2 POLICY FRAMEWORK

The Policy Framework was created through a three-year long General Plan Congress and public debate and discussion about Oakland's future. It serves as the basis for both public and private decision-making and provides direction for future regulations and investment. The Policy Framework contains two main parts: a description of the "Structure and Identity" of the city, and the Policy Framework itself. The "Structure and Identity" section provides a conceptual map -- the "big picture" -- of how the city functions by identifying the major physical features, such as transportation corridors, locations of industry and commerce, and established neighborhoods and activity centers. These features that make up "how the city works" are then addressed in the Policy Framework in five focus areas: Industry and Commerce, Transportation and Transit-Oriented Development, Downtown, Waterfront, and Neighborhoods.

Chapter Contents

CITY STRUCTURE AND IDENTITY

OAKLAND SHOWCASES

TRANSIT-ORIENTED DISTRICTS

CORRIDORS

NEIGHBORHOOD ACTIVITY CENTERS

POLICY FRAMEWORK

INDUSTRY AND COMMERCE (Includes the Coliseum Area Showcase)

TRANSPORTATION AND TRANSIT-ORIENTED DEVELOPMENT (Includes the TOD's and Corridors)

DOWNTOWN (Includes the Downtown Showcase)

WATERFRONT (Includes the Seaport and Airport/Gateway Showcases, Mixed Use Waterfront)

NEIGHBORHOODS (Includes the Neighborhood Activity Centers)

CITY STRUCTURE AND IDENTITY: OAKLAND'S PLACES

⬚ figure The Downtown Showcase

⬚ figure Grand Lake Activity Center

⬚ figure Transportation-Oriented Mixed Use Development

⬚ figure The Seaport Showcase

People who live, work, shop, learn and visit in Oakland all have their unique image of the city, each based on familiar physical, social, and economic patterns. The city’s transportation system, neighborhoods, natural features, and business districts are the foundations of Oakland’s physical structure and the basis for the pattern of social activity in the City as well. The Land Use and Transportation Elements have diagrammed these activity areas and movement patterns to help explain the structure of the city.

The General Plan Structure Diagram captures that pattern in order to:

• Illustrate major ideas from the Policy Framework with a conceptual map
• Provide a "big picture" of how the city works
• Highlight opportunity areas for economic development to fuel growth
• Recognize activity centers and districts that have strong positive identity at the time of Element adoption
• Highlight those locations where area identity needs to be created or improved
• Create a basis for targeting General Plan implementation strategies to key locations

Four types of features are shown on the City Structure Diagram on the following page, and discussed further in the Policy Framework. They are:

Oakland Showcases

⬚ figure

Oakland's economic engines form a crescent framing the Bay from the Seaport to the Airport, including Downtown, the Waterfront, the Coliseum, and the Hegenberger Road Gateway leading to the Metropolitan Oakland International Airport. The Policy Framework emphasizes the importance of these districts as dynamic areas that can respond to broad trends and market demands, and it supports their continued growth and their regional importance by designating them as Oakland Showcases. In keeping with the identified "target industries" of the Economic Development Strategy, a vision for the progress of each of the Showcases is included in sections of the Policy Framework, as follows:

Industry and Commerce Policy Framework Coliseum Area Showcase

Downtown Policy Framework Downtown Showcase

Waterfront Policy Framework Seaport Showcase

Airport/Gateway Showcase

Mixed Use Waterfront Showcase

⬚ figure

City of Oakland Land Use & Transportation Element

CITY STRUCTURE DIAGRAM

March, 1998

In general, the Element supports growth in industry and commerce, providing the flexibility needed to accommodate evolving trends in retailing, entertainment, manufacturing processes and distribution techniques while also resolving long-standing problems relating to conflicts among different land uses.

Corridors

The Policy Framework envisions a transformation of the City’s commercial corridors. Historically, many of the corridors have had more important commercial and circulation functions than they do today. While some of the city’s corridors remain a vital mix of commercial, housing, and transportation, others are characterized by struggling stores, vacant and dilapidated buildings, safety and image problems, and an absence of pedestrian traffic. These corridors are the target of strategies to concentrate commercial areas into viable “nodes” of activity, rather than lengthy struggling commercial corridors.

The corridors highlighted on the Structure Diagram are those envisioned as mixed-use urban environments with concentrations of commercial and civic uses joined by segments of multifamily housing. This pattern offers several advantages: concentrating business activity to create lively districts where businesses can benefit from proximity to each other, and creating more desirable residential environments. Many of the neighborhood activity centers are located along corridors. The corridors will continue to have important circulation and access functions, and the designation of several of them as transit arterials emphasizes the importance of maintaining a choice of travel modes and locating new residential development in close proximity to transit.

Transformation of long-suffering corridors will likely require significant public support. Near-term investment in catalyst projects will help create desirable corridors, neighborhoods and activity centers. Successful publicly-supported projects will help build market support for renovation and production of housing and commercial buildings.

See also Industry and Commerce Policy Framework, Neighborhoods Policy Framework, Implementation Program

Transit-Oriented Districts

⬚ figure

Neighborhood Activity Centers

⬚ figure

Transit-oriented districts (TODs) are designated to take advantage of the opportunities presented by Oakland's eight BART stations and Eastmont Town Center, which is served by multiple bus lines. Easy pedestrian and transit access to mixed use development characterize these areas. A strong identity is to be created through careful design and mix of activity. Because each location offers unique possibilities, the TODs are discussed individually in the Transportation and Transit-Oriented Development Section.

See also Transportation and Transit-Oriented Development Policy Framework

The richness and variety of the City's neighborhoods are depicted on the Structure Diagram in two ways: by identifying housing areas with neighborhood names and by mapping neighborhood activity centers. Activity centers are the focal point of the community and organizing principle of the plan. These areas have or will have diverse business, civic, and social activities supported and strengthened by surrounding housing, that help to form neighborhoods and reflect the distinct identities of Oakland's communities, and assist in efforts to support community governance.

Activity centers, most of which are located along the city's corridors, are particularly well suited for locating community facilities, small open spaces such as public plazas or tot lots, and housing for seniors and others who appreciate easy access to shops, services, and transportation. Pedestrian amenities and public transit service are important components of activity centers, and many are at bus transfer points where there is service on more than one AC Transit line. Together, the pattern of activity centers helps give structure to the whole city. Singly, each plays a major role in giving identity to its surrounding housing areas.

See also Neighborhood Policy Framework, Land Use and Transportation Plan Diagram, Priority Implementation Program, and Area Views

POLICY FRAMEWORK

The Policy Framework, created by the General Plan Congress through three years of public debate and discussion about Oakland’s future, serves as the cities fundamental basis for both public and private decision-making and provides direction for future regulations and investment. The policy Framework is the guidepost by which development will be analyzed and reviewed for consistency, and it forms the basis of the Zoning Ordinance. The broadest expression of the Policy Framework is the Congress Vision Statement, found in the preamble. Together with the Goals, Objectives, and Policies, which are the heart of the Land Use and Transportation Element, these provide the foundation for the Strategy Diagram, Transportation Diagram, Land Use Diagram, and Implementation Program.

Early conceptual understanding of the city provided the General Plan Congress with an overall framework for the Goals, Objectives, and Policies that follow. The organization of the section into five “policy areas” is intended to assist in “painting a visual picture” of the city and focusing policy attention on the areas of great opportunity or in the greatest need of attention. These five major areas are:

• Industry and Commerce
• Transportation and Transit-Oriented Development
• Downtown
• Waterfront
• Neighborhoods

Policies in these sections are intended to be applied citywide if relevant, unless their language refers to one or more areas specifically.

Industry and Commerce

⬚ figure DeLauer's News Stand in Downtown

⬚ figure Con Agra Industries in Fruitvale

⬚ figure "Pill Hill" Medical Center Area

⬚ figure Port of Oakland

"Envision yourself living in a city with a thriving economy and a broad mix of businesses to meet your daily needs. The city's modern infrastructure and favorable business climate have attracted a number of new companies, bringing revenue and jobs. The industrial areas, built around outstanding port facilities, continue to thrive--with renewed prosperity. Each neighborhood has convenient commercial districts, so residents don't have to travel far to run errands. Larger retail clusters along the freeway offer a wide selection of durable goods, attracting regional consumers to Oakland. And with this added business revenue, the city has been able to expand its services and programs..."

"We need an Economic Development Strategy to provide the basis for development of a coordinated and concentrated public investment strategy to support expansion of the economy."

• Del Davis, General Plan Congress, 1996

Oakland's future depends on an ability to foster and sustain continuous economic development success. Strategies and solutions in this part of the Policy Framework seek to promote the revitalization of the local economy in the near term, ensure economic health and expansion potential for the City on a long term basis, and foster the prominent role that Oakland plays within the economy of the Bay Area and as an international city. The city's potential for future economic expansion is furthered by:

• The presence of an international seaport and airport
• Tremendous investment in transportation infrastructure including public transit and regional freeway corridors
• A strong established industrial presence and room to grow
• Multiple nodes of commercial activity
• A large consumer market base to support retail development
• The downtown high-rise office employment hub
• Sports, entertainment and cultural facilities in the Coliseum Area, Downtown and Mixed Use Waterfront Showcase districts

The city's success in promoting and marketing these assets to residents, businesses and economic investment interests over the next twenty years will determine Oakland's future economic health. The General Plan can play a key role in spotlighting and focussing investment opportunities. The vision for industry and commerce in the city is expressed in the desire to promote or "showcase" key areas of economic success and potential for revitalization, while providing stability to the quilt of neighborhoods which form the fabric of Oakland.

Additionally, Oakland is key to the region's growth. Therefore, the Element calls for greater regional cooperation and economic development efforts in recognition of the the interdependence of cities and suburbs as part of the regional economy. Elimination of the divisive "zero-sum game" of economic development patterns is critical in addressing urban disinvestment.

The City's five Showcase districts, presented in the Policy Framework, represent key geographic target areas for economic expansion and are identified by policies in this and other parts of the Policy Framework. The Waterfront section includes discussions of the Seaport, Airport/Gateway and Mixed Use Showcase districts. The Coliseum Area Showcase district discussed in detail in this section reflects commitments to promote expanded job generation and retail opportunities along

the I-880 corridor, enhance regional entertainment and recreation activities already established in the area, and provide expanded visitor services in this important gateway area while promoting revitalization of key industrial/manufacturing land and facilities.

Industry and Commerce Goals

The goals for industry and commerce reflect the desire to respond to Oakland residents for expanded retail and employment training opportunities, and to investment interests in terms of promoting industrial and commercial land as a vehicle of prosperity. The goals are to:

• Recognize and support industrial and commercial land use as a primary vehicle for the generation of the economic support required for the attainment of the physical, social and community service goals of the Oakland General Plan
• Strengthen and expand Oakland's diverse economic base through land use and transportation decisions
• Maximize Oakland's regional role as a transportation, distribution and communications hub
• Provide increased employment, training, and educational opportunities through land use and transportation decisions
• Ensure that the Oakland community has access to a wide variety of goods and services, meeting daily and long term needs
• Create and maintain a favorable business climate in Oakland

The objectives and policies that follow clarify and guide implementation of the goals. These policies include direction to expand the job base and strengthen Oakland's economy through the citywide economic strategy and marketing plan that targets both industries and places in the city. The Policy Framework has influenced several and is integrated with several concurrent efforts, such as the city's Economic Development Strategy and activities of the Community and Economic Development Agency (CEDA) Area Teams. The Area Teams' identification of Target Areas will help focus city and private sector markets on targeted locations. (See Area Views in Chapter 4.)

