Open Space Open Space

Strategic Analysis Memo April 2008 Open Space Open Space

A Strategic Analysis Memo prepared by the Western SoMa Citizens Planning Task Force for the Western SoMa Community Plan

April 2008

open space cover photo by Paul A. Lord, Jr. Table of Contents

Open Space: Evaluating Neighborhood Opportunities ...... 1

ANALYTICAL HIGHLIGHTS: AN EXECUTIVE SUMMARY ...... 2

I. General Needs for Parks and Existing Deficiencies in the South of Market ...... 3

What are the specific community preferences and priorities for community public and publicly accessible open space?

II. Challenges and Opportunities ...... 5

What are the challenges and opportunities of providing new open space resources in Western SoMa?

III. Analytical Methods ...... 6

What are the current methodologies used to evaluate and choose best sites for new public open space? What is the description and assessment of a Soft Site?

OPEN SPACE IV. Western SoMa Open Space Opportunities and Potential ...... 9

What are the neighborhood opportunities for providing needed public open space?

V. Creating Open Space in the Public Realm ...... 11

Can some neighborhood open space deficiencies be provided in the public rights of way?

VI. Creating Open Spaces on Private Parcels ...... 19

Can some of the neighborhood open space shortfalls be met by private developments?

VII. Additional Considerations ...... 21

What additional measures can be taken to assure adequate and innovative provision of open space?

APPENDIX A ...... 22

ACKNOWLEDGEMENTS ...... 26

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OPEN SPACE iv

OPEN SPACE Open Space: Evaluating Neighborhood Opportunities

WHAT IS THE PURPOSE OF THIS SAM?

This Strategic Analysis Memo (SAM) examines the existing Western SoMa neighborhood deficiencies and most appropriate sites for creating needed new open space in Western SoMa.

All of the Western SoMa SAM documents are organized to provide topical background information on the Western SoMa plan area.

In order to make the SAMs as user friendly as possible, each section of a SAM begins with a question or a series of questions. These questions are then answered to the extent that data and research resources permit. None of the topical SAMs are exhaustive in their analysis. Each of the SAMs has different author/authors. This changing voice throughout the series of Western SoMa SAMs reflects the collective vocabulary of a community planning effort.

It is also hoped that each SAM communicates some of the underlying rationale for the associated policies in the recommended Western SoMa Community Plan.

OPEN SPACE Analytical Highlights identified open space options can be summarized as follows. An Executive Summary • Develop open space in the public realm The Western SoMa neighborhood fares worse than • Improve and widen sidewalks as part of much of the rest of the City with respect to open the implementation of the Department of space and the provision of park space. Currently, Public Works Great Streets and SoMa Alley the City has about 5.5 acres of open space per Improvement Programs. 1,000 people. This ratio, however, is much less in • Improve residential alleys with a wide range Western SoMa, where there are only 0.23 acres of of street treatments, as part of an aggressive public parks and 5,268 residents resulting in a ratio program to create more open space at ground of a mere 0.046 acres per 1,000 people (i.e., less than level. 1 percent of the Citywide average). • Generate a check list for “safe streets”, in which appropriate lighting and other The need for developing new recreational and appropriate treatments can compliment other open space resources in Western SoMa is an policing safety solutions. imperative for existing and future neighborhood • Create “green calm livable streets” on north- residents, workers and visitors. south running 7th, 11th and 12th Streets.

Developing new parks and open space is easier if • Create “green calm livable streets” on developed on public sites because they can be better east–west running Folsom Street. This is a coordinated and programmed through interagency historically important and wide street in the efforts. It may be faster, however, and more feasible neighborhood. The Urban Design Element to begin developing new playgrounds, parks and policies in the San Francisco General Plan green areas as open space on private sites and in the encourage transformation Folsom Street into public realm (e.g., sidewalks and streets). There are civic Boulevard and to work as an “urban many alternatives to improve and create sustainable connector” to larger open space areas such as new open space for a diverse community. The the waterfront and the Mission Creek.

OPEN SPACE Financing open space Reinforce and promote a pattern through new development of yards in residential development

The future provision of community benefits, Many of the Western SoMa parcels contain mixed- improvements and services for residents, workers use buildings and regularly do not have any at- and visitors where net new demands can be grade open space. Visible patterns in open space do, quantified should be developed and implemented. however, exist within the residential neighborhoods Community benefits programs can be complex and found on many Western SoMa alleys. The residential provide flexibility for on-site provision of new open clusters with an interior courtyard tend to be older spaces or development fees that can help to finance housing stock and are flats or apartments. There development of new public open space resources. are higher averages of rear yard open space located in the residential clusters located north of Harrison Develop open spaces that provide public access Street and little to no open space in the form of yards south of Harrison Street.

• A number of new standardized requirements can be added to the private building I. General Needs for Parks process. These requirements can be based on and Existing Deficiencies measurable impacts resulting directly and indirectly from new development projects. in the South of Market • Consider on-site publicly accessible open spaces in new private developments on larger What are the specific community preferences and sites (e.g., more than one half acre). priorities for community public and publicly • Require street tree planting in front of all new accessible open space? developments • Require “green roofs” for residential The Task Force and the Planning Department staff developments. have tried to overlap all factors that help recognize • Require permeable parking surfaces. existing conditions with most potential to develop

