P I E R 7 0 PREFERRED MASTER PLAN
PORT OF SAN FRANCISCO APRIL 2010 ACKNOWLEDGEMENTS
Mayor Gavin Newsom San Francisco Port Commission Rodney Fong, President San Francisco Board of Supervisors Stephanie Shakofsky, Vice President David Chiu, President, District 3 Kimberly Brandon Eric Mar, District 1 Michael Hardeman Michela Alioto-Pier, District 2 Ann Lazarus Carmen Chu, District 4 Monique Moyer, Executive Director Ross Mirkarimi, District 5 Chris Daly, District 6 Consultant Assistance Sean Elsbernd, District 7 Carey & Company Bevan Dufty, District 8 Economic Planning Systems, Inc. David Campos, District 9 Roma Design Group Sophie Maxwell, District 10 (Pier 70 is located in District 10) Treadwell & Rollo John Avalos, District 11 The Port is especially appreciative of Mayor Newsom, Supervisor The Port recognizes the time and dedication of the Port’s: Elsbernd and Supervisor Maxwell for their assistance and support in Central Waterfront Advisory Group (CWAG) the passage of Proposition D.
PIER 70 PREFERRED MASTER PLAN Table of Contents
Introduction 1
Chapter 1: Site History 9
Chapter 2: Ship Repair, a Continuing Legacy 21
Chapter 3: Context for Change 27
Chapter 4: Past, Present, and Future 33
Chapter 5: Historic Preservation 37
Chapter 6: Land Use and Adaptive Reuse 45
Chapter 7: Open Space and Public Access 51
Chapter 8: Form and Character of Infill Development 57
Chapter 9: Transit, Circulation and Parking 71
Chapter 10: Implementation Strategy 75
Acknowledgements 101
Appendix A: Infill Development Density & Form Study 105
Appendix B: Financial Analysis 113 Appendix C: Pier 70 Central Waterfront Advisory Group 2006 Master Planning Goals 119
Appendix D: List of Pier 70 Master Plan Community Outreach/Commission Meetings 123
Appendix E: 2008 Proposition D-Charter Amendment Regarding Pier 70 127
Appendix F: BAE Pier 70 Ship Repair Facility Plan 131
PIER 70 PREFERRED MASTER PLAN | i i i | PIER 70 PREFERRED MASTER PLAN List of EXHIBITS & TABLES
Exhibit 1: Pier 70 Site Setting and Location iv Exhibit 2: Pier 70 Concept Plan 2 Exhibit 3: 1945 Pier 70 Master Plan 12 Exhibit 4: BAE Ship Repair Facility Plan 22 Exhibit 5: Historic Resource Ratings 42 Exhibit 6: Land Use Plan 46 Exhibit 7: 20th Street Historic Core Land Use Concept 48 Exhibit 8: Pier 70 Open Space Concept 52 Exhibit 9: Pier 70 Infill Development Zones 60 Exhibit 10: Visual and Pedestrian Linkages 66 Exhibit 11: Pier 70 Transit Access 72 Exhibit 12: Public Trust Preliminary Title History 80 Exhibit 13: Preliminary Public Trust Exchange Concept 81 Exhibit 14: Cost and Revenue Comparison 92 Exhibit 15: Historic Building Feasibility Gap 93
Table 1: Historic Resource Profiles 43 Table B1: Pier 70 Project Development Costs 114 Table B2: Pier 70 Project Revenues 116
PIER 70 PREFERRED MASTER PLAN | i i i INTRODUCTION
EXHIBIT 1: PIER 70 SITE SETTING AND LOCATION
i v | P ier 7 0 P referred M aster P lan facturing, and maritime activities that dominated this part ofSanfacturing, andmaritimeactivities thatdominatedthispart imagination andinterest by recalling pastshipbuilding,steelmanu- not onlyvaluable architecturally, butalsocapture thepublic’s Pier 70’s shipyard containsimpressive historicbuildingsthatare 1800’s through thetwo World Wars andintothe1970’s. engagements from the Spanishmilitary American War inthelate continental Railway. Ships builtatPier United 70supported States California Gold Rush, Nevada’s miningoperations,andthe Trans- of theUnited States, where supplieswere manufactured forthe Mississippi River. Thesitewassignificantintheindustrialization industrialcomplexwest ofthe and isthemostintact19thcentury oftheBay Area ofthemaritimehistory Pier part 70isanimportant to theeastshown inExhibit 1,Pier 70Site Setting andLocation. Street tothewest, 22ndStreet tothesouth,andSan Francisco Bay Mission Bay. It isboundedby Mariposa Street Illinois tothenorth, situatedalongSanerty Francisco’s Central Waterfront, justsouthof develop amasterplanforPier 70,a67-acre historicshipyard prop- In 2007,thePort ofSan Francisco commencedapublicprocess to be rediscovered andreintegrated intothecity. place ofwork andindustry, eclipsedover time–adistrict waitingto San Francisco Bay. Sitting atthefootofPotrero Hill, Pier 70isa use; Mission Bay risinginthebackground, andthegreat expanseof their beauty, simplicityandscale;the scarsof150years ofindustrial fenced-offindustrialbuildingsunmatchedin vessels indrydock; striking contrasts:shipyard cranesreaching over massive cruise Wandering alongthePier 70shoreline, oneisconfronted by INTRODUCTION the Port’s visionforPier 70isto: needs, historic andmaritimevalues, whileaddressing 21stcentury of thegoalsandconceptsthoseearlierefforts. Mindful ofits community planningprocess leadingtothisPlan reconfirmed many Port toachieve thoseobjectives. hasledmanypublic efforts The as keyprioritiesinthe Waterfront LandUse Plan. Since then,the ofPierervation 70’s history andextraordinary shiprepair industry In 1997,theSan Francisco Port Commissionidentifiedthepres- and Planning Goals Vision for theFuture toSanimportant Francisco’s future asithasbeentothecity’s past. tohelpPier economicopportunities 70becomeas to embracenew ciation andbenefitinthis Pier 70 Preferred Master Plan (Plan) and resources asthedefiningfeatures forthepublic’s long-termappre- The City, through the ship seekstopreserve Port, repair andhistoric by continualretooling andupdating. bust, periodsofwarandpeace,globaltechnologicalchange shipyard theupsanddowns hassurvived ofeconomicboomand enabling ittoaccommodatethelargestshipsinindustry. This onthethe largestfloatingdrydock West CoastoftheAmericas, repair continuesatPier 70tothisday. The Pier 70shipyard has Francisco’s isalive becauseship shoreline. Thissenseofhistory industries, integrates and ongoingshiprepair operations. waterfront spaces, open creates acenter for innovative level, thehistoric activity activates new re-establishes Create avibrant that authentichistoric and district N A L P R E T S A M D E R R E F E R P 0 7 R E I P 1 |
INTRODUCTION INTRODUCTION
HISTORIC CORE Mariposa Street
HISTORIC RESOURCES VERY SIGNIFICANT Kneass SIGNIFICANT CRANE COVE CONTEXT PARK
OPEN SPACE 18th Street
INFILL DEVELOPMENT SITES 50 SHIP REPAIR (HISTORIC USE) SLIPWAY 4 110
1 68 58 FORMER PIER, WHARF, OR SLIPWAY 141 127 19th Street PROPOSED BUILDING REMOVAL 109 250 111 PIER 70 AREA BOUNDARY
36 6 # INFILL ZONE 120
122 108 *NOTE: BUILDING 21 PROPOSED TO BE RELOCATED 101 102 104 105 20th Street 123 103 107 19
113 23
114 14 4 2 115 64 21 116 21 2 3rd Street Illinois Street Indiana Street Tennessee Street Minnesota Street IRISH HILL 3 12 SLIPWAYS PARK PG&E
22nd Street
N 0 100 200 300’
EXHIBIT 2: PIER 70 CONCEPT PLAN
2 | P ier 7 0 P referred M aster P lan 5. 4. 3. 2. 1. work to guide Pier 70’s transformation: The Plan articulates the following goals to provide a policy frame and attractive public realm. reflect Pier 70’s distinctive historic character, creating an interesting a fabric of buildings, streets, courtyards, and pedestrian ways that ation of major waterfront open spaces and shoreline access areas, and while rehabilitating Pier 70’s historic buildings. It calls for the cre velopment that will reconnect Pier 70 with the Central Waterfront, existing shipyard with sustainable and economically viable infill de This vision combines the legacy of the past and the vitality of the
benefits. Francisco’s economic base and generate revenues to fund public dustry, commercial, cultural, and recreational uses to expand San Provide sites for office, research, emerging technologies, light in this waterfront location. vitality that includes climate adaptation strategies appropriate to Promote sustainable mixed-use infill development and economic Pier 70. San Francisco Bay Trail and the Blue Greenway to and through Create a major new shoreline open space system that extends the Preserve the long-term viability of the ship repair industry. tate its extraordinary historic resources. Create a Pier 70 National Register Historic District and rehabili - - - - - implementation strategyanticipates theneedforanopen, development program development. orphysicalsitingofnew The the Plan isnot“hard-wired” oroverly prescriptive inspecifying a approaches anddesignsolutionstoachieve thesePlan goals.Thus, tunities andfluctuatingdevelopment cycles may require varying Waterfront. Past experienceshows thatevolving market oppor- spaces withconnectionstosurrounding areas withintheCentral objectives publicopen historic preservation andlocationsfornew takes a“form-based” approach thatprovides flexibility yet setsclear Pier 70Historic District andcontinuedshiprepair operations.It open space,whilerespecting publicwaterfront ment andnew the The significant Plan definesgoalsandobjectivesdevelop- tosupport proposals andimplementationstrategies. framework willbeusedtoevaluate future specificdevelopment that hasbuiltthepublicconsensusforPier 70’s future. Thispolicy policy framework,created through acommunityplanningprocess vision, goals,andpoliciespresented inthePlan establishastrong guidefor The Plan isanimportant Pier 70’s transformation.The Approach to thePlan 8. 7. 6.
mental quality. enjoyment of Pier 70 and its waterfront and improve environ Remediate environmental contamination to enable public use and new development with the Central Waterfront. Extend the city street grid to enhance public access and integrate of alternative, sustainable transportation modes and practices. Promote development that is pedestrian-oriented and fosters use N A L P R E T S A M D E R R E F E R P 0 7 R E I P - 3 |
INTRODUCTION INTRODUCTION
collaborative relationship with private development partner(s) and Guiding Pier 70’s Transformation the community to determine how best to balance and achieve the Plan goals and objectives. This Plan envisions a transformation of Pier 70 that combines elements of the past, present, and future. It calls for maintaining To support the Pier 70 planning effort, the Port retained a team of approximately 17 acres of the site for ship repair and identifies a consultants with technical expertise in the fields of historic pres- development site plan for the remaining 50 acres, as illustrated in ervation, land use economics, urban planning and design, envi- Exhibit 2, Pier 70 Concept Plan, that consists of: ronmental analysis, engineering, and cost estimation. In addition, • the Port worked through a collaborative process with federal, state, Approximately 700,000 square feet of new uses within historic and regional government agencies, other departments within the buildings City family, and the public. Strong government partnerships have enabled the Port to produce a Plan that is informed by key regulatory • Approximately 11 acres of open space along the shoreline and up considerations and that enjoys strong public consensus. to 9 additional acres of open space integrated within the develop- ment Special attention has been given to ship repair industry needs. The Port has worked closely with BAE San Francisco Ship Repair (BAE), • Approximately 3 million square feet of compatible infill develop- a subsidiary of BAE Systems, the Port’s ship repair operator, as ment it develops its own complementary facility plan. This will ensure adequate space and operational latitude for compatible co-existence • Infrastructure construction and environmental remediation to of ongoing ship repair operations, historic preservation, and new support the program development at Pier 70. To support existing and new uses, the development of new roadways and parking facilities will be required. The Plan’s conceptual devel- opment program estimates that development will generate 6,000 to 8,000 new jobs and become a major economic stimulus to San Francisco’s local economy.
Beyond its historic buildings and continued maritime function, Pier 70’s attributes are a function of its location, size, historic context, Ship repair at Pier 70 and waterfront setting. It is a part of a growth corridor where
4 | P ier 7 0 P referred M aster P lan mental remediation costs, and the construction of open space. rehabilitation costs, obsolete infrastructure replacement, environ substantial challenges to development, including historic building The unique opportunities Pier 70 presents are accompanied by tradition of diverse and colorful neighborhoods. Pier 70 will become a vital new district that reflects San Francisco’s significant part of San Francisco’s history. In rejuvenating this area, to the City’s economic needs, and preserve a locally and nationally ment at Pier 70 will promote the Port’s public trust mission, respond role along the Central Waterfront. Adaptive reuse and infill develop improvements along Third Street, clearly Pier 70 will play a defining hood Plan), the Blue Greenway, and recent planned public transit Eastern Neighborhoods Plan and Rezoning (Eastern Neighbor Examining Pier 70 against the backdrop of Mission Bay, the 2008 and commercial usesspecifictothewaterfront. museum space;production, distribution,andrepair (industrial); commercial; exhibitionand general office; retailandservice corporatecampusand biotechnology; medical/officesupport; forkeyeconomicusestolocateatPieropportunities 70,including: ment. Market analysisconductedforthePlan identifiesstrong ences cluster, attractive locationfordevelop makesthesiteavery - with UCSF’s hospitals andtheemergingMission new Bay biosci- (UCSF) Mission Bay campus,apremier research institution,along Pier 70’s proximity totheUniversity ofCaliforniaatSan Francisco’s China Basin and Mission Bay. south of the downtown, from South Beach and Rincon Point to sustainable infill development has occurred over the past 30 years - - - Community Workshop Francisco Bay Conservation and Development Commission will San Francisco Bay Regional Water Quality Control Board, and San State Historical Resources Commission, State Lands Commission, Utilities Commission, State Office of Historic Preservation and Francisco Municipal Transportation Agency, San Francisco Public Board of Supervisors, San Francisco Planning Department, San are the keys to realizing the Plan’s vision. The Mayor, San Francisco cymakers, regulatory and administrative partners, and the public Further public participation and collaboration with the Port’s poli stands ready to work with policymakers toward that end. to support the public interest in adaptive reuse of the site. Port staff point that federal, state, and local law can be modified strategically Port and City policymakers have approached Pier 70 from the view N A L P R E T S A M D E R R E F E R P 0 7 R E I P - 5 | -
INTRODUCTION INTRODUCTION
each play a critical role in shaping Pier 70. The Port values their In November 2008, San Francisco voters approved Proposition D, input and direction and is grateful for the remarkable consensus in which streamlines the City’s entitlement process and creates a variety support of Pier 70 planning and legislative efforts to date. of financing mechanisms specific to Pier 70. Approved by 68% of the electorate, Proposition D not only provides unique tools and Beyond legal and regulatory strategies, realizing the Plan will require procedures previously unavailable to the Port to facilitate implemen- a comprehensive financing strategy including a full array of public tation, it exemplifies San Franciscan’s commitment to the preser- and private financing mechanisms. Environmental remediation, vation and revitalization of the Pier 70 area. Invigorated by the preservation and adaptive reuse of historic buildings, and construc- support of the larger community, the Port of San Francisco, working tion of new infrastructure and public open spaces are too costly to in concert with the City and other policymakers and stakeholders, be supported by private development alone. To address this, the is excited to begin the process of transforming Pier 70 into a place Port intends to take advantage of a number of public financing where 21st century industries excel, alongside industrial ship repair, tools, including federal historic and new market tax credits, Mello- as part of a grand historic district of rehabilitated 19th century Roos community facilities district financing, property tax increment buildings. financing, park and open space funding mechanisms, grants from various sources, and other sources of low-cost debt. This Plan embodies the ideals and ideas received from the public, informed by careful interdisciplinary planning and economic anal- In 2010, given the unprecedented environment of weak develop- ysis, which has been under public review for over two years. The ment markets and constrained capital resources, the funding identi- Port looks forward to continuing the civic conversation regarding fied by the Port currently is not sufficient to cover fully the financial how to harness the best of the public and private sectors to revitalize requirements of the Plan. Nevertheless, Pier 70 is a long-term Pier 70. project, and the Port can progress through the Plan’s preliminary entitlement process in response to specific end user opportunities to For more information on the Port’s Pier 70 planning process, position the property for major development activity when market including background information, please go to: and financial conditions improve. Philanthropic financing may www.sfport.com/pier70 become available for adaptive reuse of some of the very significant historic structures that in turn will help leverage the market for other activities on the site. The Port will seek one or more private develop- ment partners to pursue these and other opportunities and formulate creative strategies that will lead eventually to the full realization of the Plan.
6 | P ier 7 0 P referred M aster P lan Overview of the Site with Oakland inBackground, oftheSite withOakland 2007 Overview N A L P R E T S A M D E R R E F E R P 0 7 R E I P 7 |
INTRODUCTION 1 SITE HISTORY
8 | P ier 7 0 P referred M aster P lan structure completedinthe1860’s inthesamegenerallocation and vacant landsaround Pier 70.LongBridge, awoodenbridge Steamboat Point intheSouth ofMarket area forthedeepwaters early woodshipbuildersabandonedthecrowded shoreline along and thegrowth anddefenseofthenation.By the1860’s, thecity’s It contributedtotheindustrialdevelopment ofthe West Coast most significanthistoricindustrialcomplexes inthe United States. These conditionscastthefuture for Pier 70tobecomeoneofthe routes inthePacific Ocean. ship torelatively deepoffshore watersinthe Bay andcommercial extended over thewater. This area offered excellent accessibility by corridors forlandsidemovement alongtheBay, andpierswere 1850’s, theserpentinehillsides were blastedawaytocreate street established asacenterforindustrialoperationsandshippinginthe town area, suchasgunpowder manufacturing.Asthearea became activities thatrequired ofthedown isolatedsitesontheoutskirts - In thecity’s earlydays,thePier 70area becamethelocationof grazing. through themid-1800’s, muchofthis area wasusedfor cattle Under Spanish andsubsequentMexican duringthelate1700’s rule overlooking shallow mud-flatsthatextendedintothecentral Bay. line siteconditionwasoriginallysteepbluffsofserpentine rock, Quentin Point andlaterrenamed Potrero Point. Its naturalshore- The sitecurrently known as Pier 70wasfirst recognized as San Point Potrero of Industrialization CHAPTER 1: S 1: CHAPTER ite H istor y y and reached across Mission Bay. Thebridgemadethearea more Southern withmore waterfront urbanized areas tothenorth, as present-day Third Street, oftheCentraland linkedportions Approximate original shoreline of Potrero Point Potrero of shoreline original Approximate
Third St P ier 70 N A L P R E T S A M D E R R E F E R P 0 7 R E I P P ier 80 9 |
1 SITE HISTORY 1 SITE HISTORY
accessible to the rest of the city. Mission Bay became the home of rail yards that connected San Francisco to intercontinental rail transportation that was vital to the city’s once bustling break bulk cargo port. By 1870, as the distinctive topographic features were graded and used to fill the Bay, the area was developed for both industrial and residential uses. With the fill, Pier 70 eventually grew to about 67 acres. The Irish Hill and Dogpatch residential neighborhoods emerged during this period as workers moved to the area for the growing commercial sectors of manufacturing and industry.
By the 1880’s, Union Iron Works had established the first West Irish Hill with Union Iron Works in the background, 1890’s Coast steel shipyard and launched the Charleston, one of the first steel hull ships constructed in the country. Union Iron Works and its successor company, Bethlehem Steel Corporation, stood at the center of the American shipbuilding industry from the Spanish American War through World War II, producing and repairing warships that were essential to the military success of the United States. Union Iron Works and Bethlehem Steel The historic Union Iron Works/Bethlehem Steel facility at Pier 70 is the oldest American civilian shipyard with a continuous record of ship production and repair, dating from the late 19th century through the present day. The Union Iron Works shipyard operated at Pier 70 with a machine shop (Building 113), plate shop, pattern shop, foundry (Building 114), smith shops, and slipways. At the turn of the 19th century, a new era of building began with Bethlehem Steel’s purchase of the Union Iron Works shipyard. This spawned a second phase of building and facility development that Potrero Point, ca. 1870
1 0 | P ier 7 0 P referred M aster P lan repair of2,500ships.During World War II,thePier 70shipyard The yard’s majorcontributiontothe World wasthe War IIeffort ized, massproduction thattypified World War IIshipproduction. riveting towelding, whichhelpedtheshipyard adapttostandard- boiler house(Building 103)andayard-wide transformationfrom States Maritime Commissionin1936.Upgrades included anew began whenBethlehem Steel secured contractswiththeUnited A seconderaofmodernizationanddevelopment attheshipyard Historic District. 104 and113/114along20thStreet formthecore ofthePier 70 20th andIllinois Streets. Thesetwobuildingsalongwith Buildings 102), creating agrandformalentrancetotheyard atthecornerof Administration Building (Building 101)andPowerhouse (Building Meyer andCharlesPeter Weeks, Main todesignthenew Office/ Steel retained tworenowned San Francisco architects, Frederick H. War Inaval effort. During the World War Iperiod, Bethlehem lehem Steel produced were asubstantialcontributiontothe World against torpedoattacksfrom submarines.The66destroyers Beth- Navy prioritized submarinedestroyers fleetdefense astheprimary methods oftheperiodandproduced three destroyers amonth.The Union Iron Works destroyer prefabrication plantusedthethennew (Building foundries(Buildings 109)andnew 115and116).The including expansionoftheyard’s plateshop infrastructure, anew The shipyard expandedandmodernized duringthe1910’s, capability. sought todemonstrategrowingpower Americanmilitary andnaval a circumnavigation oftheglobein1909,asPresident Roosevelt popular nicknamefortheU.S.Navy battlefleetthatcompleted allowed theyard tohelpbuildsomeoftheGreat White Fleet, the Bethlehem workers building a cargo ship, 1950’s ship, cargo a building workers Bethlehem 1950’s Engineers, Bethlehem 1950’s propeller, for bronze pouring workers Bethlehem 25,000. Master Plan, andBethlehem Steel’s Bay Area work force peakedat asillustratedinExhibit 3,1945Pierpiers andwharves 70Shipyard reached itsmaximumsize andbuild-outwithnumerous slips, N A L P R E T S A M D E R R E F E R P 0 7 R E I P 1 1 |
1 SITE HISTORY 1 SITE HISTORY
Exhibit 3: 1945 Pier 70 Shipyard Master Plan This exhibit illustrates the full build out of the Pier 70 shipyard as documented in the Pier 70 Shipyard 1945 Master Plan. The orange buildings currently exist; the green buildings no longer exist.
1 2 | P ier 7 0 P referred M aster P lan
Civil War Pier 70Through Time 1860 K NEASS T
WIGG R
P 1870 M significant portion ofthesitetooperate aship significant portion repair yard. Todd Shipyard andleased a thenpurchased muchofthemachinery andsoldtheshipyardwent bankrupt tothePort ofSan Francisco. ships atPier 70intothe1970’s. In theearly1980’s, Bethlehem Bethlehem Steel continuedtobuildgovernment andcommercial trained forskilledwork. againstprejudicestruggle toestablishtheirrightsbehired and oftheshipyard during story World War II,astheywagedabrave industries occurred. Women andAfrican-Americansentered the andde-skillinginshipbuildingotherdefense construction during World War II,whentheyard’s program ofcomplexnaval Strong attheshipyard traditionsofcraftsmanshipsurvived even production speed-ups. such asscientificmanagementandwartime technology andshipbuildingmethods;industrialreforms job securityandstableunionorganizations;changesinproduction to organized labor;avolatile maritimeeconomythatundermined challenges. Thesechallengesincluded:thehostilityofemployers maintain theirlivelihoods andcrafttraditionsinspiteofmany ofthegenerationsshipyard to workersstory whostruggled aspectofthislonganddistinguishedrecordAn important isthe OLLING ACIFIC B ILLS B OAT ROS 1878-1970 W
./ First USIron ‘Arago’ Ship 1880 ORKS Constructed Pier 70 at
W 1890 U I RON NION ORKS Earthquake &Fire R
ISDON L 1900 OCOMOTIVE 1906 SF I RON
& 1910 Union Iron Works SteelBethlehem Purchases
Ship Building/ Repair Building/ WWI Ship 1920 B
ETHLEHEM 1930 S TEEL
Ship Building/ Repair Building/ WWII Ship 1940 the physicalrealm ofthecity’s tobecomeapart culturalheritage. many paintings,films,andphotographythathave extendedbeyond and iconichistoricbuildingsfeatures have beenthesubjectof theindustry. tosupport sary Pier 70’s distinctive historicsetting cranes neces- andgantry with theslipways, piers,floatingdrydocks, layout oftheshipyard wasdefined by the relationship ofthe Bay shipbuilding andshiprepair andhow theyevolved over time.The front structures atPier 70uniquelyconvey theprocesses ofsteel historicbuildings,circulation networks, andwater- The surviving acres ofland,plusthepiersandwharves. described more fullyinChapter2,operatesonapproximately 17 yard, theneedforspacehasreduced. Today theshipyard, as site. Over theyears, asthefacilityhasevolved intoashiprepair At itspeakin1945,shipyard activitiesoccupiedtheentire 67-acre ship repair operator. Marine wasacquired by BAESystems, parent ofthePort’s current Southwest Marine andSan Francisco Drydock.In 2002,Southwest After Todd Shipyard closedin1987,thefacilitywasoperatedby
BART TransbayTube
Fabrication Pier 70 at
1950 1960 Ship Repair Ship Vietnam War
Property to ofSF Port Property
Bethlehem SteelBethlehem Sells 1970
P N A L P R E T S A M D E R R E F E R P 0 7 R E I P 1980 S ORT HIPYARD T ODD Waterfront Land Use Plan
OF
SF 1990 S OUTHWEST M Adopted
ARINE 2000 BAE S BAE
3 1 | 2010 Pier 70Preferred YSTEMS Master Plan Released
1 SITE HISTORY 1 SITE HISTORY
Workers leaving the shipyard, World War II, circa 1943
1 4 | P ier 7 0 P referred M aster P lan rehabilitation of this very special building. appropriate an find reuse,and secure commitments to for the stabilization and entities other and assembly, public cultural, institutions, potential to outreach to developmentpotentialpartners,as community,well as the and partners regulatory its Supervisors, of Board Mayor, the the with closely work will Port The Plan. the of concernprimary a isstructurelandmark this of preservation, restoration, and appropriate adaptive reuse orinstitutional use, which ispromoted inthe Plan. The space,aninviting venue formajor cultural, market hall, shops. boilerThe scale and volume of this complex is cathedral-likea and blacksmith the contained portion eastern the while shop,machine the housedoriginally changed the between 1880s and Shop WWII. times The western portion several of Building 113 Machine plans floor and Works functions Iron Union The 175 feet wide, and stands about 62 feet tall. about contains90,000 square building feet of floor space, The 492 feet long by building. connector concrete 1885 and 1886) that were joined in in 1914 (builtby structures a brick unreinforcedreinforced two of consists building long two-block The 70. Pier of soul civic the becomecan itspace, ofvolume grandand history rich its Withsite. the vulnerable historicresourcesmoston east (Building of Illinois Street, and just Shop Streetis one 20th of the of most side valuable Machine south and the on stands 113/114) Works Iron Union The Union Iron Works Machine Shop Machine Works Iron Union West Façade of Building 113, 2004 (Photo: Ralph Wilson) Ralph (Photo: 2004 113, Building of Façade West 2005 113/114, Building N A L P R E T S A M D E R R E F E R P 0 7 R E I P 5 1 |
1 SITE HISTORY 1 SITE HISTORY
Building 113 - Union Iron Works Machine Shop Building 104 - Union Iron Works Administration Building
Building 101 - Bethlehem Steel Administration Building Building 21 - Risdon Iron Works Building
1 6 | P ier 7 0 P referred M aster P lan nity arts. (see page19formorenity arts. detailsontheNoonan Building). years, andmanyhave beeninvolved inthepromotion ofcommu- inSanhave participated Francisco’s annualfallopenstudiosfor25 has beeninthebuildingfor31years. The Noonan Building artists approximately includingawomen’s 30artists, paintinggroup that wood frame structure hasprovidedfoot four-story studiospace for II, locatedinthesoutheastcornerofPier 70.This33,000square- Navy Office Building (Building 11), whichdates from World War ture known astheNoonan Building. Thisstructure isthe former community,for theartist - whichhasconcentratedinamodeststruc Over thelast30years, Pierattractive location 70hasbecomeavery activities,includingstudios. PDR usesincludemanytypesofartist category. “Production Distribution andRepair” (PDR)todefinethislanduse operations. The San Francisco usestheterm Planning Department maritime-related, were compatiblewithcontinuingshiprepair commercial andlightindustrialusesthat,whilenotnecessarily southeast San Francisco. Thus, Pier 70hasseenamélangeofheavy stayed inSan Francisco relocated totheCentral Waterfront and Mission Bay areas were pricedout.Many ofthosebusinessesthat industrial usesthathadbeenlocatedintheSouth ofMarket and In thelargercitycontextfrom the1980’s through thepresent, facilities forabroad rangeofbusinessesandindustrialoperations. utilitarian designofPier 70’s structures allowed thePort toleasethe diminished, Pier 70entered aperiodofgeneralindustrialuse.The As landneedsfortheshipbuildingandshiprepair industry Changes Use Land industrial architecture anddesign. provides aphysicalrecord expressing continuity withpasttrends in intact historicdistrictcontainingarichcollectionof resources, and works ofmasterarchitects.includes important Pier 70isalargely also significantforarchitectural designandengineeringbecause it as well asfortheproductionvessels. ofsignificantwartime It is labor relations, andgovernment relationships, andprivate industry tion withpioneeringtechnologicaldevelopments inshipbuilding, at theendof World War II.Pier 70issignificantforitsassocia- oftheUnionconstruction Iron Works Machine Shop andclosing fortheperiod1884to1945,beginningwithinitial industry Historic District foritsnationalsignificanceinthearea ofmaritime The Pier 70siteiseligibleforlistinginthe National Register asa District Historic 70 Pier implementation strategiesaspresented inthisPlan infrastructure thePort’s isurgentlyneededtopreserve visionand condition. Major capitalinvestment inthehistoricbuildingsand lives, andsomeare nolongerleasableduetotheirdeteriorated Many limitedremaining ofthehistoricbuildingshave useful very interim revenue stream. impound facility. Theseactivitieshave provided the withan Port storage, metalrecycling operations,andtheCity’s towed car businesses, includingwarehousing, contractorandconstruction land andbuildingspaceforavariety oflightindustrialandother Outside thearea usedforshiprepair, thePort alsoleasesPier 70 N A L P R E T S A M D E R R E F E R P 0 7 R E I P 7 1 |
1 SITE HISTORY 1 SITE HISTORY
Within Pier 70, 44 historic resources have been identified as eligible • Historic preservation can provide the Port and its development for listing in the National Register. About half of these structures partners greater flexibility under local, state, and federal regula- have been condemned for structural or environmental reasons, and tions, including public trust consistency findings, building code all are rapidly deteriorating, which threatens their historic integrity. requirements, and streamlined environmental review. The most valuable and historically significant structures along 20th Street are closed for public safety, including the Bethlehem Admin- • Historic preservation continues to be a significant component of istration Building (Building 101), the Power House (Building the public consensus and community support for redevelopment 102), the unreinforced masonry Union Iron Works Administrative and future build-out of the property. Office (Building 104), and the Union Iron Works Machine Shop (Building 113/114) ). The extensive water damage and seismic vulnerability of these structures reinforce the need to act quickly.
