3 See Oakland General Plan, OSCAR Element, OS 7.3.

Section II: Objectives 39 40 Oakland Estuary Policy Plan Section II: Objectives 41 A continuous waterfront parkway will provide for pedestrian, bicycle and vehicular movement along the Estuary shoreline

42 Oakland Estuary Policy Plan Regional Circulation & Local Street Network

Soon after its inception in 1852, Oakland (and freight operations as major components of crossings along the line. But the difficulties the waterfront in particular) became a major Oakland’s transportation function. posed by the rail network for local circulation crossroads within the region, state, and nation. were magnified by construction of the I-880 An early catalyst for economic development While Oakland’s comprehensive system of pas- freeway, which parallels the railroad right-of- occurred in 1869 with the establishment of senger and freight transportation represents way. The combination of the freeway, the rail Oakland as the western terminus of the trans- important economic arteries for the Bay Re- corridor, and the BART corridor creates a continental railroad. Subsequent development gion, it has been developed at the expense of physical barrier to auto traffic as well as pedes- of transportation infrastructure focused on the the local circulation system. trians and bicyclists. railroad terminus: steam trains and ferries to take passengers to San Francisco, wharves and BARRIERS Additionally, the juxtaposition of the freeway steamers to move freight, and additional rail system over the city grid has created a series of connections to distribute goods up and down In the Estuary area, the sheer magnitude of oddly-shaped land parcels that are hard to the coast. the regional transportation infrastructure has make use of. Confusing interchanges, sub- contributed to the fragmentation of the local standard ramps, and circuitous routing of traf- In the years since, Oakland’s strategic location street system, and created a physical and psy- fic are disorienting to travelers in the Estuary has helped to enhance the city’s role as the hub chological barrier between the city and its wa- area. The confusing nature of the circulation of a transportation network serving the city, terfront. system creates safety problems and disincen- the San Francisco Bay region, and entire West- tives for those unfamiliar with the area to visit. ern half of the United States. BART, Amtrak, For example, railyards separate the waterfront aviation services all have joined the historic and the city, penetrable only at specific grade

Section II: Objectives 43 Furthermore, it is not possible to walk, bi- more comprehensible and amenable circula- interchange improvements can only be un- cycle, or drive directly from one end of the tion system that ties together the various at- dertaken with Caltrans’ approval and in- Estuary to the other. Crosstown routes that tractions of the waterfront, and reconnects them creasingly must rely upon nontraditional link the hills and the bay are ambiguous, and to the city. These include: sources of funding, consideration should meet the Estuary shoreline in an awkward or be given to the creation of full-movement interrupted fashion. ! Embarcadero Parkway. A continuous interchanges at selected points along the parkway connecting Oak Street on the west freeway (Caltrans standards suggest one- Crossings of the Estuary to Alameda and with 66th Avenue on the east could be cre- mile intervals) and to the removal of sub- waterborne connections to the larger region ated. This parkway would not only pro- standard on and off-ramps. are fairly limited, considering the proximity vide a critical link in the circulation net- of destinations in the two cities. Three bridges work, but would also provide a sense of As an integral part of these improvements, and the two tubes provide vehicular access orientation, connect diverse open spaces, it is important to enhance parallel circula- between Oakland and Alameda, and a ferry and provide paths for strolling and passive tion on both sides of the I-880 corridor, terminal at Jack London Square provides ac- recreation. but away from the Estuary shore. cess to Alameda and San Francisco. However, these connections are clustered at the ends of The parkway could be designed to accom- The absence of direct connections from I- the Estuary, leaving a large reach of the shore- modate a full range of transportation 880 (Cypress Freeway) to Downtown Oak- line (Jack London Square to Fruitvale) with- modes, including automobile, transit, bi- land and Jack London Square is a concern out connections across the water that link it cycles and pedestrians, but managed as a to the city. Efforts must be made imme- to Alameda or the larger Bay Region. “slow street” to discourage through move- diately to rectify this severe problem, and ment of truck traffic. make the waterfront accessible from the ISSUES & OPPORTUNITIES regional freeway network. ! Freeway Access. Simplifying and enhanc- It is absolutely necessary to clarify and improve ing freeway access to and through the area ! Local Access. Local access corridors across the circulation system to and along the water- could be achieved by consolidating freeway the freeway that enable motorists, pedes- front in order to meet the objective to enhance ramps and linking them to major thor- trians and bicyclists to reach the water could the image and identity of the Estuary area and oughfares. Existing on and off-ramps oc- be constructed. Once freeway ramps are make the waterfront a more integral part of cur in a seemingly haphazard manner, and consolidated at the major interchanges, the city. Several opportunities exist to create a do not meet current standards. Although opportunities to create and enhance links

44 Oakland Estuary Policy Plan to inland neighborhoods can be maxi- don Square with the City Center and be- reflected in the General Plan Land Use & mized. yond, could be implemented. Although Transportation Element and Bicycle & more difficult to accomplish, there is also Pedestrian Plan. ! Waterborne Transportation. New links an opportunity to establish a rail transit by waterborne transit (eg. ferries, water link between the Fruitvale BART station Objective C-1: Improve and clarify regional taxis and shuttles) that utilize the Estuary and Alameda along an existing rail right- access to Oakland’s waterfront. as a corridor for circulation, and which con- of-way on Fruitvale Avenue, which crosses nect future activity centers on both the the Estuary into Alameda. Interchanges along the I-880 freeway should Alameda and Oakland sides, can be estab- be consolidated at arterial roadways and lished. ! Parking. As land uses change in the Estu- brought up to current standards to improve ary area, adequate parking will be required access to and within the Estuary area. Ferry service from existing terminals is ex- to support new uses. Parking areas should pected to increase between Oakland/ be strategically located, in accordance with The I-980 connection to the Alameda Tubes Alameda and San Francisco, as well as to urban design objectives for the area. Park- at the Jackson Street off-ramp currently routes Treasure Island, Angel Island, and other ing facilities should be evenly distributed traffic through city streets, and should be im- recreational destinations. and accessible, while avoiding prime wa- proved to alleviate congestion on local streets terfront spaces and pedestrian precincts. and clarify access routes to Alameda and on In addition, there is the potential for water Oakland local streets. taxi and shuttle service in the upper reaches of the Estuary, linking activity centers as Improved freeway interchanges should be con- they develop. While expanded water taxi REGIONAL CIRCULATION & sidered at 5th Avenue, 23rd Avenue, Fruitvale, and ferry service has long been pursued in LOCAL STREET NETWORK and High Street/42nd Avenue. A new inter- the Estuary, this may be an opportune time OBJECTIVES change should be investigated to provide di- to tie it more closely to new development rect access from I-880 to Jack London Square opportunities. Objectives for regional circulation and local and downtown Oakland. street networks recognize the importance of ! Transit Loop. A trolley line along the circulation and access to support the objectives Broadway spine, connecting the Jack Lon- for land use, public access and public spaces. These add specificity to a number of objectives

Section II: Objectives 45 46 Oakland Estuary Policy Plan Section II: Objectives 47 Objective C-2: Establish a continuous overview areas, and, where appropriate, park- Objective C-4: Strengthen local circulation waterfront parkway; a safe promenade for ing, and other features which provide a con- connections between Oakland neighborhoods pedestrians, bicycles, and slow-moving tinuous parkway character for pleasant driv- and the waterfront. automobiles. ing, walking, and cycling. The parkway should be slow-moving. The roadway should be ac- With anticipated improvements to the re- For the most part, vehicular circulation should companied by separate or contiguous bicycling gional transportation system, better connec- be accommodated on existing roadways. and pedestrian paths where feasible. tions can be made between the waterfront and However, a continuous waterfront parkway is inland neighborhoods. a top priority in the Estuary Policy Plan. The Objective C-3: Balance through movement Parkway should take advantage of and stay with local access along the waterfront. Specifically, emphasis should be placed on within the Embarcadero right-of-way, extend- improving those connections which already ing from Jack London Square to Park Street. In many urban waterfronts, shoreline trans- exist: Washington, Broadway, Webster, portation corridors have been allowed to be- Franklin, Oak, 5th, 16th, 23rd, 29th Avenues, Beyond Park Street, it may be necessary to come freeway-like environments, providing Fruitvale and High Streets. These links can be purchase additional right-of-way to allow the through movement at the expense of local ac- strengthened through alterations of street parkway to be connected through to Fruitvale cess. The concept of the Embarcadero Park- alignments or extensions of existing roadways, Avenue and beyond to Tidewater Avenue and way, described above, aims to properly bal- relocating parking areas, and improving pedes- 66th Street. ance local access with through movement. trian facilities.

West of Oak Street, the parkway should meet Traffic-calming methods should be incorpo- Objective C-5: Promote transit service to and the city grid, providing several routes west to rated into roadway design throughout the along the waterfront. Mandela Parkway. study area, to ensure that vehicular movement is managed in consideration of recreational and Land and water-based transit services should The configuration and cross-sectional charac- aesthetic values. The parkway should not be- be extended to and along the waterfront. Tran- ter of the roadway will likely vary, depending come an overflow or alleviator route to the I- sit services should be focused along Broadway, on availability of right-of-way, adjoining land 880 freeway, and it should prohibit through Washington, Franklin, Third, and Fruitvale. uses, and traffic conditions. The parkway and truck movement. all other waterfront roads should treated with appropriate landscaping, lighting, signage, rest/

48 Oakland Estuary Policy Plan A special transit loop linking Jack London Objective C-7: Provide adequate parking Square with other significant activity centers without diminishing the quality of the urban (eg., Old Oakland, the Oakland Museum, environment. and the Lake Merritt and City Center BART stations), should also be encouraged. Passen- In the Jack London District in particular, pro- ger rail service between Fruitvale BART and vision of adequate parking is critical to Alameda should be studied further. accomodate both existing and future demands. Several sites currently used for surface parking Redevelopment on both the Oakland and are subject to future development. In addi- Alameda sides of the Estuary may, in the future, tion, parked vehicles are ‘spilling over’ into warrant increased ferry and water taxi service. pedestrian areas, to the detriment of the Water taxis can link activity centers on both District’s attractiveness. To resolve this, a com- sides of the Estuary, transforming the water- prehensive parking management strategy way into a viable boulevard that brings together should be developed to plan for and provide the Oakland and Alameda waterfronts. adequate parking.

Objective C-6: Improve pedestrian and bicycle circulation.

Bicycle and pedestrian networks should be extended throughout the waterfront. By enhancing the Embarcadero Parkway, a continuous pedestrian path and bicycle route can be established along the waterfront. Links from the parkway to upland neighborhoods are proposed along connecting routes, including Oak, Lake Merritt Channel, 2nd Street to 3rd Street, Fifth, Fruitvale, and Alameda to High, as well as the grid of streets in the Jack Lon- don District.

Section II: Objectives 49 50 Oakland Estuary Policy Plan III District Recommendations

Section III: District Recommendations 51 Aerial view of the Central Jack London District.

52 Oakland Estuary Policy Plan Jack London District

The Jack London District encompasses ap- Over the past several decades, the Jack Lon- to the port’s maritime services in the middle proximately 225 acres of land situated between don District has experienced tremendous and outer harbors. Adeline Street on the west and Oak Street on change. The westward growth of the port and the east. Properties within the district are pre- development of container terminals on filled The construction of regional transportation dominantly in private ownership, but also inland, as well as the decline in shipbuilding and projects in the 1960s, such as the Webster Tube clude some large public land holdings (Figure fishing after World War II, brought about a to Alameda and the Nimitz Freeway, and the III-1). In particular, the Port of Oakland has a transformation in the area. Many of the ser- siting of large-scale public buildings along the significant presence, with ownership of 31 vice support and industrial uses that tradition- freeway corridor, contributed to the physical acres of land on the water side of the Embar- ally occupied the district declined and left the isolation between this area and the rest of the cadero, as well as additional parcels inland. The area. Some buildings were vacated as these city (Figure III-2). Jack London District historically served as an uses moved elsewhere; others continued to be important center of maritime trade and com- used, but not fully; and still others were Today, the transformation of the Jack Lon- merce, and today is associated with the figure adapted to new uses. don District is well underway. Uses such as of Jack London, his seafaring adventures, and retail, dining and entertainment have expanded spirit of rugged individualism. These historic Although industrial and distribution uses re- along the waterfront. Home improvement resources are represented in the historic prop- main dispersed throughout the district, they and off-price retail outlets are emerging to the erties and districts that exist throughout the are particularly concentrated in the western west of Broadway, with office, work/live and Jack London District (Appendix A). portions of the district between Adeline Street loft residential uses are increasing to the east. and Martin Luther King, Jr. Boulevard, close It is an opportune moment to capitalize upon these positive trends and realize longstanding

Section III: District Recommendations 53 54 Oakland Estuary Policy Plan Section III: District Recommendations 55 LAND USE

The policies for land use emphasize strengthening the district’s economic role within the region, building on existing trends and poten- tials, and broadening the appeal and quality of the area. Envisioned for the area is a mix of uses that builds on the amenity of the waterfront and provides a strong connection with the downtown.

Specifically, within the Jack London District, the Estuary Policy Plan reinforces existing trends toward commercial and residential land uses (Figure III-3). New uses should be promoted as infill development at Jack London Square and along the Broadway spine to create an intense area of public interest and activ- The Jack London waterfront is becoming a significant regional destination. The Cirque du Soleil attracted hundreds of ity that seamlessly links the waterfront to thousands of visitors in 1997. downtown Oakland. community objectives for renewal of the dis- ued redevelopment of the Jack London Dis- trict as a whole. trict is essential not only for the district itself, To the east of Broadway, new residential de- but also as part of a citywide and downtown velopment that is compatible with the existing The Jack London District should play an in- improvement strategy that will help to repo- industrial use and character of the area should creasingly important role in contributing to sition the downtown as a multidimensional be encouraged. A residential population in this Oakland’s quality of life and making the wa- activity center. area can infuse new vitality into the district as terfront a more visible part of the city. The a whole. West of Broadway, the trend toward area is closely tied to downtown Oakland, off-price retail should be continued and en- both physically and functionally. The contin- couraged.

