WEST OAKLAND SPECIFIC PLAN PUBLIC REVIEW DRAFT
5. Retaining Existing Assets 5.1 Industrial Land and Job Retention 5.2 Neighborhood Enhancement 5.3 Preservation of Historic Resources 5.4 Fostering the Creative Economy & Cultural Arts Community 5.5 Retaining Educational Resources
January 2014
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5: Retaining Existing Assets
Over the past 70 years, there have been West Oakland record the destruction: 22,000 people numerous planning and redevelopment in 1950, 11,000 people in 1970, and fewer than 6,000 efforts in West Oakland. Some of these prior people in 1980. By the end of the 1950’s the West efforts have had very positive outcomes, such Oakland center of black community, commerce, and as the re-alignment of Highway 880 and its culture had been replaced by a truly blighted district.” replacement in its former right of way with Mandela Parkway; while other prior planning West Oakland Visions and Strategies” report, efforts have had mixed, and sometimes prepared by the Coalition for West Oakland Revitalization, May, 1994 negative consequences to West Oakland’s neighborhoods. (See Figures 5.1 to 5.4 for There are many lessons to be learned from historic views of the opportunity areas). these previous projects, so that mistakes of the past are not repeated. As described in the 1994 West Oakland Visions and Strategies report, A key element of the West Oakland Specific Plan is the identification of important “As early as 1938, West Oakland was forced to endure community assets, an acknowledgement the first of many ‘redesigns’ as ‘urban renewal’ of their critical importance, and inclusion of cleared blocks of land, destroying original Victorian strategies to ensure their retention. In the homes and the remaining oak trees, to make room for public housing projects. . . . In 1949, the Oakland midst of the desire for growth and change, the City Council declared West Oakland, by then 85% existing assets for which this Plan sets forth black, to be a ‘blighted area’, a designation which objectives and strategies to ensure retention made it a prime target for massive demolition. The and preservation include: construction of Campbell Village in 1940 began the process, with the City purchasing several hundred • Jobs & Industrial Lands: Recognizing homes and destroying them. By 1954, the Oakland West Oakland’s industrial lands as a vital, Citizens’ Committee for Urban Renewal (OCCUR), with no representative from West Oakland, had fundamental basis for future economic endorsed the 200-acre ACORN renewal project with growth and retaining the area’s current 333 buildings demolished and 9,000 people forced solid and diversified jobs base, which to move. Other urban renewal projects with equally provide wages that support and sustain disastrous impacts on the area were the completion middle-class incomes; of the Nimitz Freeway in 1958; construction of BART, which destroyed one side of the commercial strip • Residential Neighborhoods: Preserving along Seventh Street; and the construction of a West Oakland’s residential neighborhoods, mammoth postal processing center at Seventh and which need only enhancement of their Wood. Population figures for the Prescott district of existing strengths;
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Fig 5.1: Historic View of Mandela and West Grand in Opportunity Area 1
Fig 5.2 Historic View of 7th Street in Opportunity Area 2
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Fig 5.3: Historic View of 3rd Street in Opportunity Area 3
Fig 5.4: Historic View of San Pablo Avenue in Opportunity Area 4
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• Historic Resource Preservation: Preserving Oakland’s oldest and most historic neighborhoods and industrial areas, ensuring their legacy of cultural, educational, aesthetic and inspirational benefits for future generations; 1
• Arts & Culture: Fostering West Oakland’s RETAINING EXISTING ASSETS RETAINING fully-emerged arts and culture movement; and
• Plan Area Schools: Acknowledging the importance of retaining educational resources for Plan Area residents. This Specific Plan highlights and discusses these important assets.
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5.1: Industrial Land & Job Retention
Oakland’s industrial land is the city’s premier “job- West Oakland Industrial Land Supply shed” area outside of the Downtown office core and Airport area, with large tracts of strategically According to detailed parcel-based positioned parcels that can provide a base for new, information from the City’s GIS database, there EXISTING ASSETS RETAINING good jobs.” are now approximately 270 acres of land (not including street rights-of-way) within the West Margo Lederer-Prado, ‘Industrial Land Preservation: Oakland Opportunity Areas that are currently Key to Green Jobs Growth’, in Race, Poverty and zoned for industrial use (as shown in Table the Environment, the Urban Habitat’s National 5.1-1 below). An additional 7 acres that are Journal of Social and Environmental Justice zoned Housing Business Mix (HBX), which also permits a mix of business-related/ light Industrial Land Supply industrial uses. These properties represent the vast majority of West Oakland’s current According to a land use inventory conducted industrial land supply. by the City of Oakland for the 1998 update of the General Plan Land Use and Transportation Element, of the City’s entire approximately 29,700 acres of property, approximately 1,630 Table 5.1-1: Existing Industrial Land within West acres (about 5%) were considered land used Oakland’s Opportunity Areas (net acres) for light industrial or heavy industrial use. Of Mandela/West Grand 175 that total, 1,140 acres were identified as light 3rd Street 61 industrial and 490 acres were identified as th heavy industrial use. 7 Street 34 San Pablo Avenue Corridor 0 West Oakland (not including the former Total 270 Oakland Army Base) was identified as containing a substantial portion of City Industrial Land Use Policies & these industrial lands. West Oakland had approximately 260 acres of then-existing light Regulations industrial land uses (about 23% of the City total), and approximately 80 acres of what was Industrial Land Use Designations and considered to be heavy industrial use (or about Policy Direction of the Oakland General 16% of the City total). Plan West Oakland’s existing manufacturing and The General Plan Land Use Diagram and land industrial areas are principally located in a use classifications define the type, location, large area surrounding the intersection of intensity and density of development allowed West Grand Avenue and Mandela Parkway throughout the city. The General Plan’s (primarily the Mandela/Grand Opportunity industrial land use designations within the Area) and along the east side of the new I-880 Planning Area are illustrated on Figure 5.1.1 rd route (principally in the 3 Street Opportunity and described below. Area). Most all of these industrial lands are designated under the General Plan as “Business Mix”, and are correspondingly zoned as either Commercial Industrial Mix (CIX-1) or General Industrial (both M-30 and IG in the 3rd Street Opportunity Area).
WEST OAKLAND SPECIFIC PLAN • 5- 5 5 Fig. 5.1.1: Existing General Plan Industrial Land Use Designations
Emeryville MacArthur 1 Station Interstate 580 RETAINING EXISTING ASSETS RETAINING Bay Bridge/Interstate 80
CIX-1/ S-19
Former Oakland 28th Street Army Base CIX-1
San Pablo Avenue
CIX-1 CIX-1/ S-19 Martin Luther King Jr. Way
Interstate 880 West Grand Avenue
CIX-1/ S-19 CIX-1 CIX-1 CIX-1/ S-19 14th Street CIX-1 Peralta Street CIX-1/ 19th Street S-19 Station
Mandela Parkway CIX-1 West Oakland 7th Street Interstate 980 Station MarketCIX-1/ Street Downtown Oakland S-19 12th Street CIX-1 Station Port of Oakland 3rd StreetM-30 Interstate 880
1000 2000 4000 General Plan Designations FEET N Legend Business Mix Planning Area Light Industrial BART General Industrial/Transportation
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Business Mix truck traffic and odors. The maximum FAR is currently 2.0. The Business Mix land use designation is defined as a flexible “economic development The General Industrial/Transportation land zone” which strives to accommodate older use designation currently applies to a one- industries and anticipate new technologies, block area in the 3rd Street Opportunity Area, including light industrial, research and adjacent to the Port of Oakland. development, low impact manufacturing,
and commercial operations. It is intended for EXISTING ASSETS RETAINING areas that are appropriate for a wide variety Light Industry-1 (Estuary Policy Plan) of businesses and related commercial and industrial establishments, while buffering The Estuary Policy Plan’s Light Industry-1 nearby residential districts from the heavier land use designation is intended to maintain industrial uses. High impact industrial uses, those light industrial and manufacturing uses including those that have hazardous materials that support the adjacent maritime area and on-site, may be allowed provided that they are Downtown, and that are compatible with the adequately buffered from residential areas. In adjacent West Oakland neighborhood. The some locations, zoning should direct lower maximum FAR is 2.0. intensities to establish “business park-like” The Estuary Policy Plan’s Light Indusrry-1 land settings; in other locations zoning should allow use designation applies to a portion of the maximum flexibility. Where higher impact Planning Area south of 5th Street and east of uses are located, buffering strategies will be Adeline Street, comprising the majority of the needed. 3rd Street Opportunity Area. The maximum Floor Area Ratio (FAR) is currently 4.0. In some locations, new zoning West Oakland’s Industrial Revitalization overlays should establish lower intensities to retain the current lower intensity industrial Efforts character of the area. In other locations, uses According to the West Oakland and development standards should offer Implementation Program of the General Plan maximum flexibility. In areas where higher Land Use and Transportation Element (LUTE), impact uses are located, buffering strategies West Oakland offers many opportunities for will need to be developed. new and expanded commercial and industrial businesses. To avoid the creation of major The Business Mix land use designation is land use conflicts in the future, both the currently applied to the majority of the business community and residents agreed Mandela/West Grand and the 3rd Street that “a line must be drawn” where appropriate, th Opportunity Area, and a portion of the 7 to separate heavier industry from residential Street Opportunity Area along Pine Street. areas. One principle for “drawing the line” was to use I-880 as a border to protect the community from the impacts of heavy General Industrial/Transportation industry trucking and container storage The General Industrial/Transportation land related to maritime uses. Further, the new use designation allows a wide variety of uses I-880 design includes on- and off-ramps that including heavy industrial and manufacturing, allow other business concerns that use trucks transportation, rail yards, maritime terminals, to have immediate access to the freeway to distribution and warehousing, food processing, move goods, thereby avoiding travel on local and heavy impact research and development residential streets. facilities. It is intended for areas where businesses may have the potential for off- A second principle for determining the site impacts such as noise, light and glare, extent of the “Business Mix” designation in
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West Oakland was consideration of existing, Industrial Zoning in West Oakland contiguous business and residential areas. The City’s industrial zoning districts and This resulted in application of the “Business regulations were not immediately updated Mix” land use classification in large areas following the 1998 adoption of the Land surrounding the intersection of West Grand Use and Transportation Element (LUTE) of Avenue and Mandela Parkway, and along1 the the General Plan, and some of the industrial east side of the new I-880 route. In these areas, zoning regulations had not substantially retention of general industrial uses toward
RETAINING EXISTING ASSETS RETAINING changed since the 1965 Planning Code was the “core” of this area (away from residential adopted. As such, these older industrial zoning neighborhoods) is allowed, although the regulations did not effectively implement the predominant uses are expected to be a mix goals and policies of the Business Mix and of commercial business and office. Live-work General Industrial/Transportation land use space is encouraged to locate in Housing designations in West Oakland and in other Business Mix areas. In areas where no clear locations of the City. These previous industrial land use predominates, the “Housing Business zones did not encourage development of Mix” classification was applied to allow a low- desired job-creating industrial uses because impact mix of living and working to co-exist they did not reflect present-day industrial with provision of appropriate “good neighbor” uses, nor did they adequately provide policy criteria. protections for neighboring residentially zoned areas.
City of Oakland Industrial Land Use Following adoption of the Land Use and Policy Transportation Element of the General Plan Following the 1998 adoption of the General in 1998 and the Estuary Policy Plan in 1999, Plan Land Use and Transportation Element efforts were initiated to update the City’s and the 1999 adoption of the Estuary Policy zoning regulations to be in conformance Plan, the City Council established a citywide with the General Plan. However, in 2004, a Industrial Land Use Policy. This policy found decision was made to postpone additional that: Zoning Update Committee meetings on the industrial zones until further notice. In 2007, • industrial land is a scarce resource in the effort to update City’s industrial zoning Oakland; was re-initiated. In March of 2008, after much discussion and debate, the City adopted new • conversion of industrial land to residential industrial zoning districts for the City. use should be restricted because of the As shown in Table 5.1.2, much of the scarcity, because such changes in use Opportunity Areas are governed by these would be a permanent loss of industrial industrial zoning classifications: land, and because conversions create land use conflicts for continuing industrial uses nearby; and
• preservation of industrial land is vital to future economic growth. The City’s Industrial Land Use Policy states that, with limited exceptions for General Plan amendments in specific subareas, all of the identified existing industrial subareas in Oakland are to remain industrial.
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Table 5.1-2: Existing Industrial Zoning within for industrial uses, and so that industrial West Oakland’s Opportunity Areas (net acres) uses may operate without impacting those CIX-1 M-30 IG activities; Mandela/West • locate high impact industrial uses away Grand 175 0 0 from residential areas; and 3rd Street 18 38 5 7th Street 34 0 0 • allow heavy-impact or large scale San Pablo Avenue commercial retail uses on sites with direct
0 0 0 EXISTING ASSETS RETAINING Corridor access to the regional transportation Total 227 38 5 system The CIX-1 zone is intended to create, preserve, and enhance industrial areas such as West Commercial Industrial Mix-1 (CIX-1) Oakland that are appropriate for a wide Zoning variety of businesses and related commercial Chapter 17.73 of the City Planning Code and industrial establishments. This zone is defines the regulations for the CIX, IG, and intended to accommodate existing older IO industrial zones, which are applicable industries and provide flexibility in order to to the majority of Oakland’s, and West anticipate new technologies. Large-scale Oakland’s industrial lands. Regulations for the commercial and retail uses will be limited Commercial Industrial Mix-1 (CIX-1) zoning to sites with direct access to the regional district are intended to create, preserve, and transportation system. This zone allows a enhance areas for industrial uses, including broad range of both general and heavy- manufacturing, scientific and product-related service commercial and light industrial research and development, construction, activities, while limiting truck intensive uses transportation, warehousing/ storage/ (e.g., freight/truck terminals, truck yards and distribution, recycling/waste-related activities, truck and other heavy vehicle service, repair clean technology, and similar uses. The and refueling) to areas beyond 600 feet of primary purposes of these areas are to support a residential zone with the granting of a Oakland’s economic base and to provide conditional use permit. Residential uses are employment opportunities. The specific prohibited in this zone. purposes of these industrial districts are to: Health and Safety Protection Overlay • provide a diversified economic base and a Zone (S-19) wide range of employment opportunities; The intent of the Health and Safety Protection • maximize Oakland’s regional role as Overlay Zone (S-19) is to promote the public a transportation, distribution, and health, safety and welfare by ensuring that communications hub; activities which use hazardous materials substances or store hazardous materials, • support Port operations and expansion hazardous waste or explosives locate in by providing land for Port services such as appropriate locations and develop in a trucking, warehousing, and distribution; manner as to not be a serious threat to the environment, or to public health, particularly • preserve areas with good freeway, rail, to residents living adjacent to industrial areas. seaport, and/or airport access for business Prior to adoption of the S-19 Overlay, the Fire and industrial uses; Department had discretion to review any such land use activities per the Certified Unified • prohibit residential uses so that a maximum Program Agency (CUPA) ordinance, but in amount of the City’s land base is preserved
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practicality the Oakland Fire Department (OFD) Community Commercial Zone-3 (CC-3) did not have the means for such referrals. Zoning Under the current S-19 Overlay, the referral to the OFD Hazardous Material Program is Portions of the San Pablo Avenue and made when a business seeks to obtain zoning the blocks along 7th Street from Union to clearance as part of its business license process Market Street are currently zoned CC-3. The or during a CUP or other Planning permit1 CC-3 Zone is intended to create, maintain application. A distance of 300 feet from any and enhance areas with heavy commercial residential, open space or institutional zone and service activities. It is one of three RETAINING EXISTING ASSETS RETAINING was determined as the appropriate mapping Community Commercial zones designed for of this overlay zone by the Hazardous Material areas suitable for a wide range of commercial Program Supervisor. and institutional uses along the city’s major corridors and in shopping centers or districts.