OPEN SPACE new open space in Western SoMa, and then • Promote safety in all areas of the public realm determine what site would be most suitable for a (sidewalks, parks, etc.). new park in the neighborhood. • Maintain and promote diversity (e.g., day/ night, living/working, spectrum of uses, etc.) According to General Plan policies, adequacy of of neighborhood land uses. public parks should be evaluated and addressed • Encourage nurturing characteristics and with regards to capacity, access, quality, and safety. maximize opportunities for seniors, families, The methodology paper in Appendix A provides youth and children. the following major criteria for evaluating park needs. Safety in the public realm is a very important factor for creating any new open space in a community. • Net land area (amount of parks and open The Western SoMa community is very diverse, space) and it includes workers, artists, seniors, children, • Physical proximity (distance to a park) gays, and various ethnic groups. The community • Public safety (perceived or real threat of planning effort hopes to identify new open space violence or pollution) opportunities that nurture and enhance this • Programming (e.g., activities and their diversity safely. compatibility with local needs), and • Operations and maintenance (e.g., cleanliness, • Promote environmental sensitivity in new staff sufficiency) development projects. • Maximize general environmental quality and The Task Force has also established many Principles1 health. that endorse creating optimum new open spaces in the neighborhood. Listed below are selected Creating new parks is not just to satisfy current examples of some, but not all, of the Principles resident’s needs, but hopefully fulfills the future developed by the Task Force, in particular those neighborhood needs. Natural resources and fuel Principles that are relevant to evaluating and are becoming fragile and scarce, and it is important creating new open space. The following Principles to design all new open spaces to save energy and be are examples and are numbered as they appear environmentally sensitive. in the Western SoMa Task Force list of Planning Principles. The Western SoMa Citizens Planning Task Force

OPEN SPACE large development sites to have green open space areas that could be accessible to residents, visitors and workers.

Open space land availability and feasibility require different acquisition strategies for public or private parcels. The next step in the process of identifying land is to determine if its acquisition is both possible and feasible from a fiscal and social standpoint.

II. Challenges and Opportunities has recognized three (3) specific conditions for identifying new open space sites. What are the challenges and opportunities of providing new open space resources in Western 1. Maximize opportunities on appropriately SoMa? located large soft sites. 2. Sites could be anywhere within Western SoMa as long as they do not contain The San Francisco General Plan, Open Space important community facilities (e.g., Element, says that “in the last century, far-sighted San recreation centers, community centers, Franciscans reserved large sections of undeveloped homeless shelters). land for parks. Golden Gate Park, for example, was 3. If sites fit the Recreation & Parks created out of sand dunes. Nearly half of the City Department’s acquisition guidelines, they shoreline was preserved in parkland and military must be at least ¼ acre or more.1 forts, and many smaller parks have been created on the City’s hilltops.” It also says that “opportunities Once sites have been identified, the community to acquire new parkland and develop much hopes they will be prioritized based on how needed recreation facilities are limited due to the closely they follow the general principles for scarcity and high cost of vacant land.”3 It continues their Community Plan, and how well they serve saying that “every neighborhood should be served the community, regarding size, proximity, safety by adequate public open space and recreation standards, and sustainability. facilities.”

Western SoMa residents also hope to identify Overwhelming scientific research demonstrates funding for acquisition and the agencies responsible that public parks are vital for the physical and for park management and maintenance. The mental health and well-being of city dwellers. community wishes to find opportunities for new Some neighborhoods have open space areas, but play areas serving tot-lots and pre-school age may lack neighborhood parks, limiting the type of children in the district, community gardens with activities in those neighborhoods. Neighborhood small plots that can be locked, and dog runs at the edges of parks.2 Residents also would like private parks and recreation facilities are vital for the very young and for the elderly. Also, adequate access to 1 Complete Neighborhood Fabric Committee, W SoMa TF minutes, Sep- parks is associated with increases in the frequency tember 17, 2007 meeting. 2 Complete Neighborhood Fabric Committee, W SoMa TF minutes, Sep- tember 17, 2007 meeting. 3 General Plan, Open Space Element

OPEN SPACE of physical activity. A complete neighborhood SoMa with much less proportional open space per should consist of a wide range of public goods resident than any other neighborhood in the City. and services, including but not limited to, open Although the policies of the General Plan say that spaces that are readily available and accessible to private or common open space is required in new all residents. residential development, and that the amount of open space provided should increase with the size Currently, Western SoMa residents are served by and density of the development, the increase in services such as transit, but poorly served by open open space in the 1990s was not proportional with space resources. Western SoMa has a serious open the build out in the area. space deficiency. The City has approximately 5.5 The Western SoMa quality of life is also affected acres of opens space per 1,000 residents.4 This ratio, by noise and pollution associated with living in however, is much less in Western SoMa, about proximity to freeways and busy streets that lead 0.046 acres per 1,000 residents. This open space to and from the elevated freeway system. Noise is deficiency may be exacerbated by the limited social an environmental stressor that can cause serious and economic conditions, as well as, demographic damage in people. Green areas, urban trees, and characteristics of the area. open space adequately located could help mitigate air contaminants and help to provide better air The historical industrial character of the quality in the neighborhood. neighborhood and population increases in SoMa during the 1990s combined with limited fiscal III. resource for public open space acquisitions to leave Analytical Methods

4 San Francisco General Plan, Recreation and Open Space Element, Intro- What are the current methodologies used to duction, Citywide System, figure compiled in 1986 evaluate and choose best sites for new public open space?

Many open space features are tabulated according to the populations served and general rules are given regarding access to sunlight and isolation from noise. The lack of all types of open spaces is, however, evident in Western SoMa. From the existing lack of available public parks to Planning Code provisions for reductions of yards, the

OPEN SPACE occurrence of neighborhood open space and green • Programming (e.g., activities and their areas is a characteristically rare feature in Western compatibility with local needs) SoMa. • Operations and maintenance (e.g., cleanliness, staff sufficiency) The appropriate way to address what type of parks and where they should be located is analyzed Similarly, according to the General Plan policies, in Appendix A and provides the methodology some of the main features parks should include the to identify the best sites for public open space following. in Western SoMa. The analysis concludes that adequacy of public parks should be evaluated • Safety and addressed with regards to capacity, access, • Staff and funds for maintenance quality, and safety. Therefore, the major domains • Accessibility to all for evaluating park needs in Western SoMa should • Public knowledge of the open space resource include the following.

• Net land area (e.g., amount of parks and open Limited data is currently available to space) comprehensively assess these attributes in San • Physical proximity (e.g., distance to a park) Francisco. The most easily obtainable objective • Public safety (e.g., perceived or real threat of measures of parks quality are those having to do violence or pollution) with net land area and physical proximity.

