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corridors
east 14th/international
• plans el camino real
san pablo avenue
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Plans - East 14th Street and International Boulevard
Planned Land Use The land use plans
for Oakland, San Leandro, and unincorporated Alameda County all identify
the East 14th Street/International Boulevard corridor as a target area
for growth. This is largely in recognition of the high levels of transit
For the most part, the plans call for higher-density, mixed use development on parcels adjacent to the street. Some increases in housing densities and a greater emphasis on mixed-use is planned for the areas around BART stations near the corridor, such as West Oakland, Fruitvale, San Leandro, and Bay Fair. San Leandro also promotes this type of development as a way to foster pedestrian-oriented neighborhood commercial centers at key intersections along the corridor. The plans, however, largely protect the existing uses and densities of the residential neighborhoods that surround East 14th/International, so those areas without transit are expected to remain mostly unchanged. This is particularly true for East Oakland and North/Northeast neighborhoods of San Leandro.
While every jurisdiction along the corridor targets East 14th/International for future growth, the amount and scale of growth varies. Oakland is planning for more growth and higher densities than either San Leandro or Alameda County. For example, Oakland allows densities of 125 units per acre in its highest density areas, and 11 units per acre in its lowest density residential areas. For much of the corridor, Oakland encourages the incorporation of mixed housing types, such as duplexes and small multi-unit buildings, into existing residential neighborhoods.
In San Leandro, most of the residential neighborhoods along East 14th Street are planned for densities of 3 - 6 units per acres, with a maximum of 25 units per acre allowed in high-density areas, which are primarily located near downtown. Along the corridor, most change is expected to happen in the downtown area and near Bayfair Shopping Center. The planning processes currently happening in these two areas, which include the city's BART stations, may lead to higher densities. This is particularly true for the downtown area, where draft plans call for significantly higher densities and a greater emphasis on incorporating a mix of uses.
While protecting the character of existing neighborhoods is important, this goal can limit opportunities to create transit and pedestrian-oriented neighborhoods that provide housing and transportation choices for residents. This is a particular concern around the Bay Fair BART station, which is surrounded by predominantly low-density neighborhoods. This, in combination with the adjacent auto-oriented shopping center, reduces the chances for providing sufficient housing to support the BART station and to make the area a vibrant, walkable district.
Based on the General Plans for Oakland, San Leandro, and Alameda County, Oakland is the only jurisdiction on the corridor where planned land uses will support densities that provide housing and transportation choices for residents. Although all three jurisdictions identify the corridor as a target area for growth, the specified densities and focus on protecting existing low-density neighborhoods means that much of the corridor will remain auto-dependent commercial and residential areas. In addition to the General Plans for the three jurisdictions, there are a number of specific plans that guide land uses on East 14th/International:
•The North Area Specific Plan and Revitalization Manual (1991) •Ashland and Cherryland Business Districts Specific Plan (1995) •East 14th Street South Area Development Strategy (2004) •Downtown Transit-Oriented Development Strategy (Ongoing)
These plans affect the length of East 14th Street in San Leandro and Alameda County. All of them target East 14th for a mix of commercial, residential, and institutional uses. In particular, they focus on encouraging mixed use clusters to create neighborhood activity centers. These pedestrian and transit-friendly areas would be the focal point for the surrounding neighborhoods. Over time, the plans call for some of the areas along the corridor between activity centers to transition away from low-density, auto-oriented uses to a mix of moderate and higher-density housing or office uses. The ongoing development of the Downtown Transit-Oriented Development Strategy in San Leandro focuses on increasing the linkages between East 14th Street and the BART station, while encouraging more mixed use and housing development.