56 Oakland Estuary Policy Plan Section III: District Recommendations 57 For ease of discussion, the Jack London Dis- JL-1.1: Expand commercial uses along the should be developed as active publicly-oriented trict has been subdivided into 7 subdistricts. entire five-block frontage of Lower attractions such as retail, dining or entertain- Land use policies for each are presented as fol- Broadway. The plan recommends that a ment uses. lows: coordinated redevelopment effort be pursued by the Port, the City, and the private sector to Infill developments should be carefully de- Retail, Dining, & revitalize Lower Broadway as an integral signed to insure that views and shoreline ac- Entertainment District extension of the waterfront and downtown. cess are maximized, and that the continuity of (See also Policy JL-13.1) These blocks are pedestrian areas is maintained. In order to in- POLICY JL-1: REINFORCE RETAIL, DINING particularly important for retail, dining, and tensify the continuity of pedestrian activity AND ENTERTAINMENT USES ALONG THE entertainment uses. Upper level office uses within the area, several infill and development WATERFRONT, AND EXTEND THESE USES and ground-floor retail uses should be opportunities are identified. These include: ALONG BROADWAY TO CREATE A REGIONAL encouraged, to promote activity and daytime ENTERTAINMENT DESTINATION. populations on the streets. A “flagship” retail anchor or entertainment attraction, on the vacant site at the south- The Jack London Square has been established If necessary, acquisition and assembly of selected west corner of Broadway and the Embarca- as a significant regional destination for retail, frontage properties for development projects dero. Development of this site should gen- dining and entertainment. The Estuary Policy should be facilitated by the use of redevelop- erate significant activity and interest at this Plan recommends that existing pattern of uses ment tools as part of an overall strategy of in- key intersection. This development should be expanded and intensified within the Phase tensification and enhancement. be of a landmark design befitting its strate- I portion of Jack London Square (i.e., be- gic location. tween Clay and Webster Streets), and that the JL-1.2 Intensify Phase I of Jack London district to be expanded northward along the Square. Within the Phase I portion of Jack A freestanding restaurant, dining pavilion, Lower Broadway corridor between the Embar- London Square, (i.e., between Clay and or other attraction adjacent to the proposed cadero and Fifth Street. Webster Streets) the Estuary Policy Plan rec- ‘Meadow Green’ open space and historic boat ommends the intensification of retail, dining, basin at FDR Pier. (See Policy JL-9.1). This More specific policy guidance for development office, hotel, and entertainment activities in development should create a strong desti- within this area includes: conjunction with the enhancement of water- nation at the western terminus of the Wa- front open spaces and other shoreline ameni- ter Street corridor. ties. All ground-level frontages of buildings

58 Oakland Estuary Policy Plan Additional kiosks and retail extensions in office building and the courtyard between Commercial-Recreation District the plaza adjacent to the existing Barnes & the two buildings. Noble bookstore. The kiosks, food carts, etc. POLICY JL-2: ENCOURAGE THE REDE- should help to intensify activity on a daily Ground-level uses that face on Water Street VELOPMENT OF PHASE II OF JACK LON- basis, and provide patrons with high-qual- and the shoreline promenade should be DON SQUARE BETWEEN WEBSTER AND ity food services and an attractive environ- publicly accessible, and include retail, res- ALICE STREETS. ment for outdoor eating, with views to the taurants, public attractions, or other simi- water. lar uses. While visitor pick-up and drop- The Phase II portion of Jack London Square off should be accommodated, all parking represents a generation of waterfront redevel- In addition, expansion of existing retail should be off-site. (See Policy JL-13) opment undertaken in the 1960s and 1970s. uses on the south side of the plaza will es- Today, many of the buildings at Jack London tablish a stronger retailing edge. Water Street Redevelopment of the block bounded by the Village are in deteriorating condition. Conti- should be maintained as a through prom- historic boat basin, the Embarcadero, Clay nuity of public pedestrian access between Jack enade. The design of the pavilions and re- and Jefferson streets for public-oriented com- London Village and the rest of the Jack Lon- tail extensions should contribute to the fes- mercial-recreational and/or cultural use (e.g., don District is circuitous and unfriendly. tive visual environment. maritime museum). This longer term While the Heinolds First and Last Chance Sa- project should be pursued to help activate loon and Jack London’s cabin provide a unique A cafe extension on the south side of 77 Jack the water’s edge and create a major activity sense of the historic waterfront, they are iso- London Square (the Oakland Tribune build- anchor at the western edge of the Jack Lon- lated in relation to surrounding activities. ing). A cafe extension or similar structure don waterfront. should be constructed to create a more in- This and adjacent sites currently used for park- teractive environment along this segment Upper level office use throughout this sub- ing are the only viable opportunities to de- of the Water Street promenade. area. Similar to the Lower Broadway area, velop additional commercial and recreational upper level office uses should be encour- uses, and add to the luster of Jack London Hotel Expansion. The Waterfront Plaza aged to promote an active daytime popu- Square as an entertainment venue. However, Hotel should be encouraged to expand lation. Development should be carefully development of these sites requires extraordi- within the ‘footprint’ of the existing ho- sited and designed to avoid shadowing of nary sensitivity to the waterfront location, the tel/restaurant, the “Water Street III” retail/ the Water Street axis. shoreline edge, and to surrounding activities. Specific policy direction is provided:

Section III: District Recommendations 59 JL-2.1: Encourage the redevelopment of fully sited and designed to avoid shadow- complementary to the character of the ad- Phase II of Jack London Square for commer- ing of the Water Street axis. jacent warehouse district. (See Policy cial-recreational and waterfront-oriented JL-13) uses. Phase II of Jack London Square should Integrated parking to serve the hotel/con- be redeveloped comprehensively, in a manner ference/office center. Parking facilities A pedestrian bridge across the Embarcadero that provides significant public attractions, and should be designed to conceal the parking and rail tracks to the Phase II development unimpeded shoreline access around and functions from the Marina Green and the should be encouraged to supplement at- through the site. This shoreline access should waterfront. Parking for bicycles, as well as grade access. The design of this structure surround the proposed ‘Marina Green’ (See rooftop recreational uses could be included. should complement the existing bridge at Policy JL-8.2), providing perimeter activities the Washington Street garage and Amtrak, and attractions that complement and enliven Heinold’s First and Last Chance Saloon should and add to a sense of arrival at the water- the waterfront environment. be retained in its present location, either as front district. a stand alone feature (if feasible) or by in- Redevelopment efforts should incorporate the corporating it within the new frontage at Off-Price Retail District following: the current site, as a landmark element. POLICY JL-3: ENCOURAGE THE EXPAN- A high-quality hotel and conference center. A distinctive visual landmark at the east- SION OF OFF-PRICE RETAIL ESTABLISHMENTS ern terminus of Jack London Square and WEST OF BROADWAY. Ground-level retail, restaurants, public at- Marina Green. The design and height of tractions, and other amenities facing the buildings along Water Street could create Currently, in the area west of Washington Marina Green and the shoreline prom- this visual landmark. Street to MLK Boulevard, there is an eclectic enade, with office and/or housing uses mix of uses that includes offices, studios, re- above. Inland of the Embarcadero a parking struc- tail, warehouse and light industrial uses. These ture should be constructed where it can serve businesses tend to fit well in this environment, Upper level office use throughout this sub- visitors of both Phase I and Phase II portions which bridges the more intense regional en- area. Upper level office uses should be en- of Jack London Square, as well as the Pro- tertainment and dining attractions at the couraged to promote an active daytime duce District and the Loft District. The water’s edge and the heavier industrial and ser- population. Development should be care- parking structure should incorporate active vice commercial uses inland and to the west. ground-level uses and be designed to be

60 Oakland Estuary Policy Plan Opportunities exist to expand and strengthen POLICY JL-4: PRESERVE THE HISTORIC tention of the historic character and ambiance this unique district with additional retail space CHARACTER OF THE PRODUCE DISTRICT, of the Produce District should differentiate it within rehabilitated warehouse buildings and/ AND ENCOURAGE ACTIVITIES THAT CREATE from other Oakland destinations, and should or new construction. Therefore, the lower A VIABLE URBAN MIXED-USE DISTRICT. complement nearby retail, dining and enter- intensity nature of the district should be main- tainment activities along Broadway and the wa- tained, and some of the convenient surface The Produce District represents the most sig- terfront. All efforts to preserve the existing parking that exists should be retained. nificant concentration of food-related busi- structures are encouraged, whenever feasible; nesses within the city. It is also among the however, if not feasible, development shall However, additional structured parking will oldest enterprises along the Estuary, dating incorporate elements depicting the unique his- also be required to serve the area and Jack Lon- from 1917, when the City relocated the facili- toric character and features of the buildings don Square in the longer term. Consideration ties from 11th and Webster streets to the vi- (eg., canopies, overhangs and arcades, etc.). should be given to a future garage within the cinity of Third and Franklin. Today, it encom- general vicinity of Cost Plus. The Off-Price passes several blocks and occupies approxi- JL-4.2: Provide for a mix of new uses in the Retail District should also be included within mately 130,000 square feet of space operated Produce District. Recognizing market and a larger parking district to ensure reciprocal by 13 merchants, the majority of whom sell financial factors, the plan recommends a di- parking arrangements. (See Policy JL-16) directly to local restaurants. In addition, the verse range of uses, including existing whole- Oakland Grill, at the heart of the district, has sale and distribution activities. Priority should Produce District established a restaurant business that caters to be given to attracting food-oriented retailers Produce District customers and lunchtime of- that can maintain the character of this market fice workers, as well as regional patrons. district, particularly at the key intersection of Third and Franklin Streets. Other uses, includ- The Produce District is recognized by many for ing office, retail, work/live lofts and warehous- its distinctive market buildings, with wide cano- ing, should also be encouraged. pies and broad openings, as well as the morning activity of large trucks and forklifts moving JL-4.3: Encourage the location of a farmers produce on the sidewalks and in the streets. market along Franklin Street. In order to retain the market character of the Produce Dis- A mixture of home improvement and off-price retail JL-4.1 Encourage the sensitive rehabilitation trict, it is recommended that Franklin Street businesses have created an attractive district immediately west of Jack London Square. and adaptive reuse of existing buildings. Re- be improved as an expanded venue for the

Section III: District Recommendations 61 weekly farmers market, which currently oc- The area east of Broadway to the Lake Merritt Active, publicly oriented ground-level curs at Jack London Square. This recommen- Channel, between I-880, the Embarcadero and uses with windows and doors oriented dation would require closure of the street to 2nd St. east of Oak Street is characterized by a toward the street, and build-to lines along traffic and parking on market days. (See Policy number of food-related businesses, warehouses streets are encouraged. JL-16) used for storage and distribution of products, some office uses, as well as a mixture of ser- Use of industrial materials (e.g. corru- Mixed Use District vice and support uses. gated metal, glass, steel) should be encouraged. POLICY JL-5: IN AREAS OUTSIDE THE EX- A mix of uses, including housing, should be ISTING BOUNDARIES OF THE HISTORIC DIS- encouraged in order to support the retail and On-site parking and loading should be TRICT (API) AND EAST TO THE LAKE entertainment uses in the adjacent districts, and concealed from view from the street and/ MERRITT CHANNEL, ENCOURAGE THE DE- to help promote a more secure and vital envi- or encapsulated within the buildings. Sur- VELOPMENT OF A MIX OF USES, INCLUDING ronment with a day and nighttime popula- face parking lots should be well land- HOUSING, WITHIN A CONTEXT OF COM- tion. scaped. MERCIAL, LIGHT INDUSTRIAL/MANUFACTUR- ING USES, AND ANCILLARY PARKING. Other uses, including light industrial, ware- The existing plaza at the Amtrak Station housing and distribution uses, should also be should be retained as open space and for tran- encouraged to remain within this area. To ac- sit drop-off. Development on the remainder commodate the desired mixture of uses and of the site should be designed to accentuate minimize land use conflicts, new development the civic gateway function of the rail terminal should incorporate appropriate measures to building. recognize these existing uses and related activities and provide appropriate buffers to adjacent land uses.

New development should maintain the character of the existing multistory warehouses and The historic produce market with its projecting awnings industrial buildings. and vibrant street-life is a unique district in downtown Oakland.

62 Oakland Estuary Policy Plan Waterfront Warehouse District Primary Importance (API). This district has rate physical features that reinforce the a significant concentration of well-preserved district’s unique scale, historic flavor and POLICY JL-6: ENCOURAGE THE PRESER- warehouses whose unique physical activities. Zoning regulations should be VATION AND ADAPTIVE REUSE OF EXISTING characteristsics are associated with the flexible enough to accommodate the diverse BUILDINGS IN A NEW WATERFRONT W ARE- historic use of the Estuary. The district is mixture of uses and activities that define the HOUSE DISTRICT. USE OF BUILDINGS AND currently a viable warehouse district with a district. The following should be pro- NEW INFILL DEVELOPMENT SHOULD IN- variety of industrial activities. moted: CLUDE JOINT LIVING AND WORKING QUAR- TERS, RESIDENTIAL, LIGHT INDUSTRIAL, The district is also home to new residents, Active, publicly oriented ground-level WAREHOUSING & DISTRIBUTION, WHOLE- artists & artisans, and professionaals. Recent uses or habitable spaces built to prop- SALING, OFFICES AND OTHER USES WHICH private initiatives have adapted many erty lines with windows and doors that PRESERVE AND RESPECT THE DISTRICT’S existing buildings for re-use as residential, are oriented toward the street, UNIQUE CHARACTER. offices, joint living and working quarters, and smaller commercial tenants such as Build-to lines along streets. The Waterfront Warehouse District occupies design firms, computer and multi-media portions of the nine blocks, bounded by the businesses, law firms, consultants, restau- Adequate setbacks and separations entire existing historic district Area of rants, etc. This mixture of uses and activities between adjacent buildings. should be encouraged to help promote a 24- hour population. Distinguish building mass or elevations into different components of approxi- Other uses, including office, light industrial, mately one-quarter block or less. warehousing, distribution, and ancillary parking, should continue to be encouraged. Character-defining architectural features and appurtenances, including Adaptive re-use of existing buildings, as well multi-paned sash windows, parapets as new infill development, should be en- and simple restrained cornices, sidewalk couraged. In order to preserve the character canopies and awnings, flat roofs, Over the past five years numerous work/live and loft studio of the district, development should be rooftop features , historic signs. etc. projects have been developed in the Jack London District. compatible with adjacent uses, and incorpo-

