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Urban Land Institute Technical Assistance Panel Priority Area 1 Specific Plan October 2019

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Urban Land Institute Technical Assistance Panel Priority Area 1 Specific Plan October 2019 City of Brentwood 150 City Park Way Brentwood, CA 94513 www.brentwoodca.gov https://www.brentwoodca.gov/gov/admin/pa_1_specific_plan.asp ACKNOWLEDGEMENTS City Council Robert Tayor, Mayor Joel Bryant, Vice Mayor Karen Rarey Johnny Rodriguez Claudette Staton Planning Commission Dirk Zeigler, Chairperson Cyndi Hankins, Vice Chairperson Emily Cross Seana Fippin City Staff The dedication of City staff throughout the Priority Area One (PA-1) Specific Plan preparation and adoption process provided the framework for this ULI briefing book. Questions should be directed to the City of Brentwood Community Development and Economic Development Departments, C/O Terrence Grindall, Assistant City Manager. ULI Technical Assistance Panel Briefing Book City of Brentwood Page 2 TABLE OF CONTENTS SECTION PAGE Regional Map 4 1 The Assignment 5 2 Status of the Plan 7 3 History of the Area 7 4 The Area 8 Land Uses 9 Transportation and Access 11 eBART Next Segment Study 11 Infrastructure and Utilities 13 Property Ownership 14 Demographic and Economic Information 16 Housing Market 16 Commercial Development 17 5 PA-1 Implementation Action Plan 20 6 Government 23 7 Key Contacts 25 Attachments 1. Priority Area 1 Specific Plan, dated November 13, 2018 2. Priority Area 1 Specific Plan Final EIR, dated August 2018 3. City of Brentwood General Plan, adopted July 22, 2014 4. City of Brentwood Economic Development Strategy, dated March 2018 5. Bay Area Regional Transit, eBART Next Segment Study, dated 2014 6. Parks, Trails & Recreation Master Plan Update, dated February 26, 2019 All above documentation is found at: https://www.brentwoodca.gov/gov/admin/pa_1_specific_plan.asp ULI Technical Assistance Panel Briefing Book City of Brentwood Page 3 REGIONAL MAP ULI Technical Assistance Panel Briefing Book City of Brentwood Page 4 1. THE ASSIGNMENT The City of Brentwood has requested assistance through the Urban Land Institute (ULI) Technical Assistance Panel program to evaluate and provide recommendations for implementation of the Priority Area One (PA-1) Specific Plan (Attachment 1) area. The City of Brentwood envisions PA-1 emerging as one of the city’s primary future employment centers, offering individuals and businesses access and opportunities to create high-quality jobs across a diverse array of industries. The establishment of the employment center will assist the City towards achieving its goal of a healthy jobs-to-housing balance, reducing commute times for residents, and establishing new opportunities for economic growth and employment within the city. In addition, the City foresees PA-1’s development as a vibrant, compact, mixed-use district, focused around a transit station that will provide linkages to other eastern Contra Costa County communities and the wider Bay Area region beyond. The PA-1 Specific Plan provides the vision and strategy to facilitate PA- 1’s emergence as the city’s transit-oriented employment center. Brentwood is planning for an employment focused Transit Oriented Development at the future Brentwood eBART Station/Transit Station. Locating jobs here will vastly shorten the commutes of Brentwood residents, increase the transit and non-motorized mode split and support BART ridership in the “reverse” commute where they have significant capacity- running nearly empty trains. The City has already completed a Specific Plan for the area- but a detailed path forward needs to be developed that recognizes design and market realities. Regional Setting: Brentwood is located in the East Bay Region on the alluvial plain of the Sacramento-San Joaquin Delta near the eastern base of Mount Diablo. It is approximately 41 miles west of San Francisco, 22 miles east of Stockton, and 46 miles southwest of Sacramento. ULI Technical Assistance Panel Briefing Book City of Brentwood Page 5 Local Setting: Brentwood is a 14.86 square-mile city within Contra Costa County. The city is bordered by the City of Antioch to the northwest, the City of Oakley to the north, and Contra Costa County to the east, south, and west. Regional highway access to the city is primarily provided by State Route 4 (SR 4), which extends north-south through the city. The State Route 4 corridor connects the city to Antioch and other East Bay cities to the west and Discovery Bay and Stockton and the central valley to the east. Regional access to Brentwood is also provided via Interstates 580 and 205 through county roadway connections. Priority Area One (PA-1): The project area is 368 acres, 167 Acres are designated for employment uses, 63 acres are designated for a mixture of residential and employment, 48 acres are designated as medium/high density residential and 70 acres are designated as Regional Commercial. Within PA-1, 20 acres are designated for a transit station and multi-use trail with overcrossing. The plan allows for