Other objectives and policies in this section call for capitalizing on the city's strength as a regional government and employment center through strategic investment in infrastructure and "catalyst projects". Policies also seek to maximize the utility of underutilized industrial buildings and land

through reparcelization, environmental clean up efforts, and exploring reuse for non-traditional activities. Business attraction and retention through the creation of a friendly business atmosphere is called for, as is expansion of the existing commercial base to provide patrons with wider opportunities to purchase goods and services in Oakland. Recognition of the important role that historic preservation, safe neighborhoods, and viable neighborhood commercial centers play in the overall health of the local economy is reflected in policies which call for strengthening neighborhood commercial areas, and minimizing land use compatibility conflicts at the interface between neighborhood and industrial areas.

Industry and Commerce Objectives and Policies

A series of measures for improving Oakland's economic strength is outlined in the Mayor's 1997 Economic Development Strategy for Oakland and is also reflected in this policy framework. Capturing emerging industries such as biotechnology, telecommunications, and computer and multi-media industries is important to Oakland, as are continued efforts to retain jobs for Oakland residents working in employment sectors such as service, retail trade, and manufacturing. In general, the city is striving to attract more jobs in a diverse range of businesses that can capitalize on Oakland's prime location, superior communications infrastructure, multi-modal transportation system and distinctive and attractive neighborhoods.

Objective I/C1

Expand and retain Oakland's job base and economic strength

Policy I/C1.1 Attracting New Business. The City will strive to attract new businesses to Oakland which have potential economic benefits in terms of jobs and/or revenue generation. This effort will be coordinated through a citywide economic development strategy/marketing plan which identifies the City's existing economic base, the assets and constraints for future growth, target industries or activities for future attraction, and geographic areas appropriate for future use and development.

Policy I/C1.2 Retaining Existing Business. Existing businesses and jobs within Oakland which are consistent with the long-range objectives of this Plan should, whenever possible, be retained.

Policy I/C1.3 Supporting Economic Development Expansion Through Public Investment. The public investment strategy of the City should support economic development expansion efforts through such means as identifying target "catalyst projects" for investment which will support the employment or revenue base of the city and providing infrastructure improvements to serve key development locations or projects which are consistent with the goals and objectives of this Plan.

Policy I/C1.4 Investing in Economically Distressed Areas of Oakland. Economic investment, consistent with the City's overall economic strategy, should be encouraged, and, where feasible, should promote viable investment in economically distressed areas of the City.

Policy I/C1.5 Using City-Owned Property to Stimulate Economic Development. City-owned properties should, where feasible, be utilized to stimulate economic development activities or serve as catalysts to such efforts.

Policy I/C1.6 Promoting Downtown as a Regional "Hub". Downtown Oakland should be promoted as a regional "hub" for government, services, high technology, and institutional uses.

Policy I/C1.7 Developing Administrative Policies. City departments should develop and maintain administrative policies and procedures which encourage and facilitate the establishment of new economic development consistent with General Plan goals, objectives, and policies.

Policy I/C1.8 Providing Support Amenities Near Employment Centers. Adequate cultural, social, and support amenities designed to serve the needs of workers in Oakland should be provided within close proximity of employment centers.

Policy I/C1.9 Locating Industrial and Commercial Area Infrastructure. Adequate public infrastructure should be ensured within existing and proposed industrial and commercial areas to retain viable existing uses, improve the marketability of existing vacant or underutilized sites, and encourage future use and development of these areas with activities consistent with the goals of this Plan.

Policy I/C1.10 Coordinating City and Port Economic Development Plans. The City and Port should mutually develop and implement a coordinated plan-of-action to support all airport and port related activities which expand the local or regional employment or revenue base.

Policy I/C1.11 Expanding Job Training Opportunities. The City should expand and coordinate job training opportunities for Oakland residents by supporting programs sponsored by the Oakland Unified School District, local community colleges, the Port of Oakland, and other educational institutions or vocational training establishments.

Objective I/C2

Maximize the usefulness of existing abandoned or underutilized industrial buildings and land

Some older industrial buildings or sites no longer serve businesses efficiently. Efforts by both the City and the private sector are required to rehabilitate and/or modernize these locations so they can contribute to their immediate surroundings and to the community as a whole.

Policy I/C2.1 Pursuing Environmental Clean-Up.

The environmental cleanup of contaminated industrial properties should be actively pursued to attract new users in targeted industrial and commercial areas.

Policy I/C2.2 Reusing Abandoned Buildings.

The reuse of abandoned industrial buildings by non-traditional activities should be encouraged where the uses are consistent with, and will assist in the attainment of, the goals and objectives of all elements of the Plan.

Policy I/C2.3 Providing Vacant or Buildable Sites.

Development in older industrial areas should be encouraged through the provision of an adequate number of vacant or buildable sites designated for future development.

Objective I/C3

Ensure that Oakland is adequately served by a wide variety of commercial uses, appropriately sited to provide for competitive retail merchandising and diversified office uses, as well as personal and professional services

Oakland has a rich and diverse range of neighborhood commercial centers, which serve the local needs of residents, business, and visitors. Some commercial centers are in need of assistance, and some neighborhoods have no viable commercial activity at all. Community- and region-serving retail businesses have been under-represented in Oakland. The Element envisions an increase in shopping opportunities so that Oakland can capture an appropriate share of spending dollars and provide convenient, quality shopping for residents and workers. (See also Neighborhood Policies)

Policy I/C3.1 Locating Commercial Business.

Commercial uses, which serve long term retail needs of regional consumers and which primarily offer durable goods, should be located in areas adjacent to the I-880 freeway or at locations visible or amenable to high volumes of vehicular traffic, and accessible by multiple modes of transportation.

Policy I/C3.2 Enhancing Business Districts.

Retain and enhance clusters of similar types of commercial enterprises as the nucleus of distinctive business districts, such as the existing new and used automobile sales and related uses through urban design and business retention efforts.

Objective I/C4

Minimize land use compatibility conflicts in commercial and industrial areas through achieving a balance between economic development values and community values

Policy I/C3.3 Clustering Activity in "Nodes". Retail uses should be focused in "nodes" of activity, characterized by geographic clusters of concentrated commercial activity, along corridors that can be accessed through many modes of transportation.

Policy I/C3.4 Strengthening Vitality. The vitality of existing neighborhood mixed use and community commercial areas should be strengthened and preserved.

Policy I/C3.5 Promoting Culture, Recreation, and Entertainment. Cultural, recreational and entertainment uses should be promoted within the Downtown, particularly in the vicinity of the Fox and Paramount Theaters, and within the Jack London Square area.

Policy I/C3.6 Expanding Private Business and Government in Oakland. The City should encourage the expansion of private business services and government sectors within Oakland.

Some areas of the City have established land uses that have difficulty co-existing as good neighbors (for example, a manufacturing business located next door to a residence). One of this Element's innovations is the establishment of Housing and Business mix areas that recognize that some businesses can co-exist with adjoining housing, while others cannot. The land use classifications in Chapter 3 provide additional detail.

Policy I/C4.1 Protecting Existing Activities. Existing industrial, residential, and commercial activities and areas which are consistent with long term land use plans for the City should be protected from the intrusion of potentially incompatible land uses.

Policy I/C4.2 Minimizing Nuisances. The potential for new or existing industrial or commercial uses, including seaport and airport activities, to create nuisance impacts on surrounding residential land uses should be minimized through appropriate siting and efficient implementation and enforcement of environmental and development controls.

Objective I/C5

The economic utility, employment generation, and citywide benefit of military facilities closed by the Federal Government should be maximized

Policy I/C4.3 Reducing Billboards. Billboards should be reduced or eliminated in commercial and residential areas in Oakland neighborhoods through mechanisms that minimize or do not require the expenditure of city funds.

The Fleet Industrial Supply Center (FISC) has been closed and future use of this area has been established. However, the Oakland Army Base and Oak Knoll Naval Hospital will all be closed and available for reuse under the auspices of the Federal Government and the Oakland Base Reuse Authority. Future use of each of these areas is undergoing separate planning processes. However, the General Plan sets out a broad framework intended to maximize the benefits of these reuse areas for the entire city of Oakland. As a result of the outcome of these individual planning processes, the general plan may need to be amended to reflect these more specific planning studies.

Policy I/C5.1 Planning for Military Base Reuse. Plans for the reuse of military bases should encourage activities which provide economic development expansion opportunities for the City.

Policy I/C5.2 Planning for the Fleet Industrial Supply Center. The reuse of the waterfront portions of the Fleet Industrial Supply Center should emphasize maritime-, rail-, and open space-related activities.

Policy I/C5.3 Planning for the Army Base. Land reuse plans for the Oakland Army Base site shall encourage activities that will result in expanded employment opportunities and revenues for the city and the West Oakland community.

Policy I/C5.4 Planning for Oak Knoll. The formulation of a reuse plan which incorporates a mixture of land uses or density patterns should be encouraged for the Oak Knoll Naval Hospital site.

COLISEUM AREA SHOWCASE

Visitors from throughout Northern California come to Oakland to watch the Athletics, the Raiders and the Warriors at the Oakland-Alameda County Coliseum Complex. The freeway system, BART, local streets and AC transit together provide capacity for tens of thousands of people to attend Coliseum Complex events. In addition to professional sporting events, the arena hosts events as varied as the Ice Capades and the Grand National Roadster Show. Increasing the Coliseum area’s attractiveness to visitors by providing shopping, dining, and recreation is an objective of the General Plan.

Facts and Figures

Owned and operated by the Oakland-Alameda County Stadium Joint Powers Authority, the Coliseum Complex hosts over 250 events in a typical year, with total attendance exceeding 2,500,000 persons. A pedestrian connection to BART’s Fremont line as well as immediate access to I-880 and a parking lot with approximately 9,500 spaces handle the job of getting people to and from the Coliseum complex.

A renovation of the Coliseum is under way (1996-1997) to increase seating and amenities, as well as to add space for eating-and-drinking places, clubhouses, and retail shops. The new Oakland Arena will provide seating for 19,200 fans.

Regional commercial uses relying on freeway visibility and easy auto access are already in place west of the Coliseum. Large parcels on both sides of the I-880 Coliseum exit are available for development in 1997. East of the Coliseum, the BART station is located along the industrial belt paralleling the San Leandro Street corridor. All of these areas are part of the Coliseum Redevelopment Area, established in 1984 to advance the objective of alleviating blight and accomplishing other City goals .

Vision for the Future

The number of visitors that come to the Coliseum, its excellent transportation access and the availability of land nearby combine to offer a superb prospect for the area’s future as a regional center of entertainment and commercial recreation. The General Plan envisions the Coliseum

Complex at the center of a regional shopping, entertainment and recreation district. Shops and restaurants will be mixed with movies and places for fun and recreation, encouraging Coliseum patrons to stay in the district for more than just The Event, and adding life to the area when the complex is not in use.

Connections between the Coliseum Area Showcase and the Airport Gateway Showcase benefit both areas for business and tourism, and linkages to the waterfront will enable residents to access the shoreline. Linkages between the Coliseum and Airport and the Coliseum and Waterfront are critical to the future economic potential of this area, and a special plan is needed to guide development of the Coliseum Showcase to maximize its potential. The BART connection from the Coliseum to the Oakland Airport is a future transportation project that could provide an efficient link between these two regional centers. (For more information, see the discussion of Regional access in the Transportation Improvements section of Chapter 3.) The Hegenberger Road corridor is one of just a few locations in the City where the Element supports addition of visitor-serving businesses. Restaurants and hotels along Hegenberger as well as in proximity to the airport will increase destination choices for visitors to the Coliseum Area, and to the Waterfront.