Historic preservation offers a variety of advantages and benefits to assist Plan implementation. Adaptive reuse of historic resources is critical to “place-making” at Pier 70, providing the foundation for an authentic, interesting, and attractive development that also preserves historic neighborhood character in the Central Waterfront. Furthermore, the creation of a National Register Historic District and compliance with the Secretary of the Interior’s Standards for the Treatment of Historic Properties (“Secretary Standards”) would provide direct and indirect benefits to support the Plan, including:
• Federal historic rehabilitation tax credits and other preservation- based financial programs that can significantly reduce Pier 70 historic rehabilitation costs as a result of National Register listing.
Catalog cover from Union Iron Works, circa 1900
1 8 | P ier 7 0 P referred M aster P lan to lease building space primarily to artists. Many Noonan Noonan Many artists. to primarily space building lease to and continued operations and industrial maritime surrounding the with use studio The artist of compatibility the terminated. recognized Port was Noonan Fred with lease the 1993, In artists. more attracting subsequently uses, industrial other and repair ship ongoing and company import automobile the with including compatible was uses, use artist of out, turned it variety As a artists. for studios for tenants sub to space Noonan rented Mr. building, entire the require not did and decline to began business the 1980’s In late the operation. import automobile an support to Company Noonan J. Fred 11The to the Building leased then Port 1982, to until premises. the vacated Bethlehem when activities facility repair ship the of leased support continued for Steel Bethlehem Port was The site 11 to transferred Building the Port of San Francisco. the 1967, In west. centered Navy to the 12 complex that Building the around the operations for support to offices and cafeteria room, tool a as used originally was structure wood rectangular three-story This effort. II WarWorld during 70 Pier at repair ship and shipbuilding support and aid the to by government 1941 federal in built was Building Noonan the 11, Building Building 11 “Noonan Building” “Noonan 11 Building Painting by Suzy Barnnard Barnnard Suzy by Painting community to support the continued presence of artists and and 70. Pier at arts the artists of presence continued the support to community artist the and partners development future with work will Port The development. infill new or use, use, industrial light in remain studio may that artist facilities and structures, historic arts rehabilitated in of whether continuation the Pier includes for 70 envisioned program use land for the However, use different site. a the requires implementation 70 Pier future if demolished be to need may 11 Building resources. designated The work of many Noonan Building artists are represented represented are artists Building Noonan many of work The art. their in Today, space. for studio 11 influence to 30 is about Building artists leased important or inspiration of source a as setting cite Pier 70’s artists industrial Building maritime unique
“Very Significant” or “Significant” “Significant” or Significant” “Very to understanding Pier 70’s historic historic than degree lower 70’s a at but significance contributes Pier understanding “Context” that the to a building identifies as resource Plan Building 70 Noonan Pier The institutions. cultural and educational in art encourage and local of promote that variety organizations community a the in active addition, are In artists States. United the throughout and museums) art Jose San Francisco and (San Oakland Art, Modern of Museum locally museums in N A L P R E T S A M D E R R E F E R P 0 7 R E I P 9 1 |
1 SITE HISTORY 2 SHIP REPAIR, A CONTINUING LEGACY
Drydock repair of the Star Princess, 2009
2 0 | P ier 7 0 P referred M aster P lan tions to integrate strategic needs of the shipyard with this Plan, as BAE prepared a long-term plan for the Pier 70 ship repair opera consistent with the Port’s mission. In coordination with the Port, The Pier 70 Plan is premised on continuing ship repair at the site ship repair business opportunities. ships with the maritime community have led to new and innovative resources of government and private industry. The Port’s relation with BAE, the Port enjoys a business partnership that optimizes the area. BAE’s current lease extends to December 16, 2017. Together to approximately 17 acres of land plus the wharves, piers, and water land, with a 2-acre reversion area that reduces the leasehold in 2012 leases them to BAE, an operator. BAE currently leases 19 acres of (the drydocks and cranes) required for ship repair operations and Pier 70 is somewhat unique – the Port owns the primary equipment to support and build maritime businesses. As a ship repair facility, term viability of the ship repair industry, as part of its core mission The Port of San Francisco continues its commitment to the long- changes for 150 years. technological innovations, and volatile global maritime market and downs of economic boom and bust, periods of war and of peace, tion operations and ship repair, this industry has survived the ups tions. From shipbuilding, to steel manufacturing, to mass produc repair industry has continually reinvented and retooled its opera the founding of the City. Over time, the shipbuilding and ship Francisco waterfront since the Port was established, concurrent with Shipbuilding and ship repair have been an integral part of the San CHAPTER 2: SHIP REPAIR, A CONTINUING LEGAC CONTINUING A REPAIR, SHIP 2: CHAPTER - - - - of these activities are supported by a continuous flow of material cooling, and fluid systems and ship’s cargo or living spaces. All piping, and ventilation systems, as well as insulation of heating, outfitting may include repairs or new installation of electrical, be disassembled, repaired, and painted in the shops on site. Other repairs, though not the majority, require parts and equipment to painting, occur on or in the vessel while it is drydocked. Some vast majority of repair activities, such as sandblasting, welding, and structural steel modifications, and engine machinery repair. The activity in the drydocks includes underside repairs of ship hulls, full hull of the vessel, enabling repair. The dominant ship repair receive vessels, then raised by pumping the water out to expose the Drydocks are floating facilities that are lowered into the water to place in shops and lay-down areas on land within BAE’s leasehold. by building and construction-related crafts that are housed or take fleets. Thedrydocks are the focus of ship repair work, supported both the northbound and southbound migratory cruise and tanker geographic location, which make Pier 70 an effective location for repair business are its large, floating drydocks and its central-coast The Port of San Francisco’s most marketable features in the ship Ship Operations Repair heritage that is the foundation of Pier 70 Historic District. ness that created Pier 70, the Port preserves the authentic maritime 70’s historic preservation strategy. By maintaining the original busi Continuing this historic industry is itself recognized as part of Pier provides the historical context and texture that defines Pier 70. illustrated in Exhibit 4, Y BAE Ship Repair Facility Plan N A L P R E T S A M D E R R E F E R P 0 7 R E I P . Ship repair 1 2 | -
2 SHIP REPAIR, A CONTINUING LEGACY 2 SHIP REPAIR, A CONTINUING LEGACY
SHIP REPAIR STRUCTURES WITHIN SHIPYARD AREA TO REVERT BACK TO PORT SECURITY / SAFETY BOUNDARY REQUIRED FOR MILITARY VESSELS* BUILDINGS PROPOSED FOR REMOVAL FORMER PIER, WHARF, OR SLIPWAY PIER 70 AREA BOUNDARY *SECURITY BOUNDARY IS NOT STATIC - MOVES WITH VESSEL 300’ Exhibit 4: BAE Ship Repair Facility Plan This exhibit illustrates the configuration of the Eureka Dry 300’ ier 3 Dry ier 4 Dock ship repair leasehold in P P Dock #2 Y 4 2010 as identified in the A
SLIPW BAE Facility Plan, which 50 is integrated into the Pier 70 Preferred Master Plan.
Road Realignment Main Access Gate
Triangle Lot el c 3B a r P
N 0 80 160 240’
2 2 | P ier 7 0 P referred M aster P lan Francisco’s “City Build” program, which provides skilled training during their off hours. BAE is working with local unions and San people live on board during repairs and join other tourists in the city people. Often, cruise vessel crews ranging between 1,500 – 2,000 activity, the yard provides jobs for an additional 1,000 – 1,500 craftsmen in ten trades year-round. During peak periods of repair sated workforce. BAE currently employs an average of 250 skilled Ship repair operations employ a highly skilled and well-compen activity. may be hauled out of the shipyard during the initial phase of repair cruise ship repair/retrofit projects, as many as 50 20-yard bins a day are removed from ships and stored for truck pick-up. For large being used or installed. Lastly, large quantities of waste and debris Most of the new materials are typically shipped a few days prior to for ships where life boats are being maintained, repaired, and tested. plate, pipe and sheet metal. Small boat storage may also be provided large timbers for construction of drydock blocks, unprepared steel abrasive (as much as 1,000 tons in a day). Other materials include (as many as 20 pallets at a time for a large job) and sandblasting materials received in support of shipyard operations include paint otherwise they are staged in lay-down areas in the yard. Typical tion from the elements is required, materials will be warehoused; Job-specific materials are ordered and delivered to the site. If protec particularly common in cruise ship repairs. ship, cargo, or living cabins. These types of internal upgrades are the “down time” to conduct internal upgrades or modifications to mechanical or hull repair or maintenance, ship owners will utilize moving on and off the site. Typically, while ships are in drydock for - - Massive scale ofshiprepair operations atPier 70,2005 N A L P R E T S A M D E R R E F E R P 0 7 R E I P 3 2 |
2 SHIP REPAIR, A CONTINUING LEGACY 2 SHIP REPAIR, A CONTINUING LEGACY
and apprentice programs for people from under-employed neighbor- The San Francisco ship repair market niche includes commercial hoods in the city, to recruit and retain a skilled workforce. container barges, U.S. Coast Guard, U.S. Army and ships controlled by the Maritime Administration and the Military Sealift Command. Over the past 15 years, the Pier 70 ship repair facility has made a In addition, Pier 70 services the relatively new business line of cruise successful transition from being highly dependent on defense work ship overhauls. The majority of vessels calling on the shipyard to being highly competitive in the commercial ship repair market. have few docking options, given the cost of moving the vessel out When the Bay Area military base closures occurred in the early of their market base. Competing options include Victoria (British 1990’s, this facility lost nearly 80 percent of its business. Revenue Columbia) and Portland (Oregon), which have drydocking capacity at the site dropped to $21.9 million in 2001, a dramatic drop from similar to Pier 70’s. BAE believes an ideal customer base would be the 1996 high of $40.8 million. Today ship repair revenues are 25% cruise ships, 30% merchant ships, 30% government and mili- approximately $33.8 million, with incremental growth expected. tary vessels, and 15% barge and bay traffic. This mix ensures year- Since 1995, the core business of the ship repair operation at Pier 70 round work by diversifying clientele and ship repair services. has shifted to a mix of tanker, cruise, tug and barge, and emergency cargo ship repairs. A steady resurgence of defense and government The Port’s Drydock #2 is the largest repair drydock on the West vessel repair work has occurred over the past four years. Defense Coast of the Americas and is able to serve “post Panamax” vessels work in 2006 accounted for nearly 57% of gross revenues, up from a that are too large to transit through the Panama Canal. Through low of 35% in 1996. a unique partnership with Princess Cruises and BAE, Drydock #2 was upgraded in 2008 to enable BAE to open a new business line, repairing the newest generation of very large cruise vessels. This improvement also opens new business opportunities for ultra-large tanker vessels that cannot be serviced elsewhere along the West Coast of the Americas. This type of innovation and retooling of the facili- ties and operations within the shipyard has been essential for the survival of the industry, preserving jobs and economic benefits for the city and region. The Port maintains a strong partnership with its operator to ensure ship repair continues as an important part of the Port’s maritime program.
BAE is responsible for operating and maintaining the facilities and pays the Port rent based on its gross revenues. In addition to its Ship repair activities today.
2 4 | P ier 7 0 P referred M aster P lan as contributing resources to the Pier 70 Historic District, they have Although all three, Buildings 38, 121, and 19, have been identified due to their advanced deterioration and to optimize site utilization. direct truck access. BAE proposes demolition of three buildings 19th Street access route will provide shipyard operations with expand open site area to support the business. In addition, a new yard, increase security and safety by limiting visitor access, and primary buildings and relocate office uses to the periphery of the Repair Facility Plan Under BAE’s long-term plan, as illustrated in Exhibit 4, reviewed for consistency with the Secretary Standards. change. Where alterations are proposed to historic resources, they are BAE’s plan focuses on using the existing facilities to accommodate ments to meet ship repair business needs. To the maximum extent, its approach, equipment, yard, facilities, and operational require the drydocks. The industry has continuously refined and enhanced constructed in the late 1800’s and early 1900’s, with the exception of drydocks. Nearly all of the facilities in the shipyard today were approximately 19 acres, including 17 structures and two floating technological changes and deterioration of facilities. BAE now leases through a series of lease amendments due to changes in business, Over time, Pier 70 land area leased for ship repair has been reduced Integrating ShipwiththePlan Repair million in indirect regional economic activity. rial purchases, $3.2 million in local taxes, and approximately $35 benefits to San Francisco in 2010 include $18.2 million in mate importance as a major employer of blue collar jobs, other shipyard , BAE will consolidate operations into a few BAE Ship - - as presented in Chapter 10. included in the financial feasibility analysis conducted for the Plan, industry’s resources to preserve them, but these costs have been tion in this Plan. Their rehabilitation cost exceeds the ship repair of deterioration. Buildings 111 and 6 are not proposed for demoli space to support shipyard operations, they are in advanced states Pier 70, next to the shipyard. While both could provide functional pile-supported metal warehouse, is located at the northeastern end of after the 1989 Loma Prieta earthquake. Building 6, a 500 foot long lease area, an unreinforced masonry structure that was red-tagged Building 111 and Building 6. Building 111 is within the shipyard hold have been identified as Contributing Resources in this Plan: Two historic resources within and adjacent to the BAE lease maritime function. act of historic preservation, as well as support for this important Port the physical facilities. Retaining this historic maritime industry is an repair industry will receive first consideration over the retention of with the existing facilities (even if altered), continuation of the ship when the needs of ship repair operations cannot be accommodated repair industry to stay alive over the last 150 years. In this context, the types of tradeoffs and adjustments that have allowed the ship impact, the scope of these changes is not unprecedented; it reflects ment of the Pier 70 Plan. While recognizing the historic resource The Port took BAE’s proposed changes into account in the develop needs. reached the end of their useful lives to support ship repair industry N A L P R E T S A M D E R R E F E R P 0 7 R E I P - 5 2 | - -
2 SHIP REPAIR, A CONTINUING LEGACY 3 CONTEXT FOR CHANGE
Pier 70 (lower right) with Downton San Francisco in the Background, 2007
2 6 | P ier 7 0 P referred M aster P lan infill development, approved for 6,000 units of new housing, 4.4 many years of community planning. Mission Bay is a significant Southern Pacific rail properties, just north of Pier 70, following ment of the 300-acre Mission Bay project was beginning on former (since acquiring it in 1989) started in 2000. At that time, develop Waterfront Land Use Plan. The Port’s first efforts to improve Pier 70 of the ship repair industry are long-standing policies in the Port’s Historic rehabilitation of Pier 70’s historic resources and protection Context Planning practices. development reflecting the best of urbanism and sustainable land use architecture, new shoreline open space, and transit-oriented infill water-dependent maritime industry, the scale and mix of historic other places on the West Coast could integrate Pier 70’s continuing Pier 70 represents a new type of waterfront opportunity. Few historic resources, and visual and aesthetic qualities. opportunities in a city that values its traditional neighborhoods, type of public/private partnerships that have created new growth and other areas of the Embarcadero waterfront are examples of the fabric of the city and reconnected it to the Bay. Today, South Beach and pedestrian-oriented infill development have knit together the transportation planning. Along the waterfront, sustainable transit established its position at the forefront of innovative land use and along San Francisco’s waterfront. Over this period, the City has comes at an opportune time, following 30 years of positive change The prospect of adaptive reuse and infill development of Pier 70 CHAPTER 3: CONTEXT CONTEXT 3: CHAPTER F OR CHANGE OR - Pier 70. That organization abandoned the proposal due to other proposals, including the relocation of The Exploratorium to ments rendered its project infeasible. In 2002, the Port considered the cost of clean-up, historic rehabilitation, and open space require determined that the lack of a comprehensive Pier 70 site-wide plan, withdrew from the negotiations. After significant study, AMB was forced to terminate negotiations when its major financial partner Buildings 101, 102, and 104. Unfortunately, the Arts Consortium distribution complex that included historic rehabilitation of and from AMB Development Corporation (AMB) for a warehouse (Arts Consortium) for a major center for visual and performing arts, accepted proposals from the San Francisco Arts Future Consortium two distinct areas within 14 acres of Pier 70. The Commission 2001 the Port Commission issued two Requests for Proposals for between Pier 70 and San Francisco’s growing downtown hub, in With the hope that these developments signaled a connection Giants. opened its doors in 2000 as the new home of the San Francisco the junction of the Embarcadero and King Street, AT&T Ballpark the Embarcadero in the South Beach neighborhood. Standing at a high-density mixed-use transit corridor extending south from the site of the elevated I-280 Freeway, has been transformed into acres of public open spaces. At its northern edge, King Street, once turing space, a 43-acre medical research campus for UCSF, and 41 million square feet of office, laboratory, multimedia and manufac N A L P R E T S A M D E R R E F E R P 0 7 R E I P - 7 2 | -
3 CONTEXT FOR CHANGE 3 CONTEXT FOR CHANGE
uncertainty about evolving land use policies, highlighting the need of additional land on the south end of Mission Bay for a new 1.6 for a comprehensive approach to feasibility issues, including a master million square foot hospital with the initial phase expected to open plan. in 2013. Five buildings have been constructed on the UCSF campus, including three research buildings, a campus community center, and In the summer of 2005, the Port and Mayor Gavin Newsom a university housing development. partnered with San Francisco Planning and Urban Research (SPUR) and EDAW, a local land use planning firm, to prepare a “Concept Build-out of the Mission Bay area is underway. As of September Vision Plan” for Pier 70. The Concept Vision Plan was developed 2009, 3,126 housing units, including 674 affordable units, are in through many community forums and workshops and reflected place with an additional 319 units under construction. Over 11 acres significant community interest in the future of the area. It set forth of new parks and open space have been completed. More than 1.5 principles of historic preservation, sustainability, and integration with million of commercial office and biotechnology lab space has been the surrounding neighborhoods, and called for continued ship repair, built, with another 187,000 square feet under construction. As of a marina, office space, a public market, arts, and a series of open 2010, about 2.7 million square feet of entitled office/research and spaces. Many of the ideas and possibilities revealed in that Concept development space remains for build-out in Mission Bay. Vision Plan received enthusiastic responses from government and These rapid changes brought new development pressures to Potrero community stakeholders alike and have influenced the development Hill, Dogpatch, and industrial areas within the Central Waterfront of this Plan. between Mission Bay and Islais Creek, and public demand for the The experiences, lessons, and inspirations from each of these public City to revisit its land use and zoning controls. The San Francisco planning efforts led to the development of goals for Pier 70 by the Planning Department responded by undertaking a detailed planning Port’s Central Waterfront Advisory Group (CWAG) in 2006. Having study for the Central Waterfront, which ultimately was incorporated participated in each of the prior efforts, the CWAG understood both into the Eastern Neighborhoods Plan and approved by the Board the public’s desires for improvements at Pier 70 and the requirements of Supervisors in 2008. The Eastern Neighborhoods Plan updated to realize them. The CWAG goals became the basis for the public policies and rezoned several neighborhoods and districts in southeast planning process that led to this Plan for Pier 70. San Francisco, balancing protections for industrial activities while also identifying areas for new infill transit-oriented development, In the meantime, great change was underway in the rest of the public open space, and other community benefits. The Planning Central Waterfront adjacent to Pier 70, in large part responding to Department process coordinated land use changes with major public accelerated development in Mission Bay. UCSF broke ground on transit improvements then underway, including concepts emerging the Mission Bay campus in 1999, which triggered robust develop- for the Pier 70 Plan. The Municipal Transportation Agency (SFMTA ment throughout Mission Bay. In 2001, UCSF acquired 14.5 acres
2 8 | P ier 7 0 P referred M aster P lan companies to stay in San Francisco as they grow. set of knowledge-based and high-tech start-ups, and encourage these priorities for the knowledge sector: continue to grow a more diverse university education. The City’s Economic Strategy establishes two industries, which tend to create jobs mainly for workers with a San Francisco has come to specialize in smaller firms in emerging publishing, film, and television. Within the knowledge sector, and professional services, digital media, information technologies, biotech, environmental products and technologies, fashion, financial Pier 70 can accommodate knowledge sector industries, including other sources of recreation and entertainment. they provide, whether in hospitality, arts and culture, museums, or create economic value based on the quality of the visitor experiences visitor industry in the broadest sense and includes companies that develop for their customers. The experience sector encompasses the economic value because of the knowledge and know-how they sector. The knowledge sector is generated by companies that create Francisco economy are the knowledge sector and the experience of San Francisco’s residents. The two key sectors that drive the San the potential to create jobs that align with the skills and education prepared its first Economic Strategy, identifying industries that have Economic Strategy must also be considered. In 2007, San Francisco To understand the economic context for Pier 70, the City’s overall Context Economic pressing climate change and environmental issues. in 2007, supporting sustainable infill development that responds to the Embarcadero waterfront south to the Bayview neighborhood MUNI) completed the Third Street light rail line(T-Line) from ered for the Pier 70 area follows. term. A brief summary evaluating potential land uses to be consid provides an overall context for Pier 70’s development over the long the recent significant shifts in the real estate and capital markets, it ment. Although the market analysis was undertaken in 2007 before in the San Francisco and regional economy as a site for new develop Economic Planning Systems, Inc. to understand where Pier 70 fits The Plan was informed by a real estate market analysis prepared by Context Market Estate Real than one future business cycle. to recognize, as development efforts at Pier 70 will likely span more dramatic downturn that continues today. These cycles are important which real estate values rose at unprecedented rates followed by a of 2001 to 2003; and (3) the current cycle starting in 2004, during 1990’s; (2) the dot-com boom of 1995 to 2000 followed by the bust speculation-based growth followed by the recession of the early ment may be categorized by three business cycles: (1) the 1980’s cycles. Over the past 25 years, San Francisco real estate develop and opportunities, real estate development is driven by economic This Plan acknowledges that, despite Pier 70’s unique characteristics shoreline of San Francisco. found in Fort Mason and the Marina Green on the northern 70 can host cultural and recreational uses similar to those currently help to activate new public open space areas on the waterfront. Pier These uses fit well with adaptive reuse of historic buildings and can ment uses as well as the potential to expand experience sector uses. both a unique opportunity for new office and research and develop Within the context of the City’s Economic Strategy, Pier 70 offers N A L P R E T S A M D E R R E F E R P 0 7 R E I P - 9 2 | - - -
3 CONTEXT FOR CHANGE 3 CONTEXT FOR CHANGE
Biotechnology food preparation, may locate close to the hospital site. The market Building on the Mission Bay cluster, San Francisco could increase its assessment estimates demand for medical office and support space in share of bioscience jobs from about 3%, to 7-10% of new Bay Area the area will range from 61,000 square feet for the first phase of the bioscience jobs. Anticipated bioscience growth in San Francisco Mission Bay’s hospital development to 137,000 square feet at full will require between 2.5 million and 4 million square feet of space hospital build-out. through 2030. Over the next 5 to 10 years, Mission Bay is likely General Office and Corporate Campus to capture the majority of demand for bioscience space in San Pier 70’s location and site amenities will attract interest from general Francisco. Pier 70 is well-positioned to capture a significant portion office tenants. Office spaces with waterfront views and amenities of the balance of demand as sites in Mission Bay are developed. are in high demand in the city. Annual office absorption in 2007 Medical Office/Support in San Francisco for the subarea around Pier 70 was about 40,000 A significant amount of ancillary development is typically associated square feet. Assuming new or rehabilitated historic buildings at Pier with hospital locations. Many doctors staffing a hospital require 70 would capture a large portion of future absorption over a 10-year off-hospital medical office space to house private practices. Also, period, 300,000 to 500,000 square feet of office may be expected services for which a hospital typically contracts, such as laundry and for development at Pier 70. Pier 70’s size and unique character make it an attractive location for a potential campus-style development suitable for a single user or multi-tenanted buildings.