General Industrial (M-30) Zoning Industrial Jobs & Job Potential The portion of the Planning Area that is covered by the Estuary Policy Plan (south Oakland Jobs of 5th Street and east of Adeline Street, comprising the majority of the 3rd Street According to the Monthly Labor Force Data Opportunity Area) is zoned General Industrial: for Cities and Census Designated Places M-30. The M-30 Zone is intended for areas for March of 2013 (State Employment with good freeway, rail, seaport, or airport Development Department or ‘EDD’), the City access, and accommodates light industrial, of Oakland has a potential labor force of manufacturing, warehouse and distribution, approximately 205,000 workers compared and commercial uses. Residential uses are not to a total of 181,100 employed residents, permitted in the M-30 zone. resulting in a city-wide unemployment ratio of approximately 11.8%. These numbers are nearly identical to US Census Bureau estimates General Industrial (IG) Zone for the City of Oakland, which indicates a 2011 civilian labor force of approximately 204,700 The one block in the 3rd Street Opportunity people, with approximately 182,300 employed Area adjacent to the Port of Oakland that has residents. a General Plan land use designation of General Industrial/Transportation is currently zoned Among the job occupations of Oakland IG. The IG zone is intended to accommodate residents, the US Census estimates that: a wide variety of industrial establishments, including those that may have the potential to • approximately 11,700 jobs (6%) are in the generate off-site impacts. The IG zone allows manufacturing sector; heavy industrial and manufacturing uses, transportation facilities, and warehousing and • 12,100 jobs (7%) are in the construction distribution. Heavy industrial uses must meet sector; performance standards, buffering standards, and other health and safety criteria. The IG • 9,400 jobs (5%) are in the transportation, zone is for areas with good freeway, rail, warehouse and utilities sectors; seaport, or airport access. Uses that may inhibit industrial activities are prohibited. Residential • 28,000 jobs (15%) are in the professional, uses are not permitted in the IG zone. scientific, management and waste management sectors;
• approximately 18,600 jobs (10%) are in the arts, food service and recreation sectors; and
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• nearly 21,600 jobs (12%) are in the wholesale Table 5.1-3: Current West Oakland Employment or retail trade sector. Light Heavy Ind./ Total Ind. Mfg. Retail Jobs As indicated in Chapter 6 of this Specific Plan Mandela/ 280 4,660 500 5,440 (Identifying the Opportunities), these business W. Grand sectors are firmly established in West Oakland 7th Street 50 1,820 10 1,880 and have a strong market potential for growth 3rd Street 20 1,670 80 1,770 EXISTING ASSETS RETAINING in West Oakland. San Pablo According to a 2004 EDD report, two of the Avenue 40 550 90 680 biggest employment sectors in Oakland are Corridor transportation and trucking (11,551 jobs) subtotal 390 8,700 680 9,770 and postal/delivery/courier services (7,283 Rest of West Oakland (not Opportunity 1,330 jobs), due to Oakland’s easy access to freeway Areas networks, railways, a seaport, and an airport. Total 11,100 Other major employers are food processing (about 1,675 jobs), recycling (about 1,000 jobs), and construction (about 950 jobs). The total Projection of West Oakland’s Potential number of “industrial” jobs, including the Port Future Jobs and Airport, was nearly 50,000. According to 2009 ABAG Projections, West Approximately 20% of these jobs are located in Oakland is projected to increase its jobs base West Oakland. substantially over the next approximately 20 to 25 years. As shown in Table 5.1-4, ABAG projects that total employment in West West Oakland’s Current Industrial and Oakland is projected to more than double, to Retail Jobs nearly 18,400 jobs in West Oakland by around Currently, according to Association of Bay year 2020, and to nearly 28,000 jobs by around Area Governments (ABAG) Projections, jobs year 2035. within West Oakland’s Opportunity Areas are split between approximately 390 jobs (only about 4%) in the heavy industrial sectors; Table 5.1-4: ABAG Projections ’09, Employment approximately 8,700 jobs (almost 90%) in Estimates the light industrial sectors which include Current By 2020 By 2035 manufacturing, construction, and some information technology and the arts; and West Oakland Opportunity 9,770 17,321 26,697 approximately 680 jobs (about 6%) in the retail Areas sector. (see Table 5.1-3) Rest of West 1,330 1,107 1,404 Oakland Total 11,100 18,428 28,101
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Industrial Land Preservation & Job Industrial Land Retention-1: With limited Retention Strategies exceptions as specifically provided under this Plan, prohibit the expansion of new residential and live/work uses into the Despite the evidence of increasing job demands in the industrial areas of West Oakland so as to industrial sectors, “questions about the preservation1 encourage business development and job of the remaining areas of industrial land, and the growth. production and distribution jobs that have served
RETAINING EXISTING ASSETS RETAINING as Oakland’s job-shed for a century, still remain. Can • Even with the limited re-zonings Oakland court new industries while preserving and proposed pursuant to this Plan, the encouraging its baseline of production, distribution, business-to-business supply and repair, and other vast majority of existing industrial existing quality jobs that have provided generations areas in West Oakland are retained for of Oakland residents with a decent living wage, career industrial and business purposes. longevity, and family benefits?” Industrial Land Retention-2: Retain the land Margo Lederer-Prado, “Industrial Land Preservation: currently zoned M-30 within the 3rd Street Key to Green Jobs Growth”, in Race, Poverty and Opportunity Area for industrial and business the Environment, the Urban Habitat’s National purposes. Journal of Social and Environmental Justice
Some of the fundamental objectives of Differentiate Between Industrial/ the West Oakland Specific Plan are to Business Types retain businesses that are compatible with surrounding neighborhoods; rehabilitate underutilized, vacant, and neglected “One myth [about industrial zoning] is that it’s only properties; create new employment connected to Oakland’s past. It’s not. It’s about the future, and taking advantage of emerging opportunities at living wages; and attract technologies such as green industry that can employ new businesses that contribute to economic Oakland workers.” and environmental health. These economic development objectives underscore the Sharon Cornu, Secretary-Treasurer, Alameda importance and prominence of retaining and County Central Labor Council preserving West Oakland’s industrial lands and the job base which it supports. In the interest Intent: Anticipate and encourage new of growth and change, this Specific Plan technologies such as light industrial, research acknowledges that new development needs and development, low impact manufacturing, to be compatible with the industrial properties and commercial operations while concurrently that are so vital to Oakland’s economy, yet so accommodating older industries. scarce and vulnerable to opposing short-term interests. Industrial Differentiation-1: Retain viable older industrial space and facilitate more intensive use of existing facilities. Intensified business Retention of Industrial Land Supply activities in existing buildings can lower vacancies and increase utilization (see also Intent: Minimize the intrusion of sensitive Chapter 7: Building the Vision). land use types such as residential, schools, etc. within the established industrial areas of West • Develop and implement an economic Oakland. Support the retention of industrial development program focused on uses and industrial land use and zoning. encouraging innovative reuse of existing buildings with a focus on retention of existing industries, as well
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as incubator space for specific industry artisan foods, digital media, recording groups, adaptable space for artisans and sound technologies, smart and craftspeople, and flexible small engineered, cooling technologies, and spaces where start-up businesses can green building product development. share facilities and equipment. “Valued-added” production and distribution businesses and other • Encourage the retention of existing ventures are attracted to Oakland’s buildings in designated Business strategic location in the Bay Area, the Enhancement areas, recognizing the quality of its workforce, and its cultural EXISTING ASSETS RETAINING capital investment that has already diversity. been made and acknowledging the architectural character and historical Industrial Differentiation-3: Identify specific significance that many of these sites that are appropriate, based on large buildings possess. Focus the economic parcel sizes, highly prominent locations, development efforts of the City on or future economic opportunities for intensification of use, permanent new, larger-scale industrial, business or enhancement, and adaptive reuse of institutional developments (see also these existing buildings, particularly in Chapter 7: Building the Vision). the near term. • Discourage the withholding of • Retain existing lower-intensity, light- highly valuable industrial land and industrial uses. buildings for future “higher value deals”, and retain industrial lease rates Industrial Differentiation-2: Identify specific at feasible production market values, sites that are either vacant or which contain while identifying certain, specifically derelict and non-viable buildings for new, designated sites for such high density smaller-scale industrial space (see also potential. Chapter 7: Building the Vision). • Plan for higher-intensity business • Encourage development of new development in the long term, while business market sectors, uses, and allowing for less intense industrial types of development, recognizing and business uses in the interim. the different densities, rents and land Allow new high-intensity business values among targeted market sectors. development to be developed in multiple buildings, phased-in over • Capture a greater share of the shifting time. Allow undeveloped sub-parcels regional market, which is seeing a in early phases to be used for surface change from traditional industrial use parking, while planning for structured to more modern flexible space that parking to be built in later phases. can accommodate a wide variety of business applications • Promote West Oakland’s strong locational advantages to attract large • Encourage lower-rise, light industrial business and institutional uses. uses and development that provides for new urban manufacturing, • Surround intensely developed construction, and other light industrial business and industrial sites with business uses that provide good- a network of smaller business-to- paying, middle-wage jobs. business suppliers (commonly known as “backstreet businesses”). Production • Capture the growing trend towards jobs in industries such as construction small, value-added businesses such as materials, food processing, and
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fabrication, as well as technical skills the transportation, distribution and logistics training, are needed to support larger sectors. businesses and institutions. Jobs Resource Center-1: The mission of the Update of Estuary Policy Plan Zoning anticipated Job Resource Center should 1 be more broadly defined as facilitating Intent: Update the industrial Zoning in preparation and placement of traditionally disadvantaged workers throughout the
RETAINING EXISTING ASSETS RETAINING the Estuary Policy Plan Area to be more consistent with the performance standards industrial employers in all of West Oakland, and prescriptive regulations of the newer CIX starting with the construction sector in zoning districts. the short-term, and in other, more widely dispersed industrial sectors in the long-term.
Industrial Zoning Update-1: Rezone the current • Include outreach to local high schools M-30 zoning that is applicable to certain for training programs. parcels in the 3rd Street Opportunity area that are also within the Estuary Policy Plan Area to CIX-1.
• Update the list of permitted and conditionally permitted industrial uses in this area to be more consistent with the flexible list contained in the CIX zoning districts.
• Recognize the primary industrial nature of this area, but ensure appropriate buffers (such as the S-19 overlay) are incorporated for those areas nearest to the West Oakland BART Station TOD.
Job Resource Center
Intent: Facilitate the preparation and referral of workers for jobs, not only at the former Oakland Army Base, but also throughout West Oakland’s industrial areas.
The concept of a West Oakland Job Resource Center was developed as part of the negotiation of community benefits for the Oakland Army Base redevelopment project. The redevelopment of the Oakland Army Base into a large-scale working waterfront will generate short-term construction employment which can lead to careers in the building trades, as well as long-term employment in
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5.2: Neighborhood Enhancement
A primary focus of the West Oakland Specific foreclosure. When reported on by the popular Plan is on growth and change as envisioned media, the entirety of West Oakland is often
for the area’s industrial and commercial uniformly stereotyped with mostly negative EXISTING ASSETS RETAINING Opportunity Areas. For the balance of West reports of poverty and crime. In those Oakland’s mostly residential neighborhoods, portions of individual neighborhoods that the focus of this Plan is on enhancement were already dealing with problems of crime and enrichment of these neighborhood’s and relatively weaker housing markets, many existing characteristics. Consideration of these of these same areas are now also plagued neighborhoods, and an awareness of how by a combination of high rates of subprime these neighborhoods may be affected by, and lending, high foreclosure rates and high risk can benefit from changes within the Plan’s of abandonment as homes remain vacant and Opportunity Areas, is critical. unsold for many months. However, it is also just as likely that down the block or around West Oakland’s Residential the corner, a significant number of homes Neighborhoods originally built before the end of the 19th century have been beautifully restored and are well-maintained, that many newly constructed “Once, West Oakland contained the City’s most infill housing units are selling well, and that substantial neighborhoods including elegant most residents maintain a sense of pride and Victorian mansions. But now our neighborhoods face care for their neighborhood. the blight created by many former, well-meaning but misdirected ideas of progress. Our neighborhoods are now socially distressed and hemmed in by industry, railroads, freeways and City Hall.” West Oakland Neighborhoods West Oakland is a large and diverse adapted from “West Oakland Visions and Strategies” district and contains several individual report, prepared by the Coalition for West neighborhoods. Although several new Oakland Revitalization in May 31, 1994 neighborhood identifications have sprung up in recent years, they have not been universally “In reality, many of the neighborhoods are stable, safe accepted or endorsed by community places to live, as evidenced by the residents whose parents and grandparents also live nearby. Many stakeholders. For this reason, the Specific Plan residents demonstrate a strong degree of pride in acknowledges the traditional, longstanding their neighborhood and a commitment to keeping it a neighborhood designations which were good place to live.” originally associated with the area’s school districts West Oakland Transit Village Action Report, prepared by Michael Willis Architects, et. al • Prescott Though seemingly contradictory, both of these statements obtained from previous • South Prescott; West Oakland planning efforts were true at the time they were written, and remain • Acorn; true today. West Oakland’s neighborhoods are a mix of beautiful and well-preserved • Oak Center; Victorian homes interspersed with vacant lots, • Clawson blighted properties, and homes in jeopardy of
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Emeryville MacArthur 1 Station Hollis Street Interstate 580 RETAINING EXISTING ASSETS RETAINING Bay Bridge/Interstate 80 West Grand Avenue 32nd Street Clawson Hoover/ Foster Opportunity 28th Street Former Oakland Area Army Base Mandela/1 West Grand McClymonds
Opportunity Area Martin Luther King Jr. Way 16th Street Interstate 880 Station San4 Pablo Avenue
14th Street Ralph Bunche
San Pablo Avenue
Pine St Prescott
Adeline Street Oak Center Market Street
Peralta Street 19th Street Main Mandela Parkway Station Post Office West Oakland Interstate 980 Station Acorn South 7th Street Downtown Oakland Prescott Opportunity 12th Street Area Station 3rd Street 7th2 Street Port of Oakland
1000 2000 4000 Opportunity FEET N Area Legend Interstate 880 Planning Area 3rd3 Street BART Opportunity Area Neighborhood Boundary
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• McClymonds neighborhood from the adjacent downtown Oakland), the Acorn neighborhood is one • Ralph Bunche; and of the oldest neighborhoods in the city, containing numerous beautiful old Victorian • Hoover/Foster homes, and was one of the city’s first (see Figure. 5.2.1) Redevelopment Areas. Between mid-1950s to the 1980s, many existing single-family houses in this neighborhood were demolished and Prescott and South Prescott traditional neighborhoods were reconfigured EXISTING ASSETS RETAINING Neighborhoods to create new, dense multi-family rental housing. More recent rehabilitation of this The Prescott and South Prescott neighborhood has resulted in an updated, neighborhoods are located in the lower-density, integrated mixed-income southwesterly portion of West Oakland, nearest community known as the Town Center and to the Port, the West Oakland BART station Courtyards at Acorn (see Figure 5.2.3). This and the Union Pacific Railroad tracks (see revitalized property now includes a Town Figure 5.2.2). Generally, residences in these Center with a recreational center, a community neighborhoods are centered between Mandela building, tot lots, a pool, and three basketball Parkway to the east and industrial uses to the courts, as well as a Computer Learning north and west, but often the residential and Center. HUD honored the Acorn Town Center industrial uses are within very close proximity. project with a 1999 Best Practices Award. The The Prescott neighborhood (generally north primary commercial activity center in this th of 7 Street) is currently home to over 5,600 neighborhood is the Jack London Gateway. residents in approximately 1,750 dwellings. Over 90% of these homes and apartments The Acorn neighborhood has a population are renter-occupied. The southern portion of approximately 3,200 people, with of the Prescott neighborhood nearest to 7th approximately 1,160 housing units. Street is a residential area of Victorian homes, many of which have undergone significant rehabilitation. It contains an emerging Oak Center Neighborhood commercial hub with an emphasis on the The Oak Center neighborhood is generally area’s black cultural roots. Several community located between 10th and 18th Streets, and organizations and businesses which serve the between Mandela parkway and I-980. The Oak community are based in this portion of the Center neighborhood is the center of West neighborhood including City Slicker Farms, Oakland and is a well-preserved Victorian Bikes 4 Life, Mo Better Foods, and Mandela residential neighborhood with several large Foods Cooperative. parks (including the historic DeFremery The smaller South Prescott neighborhood, Park and DeFremery House, which is on the separated by the overhead BART tracks along National Register of Historic Places) and school 7th Street, is home to approximately 1,100 sites scattered through the neighborhood. residents in approximately 335 dwellings. The neighborhood has 108 separate Local Most of these homes (about 65%) were built in Historic Register properties representing the late 1800s and early 1900s, and about 60% Oakland’s prosperous garden suburbs of the are renter-occupied. late 19th and early 20th century (see Figure 5.2.4). The Oak Center neighborhood has a population of approximately 4,200 people and Acorn Neighborhood approximately 1,750 dwelling units, most of which are single-family homes generally over th Centered along 7 Street between Mandela a century old. Parkway and I-980 (which separates this
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Fig. 5.2.2: View of South Prescott Neighborhood
Fig. 5.2.3: View of Acorn Neighborhood
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Fig. 5.2.4: View of Oak Center Neighborhood
Fig. 5.2.5: View of Clawson Neighborhood
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Clawson, McClymonds and Ralph Oakland Specific Plan seeks to create no new Bunche Neighborhoods land use incompatibilities or development strategies that will adversely impact these The Clawson, McClymonds, and Ralph Bunch neighborhoods, and also seeks opportunities neighborhoods are generally bordered by to heal and restore neighborhoods at the San Pablo Avenue to the east, I-580 to1 the edges of Opportunity Areas. north, Peralta Street and Mandela Parkway to the west, and 18th Street to the south.