However, success in achieving the Element’s vision for the Coliseum Area Showcase will bring with it the potential for impacts on surrounding neighborhoods. Creating a successful regional entertainment district will require that the City work with area businesses and residents to manage impacts relating to parking, local street traffic, noise, and night lighting. Improvements of facilities for bicyclists and pedestrians can help to alleviate some congestion and provide alternative access routes.

Achieving the Vision

The Coliseum Area Showcase is at the center of the City’s largest concentration of Regional Commercial uses. Redevelopment powers and other public investment will help to spur the transition of the area from its current mix of relatively low-intensity uses to a consistently higher-intensity environment designed to attract residents and visitors.

As reflected by the Regional Commercial Land Use classification, development in the Coliseum Area Showcase is intended to be large-scale. While the types of uses envisioned are most often associated with auto access, the Coliseum BART station provides a great opportunity to provide rail access (perhaps linked with a district shuttle) to Regional Commercial uses.

Transportation and Transit-Oriented Development

⬚ figure Railroad Service through the Jack London District

⬚ figure Bicycle Facilities Downtown

⬚ figure The Mac Arthur Freeway "Maze"

⬚ figure Water Taxi at Jack London Square

Envision yourself going easily to almost any place in the Bay Area. Careful coordination of the region’s many transportation systems-- rapid transit, passenger rail, ferry, bus, and freeway--has made it easier for commuters and travelers. Getting around Oakland is an even simpler task--residents can now hop on bus, light rail, trolley, or shuttle to reach their desired destinations. Streets and land development patterns have been redesigned with pedestrians and bicyclists in mind, making Oakland a safer place to live. The seaport and airport are thriving, high volume carriers of goods and passengers to and from national and international destinations. Meanwhile, higher-density housing and commercial uses have been concentrated around public transportation centers, forming the nucleus of neighborhoods of the future.

"Oakland needs a Transportation Plan."

- Marguerite Fuller, General Plan Congress, 1997

Oakland is at the convergence of local, regional, and worldwide routes. The majority of these system are owned, maintained, operated by other agencies: Freeways (Caltrans); Bus and BART lines (AC Transit and BART); Seaport and Airport (Port of Oakland); and rail lines (Railroads). Oakland only directly controls local road and infrastructure improvement. The role of the Element is to guide and influence the actions of these many agencies to ensure that transportation concerns are addressed to improve Oakland's economy, accessibility, and future prospects.

The Policy Framework for transportation and transit-oriented development reflects the many roles the transportation system has in contributing to the City's economy, its form, and the mobility of its residents and workers. Policy goals include:

• Capitalize on our location: Take full advantage of Oakland's position as a major West Coast transportation hub
• Integrate land use and transportation planning: Integrate transportation and land use planning at the neighborhood, city and regional levels by developing transit orientated development, where appropriate, at transit and commercial nodes
• Reduce congestion: Reduce congestion and improve traffic flow by developing and interted road system and traffic demand management system that provides an appropriate mix of mobility and accessibility through out the city
• Promote alternative transportation options: Reduce dependency on the automobile by providing facilities that support use of transportation modes
• Find funding: Program and provide adequate funding for needed transportation facilities and services, and related investments
• Safety: Provide safe streets
• Improve the environment: Improve air quality and reduce exposure to traffic noise

These goals are briefly discussed in the context of the policy themes for transportation, below.

Regional and Worldwide Transportation Hub

As a regional transportation hub, Oakland can capitalize on its well-located Port facilities and transportation networks. The City will continue to work with the Port of Oakland and transportation carriers to maintain and upgrade cargo and freight-handling facilities and systems to meet future market demands. The policy framework calls for supporting the Port of Oakland's

efforts to compete as a primary port of call in the West Coast shipping industry and to expand the carrying capacity of the airport, with an emphasis on reducing truck traffic and parking in nearby residential areas.

Integrated Transportation Network

While Oakland is a largely built-out city, there are opportunities for development of a better-integrated road system and increased mobility for residents, business, and visitors. Chapter 3 of the Element identifies the projects the City proposes to undertake in the coming decades to improve the transportation network. The Policy Framework suggests a hierarchical network of roads and public transit corridors that will accommodate the desired level of growth and development in Oakland. The City will promote and participate in both local and regional strategies to manage traffic supply and demand where unacceptable levels of service exist or are forecast to exist. In a few areas of the City, such as downtown and near neighborhood activity centers, it is suggested that pedestrian traffic flow would take precedence over the traffic flow of automobiles.

Encouraging Alternative Means of Travel

A key challenge for Oakland is to encourage commuters to carpool or use alternative modes of transportation, including bicycling or walking. The Policy Framework proposes that congestion be lessened by promoting alternative means of transportation, such as transit, biking, and walking providing facilities that support alternative modes, and implementing street improvements. The City will continue to work closely with local and regional transit providers to increase accessibility to transit and improve intermodal transportation connections and facilities. Additionally, policies support the introduction of light rail or trolley buses along appropriate arterials in heavily traveled corridors, and expanded use of ferries in the bay and estuary.

Finding Funding for Improvements

Oakland needs funding for transportation facilities and services. As a regional transportation center, regional support is needed to enable continuous upgrades and maintenance of the transportation system. While some transportation improvements can be realized as part of development agreements with large scale builders, in many instances the transportation network improvements needed in Oakland have a much greater scope than one project is able to, or should,

support. For this reason, Oakland needs to leverage local funds and aggressively compete for grants, matching funds, and other types of support for infrastructure improvement and maintenance.

Working to Increase Safety

As a city of neighborhoods, Oakland must provide safe access to commercial uses, recreational facilities, and local services. Many residents express concern about speeding traffic in their neighborhoods. In response, the City has spent the last two years researching and instituting a number of traffic calming methods. The Policy Framework suggests that the City continue its efforts to slow traffic. Oakland will also strive to make all of its streets bicycle and pedestrian friendly, while balancing the need to transport goods through town and allow for the passage of emergency vehicles. The primary aim of the section is toward maximizing use of the existing transportation infrastructure while achieving greater safety.

Improving the Environment

Air quality and the noise impacts of vehicles are issues for every city in the Bay region. For over three decades, federal, state and regional agencies have been working to improve our air quality and reduce noise levels. Air quality is addressed in policies in the Open Space, Conservation and Recreation Element, and the city's Noise Element considers noise issues and policies. The Element's integrated approach to a sustainable land use and transportation pattern supports environmental protection goals.

COMMERCIAL VEHICLE, RAIL, SHIP, AND AIR TRANSPORTATION

Objective T1

Provide adequate infrastructure and land for the needs of rail, shipping, commercial and manufacturing uses, balancing this need with those of surrounding residential neighborhoods.

Oakland is the transportation hub of the East Bay. Local, regional, national, and international routes converge in Oakland, offering a wide range of destinations and transportation options. These features reaffirm the City's role as a regional center and boost its efforts to attract new businesses. By addressing future development in relation to the transportation network, Oakland will be more able to meet the transportation needs of business, the community, and visitors. As the operator of the seaport and airport, the Port of Oakland plays a significant and unique role in the planning, development, and implementation of many projects within Port jurisdiction.

I-880 serves as the primary regional facility for goods movement, particularly since trucks are prohibited on I-580 through Oakland. Proximity to the seaport, airport and the City's industrial areas combine to give the I-880 corridor the highest percentage of trucks on Oakland freeways despite high levels of congestion in the corridor, since trucks lack alternative routes. See Seaport and Airport/Gateway Showcases in the Waterfront section of this chapter and the description of Transportation Plan projects in Chapter 3 for further discussion.

Policy T1.1 Supporting the Port. Support the Port of Oakland's efforts to compete as a primary Port of Call for the West Coast shipping industry.

Policy T1.2 Improving Transportation Links. Improve all types of transportation links including the Air BART shuttle service,between the Airport and business and neighborhood activity centers and the City.

Policy T1.3 Expanding Airport Capacity. Expand the passenger and cargo handling capacity of the Oakland International Airport.

Policy T1.4 Marketing Oakland. Encourage, promote, and support region-serving business, tourism industries, and businesses related to the transportation industry, to locate or relocate to Oakland.

REDUCE TRUCK IMPACTS

Objective T1.5

Reduce truck traffic impacts on residential neighborhoods

INTEGRATING TRANSPORTATION AND LAND USE PLANNING

Objective T2

Provide mixed use, transit-oriented development that encourages public transit use and increases pedestrian and bicycle trips at major transportation nodes.

Many industrial activities that need trucking services are located adjacent to residential areas. Impacts such as noise, odor, and parking congestion due to trucks directly affect residents' quality of life.

Policy T1.5 Locating Truck Services. Truck services should be concentrated in areas adjacent to freeways and near the seaport and airport, while ensuring the attractiveness of the environment for visitors, local business, and nearby neighborhoods.

Policy T1.6 Designating Truck Routes. An adequate system of roads connecting port terminals, warehouses, freeways and regional arterials, and other important truck destinations should be designated. This system should rely upon arterial streets away from residential neighborhoods. (See the Truck Route Diagram in Volume II of the Land Use and Transportation Element.)

Policy T1.7 Routing Freeway Construction New or expanded freeway construction should be routed through areas containing land uses which can tolerate any anticipated future noise impact, and/or incorporate special design features or traffic controls which will offset the impact.

Policy T1.8 Re-routing and Enforcing Truck Routes. The City should make efforts to re-route truck traffic away from neighborhoods, wherever possible, and enforce truck route controls.

Transportation and land use patterns are integrally linked. In general, high density development tends to encourage the use of public transit while lower densities encourage auto use, including carpools. Where people can live close to their jobs and other destinations, bicycling and walking become viable travel modes. The physical layout of commercial districts can promote or discourage pedestrian-oriented shopping. Concentrating high density residential and mixed use development along transit corridors and at BART stations can help to promote the use of public transit, which in turn can make such developments viable. Industrial and shipping activities work best when they have good access to regional freeway and rail.

Policy T2.1 Encouraging Transit-Oriented Development. Transit-oriented development should be encouraged at existing or proposed transit nodes, defined by the convergence of two or more modes of public transit such as BART, bus, shuttle service, light rail or electric trolley, ferry, and inter-city or commuter rail. (The vision for each of Oakland's BART Stations is discussed on the next several pages.)

TRANSIT-ORIENTED DISTRICTS

After seeing the region expand through suburbanization of jobs and housing in the post-war period, many people are rethinking how communities are designed, with respect to where we live, where we work, and how we get around. One planning concept, transit-oriented development (TOD), takes advantage of fixed transportation systems and provides the means to integrate transit and land use planning. The General Plan envisions a future city pattern in which each of the BART stations is at the center of a mixed-use transit-oriented district that relates the station site to surrounding activities.

This section discusses the opportunities provided at each BART Station location, as well as at the Eastmont Town Center, a site with tremendous opportunities for reuse and intensification that has a high level of service provided by AC Transit. The draft policies propose that transit districts consist of mixed-use developments in a pedestrian-oriented setting. These communities would house a variety of commercial and residential uses, have structured parking, encourage both day and night activities, provide additional public space, and strengthen surrounding neighborhoods.