Pier 70’s historic buildings are well positioned to attract emerging industries such as “cleantech” and digital media. Several historic buildings at Pier 70 could accommodate office tenants, including Buildings 101, 104, 12, and 14. A high proportion of these spaces could be constructed with views to command premium rent. Retail/Service Commercial Though site access and visibility are not ideal for a major retail center, there is demand for limited neighborhood or worker-serving retail uses. Suitable tenant types would include small-scale eateries, grocery, and sundry stores. A limited amount of neighborhood- serving retailers such as dry cleaners, salons, and other personal UCSF Biotech Campus service businesses may be supportable close to Illinois Street,
3 0 | P ier 7 0 P referred M aster P lan some buildings may be too costly to convert to non-PDR uses, remain or locate at Pier 70, given the location of the drydock. Also, largely for PDR uses, it is likely that PDR uses would also seek to customers. While the area between Pier 70 and Pier 80 is zoned certain businesses that need to be located relatively close to their analyses indicate that PDR demand in San Francisco is driven by maintain Pier 70’s industrial character. Planning Department would complement the original design of many buildings and under the designation PDR. Locating new PDR uses at Pier 70 Land uses generally termed “industrial” are zoned in San Francisco (PDR) Repair Distribution, Production, Buildings 6, 102, and 12 may be appropriate buildings for such uses. The Union Iron Works Machine Shop (Buildings 113/114) and San Francisco institution desiring larger facilities or a new location. Demand for these types of uses is likely to come from an existing Pier 70 industrial structures while providing a valued public amenity. performance art, are uses that could preserve the vast interiors of the Museum space or other types of exhibition space, such as film or Space Museum or Exhibition complex is created. follow as buildings are rehabilitated, parks are built, and a new jobs new populations will come to Pier 70. The demand for retail will strictly office users. Similarly, as the parks and open spaces develop, visitors to Pier 70 will bring with it more diners and shoppers than the final mix of users. A major cultural user that draws students or retail, restaurants, and commercial space at Pier 70 will depend on particularly if residential is built. The amount of market support for the shipyard’s needs to operate safely and efficiently. would likely be needed. Marina development would need to respect source, such the California Department of Boating and Waterways, demand for marina slips in the area is strong, but an outside funding levels and the waiting list for slip leases at the South Beach marina, open spaces by attracting recreational users. Based on occupancy examples of waterfront commercial uses that would activate the center or a small-vessel marina and ancillary café or restaurants are that could facilitate new waterfront commercial uses. An aquatic limited. The Plan calls for significantnew waterfront open spaces Currently, public access to the waterfront at Pier 70 is severely Commercial Waterfront community. area on evenings and weekends, as well as supporting the local arts PDR uses in Pier 70 to maintain cultural diversity that enlivenes the (Building 11). The Plan supports the continuation of Arts-related use at Pier 70 for approximately 30 years in the Noonan Building printing, photography, and graphic design, which have been a PDR uses also include visual arts, such as painting, sculpture, best suited for PDR uses. uses. Building 2 and Building 6 may be good examples of structures making the best adaptive reuse option a continuation of industrial N A L P R E T S A M D E R R E F E R P 0 7 R E I P 1 3 |
3 CONTEXT FOR CHANGE 4 PAST, PRESENT, AND FUTURE
20th Street in the future - a pedestrian and bicycle oriented place
3 2 | P ier 7 0 P referred M aster P lan the historicqualitiesofplace andpromote publicaccess,open Plan shouldcreate building/openspacerelationships thatenhance complement thecharacterofPier 70Historic District. The for thefunctionalrequirements andexistingusesto ofnew New development onthesiteshouldbeorganized toprovide structure andcreate asignificantfocusfor Pier 70andthecity. identity, andactivitythatbothrespect theintegrityofhistoric cathedral-like space.Thesekindsofusescanprovide meaning, new and otherpublic-orientedusesthatare appropriate toitsgrand, forcultural,institutional, 113/114) offeruniqueopportunities quality buildingssuchastheUnion Works Machine Shop (building developed andrehabilitated innew historicstructures. Landmark economy created by knowledge-based andexperiencesectoruses Pier 70willprovide spacefortheexpansionofSan Francisco’s cultural enthusiastswhowillbeattractedtothearea. realm workers, forthemanynew visitors,andrecreational and courtyards, andpedestrianwaysthatcreate aninteresting public closed tothepublic,integratedwithafabricofbuildings,streets, oftheshoreline openspacesalongapart previouslymajor new a Pier 70National Register Historic District. Pier 70 willinclude thecreation andtosupport of co-exist withtheshiprepair industry tures infilldevelopment, alongsidenew craftedto respect and modern mixofactivitiesthatrehabilitate- itsmanyhistoricstruc The visionfor Pier 70isto revitalize formershipyard landswitha CHAPTER 4: 4: CHAPTER B RINGING TOGETHER THE PAST, PRESENT, AND AND PRESENT, PAST, THE TOGETHER RINGING and participation effort is: effort and participation The visionofthis Plan asdefinedthrough thecommunityoutreach Goals criteria thatfollow inthePlan. that togetherbuildthefoundationformore detailedobjectives and Port anditsconsultants.Thegoalsinthe Plan targetthekeyareas by the andeconomicanalysesundertaken design, preservation, a broad diversity ofperspectives, informedby theplanning,urban inthePlan.objectives Public andpoliciessetforth inputreflected land use,urbandesign,andopenspace,thetransportation discussions alsohelpeddefinethedirection forhistoricpreservation, consensus inavisionandgoalsforthefuture ofthesite,public Pier 70publicplanningprocess, notonlydidthecommunityfind Through more than60publicmeetingsandworkshops duringthe place tolive, work, andvisit. the visualandaestheticqualitiesthatmakeSan Francisco agreat spaces, andinfrastructure development atPier 70shouldreinforce setting.Thecharacterandqualityofthebuildings,open waterfront space, andrecreational activitiesthatbenefitfrom theunique industries, and integrates ongoing ship repair operations. repair ship ongoing integrates and industries, innovative for center a creates spaces, open waterfront new activates level, activity historic the re-establishes that district historic authentic and vibrant a Create N A L P R E T S A M D E R R E F E R P 0 7 R E I P F UTURE UTURE 3 3 |
4 PAST, PRESENT, AND FUTURE 4 PAST, PRESENT, AND FUTURE
The goals that have been articulated to support this vision for the and the remnant of Irish Hill. They allow for the Bay Trail and future of Pier 70 are as follow: the Blue Greenway system to extend through the site, which complements the character of Pier 70’s industrial historic setting. 1. Create a Pier 70 National Register Historic District and rehabilitate its extraordinary historic resources. 4. Promote sustainable mixed-use infill development and The creation of a National Register Historic District formally economic vitality that includes climate adaptation strat- recognizes Pier 70’s historic resources and actively promotes egies appropriate to this waterfront location. their preservation and rehabilitation. Historic preservation Pier 70’s goals for maritime industry, historic preservation, provides access to additional funding sources and streamlines environmental remediation, and open space and public access governmental review and entitlements. establish a strong framework for sustainability. Coupled with the opportunity for significant transit-oriented infill develop- 2. Preserve the long-term viability of the maritime ship ment near major job centers and supporting residential neigh- repair industry. borhoods, Pier 70 offers a model for sustainable development that reduces the carbon footprint of regional growth. To maintain and embrace ship repair as an integral part of Pier 70, the Plan sets aside land necessary for this industry and establishes design parameters to ensure new development 5. Provide sites for office, research, emerging technologies, is compatible with the operational requirements to support light industry, commercial, cultural, and recreational viable ship repair operations. Preservation of the ongoing ship uses to expand San Francisco’s economic base and repair industry is a key element of the Plan’s historic preserva- generate revenues to fund public benefits. tion strategy. The Plan identifies sites for a significant amount of new infill development that is compatible with the scale and character 3. Create a major new shoreline open space that extends of the historic district, and meets the functional requirements the San Francisco Bay Trail and Blue Greenway to and for a range of new uses. The Plan includes public funding through Pier 70. resources that will rely on creating a strong economic base to meet the historic preservation, open space, and environmental Two new waterfront parks are defined and connected to a commitments defined in this Plan. network of internal pedestrian-scaled courtyards and passages,
3 4 | P ier 7 0 P referred M aster P lan Plan elementsare builtasdescribedinthechapters thatfollow: Plan refinements.further They are thefoundationon whichthe specific development proposals, implementation strategies,and interests. Therefore, they willprovide themetricusedto evaluate The goalsestablishedinthe Plan are basedonadiverse setofpublic 8. 7. 6. activities desired forthearea. dards thatare appropriateusesandpublic-oriented tothenew clean-up mayberequired tomeetenvironmental qualitystan- As istypicalofmanyindustrialareas, aconsiderableamountof improve environmental quality. and publicenjoyment ofPier 70anditswaterfront, and Remediate environmental contamination to enableuse andsustainableinfrastructure. utility services the Bay andproposed shoreline openspace,andcorridorsfor and structure totheurbanexperience,accessandvisibility uses.Itframework forexistingandnew provides orientation oftheorganizational The street part systemisanimportant grate Pier 70withtheCentral Waterfront. street thecity grid toExtend enhance access andinte improvements. tices intothedesignsofprivate development andpublic modesandprac- that incorporatesalternative transportation Implementation ofthePlan willrequire active planning modes andpractices. fosters useofalternative, sustainabletransportation Promote development thatand ispedestrian-oriented - identity ofPier 70are rapidlydeteriorating. and thatarehistoric buildingsandartifacts integraltothehistory At thesametime,itisurgenttomove thePlan becausethe forward order toprovide togeneratetherevenues necessary publicbenefits. successful, asignificantlevel ofinfilldevelopment is required in tion, andpublicimprovements thatare ofthePlan. apart To be and thecostsofenvironmental remediation,- historicpreserva Development proposals willneedtorespond toeconomiccycles thatwillbe private financialsupport required to realize the Plan. andpublicpolicyrequirementstory andprocesses, andpublic The Implementation Strategy (Chapter10)describesthe regula- quality ofdevelopment proposals. objectives andcriteriathatwillbeusedtoevaluate thevalue and tion, andParking (Chapter9).Eachoftheseelementspresents Character ofInfill Development (Chapter8);and Transit, Circula- (Chapter 6);Open Space andPublic Access (Chapter7);Form and Historic Preservation (Chapter5);LandUse andAdaptive Reuse N A L P R E T S A M D E R R E F E R P 0 7 R E I P 5 3 |
4 PAST, PRESENT, AND FUTURE 5 HISTORIC PRESERVATION
Shipyard aerial, 1945
3 6 | P ier 7 0 P referred M aster P lan Objectives Objectives works ofmasterarchitects.significant becauseitincludesimportant for theproductionvessels. Thedistrictisalso ofsignificantwartime relations, government, relationships, aswell andprivate as industry with pioneeringtechnologicaldevelopments inshipbuilding,labor industrial architecture anddesign.It issignificantforitsassociation provides aphysicalrecord expressing continuitywithpasttrends in As adistrict,Pier 70containsarichcollectionofresources and historic industrialcomplexinSan Francisco. tarian industrialstructures. It istheoldest,largestandmostintact style complexes, landmark qualitybuildings,andmore modestutili- includes acombinationofmasterarchitect, “CathedralofIndustry” tectural stylesfrom thelate19thtomid-20thcenturiesand The Pier 70 Historic District showcases awiderangeofarchi- C 2. 1. hapter history ofthebuiltenvironment atPierhistory 70. containing Non-Contributing Resources, reflective ofthe toopen andvacant areas construction major new orlocations Protect the integrityofPier 70Historic District by directing overall integrityoftheHistoric District. whilemaintainingthe needsof theindustry contemporary the tosupport priority tophysicalshipyard changesnecessary Pieroperations asanactofpreserving 70’s history, andgive Recognize continuationofviableshiprepair anddrydock 5: H 5: istoric P reser v ation priorities forPier 70. relative significanceandtodevelop strategy and thepreservation used afinergrainofanalysistofurther refine historic building’s significant. For contributing resources, the anditsconsultants Port whether theyreflect thehistoricperiodforwhichdistrictis depending ontheirhistoricsignificance,degree ofintegrity, and classified as “contributing” or “non-contributing” tothedistrict significance. In National Register historic districts, resources are Pier 70hostsanumberofindividualhistoricresources ofvarying Resources Historic 6. 5. 4. 3. and historicrehabilitation improvements. developmentin publicareas ofnew andopenspacesaspart function through aprogram ofcoordinated interpretive exhibits Promote anunderstandingofthesite’s history, significance,and early aspossible. resources along20thStreet forpublicandprivate investment as Prioritize thestabilizationandrehabilitation of Very Significant consistent withSecretary Standards. meetsPlan objectivesconstruction andissensitively designed, Apply infilldevelopment designcriteriafornew toensure new life toPier 70,consistentwithSecretary Standards. Encourage adaptive reuse ofthehistoricresources thataddnew N A L P R E T S A M D E R R E F E R P 0 7 R E I P 7 3 |
5 HISTORIC PRESERVATION 5 HISTORIC PRESERVATION
Contributing resources were classified into three categories below, Context Resources would be rehabilitated so that the overall char- and shown in Exhibit 5, Historic Resource Rating and Table 1, acter and integrity of the district is preserved. Removal of some Historic Resource Profiles: Context Resources is allowed to achieve Plan goals.
Very Significant Resources are the most historically and architec- The implementation strategy further places a priority on the reha- turally significant resources. In general, this highest rating has been bilitation of the most significant and fragile resources, and accepts assigned to the historic resources fronting on 20th Street, referred to that rehabilitation of less significant resources may take longer as as the Pier 70 historic core. These resources are generally the oldest a result. Within this strategy, the Port is struggling to address a and rarest, or are the work of master architects and are individually critical immediate need to secure funding or other resources to eligible for National Register listing. The Plan calls for rehabilita- help stabilize very fragile Very Significant Resources, most notably tion of all Very Significant Resources.
Significant Resources are historically or architecturally significant individually, but may not be individually eligible for listing in the National Register. Significant Resources together with the Very Significant Resources are essential to maintain the National Register eligibility of Pier 70. This category includes significant structures for both World War efforts. The Plan calls for rehabilitation of all of these resources. The Plan highly discourages major modifica- tions, and removal would be considered only under extraordinary circumstances.
Context Resources date from the period of significance, and are important cumulatively to the historic district. These resources represent the largest number of historic features at the site and include structures that supported the World War II efforts and build-out of the shipyard in accordance with the 1945 Pier 70 Ship Yard General Plan. Under this Plan, a significant concentration of View looking down 20th Street from Illinois Street, 1941
3 8 | P ier 7 0 P referred M aster P lan wharves, piers,andvessels. Althoughtheyarewharves, notrecognized as Resources includemostofthesite’s watersidefeatures suchasslips, or have lostmost,orall,oftheirintegrity. Non-Contributing historic districtbecausetheypost-datetheperiodofsignificance historic resources thatare notessentialtotheeligibilityof of ResourcesNon-Contributing category compriseafourth this structure. capital budgetincludesfundsforafirstphaseofstabilization threatened by advanced deterioration.The Port’s FY10/11annual the Union Iron Works Machine Shop (Building 113/114),thatare Illustrative Rendering of Building 101 Building of Rendering Illustrative and purposefortherehabilitation ofthesite’s historicresources. tion ofthehistoricdistrictbecauseitprovides asource offunding New infilldevelopment within - Pier 70iskeytothepreserva Development Infill the Plan. tional needsoftheshipyard theoverriding andtosupport goalsof uting Resources wouldbeaffectedinorder toprovide fortheopera- Pier 70Historic District. The Plan anticipatesthat Non-Contrib- therefore are considered Non-Contributing resources withinthe Contributing Resources, theyare tothecontextand important N A L P R E T S A M D E R R E F E R P 0 7 R E I P 9 3 |
5 HISTORIC PRESERVATION 5 HISTORIC PRESERVATION
However, new development must respect the unique character and Oversight of Historic Preservation setting of the historic district as a maritime industrial complex. The Port has worked closely with the San Francisco Planning The pattern of the rail spurs and slipways, the scale of buildings, Department, State Historical Resources Commission (SHRC), and open space relationships, and visibility of the Bay are all factors that Office of Historic Preservation (OHP) to review and document have historically guided development in the past, as they should Pier 70 resources. Chapter 10 presents the Port’s implementation in the future. At Pier 70’s height of operations during World War strategy for work with these important regulatory partners in the II, development density was substantially higher than today, as area of historic preservation. This Plan provides the policy priorities reflected in the 1945 Pier 70 Ship Yard General Plan. To realize and guidance to help ensure that the future of the historic resources this Plan, development density must increase and will be subject to of Pier 70 meets the Plan’s historic preservation objectives. Infill Development Design Criteria described in Chapter 9. These criteria support the historic district by determining appropriate scale, design, and siting of new structures so that they help express Pier 70’s historic physical urban form, industrial history, and water- front location, consistent with the Secretary’s Standards.
Building 12 Complex, looking northeast, 2009
4 0 | P ier 7 0 P referred M aster P lan
Right: Detail of historic furnace historic of Detail Right: northeast looking today, 4 Slipway Right: Upper southwest looking 1940, circa 4 Slipway in Top:Ship N A L P R E T S A M D E R R E F E R P 0 7 R E I P 1 4 |
5 HISTORIC PRESERVATION 5 HISTORIC PRESERVATION
Mariposa Street HISTORIC RESOURCES 114 VERY SIGNIFICANT 109 SIGNIFICANT Kneass 2 CONTEXT
REMNANT OF IRISH HILL
18th Street LINE OF HISTORIC UPLANDS 49
SHIP REPAIR (HISTORIC USE) 30 50 SLIPWAY 4
FORMER PIER, WHARF, OR SLIPWAY 110 SLIPWAY 3 SLIPWAY 2 SLIPWAY 1
68 58 PIER 70 AREA BOUNDARY 141 127 19th Street 109
250 111
38 40 36 119 6 120 121 122 108 101 102 104 105 20th Street 123 103 107 19 20th Street 113 23
114 14 115 64 116 21 11 117 2 66 3rd Street Illinois Street
Indiana Street SLIPWAY 5 Tennessee Street Minnesota Street
SLIPWAY 6
12 SLIPWAY 7 PG&E 15 SLIPWAY 8 22nd Street 22nd Street 32 25 N 16 0 100 200 300’
Exhibit 5: Historic Resource rAting
4 2 | P ier 7 0 P referred M aster P lan T 23 25 111 110 36 113 38 114 41 108 105 104 103 107 14 12 21 32 30 2 6 117 116 115 40 49 102 15 19 16 11 119 50 58 64 68 66 109 101 122 121 120 141 127 123 Building able No. 1: H 1: Twigg Brothers/Kneass Rail 20th Street Pier Pier Slip Drydock Eureka Pier Drydock No.2 Slips Slip Slip Pier Washroom and Washroom and Main Office,Warehouseand Yard Washroom/LockerRoom Welding Shop Machine Shop Pipe and Machine Shop Fire Station Planing Forge Union Steam Union Heavy Plate Electric Shop/Substation Template Warehouse Template Warehouse Warehouse Light Warehouse Concrete Concrete Bethlehem Galvanizing Powerhouse Layout Yard Garage Stress The Noonan Yard Washroom Substation Iron Fenceon Whirley CraneNo.27 Pier Pier Substation Pier Bethlehem Plate Bethlehem Union Dry Pipe Rack Slip Pier Pier Irish Pier Checkhouse No.2 istoric DockOffice 1 3 2 #4including lines 70 ‐ 'Wharf8 70 ‐'Wharf7 70 ‐Wharf6 68 ‐ Wharf4 68Substation 68 ‐ Wharf3 68Substation 68Breakroom/Washroom/Restroom 68 ‐ 'Wharf1 68Production Hill 5‐8 Warehouse Shop Shop Shop RelievingBuilding IronWorks IronWorks IronWorks Warehouse PowerhouseNo.2 No.1 Mill Remnant ElectricShop
Warehouse Warehouse No.2 No.1 #2 #6on SteelEmployment Welding SteelAdministration Paving Shop (Underwater) No.9(Shipyard and Building No. 20thand No.1/Blacksmith Storage/Foundry Locker Locker JoineryShop Cranes14&30 1 Pier Building Administration West movedGatehouse #4 #7/DryDockoffice Offices Platform R (Tool 70 Room Room BoatBuilding Illinios LumberShed esource No.5(Risdon Nameand Roomand Train Substation Office Streets Shop Building Center) Building Shop Office) Function IronWorks) No.3 P rofiles Appendix C:Pier70Properties Pier 70HistoricDistrict, NationalRegisterNomination,Appendix C,Page1 Square Feet 118,89 13,523 200steel frame 12,050 81,964 761brick 37,641 30,519 086steel/wood 40,846 56,268 011brick/steel 20,111 10,172 98,80 32,66 622brick/concrete 46,272 090steel 30,940 21,780 12,078 599steel 17,13 15,969 718steel 37,128 310steel 23,100 209steel/wood 82,099 ,5 brick/steel 1,356 ,0 brick masonry 8,800 ,3 steel frame 8,039 ,6 steel 3,461 ,8 steel 7,588 ,0 steel 1,407 ,5 wood frame 8,259 ,5 brick/steel 2,258 8,428 ,0 steel 4,900 ,5 steel/concrete 6,152 ,2 brick/steel 3,925 ,9 steel 1,392 ,7 wood frame 1,978 00steel 2070 519 9 steel/wood frame 991 7 steel 678 3 steel/concrete 939 8 wood frame 714 584 384 4 4 4 0 steel frame/woodfloor Construction brick masonry wood steel frame steel concrete concrete concrete concrete concrete concrete concrete concrete concrete brick steel steel masonry frame frame frame frame frame frame frame frame frame frame frame frame frame frame wood Type rm c. frame c.1940s, landscape 1886/1915/194 1886/1918/196 1885/86/191 c. 1914/36/4 ul District Date Built period 1945/198 1918/195 9011 Non Non 1900/1915 1900/1915 8611 Non 1886/1915 1936/194 1916/194 Post Post 1890/193 1911/13 1915/41 1941/4 1941/4 1937/41 1941/4 1916/17 1916/17 1912/3 Various c. c. 1917 c. movedc.1993 1890s 1940s 1942 1941 1970 1941 1941 1896 1936 1941 1941 1886 1937 1917 1941 1941 1941 1941 1937 1912 1941 1941 1900 1941 1917 1941 1945 1941 1941 1936 1944 1941 1943 1916 1940 1945 95Non‐contributing 1945 95Non‐contributing 1945 etr Contributing feature 88Contributing 1878 6 4 4 4 0 7 2 1 1 7 4 6 7 Non Non‐contributing/Setting Non‐contributing Non Non‐contributing/Setting Non Non Non‐contributing/Setting Contributing Contributing Contributing Non Non‐contributing/Setting Non‐contributing/Setting Contributing Contributing Contributing Contributing Contributing Contributing Contributing Contributing Contributing Contributing Contributing Contributing Contributing Contributing Contributing Contributing Contributing Contributing Non Contributing Contributing Contributing Contributing Contributing Contributing Contributing Contributing Contributing Contributing Contributing Contributing Contributing Contributing Contributing Contributing Contributing Contributing Contributing Non Contributing Contributing Contributing Contributing ‐contributing/Setting ‐contributing/Setting ‐contributing/Setting ‐contributing ‐contributing/Setting ‐contributing/Setting ‐contributing/Setting ‐contributing ‐contributing ‐contributing/Setting Rating N A L P R E T S A M D E R R E F E R P 0 7 R E I P Non Non Very Non Non Non Non Non Non Non Non Non Non Non Very Significant Context Significant Context Context Very Context Context Context Context Very Non Context Context Very Context Context Context Context Context Context Non Context Non Significant Very Significant Context Significant Context Significant Context Context Non Non Context Context Context Context Context Context Very Very Context Context Significant Non Context Context Historic ‐contributing ‐contributing ‐contributing ‐contributing ‐contributing ‐contributing ‐contributing ‐contributing ‐contributing ‐contributing ‐contributing ‐contributing ‐contributing ‐contributing ‐contributing ‐contributing ‐contributing ‐contributing ‐contributing significant significant significant significant significant significant significant significant Significance 3 4 |
5 HISTORIC PRESERVATION 6 LAND USE AND ADAPTIVE REUSE
Aerial Photo of Pier 70 looking northwest, with Dogpatch neighborhood in foreground, 2006
4 4 | P ier 7 0 P referred M aster P lan Objectives Objectives operations asreflected intheobjectives below. on infilldevelopment sitesto respect andaccommodateshipyard useswithinrehabilitated buildings new historicbuildingsandnew ties, andcompatiblefuture usesandactivities.The Plan expects operations, with24-houraround-the-clock heavyindustrialactivi- future, thePlan placesapriorityonmaintainingexistingshiprepair in thecityandsurrounding neighborhoods.In planningforthe and recreational amenitiesthatcontributetothequalityoflife use program emphasizes jobgeneration,economicdevelopment, district thatcanbringrenewed lifeandactivitytoPier 70.Theland The Plan establishesalanduseframeworktodevelop amixed-use CHAPTER 6: LAND USE AND ADAPTI AND USE LAND 6: CHAPTER 3. 2. 1. Street, toprovide anactive entrancetoPier 70. educational, retail, usesalong20th cultural,andentertainment Promote amixofusesorientedtoward commercial, office, 70’s historicresources. appreciation andoftherehabilitation ofthewaterfront ofPier Invite awiderangeofactivitiesthatpromote publicuseand compatible withtheoperationalneedsofshiprepair. ment andlandusesare designedandmanagedtorespect andbe and thePort’s mission.Ensure publictrust develop thatnew - objectivesconsistent withthehistoricpreservation ofthePlan Recognize is thatthecontinuationofshiprepair industry V support theexpense oftheirphysicalrehabilitation.support To maximize reuse becauseoftheneedtogeneratesufficient market value to the historicdistrict.Historic buildingsoftenposechallenges for rehabilitation andareas infilldevelopment targetedfornew within fies thelocationof Historic Resources proposed forhistoric buildings.Exhibitthan thosefornew 6,LandUse Plan, identi- Uses forrehabilitated historicbuildingstendtobemore limited Historic E REUSE E 7. 6. 5. 4. priately addressed. with shiprepair operationsandotheradjacentusesare appro- Allow limitedresidential ifconflicts development opportunities, shoreline parks andpublicspaces. contribute totheexperience,activities,andenjoyment of imaginative architecturaldevelopment designofnew to Consistent withtheopenspacepoliciesofthisPlan, encourage tated historicresources. andrehabili construction - trial, andinstitutionalusesinnew Allow office,biotech, research anddevelopment, lightindus- resources. significantgroupingpublic appreciation ofhistoric ofthisvery activate Pier 70’s historiccore along20thStreet, toattractbroad Machine Shop (building113/114)asananchorfacilityto Target publicly-orientedusesfortheUnion Iron Works B uildings N A L P R E T S A M D E R R E F E R P 0 7 R E I P 5 4 |
6 LAND USE AND ADAPTIVE REUSE 6 LAND USE AND ADAPTIVE REUSE
HISTORIC BUILDINGS
Mariposa Street SHIP REPAIR (HISTORIC USE)
OFFICE, BIOTECH, COMMECIAL, R&D, PDR Kneass MIXED USE- RESIDENTAL ALLOWED CRANE COVE PARK COMMERCIAL/SPECIAL USE- HISTORIC CORE
18th Street OPEN SPACE
BUILDING PROPOSED FOR REMOVAL* 50 PIER 70 AREA BOUNDARY SLIPWAY 4 110 *NOTE: BUILDING 21 PROPOSED TO BE RELOCATED 68 58 141 127 19th Street 109
EXHIBIT 6: 250 111 LAND USE PLAN
The land use plan describes the geographic 36 6 120 locations for the proposed uses of the site. It 122 108 designates the 17 acres of land for ship repair 101 102 104 105 103 20th Street 123 107 and identifies the proposed open space areas. 19 All of the remaining areas are designated for 113 23
mixed-use in various forms. The historic core 114 14 along 20th street is prioritized for publicly 115 64 21 oriented, cultural and commercial/recreational 116 21 uses that will generate activity and provide a 2
focus for the district. The southeastern area Illinois Street IRISH and other historic resources are targeted for HILL
job generating, office, emerging technologies, 12 research and development and PDR (including SLIPWAYS PARK artist studios) uses. Two sites along Illinois PG&E Street are designated for potential residential 22nd Street N development if compatible with industrial ship 0 100 200 300’ repair uses.
