Newark Area Two Concept Plan

NEWARK AREA TWO CONCEPT PLAN

DESIGN, COMMUNITY & ENVIR ONMENT Draft — July 7, 2008

TABLE OF CONTENTS

Chapter One: Introduction 1

Chapter Two: Principles of Transit-Oriented Development 7

Chapter Three: Site and Context 15

Chapter Four: Concept Plan 33

Chapter Five: Implementation 43

City of Newark | Area Two Concept Plan iv TABLE OF CONTENTS City of Newark | Area Two Concept Plan CHAPTER ONE: INTRODUCTION

This Concept Plan was undertaken as a collaborative effort between the City and landowners adjacent to a proposed Newark Station of the Dumbarton Rail Corridor. This is a unique opportunity for the City of Newark to create a new type of neighborhood that will provide housing, access to new rail transit, connections to open space and possibly community amenities such as a performing arts facility. This project will enable fallow “brownfield” land to be reclaimed into a new community that will provide citywide benefits. As planned, it will also serve as a model for a pedestrian-friendly, compact kind of development that will attract a variety of residents and retail. It has the potential to become a new destination within Newark which will draw visitors from within the City, neigh- boring communities and across the Bay.

City of Newark | Area Two Concept Plan Background Creating a Vision In collaboration with Area Two landowners, the City of The goal of the Area Two Newark began a planning effort in the fall of 2007 to explore Concept Plan is to create a potential development in Area Two around the planned vison for a new neighbor- Newark Dumbarton Rail Station. hood adjacent to the proposed Newark Station of the Area Two includes around 600 acres of land that has contained Dumbarton Rail Corridor. various industrial, manufacturing, chemical processing and salt The neighborhood has the Aerial view of the Plan Area. production facilities since the early twentieth century. Zoning potential to become a vibrant for the Plan Area was updated in 1999 with the adoption of the community. Situated on the Newark Area Two Specific Plan, which anticipated the con- Dumbarton Rail Corridor, struction of a Community College surrounded by multi-level the neighborhood would office and R&D buildings. However, after adoption of that have access to regional con- Plan, the Community College located elsewhere and the mar- nections and local open ket for office space in southern Alameda County contracted. space. The Plan is a collab- The planned Dumbarton Rail Corridor presents an opportu- orative effort between the nity to create a vibrant new transit-oriented center in Newark City, local landowners and that will provide new housing while generating significant the community. Community Workshop table map illustrating some community members ideas ridership for the Dumbarton Rail Corridor. about a development alternative.

The planning effort undertaken for this Concept Plan included two public meetings that were used to gauge support among Newark residents for new types of development around Area Two. Three proposed development alternatives were presented and the community provided substantial input. Based on that input, City staff concluded that the next step should be to refine a conceptual land use plan and bring it to the Planning City of Newark Community Members sharing their ideas at a Community Commission and City Council for review. This was done in Workshop.

CHAPTER ONE: INTRODUCTION City of Newark | Area Two Concept Plan CITY OF NEWARK AREA TWO CONCEPT PLAN

«¬24 ¦¨§80 March 2008; both the Planning Commission and City Council Drive and Willow Street to the east, Perrin Avenue to the Marin ut 101 Oakland Contra Costa

¦¨§880 unanimously approved the ideas behind the Concept Plan. south, and salt production facilities bordering San Francisco San Francisco Bay to the west, as shown in Figure 1-3. ¦¨§580 ¦¨§680 As Mayor Smith and the City Council have stated, this Alameda

«¬92 «¬84

¦¨§280 Newark Concept Plan is only a start. More work must be done to ARDENWOOD BLVD Fremont

«¬92 «¬84 ¦¨§880 accurately assess the impacts of the development that it envi- TUPELO ST sions on the City of Newark and the environment. Next steps FREMONT BLVD San Mateo ¦¨§680 «¬84 ut 101 will include refining the land use plan, analyzing the impact «¬84 NEWARK BLVD ¦¨§280

PSO PADRE PKWY Santa Clara of replacing previously approved office development with FREMONT MOWRY AVE San Jose residential development and proposing detailed land use regula- Figure 1-1: The City of Newark within BLACOW RD Santa Cruz tions that will guide and facilitate transit-oriented development. the0 2Bay 4 Miles Area regional context. ¨¦§880 84 This work will likely take the form of a new Specific Plan and «¬ F I G U R E 3 - 1 REGIONAL LOCATION associated General Plan and Zoning Code amendments, along CHERRY ST E V A Y R with any environmental review required under the California W CITY OF O M D V L NEWARK B Environmental Quality Act (CEQA). N O S N E V

E T BOYCE RD S

Location of Area Two and the Concept Plan Area Area Two

S a The City of Newark is in southern Alameda County on the east n F r a n c i s shores of San Francisco Bay. The regional context is shown in c o

Figure 1-1. Area Two is entirely within Newark city limits a

y south of State Route 84 leading to the Dumbarton Bridge and west of Interstate 880. The relationship of Area Two to the 0 0.25 0.5 Miles City of Newark is shown in Figure 1-2. At a closer scale, Area Figure 1-2: Area Two within the City of Newark. Two is bounded by Thornton Avenue to the north, Enterprise

City of Newark | Area Two Concept Plan CHAPTER ONE: INTRODUCTION T H E C I T Y O F N E W A R K A R E A T W O C O N C E P T P L A N

B S r S y i e c d q S Ct am e g u il Yew o v e o k r p ia C e A o C t St s t i in v t e r e Av a et J D uns Ma SW rshlan r ds a R l E d n L d l g R u o m in t nd c La S u S S s t s t w N t yhe U a u S I M t t h l G L m A D y P u a e s g n u h ga m g ho F r u a W A M i e C S r C l t o t a R C t S l T l ho t t n S rn P u E t o t on W k L A P p S r v Sa M l t i a I e p l a a l r U ya o a w I St w p S t e M D le N - S C A t S 2 h t W / R e E s l 1 H t a L m E n ve l o i u A n c r c S Don Edwards k t e u L p u ni t t I o S Ju Dr s r t po S t y lep t S San Francisco M S A ve t - t A ells 4 ve W / n A Bay dari 1 Man

ct E National Wildlife edu n qu t y A e tch r -He p Refuge tch r He i s e C T H E C I T Y O F N E W A R K t r e D pris A R EA T W O C ON C E P tT P LA N nter educ E qu C y A e tch n Willow St t He r h- a tc l B e t S C r S H n y i e e c t d q S t m am e g u il Yew C n o v e o k ig r p ia l e LAND OWNERSHIP A C o C t l A St s t i i in a v t R ve r e n A a t J o se Plan Area (233 acres) M D rt un ar r a SW shlan b ds m a Rd u l E D n L d l t 1. Cargill: 20.0 acres g R u o m C in t t nd c abo La S u S Salt C S s t s t H 2. w N t FMC: 9.7 acres he i U T H E C I T Y O F ayN E W A R K S c I M u k t t o h G m ProductionA 3. FMC: 14.7 acres L r D Pl a s g A R E A TyW O C O N C E P T u P L A N e y an u h g m g S u ho r A a F W S 4. M i e t FMC: 17.2 acres r C Facilities o C l t R t l T C t S a h t ln 5. S o t FMC: 8.1 acres E rn P u to o t k n W r B L A p S 6. Cargill: 46.9 acres ve S S M l t I y a a r S P il c i e U a l a r w d q S ICt pa o m a e g u il Yew ya w o p S v o k 7. Ashland: 10.3 acres e e M S r l t p - ia C D t e e A N C S C S o t A t S s t i 2 t 8. in h t e FMC: 2.0 acres v / R W v t ve e E A r e A s in a t L lm rr J D 1 Hse t a e E n n e l o P 9. SSH: 4.3 acres M Su i v n a r W c u A rs Don Edwards L er u c S h t la k ip u t nd I a o The primaryn focus of thet Newark Area Two Concept Plan s S Ju r s Rd l E D S 10. SSH: 2.0 acres n r L t o t Rd y l p t g M u o m lep S San Francisco din t S c A e t n A. - u v 11. Torian: 10.0 acres La Plan Area (233S atcres) S ls A S s t s t E. el ew N 4 t e W yh / D. is an area coveringAv 233 acres of land centered around the U Bay Ma u S in 12. Torian: 32.0 acres I t t ar G m Area of1 Concern (201 acres) A d h l L an D y P u a e s M g an u h 13. og m g Cargill (USD): 16 acres h F r H. u a C. W S G. A M i e C r C t proposed Newark Dumbartont Rail Station. This is shown in l Railroads c E o t u National WildlifeC a S F. d l R t e n T l qu ho t t n y A t S rn P u tch e E to City Bo oundary t e r n W h-H p Refuge S k p 4. tc L A P He r Area of Concern (201racres) v Sa M l t i e p i a B. Figure 1-3 as the Plan Area. However,s the Concept Plan also I l a ay l r e IU a S o a w t w Pp roposSed Rail Station C e M l t D e t - S Cargill: 62.2 acresN C A. A t S 2 h t e W considers all of the land that was part of the Area Two Specific / R E B. USD: 0.7 acres s l H t a L m 1 n 3. 8. e l o E i t v n I. c cu A u r u c S Don Edwards k t e L d 0 p 500 1,000 Feet u C. WorldPac: 12.0 acres e i t t W o u S un r s J. I q J D C r A t o S t Plan, adopted in 1999, as well as several parcels to the west of y y p t il e h ep S l l 10. o D. Thornton Bus. Ctr:Sa n22.0Fracresancisco M S tc A ve t n e w - t A t -H 2. lls r ch e 7. a t S FMC: 2.2 acres 4 et ve 5. W l E. n A t Bay / H e Note: total acreagesrinfor Plan Area and Area of Concern inclu9dWillow.e rights-of w aStreety. that are included becauseC these parcels may pro- m da t 1 gn an D E C E M B E R 2 0 , 2 0 0 7 F. FMC: 3.5 acres 13. Ali M K. Enterprise Drive LLC: 2.1 acres il 1. G. a ct E National Wildlife R edu n vide opportunities for supportive land uses or raise questions n qu t 11. H. Gallade Enterprises LLC: 2.4 acres o hy A e rt etc1. r N E W A R K A R E A I I B A S E M A P Refuge a h-H p b etc r I. Jones Hamilton Co: 6.1 acres m H is Du e of land use conflicts. All land considered by the Concept Plan C Ct J. Jones Hamilton Co: 9.3 acres t ot Salt Cab Dr H K. Jones Hamilton Co: 5.7 acres e i ris c that is not in the Plan Area Boundary is designated as the Area erp k t Ent Production o L. Wildlife Refuge: 30.4 acres uc r ed 6. y qu S C M. Fries: 14.3 acres y A Facilities t e tch ofn Concern as shown in Figure 1-3. Together, the Plan Area Willow St t He r 12. h- a etc t l H en C Concept Plan Area m andt the Area of Concern constitute Newark Area Two. lign il A 1. Area Two Ra on ve rt rin A Railrobadas Per um D t City Boundary ot C Figure 1-3 also shows the proposed location of the future Salt Cab L. H Proposed Rail Station ic k Production o r M. Dumbarton Rail Station. The quarter-mile and half-mile radii y S Facilities t are shown to illustrated pedestrian walking distances to the proposed station. A quarter-mile is considered to be a five-

ve rin A Per minute walk and a half-mile is considered to be a ten-minute

0 500 1,000 Feet Plan Area (233 acres) walk. Figure 1-3: The Area Two Concept Plan Area and Area of Concern. Area of Concern (201 acres) Note: total acreages for Plan Area and Area of Concern include rights-of way. Railroads City Boundary Proposed Rail Station

0 500 1,000 Feet

Note: total acreages for Plan Area and Area of Concern include rights-of way. D E C E M B E R 2 0 , 2 0 0 7

N E W A R K A R E A I I B A S E M A P

Aerial view of the Dumbarton Rail Bridge. Vacant industrial lands in Area Two.