RETAINING EXISTING ASSETS RETAINING Within these neighborhoods, residential Defined Residential Edges areas are interspersed throughout industrial areas, and commercial and auto-related uses Intent: Establish a well-defined industrial/ are concentrated along the major arterials. residential edge between West Oakland’s McClymonds High School is located within residential neighborhoods and its growing the center of these neighborhoods. A subarea industrial base. within the Clawson neighborhood (generally bounded to the south and east by 28th Street Historically, the lack of a defined residential/ and Adeline Street) has undergone a rapid industrial edge in West Oakland has allowed transition from former industrial uses to newer heavy truck traffic with its associated noise live-work and other residences (see Figure and fumes into residential areas, and has 5.2.5). permitted container storage uses along residential streets. These conditions are not These three neighborhoods are home to well conducive to maintaining a stable residential over 7,300 people within approximately 2,500 neighborhood. dwelling units, most of which were built in the 1940s or before. Residential Edge-1: Create a clearly defined boundary between West Oakland’s industrial Hoover/Foster Neighborhoods and commercial Opportunity Areas (areas in need of transformative growth and The Hoover/Foster neighborhoods are change), and West Oakland’s Residential generally bounded by San Pablo Avenue, Enhancement Areas (areas not needing I-580 and I-980. These neighborhoods are major changes). One of the first steps in this predominately residential, but commercial Specific Plan process was to identify such a and institutional and government-owned uses boundary. The identified border between also have a noticeable presence. The Hoover/ the industrial and intensive commercial Foster neighborhoods share a common border business areas and the Residential of San Pablo Avenue with the Clawson and the Enhancement Areas provides a clear and McClymonds neighborhoods, and San Pablo intentional boundary. The mix of land uses Avenue serves as a major connecting arterial within the Opportunity Areas is envisioned road through this area. The Hoover/Foster as being new and revitalizing. The uses neighborhoods are strongly overshadowed envisioned in the Residential Enhancement by the overhead freeway systems of I-580 to Areas are envisioned as compatible infill of the north and I-980 to the east. The Hoover/ similar types and densities. Foster neighborhoods currently contain 2,439 households (see Figure 5.2.6) Residential Edge-2: Rezone selected properties to reinforce the residential edge. Neighborhood Enhancement Within certain portions of West Oakland, Strategies the boundary between the Residential areas and the surrounding more industrial The neighborhoods of West Oakland are a vital land use character is not entirely clear. and important community asset. The West
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Fig. 5.2.6: View of Hoover/Foster Neighborhood
Fig. 5.2.7: Site proposed for rezoning along Pine Street 8th to 9th – Opportunity Site #28
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This Specific Plan seeks to clarify this edge • Opportunity Site #38, also known as through inclusion of a limited number of the ‘Coca Cola Bottling/Mayway’ Site: carefully selected zoning and general plan This site is located at the northeast changes intended to more firmly establish corner of the Mandela Parkway/12th this boundary within existing residential Street intersection. The site currently neighborhoods. Limited amendments1 to contains a warehouse and truck the General Plan land use designations and parking. Reuse of the southerly zoning provisions are proposed at specific portion of the site for work/live RETAINING EXISTING ASSETS RETAINING locations that are at the edges of existing uses would be compatible with the residential and industrial areas, where a adjacent residential areas to the south change from industrial to residential and and the public park to the east, and live/work would be compatible with adjacent would help to clarify the “blurred” neighborhoods and adjacent public parks. residential/industrial boundary at this These sites are: location (see Figure 5.2.9).
• Opportunity Site # 28 also known as • East Side of Adeline Street bound by the ‘Phoenix Iron Works’ Site: This site is 26th Street to the north, Adeline Street located on the west side of Pine Street to the west, and West Grand Avenue between Shorey Street and 9th Street. to the south, and Chestnut Street to It is a long-vacant property remaining the east. Amending the Zoning and from a prior industrial use, with General Plan land use designations ongoing surface storage of large steel for the two blocks along the east pipes. Rezoning a portion of this site to side of Adeline Street north of West enable live/work and residential infill Grand would more clearly define the uses along the Pine Street frontage boundary between industrial and would result in promotion of densities residential uses. and massing similar to that existing in the surrounding residential area, and • Properties on Ettie Street at 28th Street: would better define the residential/ Amending the Zoning and General Plan industrial edge along this portion of land use designations of these properties the neighborhood (see Figure 5.2.7). would more clearly define the boundary between industrial and residential uses. • Opportunity Sites # 8, and 12, also The specific zoning and/or General Plan known as the ‘Roadway’ Site: This site amendments necessary to reinforce the consists of the two blocks bounded defined residential edges are presented in by 17th Street, 18th Street, Wood Chapter 7 (Building to the Plan’s Potential). Street and Campbell Street, the adjacent south block face on 17th Street between Willow Street and Transitions in Density Campbell Street, and the two south Intent: Ensure that new, higher density blocks bounded by 17th Street, Wood development in West Oakland provides an Street, 15th Street, and Willow Street. appropriate design transition, merging well Allowing live/work and residential with the adjacent residential neighborhoods. infill development compatible in scale with adjacent residential uses at this location would establish a solid Density Transition-1: The West Oakland residential edge around Raimondi Park BART Station’s planned Transit Oriented and reduce potential incompatibilities Development (TOD) is envisioned as a associated with adjacent industrial densely developed village. This TOD is uses (see Figure. 5.2.8). also located immediately adjacent to the
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Fig. 5.2.8: Site proposed for rezoning at 18th and Campbell – Opportunity Sites 8 & 12
Fig. 5.2.9: Site proposed for rezoning at Mandela Parkway and 12th Street
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Fig. 5.2.10: Transit Oriented Development at West Oakland BART station (5th and Center Streets in foreground) • Open space buffer between BART TOD and South Prescott neighborhood • TOD building height steps down adjacent to South Prescott neighborhood
5.2.11: Existing historic building at 7th & Peralta Streets
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historical South Prescott neighborhood available for redevelopment, the site should and newer development projects (Mandela be developed with alternative use(s) that Gateway) immediately across 7th Street (see support the community, such as compatibly- Figure 5.2.10). scaled, urban-infill residential homes.
• Encourage the creation of an open, • Seek to reestablish internal streets green area between the existing south of 7th Street similar to pre-Post residential areas in the South Prescott Office configuration. neighborhood and the new West EXISTING ASSETS RETAINING Oakland BART Station TOD. Neighborhood Re-Knit-3: Promote a revitalized mixed-use development concept • The new buildings at the West along the San Pablo Avenue corridor that Oakland BART TOD nearest to the focuses on ground-floor neighborhood- South Prescott neighborhood should serving commercial uses (see Figure 5.2.12). step down in scale toward the 1- and 2-story single family homes in this • Encourage mixed-use projects with neighborhood. residential activities above ground- floor and neighborhood-serving • Ensure that new development projects commercial uses along the West Grand along 7th Street are of compatible Avenue corridor. height and mass as the existing, newer developments within Mandela • Encourage higher intensity residential Gateway. use on the sites at the corners of San Pablo Avenue and West Grand Avenue.
Re-Knitting Neighborhoods Where • Enhance the San Pablo Avenue Possible streetscape and increase retail uses to activate the street, increase Intent: Use new development as a means pedestrian activity and enliven the to create better physical connections to and neighborhood. within residential neighborhoods. • Renovate St. Andrews Plaza to remove Neighborhood Re-Knit-1: The 7th Street blight and to serve as a neighborhood corridor can and should be returned to its amenity. prominence as an important community- Neighborhood Re-Knit-5: Encourage new serving commercial corridor, knitting back commercial development along San Pablo together the previously physically separated Avenue, including grocery stores, that Prescott and South Prescott neighborhoods. contributes to a cohesive neighborhood • Seek to retain existing historic form rather than to ‘strip centers’. buildings while providing for appropriately-scaled residential Retaining the Objectives of the 2003 and commercial mixed-use infill West Oakland Redevelopment Plan development of the 7th Street corridor as a cultural center, containing As of February 2012, the City of Oakland’s new commercial, lodging and Redevelopment Agency ceased to exist entertainment uses (see Figure as a result of state-wide changes in 5.2.11.) Redevelopment Law. A new Redevelopment Successor Agency, housed within the Neighborhood Re-Knit-2: If the Oakland Main City of Oakland’s Office of Neighborhood Post Office on 7th Street ever becomes Investment, was created to wind down
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Fig. 5.2.12: Mixed-use development along San Pablo corridor (West Grand Avenue at left, San Pablo Avenue in foreground) ( Potential Street Closure)
and complete the activities of the former by assisting new construction, Redevelopment Agency. Although the rehabilitation, and conservation of Successor Agency no longer has access to living units. the former Redevelopment Agencies’ tax increment and other financing mechanisms, or • Maintain and improve the condition the other planning tools previously available to of the existing very low, low, and implement the West Oakland Redevelopment moderate income housing. Plan, the key goals and objectives of the West Oakland Redevelopment Plan specific to • Increase opportunities for neighborhoods and neighborhood stability homeownership. remain valid and important. • Develop renter stabilization strategies that encourage and assist renters to Intent: The West Oakland Specific Plan remain. reiterates and supports the following, previously developed goals of the 2003 • Mitigate and reduce conflicts between West Oakland Redevelopment Plan that residential and industrial uses. are specifically directed towards improving conditions in West Oakland neighborhoods. • Provide streetscape improvements, utility undergrounding, open space Redevelopment-1: Continue to seek and community facilities to enhance new sources of funds and creative neighborhood quality and foster implementation strategies to enable economic and neighborhood vitality. achievement of West Oakland Redevelopment plan’s key goals and • Support recreation, education, objectives: healthcare and programs for all members of the community, especially • Improve the quality of housing youth, seniors and disabled persons.
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• Improve public safety for people living • Support and recognize the benefit and working in the area. of new residents and incomes that can be encouraged through market- • Restore blighted properties. rate development and done without displacing existing residents or • Assist neighborhood commercial businesses or destroying the existing revitalization, and attract more uses cultural assets. that serve the local community
including neighborhood- serving retail. • Encourage the rehabilitation of EXISTING ASSETS RETAINING historically significant properties to • Facilitate economic development avoid demolition or replacement. by improving and rehabilitating substandard buildings and targeting • Relocate displaced residents or infill on vacant lots on commercial businesses whenever possible and corridors. feasible and with their consent.
• Minimize/eliminate environmental • Do not concentrate any very low- hazards. income housing as stand-alone, high- density projects, but rather as infill • Improve infrastructure, transportation, projects on scattered sites and/or as and public facilities. mixed-income projects.
• Incorporate ongoing community • Improve street configurations on participation in the [re]development main arterials and their relationship process so residents of all income to the surrounding neighborhoods; and wealth levels, geographic areas, implement urban design-based language groups, and ages have street improvements such as center opportunities to learn about and dividers, bulb-outs, tree planting, and participate in the decision-making landscape improvements. process. • Establish ongoing communications • Promote equitable development that with the Oakland Housing Authority benefits residents and minimizes the concerning its role and responsibility displacement of current residents and to see that scattered sites undergo businesses. design upgrades, reconstruction, and improved general maintenance. • Maintain the mixed-use character in a manner equally beneficial to both • Promote sustainable development businesses and residents. and “green building” practices.
• Preserve and enhance existing Recommendation for Future residential neighborhoods and core Studies and Plans industrial and commercial areas.
• Do not encourage or support ‘block- West Oakland Neighborhood busting’ developments that demolish Enhancement Strategies historically significant structures that can be rehabilitated, or developments The neighborhood enhancement strategies in that destroy the positive functioning the West Oakland Specific Plan are primarily character of existing areas. focused on ensuring an awareness of how West Oakland neighborhoods may be affected
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by, and can benefit from changes within the Opportunity Areas. This Plan does not include detailed recommendations or new policy direction applicable to the internal West Oakland residential neighborhoods, nor is different policy direction for these1 neighborhoods viewed as necessary. However, each of West Oakland’s neighborhoods is RETAINING EXISTING ASSETS RETAINING unique within themselves. Individualized, specific strategies could be developed to better define the goals, intentions and strategies appropriate and specifically suited for the enhancement of each neighborhood.
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5.3: Preservation of Historic Resources
“The preservation of [our] irreplaceable heritage is in Code. Under the West Oakland Specific Plan, the public interest so that its vital legacy of cultural, both the Historic Preservation Element and educational, aesthetic, inspirational, economic, and the Planning Code will continue to apply to all EXISTING ASSETS RETAINING energy benefits will be maintained and enriched for historic properties in West Oakland. future generations.” The West Oakland Specific Plan supports the National Historic Preservation Act of 1966, as goal of historic preservation in a number amended of ways. Those portions of West Oakland West Oakland includes Oakland’s oldest and identified in this Plan as Opportunity most historic neighborhoods. Accordingly, Areas, or areas of transformative change each building in West Oakland has been and development, do not overlap with or researched, evaluated, and documented by encroach into historic areas or adversely the City of Oakland’s Cultural Heritage Survey affect individual historic properties. Important project, with photographs, construction data, historic structures within West Oakland are survey rating, and background information individually identified in this Plan for adaptive on early builders, owners, and occupants. reuse. Furthermore, this section of the Specific About 1,500 of the most significant buildings Plan identifies additional strategies to protect, and districts in West Oakland have been preserve and enhance historic properties and documented on forms filed with the State districts within West Oakland. Office of Historic Preservation. Even this large number of buildings is only a portion of the Historic Development Pattern existing buildings in West Oakland which still reflect its early history, especially in residential “It is notable that most of West Oakland, both neighborhoods which retain remarkably intact residential and industrial, is first-generation period character. development.”