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G Existing Open Space A L L SOUTH IE A S S M G E A H PARK J R E Western South of Market Y R RSD DRAFT 1-25-07 N Y A M-1 R M R L N E L O P I S T N S E A P V Y UN E M E T A A L S H IN P E T I PLAZA T N H E S M CIVIC E H RSD L U 3 L C B R CENTER E D F SOMA A R L T SLI H PLAZA M S O L RECREATION U E TH W N O H L A CENTER A E R R E R A R L F T IE C E T K R R U A S M M S E P R J M L U IN 4 L O I S T A S O MINI VICTORIA C A H H RED O K S L G L A MANALO U R E N PARK M O W L N IN B M V A O L IA E 5 S I M A DRIVES O K S R N S R T IE IS A G Q R H U T S U IS M S O PARK H A C N E R T H D R E N N M A A L A Y E N N R V R B A E E SSO M RED L H O C A T A SLI N D R 8 T A H W W 6 A O RED T N S H H A H R P N B A O U M N R A D A G N H G R R E A E B E A T IN R M C T S 7 O E N B T X E E H U G M R B L N E W O B I L I K 9 N C A T C M K R O O D H R M S E C D L H H A O O E N R F D S E L SLI L O E E G Y G G P N D I I IL L R R L B U D A E C 1 L N R B 0 SLR E G T U E T T R T T N H G O E E O N R RED D G O IN L N S S I K K N D A 1 A E T 1 ID C C E T R O A H E N T H SLI V U S N E R O R J S S S S U I A N N R E E O I L R P R C U U E A B R H M T H MISSION C-M 1 D V 2T O A H N R Y BAY O E N R R F D R N O N E L E B PARK E K S SS N W O T

SLI DIVISION 13TH SLI

L E Open Space N N A H West Soma Zoning District C

Source: Data from DCP, April 2004; San Francisco Recreation & Park Department Data and Mapping by 0200 400 800 AsianNeighborhoodDesign Feet Updated: Jan 25, 2007 (D2)

OPEN SPACE

Park Land Area Physical Safety

Standardized park area requirements can vary Sites for future parks in Western SoMa should depending on community uses and desired needs. be attentive to collision hazards for park users Standards for amount of park space per resident accessing the park by foot or bicycle. Also, much vary nationally. As applied by the San Francisco of the Western SoMa neighborhood is within Recreation and Parks Department, the San Francisco close proximity to the freeway and many wide Sustainability Plan defines the need for open streets with high traffic volumes. These citywide space capacity at 5.5 acres per 1,000 residents. As highway access arterials are where traffic hazards applied by the San Francisco Department of Public and pedestrian collisions are well documented Health in its Healthy Development Measurement neighborhood dangers. Park planning should Tool (HDMT), the National Parks and Recreation include pedestrian safety countermeasures to limit pedestrian risks. Association defines the need for open space capacity as 10 acres per 1,000 residents.5 Regardless Park site planning should also consider air quality of which standard is applied, Western SoMa fares and other environmental hazards. For example, worse than the rest of the City with respect to open the California Air Resources Board (CARB) 5 space or parks capacity. recommends that new sensitive land uses be sited at a distance greater than 500 feet from any Physical Proximity freeway or urban road carrying 100,000 vehicles/ day. CARB considers parks and playgrounds to Proximity to parks (defined as household distance constitute “sensitive” land uses. to a park) is another important element of defining park need. The HDMT, a tool used to consider The Department of Public Health recommends that health in land use planning, defines a minimum open spaces should not be developed in areas where development target for parks access in new the roadway contribution to annual average PM 2.5 development to be at least equal to the existing (Particular Matter 2.5) is 1.0 ug /m3 (micrograms citywide average. Currently, 76 percent of City per cubic meter) or greater. households live within one-quarter mile of a What is the description and assessment of a Soft neighborhood or Regional Park (parks larger than Site? 0.5 acres). In the greater SoMa at large, only 68 percent of households live within the designated The criteria for a “soft site” (i.e., a parcel with high quarter mile radius of a park resource. This Western development potential), comes from Appendix C of SoMa proportion is certainly lower since all but the Planning Department’s “Community Planning one small SoMa park is located east of 7th Street or in the Eastern Neighborhoods” Workbook.6 Soft north of Market Street. sites include at least one of the following physical site characteristics. While significant open spaces exist in close proximity to Western SoMa, such as at Victoria • The parcel is vacant Manalo Draves Park, Yerba Buena Gardens, and • The existing structure is condemned at Civic Center Plaza, the ratio still only accounts • The parcel is used as a parking lot for .046 acres per 1,000 residents and highlights • The parcel is used as a parking lot and the important need for more park space in Western includes a small structure SoMa • The structure on the parcel is only one story

5 Methodology For Identifying potential public parks in West 6 Community Planning in the Eastern Neighborhoods” Workbook known ern SoMa (Appendix A) as “The Black Book”, 2003

OPEN SPACE IV. The first step in the process is to identify land Western SoMa Open where acquisition is not only possible but also Space Opportunities makes sense from a fiscal, environmental and social and Potential standpoint.7

Neighborhood potential What are the neighborhood opportunities for providing needed public open space? Part of identifying the best places for parks and new open space in Western SoMa is to recognize Increasing the amount of public park space in the distinct features of the neighborhood. Western Western SoMa will require the acquisition of land SoMa potential features are: and its conversion to a public park, and rigorous implementation of open space requirements in • Western SoMa alleys have been extensively new developments. Although simple in concept, analyzed with regard to width, traffic flow, in practice this is a difficult and arduous process lighting, and safety, and can become more involving careful planning, financial resources, useable as open space, if appropriately community commitment and time. Therefore, it is improved. important to be strategic in the planning phase to 7 “Livable green streets” concept developed on interagency efforts for facilitate improvements on the ground. street beautification at the Market Octavia Boulevard project