Section III: District Recommendations 63 Balconies and areas of private open fice and retail uses should be encouraged within surrounding area, and with the space should be discouraged on the this area as well, to promote economic diver- waterfront.These developments can be front elevations of buildings. Rather, sity. These uses should be carefully screened enhanced with exterior site treatments which they should be in the back of the to ensure that they are compatible with exist- use common features (such as lighting and street furniture), coordinated landscaping and building, between buildings, or as roof- ing industrial activities and with the adjacent architecture, and other amenities. It is top terraces, and designed to avoid West Oakland neighborhood north of the I- particularly important that the waterfront privacy impacts on adjacent buildings. 880 freeway. promenade be a unifying feature which ties together the disparate developments and Use of industrial materials (e.g. concrete, Light industrial uses should also be consid- maintains continuity of waterfront access. At masonry, metal, brick, glass, steel), to re- ered within other portions of the Jack Lon- the same time, site enhancements should strive inforce the interesting mix of exterior don District, including the Off-Price Retail Dis- to strengthen connections between the building materialsr.. trict and the Produce District. waterfront and inland areas. In addition, the boundaries of these sites with the adjacent Jack London Square Phase II projects (See Policy On-site parking and loading concealed Waterfront Mixed Use District JL-2) and Estuary Park (See Policy OAK-2.1) from view from the street and/or encap- should be carefully considered as projects sulated within the buildings. Surface POLICY JL-8: ENCOURAGE THE MIX OF develop, to enhance compatability. parking lots should be well landscaped. USES EAST OF ALICE STREET TO PROMOTE LAND USE COMPATIBILITY, SHORELINE ACCESS & Light Industrial District WHILE MAINTAINING AND ENHANCING PUBLIC SPACES WATERFRONT VIEWS AND ACCESS. POLICY JL-7: MAINTAIN LIGHT INDUS- While Jack London Square has established it- TRIAL AND WAREHOUSING USES WEST OF Along the waterfront East of Alice Street are self as a popular regional destination, the full MARTIN LUTHER KING, JR. BOULEVARD. two large residential developments (Portobello potential of its public environment is still un- condominiums and the planned complex on realized. Simply providing additional retail The Estuary Policy Plan recommends main- the Port’s 9-acre ‘Site B’), separated by the and entertainment venues, while important, KTVU television station. Given the taining light industrial activities, including is not enough to make the district an attrac- differentiation of land uses, and the large-scale, warehousing and distribution uses, west of tive, inviting destination. It is equally impor- self-contained nature of each, development Martin Luther King, Jr. Boulevard where a continuity is lacking. They should be better tant to enhance the public spaces and to offer concentration of industrial activities exist. Of- integrated with each other, with the opportunties for general interest activities out

64 Oakland Estuary Policy Plan Section III: District Recommendations 65 66 Oakland Estuary Policy Plan side of the buildings. Maximizing opportunities to use the The “Meadow Green”: Approximately water two-thirds of the existing open area west Currently, public space along the Jack Lon- of the Waterfront Plaza Hotel (referred to don District waterfront is inconsistent. Insuring continuity and cohesiveness of as “Site A” or the “Meadow”) should be Sprinkled throughout the district are good design maintained as open space. The site should examples of areas for public access, gathering, be enhanced by maintaining the lawn, and and overall enjoyment of the water’s ameni- Maintaining and enhancing views adding street furniture, lighting and other ties. However, there are also areas where easy amenities for active and passive use. Exist- access and enjoyment are not as evident; where Staging of special events ing surface parking along the shoreline edge access is interrupted or constrained at key should be removed to extend the park to a points; where pedestrian areas are compro- Minimizing pedestrian/vehicular conflicts pedestrian promenade along the edge of the mised by conflicts with automobiles; where water. dramatic views to the water from inland areas POLICY JL-9: ESTABLISH A WELL STRUC- are not evident; where design of amenties is TURED SYSTEM OF WATER-ORIENTED OPEN This open space should be designed and not cohesive or inviting. SPACES, CONSISTING OF THE FOLLOWING programmed to take advantage of the ex- ELEMENTS. traordinary activities that surround it. Ex- It is not the total amount of open space that is isting views of the Howard Terminal cranes at issue, but rather where the open space is JL-9.1: Improve existing shoreline access, located and how it is designed, structured and open spaces, and connections between inland managed. Therefore, policies promoting bet- areas and the water: ter shoreline access and enhanced public use within the Jack London District emphasize: The grid of city streets should be the basis for establishing public access between the inland Improving existing public spaces areas and the water. Thee full width of the street grid system should be preserved, and Adding additional open space for variety whereever feasible, be extended to the Estuary of recreational pastimes shoreline. Much of the open space in Jack London Square is shared with automobiles which creates pedestrian conflicts and confusion.

Section III: District Recommendations 67 and the Estuary, proximity to the historic the space as an extension of their outdoor Significant segments of the promenade are boat basin, FDR Pier, the ferry terminal, dining facilities. scheduled to be developed as part of the the Waterfront Plaza Hotel, Port building adjacent marina reconstruction project at as activity centers all contribute to the In addition, the plaza should accommodate Jack London Square, and by the develop- uniqueness and popularity of the site. These creation of a suitable landmark terminus ment of ‘Site B’between Jack London Vil- elements should be reinforced as the site is of Broadway, in keeping with significance lage and KTVU. The remainder prom- upgraded. of Broadway’s role and civic importance. enade should be completed as soon as possible or as adjacent projects are realized. Por- The remainer of the site should be devel- The plaza should be designed to accom- tions of the existing waterfront walkway oped as a freestanding restaurant, dining pa- modate service and emergency vehicles. that are currently obstructed or otherwise vilion, or other attraction that is carefully Valet parking currently servicing the restau- substandard should be improved as oppor- oriented to complement the Meadow rants should be limited to drop-off and tunities arise. Greetn and the surrounding activities. (See pick-up only. Specifically, automobiles Policy JL-1.2) . should not be stored or parked in the plaza. Extend the promenade to the historic boat Visitor parking should be accommodated basin: A walkway and/or pile-supported “The Broadway/Franklin” Plaza: The in the Barnes & Noble garage or other suit- deck along the eastern edge of the historic Barnes & Noble plaza, including the adja- able parking facilities. (See Policy JL-13) boat basin between Clay and Jefferson cent Broadway and Franklin street ends, streets should be established to provide should be reconfigured as necessary to cre- Shoreline Promenade: The shoreline walk- public access to the water and vessels. ate an active pedestrian-friendly open plaza. way between the Waterfront Plaza Hotel The plaza should function as the ‘main and Estuary Park should be improved. Remove Pedestrian/Auto Conflicts: square’ of the Jack London district. It Currently, it is not a continuous path and Throughout Jack London Square, public should be designed and programmed to ac- it lacks continuity. It should be upgraded areas should be designed and managed to commodate events, kiosks, displays, the an- as a ‘promenade’, suitable for comfortable avoid pedestrian/automobile conflicts, so nual Jack London Christmas tree, and casual strolling, with appropriate landscap- that pedestrians take priority. On the wa- other temporary uses and activities which ing, lighting, benches, and other pedestrian ter side of the Embarcadero, parking lots, attract large groups of people. Surround- amenities. valet services, deliveries, and vehicular ac- ing restaurants should be encouraged to use cess generally should be limited to what is absolutely necessary. Necessary vehicular

68 Oakland Estuary Policy Plan services should be designed and managed acre open space to be located adjacent to of the waterfront, in addition to marina to insure that vehicles are hidden from pub- the marina, between the water, Webster and related and other public services. lic view and circulate in off-hours, avoid- Harrison Streets. This space, referred to as ing pedestrian activities. the “Marina Green”, would complement “Webster Street Green”: Webster Street (be- the “Meadow Green”, a similar space at the tween the water and I-880) should be As the waterfront becomes a destination in western end of the Jack London Square reconfigured to create an attractive itself, it is no longer essential for individual project. greenway that can function both as an im- restaurants to have front door drop-off, portant pedestrian route to the waterfront unless to accommodate the elderly or dis- The Marina Green should be developed to and as an attractive open space amenity for abled. In no cases should cars be parked in accommodate a multitude of passive recre- the mixed-use loft district that is emerging the plaza areas. To ensure convenient at- ational activities. Framed by a proposed around it. tendant parking when needed, valet park- hotel on the existing Jack London Village ing kiosks should be relocated to an area site, the marina, and other development to The Webster Street right-of-way is adjoined near the entrance to the Barnes and Noble the north and east (See Policy JL-2), the by an easement over the Webster tube to garage or other nearby garage locations (ex- Marina Green should provide an attractive Alameda. As such, it is unbuildable. By isting and planned). (See Policy JL-16) place for people to gather for casual recre- relocating the surface parking lots above the ation, passive enjoyment, or to attend an tube, the easement and street right-of-way JL-9.2: Create new open spaces that expand event. the opportunities to view, appreciate, and enjoy the water’s edge. New waterfront open The Marina Green should also be designed spaces should be created: one along the water- to connect to the planned “Webster Street front in the Phase II portion of Jack London Green” (see below) and the waterfront Square, and one that connects this space to- promenade and greenway between Alice ward downtown Oakland, along Webster Street and Estuary Park. The harbormaster Street. building for the Jack London marina should be located on the Marina Green. It The “Marina Green”: Development of should be carefully sited and designed to Phase II of Jack London Square (See Policy complement the green and to provide views Views to the maritime activities of the Howard Terminal JL-2) should include an approximate one- should be preserved as a unique eature of Oakland’s waterfront.

Section III: District Recommendations 69 can be designed to create the Webster Street structed that extends to the pier-head line between the working and urban water- Green. at the terminus of Broadway to afford pe- fronts, and should be maintained as a destrians the opportunity to go beyond the unique feature of Oakland. To develop additional open spaces, provide marinas for views up and down the Estu- setbacks from the water’s edge for generous ary, toward San Francisco and the Howard Views of the Estuary from Water Street across areas of greenways, promenades, and other Terminal. the proposed Marina Green and from the public gathering places between Clay and foot of Webster Street to Harrison Street. Alice streets. JL-9.3: Maintain and enhance view corridors to the Estuary. Maintain the full width Opportunities for public viewing of the Es- Generous setbacks should be provided from of existing view corridors, and establish ad- tuary, the Inner Harbor, and the San Fran- the water’s edge and be well integrated with ditional view corridors. The streets provide cisco skyline should be provided from upper any development in the area. Outdoor ca- important view corridors to the waterfront levels of development projects adjacent to the fes and seating should be encouraged along which should be maintained. Where the grid Meadow Green, the harbormaster building the frontage of Water Street and the water- pattern of streets is interrupted, other view cor- on the proposed Marina Green, and the pro- front promenade. ridors should be established, if feasible. Sev- posed hotel in Jack London Square, Phase II. eral key viewsheds are important to maintain A new public access pier at the foot of Broad- or establish, as follows: JL-9.4: Maximize opportunities to use the way. A public access pier should be con- water. Ensure that the use and treatment of Views of the Estuary, from along Water Street. water spaces reinforce public enjoyment of the Estuary. The Estuary, as it passes through Views of the marina and Estuary from the the Jack London District, is a narrow expanse intersection of Franklin and Water Streets, of water, 700 to 900 feet in width. The water and from along the shoreline promenade. space provides an ever-changing stage of activity; one can view 1,000-foot-long container Views of the Howard Terminal cranes and ships negotiating the channel alongside 25-foot operations, from the intersections of Water and recreational sailboats. Other activities, such as Washington streets, and Water and Clay rowing competitions, lighted boat parades, Streets. These views provide the most dra- powerboat races, etc., all offer the opportunity The Estuary is a popular venue for rowing matic juxtapositions of scale and activity for people to use the water and appreciate its and other recreational boating.

70 Oakland Estuary Policy Plan value as a recreational resource. In addition, the further enhanced as a historic boat basin, Franklin Plaza at foot of Broadway (See Policy public is invited to participate in aquatic recre- featuring the lightship Relief, the Potomac, JL-8.a.1), the Meadow Green, Water Street, ation, via the provision of sailing and rowing and other vessels as appropriate. The boat the proposed Marina Green between Webster classes, recreational boating, marina services, basin should continue to accommodate fire and Harrison streets (See Policy JL-8.2), and kayak launching, bay excursions on charter ves- boats for the adjacent fire station, unless along the linking streets of Franklin, Webster, sels, fishing, etc. These activites should be pro- the station is relocated to accommodate Washington and Broadway. The use of shuttles moted, and supported with high-quality additional development. from the downtown and remote parking sites facililties, services and educational programs will be more critical during events. Shuttle which encourage the public to participate in the POLICY JL-10: CONTINUE TO STAGE services and transit should be promoted and wide range of aquatic activities. SPECIAL EVENTS. accommodated. (See Policy JL-16)

Jack London Marina. The pending recon- Continued use of the waterfront spaces for struction of the Jack London Marina special events is an extremely important func- REGIONAL CIRCULATION, should be accomplished as soon as possible. tion. It not only serves community needs, but LOCAL STREET The Port should insure that it also reinforces the retail, dining and entertain- IMPROVEMENTS, TRANSIT accommmodate a variety of boats, plus as- ment activities. However, existing spaces that & PARKING sociated services, programs, transient slips, are suitable to accommodate these events are temporary dockage for ferries, water taxis, reaching their capacity. Furthermore, it is be- As it transforms from a predominantly indus- charter operations, yacht sales, and ceremo- coming increasingly difficult to accommodate trial district into a regional destination of nial events. parking and other services necessary to attract mixed use, the Jack London District is expe- crowds and stage events. riencing increasing problems of traffic conges- In order to preserve the remaining areas of tion, parking deficiencies, and discontinuous open water, no additional marina slips (be- Major events will need to be staged at other bicycle and pedestrian paths. The following yond the current marina improvement locations along the waterfront or elsewhere policies provide for the improvement of ac- project) should be developed between the within the city. However, it is important that cess and circulation by all modes at both a re- foot of Harrison Street and Estuary Park. events continue to be staged within the Jack gional and local scale, and the development London District. of a comprehensive approach to ameliorating Historic boat basin. The existing cove be- existing and future parking problems. tween Jefferson and Clay streets should be Event locations should include the Broadway-

Section III: District Recommendations 71 72 Oakland Estuary Policy Plan Regional Circulation Harrison and Seventh) to gain access to the The recently built I-880 (Cypress Freeway) Jefferson Street on-ramp to I-880. does not accommodate direct access to or from POLICY JL-11: WORK WITH CALTRANS Congestion on city streets by regional traffic downtown or Jack London District. Auto- TO IMPROVE DIRECT ACCESS FROM I-880 has a direct effect on the ability of these streets mobiles coming from the San Francisco area TO THE ALAMEDA TUBES TO REDUCE to provide efficient local access. Improvements with destinations to downtown Oakland or REGIONAL TRAFFIC ON LOCAL STREETS IN should be pursued, in conjunction with Jack London District must take the follow- THE JACK LONDON DISTRICT. Caltrans, the City of Alameda, the ing three, less direct options: (1) bypass the Metropolitan Transportation Commission, new freeway addition of I-880, take I-980 Vehicular traffic between the city of Alameda and the Alameda County Congestion and exit on 14th or 11th Street; (2) take I- and other parts of the Bay Area is currently Management Agency. Accordingly, specific 880, exit on the new Union Street off-ramp dependent on the local streets of the Jack improvements should be made to the and take local streets; or (3) from I-980, exit London District. As a result, there are chronic Alameda Tube connections with the freeway at Jackson Street and double back taking local congestion problems at key entry points to viaduct: streets. the waterfront district. The Jackson Street eastbound ramp from I- This has had a debilitating effect on the at- Similarly, traffic from Alameda using the Posey 980 should be modified to allow a direct tractiveness of two of the City’s primary visi- Tube must negotiate through city streets (i.e., exit to the Webster Street Tube without tor destinations. Preliminary traffic assess- traveling on Fifth Street. ments reveal that off-ramps from I-880 to downtown and Jack London District are po- The walls of the Posey Tube north of the por- tentially feasible. The City should continue tal structure should be modified, and the to work with the Port, Alameda Congestion capacity and channelization of traffic im- Management Agency (CMA), and the City proved. of Alameda to develop plans for off ramps which directly serve the area. POLICY JL-12: WORK WITH CALTRANS TO PROVIDE EXIT OFF-RAMPS FROM I-880 TO DIRECTLY SERVE DOWNTOWN OAKLAND The I-880 overpass along Broadway creates a physical AND THE JACK LONDON DISTRICT. and psychological barrier between downtown and the waterfront.

