Berkeley City Council
November 6, 2025

San Pablo Avenue Specific Plan WORKSESSION
November 6, 2025

 Side Street Plazas
The Specific Plan would explore converting minor
streets into side street plazas by limiting or removing vehicle access at intersections within San Pablo
Avenue.

Potential locations include streets that extend only a
few blocks east/west of San Pablo Avenue or that lack
a median break. (Figure 3.)
Plaza designs would allow emergency vehicle and
trash vehicle access, provide maneuvering space for
private vehicles on the side street to turn around, and maintain pedestrian and bicycle access to ensure
neighborhood connectivity.
 Support Use and Creation of Parklets
The Specific Plan would support the use of publicly
accessible parklets on San Pablo Avenue.

On side streets (including University Avenue), parklets could support outdoor dining and business activity,
particularly at nodes and corner locations.
 Bulb-Outs on Side Streets
Bulb-outs extend sidewalks into parking lanes,
shortening crossing distances, slowing turning
vehicles, and creating spaces for community use.

Bulb-outs would be limited to side street corners along San Pablo Avenue and University Avenue and may
not extend into San Pablo Avenue’s travel or parking
lanes.

Street trees, landscaping and green infrastructure, pedestrian lighting, outdoor seating, or public art could be included in bulb-out areas.

Developers may propose bulb-outs adjacent to new projects and maintain them under agreement with the City. To create an incentive for the private construction of bulb-outs, the Sidewalk Seating Permit fees for the first commercial use of a curb extension space are proposed to be waived for up to 10 years.
 Commercial and Other Private use of Sidewalks and the Public Realm Sidewalk frontage along San Pablo Avenue and other streets in the Plan Area could include outdoor seating, planters, or other private uses. Where new Figure 3. Potential Side
Street Plazas

San Pablo Avenue Specific Plan WORKSESSION
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development would widen sidewalks through public easements, the expanded space could also be activated for commercial use. To create an incentive for the private construction of widened sidewalks, permit fees for commercial sidewalk use would be proposed to be waived for up to 10 years from the date of first use.
 Privately Owned Public Open Space (POPOS)
The Specific Plan would incentivize POPOS in new commercial, multi-family, and mixed-use projects. POPOS types include plazas, courtyards, play areas, dog runs, or landscaped greens, and would be required to be open to the public during daylight hours (or extended hours to support adjacent businesses), with clear signage and a public access easement.  Mid-Block Passages
The Specific Plan proposes a mid-block passage requirement for new developments with large frontages. Mid-block passage would directly connect San Pablo Avenue or University Avenue sidewalks to parallel streets to improve block permeability. The policy would require mid-block passages to be at least 16 feet wide and 16 feet high, with unobstructed visibility between public spaces. Passages may function as pedestrian walkways, multi-use paths, or private streets with public access and would be required to include pedestrian lighting.

Objective Design Standards
The Specific Plan includes Objective Design Standards (ODS) to ensure that new development aligns with the overall goals of the Specific Plan. The ODS would apply to all new private development within the Specific Plan Area, as well as to major exterior renovations and additions, unless otherwise specified.

The ODS are intended to supplement the City’s Zoning Ordinance. The goal of the ODS is to provide clarity and predictability for applicants, decision-makers and the community while allowing for high-quality architectural expression.

The standards are organized by building type and design topic. Building types include:
 Small/Middle Housing: Townhomes, triplexes/quadplexes, multiplexes, and low- rise/courtyard apartments up to three stories tall.
 Medium/Mid-Rise Multi-Family Housing: Mid-rise buildings (typically 4–8 stories), including ground-level residential entries/stoops, podium buildings and wrapped multi-family structures.

San Pablo Avenue Specific Plan WORKSESSION
November 6, 2025

 Large/High-Rise Multi-Family Housing: Large scale, taller structures (typically 9– 12+ stories), often designed with podium and tower forms.

Design topics addressed in the ODS include:
 Building Modulation and Articulation:

These standards would require
medium and larger buildings to be
visually broken into smaller
components through changes in
height, massing, or setbacks.