4 6 | P ier 7 0 P referred M aster P lan operations. in today’s market. This Plan incorporatesBAE’s planfor Pier 70 well-positioned tomaintainbusinessgrowth andstaycompetitive completed afacilityplanforitsshiprepair operationstoensure itis 14 existingstructures, isunderleasetoBAE.BAEhas recently repair. Currently and wharves, thisarea, whichincludesdrydocks, quadrantofthesiteadjacent totheBayat thenortheast for ship City’s economicbase.The approximatelyPlan reserves 17acres the thatsupports strategy inthePlan andalsoisakeyindustry iskeytothehistoricpreservation taining theshiprepair industry the Port’s maritimemissionandessentialgoalsofthePlan. Main- Preservation andenhancementofshiprepair usesare centralto Repair Ship 70. The following sectionsidentifytheplannedusesto revitalize Pier space anditsprominent locationwithinthesite. assembly useswhosefunctionsmaybewell-suited tothescaleof special outreach groups orpublic toidentifypotentialarts/cultural Works Machine Shop (building113/114),thePort willconduct alterations tohistoricresources. For the Very Significant Union Iron light industrialuses,asoptionsthatavoid theneedforcostly buildings. The Plan also forincluding recognizes theopportunity Plan promotes abroad rangeofusesforrehabilitated historic to diversity andefforts revitalize Pier 70asahistoricdistrict,the the rehabilitated historicbuildingsatPier 70.Restaurants, visitor- enhance thepublicnature ofthesiteare interest ofparticular in A rangeofretail, restaurant, andculturalusesthat entertainment, Entertainment Cultural, Restaurant, Retail, design withthehistoricdistrict. buildingsthatarebuildings andinnew compatibleinscaleand Pier 70.Development shouldincorporatetheseusesinhistoric manufacturing activities.Theseusesare permittedthroughout back-office uses,as wellas research anddevelopment andlight create demandforarangeofbiotech,medical,andlargefloor-plate The Plan assumesthat Mission UCSFcampuswill Bay anditsnew atPiercreation andeconomicinvestment70. willbenecessary Research anddevelopment andcommercial usesthatpromote job Commercial Development, and Research Biotech, Office, 20th Street looking east looking Street 20th N A L P R E T S A M D E R R E F E R P 0 7 R E I P 7 4 |
6 LAND USE AND ADAPTIVE REUSE 6 LAND USE AND ADAPTIVE REUSE
serving retail, hotel, and some types of entertainment and cultural Production, Distribution, Repair (PDR) uses are also consistent with the public trust. These activities should Industrial activities will continue at Pier 70. Pier 70’s historic be concentrated on 20th Street and the adjoining warehouses and resources were built for industrial use, and have continued to foundries, which form the historic core of Pier 70 (see Exhibit support a variety of warehouse, storage, and industrial processes as 7 Land Use Concept for the 20th Street Historic Core). For the ship repair land requirements decreased. Artist-related uses such as Union Iron Works Machine Shop (buildings 113/114), the Plan studios and exhibit spaces are included in this category, which also emphasizes a major public cultural presence to take advantage of could play an important part in the revitalization of Pier 70. its large-scale cathedral like space. This intricate complex of buildings and planned open space will create a strong activity center at Pier 70, creating a destination and showcasing the historic significance of the site. Ancillary retail may also be appropriate outside the historic core to help activate open spaces and to provide ground level amenities to Pier 70 workers.
Exhibit 7: Land use concept FOR THE 20th Street Historic Core The intricate complex of buildings and planned open spaces within the Pier 70 Historic Core along 20th Street will create an iconic activity center at Pier 70, show- casing the historic significance of the site. This exhibit suggests a mix of uses that will activate the core.
4 8 | P ier 7 0 P referred M aster P lan housing developments. Theother is theparcel justsouthof20th of20th Streetis north nearCrane Cove Park, across from existing amount ofresidential development alongIllinois Street. One site dential activities,thePlan provides foralimited someopportunity ment. While thelanduseprogram primarilycallsfornon-resi- and conditionsconducive tosignificantnew residential develop- around–the-clock activities,generallyconflictswithlivingstandards heavy industrialoperationsforshiprepair, whichcaninvolve loud, Pier 70isnotplannedasaresidential district.Thecontinuationof Residential oriented alleysandpassages,Irish Hill. space amenitiesintheformsofcourtyards, smallplazas,pedestrian- Public andpedestrianspacesinternaltoPier 70alsoprovide open restoration where appropriate. enjoyment, interpretation, publicviewing, andenvironmental active water-orientedrecreational activitiesandareas forpassive Park andSlipways Park. Theseareas are largeenoughtosupport Large openspacesare proposed alongtheshoreline inCrane Cove for publicenjoyment andpedestriancirculation through thesite. Plan. thecreation The Plan supports ofa variety ofopenspaces Waterfront parks andopenspaceare prominently featured inthe Water Recreation and Space Open long-term development. interim leaserevenues untillandandfacilitiesare ready for extended periodoftime.PDRusesare well-suited tosupport Redevelopment withinPier 70isexpectedtooccurover an Building 101, looking north on Illinois Street, 2005 Street, Illinois on north looking 101, Building uses. andnon-trust define locationsfortrust with State Landstoresolve issuesthatwill anumberofpublictrust inChapter10,thePortsite. Asdiscussedfurther hasbeenworking userestrictionsuses thatwillmeetpublictrust applicabletothe The successfuldevelopment of Pier 70will require amixofland Trust Considerations Public repair industry. the designandprogram todemonstratecompatibilitywiththeship residences. Proposals forhousingwouldrequire thorough review of tion, are locateduplandawayfrom theshipyard, andare nearother - construc because theyare new closetopublictransit,cansupport Street alongIllinois Street. Theselocationshave beenidentified N A L P R E T S A M D E R R E F E R P 0 7 R E I P 9 4 |
6 LAND USE AND ADAPTIVE REUSE 7 OPEN SPACE AND PUBLIC ACCESS
Illustrative rendering of potential recreational activities at Crane Cove Park
5 0 | P ier 7 0 P referred M aster P lan 3. 2. 1. Objectives provides thefoundationforfollowing objectives. numerous workshops duringthePier 70planningprocess, which accessasahighpriorityinthe publicwaterfront identified new refers asthe toalloftheseefforts Blue Greenway. Thecommunity Greenway openspaceefforts. For thepurposeofclarity, the Plan Trail plan.These regional efforts are furthered bytheCity’s Blue Francisco BayDevelopment Conservation Commission,Bay Water the AssociationofBay Area Governments’ Bay Trail, andtheSan system tiesinwithexistingregional openspaceplans,including forpublicenjoyment.access tothewaterfront The Plan’s openspace ment withinPier 70willprovide toopenupnew theopportunity Environmental remediation, adaptive reuse, andinfilldevelop- CHAPTER 7: OPEN SPACE AND PU AND SPACE OPEN 7: CHAPTER which creates aninter-connectedpaththat linkspublicopen Greenway intothedesignof Pier 70openspace network, Integrate theBay Trail, theBay Water Trail, andtheBlue ofPier 70 history spaces, enjoyment oftheBay, andcelebratereveal therich upland areas open andadjacentneighborhoodstowaterfront and publicspacesthatrecognize historicpassagesandconnect Develop adiverse network andprogram ofparks, paths,roads, opment atPier 70thatissensitive toshiprepair operations. develusers andestablishasenseofidentityfocusfornew - Create of publicopenspacesthatattractadiverse spectrum B LIC ACCESS LIC neighborhoods aswell activitiesintroduced asthenew atPier edge ofPier existingnearbynorthern 70,asapark thatwill serve Crane Cove Park: The Plan envisionsanopenspace, located atthe ways Park tothesouthof shipyard. Crane Cove Park andwest oftheshipyard, tothenorth andSlip- Two parks new are atPier envisionedalongthewaterfront 70: Spaces Open and Parks Shoreline and shown inExhibit 8,Pier 70Open Space Concept. Each majorelementofthisopenspacenetwork isdescribed below space andinternalplazaspathwayswithinthe Pier 70area. In response totheseobjectives, thePlan proposes shoreline open 6. 5. 4. center, boatrental andsupplies,refreshments. water-oriented recreational activitiesandusers,suchasaquatic structures inmajoropenspacestosupport Allow ancillary create shoreline accesswherever possible. resources torespect theindustrialcharacterofPier 70,and withhistoric trian ways,andotherpublicspacesthatinterface Use hardscape pavingandmaterialstoimprove streets, pedes- level ofpublicenjoyment ofthoseopenspaces. ahigh sunlight accessandmicroclimate conditionsthatsupport adjacent totheshoreline openspacesthatprovide comfortable Require sensitivedevelopment designandsiteplacementofnew habitat forwildlife,andprovides accessintoorontheBay. spaces alongtheshoreline, includesareas natural thatsupport N A L P R E T S A M D E R R E F E R P 0 7 R E I P 1 5 |
7 OPEN SPACE AND PUBLIC ACCESS 7 OPEN SPACE AND PUBLIC ACCESS
OPEN SPACE Mariposa Street PLAZAS, COURTYARDS, & PEDESTRIAN WAYS Kneass BAY TRAIL / BLUE GREENWAY CRANE COVE PARK BAY WATER TRAIL 18th Street PEDESTRIAN LINKAGES
SHIP REPAIR (HISTORIC USE) 50
SLIPWAY 4 110 FORMER PIER, WHARF, OR SLIPWAY 68 58 141 127 PIER 70 AREA BOUNDARY 19th Street 109
250 111 Exhibit 8:
Pier 70 Open Space Concept 3rd Street 36 6 Illinois Street 120
The Open Space Concept identifies how 122 108 101 102 104 105 the Bay Trail and the Blue Greenway 103 FERRY TERMINAL 20th Street 123 107 can be extended along the shoreline 19 113 23 through Pier 70. It also illustrates the CENTRAL ENTRY PLAZA 14 two major proposed shoreline parks 114 PLAZA 115 MACHINE BREAKWATER & – Crane Cove and Slipways Parks. 64 21 SHOP PUBLIC ACCESS PIER 116 COURTYARD Irish Hill is preserved as a remnant of 21 the natural landscape of the site and 2 integrated into the proposed Pier 70 IRISH SLIPWAYS PARK Historic District. Irish Hill is an element HILL 12 Visual and Ped. linkage of an internal open space network between Bldg. 12 & Bay must be maintained which is based on the historic char- PG&E
acteristics of the district and includes 22nd Street
a number of courtyards, plazas, and N 0 100 200 300’ passageways.
5 2 | P ier 7 0 P referred M aster P lan design studyforCrane Cove Park improvements. native birdsthat support andwildlifeshould beanalyzed inany environmental restoration. Landscapeandvegetative treatments The largesize of Crane Cove Park provides for anopportunity the slipway, includingtheintroduction ofthebaywaterwithinit. of tohighlightthe visibility andimportance tage ofopportunities creative useofthesefeatures. Park designshouldalsotakeadvan- andidentity shouldguidepark designandencourage time history andstructures areshipbuilding artifacts present. Thisrichmari- inthisparkprominent area, historicartifacts otherindustrialand In additiontoSlip 4andthecranes,whichare themostvisually located withinthefuture openspace. could reuse twohistoricbuildings,Buildings 50and110,thatare Recreational theopenspace activitiesorconcessionstosupport for smallvessels shouldbeincorporatedintothedesignofpark. human-powered watercraft. Designs forproviding wateraccess been identifiedasadesirablelocationforlaunchingorlandingof previous Pier the Crane Cove 70planningefforts, Park sitehas which willincludedesignimprovements forCrane Cove Park. In todevelop the community effort Blue Greenway openspacesystem, with thePier 70planningprocess, thePort a andtheCitysupport network alongSan Francisco’s southeastshoreline. In concert Crane Cove Park isa feature intheBlue Greenway openspace areapublic viewing ofshiprepair operations. ofthesite.Ithistory provides expansiveoftheBay views andasafe a strong relationship withthewaterandactive shipbuilding 70. Thepark area includeshistoric Slip 4anditscranes,creating integrated withadjacentbuildingsandactivities.Theyhelpto The uplandopenspacesincludea variety ofspacesthatare closely Spaces Open and Parks Upland street north-south alongthewesterna new edgeofthepark. open spacefrom theextensionof20thand22ndStreets, andfrom Thepublicshouldbeabletoaccessthis trian accessandviewing. project intothebay, whichmayincludepiers or jettiesforpedes- ments thatexpress thishistoricuse,andincorporateremnants that slipways have beenfilled,thepark designshouldincorporatetreat- and launchingofmanytheshipsbuiltatPier 70. While these of thesite.Theseslipways provided thestageforconstruction four formerslipways thatonceoccupiedthesoutheasternportion Slipways Park: of Thisopenspaceislocatedoneasternportion become a vibrant public place. public vibrant a become to envisioned is 113 Building of south area courtyard Shop Machine The N A L P R E T S A M D E R R E F E R P 0 7 R E I P 3 5 |
7 OPEN SPACE AND PUBLIC ACCESS 7 OPEN SPACE AND PUBLIC ACCESS
provide scale, amenities, pedestrian-orientation, and identity for adjacent buildings as well as the district as a whole. They include:
Irish Hill: Irish Hill, at the southwestern corner of the site, provides a clear remnant of the site’s original shoreline and topography. The Plan calls for the retention of the 1.5-acre sloping site as a visual open space.
Central Plaza: The Plan calls for the creation of a central plaza at the “crossroads” of the shipbuilding and rail operations that occurred on the site, adjoining the activities of Union Iron Works/ Bethlehem Steel to the north, and the World War II complex of structures to the south. The design of the space should provide a symbolic and visual center to the complex, including interpretive displays highlighting the history of the site and its maritime activi- Illustrative rendering of boardwalk and pier extensions at Crane Cove Park. ties. Design should also consider selective planting and vegetation as a counterpoint to the industrial hardscape that will predominate. 20th Street Promenade: 20th Street was the principal entry to Pier Machine Shop Courtyard: The Plan calls for an intimately-scaled 70, where thousands of shipyard employees arrived for work and courtyard, surrounded by the massive brick Union Iron Works congregated. Befitting its more public face, the street is lined by Machine Shop (Building 113/114), the reinforced concrete ware- the stately Union Iron Works Machine Shop (Building 113/114), house structures, and the corrugated steel heavy warehouses to the Bethlehem Steel Administration Building (Building 101), Power- south. Relocation of the steel-framed Risdon Ironworks building house (Building 102), and the original 1896 Union Iron Works (Building 21) to this site from its current location approximately Administration office building (Building 104), visually terminating 700 feet to the east would further define this space. The diverse at the distinctive steam powerhouse (Building 103) with its high materials, shapes, and forms of these structures will give the open smokestack. The Plan provides for the extension of 19th Street space a unique quality. The Plan envisions the courtyard as a into the ship repair facility to provide an alternate route for trucks, central hub of activity, including outdoor dining, musical perfor- which currently travel down 20th Street. With the removal of truck mances, and artist exhibits, spilling out from the adjacent interior traffic, the Plan calls for 20th Street to be restored as the principal spaces. A public passage from 20th Street through the Union Iron entry and ceremonial spine to Pier 70’s historic core - a managed Works Machine Shop could provide access to this space. street that could be closed to traffic for special events. Develop-
5 4 | P ier 7 0 P referred M aster P lan development. forcommercial activitiestospilloutfromopportunities adjacent design shouldbecoordinated withthatof20thStreet andprovide Historic District toPier andanenhancedgateway 70.Theplaza from Illinois Street, creating asuitablesettingforthePier 70 to theUnion Iron Works Machine Shop (Building 113/114) Illinois Street, thepublicviews plazawillpreserve a0.6-acre entry Illinois Street Entry Plaza: At thejunctionof20thStreet and multiple functionsitmayserve. the vehicle lanesofthestreet andbedesignedtoaccommodatethe ment ofthisstreet shouldconsidertheuseofcobbledpavers within will open up views to downtown skyline and Bay Bridge. Bay and skyline downtown to views up open will ParkCove Crane at improvements public of rendering Illustrative power plantsiteisredeveloped. Greenway wouldcontinuesouthoncetheadjacentMirant Potrero fromviews Slipways Park. Ultimately, theBay Trail andtheBlue commercial activitiesenvisionedinthecore, andexpansive bayfront repair activitiesvisiblefrom Crane Cove Park, the culturaland district. Trail userswouldenjoy diverse experiences,includingship Slipways Park, traversing ofPier through theheart 70’s historic uous pedestrianandbicycle circulation from Crane Cove Park to network alsowillenhancetheBlue Greenway toprovide contin- sity ofroutes amongthevarious activitiesanddestinations.This of pedestrianways,promenades, andwalkwaystoprovide adiver- connecting thesediverse openspacesthrough anintegratednetwork Network of Pedestrian Promenades: The Plan promotes N A L P R E T S A M D E R R E F E R P 0 7 R E I P 5 5 |
7 OPEN SPACE AND PUBLIC ACCESS 8 FORM AND CHARACTER OF INFILL DEVELOPMENT
The Machine Shop courtyard area south of Building 113 is envisioned to become a vibrant public place.
5 6 | P ier 7 0 P referred M aster P lan on vacant sites. The second presents general design criteria for for criteria design presents general second The sites. vacant on below. described development new of form addressesthe first The objectives following the development, infill of character and form the to topics related four into organized is the Plan of chapter This future generations. for value lasting of environments sustainable building for responsibility shared the to and construction, of methods and currenttechnology to uses, requirements new of functional the respond to must ment develop infill of character and form The area become. this can toward looks it while what history of layering by the enhanced is environment urban an of richness the The Plan that recognizes whole. a as city livability, to sociability, areathe well as the as in life of quality and parks contribute that waterfront shorelinemajor two with accessible more a and waterfront working a have both will it because tional excep is past. 70 the Pier in than differentway and new a in city the of part a be to potential its and setting waterfront unique the Plan recognizes the time, resources. same At the historic numerous its presence of enduring the well as as docks, and slipways, lines, streets, rail of pattern industrial and Bay urban and the shoreline, landscape the include qualities resources. These historic the of character, the and past by its determined extent, quality, feel and FromPier 70’s standpoint, design urban an great a to is, identity CHAPTER 8: 8: CHAPTER F ORM AND CHARACTER O CHARACTER AND ORM - - 20th Street looking west looking Street 20th Objectives character. district’s historic the with compatible be to designed tively overall sensi Standardsis that development new achieve to are applied interprethow to Infill are the intended Criteria Design Secretary the by guided be Secretary will Standards.The development infill new and buildings historic of The Plan. the rehabilitation of goals required be the will meet to that development new substantial for parameters design and planning define The Criteria Design Infill practices. development sustainable discusses fourth Pier The zoneswithin 70. specific for criteria design entire Planthe area.third forth The sets 2. 1. F
IN landscape features, and waterfront location. location. waterfront features,and landscape Showcasedistrict’s historic the heritage, resources, industrial repair activity. ship ongoing Union the of Iron Works/BethlehemSteel and operations evolution the including processes, shipbuilding industrial reflects the that landscape historic a as Respectdistrict the F ILL DE ILL V ELOPMENT N A L P R E T S A M D E R R E F E R P 0 7 R E I P - 7 5 |
8 FORM AND CHARACTER OF INFILL DEVELOPMENT 8 FORM AND CHARACTER OF INFILL DEVELOPMENT
3. Develop a pattern that reflects the unique building and open space relationships that are characteristic of the historic district.
4. Allow for architectural diversity that is compatible with the historic character of the district. Add new architecture that complements the surrounding resources and promotes activity in the area.
5. Encourage the design of buildings and open spaces that not only responds to Pier 70’s historic qualities but also strengthens connections to Dogpatch and Potrero Hill neighborhoods. Existing Bay view from Building 2 6. Encourage public access and views to the waterfront and connect shoreline parks and promenades with proposed open spaces that are integrated with development.
West elevation of Buildings 117 (1940’s), 115/116 (1917), and 113/114 (1886). Photo shows structures from three different periods of development: WWII, WWI and 1880’s.
5 8 | P ier 7 0 P referred M aster P lan different areas of Pier 70. The development zones are based largely largely developmentzones based differentareas The are of 70. Pier in development of intensity and type the describing for framework 9, Exhibit B programs. development specific support to needed be will ibility The Plan. are the which allowable under flex that anticipates Port Pier for are70, possible massing and heights building in variations and configurations are prescriptive. Otherbuilding they not but development, total of estimate this at werearrive layouts to studied (FAR)repair area. ship excluding the 3:1, of Various pad building an reflecting development, of squareoverall feet Area Ratio Floor gross million 3.7 approximately support would framework This development. new most the support can and vacant largely zoneis resources, one and related historic of areas clusters around ment develop Three identify zones built-out. densely become had 70 1860’s the through World War1940’s, the in complex II Pier when the of days shipbuilding Pierearly of from the 70, development of phases zonesfollow historical the the In presented. part, large Infill the and Criteria Development Design system space open site the with at integrated 70, development Pier infill zonesfor four Insummary, defining for provide studies foundation these the areprovided Appendix in A. studies planning site with associated exhibits DiscussionPlan. and the in promoted benefits public the support to necessary is which at 70, density Pier development increase in allowsignificant a to for differentapproaches analyzed that studies planning and site detailed flow chapter this from presentedin criteria and objectives The uilding uilding Pier 70 Infill Pier70 Development Zones F orm and Intensity Intensity and orm identifies the the Plan’sidentifies - - for new structures within the Pier the area. 70 within structures new for approach the forth set following principles The development. infill new major accommodate to opportunity best the offers it such, As Pier of 70’s majority from the separated Resources. Contributing physically is and today Resources. areavacant largely uting This is as identified have been and filled Non-Contrib were subsequently which slipways, ship former the of location the is area. 70 This Pier the of portion southeast Zone directedthe to is in 4 diagrams these in depicted development infill new the of majority A development. infill for places and ments improve pedestrian street and for locations out calls framework This Plan. the in proposed network space open the of elements and buildings by historic set relationships and groupings geographic on • • • • in the Plan. the in included development economic of density the core,support to from Pier away 70’sZone in located 4, construction historic new accommodate to heights building for Allowflexibility the and Bay.east, the to slipways filled the complex, Building 12 the between connection Recognizehistoric the pattern. circulation historic recall to the network space public the of part as corridors transportation railroad former and Respectexisting Pier to 70. adjacent and within spaces public and parks waterfront to linkages pedestrian and Retainvisual strong N A L P R E T S A M D E R R E F E R P 0 7 R E I P - 9 5 | -
8 FORM AND CHARACTER OF INFILL DEVELOPMENT 8 FORM AND CHARACTER OF INFILL DEVELOPMENT
HISTORIC BUILDINGS Mariposa Street
ZONE 1 Kneass ZONE 2 CRANE COVE PARK ZONE 3
18th Street ZONE 4
OPEN SPACE 50
SLIPWAY 4 SHIP REPAIR (HISTORIC USE) 110 68 58 FORMER PIER, WHARF, OR SLIPWAY 141 127 19th Street 109 PROPOSED BUILDING REMOVAL* 250 111
PIER 70 AREA BOUNDARY 36 6 *NOTE: BUILDING 21 PROPOSED TO BE RELOCATED 120 122 108 101 102 104 105 20th Street 123 103 107 19
113 23
114 14 115 64 21 116 21 2 3rd Street Illinois Street Indiana Street SLIPWAYS PARK Tennessee Street Minnesota Street IRISH HILL
12
PG&E
22nd Street
N 0 100 200 300’
Exhibit 9: Pier 70 INFILL Development Zones
6 0 | P ier 7 0 P referred M aster P lan plant property to the south is reused. is south the to property plant Mirant the Potrero when how extended be trates streets can power illus diagram The site. the traversed once that tracks rail historic CraneCove Park are from109, derived and Buildings through 113 Irish between connector Hill and north/south the Buildingand 6 street from Irish diagonal the as Hill such and Somelinkages, the of the Plan. in areas identified development infill and spaces, open streets, of system a organize which zones, development between PedestrianLinkages 10, Exhibit zones. the of each in development together Takentogether, tie connections space open and streets, pathways, Maintain Pier 70’s distictive skyline including cranes, drydocks, and ships. and drydocks, cranes, including skyline 70’s Pier distictive Maintain , illustrates the views and circulation patterns patterns circulation and views the illustrates , Visual and - criteria specific to each of the four four zones. the of each to specific criteria followed more district-wide, by detailed design development infill inform to criteria present general to organized been has criteria This construction. new to approach the influence also should district’s waterfront) the at (specifically conditions edge various the In zone. each of addition, character unique the well as as district-wide characteristics historical and architectural the ences refer that construction provide new for typologies approach an shipyard. These the of development historical the reflecting type, construction and period, by function, Buildings vary buildings. industrial of The wide variety 70 a Pier contains Historic District District Wide – Criteria Design Development Infill • • • • counterparts. will weather well and continue to complement their historic as permanent additions to the district using materials that Utilize high levels of craftsmanship. Design new buildings resources. historic on attention focus to serve also can old and new between contrast the that Recognize massing. and proportions, scale, size, features, materials, of terms in ings build historic the with compatible be to buildings new Design historicism. false avoid old; the from buildings new Differentiate purpose. and context, place, time, their reflect to buildings new Design N A L P R E T S A M D E R R E F E R P 0 7 R E I P - 1 6 | -
8 FORM AND CHARACTER OF INFILL DEVELOPMENT 8 FORM AND CHARACTER OF INFILL DEVELOPMENT
• Maintain significant relationships of the historic buildings and features to each other, to their setting, and to the historic context in which they are located.