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G A L Open Space Opportunity Sites Study L IE A S S M G A H JE R E Western South of Market Y R RSD N Y A M-1 R M DRAFT 9-12-07 R L N E L O P I S T N S E A P V Y E M E T A A L S H IN P E T I T N H E S M RSD E H L U 3 C L B R E D F A R L T SLI H M S O L U E T W N H O H L A A E R R E R A R L F IE C T T E R K U R S M S E P MA R JU M L IN 4 L O I S T A S O H C A H RED O K S L G L A U R E N M O W L IN B M V A L IA O E S M A 5 K R N S R T IE N A G Q R H O U T S U IS I S O H A S C N E R S H D R E N M T MI A L A N E N N A V R Y A E E SLI SSO M RED L H BR O C A T A N

D 8 R T W A A H S W RED 6 H O T R P H N B H A O A U M D R A N St. Josephs G N H G N R E A E A E A T IN R M Church Site C T S 7 BR O E N B T X E E H U M R B L E W O B 9 L IC A T C N K R H O D M R M O E C D S H H A O L E N R O D S E L SLI L F O E E G Y G G N D I I IL L P R R L B U D A E C 1 L N R B E 0 SLR E G T U G T T R N T T N H G O E E KI O N R D RED G O IN L N S IS K N K A D A 1 D E T 1 I C C E T R O A H E N T H SLI V U S E R N R JU S SO S A N N ISO E E R I L P R C U U E B R AR M T H H

C-M D V O Y A 1 R 2 N E R N T O H R R F N O D BE L N E K

S SE N St Josephs Church Site S W O T One Story or Vacant Buildings

Vacant/Parking Lots

SLI DIVISION Existing Zoning Districts SLI Western SoMa SUD

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Data and Mapping by 0 200 400 800 AsianNeighborhoodDesign Source: Field surveys 2006 & 2007 by Asian Neighborhood Design and City Planning Department Feet Updated: Sept 12, 2007

OPEN SPACE • Western SoMa mixed-use character and major streets in urban paths of “livable green alleyway network provide opportunities to streets.” create more open spaces in the alleys or interior • Western SoMa has numerous major streets of blocks. that are very wide, have friendly ground floor • Western SoMa alleys are natural boundaries of uses, some with relatively low traffic volumes, most residential enclaves. but are not yet designed or improved to carry a proportional and simultaneous interaction • The greater SoMa area also benefits from having between pedestrians, bicycles, and cars. proximity to large citywide open space sites such as the waterfront and the Yerba Buena Center, Townsend, Folsom, 7th, 11th and 12th Streets provide as well as part of Mission Creek. According to opportunities to widen sidewalks, plant more trees the 2007 Resident Survey administered by the in an ecological manner, create continuous green Western SoMa Citizens Planning Task Force, 63 grounds that can mitigate pollution and noise, and percent of people surveyed said they use Yerba be pedestrian friendly at the same time. Buena Gardens as their primary recreation area. These large areas serve citywide residents and Folsom Street has been envisioned by many can become more accessible, more visible and parties as a major boulevard through Western become neighborhood focal points, through SoMa, connecting many of the major open space a comprehensive connection of alleys and destinations (Bessie Carmichael Park, the SoMa

OPEN SPACE Recreation Center, Yerba Buena Gardens, Rincon • pedestrian safety Point Park and the waterfront. • accessibility or universal design • pedestrian connections to transit In short, in order to take advantage of the existing • ecological features conditions, opportunities, and features, and to • streetscape such as lighting, paving, address open space deficiency, the major elements landscaping and street furniture of a Western SoMa open space system should look to creatively include the following goals: If fully implemented, the Department of Public Works Great Streets and SoMa Alley Improvement • Acquire and develop new neighborhood Programs will result in an enhanced pedestrian parks. realm, which will help to realize a number of • Create open space in alleys. essential benefits for San Francisco and its residents, • Connect existing new open space destinations and will: with a clearly identified network of major streets and alleys. • Help retain families in San Francisco: Streets • Require open spaces as part of new private that are safe from fast-moving traffic, are clean development. and well-maintained, and have spaces for neighbors to gather or children to play will V. Creating Open Space help to retain families in San Francisco. • Support Muni and a transit-first city: Most in the Public Realm every transit trip begins and ends with a walking trip. Well-designed streets that are Can some neighborhood open space deficiencies be safe for pedestrians, have amenities that people provided in the public rights of way? need, and connect to important transit lines will

Department of Public Works encourage greater use of the Muni system. Great Streets and SoMa Alley • Help promote public safety: Streets that are Improvement Programs active and have “eyes on the street” will enhance a sense of safety and security from Department of Public Works Great Streets and SoMa crime and violence. Alley Improvement Programs seek to work with • Help to minimize impact on global climate the community to balance the needs of all street change and local air pollution: Streets that are users, with a particular focus on the pedestrian designed to promote walking, cycling, and environment and how streets can be used as public transit use over private automobile use will space. The Program reflects the understanding help to minimize the San Francisco contribution that the pedestrian environment is about much to global climate change, and reduce local air more than just transportation – that streets serve pollution. a multitude of social, recreational and ecological • Help to minimize sewer/storm water overflows needs that must be considered when deciding on into the Bay: Streets can be designed such that the most appropriate design. they detain a certain percentage of water during big storms. Different paving treatments can be To create Department of Public Works Great Streets used to calm traffic and perform as permeable and SoMa Alley Improvement Programs, the grounds thereby reducing storm water run- following should be considered: offs.

OPEN SPACE Victoria Manalo Draves, a native of San Francisco, in 1948 became the first woman in Olympic history to win both springboard and platform diving crowns in the same games. So it is no surprise that a vibrant park and recreation facility (above) would be named in her honor.