CHAPTER ONE: INTRODUCTION City of Newark | Area Two Concept Plan Dumbarton Rail Corridor

The Dumbarton Rail Corridor project will extend commuter rail service across the South Bay between the Peninsula and the East Bay. The project aims to provide a critical link between the Caltrain lines in San Mateo County, and the BART, ACE, and Amtrak rail lines in Alameda County. The trains will run on rehabilitated and reconstructed rail facilities, shown in Figure 1-4.

Approximately $260 million has been secured relative to a total cost estimate for the Dumbarton Rail Corridor project of $595 million. This is enough funding to begin with a first phase of the project, which would include the Newark Station. A public review draft of the environmental review is expected to be released by January 2009 and rail service is anticipated to begin after 2012.

Figure 1-4: The proposed alignment of Dumbarton Rail Corridor.

The Dumbarton Rail Corridor will connect to Caltrain. Existing Dumbarton Rail Bridge and Newark Slough.

City of Newark | Area Two Concept Plan CHAPTER ONE: INTRODUCTION To help facilitate the creation of housing near transit stations and the attendant increase in transit ridership, the Metropolitan Transportation Commission (MTC) makes grants available for land use planning around station sites. Projects need to plan for a minimum number of housing units along the transit corridor. The threshold for commuter rail lines such as the Dumbarton Rail Corridor is 2,200 units within a half-mile radius of the station. About 750 dwelling units currently exist within a half- mile radius of the Newark station site.

Completion of a trans-bay commuter rail link will present significant opportunities for Newark. It will provide residents with greater transportation options and make major Bay Area employment centers more easily accessible from Newark. At the station site, the provision of a greater range of housing types, both rental and for-sale, could attract new residents that might otherwise locate in Fremont or across the Bay. Also significant is the focus that the transit station provides for the creation of a vibrant new place within the City.

Figure 1-5: Existing development and the Newark Area Two Concept Plan Area within 1/4 and 1/2 mile radii of the proposed new Dumbarton Rail Station.

CHAPTER ONE: INTRODUCTION City of Newark | Area Two Concept Plan CHAPTER TWO: PRINCIPLES OF TOD

Transit-oriented development (TOD) refers to the clustering of homes, jobs, shops and services in close proximity to rail stations, ferry terminals or bus stops offering access to high- quality transit services. This pattern of development typically involves compact housing, a mix of different land uses and amenities such as pedestrian-friendly streets and parks. This concept is not new: many historic neighborhoods in older cities such as Boston, San Francisco and Seattle developed as pedestrian-friendly “streetcar suburbs” before the advent of the automobile suburb in the 1950s.

In order to foster the creation of a vibrant, successful neighborhood, a TOD must serve a significant portion of trips by public transit, walking and bicycling. Enticing residents out of their automobiles starts with proximity to transit. According to the MTC, Bay Area residents who live within a half-mile of rail transit stops are four times as likely to use transit, three times as likely to ride a bike, and twice as likely to walk as those who live at greater distances. Proximity is not the only ingredient,

City of Newark | Newark Area Two Concept Plan however. Below are six principles that should be followed in the planning and design of new transit-oriented neighborhoods TOD and Mixed Use like Newark Area Two. TOD is not a new idea; it was a way of life before the invention of the automobile. 1. Provide a Mix and Variety of Uses Modern TOD planning provides multiple transportation A healthy neighborhood is made up of a mixture of residential modes, encouraging residents development, employment, locally-serving retail shops, com- to be less reliant on their cars munity facilities (such as schools, daycare or performing arts) and utilize their local neigh- Historic streetcar suburbs contained the right mix of uses and development den- and public open spaces. This mix of uses will ensure that a sity to create a pedestrian-friendly, transit-supportive coummunity. borhoood in meeting their variety of people will be present on the streets during a range daily needs. Greater den- of times of the day and week, including evenings and weekends. sities and a multiple num- The potential exists for residents to drop off their children at ber of nearby uses entice daycare, to pick up dry-cleaning or get a coffee before heading residents to take advantage to the train station, all on foot. of walking on pedestrian- friendly street. When people walk more, they tend to meet neighbors more and recognize them. Stopping in at the local grocer or café Alternative modes of transportation, encouraged by the increased density and often means that there is a potential connection with others multiple uses within a transit-oriented development. who shop or work there. This sense of “neighborliness” is not only pleasant, it can help to keep watch over the neighborhood and reduce crime.

When a mix of different types of housing is provided, there is a greater likelihood that individuals from different walks of life will be able to live as neighbors: seniors, young couples, single professionals and families. Inclusionary housing policies can further ensure that there is a variety of income groups living in Mixed-use development, with housing above retail. Pedestrians enjoying the active street life encouraged by the neighborhood. This is important for retaining local service transit-oriented development.

CHAPTER TWO: PRINCIPLES OF TRANSIT-ORIENTED DEVELOPMENT City of Newark | Area Two Concept Plan professionals including police and teachers, who are all-too-fre- W COLLEGE AVE COLLEGE AVE quently priced out of expensive Bay Area communities. Every MORGAN ST effort should also be made to include accessible housing for CLEVELAND AVE

5TH ST residents with disabilities, as well as “visitable” housing where HEALDSBURGAVE MENDOCINO AVE 7TH ST Specific Plan Area HIGHWAY 101 all residences are fully accessible to visitors with disabilities. A ST 9TH ST W 9TH ST D ST

N DUTTON AVE B ST 1/2 Mile Radius WILSON ST 4TH ST Courthouse Square 3RD ST 2. Use Density to Support Transit S E ST

In a TOD, the densest residential development should be clos- SMART Station Site est to the transit station. Denser housing will attract the kind 1ST ST

of residents that tend to use transit more often, and placing this SONOMA AVE kind of housing near the station will encourage greater transit

SANTA ROSA AVE ridership. The conundrum of transit planning is that successful W 3RD ST OLIVE ST transit attracts higher density development, and higher density development enables successful transit. This is why the plan- DUTTON AVE ners of transit corridors such as the Dumbarton Rail Corridor

SEBASTOPOL RD BOYD ST review development scenarios for station sites as part of the HIGHWAY 12 planning process for the transit line. Density supports transit. Diagram of a proposed commuter rail station in Santa Rosa showing existing development within a half-mile0 radius,500 which1,000 Fee representst roughly a ten-minute walk, from the station. Specific Plan Area The planning principle for proximity of higher density residential is that the terminal should be located at the center of a five- to ten-minute walking radius to fairly dense development, which means about a quarter- to a half-mile radius.

Denser housing near the station will also provide additional support for shops and stores and increase the likelihood of successful retail. Retail uses succeed because there is support, and William Hezmalhach Architects Pedestrians enjoying the mixed use options provided by a A design for a TOD with examples of mixed use neighbor- transit-oriented street. hood with lively, safe and exciting streets.

City of Newark | Area Two Concept Plan CHAPTER TWO: PRINCIPLES OF TRANSIT-ORIENTED DEVELOPMENT support is calculated by “counting rooftops.” In other words, the more existing residential units there are in a given area, the Connecting the Streets better the likelihood that retail shops will succeed. Neighborhoods that are designed with multiple routes provide an abundance of choice In determining the types of residential development, and for accessing the surrounding street net- the type and amount of retail development, project planners work, thereby dispersing traffic and reduc- should analyze market feasibility. Getting the mix and inten- ing congestion. Connector streets, residen- sity of development correct is highly important to the success tial streets and narrow residential lanes con- of the neighborhood. nect through the neighborhood, providing multiple routes to schools, parks and open space. Many streets connect to transit and 3. Encourage all Modes of Transportation retail areas so that residents can access these services on foot, by bike or by vehicle. In a transit-oriented development, streets should be designed An example of a neighborhood designed for the automobile, with little thought given to creating pedestrian connectivity. for all users, including pedestrians, bicyclists, transit and vehicles. Connectivity to transit should be maximized within the neighborhood and in the surrounding context. Pedestrians in particular should feel welcome, and streetscape planning should include safe intersection design and “universal design” of sidewalks and transit stops to accommodate the young, old and physically impaired. Attractive streetscape design and active ground floor uses will also encourage walking.

The new neighborhood should have a fine-grained network of streets, with short, well-connected blocks. This type of street network will disperse traffic, encourage walking and bicycling, stimulate visual interest and allow the creation of quiet and intimate thoroughfares. Roadway space should be allocated and traffic signals timed for the convenience of walkers and Bicycle racks on buses allow riders to link transportation A pedestrian and bicycle friendly neighborhod design cyclists. Traffic should be calmed, with roads designed to modes and encourage ridership. with short and well connected blocks.

10 CHAPTER TWO: PRINCIPLES OF TRANSIT-ORIENTED DEVELOPMENT City of Newark | Area Two Concept Plan limit speed to 30 miles per hour on major streets and 20 miles per hour on smaller streets. Clearly marked bicycle lanes and Parking Best Practices routes connected to a citywide or regional bicycle network will encourage bicycling. Clean, well-designed transit stations and One of the key goals of tran- shelters will attract new users to transit. sit-oriented development is to encourage people to walk or use transit rather than drive. In 4. Manage Parking Effectively light of this, designing appropo- riate parking facilities is key to Too much land used for parking can increase development achieving sucessful TODs. Pedestrian friendly and aesthetically pleasing parking area located to the rear costs, and poorly designed parking facilities makes walking of a residential development. difficult and unattractive. In recent years many communities Parking should not be allowed have developed innovative strategies to provide the appropri- to dominate the landscape. ate amount of parking that accommodates needs efficiently, Parking lots should be locat- including Redwood City and Pasadena. ed behind or inside structures. They should also be planned When considering design, parking lots should be located to encourage sharing of park- behind or inside structures, not along street frontages. Parking ing between uses and designed should be provided with a limited number of curb cuts inter- to be pedestrian friendly, envi- Parking should be located in the center of a block and visually de-empha- ronmentally sustainable and rupting the sidewalk. Projects should ensure convenient and sized from the street, as shown in this Redwood City parking structure. abundant bicycle parking. aesthetically pleasing.

When considering the amount of parking, planners and munic- ipalities should avoid overprovision of parking. This can be done by encouraging the sharing of parking between uses such as office and residential parking: when office use is highest residential use is low. “Unbundling” parking allows developers to sell parking spaces separately to residents, thereby allowing Parking lots should be located behind buildings to allow buildings to front savings for home purchasers with one or no vehicles. Projects directly onto streets. This allows for more interesting and intimate pedes- should be allowed to provide tandem parking solutions or car trian environments. lifts for multi-family housing.