• Determine the proximity of new buildings to old, and to each other, by the density of surrounding historic buildings. Main- tain spacing between new buildings that is equal to or greater than the distance between historic buildings in the given zone. Design • Incorporate design elements that are common to or compatible with the area’s design vocabulary; employ these treatments in new and creative ways while maintaining compatibility with the historic district.
• Respect the skyline and visual identity of the Pier 70 Historic District, particularly the interplay of visually prominent site features such as the shipyard cranes, floating dry docks, berthed vessels, and buildings along 20th Street.
• Locate parking garage entries and exits to avoid pedestrian alleys and passages to the extent feasible. Scale, Massing, Form, and Materials • Vary the scale, massing, form, and materials to maintain the complexity of the district, while respecting the historic context.
• Consider massing that steps upward and away from historic build- ings to emphasize these features and to sculpt new construction while also allowing for greater building height and variation. Top: Note red bricks with contemporary bond pattern. Bottom: A contemporary reinterpretation of a saw-tooth roof.
6 2 | P ier 7 0 P referred M aster P lan Multi-light windows Multi-light • • • • • character of the site. Retain existing and create new streetscapes that reflect the industrial functions. ground level to echo loading doors and reference historic industrialUse punched openings, arched openings, and larger openings at used judiciously, where they are needed to provide transparency.Use of multi-light windows is preferred. Glass curtain walls may be forms in new ways. tors, and Aiken roofs. Consider reinterpreting these historic roof Pier 70 Historic District, including double gables, saw-tooth, moniReference the character-defining roof forms found throughout the tively, use compatible new materials that are industrial in character.construction materials as is found in existing buildings. Alterna Use brick masonry, concrete, corrugated metal, and wood - - Plazas • • • • • • Integrate historic industrial objects as sculptural and interpre and sculptural as objects industrial historic Integrate appropriate. where paving concrete or asphalt monolithic of instead pavers unit Consider functions. active and passive of range a serve can that areas scape hard multi-functional bycreating uses new support also but shipyard’s the reflect Utilizethat materials character, industrial tation of the street. canopies extending from buildings to enhance the pedestrian orien Limit plantings and grass areas and consider utilizing industrial-type material movement features where feasible. Retain and expose rail lines, infrastructure corridors, and historic historic cobblestones along 20th Street. asphalt or concrete paving where appropriate. Consider exposing Consider unit pavers such as cobblestones instead of monolithic N A L P R E T S A M D E R R E F E R P 0 7 R E I P - - 3 6 | -
8 FORM AND CHARACTER OF INFILL DEVELOPMENT 8 FORM AND CHARACTER OF INFILL DEVELOPMENT
tative elements. Reuse of salvage materials from the historic district is highly encouraged.
• Incorporate interpretative displays into plazas and streetscape as appropriate.
• Use plant materials judiciously. Consider using free-standing, above-grade planters that highlight the additive nature of plantings.
Buildings • New buildings along 20th and Illinois Streets should have a substantial character, using Buildings 101, 102, and 104 as models. 20th Street in the future - a pedestrian and bicycle oriented place • Buildings internal to the site should create a foil against which the district’s Contributing Resources can be clearly identified. Buildings at the water’s edge should be designed to address their visibility from greater distances over open water. Buildings located in areas with remnants of historic features, such as slip- ways, should reflect the historical relationship of these features with the water and upland portions of the property.
• The design of buildings located adjacent to the shoreline must balance environmental considerations and complement historic district character. Avoid excessive use of glass in buildings that directly interface with the Bay or waterfront parks to reduce hazards to birds that may fly into the windows.
The courtyard area south of Building 113 is envisioned to become a vibrant public place.
6 4 | P ier 7 0 P referred M aster P lan Zone 1: zones. four the for criteria well as as plazas, and streetscapes, massing, scale, on Infillprovide direction Criteria Development Design additional Zones - Criteria Design Development Infill 104 and 102, 101, Buildings of elevations Rear Buildings 101, Buildings 102, 104. and • • connection with the surrounding neighborhood. neighborhood. surrounding the with connection Cove Crane Parkand 101 Building a create between to and Street Illinois provide to cohesion along buildings new Design models. as 104 and 102, 101, Buildings character, substantial a have using should and HistoricDistrict Pier 70 the and neighborhoods adjacent the between interface strong a establish Streetto need Illinois will along Newbuildings Illinois Street, North of 20th Street, and the area behind behind the area 20thand Street, of North Street, Illinois and workmanship of the surrounding buildings. buildings. surrounding the of workmanship and design high-quality the with compatibility achieving to approach reflectconscious a must New designed. construction adjacent 20th along buildings architect- Street are existing primarily The Zone 2: Illinois Street, South of 20th Street • • • • • • ibility with the neighboring historic structures. structures. historic neighboring the with ibility compat achieve to textures and details, materials, high-quality use structures, historic existing significant these with Consistent Street. Illinois of side west the Co. on Can Building American the Streets,recognizing while Illinois and 20th of corner northeast the on 101 Building with juxtaposition its of worthy architecture Streetshigh-quality with Illinois and 20th at Pier 70 to gateway the enhance Createand monitors. with gable or hipped, flat, including zone, this to adjacent buildings existing on found forms roof Echo Bay. the to buildings historic these from views maintain possible, extent the to and, tions reareleva existing their to visibility and access maintain to 104 and 102, 101, Buildings of north located buildings new Situate buildings. historic these for backdrop Street 20th from provide pleasing to a visible and 104 and 102, 101, Buildings of north buildings new Design 101. byBuilding established set-back existing the Street Illinois maintain to along buildings new Align N A L P R E T S A M D E R R E F E R P 0 7 R E I P 5 6 | - -
8 FORM AND CHARACTER OF INFILL DEVELOPMENT 8 FORM AND CHARACTER OF INFILL DEVELOPMENT
HISTORIC BUILDINGS Mariposa Street OPEN SPACE
INFILL DEVELOPMENT SITES Kneass CRANE COVE SHIP REPAIR (HISTORIC USE) PARK
PEDESTRIAN & VISUAL LINKAGES 18th Street
VEHICULAR LINKAGES
FORMER PIER, WHARF, OR SLIPWAY 50 SLIPWAY 4 110 Illinois Street PIER 70 AREA BOUNDARY 1 68 58 141 127 19th Street # ZONE NUMBER 109
250 111 Exhibit 10:
Visual & Pedestrian Linkages 36 6 120 This diagram indicates visual and 122 105 108 pedestrian relationships that are 101 102 104 20th Street 123 103 107 desired within and between the Plan’s 19 development zones. They are oriented 113 23
to provide connections between the 3rd Street 114 2 14 4 historic buildings, infill development 115 64 21 areas, and the waterfront. Some of the 116 21 linkages, such as the diagonal between 2 3 Irish Hill and Building 6 and the north/ SLIPWAYS PARK IRISH south connector between Irish Hill and HILL Visual and Ped. linkage 12 Crane Cove Park through Buildings 113 between Bldg. 12 & Bay and 109, are derived from a historic must be maintained PG&E pattern of rail movement within the site. The diagram also indicates how 22nd Street N streets can be extended when the Mirant 0 100 200 300’ Potrero power plant to the south is redeveloped in the future.
6 6 | P ier 7 0 P referred M aster P lan Top: Building 113- 115 west facades, looking northeast. Bottom: Building 101 Building Bottom: northeast. looking facades, west 115 113- Top:Building Zone 3: Their design should acknowledge this function. function. acknowledgethis should design Their Streets. 22nd and 21st of extensions proposed the at seen buildings gateway, secondary a zone form Buildings this in are they first as the • • • • • • and complement the historic corridor along 20th Street. 20th along corridor historic the complement and solidity, massing, the 101 echo Building to of form designed and be should plaza Street the of Illinois south along Newbuildings Street. 20th to 101 Building of role gateway the complements that arrival of providesense a UnionIron Works and 113/114) Shop (Building Machine the of elevation west the of view the maintain Streets will that Illinois and 20th of corner Providesoutheast the on plaza a Street. 20th of end the at 103, Building smokestack, iconic the to access visual Maintain windows, and Aiken roof forms. forms. roof Aiken and windows, steel metal, corrugated as such complex, 12 Building historic the to that relate configurations Feature roof and materials feet). 80 (approximately 2 Building existing the than higher no heights Allowbuilding zone. this in complex industrial the of centerpiece the as prominence its and 12 Building Highlight Building 12 Building Complex N A L P R E T S A M D E R R E F E R P 0 7 R E I P 7 6 |
8 FORM AND CHARACTER OF INFILL DEVELOPMENT 8 FORM AND CHARACTER OF INFILL DEVELOPMENT
Zone 4: Former Slipways and Waterfront Buildings in Zone 4 form an edge along the water. This edge should be porous, so that visual and physical connections between site and water are maintained. The design of new buildings in this zone forms the southern interface with the Mirant Potrero power plant site.
• Maintain visual and physical connections to the water by allowing views through buildings, as well as pedestrian corridors and pass-throughs • Design the ground floors of the buildings to complement and interact with pedestrian ways that connect the Bay to the inland portions of the site. Consider locating the most publicly- oriented functions of buildings on the ground floor and incor- porating active ground level uses wherever possible. Aerial view of slipways 5-8 • Design the new buildings to be visually prominent from the water, yet compatible in design with the surrounding historic Sustainable Development Practices fabric. The west facades of these buildings should reference the New and historic buildings need to meet the pressing environ- adjacent Building 12 complex, while the eastern facades should mental challenges of the 21st century related to climate change, be oriented to the open space and the Bay. The south facades sustainability, energy efficiency, water conservation and quality, should provide a coherent interface between Pier 70 and future and conservation of natural resources. Due to the waterfront development at the Mirant Potrero power plant site. setting of this project and its fill history, the Port, in consultation with its development and regulatory partners, will conduct further • Use the orientation of walkways, entries, and windows to analysis of appropriate climate adaptation strategies to respond to emphasize the historic connection between the Building 12 the impacts of projected sea level rise and associated potential flood complex, the slipways, and the waterfront. risks. • Buildings should be designed and oriented to protect micro- climate conditions to support a high level of public access and enjoyment of Slipways Park.
6 8 | P ier 7 0 P referred M aster P lan water Design Guidelines. Design water Port’s the with compliance and review to subject be will ties Storm facili new or rehabilitated into incorporated measures management stormwater. manage and capture to Stormwater means best the as serve may design rooftop building vegetation, planted limit that criteria district historic and fill, contaminated of presence potential the site, the of conditions subsurface unique to Due runoff. water storm managing is concern sustainability site-based key A Plan. Port’s the with consistent development, new of Action Climate impacts footprint carbon reduce to traveled miles vehicle and emissions, usage, vehicle of reduction and systems, conservation and generation energy alternative on-site The encourage will Port Standards. Secretary the with consistent is that manner a in district historic the improvements into sustainability integrate successfully to effort an in analysis this in objectives preservation historic its prioritize will The goals. Port address to sustainability Port and City and district, historic the to apply standards how these on focus particular a have will analysis This project. sustainable a achieve to direction provide may equivalent or standards New and Construction ment Neighborhood Develop LEED Green U.S. Council. Building bythe developed Green System, (LEED) Rating Design Building Environmental and Energy in Leadership the of applicability the determine to partners development The its with work will Port - - - - Bottom: Solar Power and Wind Energy Generation Energy Wind Powerand Solar Bottom: Top:Roof Green N A L P R E T S A M D E R R E F E R P 0 7 R E I P 9 6 |
8 FORM AND CHARACTER OF INFILL DEVELOPMENT 9 TRANSIT, CIRCULATION, AND PARKING
Pier 70 will be a transit-oriented development, with mixed-mode streets designed for pedestrians, bicyclists, and transit as well as automobiles.
7 0 | P ier 7 0 P referred M aster P lan movement. TheENTRIPSwillincludetravel demandgenerated by improvements tobicycle andpedestrian traffic,parking, andgoods cisco County Transportation Authority toprioritize anddevelop (ENTRIPS) withthePlanning andtheSan Department Fran - Eastern Neighborhoods Transportation Implementation Study The Municipal AgencyisleadingacoordinatedTransportation levels.prioritizes toincrease resources transitservice andservices promotes highlevels oftransit,pedestrian,andbicycle accessand developmentto designandmanagenew atPier 70thatactively haveand itsdevelopment ajointinterest partners andresponsibility require significantuseofalternative modesoftravel. Thus,the Port the existingstreet network, successfuldevelopment atPier 70will ning process suggeststhat,given theavailable vehicle capacityof analysisconductedduringtheplan- transportation The preliminary development thenew envisionedfor Pier toserve 70. service public transit.In addition,thePlan identifiesalocationforferry Access illustratestheaccessibilityofPier 70tocurrent andplanned Street adjacenttoCrane Cove Park. Exhibit 11,Pier 70 Transit and 19thStreets willprovide anadditionallightrailstoponIllinois A plannedturn-around loopforMUNIlightrail,between 18th only oneblockwest ofPier 70andincludesastationat20thStreet. MUNI’sservices. Third Street lightrailcorridor(the T-Line) is of existingMUNIbusandlightrail,Caltraincommuterrail transit andpedestrianamenities.Thesiteiswithina7-minutewalk proximity tothesite,enablingfuture development orientedto Pier 70benefitsfrom regional andcitytransitsystemsinclose CHAPTER 9: TRANSIT, CIRCULATION, AND PARKING AND CIRCULATION, TRANSIT, 9: CHAPTER 1. improvements. tion thearea service totakeadvantage ofoff-sitetransportation developmentinfrastructure asintegralelementsofnew andposi- and The following objectives services promote transportation Objectives viability ofthearea asacommercial andemployment destination. studies indicatethatadequateparking isessentialtothesuccessand opment neededtomeetthepublicobjectives ofthePlan. Market parkingtion, thePlan facilitiesforthesubstantialdevel supports - shiprepairaccess tosupport andindustrialoperations.In addi- Pier needswillrequire 70transportation truck andservice efficient Neighborhoods over thenext20years. tion improvements growth willbetimedtosupport intheEastern Pier 70development asenvisionedby- thePlan. Thesetransporta
as connectionstopublictransit systems. access Mission Bay andotherhighdemanddestinations,aswell may offeracost-effective optiontargetedto local shuttleservice sion Bay, Pier 70,andother Central Waterfront areas. Similarly, Mis thatcouldserve - service strategic locationtointroduce ferry Given thesize ofdevelopment contemplated,Pier 70offersa tions between Pier 70 and other public transit hubs. Increase public transit service by providing ferry and shuttle connec N A L P R E T S A M D E R R E F E R P 0 7 R E I P
1 7 | -
9 TRANSIT, CIRCULATION, AND PARKING 9 TRANSIT, CIRCULATION, AND PARKING
TO MISSION BAY & BART POTENTIAL SHUTTLES Mariposa Street
3RD STREET LRT MUNI
LRT MUNI STATION Kneass
PIER 70 AREA BOUNDARY
18th Street
50
SLIPWAY 4 110
68 58 141 127 19th Street 109
250 111
36 6 120
122 108 101 102 104 105 123 103 107 FERRY TERMINAL 20th Street 20th Street 19
113 23
114 14 115 7 M INU 64 21 TE W 116 ALK 21 2
3rd Street Illinois Street Indiana Street Tennessee Street Minnesota Street IRISH HILL 12 CALTRAIN STATION 22nd Street
N 0 100 200 300’
Exhibit 11: Pier 70 Transit Access
7 2 | P ier 7 0 P referred M aster P lan 3. 4. 2. 5.
commercial, and entertainment activity. trian-oriented gateway to Pier 70 and as a vibrant hub of cultural, ing truck traffic will enable 20th Street to be improved as a pedes to provide truck and service access directly to the shipyard. Rerout The Plan calls for 19th Street to be extended eastward into Pier 70 passages that reflected the flow of activities necessary to support The historic shipyard operations at Pier 70 relied on a network of development. Introduce a network of pedestrian ways integrated with new Create walkable andbikeable streets. power plant site. the option of possible future connections into the Mirant Potrero and internal access routes. These street improvements will preserve interface with the network of Pier 70’s historic rail spurs, pathways, Plan promotes creating north-south streets through the site that the waterfront with adjacent neighborhood districts. Similarly, the Streets from the existing city street grid to integrate Pier 70 and The Plan provides for the extension of 19th, 20th, and 22nd from the Dogpatch and Potrero Hill neighborhoods. Establish a street system within Pier 70 that connects with the street grid trial access to the shipyard Extend 19th Street access to ensure continued reliable maritime indus bicycle circulation. paths, and traffic-calming designs to give priority to pedestrian and spaces, development should include generous sidewalks, bicycle and vehicles. Recognizing that public streets are important public allow flexibility in programming space for pedestrians, bicycles, The street rights-of-way within the Plan (including Illinois Street)
.
- - - proposed development program. for pedestrian and non-vehicle access and circulation,may depending be flexibly on theprogrammed in many configurations to addressparking. demandSince street rights-of-way are recognized publicparking. spaces, The Planthey does not prescribe locations or amountsstreet ofwidths on-street reflected in the Plan can be designed tosquare permit feet on-street of floor area. In addition to off-streetspaces, parking representing facilities, athe maximum of one space for each historic1,000 gross setting. Together they represent a potentialto avoid forover-concentration 2,900 parking of vehicles and to be sensitivesuggests tosix Pier different 70’s locations for parking facilities,The infillwhich developmentwere sited density analysis summarized in Appendix A 6.
undeveloped sites. Plan will permit anticipated surface parking on an interim basis on secured bike storage, car pool vehicles, and car-share vehicles. The presumes that any parking facility will include accommodations for as the topography of the site and cost parameters allow. The Plan rages. Opportunities for below-grade parking should be optimized within mixed-use buildings, which is prefered over free-standing ga 70. The Plan anticipates that most parking will be above-grade, considered essential to the success and economic viability of Pier program will still need to provide for cars and efficient parking, The improvements for Pier 70 will be pedestrian-oriented but the on a market-rate pricing basis, consistent with smart growth objectives. Locate and manage parking facilities to promote shared use operated pathways within new development. promotes preserving many of the remaining segments as pedestrian shipbuilding, ship repair, and manufacturing operations. The Plan N A L P R E T S A M D E R R E F E R P 0 7 R E I P 3 7 | -
9 TRANSIT, CIRCULATION, AND PARKING 10 IMPLEMENTATION STRATEGY
Aerial photo of Pier 70 area looking east, 2007
7 4 | PIER 70 PREFERRED MASTER PLAN financial requirements, including: Pier 70presents andchallenging uniquedevelopment opportunities Strategy Implementation strategy isrequired torealize thevisionandgoalsofPlan. the goals,objectives, andcriteria.Asophisticatedimplementation development needsandremains opentootherideasthatrespond to appropriately considersandbalancesPier 70’s manypublic and that thissiteoffersanditscomplexities.The believes the Port Plan nated inthePlan reaffirmed opportunity boththeextraordinary The communityplanningprocess andtechnicalanalysesthatculmi- CHAPTER 10: 10: CHAPTER • • • • • adjacent tothepiersand wharves. industry, includingmore land-sidestagingarea immediately improvements needsofthisevolving tomeet thecontemporary Ongoing shiprepair operationswillrequire significant development. New parks andopenspaceamenitiesmustaccompany Site environmental conditionsrequire remediation. usescontemplated,andmustbe replaced.the new thesiteisinpoorcondition, notsuitedto Infrastructure serving structures forlateradaptive reuse. uses.Earlyinvestmentbuildings tonew isneededstabilize Historic resources needabroad rangeofimprovements toadapt implement thePlan’s goals. including somereferenced inthisChapter, willberequired to through lawstohelprebuild new Pier 70.Further changestolaw, Voters and lawmakershave recognized thisunique opportunity 2. Thepublicbenefitsdelivered by Pier70mustbetailored to 1. Pier 70willprovide the majorpublicbenefits by preserving Underlying theimplementationstrategyare twoprincipalbeliefs: thepublicinterestcally tosupport intheadaptive reuse ofthesite. thatfederal,state,andlocallawcanbemodifiedstrategi- viewpoint Port staffandCitypolicymakershave approached Pier 70from the • • the siteanditsBay setting. public accesstoSan Francisco Bay. creating ajobscenter, parks new and andconstructing contamination, sustainingtheshiprepair industry, historic resources atthesite,remediating legacyenvironmental require improvements, transportation includingparking. New development andtheongoingshiprepair operationswill reconstruction; and Piers, andshoreline areas wharves, require demolition,repair, or N A L P R E T S A M D E R R E F E R P 0 7 R E I P 5 7 |
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Pier 70 Policymakers other members of the City family, many of which participated in Mayor Gavin Newsom, the San Francisco Board of Supervisors the Pier 70 planning process. They include the Office of Economic (“the Board”), the San Francisco Port Commission, the San Fran- and Workforce Development, Planning Department (including cisco Planning Commission, the San Francisco Historic Preserva- the Planning Commission and Historic Preservation Commis- tion Commission, and San Francisco voters have recognized the sion), Municipal Transportation Agency, and the Public Utilities compelling opportunities offered at Pier 70 by adopting new laws Commission. to facilitate the extraordinary public-private partnership required to realize its potential. The Port is honored that such a strong policy Regulatory and Administrative Partners consensus has formed to support this initiative and stands ready to Because implementation of the Plan will occur over an extended work with policymakers to achieve additional legislative changes period of time, it must respond to evolving ideas and markets, to aid implementation. Successful implementation will require which mandates flexible land use controls that respect the historic reducing development uncertainty, preparing for future market district. While the Port Commission will provide direction, Pier 70 demand, and creating sustained public-private partnerships that can is not a project the Port can undertake alone. Ultimately, its success secure the necessary approvals and funding to realize the vision for requires collaboration with the Port’s ship repair operator, public Pier 70. stakeholders, the development community, and the full range of public agencies that have oversight over all or part of Pier 70. The Port of San Francisco is self-funded from revenues gener- ated by its waterfront property. Under the 1968 Burton Act and The Port has successful relations with federal, state, and local agency implementing San Francisco Charter provisions, the San Francisco regulatory and administrative partners, which have gained an Port Commission manages and develops Port properties on the in-depth understanding of Pier 70. By maintaining these relation- City’s behalf, as trustee of these public lands. As trustee, the Port is ships and seeking early advice from these partners, the Port seeks required to promote maritime commerce, navigation, and fisheries, to streamline the regulatory compliance process for future develop- protect natural and cultural resources, and develop recreational ment. Approaching the regulatory process in such a collaborative areas for public use to benefit California citizens. manner provides a more coherent and predictable development entitlement process for Pier 70. Each public partner’s role in In this context, the Port Commission is responsible for policies successful implementation of the Plan is discussed below. and plans that govern the use of its properties and for setting the conditions for seeking developers for public-private development opportunities. To do this work, the Port coordinates closely with
7 6 | PIER 70 PREFERRED MASTER PLAN reuse programs andcostestimatesprepared forthePlan. OHPstaff National Register. The hasdiscussedwithOHPconceptual Port work withOHP, SHRC, andNPStolistthehistoricdistrictin oftheplanningprocess. The nation aspart willcontinueto Port OHP, whichprovided earlyreview ofthePlan anddraftnomi- consultant,Careypreservation &CompanyInc consultedwiththe National Register ofHistoric Places. The anditshistoric Port Historic District nominationtotheNPS,whichadministers OHP andSHRC reviews andmakesarecommendation onthe shipbuilding andarchitectural andengineeringsignificance. In thiscase,thecontextstatementwillfocusonsite’s historical cance thatisthebasisforlistingaresource ontheNational Register. The historiccontextstatementisanaccountofthehistoricalsignifi- resource, whichare componentsofaNational Register nomination. context statementandarchitectural descriptionsforeachPier 70 and isagoalofthePlan. The hascompletedadrafthistoric Port Historic District hasbeenacenterpieceofthePort’s planningeffort agencies, andcommunity. Establishing aPier 70National Register stakeholders,regulatory analysis andconsultationwithpreservation planning process, includingextensive historicresource research and complex andthecaliberofremaining buildingshasdriven the The significanceof Pier70asahistoricshipfabricationand repair Listing Historic District Historic Preservation NationalRegister Commission (HPC): Francisco (NPS),San NationalParkCommission (SHRC), Service ofHistoricOffice Preservation (OHP), State Historical Resources 20th Street andFacade ofBldg113/114c. 1945 defining historicfeatures andmostsignificant resources of Pier70. to arrive atanadaptive reuse thecharacter- strategythatpreserves understands how thePlan balancescompetingpublicobjectives N A L P R E T S A M D E R R E F E R P 0 7 R E I P 7 7 |
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In addition, Port staff made an informational presentation on the draft of the Plan to the HPC which recognized the importance of Pier 70 to the City and supported the Plan and historic preserva- tion strategy. The HPC will comment to OHP on the National Register nomination. The Port has and will continue to seek as part of the historic district nomination process, OHP guidance on how to appropriately design and site buildings at Pier 70, with the explicit understanding that new development is essential to preserving the historic district. The Port will explore other possible implementation tools to facilitate historic preservation efforts such as committing to pre-determined processes to manage review of specified types of historic resource improvements and new infill development. This mechanism could provide the Port with delegated authority to address ongoing and recurring compliance issues regarding consistency with the Secretary Standards. Such an approach would provide assurances to the historic preservation community and OHP that the Pier 70 Historic District and its resources are rehabilitated in an appropriate manner and that new infill development is sensitive and appropriate to the character of the Pier 70 area.