Downtown TODs: 12th and 19th Street Stations

The 12th and 19th Street BART stations help define the Broadway spine, the highest-intensity business district in Oakland. The transportation capacity provided by BART is critical to making possible the density and variety of development envisioned by the General Plan (see also Downtown Showcase in the Downtown section in this chapter). Increased variety and intensity of activity in the City Center and Kaiser Center areas, and the Uptown Retail/Entertainment district will all take advantage of BART access. Mixed use commercial, office, and residential development will all be welcome in the Downtown TODs, provided that uses and development standards reinforce the area's urban quality and pedestrian-friendly nature.

The 12th and 19th Street TODs each have a distinct flavor, which will be enhanced with completion of buildings now under construction, reuse of now-vacant space, and future projects. At 12th Street, the City Center district is the seat of government, and home to many service and professional businesses. As a transportation hub, 12th Street is a major transfer point for regional and intercity travelers as well as those with local destinations. At 19th Street the emphasis is on

corporate headquarters, occupying a mix of historic buildings and more contemporary architecture and an overall environment that benefits from proximity to Lake Merritt.

Lake Merritt BART Station

The Lake Merritt BART station serves a concentration of government offices cultural, and institutional users — Laney College, the Oakland Museum, Henry J. Kaiser Convention Center, BART and MetroCenter offices, as well as nearby Chinatown destinations. In 1997 there are few development sites near the station, but intensification of activities would be welcome and consistent with the objectives of the General Plan. The Laney College parking lot offers a potential development site that might help to create a Transit Oriented District at Channel Park, as described in the Policy Framework for Downtown.

Fruitvale BART Station

Located at the heart of Oakland’s most ethnically diverse district, the Fruitvale BART Station is envisioned as a “Transit Village”: a catalyst for community revitalization that provides a variety of retail opportunities, housing, and community services. This vision is the product of a long-time collaborative effort led by the Spanish Speaking Unity Council that includes residents, community groups, BART, and City of Oakland staff, who have worked together to assemble the plan and financing for the new development. A fine grain of moderate-density residential uses adjoin the site of the Transit Village to the east and support the businesses along International Boulevard (E. 14th Street), which is designated as a Regional Transit Street to support the provision of light rail or electric trolley buses. New development at the Transit Village will improve the connection of existing transit service and the commercial core of the neighborhood and provide a focal place for cultural events, shopping and business opportunities, as well as a variety of new moderate density housing types.

Coliseum/Airport BART Station

The Coliseum/Airport BART station is at the edge of two districts: neighborhoods of largely single-family homes, and the Coliseum Area Showcase. The station’s varied transportation users—East Oakland residents and workers, Coliseum patrons, and Oakland International Airport users and Airport employees— reflect the diversity of its surroundings. The station itself is constrained by a difficult site, with railroad tracks and elevation changes limiting easy improvements. However, in the future, the railroad right-of-way may become available and could provide additional access options for this Transit-Oriented District. The Transit-Oriented district should aid the transition between neighborhoods and the regional attractions at the

Coliseum/Airport and vicinity. Any new land uses that capitalize on the station's location and ridership must be designed to be compatible with adjoining housing.

MacArthur BART Station

MacArthur BART is uniquely situated as the central hub and transfer point of the BART system, with trains arriving and departing to destinations around the Bay Area. Four major arterials that support local traffic and commerce are adjacent to the station -- Telegraph Avenue, MacArthur Boulevard, 40th Street, and Martin Luther King, Jr. Way. As the central hub, MacArthur BART has been proposed as a Maximum Access Station, a designation that must complement the type and density of uses in the surrounding development area, now characterized by mixed housing types and neighborhood-serving retail uses. Proposals to "open up" the Station entrance on the Martin Luther King Jr. Way side of the site are also being explored by BART and citizens concerned about providing safe and convenient access for Martin Luther King Jr. Way businesses and residents. New development around the station should capitalize on its maximum access potential to create business and residential revitalization, enhance the safety of the neighborhood, provide secure parking, improve station access, and encourage pedestrian activity and the use of public transportation.

Rockridge BART Station

The Rockridge neighborhood is an outstanding example of a Transit-Oriented District, with College Avenue as its spine. The mixed-housing type neighborhood benefits from BART and north/south bus service connecting to Downtown Oakland, San Francisco, UC Berkeley and commercial and housing destinations. Small-scale shops, services, and restaurants all contribute to a lively and very walkable environment. This area should continue to develop as a mixed use area supporting increased housing and commercial opportunities. Significant change to the BART station, area densities or land uses are not expected over the life of the General Plan.

West Oakland BART Station

West Oakland BART is uniquely situated as the first station linking San Francisco and Oakland, and the only station serving four BART routes. The station also has a possible future connection to the Capitol Corridor train, if funding becomes available. While the station area has primarily served commuter travel and parking needs, an increased intensity of use is expected upon completion of the new Cypress Freeway and removal of the former freeway. The West Oakland community is in discussion about how best to use the area vacated by the

former Cypress and to capitalize on the anticipated beautification of the nearby Mandela Parkway corridor. Development of a Mandela Parkway "Transit Village" with retail stores and vital community services has been promoted as a possible option, combining provision of much needed services with the revitalization of the 7th Street corridor near the station. The South Prescott neighborhood would be strengthened by the addition of compatible housing nearby.

Eastmont Town Center

The Eastmont Town Center area offers an exciting opportunity for the creation of a mixed-use living and working environment, since it is well located on a Regional Transit Street to become a transit-oriented district. Several major transit lines and corridors of the transportation network meet at Eastmont Town Center, and revitalization plans are assessing how best to include and encourage use of multi-modal access to the site. The 73rd Avenue arterial offers a direct route to the Coliseum area, I-880, and the Airport, while cross-town routes such as MacArthur Boulevard, Foothill Boulevard, and Bancroft Avenue also serve the site from Elmhurst and Fruitvale neighborhoods. The addition of well-designed, generously landscaped and compatible housing and neighborhood services to the mall area would strengthen this neighborhood and provide a revitalized activity center for the wider East Oakland area.

"The time factor to get from Point A to Point B is critical...we need to see some clear picture of how we can improve transportation."

• Sylvester Grisby, General Plan Congress, 1997

TRANSPORTATION NETWORKS

Objective T3

Provide a hierarchical network of roads that reflects desired land use patterns and strives for acceptable levels of service at intersections.

Policy T2.2 Guiding Transit-Oriented Development.

Transit-oriented developments should be pedestrian oriented, encourage night and day time use, provide the neighborhood with needed goods and services, contain a mix of land uses, and be designed to be compatible with the character of surrounding neighborhoods.

Policy T2.3 Promoting Neighborhood Services.

Promote neighborhood-serving commercial development within one-quarter to one-half mile of established transit routes and nodes.

Policy T2.4 Linking Transportation and Economic Development.

Encourage transportation improvements that facilitate economic development.

Policy T2.5 Linking Transportation and Activities.

Link transportation facilities and infrastructure improvements to recreational uses, job centers, commercial nodes, and social services (i.e., hospitals, parks, or community centers).

In general, local traffic in Oakland flows relatively smoothly, although some locations experience back-ups at certain times of day and freeways are often congested at peak hours. To promote alternative forms of transit, measures will be needed to ensure that buses, carpools, and bicycles can travel to their destinations with a minimum of delay. However, care must be taken to ensure that measures to reduce congestion do not inadvertently encourage the use of single occupant vehicles. In addition, a certain level of traffic congestion may be desirable in some locations to slow traffic and promote a more bicycle and pedestrian-oriented environment. Projects to meet the objectives of this section are identified in Chapter 3.

Policy T3.1 Defining Transportation Hierarchies.

The City should define a hierarchical network of public transit corridors.

Policy T3.2 Promoting Strategies to Address Congestion.

The City should promote and participate in both local and regional strategies to manage traffic supply and demand where unacceptable levels of service exist or are forecast to exist.

Policy T3.3 Allowing Congestion Downtown.

For intersections within Downtown and for those that provide direct access to Downtown locations, the city should accept a lower level of service and a higher level of traffic congestion than is accepted in other parts of Oakland. The desired pedestrian-oriented nature of Downtown activity and the positive effect of traffic congestion in promoting the use of transit or other methods of travel should be recognized.

Policy T3.4 Emerging New Technologies. The City should encourage the use of new technologies in traffic control devices to maximize efficiency of car, bicycle, and pedestrian traffic.

Policy T3.5 Including Bikeways and Pedestrian Walks. The City should include bikeways and pedestrian walks in the planning of new, reconstructed, or realized streets, wherever possible.

Policy T3.6 Encouraging Transit. The City should encourage and promote use of public transit in Oakland by expediting the movement of and access to transit vehicles on designated "transit streets" as shown on the Transportation Plan. (Policies T3.6 and T3.7 are based on the City Council's passage of "Transit First" policy in October 1996.)

Policy T3.7 Resolving Transportation Conflicts. The City, in constructing and maintaining its transportation infrastructure, should resolve any conflicts between public transit and single occupant vehicles in favor of the transportation mode that has the potential to provide the greatest mobility and access for people, rather than vehicles, giving due consideration to the environmental, public safety, economic development, health, and social equity impacts.

Policy T3.8 Screening Downtown Parking. Cars parked in downtown lots should be screened from public view through the use of ground floor store fronts, parks and landscaping, or other pedestrian-friendly, safe, and attractive means.

Policy T3.9 Providing Parking for Transportation. The City should strive to provide parking for multiple modes of transportation throughout the city where it is needed and does not unduly disrupt traffic flow.

Policy T3.10 Balancing Parking Demands and Economic Development Activity. The City should balance the parking demands and parking charges in City-owned facilities with the need to promote economic activity in certain areas (such as Downtown and neighborhood commercial areas).

Policy T3.11 Prioritizing Parking. Parking in residential areas should give priority to adjacent residents.

ALTERNATIVE MODES OF TRANSPORTATION

Objective T4

Increase use of alternative modes of transportation.

More than half of Oakland’s employed residents drove alone to work in 1990. Although this figure is below the County and regional average of two-thirds drive-alone commuters, it still represents the majority of Oakland workers and a slight increase over 1980 levels. Meanwhile, the percentage of residents who commute by public transit has declined, while those using carpools and other modes have stayed about the same. Almost one-quarter of the city’s households have no car available. These residents must rely on other forms of transportation, such as public transit, bicycling, or walking. If Oakland is to reduce dependence on the single occupant vehicle and ensure that all residents can easily get to their jobs, shopping, school, recreational facilities, and other destinations in a timely manner, viable alternatives to the automobile must be available.

Policy T4.1 Incorporating Design Features for Alternative Travel. The City will require new development, rebuilding, or retrofit to incorporate design features in their projects that encourage use of alternative modes of transportation such as transit, bicycling, and walking.

Policy T4.2 Creating Transportation Incentives. Through cooperation with other agencies, the City should create incentives to encourage travelers to use alternative transportation options.

Policy T4.3 Reducing Transit Wasting Times. The City should encourage transit operators to reduce waiting times for users by coordinating schedules and maintaining intervals of fifteen (15) minutes or less between buses during peak daytime periods. (See Chapter 3 for more detailed standards for Transit Streets.)

Policy T4.4 Developing Light Rail or Electric Trolley. The City supports the development of light rail or trolley bus along Regional Transit streets in high travel demand on corridors. (See the Transportation Diagram and Chapter 3 for more detailed standards for Transit Streets.)

Policy T4.5 Preparing a Bicycle and Pedestrian Master plan. The City should prepare, adopt, and implement a Bicycle and Pedestrian Master Plan as a part of the Transportation Element of this General Plan.