Façades would be required to
incorporate variations in depth,
materials, and architectural details to avoid blank walls and to create interest at both pedestrian and street scales. Large/high-rise developments would be required to include a variety in building heights and reduced upper floor massing through step backs or a reduction of the podium-level area.

Standards would also include requirements for small and medium-sized housing types with specific standards for townhomes.
 Transitions to Lower Density Building Types:

Buildings adjacent to parcels zoned for residential would be required to incorporate a minimum ten-foot step back on
all floors above five stories.
 Roof Treatments, Fenestration, and Materials:

ODS would require variation in rooflines, with
clear distinctions between podiums, towers,
and parapets to create identifiable building
tops. Window design standards would be
intended to ensure adequate transparency
and rhythm while avoiding monotonous
patterns. Materials must be durable, high-
quality, and varied, with a focus on creating
depth and shadow and lower floors should
incorporate materials that reinforce pedestrian activity zones, such as storefront glazing, tile, or stone accents.
 Ground Floor Design
Ground floors facing San Pablo Avenue and key side streets would be required to promote active uses, safety, and pedestrian comfort. ODS would

San Pablo Avenue Specific Plan WORKSESSION
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establish four ground floor types: Storefront, Residential, Live/Work, and Other Non-Residential.

Standards would require minimum transparency levels for commercial frontages, frequent entrances, and proscribed weather protection elements such as awnings or recesses. Residential entries would be clearly identifiable, would provide a sense of transition from public to private space, and contribute to the overall character of the street. ODS would also encourage outdoor seating, landscaping, and other features that reinforce the corridor as an active and inviting public realm.
 Common and Private Open Space
ODS would promote high-quality outdoor areas within new developments to balance private and share spaces. POPOS would be encouraged at key nodes to activate the corridor and provide community gathering opportunities.

Personal private spaces, such as balconies or patios, would be required for individual dwelling units. ODS would be intended to ensure usability, privacy, accessibility, and integration into overall site and building design.  Site Design
New developments would be required to create connected, walkable sites that prioritize pedestrians while managing vehicle access and parking in a way that minimizes impacts on the public realm. Mid-block passages, internal pedestrian pathways, and well-lit connections would be required in larger projects to improve access and safety. Parking areas and entries would be required to be screened or wrapped by active uses, with standards for frontage design and garage treatments. Utilities, service areas, and refuse collection would be required to be fully integrated into buildings and landscapes to reduce visual and pedestrian impacts.
 Public Art
Public art would be required in larger private development projects. Art would be required to be in visible, accessible areas, especially at key nodes, plazas, or POPOS to activate spaces and enhance community character. Developers are encouraged to collaborate with local artists to ensure that art reflects neighborhood culture and values, whether integrated into building design or provided as stand-alone features.

San Pablo Avenue Specific Plan WORKSESSION
November 6, 2025

Figure 4. Intersection of West Berkeley Plan Area
and San Pablo Avenue Specific Plan Area

San Pablo Avenue Specific Plan WORKSESSION
November 6, 2025

West Berkeley Plan
A portion of the San Pablo Avenue Specific Plan (SPASP) area overlaps with the boundaries of the West Berkeley Plan (WBP)1. The WBP, originally adopted in 1993 and amended in 2011, serves as the guiding document for land use, economic development, and urban design within the West Berkeley area.

As part of the Specific Plan process, and because the Specific Plan would supersede portions of the WBP where the two plans overlap, the project team conducted a review of the WBP’s implementation status (Figure 4). Staff’s assessment found that the majority of the WBP’s implementation measures have been completed (Attachment 3).

The evaluation also reaffirmed that the WBP is primarily implemented through the City’s zoning ordinance.

Retirement of the WBP could simplify future policy development in West Berkeley.

Each time a new policy potentially conflicts with the WBP, it requires an amendment to the WBP. As the WBP is part of the General Plan, any such amendment is subject to the requirements of a General Plan amendment. Retiring the WBP would remove these additional requirements, streamlining and expanding the City Council’s discretion in the policy development process in West Berkeley.

Another option is for the City Council to direct staff to propose only those amendments to the WBP that are necessary to enact the policies included in the Specific Plan. These amendments would focus on the proposed changes to the development standards along San Pablo Avenue, and new policies and programs proposed for San Pablo Avenue. Other aspects of the WBP—including policies regarding manufacturing zoning districts and protected uses—would be unchanged.