Roles of Historic Partners: • Review and make determinations on the Port’s nomination of Pier 70 to the National Register of Historic Places (OHP and NPS)
• Review and approve of applications for rehabilitation tax credits (OHP and NPS) Interior of Building 113/114, 2005
7 8 | PIER 70 PREFERRED MASTER PLAN that cultural,institutional, office,biotech,othercommercial, and tions apply. Market potentialandcommunity consensussuggest bearsonwhere use publictrust restric- This complicatedhistory ownership. andseveral parcelstrust, have beeninandoutofprivate andfederal uplands thatwere never submergedtidelandssubjecttothepublic ofthePiersite from portions private 70siteare parties; historic Trust Preliminary Title History. The acquired ofthe Port portions the Pier 70area ismore complex,asdepictedinExhibit 12,Public Burton Act transfertotheCity, oflandswithin butthetitlehistory was undercontinuousState ownership from 1850untilthe1969 ture hasexpressly terminatedtheState’s interest. Most Port property submerged landseven aftertheyhave beenfilled,unlessthelegisla- continuestoencumberpublicly-ownedThe publictrust tidaland enjoyment lands,are oftrust alsopermitted.” uses,orthataccommodatethepublic’s fortrust and necessary dental usesthatdirectly uses,are promote trust directly supportive wildlife refuges, scientificstudy, orinci- oropenspace.Ancillary Public landsmayalsobekeptintheirnaturalstateforhabitat, trust fisheries andnavigation,environmental and preservation recreation. those thatare waterdependentorrelated, andincludecommerce, Lands Commission,“Uses lands…are oftrust generallylimitedto California Attorney General. According totheCaliforniaState isadministeredpublic trust by State Landsandenforced by the and tidelandsthatoriginatedinRoman law. In California, the isaformofpublic The publictrust ownership ofsubmergedlands State Lands Commission (State Lands): Public Trust Realignment Roles: Mission Bay, Treasure Island, andtheHunters Point Shipyard. swapsat Plan. TheCityhasobtainedlegislationpermittingtrust otherareas uses,consistentwiththe reserving fortrust-consistent ofPier usesinportions development 70,while ofnon-trust legislation authorizinga“trust swap.” Theswapwillenablethe Exhibit 13,Preliminary Public Trust Exchange Concept, through designationswithinthePierthe publictrust 70siteasdepictedin and titlehistory, Port andState Landsstaffanticipate rearranging interests atPier 70.Based oncurrent knowledge ofPier 70’s trust working actively withState Landstoreconfigure the State’s trust To resolve issuesinthePier thepublictrust 70area, thePort is overarching goals. generating therevenues neededtorealize Pier 70’s potentialand 70, asreflected inthe Plan. Higher land value usesare essentialto atPier shouldbeconstructed not consistentwiththepublictrust, perhaps alimitedamountofresidential uses,mostofwhichare • • • • public trust designations public trust Collaborate indraftingandobtaininglegislationto realign the Administer andoversee areas usesinpublictrust Determine andreconcile restrictions locationsofpublictrust status Review tidelandstrust N A L P R E T S A M D E R R E F E R P 0 7 R E I P 9 7 |
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Exhibit 12: Public Trust Preliminary Title History
8 0 | PIER 70 PREFERRED MASTER PLAN E xhibit 13: P 13: reliminar y P y ublic T rust E xchange C oncept N A L P R E T S A M D E R R E F E R P 0 7 R E I P 1 8 |
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San Francisco Bay Regional Water Quality Control Board These conditions must be thoroughly evaluated and accommodated (“Water Board”): Environmental Remediation in the design, construction, and long-term management of develop- Resolving the environmental legacy of 150 years of industrial use ment at Pier 70. is critical to the Plan’s implementation. Virtually all of Pier 70’s historic buildings will require abatement of hazardous building Various entities have conducted numerous environmental investiga- materials such as asbestos and lead-based paint. The soil throughout tions of limited portions of Pier 70 over the past 20 years. Most the site contains potentially hazardous constituents, including natu- recently, as part of this planning process, the Port investigated the rally-occurring asbestos in the native serpentine rock that comprises shoreline along the planned Crane Cove Park. With a grant from the historic uplands. This serpentine rock was used to fill former the United States Department of Defense, through the United tidelands to create portions of Pier 70. The soils at the site contain States Department of Commerce, Economic Development Admin- metals, petroleum and related compounds, chlorinated hydrocar- istration (EDA), the Port has initiated an investigation of contami- bons, and may contain polychlorinated biphenyls resulting from nants in soil, groundwater, and soil gas throughout the area. When former industrial activities. Volatile compounds, such as certain complete, this investigation will identify impacts from historic uses petroleum hydrocarbons and/or methane generated by degrada- and naturally-occurring materials that could affect future develop- tion of organic matter, do not appear to be present at concentra- ment and will inform design and cost-estimating for future devel- tions that pose a risk of intrusion into overlying buildings, based on opment. The Port will also use EDA funds to survey hazardous March 2010 information. building materials in the historic buildings. These data will support and inform public trust discussions with State Lands, regulatory Based on the Port’s current understanding of the type and concen- approval of land use and construction plans, and financial arrange- tration of potentially hazardous constituents in soil, groundwater ments and remediation strategies with future developers. Prior and soil gas at Pier 70, the Port anticipates that capping soil in knowledge of site conditions and the potential need for environ- conjunction with new construction and parks and open space mental remediation and design and construction requirements improvements will enable contaminants to be safely managed in related to environmental conditions will ease Plan implementation. place, as has been the case throughout much of Mission Bay area development. In some portions of Pier 70 or certain types of construction, additional measures, such as excavation and removal of soil or addition of vapor barriers in new construction, may be required. The required measures and conditions that would trigger their use will be established in the Risk Management Plan for Pier 70.
8 2 | PIER 70 PREFERRED MASTER PLAN relevant ofPier portions 70. will approve aremedial actionplanor riskmanagementplanfor for soilandgroundwater investigation andremediation atPier 70) present atthesite.The Water Board agency (thelead regulatory to off-sitedisposal,dependingonthetypesofmaterials thatare capping-in-place (covering toprevent contactwithcontaminants) later intheyear. Anticipatedremediation measures rangefrom and publishafeasibilityanalysisofpotentialremedial alternatives gation. The willcomplete thesiteinvestigations in Port May 2010 be determinedbasedonthefindingsofenvironmental investi- nants present atthesitebefore, during,andafterdevelopment will The specificmeasures required to remediateormanagecontami- Site conceptual ofenvironmental model investigation. Contact Dermal A PCOCs VOCs PAHs PCBs TPH NOA SF Bay Ingestion EXPLANATION Dense non-aqueousphaseliquid(DNAPL) Heavy degradedhighlyviscouspetroleum Potential contaminantsofconcern Polychlorinated biphenyls Polycyclic aromatichydrocarbons Naturally occurringasbestos hydrocarbons Total petroleumhydrocarbons Volatile organiccompounds Invertebrates DNAPL -PotreroPowerPlant Surface Runoff Water Crane Cove Park User Infilled Slip3 Construction Debris Contact Bay Fill Dermal B36 Terrestrial Contact Wildlife Building number Groundwater flow Soil vapor Water table Groundwater Flow Surface Ponded Water B110 Construction Workers Metal Fabrication, Residue inSoil DustGeneration DustInhalation Paint Shop, Oily TPH Welding Plating, B109 SERPENTINE PAHs Metals BEDROCK Containing BAY MUD BAY FILL Metals Excavator NOA Operator Roles: and Toluene • • • in SoilGas Benzene Welding Plating B36 site use restrictions, ongoingreporting, orotherobligationsonthe Oversee remedial actionand,ifconditionswarrant,imposeland the environment, whilerespecting thegoalsofPlan address contaminationonthesiteandprotect humanhealthand Approve aremedial actionplan orriskmanagementplanto Oversee environmental investigations DustInhalation Powerhouse Transformer B104/ 105 Percolation Machine B113 Shop NOA Metals PAHs Groundwater B114/ 115 Leaching to Machine Shop Workers/ Visitors DustInhalation Date PIER 70ENVIRONMENTALSITEINVESTIGATION N A L P R E T S A M D E R R E F E R P 0 7 R E I P INITIAL SITECONCEPTUALMODEL 06/11/09 B116 San Franciso,California Project No. NOT TOSCALE 4963.01 B117 IRISH HILL SERPENTINE Figure BEDROCK Metals NOA 14A A' 3 8 |
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San Francisco Bay Conservation and Development Commission (BCDC): Shoreline Public Access and Fill Removal BCDC’s mandate is to regulate shoreline development, prevent Bay fill except in limited circumstances for water-oriented uses, and ensure maximum feasible public access to the Bay. BCDC exercises its authority through adopted plans and regulations covering any use or development projects in the Bay or within 100 feet of the shoreline. BCDC’s San Francisco Bay Area Seaport Plan provides a Pier 70 site-specific policy to reserve a 16-acre area for ship repair.
Presently, the shoreline at Pier 70 is inaccessible and unsafe for public use. This Plan reserves approximately 2,500 linear feet for both shoreline public access and continued ship repair operations. The Port has consulted with BCDC, which supports of the Port’s Pier 70 master planning effort. Any development proposal for Pier 70 within BCDC’s jurisdiction will be subject to BCDC review and BCDC: Enhancing public access to the waterfront. approval. Roles:
• Administer, enforce, and modify if required, the San Francisco Waterfront Special Area Plan
• Administer, enforce, and modify if required, the Bay Area Seaport Plan
• Issue permits for development areas of the Pier 70 plan
8 4 | PIER 70 PREFERRED MASTER PLAN mental Quality Act (CEQA). review ofdevelopment projects pursuanttotheCaliforniaEnviron- istheCity’sDepartment leadagencyforconductingenvironmental care towhichcompetingneedswere balanced.Finally, thePlanning Plan andexpressed forthepolicydirectives strong support andthe sions eachreceived aninformationalbriefingsonthedraftofthis September 2009,thePlanning andHistoric Preservation Commis- ensure thatPort andCitylandusepolicies remain consistent. In conforming amendmentstotheSan Francisco General Plan to Pier 70-specificamendmentstoits Land Waterfront Use Plan and the EasternNeighborhoods rezoning context.The anticipates Port been discussedwiththePlanning andisanticipatedin Department in someform,includingchangesheightlimits.Thisneedhas ated industrialactivities.New development willrequire rezoning Port’s historicandongoingneedtopromote maritimeandassoci- Pier 70iscurrently zoned M-2,Heavy Industry, areflection ofthe Plan, Planning Code,orZoning. Board ofSupervisors alsoapproves anyamendmentstotheGeneral use regulations intheCity’s Planning CodeandZoning Map. The Historic Preservation Commission,establisheszoning andland those policies,thePlanning Commission,inconsultationwiththe cies through theSan Francisco General Plan. Consistentwith The Planning Commissionestablisheslanduseplanningpoli- Aligning Zoning andGeneral Plan Policies Commission ofSupervisors: Commission, Board and Port FranciscoSan PlanningCommission, Historic Preservation Roles: Bay Mission • • Prepare CEQA andcertify documents General Plan, Planning CodeorZoning Review andapprove changestothe Waterfront LandUse Plan, N A L P R E T S A M D E R R E F E R P 0 7 R E I P 5 8 |
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San Francisco Board of Supervisors: Public Finance and Leasing Proposition D: Pier 70 Finance and Land Use Plan of Pier 70 In November 2008, San Francisco voters modified the City’s The San Francisco Board of Supervisors (“the Board”) will be asked Charter to facilitate the revitalization of Pier 70. Approved by 68 to authorize critical public financing tools that allow the growth percent of voters, Proposition D established a process for the Board in property, payroll, and other taxes to be reinvested in Pier 70. to approve a financial and land use plan for Pier 70 early in the Through successful legislative initiatives discussed below, the Board implementation process (Pier 70 Plan). Board approval of the Pier has new authority to allow such reinvestment. 70 Plan will constitute approval of any lease implementing the Pier 70 Plan if a number of administrative conditions are satisfied. Infrastructure Financing District In addition to increasing certainty in the Pier 70 entitlement The Port secured state legislation, Senate Bill 1085 (SB 1085), process, Proposition D represents an extraordinary public commit- which became effective January 1, 2006, and provided the authority ment to invest public monies in Pier 70. It allows the Board to allo- for the Port to create infrastructure financing districts (IFDs) to cate to Pier 70 a 20-year funding stream of up to 75 percent of the fund public infrastructure improvements, subject to approval by the projected growth in any payroll and hotel taxes from Pier 70 devel- Board. An IFD operates in substantially the same way as a redevel- opment. In order to receive Proposition D funding, the Port must opment area – it creates a district that can capture future growth demonstrate that additional financial resources beyond property tax in property taxes to fund needed capital improvements. Pursuant increment and lease revenues are needed for the project. The funds to SB 1085, the Board may authorize the capture of the local San must be used to fund waterfront parks, preserve or repair historic Francisco share (65%) of property tax growth. waterfront properties, seismically strengthen piers and structures, remediate environmental conditions, and support maritime facili- In 2010, the State Legislature is considering AB 1199, which would ties within the Pier 70 area. Proposition D resources could be used expand the Port’s infrastructure financing powers. If enacted into on a pay-as-you-go basis or to support revenue bonds. law, AB 1199 would allow an IFD for Pier 70 to capture 90% growth in property taxes from Port revitalization efforts in the Pier 70 area. AB 1199 would require the Port to spend at least 20% of total Pier 70 IFD revenues on waterfront parks and public access to the Bay, environmental remediation of the contaminated shoreline, and removal of Bay fill.
8 6 | PIER 70 PREFERRED MASTER PLAN Ship repair yard, 2004 Board of Supervisors Roles: Board ofSupervisors Building 101 • • • consensus tore-create Pier 70asaneconomichub federal legislationandappropriations, andmaintainthecivic seek stateand Assist inattractingkeydevelopment partners, Establish infrastructure financingdistrict sition D Approve Pier 70Finance andLandUse Plan, pursuanttoPropo- N A L P R E T S A M D E R R E F E R P 0 7 R E I P 7 8 |
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Related Planning Efforts design guidelines for Blue Greenway public improvements and Several citywide Planning efforts will inform Pier 70’s imple- installations. This planning process will provide the public forum mentation. The Port is participating in or closely following these for developing a concept design for Pier 70’s Crane Cove and Slip- initiatives. ways Park and for determining how open space funding allocations for Port lands, approved by the 2008 Proposition A, Clean and Blue Greenway Planning Safe Neighborhood Parks Bond measure, will be utilized. The Blue Most of the land along the Bay shoreline in the southeast sector of Greenway community planning process is underway and will be San Francisco is or has been used for industrial activities, and was completed in 2010. off limits to the general public. The Blue Greenway is a City effort to expand and improve public access and open space from China Basin Channel south to the San Francisco county line. This effort evolved from two other efforts to introduce public access and open space along the Bay, including the San Francisco Bay Trail, a 500 mile public access system encircling San Francisco Bay through all nine Bay Area counties, and the Bay Water Trail, which seeks to expand access to and within the Bay waters for recreational access and appreciation.
The purpose of the Blue Greenway is to create an organized system of existing and new public open spaces, which improve and connect with the Bay Trail and Bay Water Trail. The Blue Greenway will expand recreational and water-oriented activities and green corri- dors to surrounding neighborhoods. Given the location of land under the Port’s jurisdiction in southeast San Francisco, Port sites have been identified in the Blue Greenway, including public open spaces proposed for Pier 70.
The Port is leading the City’s Blue Greenway community planning Illustrative Rendering of Crane Cove Park and Blue Greenway process to define and prioritize open space locations and develop
8 8 | PIER 70 PREFERRED MASTER PLAN rich neighborhoods. tremendous tocreate opportunity integrated,mixed-use, transit- combined development potentialandrichtransitaccesspresent a light rail,BART, Caltrain,andfuture high-speedrail.Thearea’s including Munikey localandregional transitservice, busand years willoccurintheseareas. Theseneighborhoodsalsocontain the City’s residential new andcommercial growth over thenext20 Transbay District, RinconHill, andMission Bay. Themajorityof together withsurrounding high-growth areas of Western SoMa, Showplace Square/Potrero Hill, andtheCentral Waterfront, Eastern Neighborhoods, whichincludeEasternSoMa, theMission, EN network ofSanTRIPS willstudythetransportation Francisco’s planningwithEN portation TRIPS. are amongtheareas considered. The willcoordinatePort itstrans- Neighborhoods over thenext20years. Pier 70andotherPort sites infrastructure growth projects timedtosupport intheEastern tion impactsby identifyingkeytransit-oriented,pedestrian-friendly expected torecommend ameanstominimize future- transporta the San Francisco County Transportation Authority. EN TRIPS is San Francisco MTA, theSan Francisco Planning and Department, EN TRIPS isacoordinated between the multi-agencypartnership (ENTRIPS) ning Study TransportationEastern Neighborhoods Implementation Plan- Mirant Potrero Power Plant, 2009 plansforthissiteareas new developed. uses. The expectstocoordinatePort closelywithotherCityagencies and theCitywillwork withthelandowner totransitionnew the south.Thisfacilityisexpectedtoclose by December 31,2010, The Potrero power plantoccupies20acres adjacentto Pier 70to Potrero Power PlantClosure N A L P R E T S A M D E R R E F E R P 0 7 R E I P 9 8 |
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Mello-Roos Community Facilities District (CFD) Public Financing Tools The Port recognizes that the financial requirements to adaptively This land development financing tool is used to fund infrastructure reuse Pier 70 will require a full range of public and private financing improvements with land-based bonded debt. A CFD could be used sources and mechanisms integrated in a comprehensive financing to establish a special tax on property within the district. These tax strategy. A substantial portion of the funds needed for development revenues can secure CFD bonds for qualifying capital improve- of infrastructure and public facilities and to rehabilitate historic ments and can also support ongoing maintenance and services. structures will come from real estate revenues generated by reha- Such a special tax typically would be paid by building owners or bilitated buildings and new development. Financial analyses to date ground lessees, although it can be initially structured to be paid by demonstrate that the economic value of new uses at Pier 70 cannot the site developer. fund the extraordinary combined costs of historic rehabilitation, Infrastructure Financing District (IFD) environmental remediation, parks, and new infrastructure. Public financing mechanisms are required to close the feasibility gap. This An IFD allows for growth in future property taxes to be reinvested section discusses potential public financing tools in this implemen- in the project. This revenue stream can be capitalized with tax- tation effort from the most common for similar projects to those exempt bonds or used on a pay-as-you go basis. Property taxes grow specific to Pier 70. significantly after rehabilitation and development is underway, making this tool valuable only when public finance markets know Federal Rehabilitation and New Market Tax Credits that an adequate property tax revenue stream will be available to The Pier 70 Historic District designation will provide financial pay back the bonds. Property tax-based financing is a common benefits to support implementation. Private investment in reha- tool used for redevelopment and new development projects in bilitation of historic structures listed on the National Register can California. qualify for tax credits for up to 20 percent of preservation costs Park and Open Space Funding Mechanisms under the Federal Historic Preservation Tax Incentives program. The site is also in an economically disadvantaged area, which allows In February 2008, San Franciscans approved the Proposition for a potential allocation of New Market Tax Credits to attract A, Clean and Safe Neighborhood Parks Bond initiative, which private investment for economic development. provides $33 million in general obligation bond revenues for the expansion of waterfront public open space on Port proper- ties. Of this amount, $20 million is dedicated to support the Blue Greenway open space network, expanding the San Francisco Bay
9 0 | PIER 70 PREFERRED MASTER PLAN and initialstepsforremediation The willcontinuetopursue Port million infederalfunding toinvestigate environmental conditions upgrades totheshiprepair facility. The hassecuredPort $2.4 in securing$1.8million federaleconomicstimulusfundsfor applicable improvements. For example,thePort assistedBAE continue topursuegrantsandotherpublicfunding sources for operator, thecommunity, andfuture will development partner(s) The incollaboration withCitypolicymakers,theship Port, repair Grants orLow Sources Cost Debt included inAppendix E. Amendmentis erate theimplementationofPlan. TheCharter revenuepayments couldalsobeusedtosupport bondstoaccel- based uponprojected growth inpayroll andhoteltaxes. These tion D,whichallows theBoard toallocatea20-year fundingstream In November 2008,thecitizens ofSan Francisco passedProposi- Proposition DFinancial PlanFunding funding. possible recipient offuture Citypark impactfeesandotherpublic open space.Thesedesignationsfavorably position Pier 70asa Pier 70’s Crane Cove Park, are parks identifiedfornew andpublic Eastern Neighborhoods rezoning. Designated Port areas, including shoreline oftheimplementationstrategyforCity’s parks aspart development,fee assessedonnew whichcouldbeusedtofund Pier 70parks. Additionally, theCityhasestablishedaparks impact Port oftheBlue expectstoutilize aportion Greenway fundingfor China Basin ChannelsouthtotheSan Francisco Countyline.The Trail along theBay shoreline through formerindustrial landsfrom Port infrastructurePort other funding mechanisms fit within the overall concept for Pier 70. is to illustrate how specific project applications for grants, loans, or future users at a lower cost than private debt. One role of this Plan be used to finance utility upgrades to be repaid from utility fees of facilitate implementation. For example, funding mechanisms could Lowering the cost of debt for project infrastructure costs will also Pier 70. address thecostsoflegacycontaminationandpublicbenefitsat environmental remediation fundsfrom grantsandothersources to N A L P R E T S A M D E R R E F E R P 0 7 R E I P 1 9 |
10 IMPLEMENTATION STRATEGY 10 IMPLEMENTATION STRATEGY
Financial Feasibility Analysis A number of key feasibility issues are critical to understanding as Financial feasibility analyses have been an integral part of the plan- Plan implementation moves forward. ning effort, helping to shape the direction of the Plan. This section and Appendix B summarize the analysis completed by Economic Changes in the development program, timing of development, or Planning Systems, Inc. in early 2010. The Financial Feasibility major adjustments to estimated costs could affect the feasibility Analysis tested the development program presented in the density of the Plan program. Additional public finance methods, phasing and massing analysis (Appendix A) with assumptions representing of significant costs, or addition of grant or other outside funding a schedule of development to realize the Plan vision. Including all would improve the feasibility of the Plan program. Conversely, a costs and contingencies associated with preparing the land for new drawn-out development schedule or significant cost overruns would development and rehabilitating historic buildings, expenditures increase the feasibility gap and the project would require higher total approximately $665 million, in constant 2009 dollars. Over a development revenues, greater financing, or additional outside 30-year horizon, the developer receives approximately $810 million funding. in revenues, but the costs of the project occur far earlier in time than the revenues generated. A lender or investor must advance EXHIBIT 14 - Cost and Revenue Comparison funds to move the project forward; these funds must later be Net Present Value of Revenues and Costs in millions returned with a risk-appropriate level of interest. (Reflects a 15% risk-adjusted discount rate)
A “feasibility gap” is the difference between the net present value $300 $269M (NPV) of the costs and revenues over time, reflecting the time value Piers/Wharves $250 Rent to Port of money. Because most of the revenues accrue after the develop- 223M Parks $ Remediation ment costs are incurred, the illustrative cash flow analysis demon- $200 Historic Tax Credits strates a feasibility gap of $46 million on a NPV basis using a 15 Infrastructure & Parking Structures Public Financing percent discount rate, reflecting a blend of private sector debt and $150 equity returns (Exhibit 14). While the Feasibility Analysis shows $100 substantial value is created by new development and historic reha- Historic Building Real Estate bilitation under this Plan, that value may not be enough to fund Rehabilitation Revenues $50 all the rehabilitation and public benefits identified in the Plan. The
Port continues to seek additional resources for this project and to $0 sharpen its approach to implementation. Costs Revenues
9 2 | PIER 70 PREFERRED MASTER PLAN $ $ $ $ bilitation untilfundsare secured. require stabilizingbuildingsintheneartermanddelayingfullreha- that assumedinthisfinancialmodel. useof Prudent resources may can attractadditionalphilanthropic orpublicinvestment beyond fragile Pier 70buildings,coupledwiththeirgrandreuse potential, 15. The hopesthatthecompellingcasefor Port rehabilitation of potential revenues by almost$75million,asshown inExhibit costs associatedwiththerehabilitation ofhistoricbuildingsexceeds mately andcreate value from historicbuildings,buttheNPVof financing challenge. Adaptive reuse willbringinrevenues ulti- Prioritizing historic building rehabilitation earlyintheplanisa 1 1 1 1 $ $ $ $ $ 0 2 4 6 2 4 6 8 0 0 0 0 0 0 0 0 0
Net Present Value ofRevenues andCosts inmillions EXHIBIT 15 - H - 15 EXHIBIT ( n e ( t t
a r x e istoric C $
$ h c 1 os 3 r a 2 e 0 b 0 t d
. s
i c t o s ) s t s ) B uilding F easibilit y G y ( r r R e e e ap v a v e l
$ e e n 4 s u n t 5 e a u
H F s t e ) e e i s s
a t s o i r $ b i 7 i c l
5 i B t M y u
' i G l d a i n p g '
cate to the public the efforts tomakethisproject feasible. cate tothepublicefforts ners willcontinuetoupdatetheFeasibility Analysisandcommuni- As thePier 70project moves thePort forward, - anditsprivate part significant level ofprivate investment withdelayed financial returns. of landuseswillrequire withtheprivate sectoranda apartnership analysis. Achieving adaptive reuse ofPier 70foranycombination it reflects asnapshotof real estateeconomicsatthetimeof relies uponestimatesofmarket costs, values andconstruction and changingeconomic conditions. Because feasibilitytesting The Feasibility willneedto updated to be reflectfuture Analysis N A L P R E T S A M D E R R E F E R P 0 7 R E I P 3 9 |
10 IMPLEMENTATION STRATEGY 10 IMPLEMENTATION STRATEGY
Development Partner Strategy • Access to the necessary financial resources to implement the Plan The complexity of the Pier 70 vision, balancing multiple goals over over a multi-year horizon and a strong track record of securing 67 acres and the associated phasing and financing requirements, investment in complex multi-phase development projects. will require careful orchestration of a comprehensive and integrated • Vision and technical skills to develop a detailed plan for new historic rehabilitation and infill development strategy. Moreover, a development, including development size, scale, and configura- concerted “place-making” effort is essential to establish an identity tion, integration with historic resources, and design of first-class for Pier 70 as a unique West Coast district that will draw business parks, open spaces, and shoreline access. tenants and local residents to enjoy the commercial and cultural • Marketing acumen to successfully secure large-scale tenants and offerings of the site, as well as its parks, open spaces, and connec- users suited to the unique historic and industrial character of the tions to the Bay. site. In particular, collaborating with the Port to find a visionary entity to transform the Union Iron Works Machine Shop into a Even with substantial public financing mechanisms, strong public- publicly-oriented facility that provides a heart to Pier 70 while private partnerships are essential to realizing the vision for Pier revealing its fascinating history. 70. Private sector partner(s), with first-hand knowledge of market • Qualifications to secure regulatory entitlement of the site. conditions, private financing, and an understanding of key tech- nical analysis is required for the entitlement process, are well-suited • Understanding of brownfields development and required envi- to take the lead in adaptive reuse of Pier 70 buildings and develop- ronmental remediation strategies. ment of vacant lands. The Port will seek partners with financial • Demonstrated success at adaptive reuse of historic buildings with capacity and strong qualifications to undertake development of the expertise to identify construction methods and use programs and 50 acres outside of the ship repair leasehold. knowledge of the Secretary Standards and modern code require- ments, including seismic and disability access requirements. Particular capabilities desired in private sector partners and their • Urban development expertise to partner with the diverse development teams are: community and end users to design, fund, and build new build- ings appropriate to the historic district. • Sophisticated understanding of complex mixed use redevelop- ment efforts necessary to lead a collaboration with the Port, • Designing, financing, and building infrastructure for master end users, the ship repair tenant, regulatory agencies, and the planned developments including establishing needed assessment community. mechanisms to fund and maintain necessary infrastructure.