Policy T4.6 Making Transportation Accessible for Everyone. Alternative modes of transportation should be accessible for all of Oakland’s population. Including the elderly, disabled, and disadvantaged.

FUNDING

Objective T5

Secure funding for transportation infrastructure improvements and maintenance.

Policy4.7 Reusing Abandoned Rail Lines. Where rail lines (including siding and spurs) are to be abandoned, first consideration should be given to acquiring the line for transportation and recreational uses, such as bikeways, footpaths, or public transit.

Policy T4.8 Accommodating Multiple Types of Travel on the Bay Bridge. The City should encourage the design and engineering for the new Bay Bridge to accommodate multiple means of access and travel by automobiles, trucks, transit, bicycles, pedestrians, and future mass transit.

Policy T4.9 “Gateway” Public Access Area The City, in concert with the East Bay Regional Park District, Port of Oakland, Oakland base Reuse Authority, and Bay Conservation and Development Commission, should support development of a significant new “gateway” public park area at the terminus of the San Francisco/Oakland Bay Bridge east span that is accessible by auto, bicycle, or walking (See also the Open Space, Conservation, and Recreation Element).

Policy T4.10 Converting underused Travel Lanes. Take advantage of existing transportation infrastructure and capacity that is underutilized. For example, where possible and desirable, convert underused travel lanes to bicycle or pedestrian paths or amenities.

In recent years, the trend has been away from building major new transportation facilities and toward increasing the efficiency of existing systems through better management. However, the transportation improvements in Chapter 3 do include some new facilities for trucks, cars, bicycles, and pedestrians. Major improvements to existing facilities are also under construction or proposed, including the widening of 98th Avenue, a new pedestrian bridge over the I-880 freeway near 98th Avenue, and seismic upgrade and reconfiguration of several I-880 freeway interchanges. These are major capital projects, for which funding will need to be found not only for construction, but operation and maintenance.

Policy T5.1 Funding for Infrastructure. Funding for infrastructure projects should be long term and include operating and maintenance as well as capital development.

Policy T5.2 Ranking Capital Improvement Projects. A system to rank capital improvement program projects should be developed. Ranking criteria should include public safety, equity to different neighborhoods in Oakland, potential to support

economic development, consistency with "transit first" principles, system maintenance cost, travel convenience, travel cost savings, environmental impacts, attractiveness, and reduced public expenditures.

Policy T5.3 Prioritize Infrastructure Improvements. Infrastructure improvements should be prioritized to prevent deterioration of existing infrastructure.

Policy T5.4 Considering a Range of Funding Strategies. A range of strategies to provide funding for transportation improvements should be considered, including, but not limited to, special user fees, development impact fees, or assessment districts.

SAFETY

Objective T6

Make streets safe, pedestrian accessible, and attractive.

In the past few years, public hearings have been held throughout the city on reducing traffic in the neighborhoods by slowing it down or redirecting it to arterial streets. Measures that have been suggested include speed bumps, traffic diverters, traffic circles, stop signs, and retiming of signals. Some of these have been implemented, but funding is insufficient to meet all of the public's requests. In addition, the location and design of some freeway ramps tends to direct traffic onto local streets and through neighborhoods. Measures to reduce traffic impacts need to be prioritized and coordinated with overall circulation planning. Pedestrian-oriented streetscapes usually include facilities such as corner transit stops, median strips, wide sidewalks, benches or seating, lighting, and signs, as well as amenities such as street trees and landscaping.

Policy T6.1 Posting Maximum Speeds. Collector streets shall be posted at the lowest possible speed (usually a maximum speed of 25 miles per hour), except where a lower speed is dictated by safety and allowable by law.

Policy T6.2 Improving Streetscapes. The city should make major efforts to improve the visual quality of streetscapes. Design of the streetscape, particularly in neighborhoods and commercial centers, should be pedestrian-oriented and include lighting, directional signs, trees, benches, and other support facilities.

Policy T6.3 Making the Waterfront Accessible. The waterfront should be made accessible to pedestrians and bicyclists throughout Oakland.

Policy T6.4 Rebuilding Freeways. In the event of a major disaster, necessitating reconstruction of the I-880 freeway, it should be rebuilt below ground in the downtown/Jack London Square area.

AIR QUALITY

Objective T7

Reduce air pollutants caused by vehicles.

Policy T6.5 Protecting Scenic Routes. The City should protect and encourage enhancement of the distinctive character of scenic routes within the city, through prohibition of billboards, design review, and other means.

See Policy CO-12.1, from the Opan Space, Conservation, and Recreation Element.

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Downtown

"A basic source of economic strength in a central district--and one of the reasons it is the most interesting and active place in the city--is the wide variety of functions that are performed there ... In many ways the central district is the city."

- Judy Rowe, General Plan Congress, 1966

⬚ figure Marriot with the Warriors' Practice Facility

⬚ figure Broadway Building

⬚ figure Cathedral Building

⬚ figure High-rise housing near Lake Merritt

⬚ figure Urban character along Broadway

Envision yourself taking an early evening walk up Broadway through Oakland's revitalized downtown. On the right is Chinatown, where food markets remain busy as restaurants open for dinner. On the left are the Victorian buildings of Old Oakland, where shoppers meander through galleries and boutiques. Passing City Center, you see a stream of workers, some heading toward the BART station and bus stops, some walking home. Around 20th Street, joggers head east to Lake Merritt for a pre-sunset lap. A line of theatergoers begins to form outside the Paramount. Across the street, a couple, groceries in hand, walks back to their downtown apartment. Buses are everywhere, shuttling people to and from this dynamic mix of twenty-four hour activity.

DOWNTOWN SHOWCASE

The Element promotes the continued evolution of Downtown Oakland as a vibrant mixed use environment of distinctive subdistricts at the forefront of the regional economy. Downtown's designation as an Oakland Showcase highlights the district's local and regional importance.

Facts and Figures

Location, location, location. At the heart of the BART system, in close proximity to major region-serving freeways, beautiful Lake Merritt, the energized Jack London District Waterfront, the Channel Park Cultural and educational area, Chinatown historic office buildings, and architecturally significant urban density neighborhoods, the business center of Oakland has it all. Various development cycles through the years have affected the appearance and vitality of downtown. Downtown Oakland was a prosperous hub of commerce and employment through most of the century, with abundant shopping and work opportunities and a vibrant bustling atmosphere. But starting in the 1970's and through the early 1990's the atmosphere of downtown began to change as a result of many factors. These included an increasing reliance on automobile travel, availability of affordable housing and employment centers in outlying areas, and the advent of regional shopping malls. Downtown Oakland, like many older urban centers, began to decline in prominence as a residential and commercial hub.

Throughout these transformations, Downtown continued to dominate the East Bay office market. In 1981, Oakland had about 7.3 million square feet of office space. By 1993, Downtown had approximately 13 million square feet of office space and 80,000 workers. In the late 1980s and early 1990s, the national economic recession and tightening of the financial lending market translated into a local decline in office construction and an increase in vacancy rates.

With the recent upturn in the national economy the future again looks very bright for downtown. In the period from 1995 to 2015, job and population growth in the Downtown are expected to be robust, each increasing approximately 30%. The great majority of new jobs are anticipated to be office jobs in the government, business services, finance, communications and high technology sectors. These key sectors are established as future targets in the Citywide Economic Development Strategy, and they comprise vital components of a vibrant downtown economy of the future.

In addition to being an employment center, Downtown is also a neighborhood--or a collection of neighborhoods. Chinatown, Old Oakland, the Gold Coast, and other Downtown residential areas combined had a total of 6,600 housing units in 1995, and a population exceeding 11,400. Residents as well as local workers and businesses help support Downtown retailing and restaurants.

The Downtown Showcase includes unique assets for the city and region: Lake Merritt, the nation's first wildlife refuge, was established in 1870. Laney College and the Alameda County library are major educational resources. Cultural, performing and fine arts facilities include the historic Paramount and Fox Theaters and the Oakland Museum of California. As Downtown Oakland stretches toward the Bay it meets the waterfront at Jack London Square.

Vision for the Future

The vision for Downtown established by the Element's Policy Framework promotes the role of Downtown as a mixture of vibrant districts, each with a unique identity, all contributing to around-the-clock activity and continued expansion of job opportunities. The goals for downtown seek to expand the role that the district plays in the lives of local residents and surrounding communities by attracting people into the area with exciting cultural and social opportunities, recognizing that Downtown can be a source of pride for all residents, workers, and visitors to Oakland.

Key components of the vision for Downtown are support for growth in office activity and increasing the population through new Downtown housing. Expanding the number of downtown residents will also support employment and will enhance Downtown as a seven-day-a-week, 24-hour-a-day destination.

Downtown Goals

• To promote downtown Oakland's position as a dynamic economic center for the region.
• To serve as a primary communications, office, government, high technology, retail, entertainment, and transportation hub for Northern California.
• To become a premier location in the region for urban residential living, by building upon existing neighborhoods, and by promoting and expanding a pedestrian-friendly, diverse and exciting range of housing, social, cultural, and arts opportunities.
• To further develop, support, revitalize, and promote the distinct, attractive urban character of each of the downtown districts, and to respect historic resources.

Achieving the Vision

The Element provides maximum flexibility for both horizontal and vertical mixing of a wide variety of land uses in the Downtown. Broadway serves as the linkage from the neighborhoods to the waterfront, connecting housing areas to the Financial District, Uptown, City Center, Old Oakland, Chinatown, and the South of Nimitz area to the Jack London District. Subsequent planning and design studies may distinguish among Downtown subdistricts to heighten their identities and meet goals for Downtown. This may be achieved through differentiating uses, development standards, urban design elements or features of the transportation system. In particular, zoning and other implementing activities should explore establishing boundaries for major office development that maintain a large supply of sites and clearly identify Downtown’s housing areas and provide for their maintenance and enhancement.

Downtown job growth can be accommodated largely through construction of taller buildings and revitalization and reuse of underutilized properties. Revitalization is already under way with projects approved or planned that will add hundreds of new housing units to the Old Oakland and Gateway neighborhoods, new office jobs to the Broadway corridor, and, new entertainment/retail activity along portions of Telegraph Avenue and in Jack London Square.

Implementing the General Plan in other parts of the City will help achieve objectives for Downtown. High-rise office development will be allowed only in Downtown. Other office areas should be differentiated from the core downtown office district through distinct development standards and height and bulk controls. Any office development southwest of I-880 and in other areas of the City should offer a different type of office environment that competes with locations in other cities rather than with Downtown offices.

Although the office market is the strongest economic sector downtown, it is not so strong that it can be taken for granted and expected to prosper without continuing local support. Public policy should continue to encourage and include actions to support and attract office activities downtown and support the very substantial public investments in Downtown.

The Downtown Objectives and Policies address a wide range of issues and concerns, including design standards, transportation, housing opportunities for a range of incomes, and approaches to supporting both residential and commercial activity in the Downtown.

Objective D1

Enhance the identity of Downtown Oakland and its distinctive districts.

⬚ figure

Downtown Subdistricts - Moore, Iacofano, Goltsman, 1996

Downtown Objectives and Policies

Downtown Oakland is composed of a variety of distinct and active districts, containing business, cultural, and residential elements. Each of the unique characteristics, identities, and potentials of these areas should be explored and built upon by future development and conservation efforts.

Policy D1.1 Defining Characteristics of Downtown.