BACKGROUND
Plan Bay Area 2050 (2021) is the long-range regional planning effort undertaken by Metropolitan Transportation Commission (MTC) and the Association of Bay Area Governments (ABAG) to outline strategies for growth and investment in the nine-county Bay Area through the year 2050. Plan Bay Area 2050 envisions new development concentrated in Priority Development Areas (PDAs), which are places with convenient public transit services prioritized by local governments for housing, jobs and services.

Jurisdictions with PDAs have access to dedicated funding for plans and infrastructure improvements focused in those areas.

In December 2020, MTC and ABAG released a Call for Letters of Interest for $7.8 million in PDA Planning and Technical Assistance funds for jurisdictions in the Bay Area Region. The City of Berkeley submitted a Letter of Interest in February 2021, and was awarded $750,000 in PDA Planning Grant Funds for the San Pablo Avenue Specific 1 The West Berkeley Plan can be found here: https://berkeleyca.gov/your-government/our-work/adopted- plans/west-berkeley-plan

San Pablo Avenue Specific Plan WORKSESSION
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Plan. The terms of the grant require the San Pablo Avenue Specific Plan be completed by the end of 2025.

The San Pablo Avenue Specific Plan process formally began in June 2023. Since then, staff have provided a series of updates and community engagement opportunities to guide the development of the plan.
 September 3, 2023: Staff provided an off-agenda memo to City Council introducing the SPA SP process, overall project timeline, and key milestones.  November 1, 2023: At a Planning Commission meeting, staff presented an overview of the planning process, including the existing conditions analysis, the public outreach strategy, and an introduction to the project team.  January 24, 2024: The first public workshop was held, gathering community input on existing corridor conditions and priorities for future improvements.  April 3, 2024: Staff presented key findings from the January 2024 workshop to the Planning Commission and outlined next steps in the planning process.  September 9, 2024: A second public workshop was held at the Frances Albrier Community Center. Attendees participated in breakout sessions to evaluate potential improvements, identify opportunities for open space and community gathering, and discuss development concepts along the corridor.  December 4, 2024: Staff presented the Community Assessment Report to the Planning Commission. The report summarized the planning process to date and highlighted the key themes, issues, and goals identified through public engagement.
 October 29, 2025: The final public workshop was held at the Kala Institute.

Attendees participated in a workshop to provide comments and receive information on the potential policies and strategies in the draft Specific Plan.

ENVIRONMENTAL SUSTAINABILITY AND CLIMATE IMPACTS
There are no identifiable environmental effects or opportunities associated with this informational report. The proposed Specific Plan and associated zoning changes and General Plan amendments will be reviewed in accordance with the California Environmental Quality Act Guidelines (CEQA).

POSSIBLE FUTURE ACTION
Staff will compile and review all comments, along with City Council feedback and direction, to guide revisions to the Draft Specific Plan. A revised Draft Specific Plan, incorporating these edits, is anticipated to return to the Planning Commission and City Council for consideration by spring 2026.

San Pablo Avenue Specific Plan WORKSESSION
November 6, 2025

FISCAL IMPACTS OF POSSIBLE FUTURE ACTION
Implementation of Council direction will be carried out within existing resources.

Consultant support for drafting zoning standards is already funded through the current project budget. Any additional fiscal impacts related to the Specific Plan will be identified in future staff reports.

CONTACT PERSON
Robert Rivera, Senior Planner, Planning Department, (510) 981-7480 Attachments:
1: Community Assessment Report
2: Policy Options and Development Framework
3: West Berkeley Implementation Measure Assessment
4: Public Review Draft of San Pablo Avenue Specific Plan and Appendices

San Pablo Avenue Specific Plan
August 20, 2024 City of Berkeley
Community Assessment
Report
ATTACHMENT 1