9 4 | PIER 70 PREFERRED MASTER PLAN through fundingmechanismswith eachstageofprivate investment. parks, openspaceandenvironmental remediation) eitherin-kind or to provide infrastructure andpublicbenefits(historicpreservation, willincludespecificcommitments by thedeveloperment partners groundwork forprivate investment. Theagreements withdevelop- to characterize environmental conditionsatthesite,laying funds tobeginimprovements atCrane Cove Park andfederalfunds over atleastadecade.Fortunately, thePort canuseProposition A vision foritsfuture. Creation ofthatvisionwilloccurinsteps This Plan looksat Pier 70asawholetodefinecomprehensive capacity torefine and realize this Plan. 70 project by demonstratingprofessional capabilityandfinancial ofthe allorpart Pier to submittheirqualificationsundertake The development solicitationprocess willaskdevelopment teams competitive forPier solicitationprocess tochoosepartners 70. To responsibilities, the meetitsfiduciary expectstousea Port as Spring 2010. could initiateadevelopment solicitationprocess forPier 70asearly and financial realities theproject willface.The Commission Port whocanintegratethePlan anditsgoalswiththemarketpartners towards implementationmustincludetheinvolvement ofprivate to collaboratewithallstakeholders.Thenextstepsonthepath toprepareinvested asubstantialamountofeffort the Plan and sector iscriticaltotheimplementationofPlan. The has Port In andstakeholders,theprivate additiontothepublicpartners Process Solicitation Developer cultural, andotherusersforthebuilding. ners, thePort willcontinue tooutreach to potentialinstitutional, building. In parallelwiththedeveloper- solicitationforprivate part Iron Works Machine Shop andtosecure fundstorehabilitate the ners forPier 70todeterminetheappropriate usefortheUnion work- closelywithboththecommunityanditsdevelopment part andthepublic.The partners, Commission, regulatory will Port Shop amongtheMayor, theBoard ofSupervisors, thePort discussion ofpotentialusesfortheUnion Iron Works Machine rehabilitate thisuniqueresource, thePort policy envisionsfurther Due tothelevel ofpublicandphilanthropic fundsrequired to tion asthePlan isimplemented. possible withbudgetedfundsandprioritize itscompleterehabilita- lization ofthestructure by 2011andcontinuetostabilize itassoon Iron Works Machine Shop. The willcompleteaninitialstabi- Port vision tocreate arevitalized districtatPier 70centersontheUnion venue, market hall,institutional,orculturaluses.The Plan’s overall The Plan callsforapublicly-accessibleuse,suchasanentertainment and grandvolume ofspace,itcanbecomethecivicsoulPier 70. and vulnerablehistoricresources onthesite. With itsrichhistory The Union Iron Works Machine Shop isoneofthemost valuable forUnionIron WorksPartner MachineShop N A L P R E T S A M D E R R E F E R P 0 7 R E I P 5 9 |
10 IMPLEMENTATION STRATEGY 10 IMPLEMENTATION STRATEGY
Implementation Imperatives As steward of Pier 70, the Port has initiated specific planning and The Pier 70 vision in this Plan and the public financing tools avail- development processes to advance the goals of this Plan and hasten able provide great impetus to initiate implementation, but key its realization. The Port’s commitment to realizing this Plan, in part- elements are still required to realize this Plan. nership with all stakeholders includes taking action to:
Pier 70 Revitalization Requires Early Investment and Public • Realign public trust restrictions to allow portions of the site to be Finance Tools developed for non-trust uses. Time is of the essence to save Pier 70’s most valuable historic build- ings. Even more than a typical development project, the costs to • Establish a National Register Historic District in a manner that realize this Plan are front-loaded. In the last few years, the Port has recognizes the critical role of infill development to meet Plan broadened the public financing tools available to meet this chal- goals. lenge. To succeed, the Port and its partners will need to take full advantage of the Port’s financing authority and seek new resources. • Secure Board of Supervisor approval to form a Pier 70 infrastruc- The Financial Feasibility Analysis shows that additional public ture financing district. financial investment or new creative tools to lower development costs would reduce the financial risks of the project and hasten Plan • Collaborate with the Planning Department, San Francisco implementation. Municipal Transportation Authority, and other city agencies to integrate Pier 70 into Eastern Neighborhoods planning efforts. The Port is Committed to Realizing Pier 70’s Potential by Imple- menting the Plan • Present a land use and financing plan to the Board of Supervi- Throughout this Plan, the Port has identified Pier 70’s potential as a sors to obtain Proposition D funding and necessary zoning and site for continuing ship repair, a historic district that can be infused regulatory changes. with new uses and users, a jobs district for new industries, and substantial opportunities for new waterfront parks and shoreline • Continue environmental site investigation to characterize access. The Plan can transform a neglected edge of the city to an existing conditions throughout the site and develop a remedia- integral part of San Francisco’s future while telling its past. tion strategy.
9 6 | PIER 70 PREFERRED MASTER PLAN 70 isencouraging.The2008 $5millionupgradeof#2 Drydock Recent private investment by BAEandPrincess inPier Cruises 70 foritsfuture. momentum andpublicengagementwillbevitalto positioningPier economy recovers from the2008-09recession, maintainingthe tion DinNovember 2008wasan auspiciousbeginning. While the The 68% vote approvingpublic andpolicymakersupport. Proposi- Plan willtakeover adecadetorealize andwillrequire sustained Commission recognize discussedinthis thattheopportunities Mayor Gavin Newsom, the Board ofSupervisors andthePort Future Public Private and Will Partnerships Essentialto Be Pier 70’s • • • • Plan. Continue toengagethestakeholderswhileimplementing development. 70 amodeloffinanciallyandenvironmentally sustainable tomakePierContinue topursuefundingopportunities ture topublicly-orientedusers. analyses toexpediteadaptive reuse,- andmarket thisgrandstruc possible, conductadditionalfinancialandphysicalfeasibility Stabilize theUnion Iron Works Machine Shop assoon Cove Park. outinitialimprovementsa designconceptandcarry forCrane Work withthecommunityandavailable publicfundstodevelop San Francisco: considertheFort Mason Center, theAcademy of Luckily, isahallmark thistypeof public-private of partnership oriented place. potential oftheUnion Iron Works Machine Shop asapublicly- ular, thePort invites discussion withusersinterested inthegrand campus thatcould“anchor” therevitalization ofPier 70.In- partic buildings isidealforacorporate,institutional,oreducational markets. and renovated Site-wide, fornew thescaleofopportunity a development program acceptabletothereal estateandcapital – require sophisticatedreal tofashion estatedevelopment partners of historicbuildings,associatedparking, and20acres ofopenspace square buildings,700,000square feetofnew feetofrehabilitation ties oftheproject, including:infrastructure development, 3million The Thefinancialcomplexi- seeksarangeofprivate partners. Port inthisPlan areforth essentialtoPlan implementation. Well-crafted development agreements respond toobjectives set andcommunitystakeholders. relationships partners withregulatory forPierpartners 70,itwillemphasize thatsuccessistiedtostrong itsrevitalization.early tosupport AsthePort choosesprivate sector community understandthechallengesofPier 70andare engaging The andthe thatitspublicsectorpartners isheartened Port operating civilianshipyard intheU.S. are andthePort theessenceofaport isproud tohave thelongest the Port tomodernize operationsandcontinueitssuccess.Ships the continuingstrength ofshiprepair. BAEisactively working with increased demonstrating thefrequency oflargeshipsindrydock, N A L P R E T S A M D E R R E F E R P 0 7 R E I P 7 9 |
10 IMPLEMENTATION STRATEGY 10 IMPLEMENTATION STRATEGY
Sciences, the UCSF Mission Bay campus, and the Presidio. In some sense, Pier 70 combines, in one place, challenges similar to those the City and its partners overcame to revitalize the Ferry Building and Piers 1 through 5, construct the Embarcadero roadway and promenade, create the San Francisco Giants’ ballpark, develop new shoreline access in Rincon Park and Mission Creek and estab- lish a new residential and jobs district at Mission Bay. Guided by the Mayor’s Office and the Board of Supervisors, City agencies including the Port achieved these successes in partnership with the private sector.
The Port of San Francisco, working in concert with other City and State policymakers, regulatory partners, and the public, are excited to begin the process of transforming Pier 70 into a place where Union Iron Works Machine Shop Building 21st century industries excel, alongside industrial ship repair, as part of a grand district of restored 19th century maritime industrial buildings.
The Port of San Francisco invites your participation in realizing the vision of the Preferred Master Plan and looks forward to continuing civic conversation regarding how to harness the best of the public and the private sectors to revitalize Pier 70.
For additional information on the Port’s Pier 70 planning process, including background information, please go to the Port’s Pier 70 website at: www.sfport.com/pier70
Illustration: Union Iron Works Machine Shop Building
9 8 | PIER 70 PREFERRED MASTER PLAN Aerial photo of Pier 70 Area looking north, 2007 Aerial photo ofPier north, looking 70Area N A L P R E T S A M D E R R E F E R P 0 7 R E I P 9 9 |
10 IMPLEMENTATION STRATEGY ACKNOWLEDGMENTS
1 0 0 | P ier 7 0 P referred M aster P lan Acknowledgements Port of San Francisco Central Waterfront Advisory Group Monique Moyer, Executive Director Toby Levine, Chair Byron Rhett, Deputy Director, Planning and Development Jimmie Buckland Tina Olson, Former Deputy Director, Finance and Administration Charles Chase, AIA Jennifer Clary Peter Dailey, Deputy Director Maritime Judy deReus Ed Byrne, Chief Harbor Engineer Susan Eslick Tom Carter, Deputy Director Maintenance Paul Nixon Susan Reynolds, Deputy Director of Real Estate Glen Ramiskey Diane Oshima, Assistant Deputy Director Howard Wong, AIA Jonathan Stern, Assistant Deputy Director Corinne Woods Carol Bach, Assistant Deputy Director Ralph Wilson
Brad Benson, Special Projects Manager ACKNOWLEDGMENTS Stakeholders David Beaupre, Pier 70 Planning Project Manager BAE San Francisco Ship Repair Kathleen Diohep, Development Project Manager Potrero Boosters Tom Meisenbach, Superintendent of Harbor Maintenance Dog Patch Neighborhood Association Mark Paez, Historic Preservation Planner Mission Bay Citizens Advisory Group Uday Prasad, Civil Engineer Neighborhood Parks Council Wendy Proctor, Architect San Francisco Architectural Heritage Brian Perry, San Francisco Police San Francisco Tomorrow Gerry Roybal, Maritime Marketing Manager San Francisco Planning and Urban Research Joanne Sakai, Deputy City Attorney UCSF Mission Bay Citizens Advisory Group San Francisco Planning Department Ralph Wilson, Pier70sf.org John Rahaim, Director Urban Land Institute Ken Rich, Eastern Neighborhoods Planner Mark Luellyn, Historic Preservation Coordinator Moses Corrette, Historic Resource Survey Coordinator
PIER 70 PREFERRED MASTER PLAN | 1 0 1 ACKNOWLEDGMENTS
Consultants: Photo and Image Credits Carey & Company Sketches on the cover and pages 32, 56, 64 and 98 by Christo- pher Grubbs based on concepts by ROMA Design Group. Alice Carey Additional sketches on pages 39, 50, 53 and 55 provided by the Bill Sugaya Port of San Francisco. Nancy Goldenberg Illustrations by Christopher Grubbs based on open space con- Charlie Duncan cepts provided by Hargreaves and Associates. Allison Vanderslice Site conceptual model of environnmental investigation on page Christopher Meyer 83 by Treadwell and Rollo.
Economic & Planning Systems Photographs and Graphics Jim Musbach, Principal Shawna Richardson Rebecca Benassini Edward Muybridge, Bancroft Library Richard Berkson San Francisco Maritime Museum Library San Francisco History Center, Public Library ROMA Design Group Port of San Francisco Boris Dramov, Principal in Charge Ralph Wilson Bonnie Fisher Proehl Studios Jim Adams UIW/Bethlehem Jun Kato Robert Holloway Special thanks to Ralph Wilson, for his contributions in preparation of: http://www.pier70sf.org Treadwell & Rollo Jeff Ludlo Dorinda Shipman
1 0 2 | P ier 7 0 P referred M aster P lan Written comments on the July, 2009 Draft Preferred Master Plan Glen Raminsky were received from the following organizations and individuals: Ralph Wilson San Francisco Planning Commission Corinne Woods San Francisco Historic Preservation Commission Howard Wong Central Waterfront Advisory Group Steve Worthington San Francisco Tomorrow San Francisco Planning and Urban Research Association, Project Review Committee San Francisco Housing Coalition Dog Patch Neighborhood Association San Francisco Architectural Heritage Bay Access
Golden Gate Audubon Society ACKNOWLEDGMENTS California Native Plant Society Vision Green Market Street Railway Noonan Building Artist San Francisco Waterfront Partners Martin Building Company Stacey Benfer, SF Charter Maritime HS John Anderson Steven Canright Judy de Reus Martin Harris Erik Kolderup Toby Levine
PIER 70 PREFERRED MASTER PLAN | 1 0 3 Appendix A
1 0 4 | P ier 7 0 P referred M aster P lan AppenDix A: Infill Development Density & Form Study
Chapters 5- 9 of this Plan establish goals, objectives and criteria appropriate fit of development within the Pier 70 historic district. for the physical components of the Preferred Master Plan. Chapter Considerations include creating complementary scale relationships, 8, Form and Character of Infill Development, provides specific reinforcing the character of the historic buildings and the spatial criteria for new infill development that is compatible with the qualities of the district. The Plan anticipates that new development historic setting and is consistent with the Secretary Standards. In within these areas will have varying heights to create visual interest order to determine if the site can accommodate new infill develop- and in response to the historic setting of the site and its waterfront ment as required to support the overriding Plan goals, including location. the economic and financial requirements to support the Plan A implementation, the following density analysis was conducted. The Proposed building sites provide flexibility, easily accommodating analysis included preparation of a site Plan with a proposed block larger floor-plates as well as construction of multiple buildings structure, new building sites, building heights and building enve- within them. The suggested heights of the building envelopes are also designed to provide flexibility of floor-to-floor heights so that ppendix lopes. The diagrams are not intended to represent building designs, A but rather some of the basic urban design parameters within which developers can adapt to the range of commercial, retail and research buildings could be designed and to prove that the amount of new and development uses expected on the site. development suggested in the Plan can occur consistent with the Plan objectives, goals and infill criteria. Structured parking above the existing predominant street-front grade occupies potential developable space. This Plan assumes that The suggested building envelopes correspond to the mix and size much of the parking on the site will be above grade because of the of the development program required to support the site improve- high water table and the cost of underground structures. Below- ments and public benefits required for a successful plan. In general, grade parking does not occupy usable space within the building tallest building heights are proposed in locations away from the envelopes, and may be suitable on sites with an appreciable down- 20th Street historic corridor and adjacent clusters of historic ward grade from the street or where the cost of below-grade parking resources. Within Blocks 6-8, a 90-foot height for new infill build- is warranted. ings is indicated and 85-foot heights are indicated for new buildings along Illinois Street. These heights were developed in consider- ation of the development density requirements of the Plan and the
PIER 70 PREFERRED MASTER PLAN | 1 0 5 Appendix A
This diagram defines the block structure of the Plan which provides the frame- work for the adaptive reuse of historic buildings and future infill development. Within the blocks, new infill develop- CRANE COVE ment, pedestrianways and on-site open PARK space areas can be developed in various 1 forms guided by the Plan’s historic pres- ervation policies and infill development criteria. Beyond the blocks, the site also includes the ship repair area, Crane Cove Park, the Central Plaza, Slipways Park and Irish Hill. A few historic buildings associated with and adjacent to these
open space areas are also designated for SHIP REPAIR preservation, but not included within the 2 block structure of the Plan.
DEVELOPMENT BLOCKS BLOCK AREA CENTRAL 1 1.66 AC 3 4 PLAZA 2 3.76 AC 3 2.07 AC 4 4.91 AC 5 4.95 AC IRISH 5 6 HILL 6 7.12 AC SLIPWAYS PARK 7 1.11 AC 8 1.03 AC
7 8
N 0 100 200 300’
Block Structure
1 0 6 | P ier 7 0 P referred M aster P lan This diagram indicates a height of the existing historic buildings and the poten- tial height of new infill development. The potential heights depicted in this diagram were developed in consideration of the development density requirements of the Plan and the appropriate fit of develop- ment with the Pier 70 historic district. The actual footprint and height of the build- ings may vary, depending on use and other design considerations of specific
development proposals which are in A keeping with the historic context and the development goals of the Plan. ppendix A
Building Heights
PIER 70 PREFERRED MASTER PLAN | 1 0 7 Appendix A
INTERSTATE 280
I N T E R S T A T E 2 8 0
TENNESSEE STREET I L L I N O I S S T R E E T THIRD STREET 22ND STREET ILLINOIS STREET 20TH STREET
19TH STREET 20TH STREET
18TH STREET
View from East View from Northeast
I L L I N O I S S T R E E T
ILLINOIS STREET
THIRD STREET
TENNESSEE STREET
T H IR D S T R E E T
T E N N E S S E E S T R E E T 22ND STREET
18TH STREET 20TH STREET MARIPOSA STREET 19TH STREET 20TH STREET
INTERSTATE 280
22ND STREET View from West View from Southwest
Building Envelopes The building envelopes for new development, shown in yellow in the four views above, illustrate an appropriate density and bulk established for each of the suggested development areas. The actual design of buildings within these envelopes should be derived not only from the appropriate form response to the program- matic requirements of the activities to be accommodated in the buildings but also to create a sense of place in keeping with the historical character of the industrial district and the visual and open space relationships to the waterfront.
1 0 8 | P ier 7 0 P referred M aster P lan As shown in Table 2, Density Study Development Program, the maximum capacity of the site is estimated at approximately 3.7 million gross square feet, assuming full build-out of the illustrated envelopes and reuse of the historic buildings, including limited additions. This represents a net Floor Area Ratio of approximately 3:1, excluding the ship repair area. Of the total building square footage, about one-third may be required for structured parking, leaving approximately 3 million square feet of occupiable space. It is possible that other development programs can be built, such as with underground parking, that result in more than 3 million square feet of occupiable space. A
Existing bay view from Building 2, 2005 ppendix A
PIER 70 PREFERRED MASTER PLAN | 1 0 9 Appendix A
Table A1: Density Study Development Program
DEVELOPABLE BLOCKS BLOCK AREA RETAINED HISTORICAL BUILDING NEW BUILDING
PLANNED HISTORICAL ASSUMED BUILDING REQUIRED ON‐SITE PLANNED NEW TOTAL PARKING BUILDING FOOT ASSUMED TOTAL BUILDING PLANNED ASSUMED AND NEW BUILDING FLOOR PARKING OPEN (AC) # of BUILD FLOOR SPACES NAME PRINT HEIGHT FLOOR NAME # of FLOORS HEIGHT TOTAL FLOOR AREA AREA SPACES SPACE FLOORS PADS AREA PROVIDED AREA FLOOR AREA FOR PARKING REMAINS @ 1 space AREA
(SF) (SF) (SF) (SF) (SF) (SF) (SF) /1,000 sf (spaces) (SF) a b c d e f=c+e g h=f-g i=h x 1/1,000 k=a-b-d 1 1.66 Kneass 7,550 (1.5) 25' 11,325 1A 12,750 (6) 85' 76,500 (50,500) 144 1B 17,000 (6) 85' 102,000 (B1F) 1 SUBTOTAL 7,550 11,325 29,750 178,500 189,825 ‐ 189,825 190 190 35,043 2 3.76 101 12,358 (4) 72' 56,268 2A 17,854 (6) 85' 107,122 102 5,439 (2) 48' 8,424 2B 13,532 (6) 85' 81,190 104 8,458 (4) 60' 37,641 2C 25,779 (5) 50' 128,893 128,893 368 2 SUBTOTAL 26,255 102,333 57,164 317,205 419,538 128,893 290,645 291 370 80,367 3 2.07 3A 25,783 (5) 85' 128,917 41,527 (1) 41,527 3B 41,825 (4) 40' 167,301 167,301 478 3 SUBTOTAL 67,584 337,744 337,744 167,301 170,443 170 480 22,457 4 4.91 113 84,111 (1.0) 62' ‐ 114 16,000 (1.0) 41' 100,111 115 12,078 (2P/1R/1O) 57' 14,000 40 116 21,780 (2P/1R/1O) 57' 73,734 27,900 80 21 7,638 (1.5) 44' 10,172 14 16,315 (2.5) 66' 38,947 103 2,391 (1.0) 45' 2,258 19 6,350 (2) 25' 10,000 4 SUBTOTAL 166,663 235,222 ‐ 235,222 41,900 193,322 193 120 47,181 5 4.95 2 17,936 (6) 80' 96,804 5A 37,309 (6) 50' 223,856 223,856 640 12 60,098 (3) 59' 162,335 5B 10,604 (4) 55' 42,415 5C 6,953 (4) 55' 27,811 5 SUBTOTAL 78,034 259,139 54,866 294,083 553,222 223,856 329,365 329 640 82,628 6 7.12 6A 44,701 (6) 90' 268,208 6B 45,045 (6) 90' 270,268 6C 45,045 (6) 90' 270,268 6D 45,045 (6) 90' 270,268 6E 45,045 (6) 90' 270,268 6 SUBTOTAL ‐ ‐ 224,880 1,349,279 1,349,279 ‐ 1,349,279 1,349 ‐ 85,472 7 1.11 7A 48,280 (8) 80' 350,000 350,000 1,000 ‐ 7 SUBTOTAL ‐ ‐ 48,280 350,000 350,000 350,000 ‐ ‐ 1,000 ‐ 8 1.03 8A 45,045 (6) 90' 270,268 ‐ ‐ ‐ 8 SUBTOTAL ‐ ‐ 45,045 270,268 270,268 ‐ 270,268 270 ‐ ‐ Other 1.27 6 41,741 (1) 52' 37,707 Areas 111 10,600 (4) 60' 46,272 7.73 110 3,910 (1) 15' 3,910 52 24,983 (1) 15' 24,983 50 678 (1) 15' 678 SUBTOTAL 52,341 113,550 ‐ ‐ 113,550 ‐ 113,550 114 ‐ 2,791
TOTAL 35.61 360,414 721,569 527,569 3,097,079 3,818,648 911,950 2,906,697 2,907 2,800 355,939
Note: This program is not intended to be prescriptive in nature. It was developed to test the capacity of development within the parameters established by the Plan and to inform the feasi- bility analysis.
1 1 0 | P ier 7 0 P referred M aster P lan VERY SIGNIFICANT RESOURCE SIGNIFICANT RESOURCE CONTEXT RESOURCE OPEN SPACE SHIP REPAIR CRANE COVE PARK BUILDING REMOVED 1A NEW BUILDING PADS
1B This diagram illustrates a concept devel-
oped as a component of the density study A that sites the buildings within each of the blocks. The building sites were developed in consideration of the size and depth of 2A ppendix building floor-plates for potential new SHIP REPAIR 2B A uses as well as in consideration of historic 2C relationships such as the slipways and the objectives for creating visual and pedestrian linkages and open space relationships. 3A 6A
3B 6B 5A 6C
IRISH 5 B HILL 6D SLIPWAYS PARK
5 C 6E
7A 8A
N 0 100 200 300’
PIER 70 PREFERRED MASTER PLAN | 1 1 1 Appendix B
Vehicular Circulatrion and Parking
1 1 2 | P ier 7 0 P referred M aster P lan AppenDix B: Financial Analysis
Financial Feasibility Analysis the model assumes that the Port will receive rent from its Pier 70 Financial feasibility analyses have been an integral part of the plan- developer equivalent to the current interim income from the site, ning effort, helping to shape the direction of the Plan. The financial about $3 million per year. feasibility analysis tested the development program as shown in the density and massing analysis (Appendix A) with assumptions repre- The developer would undertake the “horizontal” development: senting a schedule of improvements and development to realize infrastructure, site preparation, park and open space, and pier/ the Plan vision. The financial outcomes could differ with changes wharf projects. The developer would also rehabilitate the historic in the use program, a different pace of development, or changes in buildings and build the parking structures required on the site. As B the revenue or cost levels realized. This appendix summarizes the modeled in the Feasibility Analysis, the costs of new buildings – the Feasibility Analysis. “vertical” development – are not included. Instead, the analysis assumes that the developer would enter into land leases with other ppendix
Development Entity Modeled developers or users for building sites. The developer and its subten- A Economic Planning Systems, Inc. prepared a financial model for ants, and not the Port, would bear the capital costs of implementing the Pier 70 project that arrayed project costs and revenues into an the Plan. The financial model assumes that the future public funds annual cash flow for the development entity for a 30-year period. from the IFD, CFD and Proposition A and D funds are dedicated The model excludes the BAE shipyard area, its buildings, and BAE’s to the Pier 70 project costs and the developer bears the remaining lease payments to the Port. Building 111 and buildings scheduled costs through financing. for release from the BAE leasehold were included in the develop- ment cash flow as it was assumed that their rehabilitation and reuse The overall income and revenues received by the development would be part of the Pier 70 reuse. entity are:
The financial analysis is similar to a base reuse or large-scale redevel- • Public finance funds (IFD, CFD, Prop. A and D) as they opment project financial model. A single developer for the 50-acre are available to pay for allowed public uses; site is an analytical assumption; the Port may lease Pier 70 in a different manner. The financial model assumes that the Port will • Rent from tenants of rehabilitated historic buildings and continue to own the land and enter into a long-term ground lease interim rent from existing tenants in the early years; with a master development entity. Consistent with Proposition D,
PIER 70 PREFERRED MASTER PLAN | 1 1 3 Appendix B
• Ground rent from the new building sites; Table B1 - Pier 70 Project Development Costs • Parking income from structured parking; and Item 30-Year Total • Debt and investment from the private sector as required. (thousands, 2009$)
The Feasibility Analysis tests whether the public financing and Capital Costs expected real estate revenues are sufficient to attract the private Historic Building Rehabilitation $355,000 sector investment needed for the Plan to succeed. Piers/Wharfs 60,000
Development Costs Infrastructure and Site Preparation 70,000 The development costs included in the Feasibility Analysis include Structured Parking 30,000 site preparation, environmental remediation, infrastructure (new streets and utilities), parks, pier and wharf improvements, parking Parks/Open Space 30,000 improvements, and historic rehabilitation. Estimates are at a plan- Site Remediation 20,000 ning level of detail for the infrastructure, parks, remediation, and Subtotal $565,000 other site costs. The historic building costs were developed with the benefit of field visits and a conceptual reuse program informed by Ongoing Costs – over 30 years historic architects, structural engineers, hazardous materials experts, Base Rent to Port $85,000 and cost estimators. All of the capital cost estimates include a factor for soft costs including planning, entitlement, and contingency. Remediation Monitoring 5,000 Also included are base rent to the Port and environmental remedia- Subtotal $90,000 tion monitoring costs. Total Costs $655,000 Parking is expected to be distributed throughout the site. Parking All capital costs include a 29 percent factor to cover planning, entitle- revenues are not expected to be sufficient to fund all structured ment, and contingency. Rehabilitation costs include asbestos and parking. The financial model reflects parking costs in two ways. lead paint abatement. Structured parking costs are adjusted for A portion is included in the development pro forma for new and parking revenues. Due to the planning level nature of these cost projections, estimates are shown to nearest $5 million. rehabilitated buildings, and stand-alone parking structures are shown as a development cost.
1 1 4 | P ier 7 0 P referred M aster P lan Table B1 (left) reports that costs used in the Feasibility Analysis for the planned development program. These fees are included in totaled over a 30-year time period without including inflation the soft costs in the financial model. (2009 dollar value). The largest cost item, historic rehabilita- tion, is shown prior to the application of historic tax credits. As Project Real Estate Revenues noted above, the costs exclude the development costs of the new Projected ground lease revenue from new development is based on buildings. the land value projected in the feasibility analysis for each land use category. These ground lease revenues were adjusted downward to Public Finance Revenues reflect the impact of community facilities district financing, which The public financing sources available to the project include prop- imposes a special tax on new development sites. Lease revenue erty tax increment, community facility district financing, and estimates for rehabilitated buildings were based on conceptual use Proposition D funds based on growth in payroll taxes. The financial programs for the various historic spaces and market rate rents. B feasibility model estimated the public funding resources, based on the development program concept, assumptions about timing, land Most project costs will occur periodically during the project time- and property values, and mix of users. Property tax projections line. In contrast, most revenues will be realized on an ongoing basis ppendix A assume that possessory interest tax (the property tax equivalent on (e.g., ground lease and historic building lease revenues). In order to long term leaseholds) is assessed on rehabilitated and new buildings. compare costs with revenues, revenues are shown here in constant 2009 dollars summed over 30 years. Payroll tax projections factor in existing City payroll tax incentives for biotech and clean tech uses. If additional future users of Pier Due to the planning level nature of the revenue projections, esti- 70 are exempt from property or payroll taxes (e.g., government or mates are shown to nearest $10 million and exclude inflation. certain nonprofit users), assessment district, infrastructure financing IFD revenues reflect receipt of 65% of the growth in property tax district revenue, and Proposition D revenues could be reduced. revenues. Tax-exempt users will be required to pay an equivalent share of infrastructure and other costs to support Pier 70 public benefits and infrastructure.