The characteristics that make downtown Oakland unique, including its strong core area; proximity to destinations such as the Jack London waterfront, Lake Merritt, historic areas, cultural, arts, and entertainment activities; and housing stock, should be enhanced and used to strengthen the downtown as a local and regional asset.

Policy D1.2 Identify District Districts.

The downtown should be viewed as the compilation of a series of distinct districts, including but not limited to City Center, Chinatown, Old Oakland, the Broadway Corridor, Gateway, Kaiser Center, Gold Coast, the Channel Park area south of Lake Merritt, and the Jack London Waterfront. A distinct identity for these downtown districts should be supported and enhanced.

Policy D1.3 Planning for Chinatown.

The unique character of Chinatown, as a center for Asian-American culture, a regional destination point, and a district with a mixed housing type residential component, should be supported and encouraged.

Policy D1.4 Planning for Old Oakland.

Old Oakland should be respected and promoted as a significant historic resource and character-defining element, with Washington Street as its core. Residential development in Old Oakland should be of mixed housing type, with ground-floor retail where feasible.

Policy D1.5 Planning for the Gateway District.

New development and rehabilitation in the Gateway district should contribute to greater neighborhood cohesion and identity, emphasizing mixed housing type and urban density residential development.

Policy D1.6 Planning for Kaiser Center.

The Kaiser Center finance and office area should be strongly linked with the Broadway/19th St. office core, and sensitive to pedestrian-friendly open space amenities associated with Lake Merritt and Snow Park.

DESIGN

Objective D2

Enhance the visual quality of downtown by preserving and improving existing housing stock and encouraging new, high quality, development.

Policy D1.7 Planning for the Gold Coast. The Gold Coast should be recognized and conserved as an established neighborhood providing urban density housing in a unique urban setting.

Policy D1.8 Planning for the Channel Park Arts, Educational, and Cultural Center. The area south of Lake Merritt that includes Laney College, the Henry J. Kaiser Auditorium, the Oakland Museum, and Alameda County offices should be enhanced as a walkable, bicycle-friendly educational, cultural and institutional center in downtown Oakland. Efforts to strengthen this area's identity and create transportation linkages with the Jack London Waterfront, City Center, and the Financial District, and BART should be promoted.

Policy D1.9 Planning for the Channel Park Residential Area. The area between the Channel Park Arts, Educational, and Cultural Center and the waterfront should be developed as a walkable urban residential district, incorporating commercial development and open space as appropriate to take advantage of the cultural and recreational amenities provided by the center and the channel to the estuary., and east transportation by BART.

Policy D1.10 Planning for the Jack London District. Pedestrian-oriented entertainment, live-work enterprise, moderate-scale retail outlets and offices should be encouraged in the Jack London Waterfront area.

Policy D1.11 Supporting the Jack London District. The continuing commercial growth and success of Jack London Square should be supported and linkages such as the Bay Trail, bicycle lanes, and pedestrian walks to downtown Oakland and the airport should be improved.

Policy D1.12 Planning for the Produce Market Area. The Produce Market should be recognized as California’s last example of an early twentieth century produce market. Should the wholesale distribution of produce be relocated to another site the character and vitality of this unique district should be encouraged in its reuse if economically viable

New housing developments in the downtown will provide urban dwellers with expanded options for living in a revitalized inner city, near major transportation lines, employment centers, state-of-the-art communication technology, and regionally known entertainment venues.

FOR PEDESTRIANS

Objective D3

Create a pedestrian-friendly downtown.

ECONOMIC REVITALIZATION

Objective D4

Increase the economic vitality of downtown.

Policy D2.1 Enhancing the Downtown Downtown development should be visually interesting, harmonize with its surroundings, respect and enhance important views in and of the downtown, respect the character, history, and pedestrian-orientation of the downtown, and contribute to an attractive skyline.

Pedestrian-Friendly areas will have amenities that provide for the comfort, safe passage, and convenience of people who are walking or using wheelchairs. Examples of this may include wide and unobstructed sidewalks, benches, landscaping, lighting, directional signs or kiosks, public art installations, and signal timing that allows for pedestrian flow over traffic flow.

Policy D3.1 Promoting Pedestrians. Pedestrian-friendly commercial areas should be promoted.

Policy D3.2 Incorporating Parking Facilities. New parking facilities for cars and bicycles should be incorporated into the design of any project in a manner that encourages and promotes safe pedestrian activity.

The Economic Development Strategy (City of Oakland, 1997) for Oakland identifies attracting potential users of high intensity office development as a step toward enhancing downtown Oakland as the East Bay's primary regional employment center. Downtown Oakland is well-connected by transportation and communication networks, and is the seat of many Federal, State, County, and local government operations. Efforts at attraction and promotion of Oakland's downtown include materials which describe the amenities available for business, as well as the strength of the urban infrastructure.

Policy D4.1 Supporting Development. Development activities should be supported through infrastructure improvements in the downtown.

Policy D4.2 Fostering a Positive Business Climate. A positive business climate which encourages attraction of new businesses and retention and expansion of existing businesses in downtown Oakland should be fostered, promoting Oakland's locational (transportation) advantages and other amenities.

Policy D4.3 Attracting Employment to the Downtown. Economic sectors that promote employment, are likely to grow, or will diversify the economic base should be attracted to the downtown.

Objective D5

Enhance the safety and perception of safety downtown at all hours.

REHABILITATION AND RENEWAL

Objective D6

Eliminate blight caused by underutilized properties

OFFICE

Objective D7

Facilitate and promote downtown Oakland's position as the primary office center for the region.

Increased activity Downtown reduces opportunities for crime and the perception of crime. Providing exciting living opportunities in downtown districts also helps to increase security by assuring the presence of people and "eyes on the street" twenty-four hours a day.

Policy D5.1 Encouraging Twenty-Four Hour Activity.

Activities and amenities that encourage pedestrian traffic during the work week, as well as evenings and weekends should be promoted.

Rehabilitation of earthquake damaged buildings, restoration of important historic resources, abatement of blight, and reuse of underutilized parcels are physical development activities that help to recast people's negative perceptions about Oakland's Downtown. Revitalization efforts also help to increase business opportunities, spur residential development, and expand tourism. For more information on the historic preservation policies, see the Historic Preservation Element.

Policy D6.1 Developing Vacant Lots.

Construction on vacant land or to replace surface parking lots should be encouraged throughout the downtown, where possible.

Policy D6.2 Reusing Vacant or Underutilized Buildings.

Existing vacant or underutilized buildings should be reused. Repair and rehabilitation, particularly of historic or architecturally significant structures, should be strongly encouraged. However, where reuse is not economically feasible, demolition and other measures should be considered. (Landmark and Preservation District properties must follow Policy 2.4 of the Historic Preservation Element.)

Continued advocacy of downtown Oakland's infrastructure, amenities, and sustainable location as the East Bay's primary regional office center is important, not only to counteract the region's tendency to allow creation of outlying office parks (sprawl), but to capitalize on the substantial public investment that has been made in Oakland.

Policy D7.1 Advocating for Downtown.

Downtown Oakland's advantages for regional office development, including its position as the hub for regional transportation, should be advocated at State and regional planning levels.

Objective D8

Build on the current office nodes near the 12th and 19th Street BART stations to establish these locations as the principal centers for office development in the city.

COMMERCIAL

Objective D9

Emphasize the establishment, promotion, and retention of commercial businesses that serve the needs of downtown workers and residents.

Current nodes of office development at Downtown BART stations should be enhanced and built upon. (For a discussion of the vision for development at each of Oakland’s BART stations, please see the section on Transit-Oriented Districts, in the Transportation and Transit-Oriented Development section of Chapter 2.)

Policy D8.1 Locating Office Development.

New large scale office development should be primarily located along the Broadway corridor south of Grand Avenue, with concentrations at the 12th Street and 19th Street BART stations. The height of office development should respect the Lake Merritt edge. Small scale offices should be allowed throughout the downtown, including in the downtown neighborhoods, when compatible with the character of surrounding development.

Policy D8.2 Respecting Public Parks.

Future office development on Harrison Street opposite Lakeside Park and Snow Park should provide ground level landscaped open space to soften the edge between public park land and the office core. This space should be clearly accessible to office workers and the public.

Policy D8.3 Attracting Private Office Development.

Private office development should be aggressively attracted to the downtown.

Policy D8.4 Developing the Broadway Spine.

The Broadway spine, particularly near the 12th Street/City Center BART station, should be the primary location of new public office development.

Oakland continues to strive to attract commercial businesses to support active office and housing environments in Downtown.

Policy D9.1 Concentrating Commercial Development.

Concentrate region-serving or “destination” commercial development in the corridor around Broadway between 12th and 21st streets, in Chinatown, and along the Jack London Waterfront. Ground floor locations for commercial uses that encourage a pedestrian-friendly environment should be encouraged throughout the downtown.

Policy D9.2 Meeting Daily Needs.

Downtown residents should have access to goods and services to meet their daily and long term needs within the downtown area.

HOUSING

Objective D10

Maximize housing opportunities in the downtown to create a better sense of community.

Increasing numbers of people living in the various downtown districts by providing the maximum range of housing types and densities will help to create more cohesive and sustainable downtown communities.

Policy D10.1 Encouraging Housing.

Housing in the downtown should be encouraged as a vital component of a 24-hour community presence.

Policy D10.2 Locating Housing.

Housing in the downtown should be encouraged in identifiable districts, within walking distance of the 12th Street, 19th Street, City Center, and Lake Merritt BART stations to encourage transit use, and in other locations where compatible with surrounding uses.

Policy D10.3 Framework for Housing Densities.

Downtown residential areas should generally be within the Urban Density Residential and Central Business District density range where not otherwise specified. The height and bulk should reflect existing and desired district character, the overall city skyline, and the existence of historic structures or areas.

Policy D10.4 Providing Housing for a Range of Needs.

Housing in the downtown should not be geared toward any one housing market, but rather should be promoted for a range of incomes, ownership options, household types, household sizes, and needs.

Policy D10.5 Designing Housing.

Housing in the downtown should be safe and attractive, of high quality design, and respect the downtown’s distinct neighborhoods and its history.

Policy D10.6 Creating Infill Housing.

Infill housing that respects surrounding development and the streetscape should be encouraged in the downtown to strengthen or create distinct districts.

Policy D10.7 Developing Live-Work Spaces.

Locational and performance criteria should be developed for live-work developments.

MIXED USE

Objective D11

Foster mixed use developments to help create a diverse, lively, and vibrant downtown

CULTURAL, ARTS, EDUCATION, AND ENTERTAINMENT

Objective D12

Make downtown Oakland a regional destination for innovative learning programs, cultural resources, art, and entertainment.

Mixed Use developments can be vital locations that contain both living and working activities within one site. These types of development are ecologically preferable to those that separate housing from jobs and local services, in the downtown as well as along the city’s corridors.

Policy D11.1 Promoting Mixed-Use Development.

Mixed use developments should be encouraged in the downtown for such purposes as to promote its diverse character, provide for needed goods and services, support local art and culture, and give incentive to reuse existing vacant or underutilized structures.

Policy D11.2 Locating Mixed-Use Development.

Mixed use development should be allowed in commercial areas, where the residential component is compatible with the desired commercial function of the area.

Oakland’s strength as the most ethnically and culturally diverse city in the United States is a key reason for its attractiveness to the world. Oakland’s diversity is expressed, in part, through art, cultural events, entertainment, and educational opportunities, which are vital components of a livable city.

Policy D12.1 Promoting Oakland’s Strengths.