City of Newark | Area Two Concept Plan CHAPTER TWO: PRINCIPLES OF TRANSIT-ORIENTED DEVELOPMENT 11 5. Build a Place, not a Project Creating Places As noted in Ten Principles for Development around Transit, pub- Another benefit of creating a lished by the Urban Land Institute, new transit in a neighbor- transit-oriented development hood presents an opportunity for a full-fledged transit-centered is the opportunity to devel- community, with attendant economic and cultural benefits. op a new public space asso- To emphasize this, the station area should become a place that cieted with the transit sta- people inside and outside the neighborhood identify with. tion area. The area around a transit station should be A new public square has the potential to create community identity and be a public gathering space for the whole community. The transit station and surrounding area should be designed to designed to create an acive create an activity center that surrounds the station on all sides. center that encourages public The resulting public space should have a high quality design use and helps to define and that is inviting and usable. Experience tells us that a success- communicate the character ful public space is easy to navigate while inviting users to sit and identity of the commu- and visit. It is frequently contained on all sides with attractive nity. buildings that create walls for the public “room”. It is in har- mony with the elements – attractive protection from sun and wind. It also has “people attractors” such as good shops and TOD neighborhoods should relate to the surrounding context to encourage cafes, water fountains and public art. people to make memorable connections to the place.

In order for a TOD to achieve an identity as a place, consideration should also be given to how the new neighborhood con- nects to surrounding area. Connections to natural resources such as open spaces and views of surrounding hills or water bodies will create memorable connections. The surrounding built context should be considered as well, particularly the historic character of a community.

New public spaces should be designed to communicate Transit amenities should be well designed to meet the the identity of the neighborhood. needs of transit riders and should be inviting and usable.

12 CHAPTER TWO: PRINCIPLES OF TRANSIT-ORIENTED DEVELOPMENT City of Newark | Area Two Concept Plan 6. Ensure Community Involvement

Coliseum College Prep Academy and Roots International Academy Effective Community PLEASE COME AND Martin Luther King Jr. SAN LEANDROWORKSHOP STREET E Planning for TOD should reflect the existing community’s LOCATION Branch Library SHARE YOUR IDEAS! Lockwood Participation 66TH AVENUCarter Gilmore Elementary School INTERNATI The 66th Avenue Streetscape Project is Sports Complex needs and values. To ensure this, involvement should come ONAL BOULEVARD a community opportunity to improve Community participation is the appearance and safety of this busy Lion Creek Crossings ENBERGER early in the process to inform the plan and build support for EG street. The success of the beautiﬁ cation H 66TH AVENUE Coliseum/Airport Bart and safety efforts depends on your a key component of planning projects. The community engagement process should be open involvement. Come and help the City identify the right approach to design for a new transit-oriented improvements that will affect your and transparent. neighborhood. Two alternatives have been developed for your review and development to ensure that input. the plan reflects the commu- Outreach and education of the community on the benefits STREETSCAPE nity’s needs and values. The and costs of new development focused on transit is important. th WORKSHOP community process needs to Local examples of similar development should be presented POTENTIAL66 PROJECT AveWORKSHOP DETAILS (Refreshments Provided) IMPROVEMENTS include outreach and educa- • Improved Access and Safety for and reviewed by the community. In the end, the focus of the Date: Tuesday, February 12, 2008 CITY OF OAKLAND Pedestrians tion to ensure that the com- • Trafﬁ c Calming Time: 6:30 - 8:30 pm FOR MORE INFORMATION involvement process should be on desired outcomes and on • Street Furniture & Street Trees Contact: Hui Wang, Project Manager • Wider and better-designed sidewalks Location: Lion Creek Crossings City of Oakland, CEDA Redevelopment munity can make informed ways to achieve consensus. • Improved Street Lighting Community Room 250 Frank Ogawa Plaza, Suite 5313 • Improved Connection Across R/R 6865 Leona Creek Drive Oakland CA, 94612 suggestions and decisions. Tracks to San Leandro Street Oakland, CA 94612 (see map) Telephone: 510-238-7693

An example of outreach for a public workshop.

Community members participating in a a community work- Community members presenting their ideas at a public shop to discuss potential alternatives for a plan. meeting.

City of Newark | Area Two Concept Plan CHAPTER TWO: PRINCIPLES OF TRANSIT-ORIENTED DEVELOPMENT 13 14 CHAPTER TWO: PRINCIPLES OF TRANSIT-ORIENTED DEVELOPMENT City of Newark | Area Two Concept Plan CHAPTER THREE: SITE AND CONTEXT

The Newark Area Two Plan Area is a unique site. Historically, it has contained a number of different land uses, many of which are a result of the Plan Area’s location near San Francisco Bay. This chapter includes an overview of the location, key characteristics and existing conditions for Area Two. A list of references containing additional information may be found in the Appendix.

The first people to inhabit the eastern shore of San Francisco Bay were the Ohlone. Among other activities, native peoples gathered salt along the bay. The roots of modern Newark begin around 1850, when maritime landings along the Bay appeared. Most of the land in Newark was used in dairy and other agricultural production. Area Two was originally home to storage facilities for many of the agricultural goods produced nearby and was also a major center of salt production in the Bay Area.

City of Newark | Area Two Concept Plan In the late 1800s, development in Newark was transformed by Beginnings of Newark the presence of the South Pacific Coast Railroad that traveled from Dumbarton Point to Santa Cruz. In the 1870s a station Newark began as a center for was constructed and subsequently shops built up around the agricultural production and railroad near Thornton Avenue and Sycamore Street, form- has always been linked to ing Newark’s economic center. The first crossing of San the production of salt, which Francisco Bay was the Dumbarton Cutoff train bridge built is produced by the bayfront by the Southern Pacific Railroad around 1910. This railroad salt ponds. The introduc- line bisected Area Two and is the alignment for the planned tion of the railroad in the Parade in Old Town. Dumbarton Rail Project. The bridge carried freight trains late 1880’s, with Newark as from 1910 to 1982. the connecction point across the Bay, stimulated the city’s For almost a century Area Two has been a site for chemical economy which grew around and industrial production, including production of pesticides the railroad station. The and synthetic rubber. During World War II, Newark experi- existance of the railroad also enced great expansion. At that time, several chemical compa- helped to solidified the city’s nies located to Area Two; other companies already operating role as an industrial center within Area Two expanded. However, industrial chemical within the region. 1912 Timetable of the Dumbarton Rail Line. operations were largely phased out by the 1990s, leaving the Concept Plan Area mostly vacant and underutilized.

Old Town today, Newark at the intersection of Thorton Avenue and Sycamore Street.

16 CHAPTER THREE: SITE AND CONTEXT City of Newark | Area Two Concept Plan T H E C I T Y O F N E W A R K A R EA T W O C ON C E P T P LA N