Planned Housing The Housing Elements
of the jurisdictions along the corridor demonstrate the potential for
increased housing choices along East
These policies have the potential to increase housing choices throughout the corridor. As mentioned earlier, Oakland is planning for significantly higher densities along the corridor than the other jurisdictions. Oakland's land use designations for the residential neighborhoods adjacent to the corridor also promote the inclusion of a wider variety of housing types along the single-family homes. Oakland, however, has focused its planning efforts on increasing housing production and choices in the downtown area, as part of the 10K Initiative. In San Leandro, almost all of the future housing sites identified in its Housing Element are along the East 14th Street corridor, with a particular emphasis on the downtown area. For unincorporated Alameda County, much of the land along East 14th between 159th and 164th Avenues has been designated for future transit-oriented housing development.
The Housing Elements for the three jurisdictions also show the efforts they are making to provide more affordable housing. Each of the jurisdictions has implemented a variety of policies to preserve and enhance affordable housing options. Given the high cost of housing in the Bay Area, however, it is not clear whether they will be able to provide sufficient affordable housing units to meet the need.
All of the jurisdictions
have programs to maintain and rehabilitate the existing housing stock,
preserve affordable units, and
San Leandro is notable for its inclusionary housing and condominium conversion policies. San Leandro's inclusionary policy was changed to increase the percentage of affordable units required, apply to a broader range of projects, and require both very low and low-income units in every development. San Leandro's condominium conversion policy protects the city's stock of rental housing by stipulating that conversion can only occur if the vacancy rate for multi-family housing is 5 percent or less. It also requires that 25 percent of the converted units are affordable to low and moderate-income households.
In contrast, neither Oakland nor Alameda County has adopted a mandatory inclusionary housing policy. In addition, Oakland is considering changes to its condominium conversion policy that, without additional requirements, could adversely affect housing choices for the city's renters without achieving its intended goal of providing more affordable home ownership opportunities.
The land use plans for the jurisdictions along East 14th/International allow for an estimated 157,000 units within one-half of a mile of the corridor. This is approximately 88,000 more units than currently exists in this area. This exceeds the regional projections for the area by approximately 60,000 units. This is entirely the result of the significant amount of housing production called for in Oakland's General Plan. The maximum number of housing units allowed along the corridor in both San Leandro and Alameda County fall short of the regional projections for those areas. Given the realities of housing production, however, it is not likely that jurisdictions will build as many units as planned, and the number of units produced may be considerably smaller.
Planned Transportation Transportation improvements for the East 14th Street/International Boulevard corridor are guided by seven plans:
•AC Transit Short Range Transit Plan for 2003 - 2012 (2003) •Alameda County 2004 Countywide Transportation Plan (2004) •East 14th Street/Mission Boulevard Master Plan (1999) •Pedestrian Master Plan for Unincorporated Areas (2006) •Alameda Countywide Strategic Pedestrian Plan (2006) •Alameda Countywide Bicycle Plan (2006) •Bicycle Master Plan for Unincorporated Areas - DRAFT (2006)
Transit In its short Range Transit Plan for FY 2003 - 2012, AC Transit acknowledges the key role that density of land uses plays in determining transit ridership. The plan outlines AC Transit's policy to concentrate resources and service increases on the most heavily used routes that operate in the most densely populated areas.
As a result, the East 14th Street/International Boulevard/Telegraph Avenue corridor has been identified as the highest priority for receiving upgrades to implement Bus Rapid Transit (BRT). When fully implemented, BRT will consist of a dedicated bus-only lane to speed service, more frequent buses, and transit stations with amenities, such as shelters, benches, and real-time bus arrival information. BRT also includes additional features to speed service, such as traffic signal priority, boarding platforms that are level with the bus floor, fare machines so patrons can buy tickets before getting on board, and stops that are placed farther apart. AC Transit anticipates that BRT will be implemented in two phases, the first of which consists primarily of traffic signal priority and amenities at bus stops. Funding for the project is included in the Alameda County 2004 Countywide Transportation Plan.
AC Transit is also planning service improvements for buses along Hesperian Boulevard, which might improve services for riders in the Bay Fair area. Other than these two improvements, AC Transit is not expecting to change bus service significantly along the corridor. This is a particular concern for West Oakland, which is served by fewer routes than other neighborhoods along the corridor and which will not receive the benefits that result from implementation of BRT. The Ashland neighborhood in unincorporated Alameda County is another area where fewer services exist and which will not be served by BRT.