Build on and promote Oakland’s educational resources, historic importance as an entertainment venue, existing cultural diversity, and strong arts community.

Policy D12.2 Focusing Large-Scale Activities Downtown.

The City should, where feasible and desirable, support and build upon the educational, cultural, art and entertainment resources in the downtown.

Policy D12.3 Locating Entertainment Activities.

Large scale entertainment uses should be encouraged to concentrate in the Jack London Waterfront and within the Broadway corridor area. However, existing large scale facilities in the Downtown should be utilized to the fullest extent possible.

Policy D12.4 Locating Smaller Scale Entertainment Activities.

Small scale entertainment uses, such as small clubs, should be allowed to locate in the Jack London Waterfront area and to be dispersed throughout downtown districts, provided that the City works with area residents and businesses to manage the impacts of such uses.

Policy D12.5 Incorporating Art in the Downtown.

Art should be part of the fabric of the downtown, located in public and private facilities, and in public spaces.

DOWNTOWN TRANSPORTATION

Objective D13

Create and coordinate a well-balanced regional and local transportation system to serve the downtown.

Policy D12.6 Supporting Educational. Educational institutions should be supported in the downtown and encouraged to integrate with other downtown activities, including private businesses.

Policy D12.7 Diversifying Building Uses. Diversification of the uses of civic and institutional buildings should be encouraged.

Balancing and meeting resident, business, and tourism needs for convenient automobile access with safe and reliable public transportation and pedestrian access is important for the vitality of the downtown area. Refer also to the Transportation Policy Section.

Policy D13.1 Coordinating Transportation Options. A variety of transportation modes to and within all downtown districts should be coordinated to safely and efficiently move people and goods. Affordability and convenience are primary considerations.

Policy D13.2 Providing Parking. An adequate quantity of car, bicycle, and truck parking, which has been designed to enhance the pedestrian environment, should be provided to encourage housing development and the economic vitality of commercial, office, entertainment, and mixed use areas.

Waterfront

⬚ figure Port of Oakland: Seaport

⬚ figure Channel Park along Estuary

⬚ figure Jack London Square

⬚ figure Commercial Recreation Marina

Nineteen miles of shoreline define Oakland's western and southern edge—more shoreline than in any other Bay Area city. This amenity offers a wealth of future possibilities. The 1990s have brought a heightened awareness of the City's potential to claim its waterfront as a central identifying feature. Community members, city leaders, planning and design professionals, and civic organizations have studied, discussed and appreciated the waterfront for its diversity and its potential. All have concluded that the waterfront has been cut off from the rest of the City, and that this extraordinary place needs to be reunited with the rest of Oakland.

Shore lands have historically been advantageous locations for industry, and much of Oakland's waterfront activity is industry-related, centered around seaport and airport activities. The existing multimodal transportation corridor provides essential capacity to move people and goods by car, truck and rail, but also creates barriers to waterfront districts from elsewhere in the city.

Industrial and transportation uses alone do not maximize the shoreline's potential. Diversification of uses along the estuary shore, including new and revitalized shops, restaurants, entertainment, water-related development, recreation, open space, housing, and cultural activities are among the exciting array of activities being developed to re-claim the waterfront. Public access is fundamental to broadening waterfront activities and improving waterfront connections with the rest of the City, particularly to Downtown and adjacent neighborhoods. The waterfront is also home to a diverse group of plant and animal species (some of which are protected in established Resource Conservation Areas).

The economic importance of the seaport, the airport, and the mixed use waterfront is highlighted with designations of three Oakland Showcases along the Waterfront. Each is discussed in detail in this part of the Policy Framework, with Facts and Figures, a Vision of the Future, and a discussion of how the vision is to be achieved.

Waterfront Goals

• Increase the awareness of the waterfront throughout the City and the region, and maximize the benefit of Oakland's waterfront for the people of Oakland.
• Promote the diversity of the waterfront by providing opportunities for new parks, recreation, and open space; cultural, educational, and entertainment experiences; and new or revitalized retail, commercial, and residential development.
• Enhance and promote the City's waterfront for the economic benefit of the community with emphasis on Oakland's position as a leading west coast maritime terminal and a primary Bay Area passenger and cargo airport.
• Connect the waterfront to the rest of the City with emphasis on linking adjacent neighborhoods and Downtown directly to the waterfront, reducing physical barriers and the perception of isolation from the water's edge, and improving public access to and along the waterfront.
• Preserve and enhance the existing natural areas along the waterfront.

LAND USE

Objective W1 Enhance the waterfront with a wide variety of uses. The seaport and airport should have uses which promote its economic and transportation assets, and other waterfront areas should have multi-purpose uses including recreation, entertainment, cultural, education, economic, transportation, and residential assets.

The goals, objectives, and policies pertaining to the waterfront issues give impetus to a new focus for Oakland at the water’s edge. This policy framework provides direction for land use and public access in the estuary area by broadening its possibilities to a wider spectrum of uses. They also support the expansion of the seaport and airport by improving their position in intermodal transportation networks and attracting related commercial and industrial business for economic benefits and jobs for the City.

A central component of the waterfront policies is direction for detailed planning along the estuary shore to guide future development and conservation. The “Estuary Plan,” a joint effort of the Port and city of Oakland is the companion planning effort that focuses on the waterfront. The Estuary Plan will be completed; the waterfront section of this Element provides overall direction for completion of that plan and any concurrent development.

Waterfront Objectives and Policies

The Oakland waterfront should become a vigorous, multi-use, regionally known attraction and resource, sensitively developed for the benefit of Oakland residents, visitors, and business interests.

Policy W1.1 General Plan Conformance of Projects in the Seaport and Airport Areas

The Port shall make a written determination on General Plan conformity for each project, plan, and/or land use guideline it approves in the Port area. Prior to making such determination the Port will froward its proposed determination to the Director of City Planning, who may provide the Port with written comments within a specified time period. Any comments so provided shall be considered and responded to in writing by the Port in its conformity determination.

For projects in the Port Area outside the seaport and airport areas, the Port’s determination of General Plan conformity may be appealed to the City Council within 10 days. If not appealed within 10 days, the Port’s determination shall be deemed final. If appealed, the City Council, by a vote of a least 6 members, shall make a final determination on the appeal within 30 days. The City Planning Commission shall provide recommendation to the City Council for consideration in hearing on appeal of the Port’s conformity determination.

For purposes of this policy, the Airport area shall be considered that portion of the Port area west of Doolittle Drive, and the Seaport area shall be considered that portion of the Port Area generally lying west of Maritime Street and northwest of the Estuary Plan area.

Projects appealable to the City Council under policy are those for which and Environmental Impact Report of Mitigated Negative Declaration has been prepared pursuant to the California Environmental Quality Act; new construction, additions, changes in use, or, expansion of use involving 20,000 square feet or more in floor area; and public improvements in transportation or public access valued at $250,000 or more.

Policy W1.2 Planning with the Port of Oakland.

Plans for maritime and aviation operations as well as activities on all lands in Port jurisdiction should be coordinated with, and generally consistent with the Oakland General Plan.

Policy W1.3 Reducing Land Use Conflicts.

Land uses and impacts generated from Port or neighborhood activities should be buffered, protecting adjacent residential areas from the impacts of seaport, airport, or other industrial uses. Appropriate siting of industrial activities, buffering (e.g., landscaping, fencing, transitional uses, etc.), truck traffic management efforts, and other mitigation’s should be used to minimize the impact of incompatible uses.

LAND USE

Objective W2

Encourage and accommodate facilities and Public linkages which attract the public to the waterfront without endangering public safety or compromising airport and seaport operations and security.

The appropriate level of public access into the Seaport and Airport has been much debated in recent years. The intent of this objective is to find multiple ways to encourage and provide safe access to the water’s edge for everyone, without interfering with airport or water-dependent business operations.

Policy W2.1 Linking Neighborhoods with the Waterfront.

All recreational activity sites along the waterfront should be connected to each other to create continuous waterfront access. Safe and direct automobile, bicycle, pedestrian and waterway access between the waterfront and adjacent neighborhoods should be created and strengthened.

Policy W2.2 Buffering of Heavy Industrial Uses.

Appropriate buffering measures for heavy industrial uses and transportation uses on adjacent residential neighborhoods should be developed and implemented.

“In the next ten years the Waterfront may emerge as the most spectacular feature of the city.”

- Zarka Popovic, General Plan Congress, 1997

Policy W2.3 Providing Public Access Improvements. Public access improvements to the waterfront and along the water’s edge should be implemented as projects are developed. The access improvement should conform to the requirements of the Bay Conservation and Development Commission (BCDC).

Policy W2.4 Mitigation Banking. Public access that is developed in advance, by entities with future plans for waterfront project development, should be credited as meeting BCDC’s public access requirement for those waterfront projects.

Policy W2.5. Improved Railroad Crossings. To create safe access to the water pedestrian, bicycle, and automobile railroad crossings should be provided where feasible. Crossings could include grade separations, at-grade crossings, skyway bridges, or connections between buildings.

Policy W2.6 Providing Maritime and Aviation Viewing Access. Safe access to areas for viewing maritime and aviation activities without interfering with seaport and airport activities should be encouraged.

Policy W2.7 Encouraging Public Transportation Public transportation to the waterfront should be encouraged, coordinated, and strategically located. Waterfront transportation should be marketed to enhance ease of access both locally and regionally.

Policy W2.8 Promoting Water Transportation. Waterborne transportation should be promoted as an alternative to the street for the movement of people and cargo along and across the waterfront.

Policy W2.9 Parking at Key Points. Parking should be developed at key points generally set back from the waterfront to minimize the impact of private automobile use in high-activity areas. Parking structures that incorporate ground floor uses, are available for day and night activities, and allow for shared use, are preferred.

Policy W2.10 Making Public Improvements as a Part of Projects. Physical improvements to improve the aesthetic qualities of the waterfront, and increase visitor comfort, safety, and enjoyment should be incorporated in the development of projects in the

ENVIRONMENT

Objective W3

Preserve the high quality and uniqueness of the natural and built environment of the waterfront.

waterfront area. These amenities may include landscaping, lighting, public art, comfort stations, street furniture, picnic facilities, bicycle racks, signage, etc. These facilities should be accessible to all persons and designed to accommodate elderly and physically disabled persons.

Policy W2.11 Disseminating Public Information. Waterfront development should incorporate public, educational and interpretive information for waterfront activities to encourage public knowledge and understanding of the historic, cultural, economic, and environmental context.

The Open Space, Conservation, and Recreation Element of the General Plan addresses many facets of this objective. The policies in this section offer further guidance for the function, protection, and preservation of Oakland’s unique waterfront.

Policy W3.1 Requiring Consistency with Conservation Objectives and Policies. Waterfront objectives, policies, and actions regarding geology, land stability, erosion, soils, water quality, flood hazards, wetland plant and animal habitats, and air quality and pollutants, shall be consistent and in compliance with the 1996 Open Space, Conservation, and Recreation Element of the City's General Plan.

Policy W3.2 Enhancing the Quality of the Natural and Built Environment. The function, design and appearance, and supplementary characteristics of all uses, activities, and facilities should enhance, and should not detract from or damage the quality of, the overall natural and built environment along the waterfront.

Policy W3.3 Protecting and Preserving Wetland Plant and Animal Habitats. Native plant communities, wildlife habitats, and sensitive habitats should be protected and enhanced.

Policy W3.4 Preserving Views and Vistas. Buildings and facilities should respect scenic viewsheds and enhance opportunities for visual access of the waterfront and its activities.