As indicated in the quote above from the Oakland Cultural Heritage Survey, in West Oakland National Historic Preservation Act, the Redevelopment Plan DEIR, 2002 preservation of the historic resources in West Oakland is a worthy goal unto itself. However, West Oakland encompasses approximately historic preservation is also a fundamental the western third of what was the original economic development tool for strengthening Oakland town layout of the 1850s. At that the community, providing affordable space time, West Oakland was almost a peninsula for small business incubation and affordable surrounded by the Lake Merritt tidal slough, housing, creating and promoting sustainable the San Antonio Estuary, the Bay and a development, stabilizing neighborhoods, northern marsh. The estuary in its natural state creating jobs, and promoting the arts and was a shallow, marshy channel used for water culture. transportation to San Francisco (see Figure 5.3.1). The Historic Preservation Element (HPE) of the City of Oakland General Plan contains To provide for passenger transportation and policies and programs for the protection and shipping, a railroad pier was built out over the enhancement of the City’s historic resources. shallow bay floor to deeper water in 1862-63. These policies and programs are supported by When the transcontinental railroad arrived numerous regulations in the Oakland Planning in 1869 and made West Oakland its western terminus, a wharf was extended almost two
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Fig. 5.3.1: West Oakland Historic Map, Thompson & West 1878
miles out into the estuary to accommodate in the Oakland Point area (today’s Prescott larger ferries and ships. Beginning in 1874, and South Prescott neighborhoods) was so the Oakland estuary was dredged to become rapid that the area was solidly built up by the a harbor, and the dredged material was used end of the 1870s. In the Prescott and South to fill the estuary shores, expanding the Prescott neighborhoods of today, over half area of land in West Oakland. Most of what the buildings were constructed in the 1880s exists in West Oakland today can be traced or earlier, with smaller and larger versions of to this historic development pattern. Today’s fairly standard Italianate, Stick, and Queen residential neighborhoods are generally Anne designs on uniform small lots. Both of located on the historic dry land, whereas these neighborhoods survive remarkably current industrial areas mark almost exactly intact today. the outline of the old marsh. Oakland Point was connected with central Oakland by the local rail line which ran along The Railroad Era: Prescott & South 7th Street with stations at Wood, Center, Prescott Neighborhoods Adeline, and Market Streets. The entire length of west 7th Street was a major commercial, When West Oakland became the western lodging, and entertainment center, which terminus of the transcontinental railroad survives today only in fragments such as in 1869, it became a powerful economic the Arcadia Hotel, the site of the Lincoln base for the city and the San Francisco Bay Theater, the Brotherhood of Sleeping Car region. The Central Pacific rail yards were Headquarters, and Esther’s Orbit Room. located at Oakland Point and expanded out Peralta, 8th, and 14th Streets also became over the surrounding marsh. The rail yards significant transit streets with commercial were headquarters for most of the railroad’s nodes. Northern California maintenance, construction and shipbuilding operations, and were a major source of employment. Residential development to accommodate rail workers
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An early railroad station was constructed at Streetcar Suburbs: Hoover / MacArthur / 16th and Wood Streets. When the grand 16th McClymonds Street Station was built in 1910-13, a few new hotels and stores were added and two still In the early 1890s, electric street railways exist, conveying this part of the area’s history. spread rapidly throughout Oakland, joining outlying towns into one large city, and promoting residential development all along Garden Suburb: DeFremery / Ralph the lines. Occasional early commercial nodes Bunche / Oak Center Neighborhoods and apartment buildings still mark the transit EXISTING ASSETS RETAINING stops. The 1906 earthquake accelerated this Another very early settlement pattern in West development. In the Clawson, McClymonds, Oakland was established around the James Bunche, and Hoover-Foster neighborhoods, DeFremery house which still stands at 16th well over half the buildings are pre-1910, and Adeline Streets at the innermost extension as evident in the concentrations of Queen of the old marsh. A residential neighborhood Anne and Colonial cottages in the Clawson of San Francisco commuters and professionals and McClymonds neighborhoods and in the developed surrounding the DeFremery substantial Colonial Revival and Craftsman property. Houses and lots were generally large houses and flats that line Martin Luther King, in size and developed individually as custom Jr. Way, West Street, and their cross streets in homes and as an extension of the downtown. the Hoover and McClymonds neighborhoods. This area is generally now known as the Ralph Bunche and Oak Center neighborhoods. The Later Industrial Development DeFremery family sold their house and its immediate surroundings to the City as a park The northwest marsh began to be developed in 1906. in the 1920s in part because of advances in building technology, in part because truck Much of the marshland to the west of these transportation made it feasible to locate neighborhoods was eventually filled in and industry and warehousing away from railroad developed as industrial areas and became a lines, and in part because of fill resulting major employment center of West Oakland in from Outer Harbor development. By the the 20th century, with new industrial plants mid-1930s, prominent industrial landmarks owned by such businesses as Shredded Wheat, existed, though much of the area was still Carnation, and Coca Cola. vacant mudflats. In 1941, the Army took over the entire Outer Harbor and filled the area between Maritime Street and the tracks, land- Northwest Oakland: Watts Tract / locking the West Oakland marsh. The vacant Clawson Neighborhoods blocks quickly filled with war-related industry The northwesterly portion of West Oakland in and temporary housing for defense workers. the 19th century was mostly an undeveloped, A postwar building boom completed this marshy area separating the 16th Street northern industrial area’s development, with Station area from the next rail stop to the more businesses centered on heavy industrial north, at Watts Station. By the time this area uses such as metals, construction materials was developed in a semi-rural way, it had and motor freight. partly adopted the Emeryville street grid, and was within easy reach of Emeryville’s early Later Evolution of Residential West Oakland ironworks, stockyards, and racetrack, and is In 1936-38, City and federal Works Progress still influenced today by its relation to the Administration studies were undertaken to Emeryville economy. This area grew through site a federal low-rent housing project in residential infill in the 1900s and 1910s, and is Oakland. Two West Oakland sites, Peralta Villa now known as the Clawson neighborhood. just east of what was then known as Cypress
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Street (now Mandela Parkway) and Campbell activities. Instead of the Cypress freeway Village in the heart of Oakland Point, were bisecting West Oakland, its replacement selected for redevelopment, despite the with the Mandela Parkway reunited West protests of residents who insisted that they Oakland with a beautiful landscaped median. had a healthy neighborhood of sound, owner- New developments made possible by this occupied houses, strong neighborhood1 spirit, relocation of Interstate 880 include new and a large African-American community residential construction, the adaptive reuse whom the authorities were suspected of of former industrial buildings to art studios RETAINING EXISTING ASSETS RETAINING targeting for removal. By the time these and residential development, as well as the projects were completed, the U.S. was in addition of several new restaurants. New World War II and both sites were converted residential development includes the market- to defense worker housing. The Moore and rate West End Lofts to the North and Hope VI Bethlehem shipyards greatly expanded, mixed-income Mandela Gateway to the South. and large numbers of both white and black Developed in the formerly cut-off western side workers from the South arrived to fill these of the former Cypress are several new large jobs. Oakland’s African-American population market-rate housing projects including The more than quintupled during the war years, Iron Horse Lofts and Zephyr Gate townhouses and many of the newcomers settled in the next to the relocated Interstate 880 as well established community in West Oakland. as the Lamp works, an approximately 93- unit adaptive reuse project currently under In the mid-1950s, West Oakland was cut in half construction on Peralta Street. by the Cypress Freeway (later, Interstate 880). In the following decades, several more housing The ground level the Mandela Gateway project projects were built in West Oakland including includes some retail including the Mandela the Acorn and neighboring projects south of Market and a Dollar Store facing 7th Street. Oak Center, Westwood Gardens in Prescott, Also on 7th Street are substantial streetscape and Chestnut Court in McClymonds. Between improvements including a series of blue 1969 and 1972, construction of the new main “pipes” meant to suggest musical notes, part United States Post Office and West Oakland of the Blues Hall of Fame celebrating West BART Station destroyed most of the 7th Street Oakland’s musical heritage. Also on 7th Street commercial strip. Later, the construction is The Crucible, a large school for the industrial of Interstates 580 and 980 separated West arts that draws students from all over Oakland Oakland from Emeryville, North Oakland, and and the Bay Area. Over the past years, the Downtown. In the case of Interstate 980, care former American Steel Building near Mandela was taken to submerge the freeway in order and West Grand has been subdivided into to minimize the visual impact as well as lessen over a 100 small artist studios and a one story noise impacts. Unfortunately this was not the with surface parking logistics center was built case with Interstate 580, where construction at Mandela and 14th Streets. Finally, several of what was originally called the Grove-Shafter new restaurants by regionally prominent chefs freeway replaced one side of formerly quiet have located, particularly in the northern end residential streets in the Hoover neighborhood of West Oakland including the Brown Sugar with unattractive landscaped embankments Kitchen at the corner of Mandela and 26th and the towering and noisy “MacArthur Maze.” Street, B Side Barbeque on San Pablo at 33rd Street and the Fuse Box near Magnolia and In 1989, the Loma Prieta earthquake, besides 24th Streets. In addition, the Linden Brewing damaging buildings, caused the collapse of Company, the first new brewery in Oakland in the Cypress Freeway. Land-use conflicts were many decades, located on Linden Street near lessened when Interstate 880 was relocated to 3rd Street, is now constructing a tasting room establishing a more logical boundary between and full restaurant. West Oakland’s mostly fine-grained residential/ commercial uses and heavy trucking/port
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Defining Historic Resources in 3, representing an assessment of the Oakland significance of the area or district in which the property is located. Policy 3.8 of the City of Oakland’s Historic Preservation Element provides a definition of • Areas of Primary Importance (API) are historic resources for environmental review historically or visually cohesive and possess under CEQA, and Policy 1.2 defines a broader National Register-level significance and category of local resources called Potential integrity. Designated Historic Properties (PDHPs). The EXISTING ASSETS RETAINING West Oakland Specific Plan does not change • Areas of Secondary Importance (ASI) are these City definitions( see Figure 5.3.2). cohesive and distinctive but likely not eligible for the National Register, usually because they are less intact or less unique Oakland Cultural Heritage Survey than APIs. Sample ratings include: Chapter 3 of the Oakland General Plan’s • C1+ secondary importance (C), contributes Historic Preservation Element is titled to an API (1+) “Identifying Historic Properties.” The Oakland Cultural Heritage Survey (OCHS) is the • Db+3 minor importance (D), potentially City’s comprehensive citywide inventory of major importance (B+) if restored, not in a historic buildings and districts. Since 1979, district (3) the OCHS has created and maintained an inventory of historic resources throughout • E2- of no particular interest, in an ASI but the City. Every property in Oakland has been does not contribute at least preliminarily surveyed and rated, and thousands have been researched and • *a not rated (*), potentially highest evaluated in detail. importance (A) when 50 years old or if restored. Survey ratings provide guidance to city staff and property owners in design review, code compliance, and similar ongoing city activities, Designated Historic Properties under policies contained in Chapter 5 of the Oakland’s Landmarks Preservation Advisory Historic Preservation Element. Ratings provide Board (LPAB) oversees the city’s formal a baseline description that is subject to being historic resource designation program. As confirmed or modified, since a property’s preservation awareness has expanded over physical condition or perceived significance the years to recognize historic and cultural may have changed over time. value beyond the traditional “highest importance” landmarks and districts, new • Individual property ratings range from “A” designation categories of ‘S-20’ and ‘Heritage (highest importance) to “E” (of no particular Property’ have been added. interest), plus “*” (unrated, usually recent or heavily modernized). Designated Historic Properties (DHPs) within the city are those properties which have been • Some properties have lower-case designated through the Landmarks Board contingency ratings for possible future process as either City Landmarks, S-7 Historic circumstances, for example, “Ca” for a Preservation Combining Zones, properties building now of secondary importance (“C”) on the Preservation Study List, S-20 Historic that might be an “A” if it were to be restored. Preservation Combining Zones, and/or Heritage Properties. • Ratings also include a number, 1, 2, or Designation is usually by application of the
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property owners. The old Study List and CEQA Definitions current Heritage Property designations are In the City of Oakland’s environmental review conferred by the Landmarks Board itself; thresholds of significance, an Historical Landmark, S-7, and S-20 designation are Resource is defined for purposes of the conferred by City Council ordinance on the California Environmental Quality Act (CEQA) advice of the Landmarks Board. 1 as a resource that meets any of the following DHPs are listed on the City’s website at http:// criteria: www2.oaklandnet.com/Government/o/PBN/ RETAINING EXISTING ASSETS RETAINING OurServices/Historic/DOWD009012 • A resource listed in, or determined to be eligible for listing in, the National Register of Historic Places or the California Register Potential Designated Historic Properties of Historical Resources; Potential Designated Historic Properties • A resource included in Oakland’s Local (PDHPs) are defined in the Historic Preservation Register of Historical Resources (see below); Element Policy 1.2 as any properties that have an OCHS rating of at least a contingency “C,” • A resource identified as significant in a or that contribute or potentially contribute to historical resource survey recorded with the a primary or secondary historic district. These State Department of Parks and Recreation; properties warrant consideration for possible preservation. PDHPs are a large group - a • Any resource which the Oakland City fifth to a quarter of all buildings in Oakland. Council determines to be historically They are intended to be numerous enough to significant, provided the determination is significantly influence the City’s character. The supported by substantial evidence; or inclusion of contingency-rated properties as PDHPs is intended to highlight their value as • A resource that is determined by the City restoration opportunities. District contributors Council to be historically or culturally and potential contributors are classified as significant, even though it does not meet PDHPs to promote preservation of Oakland’s the other four criteria listed here. distinctive neighborhoods. This is the minimum set of historic properties While most PDHPs do not appear obviously which must be given consideration during eligible for the National Register or California CEQA environmental review. Register and therefore (in the absence of Heritage Property designation or some other formal action) may not meet the CEQA Local Register of Historical Resources definition of “historic resources,” they are Policy 3.8 of the Historic Preservation Element recognized and protected under the Historic defines the City of Oakland’s Local Register of Preservation Element of the Oakland General Historical Resources for CEQA purposes: Plan for their contribution to Oakland’s character. The Historic Preservation Element • All Designated Historic Properties contains extensive policies and actions for the - those formally designated as protection and enhancement of PDHPs. Landmarks, Heritage Properties, The appropriate potential designation for most Study List properties, or in S-7 or PDHPs is likely to be Heritage Property for S-20 Preservation Combining Zones individual properties and S-20 for districts. (historic districts); and • Potential Designated Historic Properties (PDHPs) that have an existing OCHS rating of “A” or “B,” or are located within an Area of Primary
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Importance (API). become “historic” with the passage of time, or a “fair argument” may indicate that a property Approximately three percent of Oakland’s should be considered significant. buildings are on the Local Register. In West Oakland, roughly 3,500 out of 5,000 Historic Resources in West total buildings meet some definition of Oakland “historic” under the Preservation Element (inclusive of the 1,420 designated properties About 70 percent of the buildings in West on the Local Register). The proportion of EXISTING ASSETS RETAINING Oakland meet Oakland’s most inclusive historic properties in West Oakland (70%) definition of “historic,” as compared to 20 to is much higher than in the city overall (20% 25 percent in the city overall. West Oakland to 25%). Most of West Oakland’s historic also has a large share of the city’s most properties are houses on small lots, and elite resources such as City Landmarks and the Local Register group includes two very properties on the National Register. (see large residential districts, Oakland Point Figure 5.3.2) and Oak Center. In lieu of an individual list of these properties, this Specific Plan There are many different programs and provides a summary with examples of the categories for recognizing historic value, at types of properties in West Oakland that are national, state, and local levels. It is important considered to be historic resources. to recognize that categories often overlap and are always somewhat fluid. Properties can lose or regain integrity, new information may come to light about any individual property or an entire context, younger properties may
National Register Buildings 1. California Hotel - 3501 San Pablo Avenue 2. Western Market Building - 1485-87 8th Street 3. Oakland Mazda Lamp Works - 1600 Campbell Street Other Landmark Buildings 4. Southern Pacific Train Station - 16th & Wood Streets 5. Oakland Laundry Company - 730 29th Street 6. Willcutt House - 918 18th Street 7. Holland-Canning House - 954 16th Street 8. Campbell House - 1014 16th Street 9. Seymour C. Davisson House - 1527 Union Street 10. DeFremery House - 1651 Adeline Street 11. Davisson House - 1651 Adeline Street 12. Samm/Dalton/Cooper Mansion - 1454 8th Street 13. St. Augustine’s Mission - 2624 West Street 14. Cordes-Hoover House - 1079-81 12th Street 15. Storey House - 1782 8th Street Properties Eligible For National Register 16. Wempe Bros.–Western Paper Box Co., 1155 5th St. 17. Merco-Nordstrom Valve Co., 2401 Peralta Street
WEST OAKLAND SPECIFIC PLAN • 5- 35 5 Fig. 5.3.2: Historic Resources Map
Emeryville MacArthur 1 Station
Hollis Street Interstate 580 RETAINING EXISTING ASSETS RETAINING Bay Bridge/Interstate 80
1 San Pablo Avenue 32nd Street Clawson Hoover/ Interstate 880 Foster Former Oakland 5 Army Base 28th Street 17 McClymonds West Grand Avenue 13 Oakland Point 16th Street Martin Luther King Jr. Way Historic District Station 4 Ralph Bunche 3 10 14th Street Mandela Parkway 11 6 9 Prescott 7 Oak Center 15 8 Historic District Pine St Oak Center
Adeline Street 19th Street Peralta Street 12 14 Station 2 Main Post Office West Oakland Interstate 980 Station Acorn South Downtown Oakland Prescott 7th Street Market Street Interstate 12th 880Street Station 16 Port of Oakland 3rd Street
1000 2000 4000 N Legend FEET Planning Area BART Southern Pacific Railroad Industrial Landscape District Landmark Buildings Area of Primary Importance 800+ Area of Secondary Importance 600+
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National Register and California Oakland Point Historic District Register Properties The Oakland Point Historic District is a locally- identified Area of Primary Importance (API) of Individual Properties about 47 city blocks bounded on the south by the 7th Street commercial strip, on the east Properties in West Oakland currently listed on by Mandela Parkway, and on the west and the National Register are: north by the industrial areas of the former
West Oakland marsh. The Oakland Point API EXISTING ASSETS RETAINING • the California Hotel, 3501 San Pablo Avenue is one of the largest and most intact Victorian (see Figure 5.3.3). neighborhoods in California, with close to 850 buildings, the majority dating from the • Liberty Hall (Western Market–Father 1870s and 1880s. Predominant architectural Divine’s Peace Mission building), 1485-87 styles are Italianate, Stick and Queen 8th Street (see Figure 5.3.4). Anne, intermingled with Colonial, shingle, Craftsman, 19th century vernacular (minimally • Additionally, the Oakland Mazda Lamp Greek revival or Gothic). National Register Works, 1600 Campbell Street is either eligibility determination applies to this district currently listed or will be listed in the very and all its contributing properties. near future. (see Figure 5.3.5). Properties formally determined eligible for the National Register in 1991 during Southern Pacific Railroad Industrial environmental review for the I-880 freeway Landscape District replacement include: The Southern Pacific Industrial Landscape District, determined eligible for the National • Merco-Nordstrom Valve Co., 2401 Peralta Register, is a group of historic industrial Street buildings along the Southern Pacific Railroad tracks, from Castro Street to Chestnut Street. • Southern Pacific Station and Tower, 16th It includes 7 Local Register contributing and Wood Streets buildings including the prominent Standard Underground Cable building (Linden Street • Wempe Bros.–Western Paper Box Co., 1155 Brewery) and Del Monte Cannery and Label 5th St. Plant buildings. National Register eligibility determination applies to the district and all its • Southern Pacific Industrial Landscape contributing properties. District, 3rd Street to Embarcadero, Castro to Chestnut Streets S-7 Preservation Combining Zone • Oakland Point Historic District (residential), Properties (Locally Designated Districts) 8th to 16th Streets, Mandela Parkway to Pine Street. The S-7 Preservation Combining Zone and S-20 Historic Preservation District Combining The Southern Pacific Yards & Shops buildings Zones are the City’s historic preservation and four other buildings and smaller historic zoning districts. Areas eligible for S-7 Zone districts were also determined eligible at that designation are those having “special time, but no longer exist or have lost their importance due to historical association, basic historic integrity. architectural merit, or the embodiment of a Properties on or determined eligible for style or special type of construction, or other the National Register are automatically also special character, interest, or value.” The S-20 listed or determined eligible for listing on the Zone is similar to the S-7 Zone but is designed California and Local Registers. for larger areas often with a large number
WEST OAKLAND SPECIFIC PLAN • 5- 37 5
1 RETAINING EXISTING ASSETS RETAINING
Fig. 5.3.3: California Hotel
Fig. 5.3.4: Liberty Hall
5-38 • PUBLIC DRAFT REVIEW - JANUARY 2014 5 RETAINING EXISTING ASSETS RETAINING
Fig. 5.3.5: Mazda Lamp Works Factory, 1910-1916
of residential properties that may not be designation for the whole neighborhood of individually eligible for landmark designation 600-plus properties in 2002. but which as a whole constitute a historic district. Historic neighborhood character extends north of the redevelopment area border at Within West Oakland is a small S-7 Zone along 18th Street, where an additional 30 properties the 1600 block of 7th Street, and a large S-20 are part of a locally identified Oak Center Area Preservation Combining Zone in the Oak of Primary Importance (API). Center area.