New development and historic building rehabilitation projects will pay impact fees to support transportation improvements, affordable housing, and child care facilities. These fees total about $80 million
PIER 70 PREFERRED MASTER PLAN | 1 1 5 Appendix B
Feasibility “Gap” between Revenues and Costs Table B2 - Pier 70 Project Revenues Development of Pier 70 will require a substantial outlay of capital. Including all costs and contingencies associated with preparing Item 30-year Total the land for new development and to rehabilitate historic build- (thousands, 2009$) ings, expenditures total $665 million, in constant 2009 dollars. Development Revenue Over a 30-year horizon, the developer entity receives $810 million Ground Lease - New Developmens $220,000 in revenues, but the costs of the project occur far earlier in time than the revenues generated. In particular, in the first five years, Historic Building Lease 260,000 key 20th Street historic buildings (101, 102, 104, 113/114) are Interim Lease Revenue 20,000 projected to be rehabilitated, requiring investment of $80 million, after adjustments for historic tax credits. A lender or investor must Subtotal 500,000 advance funds to move the project forward; these funds must later
Public Financing be returned with a risk-appropriate level of interest. The cash flow Park Bond Proceeds $10,000 shows a total of $165 million of private capital invested before the development entity realizes a return on that investment. Proposition D Bond Proceeds 40,000
Land-Secured Bond Proceeds 80,000 As estimated today, the financial cash flow includes all of the (Mello-Roos) public financing sources now available to the Port and evaluates Infrastructure Financing District (IFD) 110,000 the “internal rate of return” (IRR) realized by the developer. As Proceeds presented, the project reflects an IRR of 10.2%. Real estate devel- Historic Tax Credits 70,000 opment projects of this complexity generally require an IRR of 15% Subtotal 310,000 or more, reflecting the market returns required on a mix of private debt and investor equity. Revenue Total $810,000
Due to the planning level nature of the revenue projections, This “feasibility gap” is the difference between the net present value estimates are shown to nearest $10 million and exclude inflation. (NPV) of the costs and revenues summarized over time, reflecting IFD revenues reflect receipt of 65% of the growth in property tax revenues. the time-value of money. An NPV discount rate of 15 percent (reflecting a blend of private sector debt and equity) is used here. Because most of the revenues accrue after the development costs,
1 1 6 | P ier 7 0 P referred M aster P lan this illustrative cash flow analysis demonstrates a feasibility gap of $46 million on NPV basis.
The $46 million feasibility gap indicates that further refinement of the Pier 70 financial structure is required. Sensitivity testing demonstrates several pathways to a feasible project. Access to lower cost financing mechanisms, additional IFD revenues from AB 1199, and tuning the timing and magnitude of costs incurred will be the most important factors in closing the feasibility gap. The Port anticipates that real estate developers can bring additional insights into refining the project land use program, cost estimates, B and financing plan to meet market demands and assist in finding the best users for historic buildings, while meeting the Plan goals.
Concerted efforts by the Port, its constituents, and its partners to ppendix A access additional funding sources and achieve additional value from the site will be needed to realize a successful project.
PIER 70 PREFERRED MASTER PLAN | 1 1 7 Appendix C
1 1 8 | P ier 7 0 P referred M aster P lan AppenDix C: Pier 70 Central Waterfront Advisory Group 2006 MasterPlanning Goals
The following goals were developed through a community outreach 4. Complete a phase I archeological reconnaissance and assessment process including the Port’s Central Waterfront Advisory Group of the Pier 70 area. and other interested citizens and groups. The goals were refined and developed in late 2006 for the benefit of the initiation of the Port’s 5. Provide for future maritime support and other industrial uses Preferred Master Plan effort. and their access to heavy rail transportation, as well as associ- ated buffer zones, as necessary. Develop a coherent site plan to define a framework to support C future efforts to redevelop and/or improve the Pier 70 Area to meet 6. Identify opportunities for new, revenue-generating redevelop- maritime, historic preservation, public access and trust objectives, ment, compatible with maritime objectives, which also enable in a manner compatible with and integral to the rest of the Central public benefits (e.g. waterfront open space and public access) to ppendix
Waterfront be achieved. A
1. Provide for current and future needs of the ship repair industry. 7. Define how and where safe waterfront open space, public Ensurethat large ships continue to have unimpeded access to access, and Bay access can be provided, with the objective of the shipyard facilities and other maritime areas. creating a major destination open space next to the Bay and publicly accessible water-oriented recreational uses, that do not 2. Identify the optimal site size and configuration of SF Dry-dock’s interfere with ship repair or related activities. operations. 8. Provide public access for non-motorized watercraft. If envi- 3. Complete a survey of Pier 70 historic resources to enable ronmentally feasible, provide supporting facilities such as a preparation of a National Register historic district nomination boathouse and launching beach for water recreational activities, to facilitate historic rehabilitation projects, and conduct assess- which also would enhance overall public access. ments regarding building condition and rehabilitation poten- tial. Define how preservation of the Pier 70 historic resources, 9. Create a permanent shoreline edge between Pier 66 and Slip particularly the Union Iron Works and un-reinforced masonry No. 4 that provides public access to the Bay. If any minor Bay structures, can be achieved. fill is required, it should be limited to the minimum amount
PIER 70 PREFERRED MASTER PLAN | 1 1 9 Appendix C
necessary for improved public access and shoreline appearance, necessary for hazardous materials remediation. and/or watercraft berthing/landing. 16. Encourage partnerships with the existing community for the 10. Allow for a future public water taxi terminal in the Central development of the Pier 70 area Basin. 17. Identify a mix of uses and strategies for meeting public trust 11. Establish rational, safe pedestrian connections between public requirements. access, parks, and public-oriented developments. Pedestrian connections and overall site planning should also highlight 18. Identify financing and/or outside funding options to fund site rehabilitated historic buildings and artifacts, such as the gantry improvement costs. cranes, views and sight lines, as well as Pier 70’s maritime history.
12. Recognize 20th Street as Pier 70’s “Main Street.”
13. Improve 22nd Street so that it fully functions as the primary industrial access route into and out of Pier 70.
14. Develop a site plan for Pier 70 that integrates with the urban design and development context for the inland Central Water- front neighborhood/district. Support on-going coordination with the Planning Department’s Central Waterfront Neigh- borhood Area Planning process. Where not in conflict with historic buildings or maritime activities, extend the City street pattern into Pier 70 which provide views of the Bay, historic buildings, or new architecture with a waterfront identity.
15. Define infrastructure, seismic and environmental remediation requirements for redevelopment and allow minor bay fill if
1 2 0 | P ier 7 0 P referred M aster P lan C ppendix A
PIER 70 PREFERRED MASTER PLAN | 1 2 1 Appendix D
1 2 2 | P ier 7 0 P referred M aster P lan AppenDix D: Pier 70 Master Plan Community Outreach/ Commission Meetings 07/11/06 - Port Commission (Approval of Historic 11/07/07 – Pier 70 Second Community Workshop Preservation Contract) (Framework Plan Alternatives)
11/15/06 - Central Waterfront Advisory Group (CWAG) meeting 11/27/07 - Potrero Boosters (Review of Framework Concepts and comments to date) 01/10/07 - Central Waterfront Advisory Group (CWAG) meeting 12/16/07 - Port Commission (Review of Framework Concept and
03/27/07 - Central Waterfront Advisory Group (CWAG) meeting Community Meeting) D
05/23/07 - Central Waterfront Advisory Group (CWAG) meeting 12/18/08 - Central Waterfront Advisory Group (CWAG) meeting
02/13-08 - San Francisco Tomorrow Board – ppendix A
06/12/07 - Port Commission- (Preferred Master (Review of Framework Concepts and comments to date) Plan Background Information Basis for Plan) 01/16/08 - Central Waterfront Advisory Group (CWAG) meeting
07/25/07 - Pier 70 Preferred Master Plan Community Workshop # 01/22/08 - San Francisco Planning Commission (Review of 1- Background Information, Basis for the Plan Framework Concepts and comments to date)
06/31/07 - Potrero Boosters - Background Information, Basis for 05/05/08 - Central Waterfront Advisory Group (CWAG) meeting the Plan 05/07/08 - San Francisco Landmarks Preservation Board 08/16/07- San Francisco Planning and Urban Research (SPUR) – Background Information, Basis for the Plan 05/21/08 - San Francisco Planning Commission- Eastern Neighborhoods 09/19/07 - Central Waterfront Advisory Group (CWAG) meeting 05/28/08 - Central Waterfront Advisory Group (CWAG) meeting 10/17/07 - Central Waterfront Advisory Group (CWAG) meeting 06/02/08 – San Francisco Planning Commission
PIER 70 PREFERRED MASTER PLAN | 1 2 3 Appendix D
07/17/08 - Pier 70 Third Community Workshop- Fall ’08 – Proposition D Campaign (approximately 60 Draft Plan neighborhood meetings to discuss Proposition D and Plan) 07/22/08 - SF Board of Supervisors 11/13/09 - Port Maritime Commerce Advisory Committee- Review 07/23/08 - Central Waterfront Advisory Group (CWAG) meeting of Draft Framework Plan
08/12/08 - Port Commission Meeting – Review of Draft Plan and 11/19/09 - Central Waterfront Advisory Group (CWAG) meeting Public Comments Fall ’08 – Proposition D Campaign (approximately 60 neighborhood meetings to discuss Proposition D and 09/30/08 - Potrero Boosters - Review of Draft Plan and Public Plan) Comments 01/29/08 - Central Waterfront Advisory Group (CWAG) meeting 10/06/08 - San Francisco Architectural Heritage - Resources Committee 06/30/09 - Potrero Boosters- Pier 70 Environmental Investigation Work Program and Plan Overview 10/09/08 - San Francisco Chamber of Commerce 07/14/09 - Port Commission 10/09/08 - SPUR - Review of Draft Plan and Public Comments 07/29/09 - Pier 70 Fourth Community Workshop- 10/14/08 - Dog Patch Neighborhood Association- Review of Draft Final Draft Plan Plan and Public Comments 08/11/09 - Port Commission Meeting 01/11/08 - Port Commission (Approve expanded scope for EPS team) 08/12/09 - San Francisco Tomorrow Board Meeting
04/22/08 - Port Commission Approval to Release RFP for 08/26/10 - Central Waterfront Advisory Group Environmental Services) 09/01/09 - San Francisco Architectural Heritage 08/12/08 - Port Commission (Review of Draft Concept Plan and Public Comments to date) 09/02/09 - SPUR Lunch Time Brown Bag
09/16/09 - San Francisco Historic Preservation Commission
1 2 4 | P ier 7 0 P referred M aster P lan 09/17/09 - San Francisco Planning Commission
09/30/09 - San Francisco Housing Action Coalition
11/05/09 - Urban Land Institute Project Analysis Session (ULI National Conference in SF)
11/18/09 - Central Waterfront Advisory Group
12/09/10 - Central Waterfront Advisory group
1/11/10 - SPUR Project Review Committee D
2/17/10 - Central Waterfront Advisory Group
3/09/10 - Port Commission Meeting ppendix A
PIER 70 PREFERRED MASTER PLAN | 1 2 5 Appendix E
1 2 6 | P ier 7 0 P referred M aster P lan AppenDix E: 2008 Proposition D-Charter Amendment Regarding Pier 70
EC. B7.310. PIER 70 WATERFRONT DISTRICT. to a tenant for the Waterfront Improvements. As used in this Section (a) The Port of San Francisco’s southern waterfront includes a site known B7.310, Waterfront Improvements include rehabilitation of an existing as Pier 70. For over 150 years, some portion of this site has been in use historic resource consistent with the Secretary of the Interior’s Standards for ship building and repair, or steel production, as well as for other for the Treatment of Historic Properties, seismic strengthening of existing heavy industrial uses. In 2001, the California State Office of Historic structures, environmental remediation and/or mitigation consistent with Preservation determined that Pier 70’s approximately 40 historic build- applicable regulations and/or a plan approved by a regulatory agency with ings, structures, and features are eligible for the National Register collec- jurisdiction over the contaminated area, construction and landscaping of E tively as contributors to a Pier 70 historic district. This Section B7.310 is waterfront open space, including natural shoreline habitat, construction of intended to enable the City and County, through its Port Commission, utility infrastructure necessary to achieve compliance with environmental performance standards that exceed applicable building code requirements, to rehabilitate the Pier 70 area by establishing planning, financing and ppendix project approval mechanisms appropriate to the area. These mechanisms and the construction or rehabilitation of maritime facilities. A will serve a significant public purpose by preserving and restoring historic waterfront properties in need of repair, restoring waterfront land, and (c) Before proposing to issue indebtedness to finance Waterfront Improve- building new waterfront parks and maritime facilities. ments or to assume the responsibility to pay for the improvements pursuant to this Section B7.310, the Port Commission, by resolution, (b) The Port Commission may submit to the Board of Supervisors for must approve a capital budget for the proposed Waterfront Improve- approval a financial and land use plan or plans for all or a portion of Pier ments and find that the new lease revenues from private investment in 70 (each a “Pier 70 Plan”) that includes a description of the boundaries and development of the proposed Pier 70 Waterfront District for a period of a Pier 70 planning area (“Pier 70 Waterfront District”) and projections of 20 years, commencing with the Port’s projected date of issuance of of the Port’s need for financing, in addition to authorized property tax a certificate of occupancy for a lease identified by the Port for all or a increment financing, to preserve and restore deteriorated Pier 70 historic portion of the Pier 70 Waterfront District, and property tax increment waterfront properties, seismically strengthen Pier 70 piers and structures, available under the Pier 70 Plan, are insufficient to finance the Waterfront remediate and restore contaminated waterfront land and structures, Improvements. build new waterfront parks, and build maritime facilities (“Waterfront Improvements”). The financing plan may include, without limitation, (d) The Clerk of the Board of Supervisors shall refer the Pier 70 Plan to issuance of debt to finance Waterfront Improvements or direct payments the Controller within 30 days after the Port Commission’s submission
PIER 70 PREFERRED MASTER PLAN | 1 2 7 Appendix E
to the Board of Supervisors. Within 90 days of the Clerk’s referred, the plan. The Board of Supervisors may approve the financing for Waterfront Controller and the Tax Collector, in consultation with the Department of Improvements described in the plan, if it finds that new lease revenues Real Estate and the Port Commission, shall report to the Board of Super- from private investment in and development of the proposed Pier 70 visors the following: Waterfront District for a period of twenty years, commencing with the Port’s projected date of issuance of a certificate of occupancy for a 1. The total amount of taxes received by the City and County from (A) lease identified by the Port for all or a portion of the Pier 70 Waterfront the City Payroll Expense Tax under Article 12-A of the Business and Tax District, and property tax increment available under the Pier 70 Plan, are Regulations Code, as amended from time to time (the “Payroll Tax”), insufficient to finance the Waterfront Improvements. from businesses located in the Pier 70 Waterfront District, and (B) Tax on Transient Occupancy of Hotel Rooms under Article 7 of the Business and (f) If the Board of Supervisors approves the Pier 70 Plan and associated Tax Regulations Code, as amended from time to time (the “Hotel Tax”), financing for Waterfront Improvements, then, for the purposes of this from any hotel rooms located in the Pier 70 Waterfront District (the Section B7.310, the Base Year Tax Revenues for the Pier 70 Plan will be “Base Year Tax Revenues”) in the full fiscal year immediately preceding the the total Payroll Tax from businesses located in the Pier 70 Waterfront submission of the proposed Pier 70 Plan to the Board of Supervisors; and District and any Hotel Tax from any hotel rooms in the Pier 70 Water- front District in the fiscal year preceding Port Commission issuance of 2. The projected annual increases in Payroll Tax and the Hotel Tax above debt to finance Waterfront Improvements or obligation to first pay for the Base Year Tax Revenue that will accrue to the General Fund for each Waterfront Improvements pursuant to this Section B7.310, and the year (“Pier 70 Annual Payroll and Hotel Tax Increment”) for a twenty Controller and the Tax Collector, in consultation with the Department year period following the issuance of a certificate of occupancy related to a of Real Estate and the Port Commission, shall revise their projections of Port lease identified by the Port for all or a portion of the Pier 70 Water- Pier 70 Annual Payroll and Hotel Tax Increment for a 20-year period, front District, using assumptions about new lease and tax revenues from commencing on the Port’s projected date of its issuance of debt for, development of allowed uses in the Pier 70 Waterfront District. or obligation to pay for the construction of Waterfront Improvements pursuant to this Section B7.310, based on updated assumptions about The publication of the Controller’s and Tax Collector’s report will not new lease and tax revenues from development of allowed uses in the Pier be a violation of Business & Tax Regulations Code Section 6.22-1. The 70 Waterfront District. These updated assumptions shall serve as the basis Controller and the Tax Collector shall be entitled to reimbursement of for appropriations pursuant to this Section B7.310 for the remainder of their costs to perform their responsibilities under this Section B7.310. the term of the Pier 70 Plan.
(e) The Board of Supervisors may approve the Pier 70 Plan, with or (g) If the Board of Supervisors approves financing for Waterfront without the financing for Waterfront Improvements described by the Improvements described in the Pier 70 Plan, then the City and County
1 2 8 | P ier 7 0 P referred M aster P lan shall appropriate from discretionary General Fund revenues to the harbor constitute approval by the Board of Supervisors of any lease for a project trust fund the amount necessary to pay debt service on indebtedness developed under the Pier 70 Plan under Article IX, Section 9.118 of this issued by the Port Commission to finance Waterfront Improvements or to Charter upon approval by the Port Commission if all of the following fund the Port’s obligation to pay for Waterfront Improvements pursuant conditions are met: to this Section B7.310 in an amount up to seventy-five percent (75%) of the Pier 70 Annual Payroll and Hotel Tax Increment beginning in the 1. The Controller, in consultation with the Department of Real Estate, fiscal year in which the Port Commission is obligated to A) begin paying finds the lease consistent with the Pier 70 Plan; for the Waterfront Improvements, or B) pay debt service on indebtedness that it has issued to finance Waterfront Improvements and for each subse- 2. If required for purposes of the receipt of federal historic tax credits, quent fiscal year until the earlier of (i) the date the Controller certifies that the lease binds the lessee to obtain from the National Park Service the Port Commission has retired all indebtedness issued or to finance the and/or State Historic Preservation Office a finding of consistency of E Waterfront Improvements or fully satisfied its obligation to pay for the the federally-subsidized historic rehabilitation project(s) contemplated Waterfront Improvements or (ii) 20 fiscal years commencing with the first by the lease with the Secretary of the Interior’s Standards for the fiscal year that the Port Commission is obligated to pay such debt service Treatment of Historic Properties; ppendix A or payment on the Waterfront Improvements. The City and County shall 3. If required, the lease binds the lessee to obtain a permit from the Bay appropriate the funds to the harbor trust fund notwithstanding the actual Conservation and Development Commission for the improvement amount of the annual increase in Payroll Taxes and Hotel Taxes during and maintenance of the 100 foot shoreline bond along Pier 70 in the any fiscal year, without any adjustment based on the actual amounts of premises of the lease; such taxes paid or accruing to the City and County. In no event may the amount appropriated to the harbor trust fund in the aggregate be greater 4. If required, the State of California has approved the consistency of the than seventy-five percent (75%) of the amount of Pier 70 Annual Payroll Pier 70 Plan, or portions thereof, with the Burton Act trust and the and Hotel Tax Increment estimated by the Controller for a 20-year period public trust for navigation, commerce and fisheries; and pursuant to subsection (f). The Port may use the funds appropriated solely to finance the construction of Waterfront Improvements described 5. If required, any applicable environmental regulatory agency has in its Pier 70 Plan and any amendments to the plan by the Port Commis- approved a site remediation or site management plan, or the sion and the Board of Supervisors. equivalent, for the relevant portion of Pier 70, where the Port or a former owner, occupant, or operator is the primarily responsible (h) The Board of Supervisors’ approval of the Pier 70 Plan, with or party. without approval of the financing for Waterfront Improvements, shall (Added by Proposition D, 11/4/2008)
PIER 70 PREFERRED MASTER PLAN | 1 2 9 Appendix F
1 3 0 | P ier 7 0 P referred M aster P lan AppenDix F: BAE Pier 70 Ship Repair Facility Plan
BAE’s planning process began with an assessment of the current potentially a second secure and direct entrance for non-shipyard site’s physical conditions and the activities that support operations. personnel visiting the site. Other BAE constructed buildings will The site investigation included an analysis of the conditions of the remain in place and retain theIR functions, namely warehousing in buildings, overhead cranes, utilities, equipment, machinery, over- Building 251 and the blast booth in Building 250. water structures, and open areas. BAE’s plan includes a preliminary phasing plan that broadly outlines the steps forward and an esti- The buildings and structures along the high water platform (build- mated order of magnitude for costs associated with these steps. ings 68, 58, 243, 127) will remain fully occupied and will be used
for the most part as they are today. The industrial air compressors F The current BAE facility and layout was developed in the 19th and will be relocated from buildings 103 and 107 to the high-water 20th centuries for ship building and has undergone very limited platform. An underwater and under-pier investigation of piers and modifications. In order to be successful for ship repair in the 21st the high-water platform in February 2008 did not identify any ppendix century, some significant modifications will be required to be able significant deterioration of pier decks or piling. A to maintain this important use that defines Pier 70. Buildings to be Vacated or Removed The Plan recognizes and incorporates BAE’s plan for the ship repair In developing the ship repair plan, BAE recognized that the lease yard. The diagram Ship Repair Area Plan illustrates BAE Plan area will require modifications to allow for modern day work flows (page 18). and sequences. In addition, some buildings are obsolete for today’s ship repair business. To that end BAE identified categories buildings Facilities to Remain in Use to be vacated as a part of the “reversion area” to be given back to the BAE is proposing to consolidate its ship repair shops into the two Port and buildings to be demolished. largest structures on site, Buildings 109 AND 105. These buildings have the best location and orientation to the main yard and high- Vacated/Reversion Area water platform, accommodate the floor loading and height clear- The proposed buildings/structures that are no longer planned to be ance for the shop equipment, and are in relatively good condition occupied by BAE are Buildings 36, 52, and 19. All are within the for continued occupation. The administration offices are planned to reversion area and will be vacated in 2012. The Plan has identified remain in the portable buildings and will be relocated closer to the reuse options for these buildings. main ship yard entrance, providing more efficient use of space and
PIER 70 PREFERRED MASTER PLAN | 1 3 1 Appendix F
Proposed Demolitions resources. A preliminary review indicates that the above proposals, BAE is proposing demolition, relocation, or alteration of three would not impact the integrity of the Historic District. buildings to create sufficient laydown area for operation of the shipyard. These changes provide the ability to respond to customer Adjacent Buildings needs during peak industrial periods. Laydown space for logistical Buildings 111 and 6 are on the water ‘s edge and in need of support of equipment and materials is necessary for the larger and substantial investment to address structural conditions to use. more complex ship repair contracts that today’s market demands. Building 111, although within BAE’s leasehold, has been gener- Adequate open areas for logistic support within the shipyard avoid ally unused for ship repair since damaged by the 1989 Loma Prieta transportation bottlenecks along corridors that service the shipyard. earthquake except for some storage complying with the Port’s “limited access” restrictions. Building 6 is adjacent to but not Buildings 38 and 119 are proposed to be demolished in order to within the BAE leasehold. Effective reuse of Building 6 and 111 provide a central laydown area for the shipyard. Building 38, which will require access to the buildings coordinated with ship repair use is minimally occupied at present, is in an advanced state of deterio- of the “triangle lot”. ration and creates an imminent danger to life safety. Building 119, a former washroom, has been condemned by the Port and has not The location and orientation of these buildings make them ideal been occupied for many years. for the ship repair facilities and possibility ill-suited for other uses or tenants. If a funding mechanism for the high cost to rehabilitate As part of opening up access to the “triangle lot” and allowing these buildings is identified, BAE would consider further consolida- better truck access to building 105, building 121 needs to be moved tion of the ship repair facilities into these buildings. Rehabilitation or modified. The current awkward location of Building 121 which of these structures for ship repair use would require a new long- houses the steel shop office, partially obstructs access to the steel term lease agreement with the ship repair operator. shop in building 105. Building 121, which according to the histor- ical resources report was relocated to its current location in 1975, is Alternatives beyond the current lease expiration date in 2017 proposed to be removed. include the use of building 6 for consolidation of industrial opera- tions, as well as the potential for consolidation of administrative Each of these proposed impacts on the buildings needs to be and light commercial activities in building 111. Use of these two analyzed within the context of the future National Historic District. structures, in conjunction with the demolition of buildings 38 Great value is given to preserving the historic use and operational and 119, could allow for the termination of shipyard operations in needs of the facility must be weighed against impacts on historic buildings 109 and 105, providing development opportunities for a
1 3 2 | P ier 7 0 P referred M aster P lan larger area to the west of the shipyard. the shipyard. This parking lot, in addition to the parking planned adjacent to the administrative offices, meets the parking needs for Given the importance of these two facilities, the financial feasibility 90% of the projected customer business. During peak periods any analysis for this Plan has included the costs of renovation buildings needed parking and laydown area will be leased on case-by case-basis. 111 and 6 as part of the larger project costs. The appropriate use for those buildings will be determined through future consideration. Related Issues Beyond the ship repair leasehold, successful continued operation of Circulation and Site Access the shipyard will require addressing the following issues: The main entrance to the shipyard would move from 20th Street to the foot of 19th Street to connect the truck access route and to ease • Dredging of the Central Basis to maintain access; congestion from new uses in the rehabilitated the buildings along F the 20th Street corridor. A secondary entrance to the site is shown at • Appropriate means of separating recreational boating, in the foot of 20th Street for employee access to a proposed new park- particular, kayaks, from the ship repair operations. ing area within the “triangle lot” located at the foot of 20th Street. ppendix • Ensuring an appropriate buffer of uses along the boundary A of the ship repair yard and Crane Cove Park. Relocation of the shipyard main gate from 20th Street to 19th Street changes the orientation of the shipyard. If planned appro- • Upgraded infrastructure, including utilities and piers to priately, this could improve the efficiency of truck circulation since serve the yard. trucks would enter directly into the main yard to off-load/pick up material. The separation of employee vehicles from shipyard traffic • Removing pier pilings and deck timbers that dislodge from also improves the security of the shipyard, which is becoming a nearby dilapidated waterfront improvements and interfere more common customer requirement. with operations.
With the inclusion of Parcel 3B into the proposed new leasehold boundary, the capacity of the new parking lot/laydown area is greatly improved. Approximately 260 parking spaces could be accommo- dated in that area, which provides employee parking for a typical shift with the overage accommodating parking for customer subcon- tractors. Currently, up to 80% of shipyard personnel park outside of
PIER 70 PREFERRED MASTER PLAN | 1 3 3