Section III: District Recommendations 73 Local Street Improvements At a minimum, the local streets should have are expected, from Martin Luther King, Jr. continuous sidewalks, improved lighting, and Boulevard to Oak Street, and along streets that POLICY JL-13: IMPROVE THE STREETS street furniture. And, the streets should be will provide critical links to adjacent neigh- WITHIN THE JACK LONDON DISTRICT TO designed to “calm” traffic. Convenient on- borhoods . These include Broadway, Wash- CREATE AN INTEGRAL SYSTEM OF OPEN street parking should be provided. (See Fig- ington, Franklin, Webster and Third Street. SPACE, LOCAL ACCESS, AND OVERALL CIR- ure III-7) CULATION, WHILE PROVIDING BETTER JL-13.1: Improve Broadway in a manner LINKS BETWEEN INLAND AREAS AND THE Streetscape improvements should be made in appropriate to its civic scale and role in con- WATERFRONT. areas of the Jack London District where the necting the waterfront with the downtown. greatest concentrations of pedestrian activity Broadway is Oakland’s principal ceremonial In the Jack London District, with its multiple destinations and attractions, the street system provides key pedestrian, bicycle, auto and transit connections from one place to another. The north-south streets that traverse beneath the freeway, including Broadway, Washington, Webster, and Franklin, are particularly important in providing linkages between downtown Oakland and the waterfront.

In addition to their utilitarian function of fa- cilitating movement, streets and sidewalks play an important role in establishing a strong public environment. Enhancements to the “streetscape” should improve the overall environment and attractiveness of the district, create a sense of design continuity, and improve safety.

Franklin Street should become an expanded venue for the City’s weekly farmers market.

74 Oakland Estuary Policy Plan and civic street and transit hub, connecting the complement the existing arch at the foot the completion of the Jack London Cinema eastern hillside neighborhoods with the down- of Broadway. Improving the pedestrian and Yoshi’s, it has become a busy street in the town core and the heart of the Jack London environment beneath the structure with local network. As the entertainment and off- District. Like Market Street in San Francisco, lighting, paving, and signage should be price retail districts develop and intensify, it Broadway deserves a treatment and terminus undertaken immediately. will be important for the pedestrian appropriate to its stature in the city, reflecting orientation of Washington Street to be the importance of the coming together of the Lower Broadway: The blocks between enhanced and extended northward to Old city and the bay. Sixth Street and the Embarcadero should Oakland and downtown. be upgraded with improved paving, light- In addition to enhancing the civic identity of ing, street trees, banners, and other As development along Washington Street oc- Broadway and its role as the principal public streetscape elements that promote the curs, it should be encouraged to locate pub- space connecting downtown with the emerg- street’s identity as the heart of a vital en- lic-oriented activities on the ground floor. ing waterfront entertainment district: making tertainment district. The existing side- Improvements to the street, including new the following improvements could enhance walks should be improved to accommo- lighting, street trees, and paving, should be the investment climate of the area, and could date outdoor dining, which can help en- made along its length. help attract new development: ergize the street as an active public place. Consideration should be given to extend JL-13.3: Reinforce a food and market orien- Public Art: A landmark public art ele- existing streetscape elements in Jack Lon- tation on Franklin Street. Since the Produce ment should be constructed beneath and don Square (e.g., lighting, furniture, and District was established in 1907, Franklin against the I-880 freeway viaduct. Mak- banners) north of the Embarcadero along Street has played a distinctive role as a market ing the viaduct as user friendly as possible Lower Broadway to forge a stronger vi- street, lined with projecting canopies and en- is absolutely necessary to diminish the sual link and a sense of continuity of be- livened with colorful activities. It is desirable barrier effect of the I-880 between down- tween the two areas. for the area and the street to retain some as- town and the waterfront. In addition to pects of its original role and character. The creating an attractive pedestrian link the JL-13.2: Strengthen the pedestrian character Estuary Policy Plan suggests preservation of art piece should establish a highly visible of Washington Street. Washington Street the existing market buildings and adaptive re- and distinctive gateway. The design of provides an important direct connection from use and rehabilitation for a variety of uses, in- the feature should aim to create a strong the heart of the waterfront to Old Oakland cluding food-oriented retailing. (See Policy sense of arrival at the waterfront and and the downtown convention center. Since JL-4)

Section III: District Recommendations 75 P P

15’ 8’ 12’ 12’ 18’ 15’ 80’ Existing ROW Washington & 2nd Streets - Jack London District (With one vehicular and class II bike lane in each direction.) Typical North/South Street - Jack London District (With one vehicular lane in each direction.)

P P P P 20’ 8’ 25’ 4’ 25’ 8’ 20’ 15’ 18’ 12’ 12’ 8’ 15’ 110’ ROW 80’ Existing ROW Broadway Franklin Street - Jack London District (With one vehicular lane in each direction and a single shared (With one vehicular lane in each direction and a single shared turn lane at intersections only.) turn lane at intersections only.)

FIGURE III-7a=: Jack London District Illustrative Street Cross Sections

76 Oakland Estuary Policy Plan Accordingly, Franklin Street should be con- As the historic heart of the Produce Dis- create a distinctive “green” street space and sidered as an expanded venue for the city’s trict, the corner of Franklin and Third streets amenity within the area. (See Policy JL-8.2) weekly farmers market. Accordingly, the de- should be targeted for street-oriented retail- sign of the street should include: ing uses. An emphasis on food would be in JL-13.5: 2nd & 3rd Streets: Reinforce Sec- keeping with the street’s history and iden- ond and Third Streets as an east-west con- The configuration of the street should pro- tity and the emerging role of the district as nector for pedestrian, vehicular and bicycle vide enough space and services for food a mixed-use residential neighborhood. movement. Second Street is the principal east- stalls along the street, including provisions west movement corridor through the Jack for electrical and water hookups. JL-13.4: Develop significant pedestrian im- London District. This route connects to Third provements along Webster Street that create St. at Brush toward Mandela Parkway and The awnings of adjacent buildings should a strong link to the waterfront. Webster Street plays an important role as a direct connection remain as a principal physical feature of the is the easternmost north-south street within between Mandela Parkway in West Oakland, street. As new development occurs in areas the Jack London District, which permits un- Jack London District, Oak Street and the pro- beyond the boundaries of the historic dis- impeded at-grade pedestrian access to the wa- posed Embarcadero Parkway along the re- trict, the awnings should be extended to terfront from downtown Oakland. It is pos- mainder of the Estuary. The removal of the provide a continuous pedestrian experience. sible today to walk along Webster Street from railroad tracks within the street and the gradual Chinatown to the waterfront. As such, the conversion of industrial buildings, particularly street plays an important linking role that east of Martin Luther King, Jr. Boulevard, af- should be aesthetically enhanced. fords the opportunity to improve the visual and pedestrian environment of this street. As discussed elsewhere, a ‘greenway’ should be developed along Webster Street to create The right-of-way should be improved to accom- an open space and pedestrian link to the wa- modate parallel bike lanes and curbside park- terfront. This open space should take advan- ing. Distinctive landscaping and lighting along tage of Caltrans easements which prohibit the street should be introduced to establish a building over the Alameda tubes. It should strong continuity between West Oakland and be located over the tube right-of-way and be the waterfront. Many of the streets within the Jack London District are integrated with streetscape improvements to unimproved reflecting the historic role of the area as an industrial warehouse district.

Section III: District Recommendations 77 P P 12’ 18’ 12’ 96’ 12’ 18’ 12’ 180’ Webster Street Green (With one vehicular lane in each direction and diagonal parking along each side.)

P P Bike P Bike 10’ 13’ 8’ 12’ 14’ 12’ 8’ 13’ 10’ 10’ 12’ 5’ 12’ 12’ 12’ 5’ 12’ 10’

Center turn lane Setback Setback at intersections 70’ ROW 80’ ROW Third Street Extension to Mandela Parkway Oak Street (With one vehicular and class II bike lane in each direction and a single shared turn lane at intersections only.) (With one vehicular lane in each direction and a single shared turn lane at intersections only.)

FIGURE III-7b: Jack London District Illustrative Street Cross Sections

78 Oakland Estuary Policy Plan Transit along 2nd Street, Washington, Oak and develops with higher intensity uses and Franklin Streets (when improved). becomes a greater regional destination, the POLICY JL-14: PROVIDE FOR IN- feasibility of developing a new BART Station CREASED TRANSIT SERVICE TO THE JACK JL-14.2: Expand the downtown shuttle/trolley should be explored. service to the waterfront. The implementation LONDON DISTRICT. of a reliable, efficient shuttle/trolley service on JL-14.5: Enhance connections to existing Broadway is a key action that could strengthen The continued success and viability of the Jack links with the downtown. Rubber-tire trolley transit modes and stations. Connections to London District as a mixed-use neighborhood service should be re-established along the stationss and coordination among ransit modes and regional entertainment destination will rely Broadway corridor. The route between should be enhanced to makae transit use easy, upon improved transit service. For the district downtown and the waterfront should be the convenient and attrractive. For example: to sustain growth and expansion, it will not principal focus of this service. As demand be able to rely solely on the automobile. Tran- increases, however, routing could be expanded Transit Scheduling. Service schedules of sit plays an increasingly important role in bring- and a loop system created with connections current transit providers (AC Transit, ing people to the waterfront and providing to the Amtrak station, the Museum District, BART, Amtrak, Oakland/Alameda Ferry, convenient circulation within the district. and the Lake Merritt BART station. Broadway Shuttle, etc.) should be coordinated. Enhancement of transit service and facilities JL-14.3: Support ferry and water taxi service. should be promoted in the following man- Increased commuter ferry and water taxi service Street Enhancements. Local streets and ner, with an overall goal to provide 24-hour should be encouraged to serve the Jack London pedestrian corridors leading to existing service. District and other areas of the Estuary. As transit stations are important connections waterfront redevelopment in both Oakland which should be enhanced. JL-14.1: Expand Bus Service. Broadway is and Alameda takes place and as development Improvements along Broadway, Oak, the main trunk of bus service, accommodating occurs further up the Estuary, new landing Webster, 2nd and 3rd Streets would most of the City’s bus routes. While sites, facilities and parking should be provided. provide stronger pedestrian, bicycle and Broadway should continue to be the primary visual connections to District transit transit corridor, other transit corridors should JL-14.4: Explore the potential for a new stations. be developed. These should also be focused BART Station to serve the Jack London District. As the Jack London District

Section III: District Recommendations 79 Amenities at Stations: Amenities (e.g. be provided along the 2nd Street and portions Existing regular parking resources (eg. surface bicycle racks,lockers, lighting, etc.) of the Third Street corridor, connecting Oak lots, street parking, Washington Street garage, should be provided at all stations. Street and the Embarcadero on the east with Barnes & Noble garage, Amtrak Station, etc.) Mandela Parkway and West Oakland on the are now fully subscribed during peak hours. It Signs: Directional signs to various transit west. is clear that additional parking facilities are stations and other attractions should be necessary to handle current, if not future appropriately placed throughout the JL-15.2: Establish bike lanes on Washington district. Street. Bicycle lanes should also be constructed demand. on Washington Street north of Third Street JL-14.6: Encourage incentives for the use of to provide links to the downtown core and However, while demand is increasing, supply alternative modes of transit. Use of all modes Old Oakland. is decreasing. Policy direction of this plan is of transit should be encouraged and promoted to intensify uses throughout the Jack London through various incentives offered to district JL-15.3: Provide bike storage areas District, thereby increasing demand. employees and visitors. inappropriate locations. Parking structures, Development of sites and/or provision of transit stations, and employment uses greater shoreline open space in the district will displace Bicycle Circulation than 5,000 square feet should provide adequate some of the sites that are currently vacant and secure bike storage. are used for surface parking. (e.g., Site B, POLICY JL-15: ENHANCE BICYCLE Safeway Lot, Phase II, etc.) CIRCULATION THROUGH THE JACK Parking LONDON DISTRICT.Bicycle circulation Adding to this shortage is the fact that large through the Jack London District is POLICY JL-16: DEVELOP AND IMPLEMENT events also place an extra strain on parking constrained by the lack of clearly designated A COORDINATED PARKING STRATEGY FOR resources. Furthermore, necessary loading routes and conflicts with truck and other THE DISTRICT THAT OPTIMIZES THE USE zones for warehouse activity leaves less curb vehicular traffic. Improved bike routes and OF PARKING FACILITIES, TAKES MAXIMUM area for on-street parking. And several policy facilities should be provided within the ADVANTAGE OF SHARED PARKING recommendations in this plan could displace district. OPPORTUNITIES AND EXPANDS PARKING existing parking sites. SUPPLIES. JL-15.1: Provide bike lanes on Second and, JL-16.1 Parking Strategy. The City and the Third Streets. Bicycle lanes (Class II) should Parking availability is becoming an increasingly Port will collaborate on an effort to address serious challenge in the Jack London District. the parking shortage. A specific strategy should

80 Oakland Estuary Policy Plan be focused on ways of meeting demand with A Valet Management Program, to insure Explore incentives and regulations that facilities and services that can be used effectively that valet services occur where they are encourage use of shared parking facilities. by multiple users throughout the day and necessary, without infringing on week, and that can serve the broader needs of pedestrian areas. JL-16.2: Relocation of existing parking. The the entire district. The Parking Strategy should parking starategy should recognize the shortage consider the following: A Remote Parking Program to secure and of parking that already exists, and attempt to manage parking sites necessary to address this critical need as soon as possible. A thorough analysis of projected district- accommodate special events or long-term Existing parking that is recommended to be wide parking supplies and projected parking for district employees, Amtrak eliminated should not be relocated until the future demands, updated regularly. or BART riders, etc. time of site development/improvement, or as replacement facilities are developed. A ‘Parking Development Program’, to Development of a shuttle system, to identify specific means and locations to provide shuttle services between existing increase the supply of parking to serve the or new parking sites and Jack London entire district; including provision of on- District activity centers. During special street parking, surface lots (e.g. areas under events, remote parking and shared use of I-880), stand-alone parking structures, facilities should be considered as primary facilities within mixed use projects, etc. strategy. All reasonable means of addressing the situation are analyzed as projects are Administrative measures should be developed. Specific locations should be investigated and applied, as appropriate, identified and investigated, for purposes to generate revenues for parking of testing feasibility. Incentives and improvements (e.g. assessment districts or regulations which encourage use of shared similar mechanisms, parking overlay parking facilities should be explored. zones, parking demand management, Recommendations in the program should pricing/fee structure strategies, impact fees take into account the increased availability for new development). of transit service over time.

