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Infill Report WEB VERSION Smart Infill CREATING MORE LIVABLE COMMUNITIES IN THE BAY AREA A GUIDE FOR BAY AREA LEADERS By Stephen Wheeler, PhD, AICP © Greenbelt Alliance 2002 SPRING 2002 A Guide for Bay Area Leaders / 1 Smart Infill: Creating More Livable Communities in the Bay Area is a guide for local government officials, planners, and citizens concerned about how development within existing towns and cities—especially infill housing and mixed-use development—can help revitalize communities and accommodate the future growth of the Bay Area. This Greenbelt Alliance report was researched and written by Stephen M. Wheeler, Ph.D., AICP, in collaboration with Greenbelt Alliance staff and the Greenbelt Alliance Livable Communities Board team. Team members include Roberta Borgonovo, Andrew Butler, Peter Cohen, Zach Cowan, Ignacio Dayrit, Marilyn Farley, Robert Johnson, Vivian Kahn, Trish Mulvey, Margaret Spaulding, Michele Stratton, and Michelle Yesney. The author and Greenbelt Alliance would like to thank the many individuals interviewed for this report who gave generously of their time and knowledge (see list of interviewees at the end of this report), and especially those who reviewed drafts of this document: Steve Barton, Roberta Borgonovo, Peter Cohen, Ignacio Dayrit, Stephanie Forbes, Tom Jones, Vivian Kahn, and Laurel Prevetti. Infill Development for Livable Communities was designed by Lisa Roth. Copies of this guidebook can be obtained from Greenbelt Alliance at the address below, or on the web at www.greenbelt.org. This publication was made possible by a special grant from The Sapling Fund of the Peninsula Community Foundation and the Gaia Fund. Additional support was supplied by The Wallace Alexander Gerbode Foundation, Richard and Rhoda Goldman Fund, The William and Flora Hewlett Foundation, The James Irvine Foundation, and the David and Lucile Packard Foundation. Greenbelt Alliance 530 Bush Street, Suite 303 • San Francisco, CA 94108 Phone: (415) 398-3730 • Fax: (415) 398-6530 [email protected] • www.greenbelt.org Our mission is to make the nine county San Francisco Bay Area a better place to live by protecting the region’s greenbelt and improving the livability of its cities and towns. We work through public policy development, advocacy and education, in part- nership with diverse coalitions. Tom Steinbach Executive Director Janet Stone Livable Communities Program Director 2/ SMART INFILL executive summary If the Bay Area is to meet the potential, revising zoning and tain View, San Rafael, and San growth challenges of the parking codes, adopting design Francisco are also creating twenty-first century, much guidelines, streamlining per- Specific Plans for infill loca- more of the region’s building mitting processes, facilitating tions. Emeryville has been a will need to take place as cleanup of contaminated sites, leader in cleaning up contami- “infill” development within and coordinating involvement nated “brownfields” sites and existing cities and towns. Infill of neighbors and other local in providing information and development can help the constituencies. It is particu- assistance to devel- region save open space, larly important for Bay Area opers. Redwood improve housing options and cities and towns to encourage City, Hayward, and affordability, reduce traffic multiple infill projects in close Oakland have built Together, all of us can congestion, make more proximity with new amenities new civic facilities efficient use of existing infra- such as parks, streetscape to help leverage help Bay Area cities structure, and create more improvements, public plazas, downtown infill. San livable communities. Given child care centers, local shops, Francisco’s Mission and towns become the region’s housing crisis, and restaurants. Bay project creates residential or mixed-use infill an entire new infill more livable and Such infill would produce not is particularly important to neighborhood on just individual buildings, but create additional housing near former railyard sustainable through revitalized communities that jobs in many existing Bay lands. Infill around can meet the needs of a wide Area communities. rail transit stations infill development. variety of residents. At the is underway in Infill development faces many same time, cities and towns Pleasant Hill, Mill- obstacles in the Bay Area. should adopt policies to pro- brae, El Cerrito, Impediments include land tect existing low-income resi- Walnut Creek, Richmond, availability, fiscal disincentives dents from displacement and Oakland’s Fruitvale neighbor- for local governments to to ensure that new housing hood, and other locations. approve infill projects, out- units serve all income groups. dated zoning requirements, Along with open space protec- Creating a