B S T H E C I T Y O F N E W A R K r S y T H E C I T Y O F N E W A R K i e c d q S t am T H E Ce I T Y O F N E W A R K g u il Yew C o v e o k r A R EA T W O C ON C E P T P LA N p ia e A R EA T W O C ON C E P T P LA N LAND OWNERSHIP A C o C t St A R EA Ts W O C ON C E P T P LA N t i in v t e r e Av a et Plan Area (233 acres) J D uns M SW ar r B S shl r S yc an id e a B ds a q S t m e C R Sy l E g u il Yew o r S d c v n L e o k r B id e a d l p ia C e S q SLAND OWNEt RSHIP m R A u o m S r y 1. Cargill: 20.0 acres e g u i ew C g o C t S c l Y o n s t i v e o k i t t e a i re d i c in d q S m p a C n v t LAND OWNERSHIP A S a S u S t e e g u i w C o C t S t L r e v l Ye o s s s v A o k i i t a t t t e r Existing Land Uses and Ownership J e 2. n w N t s i e FMC: 9.7 acres v e D n a t Plan Areae (233 acres) h A u p C r v LAND OWNERSHIP M e A U ay ar S r SW C S a t sh u o t t J se I M la t s D n nd i a t Plan Area (233 acres) u t s A i M h SW G L m Rd l E n 3. FMC: 14.7 acreasr r v n L sh l d l t e lan g 1. D P u a s R r u o m v ds Ca argill: 20.0 acres ny e h ng e A R l E a u di a t c t d n L g m g n e d u l ho a J S u S s R u o m A a F r S L D n 1. Cargill: 20.0 acres g PlanM Area (233 acres) e W S s t s t u 4. n i FMC: 17.2 acres i t C w N 2. FMC: 9.7c acres M t SW d o r C he t a an S u S l U y r S r L R t a u sh S s l t s t C S I a M l T t t an t 2. FMC: 9.7 acres ew N t l G d A a h 3. h h t n L m s U y FMC: 14.7S acres o t l R 5. a u S D P a s l E FMC: 8.1 acres u d I M r g P u y e n t t E n an u h d L G A t g m g l h L m o u o t ho F r R u m 3. FMC: 14.7 acres l 1. n W A a W S o Cargill: 20.0 acres e g D P u a k 4. FMC: 17.2 acres s M i C g y e A p S r t in t n L h o C ga m u l d c o rg v S l R t a 6. l t C S n Cargill: 46.9 uacres h F r e M A a W I S i a T t a S u S 4. M i e a P l h t l L FMC: 17.2 acres C t n S r o C l 5. FMC: 8.1 acres t U a l S r o s t s t p o a r P u l R t a I E n w The Plan Area includes 233 acres of land that has contained C Sw 2. FMC: 9.7a acres t N t t y o o t e T l a w p S n W h h t t n k y 5. FMC: 8.1 acres 7. Ashland: 10.S 3 acres o e M S l L t A p S U a S r u D u P t r v E n 6. Cargill: 46.-9 acres e e S M l t I M t I a o N o t S a P il t k n W C U a l r t p o G A r L A p S 3. A t w S I a h a L m v FMC: 14.7 acres y S 6. S l t 2 w p Cargill: 46.9 acres I e i M a e h t M a D Pl a s 8. FMC: 2.0 acres P l 7. Ashland: 10.3 acres W D St g l t u U a l r / R e y e o e - n I p a N E S a u h w a C g m y p S g M a w s A l t u S ho F r 7. Ashland: 10.3 acres e S l t 1 H t 2 L m h A a D t e a t W S - 8. FMC: 2.0 acres 4. E FMC: 17.2 acres n / R W M i e C N S e e various industrial, manufacturing, chemical processing and salt C v l o E r t 9. n o C SSH: 4.3 acres A t S i l 2 c u A c s l h Don Edwardst L er 1 Hu S l t Ra L m C S t a 8. FMC: 2.0 acres W t E n / R e k p u e l o T t 9. E i i t v n l SSH: 4.3 acres I o n ct u A h t n s l Don EdwardsS Ju r L s er u c S o t 1 H t a L m 5. D k S t p u FMC: 8.1 acres S i t 10. E n e r t I o t n t r P u SSH: 2.0 acres l o o r n 9. SSH: 4.3 acres i v n p t S Ju D E s t c u A c y r S S t o t Don Edwards L er 10. SSH: 2.0 acu res S p t o o k t p u M le y p t n W i t t S A t k p S I o SSan Fnranciscr o s M e le A p S Ju - L t D S A. San Francisco S v r A e 10. SSH: 2.0 acres r t o t 6. t A. - A v v S l t 11. Cargill: 46.9 acres t A e M Torian: 10.0 acres p t s y 11. l I i a production facilities since the early twentieth century. Much lep Torian: 10.0 acresS E. el a E. lls P l M 4 e S A t 4 U a l r San Francisco e e W e W p o A. - v v / D. v I a t A / D. A w A a 11. Torian: 10.0 acres E. lls Bay n rin ya w p S 4 Bay 12. Torian: 32.0 eacres ri a M 12. Torian: 32.0 acres ve W 7. Ashland: 10.3 acres a 1 e nd D S l t / 1 t D. in A nd Ma - e 12. Torian: 32.0 acres Bay ar a N S C 1 nd 13. Cargill (USD): 16 acres M A S a C. G. H. 2 t 13. Cargill (USD): 16 acres M H. t h t 8. c E 13. Cargill (USD): 16 acres C.FMC: 2.0 acres National WildGlif.e / du R e W H. F. e n E of the upland, which is located at the transition from the bay C. G. qu s t ct E A t l National Wildlife uc E du hy 1 e H t a L m National Wildlife d F. n tc F. e r ue n u e E n e o q q -H p v l y A t 9. SSH: 4.3 acres Refuge A t 4. tch i u A n ch e hy e He r c r c S At rea of Concern (201 ar cres) c Don Edwards i L e u e t B. s k t H r u - p e p h H e i t t Refuge 4. tc - p I o n RHeefuge r 4. ch S Ju r s Area of Concern (201 acres) i t C D B. s 10. SSH: 2.0 acres He r r t o S t Area of Concern (201 acres) e i t p A. Cargill: 62.2 acres B. s y p t S to the built environment, is vacant or undeveloped. The area’s C e M le S A t t San Francisco e C A. - v A. Cargill: 62.2 acres B. USD: 0.7 acres 11. Torian: 10.0 acres t ls A 3. t 8. E. el A. Cargill: 62.2 acres ct I. 4 e W B. USD: 0.7 acres du / D. Av 3. 8. C. WorldPac: 12.0 acres ue BayW J. in ct I. 12. Torian: 32.0 acres q C r u A 1 da d y il e n C. WorldPac: 12.0 acres B. USD: 0.7 acres e W h l a u J. Thornton Bus. Ctr: 22.0 acres c 10. o n industrial operations were largely phased out by the mid-1990s, q D. C 3. 8. t M A e w t i t H 2. r y l e - I. l c h h a o 13. 7. D. Thornton Bus. Ctr: 22.0 acres c 10. u n Cargill (USD): 16 acrec s H. t S t d t 5. l w FMC: 2.2 acres e G. e E. t n C. C. WorldPac: 12.0 acres W t -H 2. ue r H e J. C h 7. q a C 9. t c m t c E t S E. FMC: 2.2 acres et n 5. A l n National Wildlife u t d i F. H C e e n e yF. FMC: 3.5 acres g l K. 9. h li l qu 13. o D. Thornton Bus. Ctr:nm 22.0 acres tc t A 10. n y A t F. FMC: 3.5 acres ig eK. l 1.w t ch e with only Cargill’s salt production facilities remaining today. 13. l -H G. Enterprise Drive LLC2: 2. .1 acres ai r et r A ch 7. R a h-H p l 1. t t 5. S Rl e1f1.uge 4. tc E. FMC: 2.2 aci res e n n e r G. Enterprise Drive LLC: 2.1 acres a t C H H He. Gallade Enterprises LLC: 2.4 acres o i R Area of Concern (r20t 1 acres)9. 1. B. s n 11. m a t e H. Gallade Enterprises LLC: 2.4 acres F. FMCr:to3.5 acres 1. gn I. Jones Hamilton Co: 6.1 acres mb K. ba 13. li Du C I. Jones Hamilton Co: 6.1 acres m A t t The primary landowners within the Plan Area include Cargill Du il J1.. Jones Hamilton Co: 9.3 acres A. Cargill: 62.2 acres ot C G. Enterprise Drive LLC: 2.1 acres a t Salt Cab J. Jones Hamilton Co: 9.3 acres R ot C H b K. Jones Hamilton Co: 5.7 acres 11. i Salt n Ca c H. Gallade Enterprises LLC: 2.4 acres H o B. USD: 0.7 acres k rt Production o 8. K. Jones Hamilton Co: 5.7 acres i 1. 3. ac L. Wildlife Refuge: 30.4 acres r t b k 6. y c I. o u Production S d L. Wildlife Refuge: 30.4 acres I. Jones Hamilton Co: 6.1 acres m r WorldPac: 12.0 acres W C. t e Salt, FMC, Torian, Ashland and SHH. See Figure 3-1 for own- u y M. Fries: 14.3 acres Facilities u J. 6. q C D S A t 12. i M. Fries: 14.3 acres t y l e Facilities C h l J. Jones Hamilton Co: 9.3 acres t o 12. D. Thornton Bus. Ctr: 22.0 acres bo tc 10. n Salt Ca He w t H - 2. r Concept Plan Area ch 7. a t S K. Jones Hamilton Co: 5.7 acres i t E. FMC: 2.2 acres c e n 5. l t ership of parcels in the Plan Area. In additionConcept the Plan PlanArea Area k 1. H e C o 9. AreProductiona Two m t L. Wildlife Refuge: 30.4 acres 1. r n FMC: 3.5 acres y g Area Two F. 6. li Ave K. S 13. A rrin ve Railroads t Pe M. Fries: 14.3 acres n A Facilities il 1. Railroads erri G. Enterprise Drive LLC: 2.1 acres a is occupied by several rights-of-way and easements, which are P City Boundary 12. n R 11. City Boundary H. Gallade Enterprises LLC: 2.4 acres Lr.to 1. Concept Plan Area L. Proposed Rail Station ba I. Jones Hamilton Co: 6.1 acres m M. described below. Proposed Rail Station 1. Du Area Two M. Ct J. Jones Hamilton Co: 9.3 acres bot ve Salt Ca in A H K. Jones Hamilton Co: 5.7 acres rr i Railroads Pe c k Production o L. Wildlife Refuge: 30.4 acres r City Boundary 6. y L. S M. Fries: 14.3 acres Facilities t Proposed Rail Station 12. The remainder of Area Two (the Area of Concern) consists of 0 500 1,000 Feet M. 0 500 1,000 Feet Concept Plan Area a variety of uses. To the north of the Dumbarton Rail right-of- Note: total acreages for Plan Area and Area of Concern include rights-of way. 1. Note: total acreages for Plan Area and Area of Concern includeFigure rights-of way. 3-1: Land ownership within the Concept Plan area. Area Two ve rin A way are two existing light industrial business parks, WorldPac Railroads Per City Boundary L. and the Thornton Business Center. Also to the north is open Proposed Rail Station 0 500 1,000 Feet M. space that is part of the Don Edwards San Francisco Bay Note: total acreages for Plan Area and Area of Concern include rights-of way. National Wildlife Refuge, and other vacant or unused lands. To the east of Willow in the Area of Concern are several vacant parcels and a site being used for truck operations. At the 0 500 1,000 Feet southern border of Area Two are vacant lands including about Note: total acreages for Plan Area and Area of Concern include rights-of way. 26 acres dedicated to a wetlands mitigation project, which will remain as open space. Finally, along the western edge of the site are salt production facilities which will remain in use by Cargill.

Vacant lands at the end of Enterprise Drive. Thornton Business Center.

City of Newark | Area Two Concept Plan CHAPTER THREE: SITE AND CONTEXT 17 Area of Existing Physical Site Features Concern e s Av d Tho rnton This section presents information on the geology, soils, air in rnton Tho A W ve quality, biological resources, utility easements and environ- g Don Edwards n Planned i mentally impacted sites within Area Two. The information l San Francisco i Train Station Aleppo Dr a B a y v presented here summarizes findings made for the 1999 Area e N a t i o n a l

P Wildlife Refuge Two Specific Plan. Because this information has not been veri- rprise Dr Ente fied or updated it is useful for conceptual site planning only.

t le uc i Will qued M chy A .25 Het o Wind Patterns and Air Quality ch- w St Het nt me Newark is within the San Francisco Air Basin, a broad, shal- il Align on Ra art low air basin ringed by hills with several sheltered valleys mb Du S a l t P r o d u c t i o n ile located along the perimeter. Prevailing winds on the site are .5 M F a c i l i t i e s ve ral A from the northwest and west. These winds often carry pol- Cent Concept Plan lutants released by automobiles and factories located upwind, Area Boundary ve in A Perr especially during the summer months. Inversions also affect the Plan Area more than 90 percent of the time, both in the morning and afternoon.

Geology and Soils Figure 3-2: 1/4-mile and 1/2-mile walking radii from the proposed train station and the direction of the local prevailing winds. Area Two is a relatively flat, low-lying alluvial fan. Average topographical elevations on the site range from roughly 4 to 15 feet above Mean Sea Level Datum (MSL). There are two bed- rock outcroppings located on the western portion of the site.

Subsurface soil investigations conducted for the Thornton Business Center at the north end of Area Two revealed that the first five to thirteen feet below the surface is moderately expan- sive fill soil, including a layer of clay that is known as Bay Mud.

The Dumbarton Rail Corridor right-of-way The Dumbarton Rail Corridor right-of-way owned by San Mateo County transit. owned by San Mateo County transit. 18 CHAPTER THREE: SITE AND CONTEXT City of Newark | Area Two Concept Plan Below the Bay Mud or sand are layers of medium-stiff to hard Area of silt and clay, as well as medium dense to dense sand and gravel, Concern Ave which are estimated to descend to a depth of 50 feet. Tho rnton rnton Tho Ave Don Edwards The Plan Area is not located within an Earthquake Safety Zone Planned San Francisco Train Station B a y Aleppo Dr for active earthquake faults, so there is little likelihood of actual N a t i o n a l ground rupture on the site during a seismic event. However, Wildlife Refuge rprise Dr the Silver Creek Fault, a minor but potentially active fault, is Ente approximately a half mile east of the Plan Area. t le uc i Will qued M chy A .25 Het o ch- w St Het nt Rights-of-Way and Easements me il Align on Ra Several rights-of-way and easements for transportation infra- art mb Du S a l t structure and utilities exist within the Plan Area that will affect P r o d u c t i o n ile .5 M F a c i l i t i e s ve the type and arrangement of development that can occur. See ral A Cent Figure 3-3. These include the following: Concept Plan USD Area Boundary Force Mains ve in A Perr ♦ The Hetch-Hetchy Aqueduct, a 110-foot-wide right-of-

way owned by the San Francisco Public Utilities Commis- F1-Canal sion, which runs east/west through the northern portion PG&E High-Voltage of the Concept Plan Area. All crossings or other uses are Power Lines

tightly controlled by the San Francisco Water Department. Figure 3-3: Area Two easements and location of utilities. The aqueduct runs underground through the east half of the Plan Area, transitioning to the surface after crossing to the north side of the rail right-of-way. ♦ The East Bay Dischargers Authority (EDBA) Two 36- ♦ The Dumbarton Rail Corridor (DRC) also runs in an inch sanitary force mains serving the City of Newark run east/west direction through the northern portion of the through the Concept Plan Area, within an easement un- Concept Plan Area, almost parallel to the Hetch-Hetchy der the Hickory street right-of-way. Special conditions on Aqueduct. The DRC is a 100-foot wide right-of-way construction within this easement may need to be imposed owned by San Mateo County Transit. to preserve the integrity of the mains.