Designated Historic Places and Other Oak Center District Individually Designated Local Register The Oak Center District is a locally designated Properties S-20 Preservation District whose boundaries In addition to the National and California coincide with the Oak Center Redevelopment Register properties and districts described Area established in the 1960s, generally above and shown on Figure 5.3.2, individual bounded by 10th and 18th Streets, the Local Register properties in West Oakland Interstate 980 freeway, and Mandela Parkway. include about 25 properties formally Oak Center is a well-preserved Victorian designated by the Landmarks Board (City residential neighborhood, with industries Landmarks Preservation Study List, and on the former marsh at the west edge and Heritage Properties) and about 62 others on several large parks and school sites scattered the Local Register by virtue of “A” (Highest through the neighborhood. The neighborhood Importance) or “B” (Major Importance) survey has outstanding examples of Italianate, Stick, ratings. Queen Anne, Colonial, and Shingle architecture representing Oakland’s prosperous garden suburbs of the late 19th and early 20th century. Several houses were individual City Landmarks even before residents achieved district
WEST OAKLAND SPECIFIC PLAN • 5- 39 5
Non-Local Register Properties of Historic Table 5.3-1: West Oakland Historic Value Character, by the Numbers Approximately 2,500 additional properties Number of are classified as Potential Designated Historic Properties Properties (PDHPs), individually or as part1 West Oakland buildings meeting 3,500 out of of about 13 identified Areas of Secondary most inclusive definition of historic 5,000 (70%) Importance (ASIs). Although these properties National Register buildings 3 RETAINING EXISTING ASSETS RETAINING and areas do not meet the CEQA definition National Register-Eligible properties 5 of “historic resources,” they are recognized Oakland Point Area of Primary Im- as contributors to West Oakland’s historic +/- 850 portance Properties context and are accorded protections under Southern Pacific Railroad Industrial the Historic Preservation Element and Planning 7 Landscape District properties Code. The term Potential Designated Historic Oak Center Area of Primary Impor- Property indicates that these properties may 30 be eligible for Heritage Property designation, tance 7th Street S-7 Preservation Combin- and several such designations have been 3 sought in recent years in order to qualify for ing Zone properties Mills Act contracts (see Incentives, below). Oak Center S-20 Preservation District 600 + Formally designated properties on 25 It is important to recognize that the “list” of the Local Register PDHPs is always somewhat fluid. Properties Local Register properties with PDHP may have been restored or have lost integrity ratings of “A” (Highest Importance) 62 since they were surveyed, new information or “B” may have come to light, or they may have Potential Designated Historic Proper- 2,500 gained additional interest as they have ties become older. Historic status should always be verified when a project is contemplated involving an older building or area. Historic Preservation Strategies Inherent in the Plan The Specific Plan’s Opportunity Areas are carefully drawn so that they: 1) do not overlap with or encroach into historic districts, and 2) avoid impact on individually significant properties. Adaptive reuse and respect for neighborhood character will be encouraged throughout. Existing City policies, programs and regulations intended for the protection and preservation of historic resources will apply to all properties located within the Specific Plan’s Opportunity Areas.
Opportunity Areas and Residential Enhancement Areas The boundaries which define the Opportunity Areas and the Residential Enhancement Areas are carefully defined to respect and acknowledge the existing historic districts and
5-40 • PUBLIC DRAFT REVIEW - JANUARY 2014 5 properties within West Oakland. As shown on make all reasonable efforts to avoid Figure 5.3.2, the great majority of the Local or minimize adverse effects on the Register properties within the Planning Area character-defining elements of historic are located in the residential neighborhoods properties which could result from of West Oakland. About a dozen Local Register private or public projects requiring properties are located wuthin the Opportunity discretionary City actions. Areas. The Southern Pacific Railroad API, is located within the 3rd street Opportunity Area. • HPE Policy 3.2 directs that City-owned or controlled historic properties will be EXISTING ASSETS RETAINING City-wide Historic Preservation preserved. Policies and Programs • Policy 3.3 requires local designation as The existing City of Oakland historic a condition for financial assistance to preservation policies and programs contained projects involving historic properties. in the Historic Preservation Element (HPE) of the Oakland General Plan and the Oakland • Policy 3.4 allows the City to consider Planning Code, which already apply to these acquiring historic properties, by neighborhoods, will continue to apply. A eminent domain if necessary, where all brief overview of these existing policies and other means of preservation have been programs follows. exhausted. This policy proposes limited acquisition powers for extremely important properties in dire situations. The Historic Preservation Element (HPE) • HPE Policy 3.5 establishes design Chapter 4 of the Historic Preservation Element review findings for alterations and (HPE) addresses preservation incentives demolitions of Heritage Properties and regulations primarily for Designated and PDHPs, applicable to both public Historic Properties (DHPs); chapter 5 of the and privately sponsored projects. HPE addresses preservation and on-going The demolition findings have been city activities applicable to all PDHPs as well developed in detail and incorporated as DHPs; and chapter 6 of the HPE addresses in the Planning Code (below). information and education. • HPE Policy 3.6 recommends that The HPE Policies particularly relevant to West City-sponsored or assisted projects Oakland include the following: involving historic properties be selected and designed to avoid adverse • HPE Policy 2.6 recommends a menu of effects and to promote preservation preservation incentives (some not yet and enhancement. The Secretary of the in place), including financial incentives Interior’s Standards for the Treatment (e.g., Mills Act contracts, conservation of Historic Properties are used as one easements, development assistance from criterion for avoiding adverse effects. historic preservation grants or historical This policy extends the protections rehabilitation bonds, fee waivers or applied to federally related projects reductions for City permits); use of the under Section 106 of the National State Historical Building Code to provide Historic Preservation Act (NHPA) to more flexible construction standards; a non-federally funded City projects and broader range of permitted or conditionally to City projects that involve historic permitted uses, and transferable properties that are not on or eligible development rights. for the National Register.
• HPE Policy 3.1 states that the City will
WEST OAKLAND SPECIFIC PLAN • 5- 41 5
• HPE Policy 3.7, for discretionary projects a City Landmark, or the special character, involving demolition of historic properties, interest, or value of the Landmark or its requires that reasonable efforts be made setting. All projects involving Landmarks to relocate the properties to an acceptable should conform, if possible, with the Design site. Guidelines for Landmarks and Preservation 1 Districts as adopted by the City Planning • HPE Policy 3.8 defines the Local Register Commission and/or the Secretary of the and mitigations that might be required in Interior’s Standards for the Treatment of RETAINING EXISTING ASSETS RETAINING environmental review. Historic Properties.
• HPE Policy 3.9 states that zoning should • Planning Code Section 17.136.075 codifies be consistent with existing or eligible regulations for approval of demolition preservation districts and that area and or removal permits. With the exception specific plans should include a preservation of structures declared to be a public component. nuisance, demolition or removal of an historic property shall only be approved • HPE Policies 3.10 through 3.13 require after the Regular Design Review of a attention to historic preservation disaster, replacement project at the subject site has seismic retrofit, code enforcement, and been approved. Demolition findings for similar situations. Category I, II and III properties (according to degree of significance) must be made, • HPE Policy 3.14 supports priority for addressing such concerns as the condition commercial revitalization efforts in historic of the property, quality of the proposed areas. replacement, and economic feasibility of reuse. • HPE Policy 5 series addresses Information and Education because “a historic preservation program is most effective Green Building Ordinance with broad community support and basic The Green Building Ordinance (2010) technical historic preservation knowledge promotes conservation of resources, use and among property owners, developers and reuse of natural materials, and prevention of City staff.” waste generated by demolition. Furthermore, it establishes requirements specifically tailored Oakland Planning Code to historic buildings and Oakland’s distinctive building stock, referencing appropriate LEED The Oakland Planning Code addresses Design and Build it Green standards. Review, including specific Preservation Element-based findings for alteration and demolition of DHPs and PDHPs. CEQA The California Environmental Quality Act • Planning Code Section 17.136.060 provides (CEQA) requires lead agencies in California that design review in the S-7 zone or on a to consider the effects of proposed actions designated Landmark site is referred to the on historic resources. Measures appropriate City’s Landmarks Preservation Advisory to mitigate significant effects to a historical Board for its recommendations to the resource may include modification of the Director of City Planning. project design to avoid adversely affecting the • Planning Code Section 17.136.070 requires character defining elements of the property, that alterations and new construction may or relocation of the affected historic resource not adversely affect the exterior features of to a location consistent with its historical or architectural character. If the above measures
5-42 • PUBLIC DRAFT REVIEW - JANUARY 2014 5 are not feasible, then other measures may be Cable buildings within the 3rd Street considered. Opportunity Area are large brick and timber structures that are part of the Historic Preservation Strategies Southern Pacific Industrial Landscape District. These buildings have long The following specific strategies are been used for offices and small recommended to protect and preserve historic manufacturing uses (e.g., the Linden resources in the West Oakland Opportunity Street Brewery). Areas. EXISTING ASSETS RETAINING • The Oakland Mazda Lamp Works building at 1600 Campbell, is currently Preservation through Adaptive Reuse under rehabilitation for live/work lofts in the three-story existing historic Intent: Protect and preserve historic and structure. Additional live/work units architecturally and structurally significant may be added in the future and structures by adaptively reusing these should complement both the historic buildings. architecture and reflect an active live/work component to support Reuse of existing historic buildings is a cost- the revitalization of this area near effective strategy, recognizing the capital Raimondi Park (see Figure 5.3.3). investment that has already been made in these buildings and acknowledging Adaptive Reuse-2: Partial Replacement: It may the architectural character and historical be appropriate to replace less significant significance that many of these buildings structures or portions of structures on possess. Reuse further respects green building a large site, while retaining the most goals and conserves embodied energy. A large significant or character-defining elements of number of non-residential facilities throughout important buildings. the West Oakland Opportunity Areas are used by industry and other business, but not always • The former Coca-Cola Plant at to their full potential. 13th and Mandela is envisioned by this Specific Plan as retaining the This Specific Plan encourages innovative character-defining 1940s building on reuse of existing buildings with a focus on the northern portion of the site under incubator space for specific industry groups, the current or similar use, while the adaptable space for artisans and craftspeople, remainder of the property could be and flexible small spaces where start-up retained as a signature commercial businesses can share facilities and equipment. or creative flex business, or could be Smaller non-landmarked industrial buildings redeveloped for new business mix/ as well as officially designated historic light industrial use. New live/work uses buildings both provide reuse opportunities could be developed on the southern and are considered important assets of the portion of the property where it neighborhood. adjoins the Oak Center neighborhood.