• Decrease the likelihood of pedestrian injuries • Provide open space in areas that are lacking: As and fatalities: Streets that are designed with the San Francisco grows and new neighborhoods safety of pedestrians in mind will decrease the emerge, there is increasing pressure on the likelihood of pedestrian/auto collisions. existing open spaces, and a need for open space • Increase accessibility for all street users: Streets in new neighborhoods. that have a clear, accessible path of travel • Support neighborliness, civic interaction, and and are free from barriers and obstructions identity: Well-designed streets that include will result in increased usability for all users, places to sit, stop, gather, and play create the including people with disabilities, seniors, spaces for interaction. children, parents with strollers, and everyone • Enhance the everyday quality of life for San in between. Francisco residents: Above all, a well-designed • Support local shopping districts and small businesses: A street system that encourages street system will enhance the livability for San people to walk helps to support the small Francisco residents. commercial areas and small businesses that make up an important part of San Francisco The above bullet points are drawn from the Planning character. Department’s Better Streets Program.

OPEN SPACE Major streets, livable green streets • actual traffic volume: 0-100 = log (hourly traffic volume): <2 = low It is much easier to convert public land to a park. • actual traffic volume: 100-1000 = log Certain streets have already been identified as (hourly traffic volume): 2 to 3 = medium the fastest way to address open space in the • actual traffic volume: 1000-10,000 = log neighborhood. By using the Department of Public (hourly traffic volume): 3 to 4 = high Works Great Streets and SoMa Alley Improvement The map below shows typical traffic volumes on Programs, the process of improving the pedestrian Western SoMa streets. By comparing a portion of environment and how streets can be used as public 9th Street and 12th Street between Harrison and space, can be more rapidly achieved. Some public Mission Streets it can be seen that 9th Street carries a agencies such as the Department of Public Works, high volume of about 2,000 vehicles per hour, while Municipal Transportation Agency along with 7th Street carries a medium volume of about 1,000 the Department of Planning, the Department of vehicles per hour, and 12th Street carries only a low Public Health, and the community have identified average of 325 vehicles per hour. The traffic volume Townsend, 7 th, 11th and 12th Streets as some of for 12th Street is similar to the low volume on 11th the major streets for improvements that will lead Street. Accordingly, 12th Street could eventually to making streets more pedestrian friendly, safer, be reconfigured to restrict automobile traffic, and and act as green urban connectors in a larger green become “pedestrianized” with a continuous line of urban path. trees, and help create a calm South Van Ness and Mission intersection without adversely impacting Potential Improvements business. on 11th, 12th and 7th Streets Folsom Street as a Boulevard

The Transportation Focus Group of Western As previously discussed, Folsom Street has been SoMa Task Force meets regularly with Municipal identified by many public agencies and developers Transportation Agency staff to discuss auto, to be converted into a “ceremonial” neighborhood pedestrian, traffic and transportation issues. In a boulevard. Proposed improvements need to be meeting on August 8, 2007, the issue of converting mindful of addressing the historic importance 11th, 12th and 7th Streets into green, calmed, of the street to San Francisco, while emphasizing pedestrian livable streets was discussed. These neighborhood transit needs, utilizing its distinct streets not only have Residential Enclave Districts physical features related to auto traffic and urban (RED) surrounding them, they also have relatively planning as one of the widest streets and the most low traffic volumes. important route in South of Market neighborhood crossing east and west. There are categories based on a log of hourly Although only a small segment of Folsom Street is traffic volume on a specific streets keep daily by part of the Rincon Hill Plan.9 This Plan includes the Municipal Transportation Agency. Generally, Policy 5.3, which reads ”Transform Folsom Street and without factoring time of day (AM, PM peak into a grand civic boulevard, per this plan and the traffic periods), type of traffic (truck, bus, car, etc), a Transbay Redevelopment Plan”. Also, a number “general” summary8 of categories are as follows: of unresolved issues of both local and wider

8 Simple explanation on traffic volume provided by Tom Rivard, a noise and air quality expert at SFDPH 9 Rincon Hill Plan, Policy 5.3

OPEN SPACE impact, such as the potential for bus rapid transit A private developer has already begun a process on Folsom and other technical and cost issues of public improvements on Folsom Street using need to be studied before a streetscape and street concepts from the Department of Public Works configuration scheme for Folsom Boulevard can be Great Streets and SoMa Alley Improvement 10 settled. Programs, such as permeable pavement, large 10 Transbay Redevelopment Area, Design for Development, P.4 canopy trees, and a widen sidewalk. Mike Pitler

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G A L L Traffic Volumes IE A S M G S H JE A 1 E R 3 R Y 3 5 6 7 1 6 Western South of Market 5 1 2 4 RSD 5 N 6 Y A 0 R M DRAFT 4-12-2007 R L N E L O 7 P I S 6 T N 1 S E 4 A P 1 V Y 2 E M E 2 T A A L 3 S H IN P E T 7 I 6 T N 6 H 4 8 E 1 S 4 M 2 E 1 H RSD 6 0 L 2 U 3 6 1 C L B R 0 E D 9 F A R L T SLI H 2 M S 4 O L 0 U E 7 T W N 3 H O H L A A E R R E R A R L F IE C T T E R K U R S M S E P MA 0 R JU M L 4 0 IN 3 L O T 1 I S H 1 A S O C 1 A H RED O 8 K S L 9 G L A U 0 R 7 E N M 0 O 3 W L IN B M V 0 A L IA O E S M A 2 5 K R N 9 S R 1 T IE N A G 2 Q R H O U T 9 S U IS I S O 6 H A 7 S C N 2 E R T 7 S H D R E N N M 5 MI 5 A A 3 9 L A Y 5 E N N 5 V R BR A E E SSO 4 M 1 RED L H 8 O C A 0 T 6 A SLI 7 N D R A 8

W T 4 W O H 4 A H RED 6 0 S T 9 2 H R P H N 3 B A O A 9 U M D 1 N 4 R A G 8 2 G N H N R E A E 2 A E A T IN R 7 0 M C T S T 3 BR O E N B H X E E U M R B L E W O B 2 9 L M I T C N C A 5 O K R H S O D 8 R M 9 L E C 1 4 O H A D F H N 6 4 O 9 E 5 R D 1 S E L SLI L O 2 E E G 6 Y G G P N 1 D I I IL L R R L B U 1 D A E C 7 0 L N R B 8 SLR E G T U E G 5 T T R N 3 H T T N G O E E KI O N R RED D G O IN L N S IS K N K A D A 1 D E T 1 I C C E T R O A H E N N T H SLI V U S E R ISO R 9 JU R S 5 SO S A 3 N N E E 2 R I AR L P C 1 U U E H B R M T H 7 C-M D 3 V O 4 Y One-Way Streets A 1 R 1 2 N E R N T O H R R F D N O BE L N Two-Way Streets E K