City of Newark | Area Two Concept Plan CHAPTER THREE: SITE AND CONTEXT 19 ♦ The Alameda County Flood Control F-1 Canal, which Environmentally Impacted Sites flows from east to west along the Plan Area’s southerly As one might expect from an industrial area that has been boundary, provides the main drainage outlet to San Fran- the site of chemical production for 50 years or more, existing cisco Bay for a large part of the City of Newark. A tribu- environmental contamination must be factored into the future tary of this canal, the F-6 Ditch runs north along the west redevelopment of Area Two. One form of contamination is a side of Willow Street for a distance of about 1,300 feet. dissolved chemical plume that exists in the upper groundwater beneath portions of the Plan Area. The San Francisco Bay ♦ PG&E Transmission Lines traverse the Concept Plan Regional Water Quality Control Board (RWQCB) is directing Area from north to south. PG&E maintains strict con- mitigation of this groundwater plume in collaboration with the trol regarding use of a 60-foot-wide easement underneath Alameda County Water District (ACWD). Additional investi- the lines and surrounding the towers that support the high gation will be necessary to determine what impact, if any, the voltage lines. Buildings may not be constructed within this plume could have on the redevelopment of Area Two. right-of-way, and the ground may not be filled if it reduces the existing line’s clearance to less than 32 feet. A representative of PG&E reports that it should be possible to either Preliminary review indicates that there are three additional relocate or raise the existing transmission lines and towers sites that are impacted by hazardous substances. Those sites if they conflict with future development plans, although are shown as “Development Limited Areas” in Figure 3-4. All the associated costs would likely be high. of these sites are either undergoing cleanup or have already undergone cleanup in compliance with the RWQCB or the Department of Toxic Substances Control. Biological Resources Newark Area Two contains a variety of habitats that are home to numerous different species of plants and animals. These Given these environmental constraints, redevelopment of the habitats appear to include upland grassland, unvegetated areas, Concept Plan Area will best be accomplished by providing seasonally ponded areas, seasonal wetlands, tidal salt marsh, and for land uses that would either create enough value to absorb constructed channels. The majority of the land in the Concept remediation costs or be compatible with existing site condi- PG&E high voltage tower within Area Two. Plan Area is composed of developed or highly altered terrain. tions. Investigations are ongoing regarding whether certain More research needs to be done to determine precise locations elements of the Concept Plan are feasible in light of these chal- of habitat within the Concept Plan Area and the impact of lenges and constraints, including existing land use restrictions. development on those areas. Engineering and institutional controls (such as deed restrictions) may be necessary for certain areas of the Concept Plan Area to adequately protect human health and the environment form any residual hazardous substances.

20 CHAPTER THREE: SITE AND CONTEXT City of Newark | Area Two Concept Plan Infrastructure and Utilities Area of Concern Ave Wastewater Tho rnton rnton Tho The Union Sanitary District (USD) provides wastewater servic- Ave Don Edwards es for the cities of Newark, Fremont and Union City. USD’s Planned San Francisco Train Station B a y Aleppo Dr Alvarado treatment plant is located in Union City. Because N a t i o n a l the Concept Plan Area is mostly located within the existing Wildlife Refuge rprise Dr Ente service area, and because it was already zoned for development Development Limited Areas in 1989, the treatment and disposal impacts resulting from t le uc i Will qued M development of the Plan Area based on the 1999 Area Two chy A .25 Het o ch- w St Het nt Specific Plan have been incorporated into long term expansion me il Align plans for the District. on Ra art mb Du S a l t P r o d u c t i o n ile .5 M F a c i l i t i e s ve Two existing gravity sanitary collection lines, on Enterprise ral A Cent and Willow, currently serve the Concept Plan Area. It is Concept Plan Area Boundary ve in A unknown how much excess capacity for future development is Perr available in either the Willow or the Enterprise sewer lines. If a new off-site sewer line is required, it will be the responsibility of the project sponsor to provide it.

Water Service Figure 3-4: Development Limited Areas. The Alameda County Water District provides potable water service for the Cities of Newark, Fremont and Union City. Stormwater Drainage The entire Plan Area is located within the District’s boundar- The 100-year flood elevation throughout the project vicin- ies, so all properties are eligible for service at this time. The ity is 8 feet National Geodetic Vertical Datum (NGVD). water district has three basic water sources: the State Water According to the Federal Emergency Management Agency Project, local groundwater aquifers, and the San Francisco Flood Insurance Rate Map for the City of Newark, some of the Public Utilities Commission, which operates the Hetch Hetchy Concept Plan Area located west of the Hickory alignment cur- Aqueduct. Because these supplies are currently considered to rently lies within a Flood Hazard Zone, which indicates ground be adequate, proposed plans are not expected to have con- elevations are lower than 8 NGVD. The Newark General Plan straints placed on them. and Municipal Code require that the finished floor of all new

City of Newark | Area Two Concept Plan CHAPTER THREE: SITE AND CONTEXT 21 Area of Existing ground elevations within most of the Plan Area are Concern high enough to drain against the 100-year flood elevation, but Ave Tho rnton detention storage for stormwater will likely have to be provid- rnton Tho Ave ed for the lower areas now located within the flood zone. This Don Edwards Planned San Francisco storage could be provided within relatively small ponds that Train Station Aleppo Dr B a y serve individual properties, or in one or more large, area-wide N a t i o n a l Wildlife Refuge ponds. Alternatively, the land could be filled enough to raise it rprise Dr Ente out of the flood zone to provide positive drainage.

t le uc i Will qued M chy A .25 Het o Power and Communications ch- w St Het nt me Existing power lines extend throughout the Plan Area. These il Align on Ra lines have been installed to serve the mix of industrial uses that art mb Du S a l t first located in this area of Newark. As a result, the existing P r o d u c t i o n ile .5 M F a c i l i t i e s ve ral A power grid consists of 21 kilovolt lines that have sufficient Cent Concept Plan capacity to serve all likely development scenarios. Area Boundary ve in A Perr

11.75’ above For natural gas supply, it is likely that new development within sea level (NGVD) the Concept Plan Area will be served by an existing low pres- sure two-inch line that runs along Willow Street from Central 8’ above sea level (NGVD) to just south of Enterprise.

Figure 3-5: Elevations of land within the Concept Plan Area. Communications within the Plan Area are currently served by residential buildings in the Area Two vicinity must have a overhead AT&T lines on Enterprise Drive and underground minimum elevation of 11.75 NGVD. For commercial build- lines on Central Avenue. In addition, fiber-optic cable exists ings, finished floors must only be higher than the designated along part of Willow Avenue. AT&T anticipates that it will flood elevation of 8 NGVD. However, the Municipal Code continue to expand its fiber-optic network on an as-needed contains provisions that permit construction of floors below basis, so it can be anticipated that full “high end” phone and this elevation if they meet standards for waterproofing. data services should be available to meet the needs of future development within the Plan Area.

22 CHAPTER THREE: SITE AND CONTEXT City of Newark | Area Two Concept Plan T H E C I T Y O F N E W A R K A R EA T W O C ON C E P T P LA N T H E C I T Y O F N E W A R K T H E C I T Y O F N E W A R K Bridgepointe Dr Sycamore St Sequoia Ct A R EA T W O C ON C E P T P LA N Legend A R EA T W OSilk CtC ONYewC CtE P T P LA N Low Density Residential

Jarvis Ave Low Density Residential Marshlands Rd SunsetWalnut St Ave Bridgepointe Dr Sycamore St Sequoia Ct Bridgepointe Dr Sycamore St Legend Silk Ct Elm St Sequoia Ct Medium Density Residential Locust St There are no existing Comcast facilities within or immediately Legend Yew Ct Silk Ct Yew Ct Medium Density Residential Low Density Residential Nutmeg Ct

Low Density Residential Jarvis Ave Mayhews Landing Rd High Density Residential Gum Ct Laurel St Ash St Low Density Residential Marshlands Rd SunsetWalnut St Ave S Jarvis Ave adjacent to the Plan Area. However, according to a company Fir Ct Elm St Walnut St High Density Residential Low Density Residential Mahogany Pl Locust St Marshlands Rd SunsetWalnut St Ave Medium Density Residential U I Elm St Neighborhood Commercial Medium Density Residential Thornton Ave Poplar St Locust St Medium Density Residential D Nutmeg Ct MayhewsPapaya Landing St Rd Willow St Neighborhood Commercial A Gum Ct Maple St Ash St representative, Comcast is very interestedHigh Density in Residential providing new S Laurel St Medium DensityR Residential S U Nutmeg Ct Public-Institutional High Density Residential Mahogany Pl I Fir Ct Walnut St U Chestnut St Mayhews Landing Rd I E D High Density Residential Gum Ct Laurel St Ash St Walnut St Research and Development L Elm St Neighborhood Commercial Thornton Ave A Poplar St D I Hickory St Locust St Willow St S development in this part of Newark with a full range of enter- Papaya StR Fir Ct Research & Development Neighborhood Commercial Don EdwardsHighA Density Residential Maple St Mahogany Pl Walnut St M S - Juniper Ave U R U E I Public-Institutional Public-Institutional San Francisco 2 I L Neighborhood Commercial / Chestnut St Aleppo Dr Thornton Ave E D I C. D Poplar St 1 Walnut St Willow St Limited Industrial Research and Development L Elm St Wells Ave tainment and communications services. I A M B. Papaya St BayNeighborhood CommercialHickory St Locust St A Maple St Research & Development Don Edwards R - F. S Limited Industrial M 4 Mandarin Ave R - / Juniper Ave U Public-Institutional E A. E. I Public-Institutional 2 1 Chestnut St General Industrial San Francisco L Enterprise Ct National Wildlife/ Aleppo Dr E I D. D C. Walnut St Limited Industrial Research1 and Development Wells Ave L Elm St General Industrial M B. A Bay Refuge 4. I Hickory St Locust St - F. R Open Space Limited IndustrialResearch & Development 4 Mandarin Ave Don Edwards / M A. E. - Juniper Ave 1 E General Industrial Agricultural / Resource Production National Wildlife D. Enterprise Ct Public-Institutional San Francisco 2 L Agricultural / / Aleppo Dr General Industrial Refuge I C. 4. 3. 8. G. 1 Open SpaceResource Production Limited Industrial B. Wells Ave Open Space H. Bay M Policies and Regulations Concerning Area Two 10. Willow St Central Ct - F. Proposed Station Agricultural / Resource Production Limited Industrial 4 Mandarin Ave 2. / Agricultural / 5. 7. A. E. 8. 1 Resource Production ProposedGeneral Station Industrial 3. G. 9. National Wildlife D. Enterprise Ct Open Space H. I. Concept Plan Area General Industrial 1. 10. Willow St Central Ct Proposed Station 2. Refuge 4. RailroOpenadTra cSpaceks 5. 7. 11. Newark General Plan Area of Concern Proposed Station Ohlone9. Concept Plan Area Agricultural / Resource1. Production College I. Plan aAgriculturalrea / RailroadTracks 11. Cabot Ct City Boundary Campus Hickory St 3. 8. G. The General Plan, which was adoptedArea in of Concern1992, foresaw “lim- Resource Production Salt Ohlone Open Space H. Transition Zone College 10. Willow St Central Ct Plan area Production 6. Proposed Station Cabot Ct City Boundary Campus Hickory St 2. ited” and “general” industrial and open space use for Area Salt Facilities 12. 5. 7. City Boundary Proposed Station 9. Transition Zone Production 6. Concept Plan Area 1. I. Two. The “limited” industrial designation, which was assigned Facilities 12. City Boundary RailroadTracks 11. Area of Concern Perrin Ave Ohlone to parcels immediately west of Willow Street and to lands College Plan area Perrin Ave Cabot Ct City Boundary Campus Hickory St immediately southwest of the intersection of Willow Street Salt Transition Zone Production 6. and Thornton Avenue, is intended to serve as a transition zone 12. City Boundary Facilities between the residential areas to the northeast and the pre-exist-

0 500 1,000 Feet ing industrial uses that were operating within the Plan Area at Perrin Ave Figure 3-6: 1999 Area Two Specific Plan land use concept. the time of the General Plan’s adoption. 0 500 1,000 Feet 1999 SPECIFIC PLAN LAND USE 1999 SPECIFIC PLAN LAND USE

1999 Area Two Specific Plan Zoning Code The 1999 Area Two Specific Plan anticipated the construction As a result of the changes proposed by the 1999 Specific Plan, of a campus of Ohlone Community College on 56 acres owned the majority of the parcels within the Plan Area are cur- 0 500 1,000 Feet by Cargill in the center of the Plan Area. The Plan called for rently zoned for high technology uses, as shown in Figure 3-7. 1999 SPECIFIC PLAN LAND USE high-density, multi-level office and R&D buildings that would Additionally, some of the low-lying areas along the bay front be similar in nature to the now-vacant 1.5-millon square-foot are part of the San Francisco Bay National Wildlife Refuge and Pacific Research Center, which is located one mile north of are zoned as open space. the site near the intersection of Thornton Ave and SR 84. Land uses envisioned under the 1999 Specific Plan are shown in Figure 3-6.