San Pablo Avenue Specific Plan
Project Team
Community Design + Architecture
Urban Planning Partners
StreetL
evelAdvisor
InterEthnica
Aaron Welch Planning
Fehr & Peers
Diablo Engineering Group
Table of Contents
Chapter 1: Introduction � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � 3 Specific Plan Overview � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �4 Plan Process � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �6 Methodology � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �7 Chapter 2: Existing Conditions + Community Feedback � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �11 Community Demographics � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � 12 Community and Housing � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � 14 Land Use � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � 16 Public Realm and Open Spaces � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � 26 Transportation, Parking and Utilities � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � 30 Economic Development � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � 34 Chapter 3: Key Themes + Issues � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �39 Increase Business and Activity Along the Corridor � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � 40 Increase Housing Supply and Diversity � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � 41 Improve and Increase Interaction between Private and Public Spaces � � � � � � � � � � � � � � � � � � � � � � � 41 Improve the Public Realm � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � 42 Local Access � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � 43 2

Community Assessment Report
Chapter 1
Introduction
This Community Assessment Report (the Report) provides an overview of the San Pablo Avenue Specific Plan’s planning process to date and the findings associated with the existing conditions analysis and community input.

The Report includes:
1� Existing Conditions Summary Findings:

An overview of key demographics, land use,
housing, transportation and economic findings.

This summary is intended to help provide an
understanding of the context in which the
community operates�
2� Community Engagement Summary: A
description of the engagement approach which
includes a summary of the input received
from communi
ty members, stakeholders, and
other interested parties� This inpu t is provided
alongside the relevant existing condition
findings and lists community concerns,
priorities and aspirations�
3� Key issues and Themes: This section
details key takeaways from findings from the
community assessment and engagement
efforts. The key issues and themes will
inform the Specific Plan’s policies and
implementa
tion strategies to ensure future
development and public investment are
aligned with the community’s vision, needs,
and priorities�
3

San Pablo Avenue Specific Plan
Specific Plan Overview
San Pablo Avenue is one of the primary multi-
jurisdictional transportation corridors in the
East Bay, extending as a major boulevard from
the Carquinez Bridge to Downtown Oakland,
thro
ugh the cities of Hercules, Pinole, San Pablo,
Richmond, El Cerrito, Albany, Berkeley, Emeryville
and Oakland. The character and intensity of San
Pablo Avenue varies between towns; however,
it
s connectivity and diversity of uses establishes
it as a potential multi-model mixed-use corridor
in the East Bay� For tha t reason, San Pablo
Avenue has been the subject of multiple regional
planning efforts – such as the Association of Bay
Ar
ea’s (ABAG) East Bay Corridor Initiative and the
Alameda County Transit Commission’s (ACTC)
San Pablo Avenue Corridor Project� Berkeley has
taken part in these efforts and has also followed
the development and adoption of Specific Plans in
neighboring jurisdictions wi
th great interest.

San Pablo Avenue in Berkeley has undergone
much change – ranging from pedestrian safety
improvements to new mixed-use housing
dev
elopments to new commercial ventures.

Strong market demand for housing has led to
new development throughout the city, including
along San Pablo Avenue, and contributed to
State and Regional policies and programs that
require and support the city’s facilitation of
housing production� Berkeley recognizes that
without a vision and plan, housing projects will
not contribute to a cohesive community, public
investments may not effectively support changing
needs along San Pablo Avenue, nor will there be
coordination to meet community and regional
goals� In 2015 the City Co uncil recognized these
missed opportunities and requested development
of a San Pablo Avenue Plan, a comprehensive
planning process that will guide future
development on this important corridor�
The City initiated the planning process in 2023
to prepare a Specific Plan to articulate the
community’s vision for the future of San Pablo
Av
enue. The vision will identify improvements and
create a framework for creating a multi-modal
corridor that provides diverse opportunities
for living, working, shopping, and taking part in
community life along San Pablo Avenue. The
Specific P
lan will establish community-based and
context-sensitive policies, programs, standards,
and implementation actions to realize the
community’s vision.

The Plan and Study Area boundaries are described
below along with an overview of the Specific Plan
planning process�
Specific Plan Boundaries
The Specific Plan Boundary (Specific Plan
Area) encompasses the 2.35-mile corridor
along San Pablo Avenue, from the Berkeley/
Oak
land border in the south, to the Berkeley/
Albany border in the north. The Specific Plan
Area includes parcels fronting on and adjacent
to San Pablo Avenue� Additional ly, it covers
parcels along University Avenue between Ninth
Street and Curtis Street and about 100 ft along
some side s
treets as shown in Figure 1.