Section III: District Recommendations 81 82 Oakland Estuary Policy Plan Oak - to - Ninth Avenue District

The “Oak - to - Ninth Avenue” District of main line rail tracks and the cargo handling Changes in transportation will create new op- the Estuary planning area is situated south of facilities at the Ninth Avenue Terminal. As portunities for reuse and revitalization. With I-880, east of Oak Street, and west of Embar- such, it is isolated from the surrounding ur- the consolidation of the Southern Pacific and cadero Cove. Encompassing approximately ban community, perhaps more than other reaches Union Pacific railroads, the rail tracks along 120 acres, the district includes two distinct sub- of the study area. The district is criss-crossed by Third Street have been abandoned, providing areas separated by the Embarcadero and the rail tracks, the freeway, and the Lake Merritt the opportunity to extend Third Street east- main line rail corridor. They are the properties Channel, all of which have become barriers to ward near West Oakland and will improve bi- between Fifth and Ninth Avenues, projecting movement. cycle and pedestrian accessibility from the Es- into the Estuary south of the Embarcadero. tuary to Mandela Parkway. The district includes Estuary Park, the landside Today, the Oak-to-Ninth District is still domi- areas between Oak Street and Lake Merritt nated by warehousing, manufacturing, distri- Caltrans’ planned seismic upgrade project for Channel, and the Ninth Avenue Terminal. bution , storage and transportation activities. the Fifth Avenue interchange at I-880 could However, historic waterfront industries have be designed to improve local accessibility and Although the Oak - to - Ninth District does declined, and waterfront properties have be- help achieve a better alignment for Fifth Av- not appear markedly different than it did sev- gun the process of industrial conversion. New, enue as well as an improved interchange. Fi- eral years ago, it has, in fact, undergone a num- smaller scale and nontraditional uses have also nally, the prospect of consolidating maritime ber of changes. Historically, this portion of emerged within existing underutilized warehouse activities in the Outer Harbor provides a tre- the Estuary waterfront primarily served as an and industrial buildings to create a lively en- mendous opportunity to improve the Ninth industrial and warehousing support district, clave of artist studios and artisan workshops. Avenue Terminal for greater public access and oriented to and served by the Union Pacific use.

Section III: District Recommendations 83 Several unique circumstances within this district afford opportunities for positive changes that could benefit the entire community.

First, there is a considerable amount of public land. For example, Estuary Park is a significant public asset which can and should be upgraded. It has a historic relationship with nearby Lake Merritt and the Lake Merritt Channel, and there is now a chance to finally reconnect Lake Merritt with the Estuary. These opportunities offer the distinct opportunity to realize long-held community objectives for the creation of a major open space of citywide scale and significance.

With ambitious plans to change land use, this area of the shoreline could be converted into a large-scale network of open spaces and economic development that extend for over 60 acres from Estuary Park to Ninth Avenue. The assemblage of parkland would create the major open space resource in Oakland and, at the same time, establish a recreation asset of regional significance. In areas adjacent to the open spaces, additional development of hotels, cultural activites, and other attractions that take advantage of the unique setting, could help to energize the entire district. And, the

84 Oakland Estuary Policy Plan artisan community that currently exists in the area can continue to play a valuable role in the life of the area, and the City.

Section III: District Recommendations 85 SHORELINE ACCESS & PUBLIC SPACES

Shoreline access and public space policies are intended to establish this area of the Estuary as the major recreational destination in the city. The Estuary Policy Plan recommends a series of large open spaces, intended to provide for a wide variety of recreational experiences. De- veloping a series of well-defined open spaces would change the entire nature of the waterfront in this area, transforming it from an industrial backwater into a recreational center- piece of the city. In total, these sites would represent one of the most significant additions of urban parkland within the entire Bay Area. They would create both a regional and local asset of major proportions. A continuous open space and public access link is planned between Lake Merritt and the Estuary. These spaces are intended to be connected to each other and to a larger city-wide system of trails and parks. Policies recommend strong POLICY OAK-1: PROTECT AND EN- tings. Given the scale and variety of environ- links to inland communities, Lake Merritt, HANCE THE NATURAL AND BUILT COMPO- ments encompassed by this segment of the wa- and Lakeside Park, by enhancing the Lake NENTS THAT ESTABLISH THE WATERFRONT’S terfront, many kinds of recreational activity Merritt Channel. Furthermore, the policies UNIQUE ENVIRONMENT. can take place. While it is advantageous to pro- recognize the importance of preserving the mote recreationaly activities, the sites’ water- area’s wetlands, wildlife habitat and other natu- The Oak-to-Ninth reach of the waterfront has front location is unique. It is important to ral features. the potential to offer many recreational expe- focus first on preserving the intrinsic qualities riences, in both natural and developed set- of the shoreline, and to insure that the envi-

86 Oakland Estuary Policy Plan to nesting and resting areas, seasonal routing of pedestrians to avoid sensitive habitats, etc. As improvements and projects are considered, the City and Port should work with interested groups and organizations to ensure appropriate treatments along the shoreline, particularly along the channel on the eastern bank between I-880 and Embarcadero.

OAK-1.2: Provide for continuous pedestrian and bicycle movement along the water’s edge. In this and other areas of the Estuary, continuous bicycle and pedestrian movement is essential to achieving goals for access and implementation of the Bay Trail.

In this district, pedestrian and bicycle movement should be emphasized on all local streets. A network of facilities should provide for pedestrian and bicycle routes as close to the shore- ronmental values of the site are not compro- function as tidal wetlands, providing marsh line as possible. It should offer a range of ex- mised. habitat for fish, migratory waterfowl, and other periences that take advantage of the varying animals. water spaces along the shoreline. OAK-1.1: Encourage the preservation and enhancement of wetland areas. The water- Improvements should be encouraged that re- To reduce the barrier effect of channels and front should be improved in a manner that store wetland and marsh habitat. Wetlands waterways that penetrate the land in this area, maintains and enhances the ecological value of should be protected by such treatments as set- the existing Embarcadero bridges should be im- the area in general and the Lake Merritt Chan- ting back trails from the shoreline, installing proved across the Lake Merritt Channel on the nel in particular. In some locations, tidelands suitable buffer planting to prevent disruption

Section III: District Recommendations 87 south side of the Embarcadero, to provide for MAJOR RECREATIONAL FACILITIES WHICH Expand & Rehabilitate Estuary Park. If pedestrian and bicycle routes. ACCOMMODATE A WIDE VARIETY OF AC- Estuary Park is to fulfill its potential, it is TIVITIES AND WHICH TAKE ADVANTAGE OF important to make it more visible from OAK-1.3: Undertake remediation of con- THE UNIQUE WATERFRONT SETTING. PRO- the Embarcadero. It should be expanded taminants in conjunction with development MOTE A VARIETY OF RECREATIONAL EXPE- and extended to the street, adding to the and/or improvement of relevant sites. Typi- RIENCES. total amount of useable public space and cal of many waterfront areas that have histori- improving park security. cally been in intensive industrial use, contami- There are opportunities to create several new nation has been documented within this dis- public spaces and facilities, as discussed below. The entire park (including the expansion trict. It will be a consideration in redevelop- In keeping with their size, location and re- area) should be improved. It should be ment of the sites identified. gional significance, they should not be devel- designed and programmed so that it can oped as isolated elements. Rather, they should accommodate the planned Aquatic Cen- To date, parties have undertaken initial efforts be developed as an integrated system extend- ter (see below) and a large space suitable to characterize surface soil, subsurface soil and ing along the shoreline and inland to Lake Mer- for a wide range of informal and orga- groundwater within the Oak to Ninth area. ritt and other parts of the city. Looking at nized field sports such as soccer. Further investigations should be undertaken them from west-to-east: to more accurately characterize contamination, The existing fishing pier, shoreline seating and to determine the most appropriate and Estuary Park & area, and boat launch provide opportu- cost-effective remediation methods that can Mouth of Lake Merritt Channel nities to use and appreciate the water as a achieve reuse objectives for this area in a timely recreational resource. They should be and coordinated fashion. OAK-2.1: Expand Estuary Park. Encour- maintained. Consideration should be age aquatic sports within the mouth of Lake given to providing places to observe ma- The level and type of soil and groundwater Merritt Channel. Currently, the 5.5-acre Es- jor civic celebrations and water related cleanup should be commensurate with the rec- tuary Park is the only public open space within festivals (e.g., the lighted yacht parade, ommended re-use of the affected sites. the Oak-to-Ninth area, and one of the few rowing races, etc.). parks on the entire waterfront that is close to POLICY OAK-2: ESTABLISH A WELL- activity centers. Although it provides access Develop the Jack London Aquatic Center. STRUCTURED, INTEGRATED SYSTEM OF to the water and is used intensively, it also suf- The new Jack London Aquatic Center is fers from a lack of accessibility and visibility. currently planned for Estuary Park to pro-

88 Oakland Estuary Policy Plan FIGURE III-11: Oak to 9th District Bird’s-Eye Illustrative Perspective

vide city residents a place to learn boat- Develop the mouth of Lake Merritt Chan- OAK-2.2: Create a major new park on the ing skills and gain proficiency in sailing, nel as a protected water space for aquatic east side of the mouth of the Lake Merritt rowing, and kayaking. Like the programs sports. A “no wake” zone or maximum Channel, at the Estuary. To complement now offered in the summer at Lake speed limit for motorized vessels should Estuary Park to the west, the former Crowley Merritt, the new Aquatic Center will be be established within the U.S. Pierhead site on the east side of the channel, between oriented to youth, but will focus on boat- Line to recognize the environmental sen- the water, a realigned Fifth Avenue (See Policy ing in the Estuary. sitivity of the mouth of Lake Merritt OAK-4.1) and the Embarcadero, should be Channel. converted into a major park suitable for pas-

Section III: District Recommendations 89 sive recreation. Promenading, viewing and Establish a linear open space composed of a be provided to create a high-quality moor- other contemplative activities should be em- series of smaller parks around Clinton Basin. ing area, attractive to patrons and comple- phasized. Shoreline edges should be restored The basin is hidden behind buildings and mentary to landside uses within the district. to tidal wetlands. not highly accessible. In order to improve access to the water and visibility of the boat- Ninth Avenue Terminal Clinton Basin ing activities, a series of public spaces should be developed on both sides of the basin and OAK-2.4: Establish a large park in the area OAK-2.3: Enhance Clinton Basin. Clinton at the head of the basin adjacent to the Em- of the existing Ninth Avenue Terminal to es- Basin is a marina that recalls the maritime barcadero. This network of public spaces tablish a location for large civic events and slipways and boat-building activities of a past should be composed of a series of smaller cultural activities. Maritime activities and age. While it has been used as a recreational connected parks, connected by a continu- support services that operate in and around marina for many years, it has fallen into disre- ous promenade along the edge of the basin the terminal shed should be relocated. (See pair, and has become functionally obsolete. that connects the open spaces. Policies OAK-4.3)

Rehabilitate the marina. If economically To improve accessibility around the basin The park is envisioned as primarily an open, feasible, the marina should be upgraded to and to reduce its barrier effect, consider- unobstructed green field that is flexible in use. contemporary standards. In addition to ex- ation should be given to developing a pe- It should be large enough to accommodate tending the life of the marina, improving destrian bridge at the bayward end of the large numbers of people associated with spe- the physical condition would provide an basin. Views into Clinton Basin from the cial events, cultural activities, city festivals, etc.; interesting focus for waterfront activities. Embarcadero should be maintained and en- yet, at the same time be designed to be attrac- Provisions in the marina for boat rentals hanced. tive to individuals or small groups of people and launches, fishing charters, water taxi/ on a more regular basis. ferry services, a limited amount of food ser- Provide for a limited number of new recre- vices, etc., would all contribute to to the ational slips east of Fifth Avenue. A small The park should be oriented to maximize ac- liveliness of the area, and should be accom- number of slips for the mooring of recre- cess and views of the Estuary. It should be modated. ational boats should be provided east of adjoined by commercial, hotels, and public Fifth Avenue, with support facilities pro- uses, which can benefit from the civic events vided accordingly. An area for supply drop- and cultural activity programming. (See Policy off and the provisioning of vessels should OAK-4.2)

90 Oakland Estuary Policy Plan Recognize that the Ninth Avenue Terminal shed, or portions thereof, may be suitable for rehabilitation and adaptive reuse. However, the terminal building impedes public access to and views of a key area of the Esstuary.