S SE N S W 48067 O Daily Traffic Counts T 3425 Western SoMa SUD 0 6 8 6 8 Existing Zoning Districts

SLI DIVISION 13TH SLI

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Data and Mapping by Source: Data Provided by San Francisco Department of 0 200 400 800 AsianNeighborhoodDesign Parking and Traffic, March 2005. Feet Updated: April 12, 2007

OPEN SPACE and George Hausser designed, developed and enormously from the Department of Public Works built a sidewalk bulb-out to be used by residents of Great Streets and SoMa Alley Improvement the property including residents and ground floor Programs, and creating open space in the public commercial users. These developers are pioneers realm can be perhaps the most economical way to in getting a major encroachment permit approved achieve most of the goals specified in the Task Force by the Department of Public Works with the help Principles for the neighborhood regarding open from Mayor Gavin Newsom himself. This public space, such as promoting safety, maintaining and realm improvement project sets the example for promoting diversity, encourage nurturing seniors, what other groups of residents in the neighborhood families, youth and children, and maximizing can do. general environmental quality and health. Alleys Western SoMa alleys break up the scale of large Western SoMa streets and alleys can benefit blocks and parcels and offer pedestrians and

SITE MAP - FOLSOM STREET, 7TH TO 10TH

CHANGE TO

TWO-WAY 7TH STREET

8TH STREET 9TH STREET 10TH STREET

FOLSOM STREET

URBAN DESIGN ELEMENTS PEDESTRIAN VIEW SITE MAP - LEGEND

TWO-WAY STREET BULB OUT BIKE LANE BUS STOP CROSSWALK MIDBLOCK CROSSING MIDBLOCK CROSSING TREES

BULB-OUT

CROSSWALK

OPEN SPACE bicyclists an escape from the busy arterials that different neighborhood zoning districts, ranging pass through the neighborhood. Although the from interior courtyards to no open space at neighborhood alleys consist of a mix of uses, grade. A recent analysis conducted by AND on the they provide excellent housing conditions due to existing at-grade open space within the 18 existing livability factors including being walkable, human and emerging residential clusters tells us that the scale, and a vibrant public realm. average open space for residential units located in Western SoMa clusters is 0-26 percent of total lot The Task Force with the help of Asian Neighborhood area. Many parcels in Western SoMa containing Design [AND] has done an extensive research of mixed use buildings do often not have any at- all alleys in Western SoMa, and classified them grade open space. Clusters of residential uses on according to width, quality of lighting, transit, and Minna/Natoma, Converse/McLea, and Natoma/ type of residents served. Much of the housing in Julia consist of mixed use buildings many with full Western SoMa is concentrated in and around alleys. lot coverage that provide no open space.12 According to the Housing SAM, 54.2 percent of parcels in alleys are occupied by residential uses.11 Streets and alleys with ideal public realm conditions consist of well maintained sidewalks Visible patterns in open space exist within the with a minimal amount of obstructions such as

11 Western SoMa Housing SAM 12 Western SoMa Housing SAM

OPEN SPACE trucks blocking pedestrian access, a sufficient neighborhood fabric, and transportation. Survey amount of well maintained trees and vegetation results showed major neighborhood concerns with that provide shading and visually improve the trash and street safety. In the Residential Survey, 79 built environment, and evenly spaced lighting that percent of the people use streets on a regular basis, creates a safe environment for pedestrian use at and among major community concerns, about 52 night. percent of the people rated trash, 43 percent rated pedestrian safety, and 37 percent rated traffic safety Data for the public realm conditions were also as a large community concern. It is obvious that collected and analyzed by the Task Force for each street safety is a major concern for residents because entire block containing residential clusters.13 A residents are using streets as recreation and open public realm weighted rating system identified the space, as substitutes for the lack of green areas in locations of parcels with appropriate public realm the neighborhood. conditions. The following is a complete list of variables emphasized in the Public Realm weighted In order to use streets, furniture also plays a key rating system. role. The Department of Public Works regulates • Quantity and consistency of street lighting street furniture and street trees in San Francisco. • Quantity and quality of trees and plants Trees and the presence of green are essential in • Sidewalk condition making streets not only safe, but also healthier, • Vehicles double parked capable of improving the physical environment and • Vehicles blocking the sidewalk people’s quality of life. If a check list for safer streets was created based on street furniture and urban The Public Realm analysis identifies parcels conditions, improvements could be prompted by located on blocks consisting of conditions that are enjoyable for pedestrians and contribute to a livable community.14 Clusters that received high scores in this rating system were Langton/Rausch/Sumner, Natoma/Julia, Minna/Natoma, Dore/Sheridan, and Lafayette/Natoma. Parcels in these clusters received high scores due to an established residential character and walkable and safe sidewalks. Parcels that scored poorly in the rating system are located in the Natoma, Langton/Hallam, and Ringold clusters. These parcels received low scores due to a lack of trees and plants, large amounts of double parked vehicles, and inadequate lighting.