The Study Area includes the neighborhoods
and employment areas that are proximate
to and have a strong relationship with the
uses along San Pablo Avenue� The Study Ar ea
extends from the I-80 freeway in the west to
Sacramento Street in the east and from Albany
in the north to Emer
yville and Oakland in the
south as shown in Figure 1. The Study Area is
included in select analyses throughout the
Specific Plan process to gain an understanding
of the social and economic relationships
between S
an Pablo Avenue and surrounding
neighborhoods and districts�
Figure 1. Specific Plan Boundary Map
Graphic to the right:
4 Chapter 1 | Introduction

Community Assessment Report
5

San Pablo Avenue Specific Plan
Plan Process
The Specific Plan planning process includes three primary phases:
• Existing Conditions & Community Assessment
• Policy Development Recommendations
• Specific Plan Preparation
Community outreach and participation efforts occur throughout the entire planning process to ensure community inp
ut is received early, and informs key decision points in the process.

This Report is the culmination of the Existing Conditions and Community Assessment work including:
• Summary of Existing Conditions, Plans and
Programs included an assessment of existing
conditions and planning policies and programs
relevant to the Specific Plan Area. This work
was completed Fall 2023 and is included in
Appendix A
.
• Key Community Assets and Issues included
a comprehensive analysis of the community
outreach and engagement events (13 events)
held between Augus
t 2023 and May 2024.

The timeline below highlights complete and future community engagement opportunities. The preparation of the draft and final Specific Plan document is anticipated for 2025, with adoption in late 2025.

San Pablo Specific Plan Timeline
6 Chapter 1 | Introduction

Community Assessment Report
Methodology
This section outlines the data collection and analyses used for the Existing conditions report and describes the community engagement between August 2023 to June 2024.

Existing Conditions
The Existing Conditions analyses used quantitative and qualitative data to capture details unique to the Specific Plan and Study Area. Data collection and analysis included review of:
• Berkeley planning documents such as General
Plan elements, including the 2021-2031
Housing Element Update, Specific Plans, Area
Plans, and the Climate Action Plan�
• The City’s Municipal Code and Zoning
Ordinance.
• State Legislation and Regional Policies�
• Past and current planning efforts such as the
Alameda CTC San Pablo Avenue Corridor
Project, the City’s Vision Zero Action Plan and
Program 29 – Middle Housing, and Objective
Design Standards�
• Historical zoning documents, related to equity
and displacement, including Equity Priority
Communities data and reports from the
Metropolitan Transportation Commission (MTC).
• Commercial data and reports including the City
of Berkeley’s Office of Economic Development
2016 Economic Development Work Session,
and active business license records�
• Past and current demographic and population
data from the U.S. Census Bureau
Field study and direct observation of the corridor included two field surveys along the corridor from the Berk
eley/Albany border to the Berkeley/Oakland border in both directions. During the field study, the team observed and assessed existing parcels, public realm conditions including building frontages, sidewalk areas, and landscaping� Team member s attended community events, such as the SF Bay Brazilian Day and Lavagem Festival for additional observation opportunities. Team members also attended a San Pablo Avenue Bike Tour, led by Berkeley Design Advocates, on September 16, 2023, to view recently constructed, entitled and submitted projects along the corridor�
7 Chapter 1 | Introduction

San Pablo Avenue Specific Plan
Community Engagement
During this initial planning work, over 330
community members were engaged in 13 outreach
ev
ents and forums, and over 500 comments have
been received� Table 1 below outlines the events
conducted between August 2023 and May 2024.