Adaptive Reuse-1: Promote catalyst adaptive Adaptive Reuse-3: Intensification: Reuse of re-use projects. Several high-profile historic the existing underutilized Merco-Nordstrom structures within West Oakland are already Valve building at 24th and Peralta Streets adaptively reused and can be promoted as (a National Register eligible property) is examples for other re-use projects: intended to accommodate compatible light industrial or business mix uses. • The Del Monte Cannery and Label Plant and Standard Underground
WEST OAKLAND SPECIFIC PLAN • 5- 43 5
• Planned improvements to this area • Any exterior alterations necessary for pursuant to the Peralta Streetscape the adaptive reuse of Local Register Plan should market this building’s properties shall rely upon the City’s distinctive contribution to the Design Guidelines for Landmarks economic history of West Oakland and Preservation Districts and/or the through streetscape design, signage1 Secretary of the Interior’s Standards for and as a gateway to an historic the Treatment of Historic Properties to industrial district. ensure that alterations do not remove RETAINING EXISTING ASSETS RETAINING or materially alter the character- • Similarly, the eventual reuse of the defining features of the buildings. The Southern Pacific 16th Street Station, Secretary’s Standards may also address along with surrounding uses, offers an preservation of significant interior opportunity to create a higher intensity features, especially in federal tax credit node which leverages this important projects. historic asset. • Development on the former Adaptive Reuse-4: Infill. Three adjoining Lincoln Theater site (or other infill properties on the 1600 block of 7th Street in a designated historic district) are designated as an S-7 Preservation will be subject to City Design Combining Zone, recognizing these Review including referral to the properties as remaining fragments of the Landmarks Board, pursuant to the historic 7th Street commercial district. The S-7 Preservation Combining Zone Specific Plan envisions continued use of the regulations. two remaining historic structures at each end of this block, with multi-family residential • Alterations to non-Local Register development opportunities targeting historic properties will be subject to entrepreneurs who may operate commercial PDHP provisions of the Preservation retail businesses along Seventh Street as an Element and Planning Code, and incentive for the revitalization of that District. applicants will be encouraged to consider Heritage Property • The City could partner with a non- designation to qualify for Mills Act and profit entity to pursue grant funding State Historical Building Code. for this and/or for the vacant lot (the former Lincoln Theater site) to • Where appropriate, extend code further activate the area as a Cultural flexibility similar to the Historical District through development of a Building Code to non-Local Register performance venue. reuse projects through the Building Department’s Alternative Methods Adaptive Reuse-5: Standards: Adaptive reuse of and Material Request or similar historic West Oakland structures will be subject process. to the following:
• Renovations or improvements 7th Street Cultural District necessary for reuse of Local Register buildings may make use of the State Intent: Establish a Cultural District along 7th Historical Building Code, which can Street, from Wood Street to Chester Street, in provide for more flexible construction the 7th Street Opportunity Area. standards as long as the basic intent of the code – life safety and accessibility The 7th Street corridor, from Wood Street - is met. to Chester Street, was once a thriving commercial, lodging, and entertainment
5-44 • PUBLIC DRAFT REVIEW - JANUARY 2014 5 center that provided a community focal point Cultural District-4: Maintain consistent style for the surrounding neighborhood. Surviving and design for the 7th Street streetscape, fragments of this commercial corridor include with priority consideration to the historic the Arcadia Hotel and the Flynn Saloon/ Oakland luminaire style, and pursue funding McAllister Plumbing building in the one-block for the implementation of additional S-7 district, and the Brotherhood of Sleeping lighting. Car Porters Headquarters and Esther’s Orbit Room at the west end of the street. This Cultural District-5: Potentially install the corridor should once again be returned to historic railroad catenary poles (currently EXISTING ASSETS RETAINING its prominence as an important community- housed at the American Steel property) serving commercial and cultural focus. along the length of 7th Street as a streetscape design element to mark this Prospective developments within the 7th Street Cultural Overlay zone. Cultural District would be evaluated to ensure compatibility with the historic character of the 7th Street district and the surrounding Prescott Maximize Financial Incentives for and South Prescott neighborhoods, as a means Historic Preservation of honoring the past. Intent: The City, together with private development entities, should continue to Cultural District-1: Continue implementation pursue all available federal, state and local of the adopted Seventh Street Urban grants, loans and other funding and tax Design Plan (Walter Hood Design, Caltrans benefit strategies to enhance the economic Environmental Justice grant, 2004). viability of preserving and reusing historic Cultural District-2: Establish an historic district buildings. designation for the portion of 7th Street The elimination of Redevelopment resulted in between Wood and Chester Streets, which the loss of most of the funding for the City’s seeks to retain existing historic buildings and very effective Commercial Facade and Tenant provide for the infill and redevelopment of Improvement Program, which has long been this corridor as a cultural center containing able to provide free architectural assistance new commercial, lodging and entertainment and 50% matching grants to property and uses. The revitalization of 7th Street will be business owners in designated areas of the aided by the streetscape improvements City, including West Oakland. As new funding already completed, the envisioned Transit becomes available, the Program should be Oriented Development on the south side used for rehabilitation of historic facades, of 7th Street, mitigation measures to reduce exterior repairs, windows, painting, cleaning, noise from BART, the direct funding from removal of old signs and installation of new grants, and future Mills Act contracts as it signs, awnings, exterior lighting, improvement pertains to historical buildings. or removal of security grilles, fencing, and Cultural District-3: Work with community landscaping. Reinstatement of the City’s groups to install educational and interpretive Commercial Facade and Tenant Improvement signs, artwork, and landscaping which Program should be a high priority. highlights the historical and cultural The Mills Act program is a State-enabled features of this corridor. This funding will incentive which can provide a reduction in likely rely on corporate sponsors within property taxes on historic properties if the the Entertainment/Cultural Community owner obtains historic designation and signs to further the work of the Blues Walk of a contract with the City of Oakland to use Fame, established within the Seventh Street any tax savings on a ten-year work program Streetscape improvements. to repair and maintain the historic character
WEST OAKLAND SPECIFIC PLAN • 5- 45 5
of the property, It is a revitalization tool and Financial Incentives-6: Publicize existing City catalyst for neighborhood improvement and residential rehabilitation loan programs and increases marketability since the lower tax rate applicability to preservation-related work. is passed on to future owners. Financial Incentives-7: Implement the building There are two federal investment tax credit1 relocation assistance program set forth in programs for rehabilitation of existing HPE Action 3.7.3, whereby the City would buildings - a 20% credit for rehabilitation of facilitate moving of buildings displaced RETAINING EXISTING ASSETS RETAINING National Register properties, closely reviewed by development projects through such by the State Office of Historic Preservation and assistance as loans, permit streamlining, the National Park Service, and a 10% credit and/or identifying land for temporary or for rehabilitation of pre-1936 non-residential permanent siting of buildings. buildings. Both programs require a “substantial rehabilitation,” equal in cost to the owner’s Financial Incentives-8: Seek additional funding adjusted basis in the building. to assist low-income property owners of historic properties to preserve and maintain The following City-initiated Historic the property’s historic status. Preservation incentives are recommended:
Financial Incentives-1: Increase Mills Act Public Education participation by reaching out to owners of historic properties, with assistance from Intent: Increase the public’s awareness of private individuals who already participate the economic, environmentally sustainable, and are willing to advocate for the benefits and culturally significant benefits of historic of Mills Act contracts. preservation.
Financial Incentives-2: To limit potential Public Education -1: Encourage and educate revenue losses, the City’s current Mills Act owners and residents about appropriate program has limits on the number and/ rehabilitation, particularly owners of or dollar amount of contracts in any given recently-purchased older properties; year. To further the benefits of this program, publicize online availability of the historic consider increasing the limits within West rehabilitation guidebook, Rehab Right. Oakland. Public Education -2: Review and publicize Financial Incentives-3: Determine how to design review and permitting procedures for restore funding for the commercial Facade small projects so that existing preservation Improvement and Tenant Improvement standards can be better enforced, matching grant programs and expand the particularly within the residential areas of program to industrial properties. West Oakland.
Financial Incentives-4: Investigate establishing Public Education – 3: Work with West Oakland a residential Facade Improvement grant business organizations, neighborhood program, building on the experience of associations, library and senior center, etc. a program piloted in the Eastlake district as forums for disseminating preservation several years ago. information.
Financial Incentives-5: Publicize existing Public Education – 4: Promote awareness federal investment tax credit programs of West Oakland’s historic resources and for income-producing properties on the heritage through existing and new plaque National Register and pre-1936 commercial or marker programs (HPE 5.1.1), walking tour and industrial buildings. programs (HPE 5.1.6), and similar activities.
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shipping containers) as an exhibition 16th Street Station of new building forms, which can be relocated at the time of permanent Intent: Support rehabilitation of the 16th development. Street Station such that it becomes the centerpiece of the surrounding neighborhood 16th Street Station-3: In the interim, continue to support and seek to expedite permitting The Southern Pacific 16th Street Station is for festivals, street fairs and special events located on the far west edge of the Plan Area at
which showcase the 16th Street Station by EXISTING ASSETS RETAINING 16th and Wood Streets. It is probably the most offering an interim city permit which details significant West Oakland landmark in need of conditions for festivals and interim events preservation and reuse, and is of enormous that are compatible with the community and symbolic importance to the image and activate the site prior to full redevelopment. fortunes of West Oakland. The 1910-12 Beaux Arts station has a long and rich history, but was 16th Street Station-4: Ensure that in future closed by Amtrak in the 1980s and suffered development surrounding the Station damage in the 1989 Loma Prieta earthquake. the 16th Street Station is included as a The station and the lands around it were community focal point or destination which purchased in 2005 by BRIDGE Housing, which serves to strengthen the neighborhood is working in partnership with the community character. nonprofit RAILS (Restoration Association for Improving the Landmark 16th Street 16th Street Station-5: Improve pedestrian Station). Long-term plans call for the Station and transit access to the 16th Street Station to become the centerpiece of the surrounding both within the immediate vicinity and in neighborhood, with more than 1,200 homes relation to the rest of Oakland, as a means planned around it; uses contemplated at of supporting revitalization efforts and the time of writing this Specific Plan include fostering the Station as a community focal event space, commercial kitchen, food service point. (cafeteria and/or restaurant, and as a public gathering space. (refer to Section 7.1-1of this Plan ‘Mandela West Grand Opportunity Area Designation for Eligible Properties and Development Concepts for more details). Districts
16th Street Station-1: Provide City staff Intent: Seek to increase the number of expertise from Economic Development, designated historic resources in West Oakland Historic Preservation, Marketing, and other by encouraging owners to apply for Landmark, relevant departments to work with RAILS and Heritage Property, S-7, or S-20 status for BRIDGE to develop a list of potential uses for historically important buildings and districts. the Station and grounds, and seek to market and achieve reuse. Historic Preservation Element Policy 3.3 proposes that City-assisted historic properties 16th Street Station-2: Given the scale of the be required to apply for local designation, and 16th Street Station’s needed rehabilitation many of the incentives in the Preservation and redevelopment efforts, including Element are tied to designation. Designation eventual seismic retrofitting, recognize that is almost always at property owners’ the property will likely be developed using a initiative. District designation in practice phased approach over many years. requires unanimous owner consent and therefore a time-consuming public education • Encourage interim site development, process. The Historic Preservation Element such as the placement of examples recommends actions to “enhance the publicity of green modular units (rehabbed and prestige” of Landmark, Heritage Property, and district designation.
WEST OAKLAND SPECIFIC PLAN • 5- 47 5
Historic Designation-1: Work with Historically Compatible Design-2: For large neighborhood residents to encourage S-20 projects like the West Oakland BART Station district designation of the South Prescott Transit Oriented Development (TOD) and Oakland Point neighborhoods, portions project, build upon design characteristics of thereof, and/or other identified districts surrounding areas. throughout West Oakland, following1 the example of Oak Center neighborhood. Historically Compatible Design – 3: Design characteristics of each of the Specific Plan’s
RETAINING EXISTING ASSETS RETAINING Historic Designation-2: Collaborate with Opportunity Areas are summarized as owners of significant individual properties follows: to seek designation as Heritage Properties or City Landmarks, following the recent • Opportunity Areas 1 and 3: Infill and large example of the Shorey House at 1782 8th projects should include the following Street. characteristics in order to best relate to existing industrial buildings: Historic Designation-3: Educate the public to appreciate the incentives and benefits • Build to edge of sidewalks to reinforce of designation and dispel fears of over- the existing street wall. regulation. • Mass larger buildings as rectangular Historic Designation-4: Consider a yet broader shaped blocks that are not more than zoning overlay of Conservation Districts 2 levels taller than existing nearby or Neighborhoods that might promote buildings. preservation of neighborhood character with less exacting eligibility standards and • Use setbacks to create gentle regulations. transitions to existing nearby buildings.
Development Adjacent to Historic • Utilize mostly punched openings, Resources particularly on lower levels similar to existing nearby buildings. Intent: New development should be designed in a manner that provides for compatibility • Encourage use of rough materials and enhancement of adjacent historic such as poured concrete and brick to resources. relate to any existing nearby industrial context. Although the boundaries of the Specific Plan’s Opportunity Areas do not overlap with or • Employ some decorative materials encroach into West Oakland’s historic districts, such as brick or tile or in small areas new growth and development envisioned near major entrances or on corners. under the Plan could still indirectly affect historic structures or districts. • Opportunity Areas 2 and 4:
The following is recommended: • On major commercial arterials such as 7th Street and San Pablo Avenue, Historically Compatible Design-1: Infill build to edge of sidewalk and using development projects (both residential continuous storefronts with transom and commercial/business mix) should windows over display windows be designed so that heights, densities and bay windows for upper level and building envelopes form compatible residential that relate to existing transitions to historic neighborhood context. storefronts in area.
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• On side streets employ small porches commercial buildings; and stoops as well as small gardens to better relate to small scale • The Mills Act tax reduction program for neighborhood buildings. Designated Historic Properties, which requires an approved work program for Recommendation for Future rehabilitation and maintenance; several Studies and Plans West Oakland properties now participate, and hundreds would be eligible; RETAINING EXISTING ASSETS RETAINING West Oakland Residential Enhancement • The City’s Housing Department. has various Areas Historic Preservation housing loans and grants for homeowners;
The historic preservation strategies identified • Policy 3.12 of the City’s Preservation within this section of the Specific Plan apply Element proposes City actions to promote specifically to historic resources and important rehabilitation of “substandard or public properties within those areas identified as nuisance properties;” and Opportunity Areas in this Plan. • Incentives in the form of knowledge: Mills An important follow-up or additional study, Act and federal 20% tax credit require beyond the scope and reach of this Plan, rehab work to maintain historic features, would be to develop similar preservation but other programs and day-to-day project strategies for individual historic resources, review do not. Various parties would benefit historic districts and historically important from information on how to improve the areas that lie outside of these Opportunity condition of historic buildings and repair Areas (e.g., historic preservation strategies deferred maintenance without losing that would specifically apply to the Residential historic character. Enhancement Areas), and throughout the Specific Plan Area. West Oakland’s historic Although not imminently threatened by new context not only includes being a local mecca development or by plans for transformative for blues entertainment, but also includes change, the Residential Enhancement political action, the Sleeping Car Porters, the Areas of West Oakland contain the greatest Black Panthers, and the many prominent concentration of historic resources and historic citizens that have lived in the area. Future districts within West Oakland. actions could include developing a description of present-day neighborhoods that could enhance connections between them, the past, and new development.
Another potential follow-up action would be for the City of Oakland to explore establishing a State Historic Tax Credit program in California as other states have done. Other incentives for owners to improve the conditions of their historic structures could include:
• Monetary Incentives: In addition to the federal 20% investment tax credit for certified rehabilitation of National Register buildings, there is a less-known 10% federal credit for rehabilitation of pre-1936
WEST OAKLAND SPECIFIC PLAN • 5- 49 5 5.4: Fostering the Creative Economy & Cultural Arts Community
Industrial arts and artists in West Oakland West Oakland Artists represent a vibrant and growing sector1 of the “creative economy”. These businesses and industries are actively involved in the Oakland is home to thousands of artists, arts and culture related community based organizations, as
RETAINING EXISTING ASSETS RETAINING sophisticated execution of usually singular well as educational institutions that support the arts. objects and fine art, performance art including “Oakland has over 10,000 artists - more per capita music theater and dance, associated with than anywhere in the nation besides Greenwich intellectual property and original expression, Village.” “making” creative products - making art, making objects, making technology, and former Oakland Mayor Jerry Brown making cultural experiences. According to a study conducted by Americans Arts related businesses in West Oakland are for the Arts, there were more than 5,500 arts- diverse and include traditional ethnic-based related businesses employing approximately cultural groups, youth groups, individual 21,500 people throughout Alameda and artists, and most notably a large community Contra Costa Counties. of industrial artists who often occupy older and physically-challenged or underutilized • The Oakland Partnership’s “Taking Stock buildings due to need for lower rent structures of Oakland’s Economy” reports that the and who, contribute industry and creativity arts, design professions and digital media to the area. These clusters of arts activities are considered one of Oakland’s primary are hubs of innovation and creativity, and economic “clusters”. spur cultural production. They contribute as an economy of their own in wages resulting • The City of Oakland’s Economic from commissions and grants, and contribute Development Division lists the arts and to the local economy in purchases of goods digital media sector as one of Oakland’s and services (supply chain). Precisely because “key Industries”, noting that Oakland ranks this cultural district of West Oakland was 23rd in the country for the number of not planned from scratch but instead has artists as a percent of the workforce. grown from the self-organized efforts of local participants, this pioneering industrial • According to the report “Artists in the arts movement deserves recognition and Workforce 1990-2005”, there are over regulatory assistance and support from 8,600 designers, 3,400 architects, and the City in the form of a business-friendly nearly 2,700 fine artists, art directors and permitting structure. The arts economy in West animators living and working in Oakland. Oakland deserves a spirit of cultivation to help Clearly, Oakland’s art community is strong these businesses grow and flourish without and is growing. This can be evidenced in snuffing out the spark that makes it distinctive. the increasing number of art galleries, the popularity of the monthly First Friday Art Murmur art walk in Uptown, the popularity and success of the Crucible as an industrial arts center, and the scores of digital media startups (e.g., Pandora Music) emerging in downtown.