The Port and City should investigate the feasibility of keeping and reusing the building (or portions thereof). A Spe- cific Plan for the entire District should be initiated prior to development. (See Policy Oak 5)

Encourage the mooring of vessels adjacent to the Ninth Avenue Terminal. Along the southern boundary of the Ninth Avenue Terminal, a limited amount of vessel mooring is encouraged to complement the recreational and cultural uses of the The 9th Avenue Terminal provides an exciting opportunity for public-oriented activities and open spaces. area. is proposed to convert the ship into theaters, for the waterfront. Provisions should be made OAK-2.5: Provide for mooring of the gallery space, classrooms, meeting space, stu- for its permanent mooring in the vicinity of ARTSHIP. The ARTSHIP Foundation has dios, and other facilities necessary to support the Ninth Avenue Terminal. Some landside recently acquired the Golden Bear, a former a major arts initiative. facilities, including parking and servicing, naval training vessel, to serve as headquarters should also be accommodated. and primary program venue for the numer- It is envisioned that the ARTSHIP could be ous community outreach and art programs run an integral part of the waterfront, and a major by the Foundation and other art and cultural waterfront attraction. It is a project that organizations. An extensive renovation project achieves almost all of the identified objectives

Section III: District Recommendations 91 Lake Merritt Channel ern side of the channel should be completed should work with these entities to assemble and enhanced. It should be developed to al- or otherwise gain access to these properties (as POLICY OAK-3: LINK THE ESTUARY low unimpeded movement between the Es- necessary) to extend areas available for public TO LAKE MERRITT BY ENHANCING THE tuary and Lake Merritt. Where feasible, the use. LAKE MERRITT CHANNEL. path should be widened and fully integrated into adjacent public spaces that are currently LAND USE Although a pedestrian/bicycle path exists, the underutilized. link between the Estuary and Lake Merritt is Public space is planned to be the primary new dominated by physical obstacles. Given the Efforts to expand public uses in this area must use within the Oak-to-Ninth District, occu- significant historical relationship between the be carried out in a manner that respects the pying all of the land along the shoreline and Lake, the Channel and the Estuary, it is in- wildlife habitat value of the wetland areas extending inland at Lake Merritt Channel, congruous that a physical connection between within and along the channel. Restoration of Clinton Basin, and a new ‘Crescent Park’. (See them has not been completed. tidal wetlands along the shoreline edges should Policy OAK-2.4). Recreational use of the be included as part of the facility development shoreline will be the most significant agent of The opportunity exists to achieve this long- programs that would extend through this area. change within the district. It will create a se- standing community objective. Most of the ries of extraordinary amenities and recreational properties north of the Embarcadero along the Surface parking should be relocated away from resources for the community, as well as an at- Lake Merritt Channel are publicly owned. In the channel’s edge. tractive setting for new and existing develop- addition plans are under discussion to build a ment. pedestrian and bicycle overpass between Estu- OAK-3.2: Work with public agencies in the ary Park and the channel shoreline to the north. area to extend the open space system inland Within the larger framework of a major wa- from the Channel. Much of the land inland terfront open space system, development To create the strongest possible connection of the Embarcadero which is recommended should be guided by the following policies: between Lake Merritt and the Estuary, two to be enhanced as publicly-accessible space is measures should be undertaken: owned by railroads, public agencies and insti- POLICY OAK-4: PROVIDE FOR LIVELY, tutions, including the City of Oakland, the PUBLICLY ORIENTED ACTIVITIES THAT OAK-3.1: Create a system of public open Union Pacific Railroad, Laney College, Peralta COMPLEMENT THE ADJACENT WATERFRONT spaces that connects Lake Merritt Channel College District, and EBMUD. The City PARKS AND OPEN SPACES. to the Estuary. The existing path on the East-

92 Oakland Estuary Policy Plan Development adjacent to the open recreational taurant use, such as the existing Seabreeze Cafe, OAK-2.3, 2.5 & 4.1). Requisite parking and spaces should complement them, and should should also be promoted within the area. servicing should also be accommodated and, provide public attractions which add to the where feasible, consolidated. variety of activities and experiences found on It should be noted that enclaves such as this the waterfront. Development should be en- are rarely planned. Rather, they develop The Oakland Museum is investigating couraged on both sides of Clinton Basin, and through the spontaneous vision and dedica- options to expand and develop the ‘Trea- in areas close to the Embarcadero, as follows. tion of creative, entrepreneurial property own- sure House’ concept. An appropriate loca- ers and residents. By their very nature and tion for this use would be adjacent to the Fifth Avenue Point character, these enclaves are economically frag- planned waterfront open space flanking ile. Policies that promote preservation and Clinton Basin and the Estuary. OAK-4.1: Preserve and expand the existing expansion of the Fifth Avenue Point commu- Fifth Avenue Point community as a neighbor- nity should be carefully applied, so as not to The ARTSHIP Foundation has recently hood of artists and artisan studios, small busi- adversely affect property values, or inadvert- acquired the Golden Bear, a former naval nesses, and water-dependent activities. West ently change the very essence of what makes it training vessel, to serve as headquarters and of Clinton Basin, the Fifth Avenue Point com- unique. primary program venue for the numerous munity is one of Oakland’s most unique neigh- community outreach and art programs run borhoods. It has nestled among declining wa- OAK-4.2: Promote development of educa- by the Foundation and other art and cul- terfront industrial uses, creating a spark of life tional and cultural interpretive facilities. and activity. The artisan work that takes place The Oak-to-Ninth reach of the waterfront is there is an economic asset which is valuable an ideal location for cultural attractions and for local residents. In addition, the existing other development. (See Policy OAK-4.4) In work/live units within the Fifth Avenue arti- addition to the recreational benefits associated san village contribute to the inventory of af- with festivals, etc. (See Policy OAK-2.4 & fordable studio spaces within Oakland. These 2.5), facilities housing museums, educational units should be maintained and reinforced and cultural programs, etc. can be major wa- through the provision of additional units, in- terfront attractions. Such facilities should be cluding artist and artisan work/live studios and located and developed to add to the atmo- small light industrial and water-dependent sphere established by the Fifth Avenue Point businesses. A limited amount of retail and res- community and Clinton Basin (See Policies The 5th Avenue Point community includes a synergistic grouping of artists, artisans and small industrial businesses.

Section III: District Recommendations 93 tural organizations. Under an extensive renovation project, the ship will be converted into theaters, gallery space, classrooms, meeting space, studios, and other facilities necessary to support a major arts initiative.

OAK-4.3: Facilitate the relocation of break- bulk cargo operations from the Ninth Avenue Terminal. East of Clinton Basin, a major existing use within the district is the Ninth Av- enue marine terminal, which is owned and operated by the Port of Oakland. In order to achieve the vision for the waterfront in the Oak-to-Ninth area, it is necessary that the existing terminal operations and those related maritime and warehousing activities adjacent to the terminal be accommodated elsewhere; thus enabling reuse of the Ninth Avenue Ter- The 5th Avenue Point community will be retained as a unique mixed-use district with work-live units, studios, small minal site. businesses and water-dependent activities.

Mixed Use Development cent Park (See Policy OAK-2.4), the Embar- encouraged as an integral component of the cadero and Clinton Basin (See Figure 10). development programs of hotel and other uses. OAK-4.4: Promote development of commer- Development of these sites should be planned Recreational elements could be developed as a cial-recreational uses in the vicinity of the and carried out in a comprehensive manner, part of the projects. Accommodating tennis, Crescent Park and Clinton Basin. Reloca- and include possible hotel, conference, restau- swimming, etc., could add another dimension tion of cargo handling and clearance of the rant, retail, and similar commercial-recreational to the recreational experience of the area. Ninth Avenue Terminal creates potential de- uses. A recreational ‘resort’ orientation, along velopment parcels between the proposed Cres- with cultural and social programs, should be New development within this area should be

94 Oakland Estuary Policy Plan promoted along the Embarcadero Parkway, options available to address these issues in a Regional Access with “windows” to the water at intermittent timely manner. points. It should be set back from the shore- POLICY OAK-6: EXPLORE THE FUTURE line promenade. (See Policy OAK-5) A Specific Plan should be prepared prior to POTENTIAL FOR A NEW BART STATION development. Planning should be based on a AND MAJOR PARKING FACILITY ON BART OAK-4.5: North of the Embarcadero, en- strategy which analyzes the area comprehen- PROPERTY AT FIFTH AVENUE AND EAST courage a mixed-use district while maintain- sively and which accounts for the constraints EIGHTH STREET. ing viable industrial uses. In the more tradi- imposed by subsoil environmental conditions. tional warehouse and industrial area north of Transformation of the district will require that As the waterfront develops as a major destina- the Embarcadero between the Lake Merritt several outstanding issues be resolved simulta- tion, opportunities for the creation of a new Channel and Oak Street, a mixed-use district neously. Development feasibilities should be BART station east of Fifth Avenue should be is encouraged. Emphasis should be placed on analyzed, phasing of improvements should be explored. In addition to improving regional maintaining the existing industrial and manu- identified, and a funding strategy to finance transit service, easy BART connections would facturing uses, as well as providing for nontra- and implement recommended open space enhance the potential of the nearby waterfront ditional higher density housing (work/live and should be addressed. These require that a re- as a major destination, and reduce parking artist studios). This area is essentially an ex- alistic development program and site plan be problems associated with special events. The tension of a larger mixed-use district to the developed. site might also include a significant parking west, extending to Webster Street in the Jack facility for commuter parking, replacement London District. REGIONAL CIRCULATION & parking for Laney College surface lots, and LOCAL STREET special events parking for the waterfront. POLICY OAK-5: INITIATE MORE SPE- IMPROVEMENTS CIFIC PLANNING OF THE ENTIRE OAK-TO- In addition to serving the waterfront area, a NINTH DISTRICT. The Oak-to-Ninth area is isolated from other BART station at this location could have posi- parts of the city by regional transportation fa- tive impacts on the revitalization of adjacent The Oak-to-Ninth district is large and diverse, cilities, all of which run parallel to the water- neighborhoods. with several unique, complicated issues that front. The following policies are recommended dominate its real development potential. It to reduce the effect of these barriers and im- should be planned in sufficient detail to iden- proving access to, and circulation through, the tify all potential issues, and to understand the area.

Section III: District Recommendations 95 FIGURE III-12: Clinton Basin Illustrative Cross Section

POLICY OAK-7: COORDINATE WITH more dangerous place for drivers and pedes- should be removed and replaced with a con- CALTRANS ON THE UPGRADE OF THE I- trians. figuration that provides both eastbound on- 880 FREEWAY TO IMPROVE REGIONAL ramp and westbound off-ramp connecting to However, with the current seismic upgrade Fifth Avenue. ACCESS TO THE WATERFRONT. program for the freeway, this situation could Local Street Improvements As it passes through Oakland, I-880 is sub- be remedied to promote highway safety and standard. On and off-ramps occur in a ran- to provide clear, safe and convenient access to POLICY OAK-8: ENHANCE FIFTH AV- dom manner, creating short merging distances the waterfront. The City should work with ENUE AS THE PRINCIPAL PEDESTRIAN AND and associated safety problems. This is par- Caltrans to develop retrofit plans for the Fifth VEHICULAR LINKAGE TO THE PUBLIC OPEN ticularly true in the Oak-to-Ninth District. Avenue Interchange which also include a more SPACE SURROUNDING THE MOUTH OF THE As the area evolves and becomes more of a direct way to the waterfront. At a minimum, LAKE MERRITT CHANNEL. regional attraction, the highway network that the existing on and off-ramps along the Em- serves the district will become a busier and barcadero between Fifth and Ninth Avenues

96 Oakland Estuary Policy Plan Fifth Avenue is a significant north-south street, ing, and sidewalk improvements should be mendations to develop segments of the park- connecting to Park Boulevard and linking the undertaken along its entire distance. way in other sections of this plan, the Embar- waterfront to downtown neighborhoods and cadero Parkway concept should be imple- the Oakland Hills. As such, it is important POLICY OAK-9: IMPROVE THE EM- mented between Ninth Avenue, Lake Merritt that Fifth Avenue be improved south of the BARCADERO EAST OF OAK STREET AS A Channel and Embarcadero Cove, beyond. Embarcadero as the principal pedestrian and MULTIMODAL LANDSCAPED PARKWAY WITH vehicular connection to this segment of the BICYCLE, PEDESTRIAN AND VEHICULAR FA- A three-lane roadway (two moving lanes and waterfront. It should be realigned and straight- CILITIES. a center left-turn lane) should be built, wher- ened to become the edge of the open space ever feasible, with an adjacent landscaped cor- and to establish a direct driving route that cir- A key objective of the Estuary Policy Plan is ridor to accommodate a continuous bicycle cumvents the Fifth Avenue Point community. to create a continuous multimodal parkway trail and pedestrian promenade on the Estu- to improve access along the waterfront and ary side. In order to enhance the pedestrian environ- enhance the continuity and identity of the Es- ment along Fifth Avenue, landscaping, light- tuary within the city. Consistent with recom-

Section III: District Recommendations 97 FIGURE III-13: 5th Avenue Illustrative Cross Section (With one vehicular lane in each direction.)

POLICY OAK-10: CREATE A NETWORK through the district and a comfortable and safe order to create a more public and open feeling OF PEDESTRIAN-FRIENDLY STREETS THAT pedestrian environment. The configuration of along the water and increase accessibility. Con- OPENS UP VIEWS AND ACCESS TO THE streets should be aligned to promote views and nections should be made from this area across WATER. access to the shoreline, provide convenient ac- the head of Clinton Basin to the Fifth Avenue cess to and parking for open spaces, and dis- Point community to ensure that both sides of Within the Fifth Avenue Point area and the courage fast-moving through traffic. Streets the basin are tied together by local streets. commercial-recreational district east of should include generous provisions for pedes- Clinton Basin, a network of local streets trians and be landscaped in a manner that ex- Parking should be provided to serve individual prop- tends the open space amenity inland from the erties. shoreline. OAK-11: DESIGN PARKING TO BE CON- VENIENT AND COMPLEMENTARY TO THE In future planning (See Policy OAK-5) this New local streets should continuously follow PUBLIC ORIENTATION OF USES WITHIN THE network should be designed in a block con- the Estuary and Clinton Basin open space, in AREA. figuration to allow for a diversity of ways

98 Oakland Estuary Policy Plan Convenient and visible parking is important in ensuring the success of open space improvements as well as new development. In future planning (See Policy OAK-5) parking should be provided in a manner that complements the open space character of the area. Large ex- panses of asphalt should be avoided in favor of landscaped roadways with parking alongside them. Such an approach will minimize the visual impact of parking while maximizing access and visibility to adjacent activities. Parking areas should be well lit and linked to pedestrian trails.