The Central Alameda County Community-Based Transportation Plan proposes a number of potential solutions for improving transportation choices in the areas along East 14th Street in unincorporated Alameda County. In particular, the Plan focuses on the need for expanded bus service with more frequent buses and extended hours. The Plan also identifies a significant need for better dissemination of information about transit options, including translation of materials into multiple languages. Suggestions for improving community knowledge about transit services include shows on local television stations, a transportation information center, and more comprehensive information at bus stops and on buses.
Walking The combination of proposed land use changes and streetscape improvements included in the plans for East 14th/International should help to improve the walkability of the corridor. All of the plans for East 14th/International propose an increase in mixed use development along the corridor, particularly in those areas around neighborhood commercial centers and transit stations. In these areas, the mix of uses is intended to encourage pedestrian activity and transit use, while establishing a vibrant focal point for the surrounding community. All three jurisdictions encourage creation of these kinds of districts by focusing retail and commercial development in these areas, while promoting additional housing development in areas along the corridor that are not activity centers.
Some of the jurisdictions have also adopted policies that specifically promote walking over vehicle use. Oakland's General Plan states that pedestrian traffic should take precedence over automobile traffic in neighborhood activity centers and transit-oriented districts. San Leandro accepts a lower Level-of-Service (LOS) for traffic in its downtown in recognition of its importance as a pedestrian zone. These cities are also encouraging alternative parking strategies, such as reduced parking ratios or shared parking, to encourage pedestrian activity in key areas, such as downtowns and near transit.
There is significantly less emphasis on encouraging pedestrian activity in the neighborhoods that surround the corridor. Many of these areas are low-density residential neighborhoods where automobile use dominates. Throughout Oakland and in downtown San Leandro, these neighborhoods are primarily built on a street grid, which makes navigating the areas easier for pedestrians. Most of the other neighborhoods, however, are based on suburban-style patterns, with cul-de-sacs and long blocks that limit connectivity and make walking more difficult. For the most part, the land use plans for these areas continue the established pattern and do not focus on changes that might make them more pedestrian-friendly.
Although each jurisdiction is planning for pedestrian improvements to provide better links to their BART stations along the corridor, there is currently only one project underway to improve the streetscape along East 14th/International itself. This project is in unincorporated Alameda County from the San Leandro border to Highway 238. Its purpose is to improve the visual appearance of the corridor using strategies such as putting utility lines underground, widening sidewalks, and adding a landscaped median, street trees, curb bulb-outs, and improved lighting.
The City of Oakland has several plans that include specific proposals to improve pedestrian access. The Downtown Oakland Streetscape Master Plan identifies East 14th Street/International Boulevard as the most important crosstown street in the downtown, and suggest improvements such as corner bulb-outs, street trees, and improved lighting. The Lake Merritt Park Master Plan proposes the creation of a continuous off-street pedestrian/bicycle path around the lake. Creation of this pathway would require a reduction in vehicle travel lanes for the streets along the lake and the removal of pedestrian tunnels, both of which would likely improve pedestrian safety around the lake. Finally, the Estuary Policy Plan calls for the creation of a parkway along the city's waterfront that would focus on pedestrian and bicycle traffic, with connections to the Bay Trail.
A major pedestrian
improvement proposed for the corridor as a whole is the development
of a pedestrian and bicycle path
Additional improvements to the corridor are supported by the Alameda County Strategic Pedestrian Plan, which identifies the East 14th/International corridor, all BART stations, downtown Oakland and San Leandro and other key sites along the corridor as areas of "countywide significance," and thus a priority for funding.
Bicycling The bicycle plans that affect East 14th/International have the potential to increase bicycle access to some portions of the corridor. There are very few opportunities, however, for connecting to routes that cross the corridor. In addition, the bicycle plans along the corridor do not present a unified vision about key bicycle routes, which is likely to make implementation more difficult.