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From site tours and area observations, it is clear surroundings. These artists’ communities are that arts activity in West Oakland represents often in interesting places, such as former a significant part of Oakland’s lifestyle and manufacturing facilities and yards, which are community, and that there is a considerable ripe for discovery and which fuel creativity. population of artists and “arts-adjacent” Some of these arts-adjacent residents are lifestyle residents in West Oakland. Specific employed in related fields such as alternative Plan analysis has estimated that working artists energy and urban farming and there is a occupy roughly 1,000 to 1,200 residential natural synergy between environmental and live/work units in West Oakland. Many innovation and arts. EXISTING ASSETS RETAINING “live/work” units are not occupied by artists, although this was the sector which originally spurred the architectural type formation. Still, Demographics whether inhabited by artists or not, new live/ The increase in artists and alternative lifestyle work construction has spurred tremendous residents in West Oakland represent a highly economic development through the infusion visible change in the area’s population. of new residents, construction and local While the artists and arts-related community spending. includes residents of all ethnicities, this There are three main groups of resident artist community is statistically more likely to be stakeholders in West Oakland: non-African American or white, and thus contributes to the area’s growing ethnic diversity. • Those who reside in West Oakland housing units; The nonprofit group Support Oakland Artists (SOA) conducted an Art Census in order to • Those who work in West Oakland studios, take inventory and assess the economic and primarily former industrial space such as community impact of the arts in Oakland. Out American Steel; and of the 623 members of the SOA community, 317 have completed the Art Census. • Those who occupy live/work space in West Preliminary findings indicate that Oakland’s Oakland, such as the Peralta Lofts. arts-related income and revenue is over $12.7 There are several notable live/work projects in million, with an additional $11.2 million of West Oakland developed by artists specifically indirect economic impacts created by art- for artists, including the residential studios related expenses for activities. These arts- on Lewis Street between 5th and 3rd Street, related activities also produce considerable and the Peralta Studios at Peralta and West sales tax revenues for the City. Grand Avenue (rented exclusively to practicing artists) Most artists who live in West Oakland While there is a great diversity among the are renters. Some West Oakland artists live in artist now in West Oakland, many are not live/work conversions of formerly underutilized originally from the area and form a distinct industrial spaces which are unpermitted, due community. Over the years, artists have to their lack of knowledge of the regulatory been attracted to West Oakland by the large system or due to the low rent scales of such volume of low-cost space. Some of the first facilities. artists moved into the area in the late 1970s and early 1980s. These included individuals Many of these are minimally improved for live/ who purchased properties and built arts- work use (may include only floors, stubbed related compounds and institutions. Another utilities, and walls between units), and where wave of artists moved to the area during the residents undertake the final improvements post dotcom boom, making smaller-scale to the units on their own. West Oakland also acquisitions such as LoBot Gallery and Black attracts an “arts-adjacent,” lifestyle segment Dot Artists Collective. that is attracted to the artists and their WEST OAKLAND SPECIFIC PLAN • 5- 51 5
West Oakland Arts Typology • digital arts
The industrial arts and artists in West • music, film and video Oakland represent a vibrant and growing sector of the “creative economy”, which also • performance arts includes notable performance groups1 such as Attitudinal Healing, the Prescott Circus, • culinary arts Project Bandaloop, Trapeze Arts and Kinetic
RETAINING EXISTING ASSETS RETAINING Arts Center. The Prescott Joseph Center is • publishers and literary arts associated with theater performers. Recently the historic Continental Club has re-opened as • architects, landscape architects and a comedy club, and the 20-year+ Soundwave engineers Studios recently obtained its planning permits to open as the Wood Street Music Hall. • urban farms and gardens
In particular, the concentration of industrial • industrial design arts businesses and individual studios in West Oakland are increasingly being known • audio visual, and film as “Makers” in association with Maker Faire, Burning Man and other festivals which feature • video and photographic arts such work. Oakland Industrial artists are known internationally for such activities, yet • fashion & textile design are under-recognized within the local area as There is also a variety of business types that a collective. Therefore, the City has sponsored support art- and arts-related businesses, the creation of an “Oakland Maker” initiative, including art supplies, arts transporters, arts (www.oaklandmakers.org) to further brand, education and institutions, exhibition space support and engage the community in alliance and retail sales, and wholesalers/distributors. with key industrial companies. The Oakland Maker initiative helps to foster the “Industrial Commons”, a shared and more tangible West Oakland’s Arts-Specific platform for recognition and appreciation Development of the need for maintenance of Oakland’s industrial land stock, which currently is less Arts facility types include galleries, temporary than 3 percent of the total land supply in installations or “pop-up” art showings, and Oakland, per the General Plan designations live/work facilities. Several West Oakland (about 5% if the Port of Oakland lands are developments have targeted the arts included). Such companies are increasingly community as either living or work space using innovation in their work, and thereby tenants. Oakland architectural expertise also share needs for stabile industrial facilities in this arena has flourished since the early which increasing their use of technology. 1980’s, when the state declared a relaxation of regulation in its Building Code to allow Industrial arts however are but one of the for such development. The City of Oakland vibrant “creative economy” business types in followed with innovative regulation of its own West Oakland. Several arts typologies and arts- in 1981. adjacent / arts-related businesses exist within West Oakland: Oakland’s Live/Work facility types include “Work/Live” with strict adherence to a 2/3rds work occupancy and floor plan, and • industrial arts a limitation of 1/3rd of the square footage for • visual arts the residential portion. Another “Live/Work” facility type was introduced into the Planning
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Code in the mid-2000’s to address the “lifestyle truck access for large-scale fabrication and loft” form of architecture and design, which industrial arts projects. The facility is used was prevalent especially in the “Housing & for production work, shows and exhibits (in Business Mix” (HBX) zoning districts. There are the Poplar Warehouse), and some large-scale also Work/Live facilities which are designed community events. This existing industrial with “commons” - a form of Open Space arts community has attracted industrial artists communally shared (indoors or outdoors) from around the country and the world, in spaces which would otherwise not offer fueling a new Industrial Arts Movement seated
any real outdoor shared space, due to their in West Oakland. This movement is being EXISTING ASSETS RETAINING historic footprint “lot line to lot line”. These documented and celebrated by the global developments have capitalized on low cost press, but remains largely unrecognized land, and undervalued and/or disinvested, and locally. thereby cheaper, industrial facilities to create projects designed specifically for the arts There are limited retail and food and beverage segment. Essentially, the lack of competition establishments in West Oakland that cater for residential and work spaces has created a to the arts and arts-oriented segments. vacuum filled by artists. Most of this economic energy is captured in the Uptown district. One exception is the There is a considerable amount of both small- popular Brown Sugar Kitchen at 2534 Mandela and large-scale arts users of industrial space in Parkway, which generated strong sales and a West Oakland. Large-scale users (over 25,000 loyal customer base that endures long waits sf to 250,000 sf) include, but are not limited to, for tables in peak periods and attracts patrons The Crucible off of 7th Street, American Steel to West Oakland from around the region. Studios at Mandela/Grand, the Bruce Beasley Studio in South Prescott, Mark Bulwinkle Some arts establishments, such as American studio and work space in the north Clawson Steel, LoBot Gallery, and others, are also social neighborhood, and Trapeze Arts, Inc. near entrepreneurs, hold special activity events and Pine and 8th Street. Many industrial artists small scale art “openings” and soirees. These create large-scale art pieces to be displayed at activities provide a patron draw that attracts such places as Burning Man. The Chiodo Art people to West Oakland and expose them to Development, which created the Remember the vast array of arts enterprises occurring Them Monument for the Uptown district of in the district. For example, The Crucible has Oakland, is located in an industrial building regular events that attract up to 1,000 people. in West Oakland. American Steel Studios is a workspace for artists and innovation workers Arts and Cultural Districts that grew out of a single temporary rental to one artist. Since then, a master lease covering “Natural cultural districts” is a term that is both 200,000 square feet of the American Steel descriptive and analytical. Descriptively, a natural building and the adjacent Poplar Warehouse cultural district simply identifies a neighborhood building is now in effect. There are 70 tenants that has spawned a density of assets- organizations, in the American Steel Studio, including businesses, participants, and artists- that sets it industrial artists and non-artist science and apart from other neighborhoods. Analytically, these technology innovation companies. Leaseholds districts are of interest because of the side-effects of range between 1,000 to 6,000 square feet. the density of these assets. Economic developers note that clusters encourage innovation and creativity—a Additionally, there are smaller work and spur to cultural production. At the same time, a cluster of cultural assets often pushes a neighborhood storage spaces averaging 100 to 300 square to a re-generation tipping-point, attracting new feet in the Poplar Warehouse. The property’s services and residents. history as a heavy industrial facility is a major attraction to potential tenants, who use the Cultivating “Natural” Cultural Districts, Mark J. Stern 18-ton bridge cranes and drive-through and Susan C. Seifert
WEST OAKLAND SPECIFIC PLAN • 5- 53 5 Fig. 5.4.1: Proposed Arts & Cultural District
Emeryville MacArthur 1 Station
Hollis Street Interstate 580 RETAINING EXISTING ASSETS RETAINING Bay Bridge/Interstate 80 4 32nd Street 1
Former Oakland 28th Street San Pablo Avenue Army Base
3
Martin Luther King Jr. Way 16th Street West Grand Avenue Interstate 880 Station
2
14th Street
Pine St Mandela Parkway
Peralta Street 19th Street 4 Station Main Post Office 5 6 Interstate 980 West Oakland 7 Adeline Street Station Downtown Oakland 7th Street Market Street 12th Street Station Interstate 880
Port of Oakland 8 3rd Street
1000 2000 4000 Existing and Proposed Art Clusters FEET N Legend San Pablo Avenue 7th Street Planning Area/ Mandela Parkway 3rd Street Proposed Arts & Cultural District 1. Public Art at Saint Andrew’s Plaza 5. Arts-Enhanced Seventh Street Corridor 2. San Pablo Gateway Cluster 6. Arts & Culture at Transit Oriented Development BART 3. American Steel Arts Cluster 7. The Crucible 4. Public Art on Mandela Parkway 8. Arts & Culture Cluster at Linden Street
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Nationally, a number of publications have been remain local and cannot be shipped overseas. released on the topic of Arts as a revitalization The industry also generates nearly $30 strategy; arts and the formation of cultural billion in revenue to local, state, and federal districts, arts and their role in community governments every year. By comparison, the development, and arts and the creative three levels of government (national, state and economy, particularly recognized the linkage local) collectively spend less than $4 billion between economic stimulation, business annually to support arts and culture, a 7:1 attraction and concentrated districts of return on investment.
creative activity and enterprise development. EXISTING ASSETS RETAINING The American Planning Association has Whether serving the local community or released technical guides for land use planners out-of-town visitors, a vibrant arts and culture to recognize the importance of arts as a industry helps local businesses thrive. Cities neighborhood catalyst. Combined, the energy around the world are competing to attract of concentrated artist districts, including new businesses as well as our brightest young non-downtowns such as West Oakland, professionals. International studies show that have spurred interest from funders and the winners will be communities that offer an private foundations in the linkage between abundance of arts and culture opportunities. community development and arts’ investment As the arts flourish, so will creativity and in communities. innovation, the fuel that drives our global economy.” The University of Pennsylvania’s Social Impact of the Arts Project, which has been conducting research on the role of the arts and culture in Social Benefits urban neighborhoods for the past 15 years, Natural cultural districts are important for has identified the existence of ‘natural cultural several reasons in addition to direct dollars: districts’: geographic areas in which a variety of cultural assets—organizations, businesses, • The districts have a positive impact on participants and artists— are clustered. cultural production. Artists and other West Oakland can be clearly defined as a cultural entrepreneurs interact, learn, natural cultural district, given its many existing compete, and test out their ideas on one clusters of arts-related activities (see Figure another. 5.4.1. • Cultural districts contribute to group The Benefits of Arts and Cultural efficacy within neighborhoods and bridge social and ethnic groups, using culture to Districts revitalize cities without creating greater divisions between classes.
Financial Benefits – a National • The side effect of a cluster of arts Perspective activities is innovation and creativity, On a national level, the Americans for the Arts which spur cultural production and can “Arts & Economic Prosperity III” report has found help neighborhoods on the verge of that the arts and culture industry generates revitalization by attracting new services $166.2 billion in national economic activity and residents. annually. • Cultural districts can offer the best balance “This spending supports 5.7 million full-time of costs and potential benefits because jobs in the United. Because arts and culture they are already burgeoning areas, ripe organizations are strongly rooted in their for strategic interventions to increase their communities, these are jobs that necessarily success, offer opportunities for profitable
WEST OAKLAND SPECIFIC PLAN • 5- 55 5
investment, and have the ability to produce addition, it has been precisely the stock of considerable spillover effects on less vacant or underused industrial structures that dynamic parts of the City. has attracted large-scale industrial artists to West Oakland neighborhoods. • Cultural districts revitalize cities by building geographically-defined social1 networks that translate cultural vitality into economic Arts Institutions dynamism. As of the writing of this Specific Plan, Black RETAINING EXISTING ASSETS RETAINING Rock Arts Foundation LLC, which organizes the Local Benefits annual Burning Man festival and is currently a West Oakland cultural arts business, plans Arts-related businesses in West Oakland to relocate its headquarters into office space occupy many formerly vacant buildings, in the mid-Market district of San Francisco. contributing industry and creativity to the area. They are also proposed as a master tenant for They make products and provide programs San Francisco’s historic Pier 70 building. This that have a strong customer-based demand. indicates that, while there might be a demand This vibrant creative context in West Oakland for more institutional arts uses that can afford spurs positive, sustainable growth which is less higher rents, to date that segment has chosen likely to be subject to economic downturns or San Francisco locations. to cause displacement of existing businesses and residents. Strategies for Cultivating West Challenges in Maintaining a Oakland’s Arts & Cultural Districts Cultural District Cultural districts present a challenge to those interested in neighborhood and business revitalization. What can policy-makers do to Artist’s Housing encourage these districts without snuffing Most artists who live in West Oakland are out the spark that makes them distinctive? renters. This is significant since renters are Because cultural districts are not planned from more likely to be displaced than owners if land scratch but rely instead on the self-organized prices and rents increase. Thus, art-related efforts of local players, they require tender- developments are more likely to be negatively care and a light hand. Cultural districts must impacted by rising area rents and a change in be cultivated. property assets to higher value uses. Including Art as an Integral Component Arts & Cultural Program Building Space of New Development
The arts community is price-sensitive. Arts- Intent: Include arts and/or social related uses have been generally priced out development programs in major public and of San Francisco by development pressures private development projects as a means to: a) arising from that City’s prosperous economy, maintain the West Oakland “brand”, character and that phenomenon risks repeating in West and identity; b) continue to attract arts visitors; Oakland due to economic changes. This also and most importantly, c) support local artists suggests that higher-cost, new development by increasing their patron base. projects are unlikely to be occupied by price-sensitive arts uses. To keep the arts community in West Oakland, the inventory of Include Art-1: Encourage the use of locally inexpensively remodeled industrial buildings made street furniture and art in all City- needs to remain available at low prices. In sponsored streetscape improvement projects. Incorporate locally made art into
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the pedestrian network by using street Include Art-3: Work with community groups medians, intersection bulb-outs, pocket to install educational and interpretive signs, plazas, and wide sidewalk spaces as display artwork and landscaping that highlight West areas. Oakland’s historic and cultural features.
• Install public art along Mandela • Seek creative funding sources to Parkway and any other significant provide interim or temporary art streetscape improvement projects installations, performance art, and th
(e.g., 7 Street, Adeline Street, etc.). other arts and cultural programs EXISTING ASSETS RETAINING in highly visible locations of West • Use locally-contracted art made in Oakland. West Oakland to enhance and identify important community “gateways” into West Oakland neighborhoods. Layering of Arts and Cultural Components • Support the installation of gateway art at major entry locations into West Intent: Develop, foster and enrich the multi- Oakland, partnering with youth non- cultural diversity of West Oakland. Restore and profit local groups to do so. preserve cultural assets and historic buildings, and maintain the community fabric that Include Art-2: Use the City’s 1.5% Public makes West Oakland unique. Art Ordinance funds, and seek additional funding sources to support the incorporation Arts districts are complex entities and of art in publically-sponsored development so too are the qualities and types of arts projects, specifically in West Oakland. programming that make each district successful. For example, many arts and • Incorporate public art within the cultural districts employ art in storefront development of major new institutional, projects. Temporary art installations and private, and non-profit developments cultural events, scaled appropriately and (e.g., labs, hospital, educational) or relevant to the local community, have the private business campuses. potential to engage both the local community and draw visitors from across the region. • Incorporate public art at the West The following strategies are intended to Oakland BART Station and within assist the West Oakland arts community its associated Transit-Oriented continue to build its own unique portfolio of Development (TOD) project. arts by layering both physical elements and programmatic event to help catapult West • Develop goals for historic and/or Oakland’s public perception as an arts district. cultural public artwork installations that include, among other facets, a Art and Culture-1: Within the 7th Street requirement that the artwork to be Opportunity Area, new development installed on a semi-permanent basis, and along 7th Street is envisioned as bringing be tied to West Oakland infrastructure back the historic role of this area as a improvements that contribute to vibrant neighborhood center, beginning traffic calming, roundabouts, curb with the implementation of the Seventh bulb-outs, pedestrian corridors, Street Streetscape and Blues Walk of Fame, bike paths, boulevard medians, and enhanced through facade and or window similar locations, and which define treatments by neighborhood-serving neighborhood boundaries. commercial establishments.