COORDINATION, IMPLEMENTATION, AND MONITORING

Objective W4

Establish comprehensive approaches to waterfront issues, implementation, and monitoring efforts.

Although different in mission, focus, and authority, the Port of Oakland, Oakland Base Reuse Authority, and the City of Oakland have mutual interests in working together proactively to solve waterfront-related land use and circulation issues. Continuing to work together on comprehensive planning, procedural, and implementation issues is critical if a vital waterfront that is responsive to the needs and desires of business, residents, and visitors is to become real and sustainable.

Policy W4.1 Creating Coordinated and Comprehensive Approaches. Public agencies and jurisdictions involved in waterfront matters should work together in a cooperative and coordinated way and strive for consistency among general planning, strategic planning, and specific planning practices and programs.

Policy W4.2 Considerations for the OBRA Process. The Oakland Base Reuse Authority (OBRA) process should consider issues affecting West Oakland including: public access and public safety to the waterfront, open space, and amenities; buffering of heavy industrial and transportation uses on residential neighborhoods; and potential job creation and other economic benefits generated as a result of the Army Base re-use. (See also the Industry and Commerce Policy Framework section.)

Policy W4.3 Coordinating Permit Process Procedures. The City and Port should ensure that the permit process procedures for waterfront development are coordinated and efficient while providing for public notification and input.

Policy W4.4 Public Access Plan. The City, Port, and Bay Conservation and Development Commission (BCDC) will complete a public access plan for the entire waterfront which will then be adopted by the City, Port, and BCDC, as appropriate.

SEAPORT & AIRPORT/GATEWAY SHOWCASE DISTRICTS

Seaport Showcase

"Passenger and goods movement through the port via ship and rail is increasing substantially."

- John Glover, Port of Oakland

Oakland's position as a leading West Coast seaport and a key airport enhances and promotes the City' economy. These facilities are the major international gateways in northern California and serve as hubs of national, regional, and local transportation networks. Policies support expansion of the seaport and airport and improvements to the intermodal transportation networks on which they rely. Oakland can also capitalize on increased seaport and airport activity by attracting related commercial and industrial uses, leading to even greater economic benefits and jobs for the City.

Harbor and seaport activities have had a formative effect on the City's population, industry and commerce. The seaport is a gateway for goods, and like the airport it is dedicated to transportation activities that allow for the efficient movement of cargo. At the same time, seaport activity creates economic benefits that reach to many other sectors of the economy and the region.

Facts and Figures

Seaport and maritime activities of the Port of Oakland are located on almost 700 acres of the outer and middle harbor areas of Oakland. In 1996, the Port of Oakland was the third busiest port on the west coast and the fourth busiest in the United States. The seaport plays an important role in the economy of Oakland and the region. The Port of Oakland loads and discharges 98% of all containerized cargo sent through the Golden Gate. Its 30 deep water berths and 30 container cranes are supported by a network of local roads, interstate freeways, warehouses, and intermodal rail yards which are necessary to move cargo to final destinations. A significant percentage of the freight that passes through the port is transported to or from the area through the Union Pacific and Burlington Northern/Santa Fe railroad terminals.

From 1985 to 1995, the Port experienced a 74% growth in revenue tonnage. Principal exports in 1995 included fruits, nuts and vegetables, wastepaper, meat and poultry, chemicals, wood and lumber, and industrial machinery. Principal imports in the same year were auto parts, computer equipment, clothing, meat, lumber, and iron and steel. Direct employment in seaport activities was 8,800 in 1995. Seaport activities that year were estimated to have a total economic impact of $1.3 billion.

Vision for the Future

Continued success of the seaport is strongly supported by the Element. The Policy Framework envisions the expansion of seaport activities and facilities, coupled with measures to minimize

effects of land use conflicts felt in nearby West Oakland neighborhoods. Opportunities for additions and changes to facilities are offered by potential expansion of Port activities onto portions of former military installations (FISCO, Oakland Army Base) being planned through the Oakland Base Reuse Authority process. Consolidation in the railroad industry make possible changes to the extensive rail yards that are part of the Seaport, and improved access offered by the new Cypress Freeway. Other physical changes to the Seaport area will include completion of the Joint Intermodal Terminal and provision of public shoreline access at locations previously unavailable to the public.

Significant investments are proposed to strengthen Oakland’s competitive ability as a major West Coast seaport and to provide facilities for substantial expansion of the Port’s cargo handling capabilities. These include the next phase of channel dredging to accommodate modern vessels, development of a major intermodal terminal/rail facility, and substantial enlarging of land acreage for maritime operations (including FISCO) allowing development of additional container-ship berths and adjacent terminal areas.

Achieving the Vision

The majority of the seaport, including most of the FISC site, is given a designation of “General Industry and Transportation” on the Land Use Diagram. The Army Base, which is scheduled to revert to civilian use, is undergoing planning through the Oakland Vase Reuse Authority (OBRA). The Land Use Element designated the Army base west of Maritime as General Industrial and Transportation, and east of Maritime as Business Mix, to reflect the economic importance of this area to the city as a whole. The Army base represents one of the last remaining large tracts of land available for industrial development at a large scale. The “finger piers” at the foot of Maritime near Middle Harbor Road are designated as Open Space. (The General Plan land use classifications are described more fully in Chapter 3). Access for cars, bicycles, and pedestrians will need to be developed and maintained to reach the bay Trail, the new park planned for the Finger Piers, and to the new park planned for the Bay Bridge terminus.

Several transportation improvements critical to expanding seaport capacity are described in general terms on the Transportation Diagram and in the Strategic Transportation Improvements section of Chapter 3. Bound by the City’s General Plan, the Port of Oakland will implement both the land use and transportation components of the Element by developing those activities consistent with the mission of the seaport and with its continued growth and success. The Port is also participating

with the City and the Bay Conservation and Development Commission in planning for increased public access to the shoreline.

Resolution of conflicts between the Port, seaport users, and West Oakland neighborhoods adjoining the seaport will be achieved in part through implementation of the Land Use and Transportation diagrams and, more importantly, through a commitment to enforcement of existing regulations regarding parking and container storage.

Airport / Gateway Showcase

⬚ figure

The Metropolitan Oakland International Airport (MOIA) is a point of destination and departure for both people and goods—a true international gateway to Oakland. The Airport Showcase is devoted to the safe and efficient movement of people and cargo, promoting both economic growth and mobility. Aviation activities at the airport are linked to local, regional, and national transportation systems—to trucks, buses, BART, the Interstate Highways and local streets.

The airport fuels other businesses by providing related support services and products. Airport operations stimulate cargo and distribution operations, as well as visitor-serving businesses in the Hegenberger Road corridor. The airport’s success in moving both cargo and passenger traffic necessitates planning and facility development to meet growing demand.

Facts and Figures

Established by the Board of Port Commissioners of the City of Oakland in 1927, the airport occupies 2,600 acres in the southwestern corner of the City. MOIA is the most centrally-located airport for travelers and cargo customers in the San Francisco Bay Area. Convenience and the breadth of passenger and cargo services have promoted continued increases in both passenger and cargo movement over the years.

In 1996, close to 10 million passengers used the 11 major domestic and international airlines based at the MOIA. Weekly, more than 1,200 commercial flights connect Oakland to cities throughout the US, Canada, Mexico and Europe. Further, MOIA handles nearly half of all Bay Area air cargo, moving more than one billion pounds of air freight and over 76 million pounds of air mail in 1996. The success of the Airport’s cargo operations has helped to attract other distribution and air cargo businesses to the area in and around the Airport and plays a key role in the economic development future for Oakland and the immediate region.

The airport creates substantial social and economic benefits for the City and region. Approximately 7,400 people are employed in aviation-related jobs, mostly in and around the airport, with 2,200 of them in cargo-related jobs. This level of employment represents about 1% of all employment in Alameda County. Annual economic impact of airport activities was estimated in 1994 at over three billion dollars, with over $50 million paid annually in state and local taxes.

Vision for the Future

Recognizing the Airport’s importance to the City and region, the General Plan’s vision is to capitalize on the economic benefits of the airport and jobs created by its growth, and to improve the Hegenberger gateway into a regional attraction. The Elements also support continued growth in related activities such as cargo handling and distribution, visitor accommodations and services in the Hegenberger Road area, and transportation services to provide access for airport patrons and employees.

Growth at the Airport highlights the need for much-needed improvements (which are underway) in the vicinity of Hegenberger Road and 98th Avenue. Direct access to the airport via 98th Avenue has been completed, and improvements to Hegenberger are expected to attract more businesses, serving visitors and residents, and to provide the confidence in the area’s future needed to spur additional private investment.

The Port of Oakland is proposing a major expansion of cargo and passenger facilities, called the Airport Development Program (ADP). Intended to accommodate close to 14 million air passengers per year by the year 2000, the program includes improvements to both the airport itself and the transportation system serving it. Passenger and air cargo terminals will be improved, airline support facilities added, landside access improvements made, and additional parking and rental car facilities constructed as part of the program. It is probable that over the 20 year life of the General Plan, further facilities improvements will be made at the Airport.

One of the ADP transportation improvements is the Airport Roadway Project, a voter-approved project by the Alameda County Transportation Authority in cooperation with the Port of Oakland, the City of Oakland, and the City of Alameda to improve access to the Airport and Harbor Bay Isle in Alameda. Another Showcase transportation project is a new connection between BART and the airport using fixed-guideway technology. (See description of Transportation Improvements in Chapter 3.)

Full construction of the Airport Development Program would support the creation of about 2800 new aviation jobs and 3,000 new induced jobs by the year 2000. By 2010, 4,800 new direct jobs and 1,700 new induced jobs would be created, for a total of almost 23,000 jobs related to Airport activity.

Achieving the Vision

The pattern of classifications on the Land Use and Transportation Diagram reflects the Showcase's multiple functions. The Airport itself is mapped for "General Industry and Transportation" use. That classification will permit aviation-related and commercial operations including aircraft maintenance and repair as well as normal terminal operations and operations of related facilities such as car rental, food service, gift shops, etc.

The Hegenberger Road frontage is designated for regional commercial uses to capture the potential of the corridor to serve as a more attractive gateway to the City, especially in the airport area. Key areas for new hotels and region serving commercial areas, as well as business mix areas are located along Hegenberger both east and west of the freeway. The Business Mix designation allows for a wide range of activity, including cargo handling and distribution businesses associated with Airport operations. 98th Avenue, recently widened and modernized to accommodate increasing airport traffic, is expected to serve as the primary route to and from the airport, serving travelers on both I-880 and I-580 with direct access to terminals.

The Martin Luther King Regional Shoreline and the Galbraith Golf Course, to re-open in the year 2000 as the City's premiere municipal golf course, enhance the Showcase environment. Natural resource areas presently existing will be expanded with implementation of Port plans for an extensive wetlands restoration project and interpretive area.

Planning for the Metropolitan Oakland International Airport requires a multi-jurisdictional orientation because the boundaries of the airport adjoin land in the neighboring cities of Alameda and San Leandro as well as Oakland. Airport operations and changes in facilities and activities must account for input from neighboring jurisdictions concerned about impacts relating to safety, traffic, and noise. A unique interjurisdictional cooperative planning effort between the City, Port, and San Leandro is underway to create a spectacular gateway with a unified theme. Additionally, a number of regulatory and planning agencies, including the Federal Aviation Authority, the Alameda County Land Use Commission, and the Bay Conservation and Development Commission, concern themselves with Airport operations, plans, and impacts.