During thes
e events, participants and members of
the community explored issues related to housing
and commercial development, economic markets,
including local business and retail activities,
placemaking, mobility, and personal safety in
the public realm� Through comments, interactive
activities, surveys, and stakeholder interviews
and small group meetings, community members
provided insight into their varied experiences living,
working, and spending time along and surrounding
San P
ablo Avenue, as well as traveling to and from
the corridor� The inpu t collected includes a range
of ideas, experiences, and priorities, however,
many similar comments and themes appeared
consistently throughout all outreach events�
The Specific Plan process has resulted in valuable
feedback throughout the community outreach
and engag
ement events. However, this report
acknowledges the limitations of the data and
participation process. Engagement can often
be disproportionate as some members are
more able to participate resulting in an unequal
representation of the Specific Plan and Study
Area community. This report reflects the full range
of feedb
ack received throughout all events, and
the planning process will continue to identify
strategies to reach a representative range of future
and existing residents within the whole Specific
Plan and Study Area community�
Event Summary
Key Community
Leader Interviews (5)
August 28-31, 2023. – Virtual on Zoom
Format: 5 qualitative interviews held for 60 minutes each Attendees: Community Based Organization Leaders & Small Business Owners Pop-up at Harvest
Festival
October 21, 2023. 11am - 4pm. – Harvest Festival at Cedar Rose Park Format: Pop-up stand with interactive elements to receive community feedback. The stand was staffed with city representatives to answer any questions�
Attendees: Visitors of the Harvest Festival, primarily Berkeley residents Received 26 comments and approx. 142 dots on interactive elements Targeted Intercept
Survey
November 2-12, 2023. – In-person along San Pablo Avenue Format: Quantitative survey, designed to be completed in under 10 min Audience: San P
ablo Avenue users
222 in-person interviews
Table 1: Community Outreach Events
8 Chapter 1 | Introduction

Community Assessment Report
Event Summary
Community Open
House
(Appendix F)
January 24, 2023. 5:30am - 7:30pm. – Berkeley Adult School multipurpose space Format: Introduction presentation, followed by drop-in style open house with 7 stations and interactive elements to receive community feedback. The event was s
taffed by the project team to answer any questions.

Attendees: Approximately 80 community members and Berkeley residents with interest on San Pablo Avenue�
Received about 270 comments
Public Meeting December 9, 2023. 10:00am - 12:00pm. – Berkeley Neighborhood Council, Virtual
Format: Staff gave a brief presentation and answered questions from the Berkeley Neighborhood Council.

April 3, 2024. 6:00pm. – P
lanning Commission, North Berkeley Senior Center
Format: Public Hearing – Staff gave a brief presentation updating the Commission on the status of the Specific Plan and provided an overview of the Community Open Ho
use. Commission asked staff questions and provided
comments�
May 2, 2024. 7pm - 11pm. – Berkeley Housing Advisory Commission, South Berkeley Senior Center
Format: Public Hearing – Staff gave a brief presentation updating the Commission on the status of the Specific Plan and provided an overview of the Community Open Ho
use. Commission asked staff questions and provided
comments�
Small Group Meetings
(5)
Residents: October 17, 2023. 5:30pm. – West Berkeley Library Small Businesses: November 8, 2023. – City Hall at 5:30pm.

Community Based Organizations (CBOs): November 14, 2023. 12:00pm. – City of Berkeley Offices
Architects and Developers: March19, 2024. 12:00pm. – City of Berkeley Offices Large Employers, Developers, and Land Owners: May 28, 2024. 9:30am. – Virtual on Zoom
Format: In-person group discussion with intro presentation, with exception of the Major Employers Group Meeting, which was held virtual on zoom Attendees: 7 Residents of adjacent neighborhoods; 3 small business owners; 2 CBO representatives of Rebuilding Together and David Bower Center; 10 archi
tects and developers; 5 representatives of major employers and consultants
9 Chapter 1 | Introduction

10 San Pablo Avenue Specific Plan

11 Community Assessment Report
Chapter 2 of this report provides a summary of the Plan Area’s existing conditions and input received from the community. The existing conditions summary provides a high-level overview of the more detailed Existing Conditions Assessment Report included in Appendix A. The Existing Conditions Assessment was prepared in Fall 2023. The following section highlights analyses related to the Existing Conditions Assessment and integrates pertinent feedback received from community members, stakeholders and other relevant parties.