WEST OAKLAND SPECIFIC PLAN • 5- 57 5
• Emphasis should be placed on • The layering of art, historical resources prioritizing the types of commercial and cultural walks can help stabilize uses that enliven the street and the West Oakland community by can help to revitalize 7th Street as creating pride of place, connecting a celebration of West Oakland’s people more deeply to the district’s cultural history of music, art and1 assets, and providing opportunities for entertainment. engaging new audiences.
RETAINING EXISTING ASSETS RETAINING • Art galleries, exhibit space, retail sales of locally-made products, and night A Unique and Authentic Brand clubs which revitalize this corridor with daytime and nighttime activities are Intent: Establish a West Oakland Arts and specifically encouraged. Cultural District with an identity and ‘brand’ that is unique and authentic to the place. • New commercial uses along 7th Street and within any new development Logos and banners are not enough to around the nearby West Oakland create an environment of innovation and BART Station could help re-connect entertainment that will draw creative the surrounding neighborhoods residents, innovative businesses or visitors by physically filling in gaps and seeking a new experience. Within West connecting residential edges of the Oakland, a “maker” brand identity is underway, surrounding neighborhoods to the 7th which will eventually produce branding or Street corridor. logo identification for Oakland. It is imperative to use such positive branding to dispel the Art and Culture-2: Establish a more activated current media perception and reality of streetscape along San Pablo Avenue by West Oakland as an unsafe and blighted encouraging new commercial activities community. that serve the social and cultural needs of residents from the adjacent neighborhoods. Arts “Brand”-1: Build marketing strategies to support the existing arts and cultural Arts and Culture-3: Acknowledge the arts as businesses in West Oakland, and to attract economic development catalysts. more of these businesses..
• The City should support dedicated and • Grow and enhance the current www. expedited permitting of festivals, street westoaklandworks.com website as fairs and special events. Encourage and a tool for arts and culture business celebrate the arts as a basis of social retention, attraction and to encourage and economic activity. consumer access to local arts products. • Hold special events that promote West Oakland’s digital media, software, • Support the growth and branding and information technology business of www.Oaklandmakers.org, which start-ups, seeking to better attract and has a dominant presence by West fill vacancies in co-working, incubator, Oakland artists, artisans and creative and studio spaces. enterprises. Use the West Oakland creative economy to further brand Arts and Culture-4: Coordinate with Oakland’s a Made in Oakland label, out of that historic advocacy groups to better integrate movement to help grow enterprise in the exploration of West Oakland’s physical West Oakland. historic resources with its cultural roots and its arts-related culture.
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Large-Scale Development Projects one space provides the makings of an “arts (or ‘Anchors’) as Development & anchor” for the West Oakland community. Community Builders • In the short- and mid-term timeframe, Intent: Maintain the existing anchors of use of this building as home to the the arts in West Oakland, and create new American Steel Studio represents anchors for an arts and cultural district, such a valuable, productive and integral as institutions, shared tenancy projects (i.e., cultural arts use, providing a American Steel), and natural “clusters” of financially viable and unique use of EXISTING ASSETS RETAINING various arts industries to help catalyze the arts this unique space. in West Oakland, and help create and maintain a district identity. • As discussed further in the Land Use Chapter (Chapter 7: Building to the Large anchors that employ community Potential, of this Specific Plan), the outreach efforts through community- American Steel site is envisioned as focused programs play an important role in a future higher-intensity business establishing and maintaining a cultural district. location. In the long-term, this site They are not only catalytic to the creation could be enhanced with development of the district, but also helpful in forging of an integrated arts institution with meaningful partnerships with diverse arts, classrooms, community cultural cultural and social development organizations. events space, outreach programs and administrative support space. Art Anchors-1: The West Oakland Transit Art Anchors-3: Support the Oakland Film Village/ BART development should be Office’s plan to develop a full-service, state curated to include artistic invention and of the art film and television production innovation, and to layer uses such that facility in West Oakland. market-rate users in tech or R&D-type creative spaces will augment and support Due to Army Base redevelopment activities, the rental rates, demonstrating the types of the 30+ tenants of the Oakland Film Center creative economy that is present in the rest were displaced. Many have since relocated of the district. out of Oakland. However, West Oakland remains an attractive location for the film • Insure that the commercial uses at the community, due to its central location and West Oakland BART Transit-Oriented proximity to San Francisco, which continues to Development do not “sap energy” draw and support production on-site shoots. and create its own competition to the West Oakland’s creative economy and the revival of Seventh Street as a local presence of industrial artists and facilities is commercial neighborhood featuring also a key factor for them. local goods and or ownership by local residents. • The City should work to re-establish a fully-staffed Film Office which can Art Anchors-2: The American Steel building then support such business location in and the adjacent Poplar Warehouse building West Oakland. currently house American Steel Studios - an “industrial commons” and with individual rental work space for artists and innovation workers. There are currently 70 tenants in the Studio, including industrial artists and non- artist science and technology innovation companies. Such a large group of artists in
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• Steps should be taken in the near Private Sector Leadership & Supporting future to long term to attract and Organizations re-establish film facilities, perhaps as part of future development at the West Intent: Foster a strong public/private Oakland BART Station and/or Mandela/ partnership in support of West Oakland arts. West Grand Opportunity Area.1 Private sector leadership is essential. While city departments and elected officials play key • Support the return of the Oakland roles at strategic moments, such as providing RETAINING EXISTING ASSETS RETAINING Film Center and attract other film funding for the public realm improvements or businesses by associating them as implementing key zoning changes necessary an essential component of the West to spur desired development, private sector Oakland Creative Economy. Work to leaders are critical to the development and help co-locate such users in future success of an arts district. facilities where the presence of “industrial commons” and facility Arts Leadership-1: Expand and develop new compatibility will allow them to grow, revenue streams for Oakland’s multicultural thrive and expand. arts citywide, benefitting West Oakland in its • Support a plan to develop a full- concentration of arts organizations service, state-of-the-art film and • Consider expanding the percentage television production facility in West requirement for the arts under the Oakland. City’s capital improvement projects, Art Anchors-4: A portion of the 3rd Street include private development Opportunity Area should be considered for requirements, and investigate retention and enhancement of important opportunities to leverage Port of arts-related businesses, such that it forms a Oakland investments. “clustered anchor” of arts-related business • Develop greater foundation, activity. philanthropic and donor-based The 3rd Street Opportunity Area contains a financial support for the arts. large number of creative-economy businesses and industries. It is home to new food and • Secure corporate giving, such as the beverage users (Linden Brewery, Urban local sponsorships of the East Bay Legends Wine, Allied Poultry, Lehar Foods and Symphony, coffee wholesalers) as well as creative print & media, education and professional design • Promote public/private partnerships services (Lonely Planet, Galileo Science Camps). for cultural enhancements These businesses have established the 3rd Street Corridor as an active industrial district • Create an endowment for “Oakland centrally located and in proximity to Jack Arts” London Square’s retail amenities. The historic older brick buildings and warehouses in this • Work to generate greater funding portion of the City are exciting and unique opportunities through grants and spaces, well suited to the needs of these types support initiatives. of businesses. Arts Leadership-2: Support creation of an Oakland Arts Master Plan, including a specific Arts Education Master Plan. Incorporate current successful programs, such as Prescott Circus, Art Esteem, Destiny
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Arts (North Oakland but serving many • Create a dynamic map of West West Oakland kids) and other such youth Oakland’s arts and cultural resources, programs. which can be easily updated to ensure The most creative and innovative educational accuracy and distributed in various programs help to maintain school attendance, formats. which counters attrition rates and raises academic achievement. Arts education also Regulatory Controls
encourages higher education endeavors, EXISTING ASSETS RETAINING regenerates local leadership and establishes Intent: Foster a business-friendly approach qualitatively healthier livelihoods. There is a to regulations affecting local West Oakland direct correlation between increased cultural artists, supporting the local artist economy awareness and education, and with a decrease while requiring the submission of necessary in the degree of violence and safety in the West business licenses. Such an approach could Oakland schools. further recognize the ‘creative economy’ in West Oakland. • Work with West Oakland artists, city and school employees and private Arts Regs-1: The City should consider holding developers, to harness the economic an “amnesty” on a one-time basis, and and transformative potential of local offer pro-active assistance to owners to artistic talent. bring arts-related live/work facilities into code conformance, such as was done for Arts Leadership-3: Support West Oakland unreinforced masonry buildings after the Cultural Arts Resource Mapping as part of Loma Prieta earthquake. a citywide Arts Planning effort. Create a comprehensive directory, using the local • Such a strategy may alleviate some Oakland “Wikipedia” or other publically- of the fear on the part of the artist accessible media site, to gather and define, residents that required improvements assess, and document the economic impact will allow landlords to justify steep of the arts sector. rent increases, and thereby be a natural eviction process. This would • Create a recurring survey to gather enable a safer, healthier stock of information on individual West facilities and also discourage poor Oakland artists, cultural facilities and landlord behaviors, which often hold service organizations. West Oakland back by retaining poor building stock and poor conditions. • Distribute such information through the westoaklandworks.com website, Arts Reg-2: The Specific Plan Area should City of Oakland Facebook and other take advantage of the natural clustering media sites (Oakland Local, etc.). of artists in studios and residences. Zoning Make the survey information available regulations for home occupancy permits to all sectors of the community, to should be relaxed throughout the residential government agencies and to visitors neighborhoods in the Plan Area, offering in order to increase civic participation expanded self-employment opportunities and make these vital resources and relaxed regulations about on-site sales. available and better realized. The definition of “artist” production however, would need much further determination, • Establish the City’s Cultural Arts and/or regulations based merely on outside & Marketing office as the “go to impacts such that “artisan or custom” “conduit for resourcing various artist manufacturing light enterprise might also organizations within the City.
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qualify for same. Locations throughout the Plan Area that currently allow Home Occupations should be designated as specific ‘Home Crafts’ districts for such “business-friendly” regulations. 1 RETAINING EXISTING ASSETS RETAINING
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5.5: Retaining Educational Resources
Schools are an important resource within West Oakland High Schools the West Oakland Specific Plan Area. It is important that adequate educational facilities • McClymonds High School at 2607 and resources remain available to existing Myrtle Street has approximately 254 and future residents within the Planning Area. students. McClymonds is a highly EXISTING ASSETS RETAINING The Oakland Unified School District (OUSD) valued resource in West Oakland since it operates the public school system in the City of is the only full-sized public high school Oakland. The OUSD administers 77 elementary in Region 1. schools, 19 middle schools, one junior high school, 31 high schools, and two K-12 schools West Oakland Middle Schools citywide. It is also responsible for three alternative schools, two special education • Ralph Bunche Middle School at 1240 schools, three continuation schools, three 18th Street has approximately 252 community day schools, and one opportunity students. schools.1 The School District’s overall enrollment peaked in 1999 at 55,000, dropped • Lowell Middle School at 991 14th Street to 39,000 by 2007, and is continuing to decline. has approximately 265 students and Declining enrollment is projected to continue.2 houses the West Oakland Middle School and Kipp Bridge Charter Academy. The OUSD divides the city into three regional zones to manage resources. The Plan Area is located within Region 1. There are 22 West Oakland Elementary Schools elementary schools, seven middle schools and one K-8 school within Region 1.3 OUSD has four • Hoover Elementary School at 890 elementary schools, two middle schools and Brockhurst Street has approximately one high school in West Oakland: 328 students.
• Lafayette Elementary School at 1700 Market Street has approximately 300 students.
• Martin Luther King, Jr. Elementary School at 960 10th Street has approximately 350 students.
• Prescott Elementary School at 920 Campbell Street, now known as 1 Ed-data, 2010. 2 Oakland Unified School District (OUSD), Preparatory Literary Academy of Multi-Year Fiscal Recovery Plan, 2005; Oakland Uni- Cultural Excellence (PLACE) @ Prescott, fied School District (OUSD), Our Challenges and had 208 students during the 2010-2011 Goals, available online at: http://publicportal.ousd. school year. k12.ca.us/199410102104342143/site/default.asp?, OUSD also operates auxiliary services on 2012. 3 Oakland Unified School District (OUSD), former school sites: Cole Middle School at School Sites by Region or Network w/Site Number, 1011 Union Street, originally an elementary available online at: http://publicportal.ousd.k12. school, is currently an administrative facility ca.us/ousd/lib/ousd/_shared/2010-11SchoolSitesb- and the headquarters of the OUSD police unit. yRegionasof8.2.10-2.pdf, accessed July 18, 2012. Foster Elementary School at 2850 West Street
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is not presently used as a school and contains feet of net new non-residential space within the OUSD administrative functions, and OUSD Opportunity Areas. This additional development anticipates planning/design renovation to is expected to result in an estimated 11,136 new house a new central kitchen facility and small residents and 14,850 new jobs in the Plan Area by urban farm. 2035. This residential development would generate 1 approximately 718 new elementary school students, OUSD charter schools in West Oakland 305 middle school students and 370 new high school include: Oakland Charter High School (Grades students (a total of 1,395 students) attending the
RETAINING EXISTING ASSETS RETAINING 9-12) located at 345 12th Street, KIPP Bridge OUSD. Charter School (Grades 5-8) located at 991 14th Street, Oakland School of the Arts These new students would be added to district-wide (Grades 6-8) located at 530 18th Street, and enrollment through 2035 or longer. New students the American Indian Public Charter School II would be distributed among the schools serving (Grades 6-8) located at 171 12th Street. OUSD Region 1, thereby reducing substantial enrollment impacts to any one school. Given the Figure 5.5.1 illustrates the location of OUSD declining student enrollment in OUSD schools, the facilities within the planning area. District is likely to have capacity within its existing facilities to accommodate new students generated West Oakland schools currently include some by projects constructed pursuant to the Specific of the poorest performing schools in the Plan. If classroom capacity within the specific schools city. Poor schools are a deterrent to potential serving the Specific Plan Area were found to be new residents with children and a significant unavailable at the time new students enter the problem for existing families. The OUSD school system, the OUSD could reopen closed school recently announced that it plans to close facilities, reassign students among other schools underutilized school sites based on factors within the District, expand year-round schooling, that include performance and enrollment add more portable classrooms, transport students to trends. Given the current fiscal dilemma of less crowded schools, or find opportunities to more the OUSD, and the low enrollment and past efficiently use existing school facilities. performance of the West Oakland schools, there is a potential that one or more of the schools in West Oakland could be closed in the near future. While West Oakland residents are working to improve area schools, prospective families with children are unlikely to view local schools as a motivation to move to the area.
As authorized by California Government Code Sections 65995, 65996(a) and 65996(b), the OUSD collects school impact fees from developers of new residential and non- residential building space. The City imposes this fee through building permits. The impact fee revenue is used together with other district funds (e.g., state grants, general obligation bonds) to complete capital improvements. The amount of the fee is established through the district’s Developer Fee Justification Study.
The Specific Plan would provide for the development of up to an additional 5,090 net new housing units and 4,030,000 square
5-64 • PUBLIC DRAFT REVIEW - JANUARY 2014 Fig. 5.5.1: OUSD Public Schools & Facilities 5
Emeryville MacArthur Station
Interstate 580 Bay Bridge RETAINING EXISTING ASSETS RETAINING Bay Bridge/Interstate 80 32nd Street
4.
28th Street
Former Oakland San Pablo Avenue Army Base 1. 9. 8.
Martin Luther King Jr. Way
West Grand AvenueAdeline Street
Interstate 88016th Street Market Street Station 2.
Mandela Parkway
Pine St 14th Street 7.
Peralta Street
6. 5. 3. 19th Street Station 8. Main Post Office West Oakland Interstate 980 Station 7th Street Downtown Oakland
12th Street Station 3rd Street Port of Oakland Interstate 880
3rd Street
1000 2000 4000 1. McClymonds High School 6. Prescott Elementary FEET N 2. Ralph Bunche High School 7. Lafayette Elementary Legend 3. The Kipp Bridge Academy 8. Martin Luther King, Jr. Elementary School Planning Area 4. Hoover Elementary 9. OUSD Administrative Center (Future Central Kitchen) BART 5. OUSD Administrative Center
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