City of Newark | Area Two Concept Plan CHAPTER THREE: SITE AND CONTEXT 23 THE CITY OF NEWARK AREA TWO CONCEPT PLAN

Bridgepointe Dr Sycamore St Sequoia Ct Silk Ct Yew Ct The San Francisco Bay Conservation and Development Very Low Density Residential

Jarvis Ave Sunset Ave Marshlands Rd Walnut St Commission Low Density Residential Elm St Locust St

Nutmeg Ct Medium Density Residential Mayhews Landing Rd The San Francisco Bay Conservation and Development Gum Ct Laurel St Ash St

Fir Ct S Mahogany Pl Walnut St High Density Residential U Commission (BCDC) regulates development on land that is I Thornton Ave D Poplar St Willow St

A Papaya St Maple St Community Commercial R within 100 feet of the shoreline. The location of the shoreline E S Chestnut St L U I I Walnut St Elm St M D Hickory St Locust St General Commercial - Don Edwards A 2 is defined by BCDC and has historic considerations. BCDC’s / R Juniper Ave San Francisco 1 E Aleppo Dr L High Technology I Wells Ave Bay M primary goals include minimizing filling of the bay and pro- -

4 Mandarin Ave

Limited Manufacturing 1 National Wildlife tectingEnterprise Ct uses that must be located along the shoreline such as Refuge General Manufacturing environmental preserves, water-related recreation, as well as Agricultural

Willow St port and water-relatedCentral Ct industry. Open Space

Proposed Station

Railroad Tracks MTC’s Transit-Oriented Development Policy

Concept Plan Area Cabot Ct Salt Hickory St In order to guarantee transit-supportive development around Area of Concern Production Facilities terminal stations, the Metropolitan Transportation Commission City Boundary has instituted a TOD Policy which sets thresholds for residen-

Perrin Ave tial and employment densities around new transit stations. This policy is part of the Regional Transit Expansion Program which was adopted as Resolution 3434 in 2001 and updated in 2006.

0 500 1,000 Feet Resolution 3434 includes funding for 19 rail and bus transit Figure 3-7: Area Two zoning designations as of 2007. Source: City of Newark GIS information. ZONING expansion projects including the Dumbarton Rail Corridor (DRC). In order to qualify for funding under Resolution 3434, the DRC must meet an average density of 2,200 housing units within a half-mile radius of all stations along the rail line. The current number of housing units within the half-mile radius of the proposed Newark Station is around 750 units, meaning that a minimum of 1,450 units would need to be built for the Newark station area to help maintain the average threshold.

24 CHAPTER THREE: SITE AND CONTEXT City of Newark | Area Two Concept Plan ARDENWOOD BLVD

Newark Public Services TUPELO ST

FREMONT BLVD «¬84

Newark School District was formed in 1965. The dis- NEWARK BLVD

PSO PADRE PKWY trict boundaries encompass about eight square miles. The FREMONT MOWRY AVE

school closest to Area Two is the August Schilling School, BLACOW RD located approximately ¾-mile away at 36901 Spruce Street 3 ¨¦§880 «¬84 in Old Town Newark. This school is a K-6 school serving OLD T TOWN HO CHERRY ST RN TO 1 2 approximately 540 students. Schilling School was identified N E E AV V A Y R

W as a California Distinguished School in 1995. The Newark CITY OF O M D V L NEWARK B School District had an enrollment of around 6,800 students in N O 4 S N E V

2006/2007. Enrollment overall has been dropping over the last T BOYCE RD S several years. Area Two

S a n F The Newark Center of Health Sciences and Technology, part r a n c B i s a c of the Ohlone Community College District, is about three and y o a half miles to the southwest of Area Two, on Cherry Street. 1 Schilling Elementary School Located in a new “green” campus designed to receive a LEED 2 Newark Fire Station #1 Platinum rating, programs offered here include career pro- 3 Newark Police Department

Ohlone College grams in health and biotechnology. The campus can accom- 4 0 0.25 0.5 Miles modate 3,500 students. Figure 3-8: Newark public services in Area Two.

The Newark Police Department is located at 37101 Newark Boulevard, about 2.5 miles from the Concept Plan Area. There are currently 42 uniformed officers. The Department does periodic surveys to determine response times to high priority calls (crimes underway) and they have found that the average response times for these calls in Newark is two minutes or less.

The Newark Fire Department maintains three fire stations, Ohlone College. with the closest station, Fire Station #1, at 7550 Thornton

City of Newark | Area Two Concept Plan CHAPTER THREE: SITE AND CONTEXT 25 Avenue, less than 1 mile from Area Two. The Newark Fire Area Two Surroundings Department provides services to residents in a 13 square mile area and responds to an average of 3,100 calls each year. The Area Two is surrounded by Department includes three engine companies; one squad/ a variety of different land hazardous materials unit; and 51 full-time personnel. A fire- uses. Single and multi-fam- fighter/paramedic is on each of the Department’s four response ily residences make up the units. majority of the buildings to the northeast of Area Two. Single story industrial build- Multi-family housing near Area Two. Surrounding Context ings predominate to the east and southeast of Area The Plan Area is surrounded by a number of light indus- Two, including a number of trial and R&D areas, residential neighborhoods and significant vacant industrial buildings. regional open spaces. Directly to the west of Area Two are salt production Immediate Context facilities owned and oper- To the northeast of Area Two, existing residential develop- ated by Cargill Salt; beyond ment predominates. Recent residential development, includ- which and to the north of ing medium-density and single-family residential units, has the Area Two exists the Don Old Town Newark. occurred on the southeast corner of Thornton Avenue and Edwards National Wildlife Willow Street and in areas located farther from the eastern Refuge. boundary of the Plan Area. These newer residential developments tend to be more inward-facing and are located on streets that typically end in cul-de-sacs. Some of the newer housing developments are gated. Older residential neighborhoods are found on the blocks surrounding Enterprise Drive and its extension Wells Avenue due east of the Concept Plan Area. These consist primarily of modest one- to two-story single-family houses located on well-connected residential streets. Industrial/residential interface east of Plan Area.

26 CHAPTER THREE: SITE AND CONTEXT City of Newark | Area Two Concept Plan To the east and southeast of Area Two, industrial and light- industrial uses predominate. The blocks surrounding Central Avenue are built at a much larger scale than the residential neighborhoods described above. Blocks are much longer between cross streets and buildings are set back from the sidewalk. These characteristics make for a less pedestrian-friendly environment than the nearby residential neighborhoods. The existing light industrial buildings are generally simple single story buildings of tilt-up concrete construction. Many of these buildings are currently vacant.

To the west of Area Two, Cargill Salt owns and will continue to operate its salt production facilities. The salt is harvested and then refined at a plant that is located on Central Avenue.

To the north of Area Two, and partially included within its boundary, is the Don Edwards San Francisco Bay National Wildlife Refuge, as shown in Figure 3-9. The Refuge consists Figure 3-9: Regional parks surrounding Newark Area Two. of roughly 30,000 acres of open bay, salt pond, salt marsh, mudflat, vernal pool, and upland habitats located throughout South San Francisco Bay. It is also part of the Pacific Flyway, a major migratory route for North American birds. The Refuge is managed by the U.S. Fish and Wildlife Service and has an interpretive center located one mile northwest of Area Two.

Additionally, the San Francisco Bay Trail (Bay Trail), a 240- mile network of bicycle and pedestrian trails, runs along the edges of Area Two. Though the trail currently has a number of gaps, it is ultimately envisioned as a continuous and fully Coyote Hills Regional Park. Don Edwards San Francisco Bay National Wildlife interconnected 400-mile trail network that will encircle San Reguge. Francisco Bay and San Pablo Bay. In the immediate vicin-

City of Newark | Area Two Concept Plan CHAPTER THREE: SITE AND CONTEXT 27 ity, existing Bay Trail is developed on top of levees inside the northern part of Area Two, north of the railroad tracks. Plans call for it to be extended along Thornton Avenue, run down Willow Street and continue along Central Avenue to the east.

Broader Surroundings As noted above, a number of significant open spaces offering opportunities for passive and active recreation are located near Salt production facilities adjacent to Area Two. Area Two. Along with the Don Edwards San Francisco Bay National Wildlife Refuge, significant parks and open spaces located nearby include the system of Newark city parks (the closest to the Concept Plan Area is the 6-acre Jerry Raber Ash Street Park, about ¾-mile to the east), the Coyote Hills Regional Park operated by the East Bay Regional Park District, approximately 2 miles to the north, and several large regional parks in the Diablo Mountain Range, approximately 8 miles to the east.

Very important to the context of Concept Plan Area is the Newark Old Town. proximity to Newark Old Town, approximately 1 mile east on Thornton Avenue. The origins of the City of Newark are located in Old Town. The commercial core of Old Town is considered to be the blocks of Thornton Avenue centered on Sycamore Street between Ash Street and Cherry Street. This retail node includes a Starbucks coffee shop, a small supermar- ket and several restaurants. Much private and public invest- ment has been made in Old Town in the past several years, highlighted by the handsome new Newark Fire Station #1. A recent planning project is underway to determine alternatives The Pacific Research Center, north of Area Two in Newark. for new infill housing in Old Town.

28 CHAPTER THREE: SITE AND CONTEXT City of Newark | Area Two Concept Plan 1½ miles to the north of Area Two is a 1.4-million square foot Class A office and research and development campus originally

. built for Sun Microsystems. Now called the Pacific Research y w k P e 84 r d Center, it is currently being advertised for lease. a P

o e s Lake Blvd. a

880

Newark Blvd. Ave.

Jarvis . d v Cedar Blvd. Existing Transportation Facilities l B y tewa

v A Haley St. 84 Roadway Network Don Edwards San Francisco Bay n o t n r National Wildlife o h Major regional vehicular routes accessible to Area Two are Refuge T

Interstate 880 and the Dumbarton Bridge (State Route 84). Spruce St. Local access to the site from the north is provided via Thornton

ve. Avenue, and from the east via Central Avenue, Enterprise Ave. A il Thornton o Bay Tra Sa isc Sycamore St. n Franc Central Carter Avenue, and Thornton Avenue. The existing roadway net- Ave. Enterprise Dr. Wells Ave.