Safe Streets and Alleys

In June 2007, two different Western SoMa surveys were distributed to the community. The Residents and the Business Survey addressed issues such as business and land use, arts and entertainment,

13 A.N.D. alley analysis results, Housing SAM 14 A.N.D. alley analysis results, Housing SAM

OPEN SPACE SITE MAP - ALLEY TREATMENTS

MINNA STREET 8TH STREET

NATOMA ST. 7TH STREET

N HOWARD STREET

URBAN DESIGN ELEMENTS PEDESTRIAN VIEW SITE MAP - LEGEND

ONE-WAY STREET TWO-WAY STREET TREES/LANDSCAPING CROSSWALK RAISED CROSSWALK

TREES CHICANE “CHICANE”/ TRAFFIC CALM

RAISED CROSSWALK

LANDSCAPING working at an interagency level, generating an These provisions do not necessarily suffice as immediate increase in street safety. mechanisms for maintaining adequate solar light access in Western SoMa public alleys, which Solar Access and Solar are surrounded by relatively tall buildings. Energy in Open Spaces Consequently, new urban design policies support the consideration of “sensitivity to alleys and minor Planning Code Section 101 states that one of the streets” and propose controls to preserve sunlight purposes of the Planning Code is to provide to the public street.15 Similarly, existing Planning adequate light, air, privacy and convenience of Department Alley Design Guidelines need to be access to property in San Francisco. The Residential adhered to and enforced on new alley development Guidelines provide a set of requirements to projects to assure solar access to the public realm. moderate light access to residences, such as “provide shared light wells to maximize light in The use of solar energy and other sources of both properties.” Policy 4.3 of the General Plan alternative energy generators should also be part of Urban Design Element calls to “provide adequate 15 Power Point presentation to the Planning Commission, September 6, lighting in public areas.” 2007

OPEN SPACE all new development of open space. Solar energy be achieved through changes in the Planning Code can be used to power lighting, irrigation systems, requirements for new developments. The public and can serve as tool for public education on energy benefit analysis could result in specific community saving technologies. benefit programs for new development.

VI. Creating Open Spaces Western SoMa has several major opportunity sites of greater than a half acre. These potential on Private Parcels development sites could be required to provide publicly accessible at-grade open spaces on a Can some of the neighborhood open space shortfalls portion of the lot. All residential developments be met by private developments? should provide a mix of private and common open space for residents. On smaller infill parcels, the Western SoMa has several major opportunity sites required provision of rear and in some cases front larger than one acre. These potential development yards throughout the Western SoMa will also help to larger than one acre. These potential development sites could integrate publicly accessible at-grade meet residents open space needs in a neighborhood open spaces as part of future development schemes. yard pattern. These large sites in particular could provide a mix Publicly Accessible Private Open Space of private and common open space for future residents in addition to publicly accessible open space for the neighborhood as an on-site provision The recently completed below market rate housing of community benefits. This community benefit project located on Folsom Street near 10th Street has concept on large development parcels can be a children’s playground that is publicly accessible to established first as a goal, and then elaborated to nearby residents. Construction of this community

OPEN SPACE facility was facilitated by reducing the number of ground level, and 3,000 square feet for community parking spaces in exchange for providing green space. recreational space. In addition the Task Force has evaluated and finds The community has identified a specific site for the Saint Joseph’s church on Howard Street to be an development of open recreational space at 8th Street ideal location for a publicly accessible open space and Harrison Street. The Western SoMa Task Force serving the western portions of the neighborhood. has recently met with the developers of a mixed The history of this City Landmark site as an use project proposed at this site, and requested important community meeting place and a long the development plans include 43,000 square feet standing location for child care services further of public open space accessible to the public at the emphasize the long standing use of this location

Archstone’s 8th and Harrison working site plan includes numerous elements of open space that promote the Task Force vision of a complete neighborhood.

OPEN SPACE for opens space and community gatherings. This particular location is additionally ideal based on the existing proximity to residential enclaves and it being about as far from the freeway system as any location in the neighborhood.

VII. Additional Considerations

What additional measures can be taken to assure adequate and innovative provision of open space? to build efficiently, healthy and ecologically.

Public Gardens Green Roofs

Finally, public gardens are a “win-win” situation. Another catalyst to crafting developments that are They bring together community groups with local sustainable is developing roofs as an alternative to businesses, which donate money to build a garden; ground level spaces for recreation. Green roofs can the donor moves on but the garden stays, enhancing act as pollution filters and also have thermo qualities both nutrition and quality of life. Access to a public

OPEN SPACE garden, in the absence of a private one, and being Limited data is currently available to assess these able to plant vegetables can benefit a lower income attributes comprehensively in San Francisco. The community from the point of view of nutrition, most easily obtainable objective measures of parks given expensive supermarket alternatives that do quality are those having to do with net land area not necessarily stock organic produce. and physical proximity. However, other attributes, particularly those having to do with quality and APPENDIX A programming are more subjective and data for these are not routinely gathered.

Methodology Each of the above attributes also requires attention for Identifying and evaluation with regards to social equity. It Potential Public Parks is also important to recognize the relationship between these attributes. For example, the physical in West SoMa conditions of a park can influence usage by neighborhood residents as well as affect actual and Defining Parks Need for Western SoMa perceived park safety, which subsequently affect

park usage. Overwhelming scientific research demonstrates that public parks are vital for the physical and mental Park Land Area: Park area requirements can vary health and well-being of city dwellers. Research depending on community uses and desired needs. has found that the number of neighborhood parks Standards for amount of park space per resident in proximity to one’s residence and the types of vary nationally. As applied by the San Francisco amenities at the park predict greater physical Recreation and Parks Department, the San Francisco activity in children. Access to places for physical Sustainability Plan defines the need for open space activity has also been associated with increases in capacity at 5.5 acres per 1,000 residents. As applied the frequency of physical activity. Finally, living by the San Francisco Department of Public Health in proximity to green space is associated with in its Healthy Development Measurement Tool, the reduced self-reported health symptoms, better self- National Parks and Recreation Association defines rated health, and higher scores on general health the need for open space capacity as 10 acres per questionnaires. Data on violence provide some 1,000 residents. Irrespective of which standard is reflection of safety. applied, West SoMa fares worse than the rest of the City with respect to open space or parks capacity. • Adequacy of public parks should be evaluated Currently, the City has about 5.5 acres of opens pace and addressed with regards to capacity, per 1,000 people. However, this ratio is much less access, quality, and safety. Major domains for in West SoMa, where there are only 0.23 acres of evaluating park needs include: public parks and 5,268 residents. While significant • Net land area (e.g., amount of parks and open open spaces exist in close proximity to West SoMa, space), such as at Victoria Manolo Draves Park and at • Physical proximity (e.g., distance to a park), Civic Center Plaza, the ratio of .04 acres per 1,000 • Public safety (e.g., perceived or real threat of residents conveys the need for more park space in violence or pollution), West SoMa. • Programming (e.g., activities and their compatibility with local needs), and Physical Proximity: Proximity to parks (defined as • Operations and maintenance (e.g., cleanliness, household distance to a park) is another important staff sufficiency). element of defining park need. The HDMT defines