Development projects should provide all of their parking requirements onsite, and be gen- erously landscaped to promote continuity with open space areas. Parking should be screened from predominant public view with landscaping and/or encapsulated and architecturally integrated within buildings. Parking that serves private uses should be made available to the public during nonpeak periods.

Permanent onsite parking along roadways can only satisfy a small percentage of the overall parking needs. Additional opportunities for events parking north of I-880 such as the existing railyards, existing parking facilities at

Section III: District Recommendations 99 Laney College, and private parking facilities within the waterfront area should be pursued and programmed.

OAK-12: ESTABLISH A MANAGEMENT PROGRAM FOR SPECIAL EVENTS ACCESS AND PARKING.

A major event at the waterfront (See Policy OAK- 2.4) could attract several thousand people. As a result, transportation and parking will be significant issues. Events planning should include a comprehensive transportation management program that includes shuttles, vans, and special transit vehicles providing service to the downtown, the Jack London District, and key regional transit providers (e.g., BART, Amtrak, Transbay ferries). Events’ parking should also be provided within walking distance of the planned celebration space.

100 Oakland Estuary Policy Plan Section III: District Recommendations 101 The San Antonio/Fruivale Distrit stretches from Embarcadeero Cove to San Leandro Bay.

102 Oakland Estuary Policy Plan

IV Moving Forward

Section IV: Moving Forward 125 126 Oakland Estuary Policy Plan Steps Toward Implementing the Estuary Policy Plan

The Estuary Policy Plan establishes the However, implementing this plan’s vision is a broad awareness of this fact. The major context, vision, goals, objectives and policies complex challenge. It will take a long time, products of this planning process are not only that will guide the transformation of the and demand significant and constant planning documents and projects. Rather it is waterfront: commitments of effort and involvement. It a community-wide “Estuary Consciousness”; requires coordinated initiatives by many public a dedication to work together to achieve the • It presents the history of the Estuary area agencies, interest groups, the private sector, and great potential of the waterfront. and its relationship to the City, providing a individual citizens. And, in addition to context for future changes. commitments of interest and time, realizing Guided by this philosophy, a strategy for the ideas presented in the plan will also require implementation requires that several initial • It identifies issues to be addressed and the dedication of extraordinary amounts of steps be undertaken immediately. These opportunities to improve the Estuary’s financial and other resources, phased over include the following initiatives: attractiveness and public use. many years. ! To begin with, the plan should be • It provides policy direction for the Estuary In shifting focus from planning to sanctioned by the key decision-making as a whole, and subdistricts in particular. implementation, it is important to reaffirm a bodies which have the responsibility to Included are recommendations to change the basic premise about the Estuary. Preparation oversee the waterfront. Specifically, the physical appearance of the Estuary, and enhance of this plan was based on a recognition that City Planning Commission, City it as a community asset. the Oakland Estuary is one of Oakland’s -- Council, and Board of Port and the region’s -- most important resources. Commissioners should review and Successful implementation also depends on a approve (as appropriate) the Estuary

Section IV: Moving Forward 127 Policy Plan and other supporting The update of the General Plan’s Land Use tation Guide should be a compendium of spe- docments as they are developed. and Transportation Element (March 1998) was cific recommendations, ideas, strategies, stan- prepared and adopted while the Estuary Plan dards, City/Port organizational relationships, ! Coordinated staff follow-through is very was underway. Anticipating completion of funding, financing, and other implementation important. Specific priorities, the Estuary Plan, the General Plan recom- techniques which can be used to carry out the identification of immediate and catalyst mends (in Objective W-8) that the policies of the Estuary Policy Plan. projects, development strategies, city....”Provide (for) a comprehensive planning programs, funding, institutional framework... (for the mixed use waterfront As opportunities to implement waterfront arrangements, and other means of area). In addition to...(General Plan) objec- projects present themselves, the implementing recommendations should tives and policies, the Estuary Plan, which will Implementation Guide should be used to be identified, assessed, documented, and be adopted as part of the General Plan, will clarify Estuary Policy Plan recommendations undertaken. provide additional detail...” and establish basic direction for decisions and actions. It should be used by Port and City ! Appropriate regulatory controls which The Estuary Policy Plan achieves this objec- staff and decision-makers as the basis for reflect the recommended land use patterns tive. The Oakland Planning Commission and initiating and evaluating waterfront projects. and development intensities should be City Council should take steps to formally established and enforced. In addition, the incorporate it as an element of the General Work programs for critical initiatives should overall quality of design should be Plan. be established, project managers should be promoted via specific project review identified, and commitments by agencies and procedures. POLICY MF-2: DEVELOP A COMPANION stakeholders should be identifed and DOCUMENT TO THE ESTUARY POLICY documented in the Implementation Guide. ! The implications of this plan on private PLAN, TO BE CALLED THE ESTUARY PLAN The Implementation Guide should also be property rights should be clarified. IMPLEMENTATION GUIDE. used to evaluate development projects proposed by other public agencies and the POLICY MF-1: ADOPT THE ESTUARY The Estuary Plan Implementation Guide private sector. Therefore, it should assess and POLICY PLAN INTO THE OAKLAND should be developed and used as a resource by document appropriate design guidelines GENERAL PLAN. Port and City decision-makers, as well as the suggested by the Estuary Policy Plan. The public, in initiating and evaluating waterfront- guidelines should also form the basis of related projects or programs. The Implemen- enforceable regulatory controls, to be drafted

128 Oakland Estuary Policy Plan and enforced by the City and/or the Port regulatory controls to be enforced to insure in the City area and privately-owned pacels within their respective jurisdictions. (See project consistency with the Estuary Policy within the Port area, they should be applied Policy MF-3). Plan (and ultimately, with the General Plan.) by parcel.

Implementation of significant project The new classifications should supersede the Ultimate densities of specific projects should initiatives such as those identified in the Estuary single “Waterfront Mixed Use” classification consider many factors beyond these Policy Plan typically take time, and undergo currently in the Land Use and Transportation maximums, including the context of each several twists and turns over their lifetimes. Element of the General Plan. They should individual district, neighborhood character, For that reason, the Implementation Guide also be incorporated into city zoning regula- zoning regulations, parking, open space, height should not be a static document that presents tions and Port development controls. limits, and all relevant policies of the General a single way of implementing initiatives. Plan. Rather, it should be a ‘working document’, Each classification is unique in terms of land updated on a regular basis, to reflect unforseen uses, desired character, relationship with the The Port and the City have separate powers opportunities or constraints to implementing waterfront, and ability to achieve the goals and for regulating land uses within their respective projects. Specific recommendations should objectives of the Estuary Policy Plan. (See jurisdictions. The City should amend its be continually assessed and periodically re- Land Use Classification Map and Summary zoning codes, and the Port should amend or evaluated, based on current market conditions, Matrix, pages 132-135) otherwise establish development standards and economic feasibility, site-specific physical restrictions that reflect these classifications. characteristics, funding options, etc. The intensity and density standards should be Furthermore, the two agencies should enforce considered as maximums. For residential uses, their respective controls in a consistent manner, POLICY MF-3: ADOPT AND ENFORCE the density maximums are not entitlements to insure that a uniform approach to DEVELOPMENT REGULATIONS WHICH that apply to every property within a given development is achieved. REFLECT THE LAND USE POLICIES classification. Similarly, for non-residential ESTABLISHED BY THE ESTUARY POLICY uses, the floor-area-ratios (FARs) are overall PLAN. maximums; not entitlements that apply to every property within a given classifcation. Eighteen unique land use classifications are Because there are not specific parcels or definite recommended by the Estuary Policy Plan. lot-line delineations, FARs in the Port area They should form the basis of future should be applied on an area-wide basis, while

Section IV: Moving Forward 129 130 Oakland Estuary Policy Plan Section IV: Moving Forward 131 Summary of Estuary Policy Plan Land Use Classifications

Land Use Desired Maximum Classification Intent Character Intensity LI-1: Light Industrial Maintain light industrial and manufacturing uses that provide Future development in this area should be FAR of 2.0 per parcel. support to the adjacent maritime area and downtown, but are primarily industrial and manufacturing in 30 units per gross acre. compatible with the adjacent West Oakland neighborhood. nature.

ORD: Off Price Retail Promote the expansion of off-price and home improvement Future development in this area should be FAR of 2.0 per parcel. retail stores that can further establish this area a retail primarily commercial, with retail, 30 units per gross acre. destination complementary to the Jack London waterfront and restaurant, other public-oriented active downtown. uses.

RD&E-1: Retail, Intensity and enhance public-oriented uses and activities that Future development in this area should be Average FAR over Dining, Entertainment strengthen the attractiveness of the area as an active and primarily retail, restaurant, entertainment, entire area of 3.5. (Phase 1: JLS) pedestrian-friendly waterfront destination. marina support, cultural, hotel, upper level offices, parks, and open space with active uses on the ground level of principle streets. Water uses also included.

RD&E-2: Retail, Enhance and intensify Lower Broadway as an active Future development in this area should be FAR of 7.0 per parcel. Dining, Entertainment pedestrian-oriented entertainment district that can help to primarily retail, restaurant, entertainment, 125 units per gross (Broadway) create stronger activity and pedestrian linkages with hotel, upper level office, cultural, parks, acre. downtown Oakland, Old Oakland, and Chinatown. public open space, and any other use that is complementary to active public-oriented ground-level uses.

WCR-1: Waterfront Extend public-oriented waterfront activities west from Future development in this area should be Average FAR over Commercial Webster Street to Alice Street, in conjunction with enhanced primarily retail, restaurant, cultural, office, entire area of 3.0. Recreation (Phase II) public access, open space, and recreational opportunities. hotel, commercial-recreational, conference, exhibition, performances, shows, parks, and public open spaces, and recreational opportunities with active public-oriented uses on ground floors on streets and adjacent to open space areas. Water uses also included.

Definition of Terms: Intent: the purpose of the classification Desired Character of the Area: a broad description of the character, types of uses, and activities that are desired in areas designated with the classification. This is descriptive and not an exclusive definition of use or activity. Intensity: the maximum intensity of building form, or density in terms of housing units per gross acre. Gross acreage includes all land in the neighborhood, including streets and parks. To calculate permitted density on any given lot, refer to the Ordinance No.12054 C.M.S.: Guidelines for Determining General Plan Conformity 100-31.

132 Oakland Estuary Policy Plan Land Use Desired Maximum Classification Intent Character Intensity

PM: Produce Market Retain the historic architectural character and integrity of the Future development in this area should be FAR of 1.0 per parcel. (Franklin Street b/w Produce Market District, and promote uses that maintain the primarily wholesale food, retail, 30 units per gross acre. 2nd & 4th Streets) viability, life, and activity of the area. restaurants, office, work/live lofts, cultural, outdoor markets, parks, and public open spaces and light industrial, warehousing, and other uses that are complementary.

WWD: Waterfront Encourage the preservation and adaptive reuse of existing Future development in this area should be FAR of 5.0 per parcel Warehouse District buildings and new infill development that preserve and primarily joint living and working 100 units per gross acre respect the area’s unique character and historic flavor, within quarters, residential, light industrial, a context of commercial and light industrial/manufacturing warehousing, wholesale, office, uses. artist/artisans studios, neighborhood serving commercial uses, including local small scale restaurants with manufacturing, assembly, and other uses that are compatible with adjacent uses.

MUD: Mixed Use Encourage the development of nontraditional higher density Future development in this area should be FAR of 5.0 per parcel. District housing (work/live, lofts, artist studios) within a context of primarily light industrial, warehousing, 125 units per gross commercial and light industrial/manufacturing uses. wholesale, retail, restaurant, office, acre. residential, work/live, lofts units, parks, and public open spaces with manufacturing, assembly, and other uses that are compatible with adjacent uses.

WMU: Waterfront Allow for a mixture of uses that complement the waterfront Future development in this area should be FAR of 2.0 per parcel. Mixed Use (Site B, setting, and maintains and enhances views and public access primarily residential, office, retail, and 40 units per gross acre. Lincoln Properties, to the waterfront. restaurants, parks, and public open spaces. KTVU, Portobello) Water uses also included.

Section IV: Moving Forward 133 Land Use Desired Maximum Classification Intent Character Intensity

PWD-1: Planned Provide for the transformation of maritime and marine Future development in this area should be FAR of 1.0 and Waterfront industrial uses into a public-oriented waterfront district that primarily public recreational uses 30 units per gross Development (Estuary encourages significant public access and open space including boating clubs, community and acre for privately Park to 9th Ave) opportunities. Encourage a unique mix of light industrial, cultural uses, parks, and public open owned parcels. manufacturing, artist lofts and workshops, hotel, commercial- spaces; with primary uses including light recreation, cultural uses, and water-oriented uses that industrial, manufacturing, assembly, artist Average FAR over complement the recreational and open space character of the workshops, cultural, work/live studios, entire area of 1.0. waterfront. offices, neighborhood commercial, and Average 30 units per restaurants; and including hotel, gross acre. conference, restaurant, commercial- recreational, and cultural. Water uses also included.

WCR-2: Waterfront Encourage a mix of hotel, commercial-recreational and water- Future development in this area should be Average FAR over Commercial oriented uses that complement the recreational and open space primarily hotel, restaurant, retail, marine entire area of 1.0. Recreation character of the waterfront, enhance public access, and take services and boat repair, boat sales, upper (Embarcadero advantage of highway visibility. level office, parks, and public open spaces Cove/Union Point) with water uses.

LI-2: Light Industrial Maintain light industrial, food processing and manufacturing Future development in this area should be FAR of 2.0 per parcel. (Brooklyn Basin) uses, allowing a limited amount of office, residential, primarily light industrial, food processing, 30 units per gross acre. institutional or commercial uses. wholesale, distribution, work/live, residential, parks, and public open spaces.