construction of approximately 5.5 million square feet of new office space; 3,000 new housing units; and 300,000 square feet of new retail or hotel space. The vision for this area is a bold leap that would lead this region to a new reality: a world where new generation workplaces are close to employees residences, where quality of life is a paramount concern, where pedestrian, bicycle, and quality transit travel to work would not only be possible, but strongly preferred; where employers chose to locate is a place because they can attract talent by virtue of quality of life. Despite the social and environmental benefits of this type of the development, the market is not clamoring to make the investment. It is not enough to have a “hope” that jobs will come to housing rich areas, it is not enough that it would help address regional environmental and transportation goals, it is not enough that it would improve the circumstances both of employers and employees- successful implementation requires that the idea be practical and demonstrably rooted in market realities. Implementation steps and incentives must to be identified. TAP Panel Questions: The City of Brentwood is looking forward to partnering with ULI SF to bring a panel of experts and practitioners to address the following questions: 1. Draft a mission statement for this site based on the Specific Plan and insight from the City and stakeholder interviews. What is the balance of land uses needed to create a complete community with an emphasis on job creation and what kinds of regulatory requirements are needed to give the flexibility to achieve this mission? 2. The City intends to construct backbone infrastructure to serve the site. Are there detailed design considerations and innovative concepts that we should pay attention to in developing the infrastructure and guiding the design of the layout and buildings? 3. What incentives are needed to spur this development and what is the most effective form they would take? Are value capture techniques or infrastructure financing mechanisms likely to be effective and appropriate here? 4. How should the City engage the current property owners and stakeholders to become partners in this process? ULI Technical Assistance Panel Briefing Book City of Brentwood Page 6 2. STATUS OF THE PLAN The City’s interest in providing comprehensive, focused policy direction for development in the Specific Plan area originated during the last comprehensive General Plan Update (Attachment 3), adopted in 2014. In response to the City’s rapid population growth during the preceding 15 years and the desire to address the resulting jobs to-housing imbalance, the General Plan first identified the area as a priority location to meet the City’s economic development goals and accommodate future growth. Specifically, the General Plan initiated the area’s identification as “Priority Area 1” through the application of an overlay designation on the General Plan Land Use Map and included policies that address the area’s development pattern and character, mix of uses, and economic development opportunities. The PA-1 Specific Plan process began in 2016 and was ultimately adopted by the Brentwood City Council on November 13, 2018. The City Council also certified the PA-1 Final EIR (Attachment 2) on November 13, 2018. Most recently, the City has engaged a civil engineering consultant to perform an infrastructure planning and engineering exercise, including a more fully developed infrastructure program plan and cost estimate. 3. HISTORY OF THE AREA PA-1 Area c. 2004 Brentwood has been transitioning from a primarily agricultural based community to a more commercialized and thriving suburb within the greater San Francisco Bay Area. The estimated population trend of Brentwood is as follows: Year Population 1990 7,563 2000 23,302 2010 51,841 2019 65,288 Contributing factors to population growth over the past three decades include the lower cost of housing between Brentwood and other San Francisco Bay Area communities and higher quality job creation, specifically in the East Bay Area including the Livermore Tri-Valley and Concord/Walnut Creek areas. Those emerging East Bay job centers, i.e. Bishop Ranch in San Ramon, allow East Contra Costa residents easier access to job opportunities at more diverse levels of employment. Additionally, improved transportation access is a critical factor in population growth. The phased State Route 4 Bypass Project has improved traffic mobility and congestion. The highway expansion project was recently completed in 2018. Public transit has also ULI Technical Assistance Panel Briefing Book City of Brentwood Page 7 greatly increased in East Contra Costa County with the East Contra Costa BART (eBart) extension into Antioch in 2018. Additionally, local transit districts have expanded shuttle and bus service from East County to the BART system and other regional job centers to accommodate the commute workforce population. Specific to the development pattern of the PA-1 area, the area was once rural farms and ranchettes.
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