Willow St. Hickory St. . i

Enterprise Dr l work serving the Plan Area is illustrated in Figure 3-10. b

t . Cherry St. A review of existing calculations of traffic in Newark shows Ave. some local street intersections currently have higher levels of Mowry traffic than others, including Cedar Boulevard at Thornton AREA TWO Avenue, Cherry Street at Thornton Avenue, Cherry Street at Central Avenue and Cherry Street at Mowry Avenue. More analysis will need to be done to accurately assess Area Two N Figure 3-10: Transportation network in Newark. Not to Scale traffic impacts.

An external impact on local traffic that has been reported Newark Area II is the long wait time required to allow freight trains to pass PROJECT LOCATION AND along the Union Pacific rail corridor. This affects traffic on STUDY INTERSECTIONS November 2007 FIGURE 1 the two major east-west routes to the site: Thornton Avenue SJ07-964 and Central Avenue.

Highway 84 looking west toward the Dumbarton Bridge.

City of Newark | Area Two Concept Plan CHAPTER THREE: SITE AND CONTEXT 29 Existing Transit Facilities AC Transit Route 218 is the only bus transit route that provides service near the Plan Area, with a bus stop located on Thornton Avenue near Willow Street. Other major transit facilities in the general vicinity of the Plan Area include several of AC Transit’s Transbay bus routes, including DB, DB1 and DB3, Bay Area Rapid Transit (BART), which serves the Fremont and Union City stations, as well as the Altamont Commuter Express (ACE) and Amtrak’s Capital Corridor train, both of which stop at the same station in Fremont Centerville. San Francisco Bay Trail.

Pedestrian and Bicycle Facilities Economic Context Pedestrian facilities include sidewalks, crosswalks and pedestrian signals at intersections. The existing streets near Area As part of the Concept Plan process, a demographic and mar- Two generally have pedestrian facilities, although no sidewalks ket study was done. This study looked at demand for housing, are provided on either side of Willow Street. retail and other uses for Area Two. It also analyzed the types of households that would be likely to locate within the Plan Bicycle facilities can be described as Class I off-street dedicated Area. Conclusions are summarized below. bike paths, Class II on-street lanes for bicyclists adjacent to vehicle lanes and Class III bike routes signed for bicycles Residential but not separated from vehicle lanes. Near Area Two, there Newark’s primary competitive advantage for residential devel- are Class III bike routes on Willow Street, Enterprise Drive, opment is its central location within easy commute distance Central Avenue and on Thornton Avenue west of Willow. of many of the Bay Area’s largest jobs centers. By forecasting The closest Class II lanes are on Cherry Street, about one and a demand for housing based on projected job growth in the top half miles from Area Two. The Bay Trail, described above, is four places where Newark residents work, ample demand for a Class I bike path touching Area Two at the north end. a variety of housing types is anticipated, both in the short-term and long-term.

30 CHAPTER THREE: SITE AND CONTEXT City of Newark | Area Two Concept Plan The five Dumbarton Stations in San Mateo County already Industrial accommodate a significant number of office jobs, with about Although industrial activities may be appropriate current land 16,000 jobs within walking distance of proposed stations in the uses for Area Two, they do not maximize the potential for year 2000. The large number of jobs at other stations along revitalization of the site, and will not serve as a catalyst for the corridor enhances the desirability of the Newark station as reinvestment from property owners or investors. a place to live. Retail In addition, the Newark station area is uniquely positioned to An analysis of the market for retail potential indicates that attract households with jobs in the South Bay who are seeking Newark residents are traveling outside of city boundaries the quality of life benefits associated with transit and transit- to shop at certain types of retail establishments, including oriented development. The addition of transit to the existing large floor plate stores such as furniture and home centers. cross-bay connection of the Dumbarton Bridge will enhance However, as mentioned above, the location of Area Two one- the desirability of housing to those who would otherwise seek and-a half miles from Highway 84 and 2½ miles from Interstate higher priced housing in San Mateo County. 80 make it difficult to attract most types of large format retail without subsidies. However, if the future type, intensity and Newark’s residential market has traditionally focused on single mix of uses were suitable, the Plan Area could support a mod- family housing, but it is expected to experience demand for all est amount of local-serving retail, such as cafes, dry cleaners and types of housing in the short- and medium-term. Although newsstands. The addition of new households in this location demand for residential in all markets is currently flat or declin- could also help generate demand for larger format convenience ing, future demand will be driven by regional job growth. retail in the downtown area.

Office Performing Arts Although office and R&D uses are showing signs of recovery, There is significant community support for a new perform- there is no short-term potential for new office development in ing arts center that could serve as a venue for theatre and live southern Alameda County, primarily because vacancy rates music performances in Newark, possibly within Area Two. are so high. In addition, Area Two is not likely to become a A performing arts center would bring a number of benefits to candidate for Class A office space, given that it is not visible Newark. A study conducted by Americans for the Arts, “Arts from freeways.

City of Newark | Area Two Concept Plan CHAPTER THREE: SITE AND CONTEXT 31 and Economic Prosperity III” lists the many benefits of incor- More research and economic analysis should be undertaken to porating nonprofit arts and culture enterprises into the fabric determine the feasibility of a performing arts center in Newark of the community, including: labor-intensive dollars earned by as well as the desirability of locating it at Area Two or another arts organizations tend to stay in the community; event-related location. spending by patrons support jobs and provides revenue to cities; and increased opportunities to attract visitors from outside Economic Feasibility Summary the community. However, it is less clear whether Area Two Area Two offers Newark a major opportunity to leverage represents the best location for such a facility, given that it is new development to achieve a number of important citywide located at the periphery rather than in the center of the city. goals, such as creating a performing arts center, enhancing the The two primary arguments that can be made in favor of siting city’s identity and establishing the necessary customer base to the facility within Area Two include the following: support an array of new shops and services. However, before development can proceed within Area Two, a number of signif- ♦ The performing arts center would have the potential to icant challenges related to development need to be understood contribute significantly to the identity of the new neigh- when making decisions about potential land use changes. In borhood. particular, cleanup and infrastructure costs will pose significant ♦ If constructed close to the commuter rail station, a per- challenges to development. If these costs are to be absorbed by forming arts center would be more easily accessible, both private investors, the intensity and mix of land uses allowed to motorists and non-motorists alike. There is an opportu- should generate enough land value to make clean up and devel- nity for the commuter rail station to share parking with the opment financially worthwhile for those investors. Although performing arts center because these two facilities experi- infrastructure and cleanup costs are not yet calculated, market ence peak demand at different times of the day and week. evidence suggests that residential development at a range of densities will yield the highest return and therefore represents the most suitable type of development for the Plan Area from the standpoint of economic feasibility.

32 CHAPTER THREE: SITE AND CONTEXT City of Newark | Area Two Concept Plan CHAPTER FOUR: CONCEPT PLAN

The proposal for a Dumbarton Rail Corridor station within Area Two of Newark presents a great opportunity to plan for a new lively TOD community. Chapter One discussed the process of developing this Concept Plan, which was undertaken as a collaborative effort between the City and landowners adjacent to the proposed Newark Station of the Dumbarton Rail Corridor. It should be remembered that significant additional analysis will need to be done before a final development concept can be agreed upon for Area Two. However, this plan is a carefully conceived first step that reflects knowledge of a broad range of issues and site conditions, described in Chapter Three. It also incorporates significant input from Area Two landowners, City staff and members of the community.

City of Newark | Area Two Concept Plan

Plan Description Retail stores and shops are concentrated near the transit station in mixed-use buildings with apartments above. A handsome The Concept Plan is a direct outcome of the ideas generated public plaza is nestled next to the transit station and surround- and comments received at a community workshop regarding ed by mixed-use development, including up to 65,000 square Area Two on January 30, 2008. At that workshop, three con- feet of retail. This plaza will serve as the active heart of the ceptual development alternatives were presented and discussed; neighborhood, filled with benches, water features and public subsequently, a refined alternative was developed. This refined art. Mixed-use development with office use and larger floor alternative, shown in Figure 4-1, is a medium density transit- plate retail could be accommodated on the east side of Willow oriented residential neighborhood. Street in the Area of Concern. The plan also accommodates a Performing Arts Center or other community facility close In this plan, higher densities of residential development are to the transit station. The location shown for the Performing located within a ¼-mile radius of the rail station, including Arts Center can reasonably be used for mixed-use housing higher-density residential buildings with ground-floor retail over retail if it is decided to locate this community facility development. Medium-density residential buildings, such as elsewhere. townhomes, are located within a half-mile of the station, and small lot single-family dwellings are located farthest from the station in the southern portion of the Plan Area. A variety of development types and densities can be accommodated within this plan, with a total number of housing units ranging from 1,500 to 2,500 units. Further study is required to determine the impacts of this range of residential units in order to set a precise density limit.

Blocks are generally short and pedestrian-oriented, offering pedestrians many different routes to walk through the neighborhood. Most streets are roughly equal in width, with the exception of a curving boulevard connecting the two major vehicular routes into the site, Central Avenue and Enterprise Drive. This is envisioned as a prominent green boulevard with An example of a performing arts center similiar to the facility A well-loved public plaza similiar to that suggested in the Plan. suggested in the Plan. a wide landscaped median.

City of Newark | Area Two Concept Plan CHAPTER FOUR: CONCEPT PLAN 35 Green open space is concentrated in a three-acre central park in the middle of the Plan Area and a smaller bay overlook in the western portion of the site. Additional pocket parks will also be provided at individual blocks throughout the development. The major open spaces are linked by two pedestrian-oriented green spines, including a north-south spine connecting the Central Park to the transit station and an east-west spine connecting Willow Street with the bay overlook park. A new Bay Trail connection is proposed extending from the bay overlook A successful interface of residential and regional open space. to the north and south along the entire west side of the site. At the north end of the Bay Trail, a future connection across

Figure 4-2: Open Space, active open space the railroad tracks to connect with the existing Bay Trail is in dark green and passive open space in light planned. green. A successful interface of residential and regional open space.

Development Types

The development types envisioned for the Concept Plan Area include mixed-use housing over retail, multi-family apartments An example of mixed use housing over retail. and condominiums, townhome and attached single-family residences and small-lot single-family detached houses. These development types are described and illustrated below.

Mixed-Use There are two areas shown as Mixed-Use. The block closest to the transit station is envisioned as mixed use with housing and retail. This type of housing usually has a density range of 30-60 units per acre, with retail shops fronting garages on the ground floor. The height of this type of development is 3 to 5 stories Figure 4-3: Mixed use housing over retail. Santana Row, a local example of mixed uses, including retail and residential.

36 CHAPTER FOUR: CONCEPT PLAN City of Newark | Area Two Concept Plan tall. This is a traditional pattern of housing that evokes a “main street” environment. Another similar housing and retail mixed use development type has multi-level parking structures in the center of a block, surrounded by residential buildings with ground floor retail on the perimeter of the block, thereby hiding the parking structure. The density can range up to 100 units per acre for 4- and 5-story buildings.

Another area shown as Mixed-Use is the area to the west of Willow Street, which is envisioned as mostly office and retail mixed use. This area neighbors industrial uses to the southwest and this type of commercial mixed use will help to provide a transition from light industrial to the transit oriented development in the Concept Plan Area. Office and retail mixed use development, Davis, CA.

Multi-Family Apartments and Condominiums This type of housing usually has housing units facing the street, with common open spaces in the interior of the block. Garages are on the ground floor and at the rear. With an average height of 3 to 5 stories, this housing type achieves a density between 30 and 60 units per acre. It is important for this type of development to have housing units and entry lobbies facing the street on the ground level to provide a friendlier pedestrian environment than parking garages.

An example of multi-family apartments and condominiums. Figure 4-4: Multi-family apartments and condominiums.