PWD-2: Planned Provide for the continuation of existing industrial uses, Future development in this area should be FAR of 2.0 per parcel. Waterfront allowing for their future transition to a higher density mix of primarily industrial, manufacturing in 40 units per gross acre. Development (Con- urban uses if the existing uses prove to be no longer viable in nature, and other uses that support the Agra/Lone Star/Ready this area. existing industrial uses. Mix)

134 Oakland Estuary Policy Plan Land Use Desired Maximum Classification Intent Character Intensity

RMU: Residential Enhance and strengthen the viability and attractiveness of the Future development in this area should be FAR of 1.0 per parcel. Mixed Use (Kennedy Kennedy Tract as a mixed-use residential neighborhood of primarily residential, work/live, light 40 units per gross acre. Tract Waterfront) low to medium-density housing within a fine-grained fabric of industrial, neighborhood-serving retail, commercial and light industrial uses. offices, public parks, and open spaces.

HI: Heavy Industrial Retain the existing glass recycling and manufacturing Future development in this area should be FAR of 0.75 per parcel. (Owens-Brockway) functions within this area, and promote an enhanced primarily heavy industrial uses. relationship with the adjoining Kennedy Tract neighborhood, Fruitvale Avenue, and the waterfront.

GC-1: General Provide for the expansion of regional-serving retail and Future development in this area should be FAR of 1.0 per parcel. Commercial commercial uses that can benefit from freeway accessibility. primarily retail, office, general (42nd/High Street/ commercial, hotel, light industrial, parks, Super K-Mart) and public open spaces.

LI-3: Light Industrial Maintain light industrial, wholesale/retail, manufacturing, and Future development in this area should be FAR of 0.5 per parcel. (East of High Street/ public utility uses while providing for enhancement of the primarily industrial, manufacturing, North of Tidewater) waterfront environment. commercial, and a variety of other uses.

PWD-3: Planned Provide for the continuation of existing industrial uses on Future development in this area should be FAR of 0.5 per parcel. Waterfront District properties south of Tidewater Avenue, allowing for their primarily industrial, manufacturing, (East of High Street/ transition to light industrial, research and development, and commercial, office, research and South of Tidewater) office uses in a waterfront business park setting. development, public parks, and open spaces.

GC-2: General Provide for commercial or light industrial uses that sensitive Future development should be primarily FAR of 1.0 per parcel. Commercial (from to the area’s proximity to the Martin Luther King Jr. light industrial, commercial, public Oakport site to Shoreline Park, the I-880, 66th Avenue, sports field, and utilities, park, or open space. 66th Ave) adjacent industrial facilities.

Section IV: Moving Forward 135 POLICY MF-4: CREATE A JOINT CITY- inefficiencies and incremental planning Plan shall be interpreted to allow each property PORT PROCESS FOR PROJECT decisions. owner and each individual or entity holding a protected property interest an economically DEVELOPMENT, REVIEW AND APPROVAL, viable use for each parcel or property interest WITH A SUITABLE FORUM FOR PUBLIC POLICY MF-5: CLARIFY THE held by that property owner, incividual, or INPUT, TO PROMOTE HIGH QUALITY IMPLICATIONS OF ADOPTING SPECIFIC MAPS entity. PROJECTS WITHIN THE PORT AREA AND TEXT IN THE ESTUARY POLICY PLAN (EXCEPT FOR SEAPORT AND AIRPORT ON PRIVATE PROPERTY RIGHTS. The policies, goals, objectives, text, and maps PROJECTS) TO INSURE CONSISTENT, of the Estuary Policy Plan, where they relate COMPLEMENTARY ACHIEVEMENT OF Several policies, maps and/or text presented to private property or private property rights, are not intended to, and shall not be OBJECTIVES BETWEEN THE CITY AND THE in the Estuary Policy Plan make reference to interpreted as extinguishing or otherwise PORT, WITHIN 90 DAYS OF APPROVAL OF privately-owned land and/or property rights. changing any existing property right or interest. THE ESTUARY POLICY PLAN. FAILURE TO These policies, goals, objectives, text sections, In particular, Estuary Policy Plan maps, COMPLY WITH THE FOREGOING SHALL and/or maps are NOT intended to establish including but not limited to maps relating to RESULT IN ALL PROJECTS FOLLOWING THE absolute development criteria for specific public access, public parks, public promenades, CITY OF OAKLAND’S STANDARD parcels. public streets and other public places, shall be DEVELOPMENT APPROVAL PROCESS. considered only illustrative. Actual locations Further, the Estuary Policy Plan is not intended of such facilities shall be determined at a later date through a public process. Neither the City nor the Port can achieve the to and does not authorize, direct or mandate the City, Port or any other entity to acquire objectives articulated in the Estuary Policy any specific parcel or property interest. The Estuary Policy Plan is not intended to Plan by working alone. Consistent and shall not be interpreted as creating any complimentary achievement of mutual All policies, objectives, text sections and maps property right for the Port, City, or the public objectives is required. To bridge these in this document shall be subject to the legal that is greater than those rights existing prior objectives and to promotte high-quality maxim that City and Port policies, regulations, to the adoption of this Plan. projects, the two agencies will create a joint and actions cannot deny an owner The policies, goals, and objectives included in process for the review and approval of specific economically viable use of his or her property, and that such policies, goals, objectives, the Plan are intended to be implemented over projects. The specifics of this process should regulations, and actions cannot cloud private time. It is assumed that lawfully existing land be researched and detailed as quickly as property titles or interests. Therefore, all uses will continue. The Estuary Policy Plan possible, so as to give the Estuary area the high policies, goals, objectives, text sections, and does not require, nor does it specifically en- priority it deserves, and to avoid project actions recommended by the Estuary Policy dorse, any property acquisition method or ac-

136 Oakland Estuary Policy Plan tion, including but not limited to, amortiza- tion, dedication, eminent domain, friendly purchase or gift, that will extinguish or diminish existing private property rights or interests.

In addition, the Estuary Policy Plan shall not prohibit the City or Port from accepting and processing development applications, including but not limited to General Plan amendments.

Section IV: Moving Forward 137 138 Oakland Estuary Policy Plan A Appendix

Section IV: Moving Forward 139 140 Oakland Estuary Policy Plan Section IV: Moving Forward 141 INDEX

ABAG...... 7, 36, 38 East Bay Regional Park District Lake Merritt Channel...... 37, 84, 88-90, 92 Alameda...... 15, 18, 44-45, 71 (EBRPD)...... 5, 7, 39, 112-113, 115 Land Use Artship...... 91, 94 Embarcadero Cove...... 106 - Issues & Opportunities...... 28 Embarcadero Parkway...... 44, 45, 49, 98, 116, 121 - Objectives...... 23-30 Background/ Introduction (Section I) ...... 1-19 Emerging Roles of the Shoreline...... 18 - Jack London District...... 56 BART...... 96, 121 Estuary Park...... 88 - Oak-to-Ninth District...... 93 BCDC...... 5, 7, 15, 33, 38 Estuary Plan Advisory Committee...... 6 - San Antonio-Fruitvale District...... 103 Brooklyn Basin...... 106 Estuary Plan Implementation Guide...... 6, 128 - Classifications...... 129-135 Estuary Shoreline (Historical Overview)...... 11, League of Women Voters...... v, 3 California State Lands Commission...... 14 Appendix A Loft Disrtict...... 62 CalTrans...... 71, 97, 116 Executive Summary...... v Lower Broadway...... 57, 73-74 Circulation (See Regional Circulation) City of Oakland...... 3, 5, 12, 14, 127-137 Fifth Avenue...... 97 Market Trends...... 23 Clinton Basin...... 90, 95 Fifth Avenue Point...... 93 Martin Luther King Regional Con-Agra...... 107 Shoreline...... 18, 112, 113-116 Credits...... Back Cover General Plan (Oakland)...... 3, 5-7, 37, 128 Moving Forward (Section IV)...... 125-137, General Plan Congress...... 5,6 Appendix A Design Review...... 136 Development Regulations...... 129-135, 137 High St. (Vicinity)...... 111-113 Ninth Avenue Terminal...... 13, 23, 90-91, 94

District Recommendations Jack London Aquatic Center...... 89 Oakland Museum...... 94 (Section III)...... 51-122 Jack London Square...... 18, 27 Oakland Sharing the Vision...... 6 - Jack London District...... 53, Appendix A - Phase I...... 57-59 Objectives (Section II)...... 21-49 - Oak-to-Ninth District...... 83 - Phase II...... 59-60 Owens-Brockway...... 110 - San Antonio-Fruitvale District...... 103 Jurisdictions...... 14 Parking...... 45, 49 East Bay Municipal Utilities District Kennedy Tract...... 109-110 - Jack London District...... 76-77 (EBMUD)...... 7, 92, 112-113, 115 - Oak-to-Ninth District...... 100 Plan Organization...... 7

(Continued) 142 Oakland Estuary Policy Plan Port of Oakland...... 3, 6, 11-12, 14-15, 18, 53, 127-129, 136-137 Private Property, Implications...... 116, 136-137 CONSULTANTS Produce District...... 26, 61-62, 75 Public Access (See Shoreline Access) Roma Design Group Gabriel-Roche, Inc. Purpose & Role of the Plan...... 6 Boris Dramov, Team Leader Janet Roche Jim Adams Michael Fajans Regional Circulation & Local Street Network David Barnard - Issues & Opportunities...... 44-45 Bonnie Fisher Korve Engineering - Objectives...... 45, 48-49 Robert Holloway Hans Korve - Jack London District...... 71 Mikaele Holzer Larry Grove - Oak-to-Ninth District...... 96 David Kong Chi Hsin Shao - San Antonio-Fruitvale District...... 116 James Leritz Roma Design Group, et al...... 6 Burton Miller John T. Warren & Associates Laura Nardoza John T. Warren San Francisco Bay Trail...... 36, 37, 87, 114, 116 Carolyn Radisch Shoreline Access & Public Spaces Alfredo Valiente Economics & Planning Systems, Inc. - Issues & Opportunities...... 33-37 James Musbach - Objectives...... 37-39 Hanson Murikami Eshima, Inc David Zehnder - Jack London District...... 64 John Nelson - Oak-to-Ninth District...... 86 Lisa Sullivan Archview Media Design - San Antonio-Fruitvale District...... 113 Thomas M. Simmons Special Events...... 36, 70, 90, 100 Hausrath Economics Group Norberto Melendez Study History...... 3 Linda Hausrath Sally E. Neilson Table of Contents...... i Robert Spencer Transit/Water Taxis...... 45, 48, 77 Trust for Public Lands...... 5, 114

Union Point...... 114

Wetland Protection...... 37, 39, 86-87

Section IV: Moving Forward 143 CREDITS

CITY OF OAKLAND ESTUARY PLAN PORT OF OAKLAND ADVISORY COMMITTEE Mayor & City Council George Bolton Board of Port Commissioners Elihu M. Harris, Mayor Carl Chan John Loh, President Jane Brunner, District 1 Don Davenport Robert L. Harris John Russo, District 2 Carolyn Douthat Frank Kiang Nancy Nadel, District 3 Paul Elizondo David Kramer Richard Spees, District 4 Dr. Eleanor Engram Kathy Neal Ignacio DeLa Fuente, District 5 Ed Fernandez Becky L. Taylor Nate Miley, District 6 Frank L. Fuller Peter Uribe Larry Reid, District 7 Henry L. Chang, Jr., At Large Marguerite A. Fuller * Celso Ortiz Jack Gaskins * Ada Cole City Planning Commission Robert Hamilton * James B. Lockhart Linda R. Bytof, Chair Virginia Hamrick Anthony A. Batarse, Jr. Stana D. Hearn Charles W. Foster, Executive Director Arthur L. Clark Gary Knecht Tay Yoshitani, Deputy Executive Director Les A. Hausrath Anthony Mar Omar R. Benjamin Glen Jarvis Keith Miller Director, Commercial Real Estate Division Vincent B. Reyes Rosemary Muller John Glover Frazier M. Scurry-Scott Robert Odermatt Director, Strategic & Policy Planning * Anthony Pegram Vincent B. Reyes * C. Peter Smith Martha Robles-Wong Richard J. Wiederhorn, Planning Manager * Phillip H. Tagami Sylvia Rosales-Fike Barbara M. Szudy Robert C. Bobb, City Manager Carolyn Sandidge Steve Hanson William E. Claggett, Director, C. Peter Smith Anne Henny Community & Economic Development Agency Sandy Threlfall Vivian O’Neal Richard E. Winnie Ross Turner Andrew D. Altman, Chief of Planning Cheryl Wong Leslie M. Gould, Acting Chief of Planning Katrina A. Koh Oakland Sharing the Vision Andrew Thomas Steve Costa, Executive Director Ralph Wheeler Toya Ash Renee Dowlin (reprinting) * Deborah Kirtman * Former Officials/Staff

144 Oakland Estuary Policy Plan INDEX

(Continued) 142 Port of Oakland...... 3, 6, 11-12, 14-15, 18, 53, 127-129, 136-137 Private Property, Implications...... 116, 136-137 CONSULTANTS Produce District...... 26, 61-62, 75 Public Access (See Shoreline Access) Roma Design Group Gabriel-Roche, Inc. Purpose & Role of the Plan...... 6 Boris Dramov, Team Leader Janet Roche Jim Adams Michael Fajans Regional Circulation & Local Street Network David Barnard - Issues & Opportunities...... 44-45 Bonnie Fisher Korve Engineering - Objectives...... 45, 48-49 Robert Holloway Hans Korve - Jack London District...... 71 Mikaele Holzer Larry Grove - Oak-to-Ninth District...... 96 David Kong Chi Hsin Shao - San Antonio-Fruitvale District...... 116 James Leritz Roma Design Group, et al...... 6 Burton Miller John T. Warren & Associates Laura Nardoza John T. Warren San Francisco Bay Trail...... 36, 37, 87, 114, 116 Carolyn Radisch Shoreline Access & Public Spaces Alfredo Valiente Economics & Planning Systems, Inc. - Issues & Opportunities...... 33-37 James Musbach - Objectives...... 37-39 Hanson Murikami Eshima, Inc David Zehnder - Jack London District...... 64 John Nelson - Oak-to-Ninth District...... 86 Lisa Sullivan Archview Media Design - San Antonio-Fruitvale District...... 113 Thomas M. Simmons Special Events...... 36, 70, 90, 100 Hausrath Economics Group Norberto Melendez Study History...... 3 Linda Hausrath Sally E. Neilson Table of Contents...... i Robert Spencer Transit/Water Taxis...... 45, 48, 77 Trust for Public Lands...... 5, 114

Union Point...... 114

Wetland Protection...... 37, 39, 86-87

143 CREDITS

144