OPEN SPACE Western SoMa SUD Opens Space Analysis Map: Blue lots are an incomplete listing of locations that are significantly under built in terms of their development potential.Yellow circles are the radiuses served by the open space in the center of each of the circles. Red circles are locations of Eastern Neighborhoods sites that may meet some open space needs for the greater SoMa area. a minimum development target for parks access safety countermeasures on adjacent roads to limit in new development as at least on par with the pedestrian risks. Parks siting should also consider citywide average. Currently, 76% of City households air quality and other environmental hazards. For live within one-quarter mile of a neighborhood or example, the California Air Resources Board regional park (parks larger than 0.5 acres). In SoMa (CARB) recommends that new sensitive land uses be sited at a distance greater than 500 feet from a at large, that figure is 68%. The proportion in West freeway or urban road carrying 100,000 vehicles/ SoMa is likely lower as most parks in SoMa are day. CARB considers parks and playgrounds to located in East SoMa. constitute “sensitive” land uses. However, it is important to note that the potential exposure for Physical Safety: The siting of parks in West park users would be less than 10% of residential SoMa should be attentive to collision hazards for users simply on the basis of exposure duration; it park users accessing the park by foot or bicycle. may be appropriate and even beneficial in some The majority of the West SoMa community is cases to locate parks near busy roadways if other within close proximity to the freeway and many suitable locations are unavailable. West SoMa roads are wide and have high traffic volumes, which are known hazards for pedestrian Equity: Currently, San Francisco does not achieve collisions. Park planning could include pedestrian the above domains equally in different areas of the

OPEN SPACE City. For example, some neighborhoods may have • Not within 1/8 mile (2 ½ minute walk) numerous and non-contiguous areas of public open of a park less than one acre in size (“sub- space (e.g. plazas, fountains, playgrounds) but may neighborhood park”). lack neighborhood parks larger than 0.5 acres, thus • Not within ¼ mile (5 minute walk) of a park of limiting the types of park and physical activity in one to 10 acres in size (“neighborhood park”). that neighborhood. • Not within 3/8 mile (7 ½ minute walk) of a park of 10 or more acres in size (“district Identifying Supply park”). • Areas within the distances denoted above, Increasing the amount of public park space in West but are isolated from proximal parks by SoMa will require the acquisition of land and its obstructions such as highways or railroad conversion to a public park. Although simple in tracks. concept, in practice this is a difficult and arduous • Be ¼ acre or more, individually or combined process involving negotiations, lawyers, and time. Therefore, it is important to be strategic in the with adjacent parcels under consideration planning phase to facilitate improvements on the (although cobbling together a site from ground. multiple private parcels is discouraged because of the difficulty of negotiating with The first step in the process is to identify land where multiple landowners). acquisition is both possible but makes sense from a • Be a “soft-site”; i.e. a parcel with high fiscal and social standpoint. Below are our criteria development potential. Criteria come from for doing so. They are divided between public Appendix C of the Planning Department’s parcels and private parcels because 1) they require “Community Planning in the Eastern different acquisition strategies, 2) private parcels Neighborhoods” Workbook (The “Black are the great majority, and 3) it is much easier to Book”, 2003). convert public land to a park, thereby meriting a reduced criteria (and thus a closer look) at all public Soft sites include one of the following site sites. characteristics:

Public parcels • The parcel is vacant • The existing structure is condemned • Can be anywhere within Western SoMa. • The parcel is used as a parking lot • Cannot contain important community • The parcel is used as a parking lot and facilities (e.g., recreation centers, community includes a small structure centers, homeless shelters). • Must be ¼ acre or more (per Recreation & • The structure on the parcel is only one story. Parks Department’s acquisition guidelines). Next Steps

Private parcels Once sites have been identified there are multiple • If recommended by a community member, can steps that need to occur before the neighborhood be anywhere in West SoMa. has a new park. Sites will be prioritized based on • If not recommended by a community member, how well they serve the community, in terms of the site must be in an area not served by a size, proximity, and other standards of site safety public park. This includes areas that are: and suitability.

OPEN SPACE Identifying funding for park acquisition

For a private site, this must occur before negotiations can begin with landowners, or before the City makes any public statements about their intent on the site. For public sites, this can occur at the same time as negotiations with the public agency that owns the land.

Identifying agency responsible for park management and maintenance

Although the Department of Parks & Recreation manages the majority of parks in San Francisco, they are not the only potential steward of the park.

Programming the park

This entails determining what kinds of uses best serve the needs of the community and are viable on the site. This process need not occur until after negotiations have begun to acquire a site.

OPEN SPACE ACKNOWLEDGEMENTS

John Rahaim (current) and Dean Macris (previous), Directors of the San Francisco Planning Department provided important leadership during the development of this report. The Friends of City Planning as well as the San Francisco Planning Commission were instrumental in supporting the project.

Paul Lord, Planning Department Project Manager and member of the Western SoMa Citizens Planning Task Force edited and co-authored this document. Special thanks to Jim Meko, Chair and Toby Levy, Vice-Chair of the Task Force for their leadership and guidance.

The principal author of this SAM was Sandra Soto-Grondona from the Planning Department staff. Margaret Yuen, Stephen Shotland and Steve Weirtheim provided helpful information and references to other documents used for this analysis. Andre Chan, a private consultant, provided copy editing services.

Peter Cohen and Ka Man C. Chan of Asian Neighborhood Design (AND) provided valuable analytical and graphic support, in addition to all the maps for this report.

OPEN SPACE