context that nur- excessive parking standards, tion, improved transportation tures infill development in the financing difficulties, neigh- alternatives, and measures to Bay Area means putting in borhood opposition, lengthy promote regional equity, infill place mutually reinforcing permitting processes, toxic development can form the programs at different levels of contamination of sites, and core of a regional Smart government. State and poor schools and a lack of Growth strategy. regional policy should pro- amenities in older communi- mote local action. The active Some Bay Area communities ties. These obstacles must be involvement of citizens, busi- have already taken leadership addressed if infill is to achieve ness groups, neighborhood in creating a favorable context its potential of accommodat- associations, nonprofit organi- for infill. San Jose has adopted ing a majority of future Bay zations, elected officials, and a city-wide strategy combining Area development. the media is also crucial to an Urban Growth Boundary building political support for Local governments can play a with zoning changes, permit infill. Together, all of us can central role in making infill streamlining, financial incen- help Bay Area cities and happen. Local officials can take tives to developers, and cre- towns become more livable the lead by creating Specific ation of Specific Plans. Other and sustainable through infill Plans for areas with infill communities such as Moun- development. A Guide for Bay Area Leaders / 3 contents INTRODUCTION . .7 EXAMPLES OF BAY AREA INFILL San Jose . .48 Emeryville . .50 THE NEED FOR INFILL Redwood City . .51 What is Infill? . .9 Mountain View . .51 The Role of Infill in Addressing San Francisco . .53 Bay Area’s Growth Crisis . .10 Oakland . .54 Varieties of Infill Housing . .15 San Rafael . .56 What Densities are Appropriate? . .16 Hayward . .57 Making Infill Affordable . .17 Berkeley . .58 Avoiding Displacement . .21 Pleasant Hill . .59 Millbrae . .61 Also Noteworthy . .62 STRATEGIES FOR PRODUCING BAY AREA INFILL 11. Land Availability . .23 12. Fiscal Disincentives . .26 RECOMMENDATIONS FOR REGIONAL AND STATE ACTION 13. Specific Plans . .27 The Regional Level . .63 14. Zoning Codes . .29 The State Level . .64 15. Parking Requirements . .32 16. Financing Options . .35 RECOMMENDATIONS FOR 17. Design Guidelines . .36 CITIZEN ACTION . .67 18. Permitting Processes . .38 19. Working with Neighbors . .39 INTERVIEWEES . .68 10. Brownfields Cleanup . .41 11. Consistency and Completeness . .42 12. Community Revitalization . .43 ORGANIZATIONAL RESOURCES . .69 Other Problems and Potential Solutions . .45 BIBLIOGRAPHY . .71 A Guide for Bay Area Leaders / 5 introduction Many Bay Area local leaders opportunities in recent case studies of successful support concepts such as decades, and by making a infill—places where municipal “Smart Growth” and “Sustain- greater range of housing, action is helping infill develop- able Development.” But how transportation, and employ- ment revitalize neighborhoods is the region to achieve such ment choices available to the or entire cities. Finally, two goals? The purpose of this full diversity of area residents. appendices provide a resource guidebook is to provide infor- list and bibliography on infill This guidebook presents a mation on how cities and development. range of specific policies and towns can implement one key programs which local govern- By publishing this strategy—infill development, ments and regional decision- guidebook, Green- especially of housing. Through makers can use to help the belt Alliance seeks well-designed infill, the region region “grow up, not out.” The to give local deci- can grow smarter and more analysis here focuses on infill sion-makers tools sustainably while improving The Bay Area is at a development that is residen- with which to pro- quality of life for current and tial or mixed-use in character. mote infill. Mayors, crossroads. Either we get future residents. There are two reasons for city council mem- serious about guiding Infill development is an essen- this: the Bay Area is suffering bers, and city staff tial complement to greenbelt from a severe and growing persons are on the new development toward protection. It provides posi- housing crisis, and bringing front lines of infill tive and constructive alterna- residents back into the cen- development, in our existing cities and tives to suburban sprawl ters of communities and older the most pivotal towns, or we risk losing development—alternatives neighborhoods is one of the positions to make that can help revitalize best ways to revitalize these policy changes to the high quality of life, existing Bay Area communi- areas. Even in times of slow encourage the ties and provide much-needed economic
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