The bicycle plans for the corridor are divided about whether East 14th/International should be a primary bicycle route. The City of Oakland Bicycle Master Plan proposes the addition of bicycle lanes on International Boulevard from Lake Merritt to San Leandro and the Bicycle Master Plan for Unincorporated Areas recommends a signed bicycle route on East 14th Street from the San Leandro border to Highway 238.
In contrast, other bicycle plans call for north-south routes on portions of East 12th Street in Oakland, along the BART tracks, and along MacArthur Boulevard/Bancroft Avenue. In Oakland, the Alameda Countywide Bicycle Plan designates East 12th Street and San Leandro Street as the primary north-south bikeway between downtown Oakland and the Bay Fair BART station. This Plan identifies the addition of bike lanes on East 12th Street between Oak Street and Fruitvale as a high priority project.
Both the Alameda Countywide
Bicycle Plan and the Bicycle Master Plan for Unincorporated Areas support
creation of a
Other proposed projects focus on filling in the gaps on the existing north-south routes along MacArthur Boulevard/Bancroft Avenue. This includes extending existing bicycle lanes along Halcyon Drive/Fairmont Drive in San Leandro to the east across East 14th Street and continuing on Foothill Boulevard. This would connect with existing bicycle lanes along Hesperian Boulevard.
Oakland is also planning for a pedestrian/bicycle pathway around Lake Merritt and a parkway with walking and bicycle paths along the waterfront. In addition, connections that cross East 14th Street/International are proposed along Market Street in West Oakland, Fruitvale Avenue, and 73rd Avenue in East Oakland. In San Leandro, the primary east-west route is on Davis Street/Estudillo Avenue, which travels through downtown.
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service along the corridor. As a result, the specific areas targeted
for growth tend to be those within walking distance of transit, particularly
around BART stations. The downtown areas for both Oakland and San Leandro
are also identified as areas for significant future growth.
Alameda
County's Eden Area Draft General Plan largely protects low-density residential
areas around the Bay Fair BART station. Alameda County, however, is
planning for moderate-density housing (up to 22 units per acre) along
East 14th, especially around the key neighborhood commercial center
at the intersection with Ashland Avenue. Alameda County has also incorporated
language into its land use designations that specifically encourages
the types of mixed use projects that it would like to see developed.
14th/International.
As noted earlier, Oakland, San Leandro, and Alameda County all designate
the corridor as a target area for housing growth, a mix of uses, and
higher densities. To accommodate their housing need, each of the jurisdictions
has identified strategies that encourage higher densities, especially
near transit, and a wider variety of housing types. These strategies
include re-zoning sites at higher densities, establishing minimum densities
in some areas, reducing parking standards, and developing design guidelines
for infill, multi-family, and live-work developments.
provide
financial assistance to residents to enable them to afford to rent or
buy a home. The City of Oakland also protects renters with its rent
adjustment program that limits annual rent increases for existing tenants.
In terms of promoting new construction of affordable units, Oakland
has developed the most comprehensive set of policies. In particular,
Oakland has used a variety of strategies to increase the amount of funding
available for affordable housing development. These strategies include
increasing the percentage of redevelopment funds set aside for affordable
housing, implementing a commercial linkage fee, and issuing bonds for
affordable housing.
To
further the goal of creating walkable districts, many of the plans also
include design guidelines and development standards intended to create
more appealing environments for pedestrians. This is particularly true
in San Leandro, which has guidelines that encourage creation of a continuous
building facade along the street with parking behind buildings, adding
visual interest to storefronts, and putting the primary pedestrian entrance
on East 14th Street.
along
either the Union Pacific Railway right-of-way or underneath the BART
tracks. The pathway would extend from High Street in Oakland to Hayward.
This project is included in most of the pedestrian plans that affect
the corridor, and is highlighted as a priority in the Pedestrian Master
Plan for Unincorporated Areas.
pedestrian/bicycle
pathway along the Union Pacific right-of-way or the BART tracks. The
section of the BART Trail from the San Leandro border to Sunset Boulevard
in unincorporated Alameda County is considered one of the countywide
plan's "next highest priority projects."