City of Newark | Area Two Concept Plan CHAPTER FOUR: CONCEPT PLAN 37 Townhome, Live/Work and Attached Single-Family This is a medium density housing type, with a range of 12-24 units per acre. Townhomes are attached at the sides and they usually have a separate garage for each unit tucked under the living spaces. A pedestrian-friendly development type includes a small ground floor office or workshop space facing the sidewalk with living space above. Variations on this development type include stacked townhomes which have two levels of townhomes in four stories, and “big house” housing which contains two to six units in single structures which have the

An example of townhomes found locally in the Richmond Transit Village. architectural presence of stately residences. Figure 4-5: Townhome, live/work and attached single-family. Compact Small Lot Single-Family There are many creative examples of housing that allows for high quality single-family homes to be built on smaller lots at densities ranging from eight to 16 units to the acre. Some examples include alley-loaded houses which have a garage in the rear along the alley and front doors with porches oriented toward the street. Other design elements that are popular in compact single-family residential neighborhoods include zero lot line or zipper houses that have side yards instead of back- An example of small lot single-family homes. yards and “granny flat” units above garages.

Figure 4-6: Compact small lot single-family.

An example of a “granny flat” unit above a garage.

38 CHAPTER FOUR: CONCEPT PLAN City of Newark | Area Two Concept Plan Connections

This section considers connections for the Concept Plan Area at three different scales: within the site, to the city of Newark and to the region.

Inside the Concept Plan Area Within the Plan Area, streets are well-connected to each other and there are multiple paths available to pedestrians, bicyclists and vehicles. This street pattern is efficient for vehicles because it has the potential to spread traffic throughout an area. In addition, emergency vehicles have multiple possible access routes.

Major streets will have bicycle lanes next to vehicle lanes. These An example of a bicycle route where bicycles share the lane with traffic. streets include Willow Street and the major street which curves to connect Enterprise Drive to Central Avenue within the site. Minor streets will be noted as bicycle routes where bicycles share lanes with traffic. The Bay Trail will be a separated Class I bike/pedestrian trail along the west side of the site.

In addition to streets as pedestrian connections, there will be internal pedestrian connections leading from the transit station to the Central Park in the center of the site.

Connecting to Newark The major existing connections to the City of Newark are Willow Street to Thornton Avenue leading north, and three streets leading east: Thornton Avenue leading to Old Town, Enterprise Drive and Central Avenue. Analysis of existing

City of Newark | Area Two Concept Plan CHAPTER FOUR: CONCEPT PLAN 39 Trip Generation Comparison: Comparison between 1999 EIR Results and Area II Update 60% opment in the Concept Plan is higher than the office development anticipated by the 1999 Specific Plan over an entire day,

40% the peak hour traffic is lower. In the case of 1,500- to 2,000- unit development, peak hour traffic volumes are significantly lower. This is because of the nature of vehicle trips generated 20% by residential development which are more evenly distributed throughout the day, as opposed to office development, which 0% is concentrated in the morning and afternoon peaks. Percent Change Percent -20% Bicycles will connect to the city primarily by using the existing Central Avenue or Enterprise Drive bicycle routes. As part of -40% future planning, consideration should be given to a review of bicycle facilities in Newark. Better bicycle connections should

-60% be considered on Thornton Avenue leading east and connecting AM Peak Hour PM Peak Hour Daily to Old Town. Additionally, a bicycle path alongside the rail Alternative 1 (1,500 d.u.): -55% -34% -3% Alternative 2 (2,000 d.u.): -47% -24% 14% right-of-way should be considered as far as Sycamore Street. Alternative 3 (2,500 d.u.): -40% -15% 31% Alternative 4 (3,000 d.u.): -33% -6% 48% Pedestrian connections to Newark will probably be best made Figure 4-7: Trip generation comparison; comparison between 1999 EIRTime results Period and Area Two update. on Thornton Avenue leading east. Review of intersections along this path should be made to ensure crosswalks and corner and projected traffic needs to be done in the next phase to ramps. identify recommended mitigations and to ensure vehicular traffic continues to flow smoothly. However, it is interesting Increased transit connections should be made when Area Two to compare traffic generated by the development approved in development occurs. Extending the path of existing Route 218 the 1999 Specific Plan with traffic generated by this Concept into the site or adding additional routes to connect to the tran- Plan. See Figure 4-7 for a comparison of differing levels of sit station should be considered. Consideration should also be traffic generated by 1,500, 2,000, 2,500 and 3,000 residential given to reroute one of the AC Transit transbay bus routes DB, units. Although the traffic generated by new residential devel- DB1 and DB3 to connect with the transit station. Currently the nearest bus stop for these transbay bus routes is located at the Ardenwood Park and Ride, about 3 miles to the north.

40 CHAPTER FOUR: CONCEPT PLAN City of Newark | Area Two Concept Plan Regional Connections The primary vehicular regional connections in Newark are State Route 84 to the east and west and Interstate 880 connecting north and south.

State Route 84 is a four-lane east-west freeway that provides a regional connection over the San Francisco Bay to the Peninsula. There is a direct connection with Interstate 880 via a full-access interchange at the northeastern border of the City of Newark. The peak direction of travel is westbound during the AM peak-hour and eastbound during the PM peak-hour, indicating that the peninsula is an employment destination for the east bay.

In the vicinity of Newark, Interstate 880 includes four lanes Additional transit routes and connections should be included in Area Two. in each direction, including a high occupancy vehicle lane. Full-access interchanges are provided at Thornton Avenue and Mowry Avenue. The peak direction of travel is southbound during the AM peak and northbound during the PM peak.

The major transportation improvement proposed in this area, and one of the significant improvements for the entire south bay, is the proposed Dumbarton Rail Corridor project. Providing additional transportation options will be critical to alleviating future vehicular impacts for the entire region. The rail corridor is anticipated to be operational by 2012.

City of Newark | Area Two Concept Plan CHAPTER FOUR: CONCEPT PLAN 41 42 CHAPTER FOUR: CONCEPT PLAN City of Newark | Area Two Concept Plan CHAPTER FIVE: IMPLEMENTATION

This Concept Plan is an early step in the overall process of achieving the vision for Area Two. The Concept Plan as presented here will need changes to existing General Plan land use designations as well as zoning designations. By California law, these changes will require environmental review. As part of this review analysis will be done to ensure that development impacts are considered. Some of the major impacts to be studied will include traffic, environmental health of these industrial sites, and needed infrastructure improvements.

City of Newark | Area Two Concept Plan Specific Plan Update Ensure Economic Feasibility. The next step in the progress of the Concept Plan will be Economic analysis will need to be done to ensure that the to update the 1999 Area Two Specific Plan and EIR. In the development proposals are feasible. Coordination with the process of updating the Specific Plan the following areas will desires and goals of the landowners in the Concept Plan Area need to be included or studied further. Note that the topics will ensure that the Specific Plan Update is practical and moves described below are not listed in chronological order. The forward. As part of the economic analysis, methods will need Specific Plan Update will be an iterative process, which will to be identified for funding necessary physical improvements, include the analysis and refinement of multiple alternatives, including infrastructure improvements as well as desired ameni- leading to the final preferred plan. ties such as a performing arts center or new parks and plazas. The Specific Plan Update should develop a phasing plan that Refine the Vision, Goals and Policies for the Project will enable the site to be developed over time. This Concept Plan, approved by the Planning Commission and City Council, is a step forward to setting the vision for Area Potential sources of funds that will allow for the realization of Two. Further public input following the review of impacts the Concept Plan include the following: of this project on the City of Newark will solidify the vision ♦ City of Newark Redevelopment Agency and enable the drafting of goals and policies to govern develop- ♦ SamTrans/Dumbarton Rail Corridor ment. ♦ City of Newark ♦ Area Two landowners Distill the Land Use Plan ♦ Metropolitan Transportation Commission The land use plan contained in this Concept Plan will need to ♦ be reviewed in light of economic feasibility and impacts. Actual Development Impact Fees density ranges are yet to be settled and will be determined after reviewing impacts on infrastructure, public services and road- Residential development can also contribute to City operating way circulation. The land use plan will include standards for costs as the area develops. Some financing mechanisms that can intensity of residential and other uses, building heights and be employed to assist with operational expenses include: setbacks. It will recommend changes to existing General Plan ♦ Community facilities districts land use designations and zoning designations. ♦ Private maintenance of streets

44 CHAPTER FIVE: IMPLEMENTATION City of Newark | Area Two Concept Plan Infrastructure Improvements Design Standards and Guidelines After the buildout density of the project is determined, impacts These will outline the design both of the public realm, includ- will need to be identified, particularly on infrastructure. ing streets and open space, as well as the private realm, includ- Necessary improvements to sewer and water supply needs to ing private development. Guidelines need to be flexible and be identified. Stormwater drainage in particular will need to feasible. be addressed. Floor elevations of residential buildings must be above 11.75 NGDV minimum, as discussed in Chapter Three. Environmental Impact Review Commercial floor elevations must be a minimum of 8 NGDV. Additional potential impacts will need to be closely considered Stormwater retention basins should be created or the site as part of the Environmental Impact Report for the project. should be graded to ensure effective drainage to the Bay. These could include air quality, noise, biological resources, geology and soils, hazardous materials, and public services such Circulation and Parking Impacts as police, fire and schools. The impact of projected Area Two development on traffic will need to be identified through a complete traffic analysis. Additional Steps Mitigations, if any, will be identified. Traffic models should incorporate transit and pedestrian oriented development fac- Additional steps parallel to the Specific Plan Update process tors. Parking should be analyzed and appropriate parking should be considered to move the vision forward. The City of standards for this type of development proposed. Newark should work with property owners to reach consensus on the next steps and to discuss and resolve development issues The installation of the bicycle and pedestrian path along the relevant to their specific properties. Bay should be coordinated with ABAG’s Bay Trail Project, including a potential bike/ped overcrossing of rail tracks. City staff should continue to work with planners for the Dumbarton Rail Corridor to ensure the transit station is coor- The design and layout of the street network should be coordi- dinated with the proposed concept plan. nated with planning for the Dumbarton Rail Corridor, particularly around the transit station. Community groups such as performing arts players should be approached in the early stages of the Specific Plan process, both for input into alternatives and to galvanize citizen support for chosen concepts.

City of Newark | Area Two Concept Plan CHAPTER FIVE: IMPLEMENTATION 45 Resources and Credits

 City of Newark, History of Newark http://www.ci.newark.ca.us/live/history.html, accessed on December 19, 2007.

 Characteristics of Rail and Ferry Station Area Residents in the San Francisco Bay Area: Evidence fro the 2000 Bay Area Travel Survey, published by MTC (2006).  City of Newark, 1999, Area Two Specific Plan Draft En- vironmental Impact Report, page 85.

 Federal Emergency Management Agency, 1998, Flood In- surance Rate Map for City of Newark, Community Panel Number 060009 0005 E, Effective Date, September 30, 1988.

 Siegman, Patrick, “How to Make Transit-Oriented De- velopment Work”, Planning Magazine, May 2003.

 Dunphy, Robert, Deborah Myerson, and Michael Paw- lukiewicz. Ten Principles for Successful Development around Transit. Washington, D.C.: ULI-the Urban Land Institute, 2003.

 “Arts and Economic Prosperity III”. Washington, D.C.: Americans for the Arts, 2007.

 Don Edwards San Francisco Bay National Wildlife Ref- uge: www.fws.gov/desfbay

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