Chapter 2
Existing Conditions +
Community Feedback

San Pablo Avenue Specific Plan
Community Feedback: Equity and Diversity
• Several community comments expressed
appreciation for the racial and ethnic diversity
of San Pablo Avenue and surrounding
neighborhoods. Fear that new developments and
influx of new residents will increase gentrification
and displace marginalized community members
was also expressed.
• Overall, many community members support
increased housing, specifically affordable housing
(rentals), condominiums (owned), and senior
housing.

A demographic analy
sis was conducted for the Study Area to highlight characteristics of the community in the area over time.

Population
The Study Area’s population in 2020 was 26,360.

The population grew 16% between 2010 to 2020,
repr
esenting 22% of the city’s total population and
outpacing the city’s overall population growth of
9% to122,580 people in the same period.

Racial and Ethnic Diversity
Growth in racial and ethnic populations has
been disproportionate, resulting in an uneven
demographic chang
e within the Study Area. From
2000 to 2020, the White population increased by
over 3,900 (+45%), while the Black population
decreased by over 2,600 (-39%), see Figure 3. The
population increase of Hispanic/ Latinx, Asians/
API, and other races during that period was
moderate. The Study Area is still diverse with the
percentage of the Black population in the Study
Area being higher than the percentage citywide,
see Figure 4.

The Study Area displays greater diversity overall
compared to the city and county, and the
percentage of Black population is higher in the
Study Area.

The Study Area has a history of land use and
economic policy that excluded Black, Asian, and
other racial and ethnic groups from other areas
of Berkeley. The majority of the Specific Plan and
Study Area is a historically redlined area. Although
effectively eliminated by 1966 by the Supreme
Court, impacts are still seen today as areas that
were redlined are often found to be more prone
to r
acial and economic segregation, economic
inequality, risk of displacement, and associated
conditions. Those restrictions resulted in Study
Area neighborhoods being historically more diverse
than the rest of the city.

As a result of being historically under served,
the Study area is part of the Metropolitan
Transportation Commission (MTC)’s Equity Priority
Communities (EPCs)

1. The EPC designation helps
provide funding and assistance to census tracts
that have a significant concentration of under
served populations, such as households with low
incomes, limited English proficiency, zero-vehicle
households, seniors 75 years and over, people with
disability, single-parent families, severely rent-
bur
dened households, and people of color.
“It is essential to ensure that the plan
addresses the needs of the historically
undes
erved communities around San
Pablo Avenue. ”
– Community advocate from Beautiful San Pablo Avenue
Community Demographics
12 Chapter 2 | Existing Conditions+ Community Feedback

Community Assessment Report
What was Redlining?
In 1933, as part of the federal program
and policies, the Home Owners’ Loan
Corpora
tion (HOLC) was created to
refinance home mortgages and expand
home buying opportunities. HOLC
was the originator of the color-coded
mortg
age security risk practice known
as redlining and redlined the majority
of the Specific Plan Area and Study
Area. See Figure 2. This discriminatory
practice withheld significant investment
to areas deemed “D (Hazardous), ”
because of adjacent industrial areas,
older building
s, and the presence
of “undesirable populations” (e.g.,
Jewish, Asian, Mexican, and Black
families).based and context-sensitive
policies, programs, standards, and
implementation actions to realize the
community’s vision.
1 To learn more about EPCs, visit: https://mtc.ca.gov/planning/transportation/access-equity-mobility/equity-priority- communitie
s. MTC is updating the EPC geography in the region based on the most recent American Community Survey data, and this will change the EPC designations in the Study Area reflecting recent increasing household incomes and shifts in demographics, for more information and to see draft update mapping, visit: https://mtc.ca.gov/ planning/
transportation/access-equity-mobility/equity-priority-communities/mtcs-2024-equity-priority-communities- update.

Figure 2. Equity Priority Communities and Historical Redlined Areas.

Source: Robert K. Nelson and Edward L. Ayers, Mapping Redlining, 2023. Metropolitan Transportation Commission (MTC), Equity Priority Communities, 2021.

Figure 3. Population Shift by Race and Ethnicity in
Study Boundary. Source: United States Census Bureau.

Decennial Census. 2010, Table P7. 2020, Table P1
Figure 4. Comparison of Racial Composition. Source: United States Census Bureau. Decennial Census. 2010, Table P7. 2020, Table P1.
13 Chapter 2 | Existing Conditions+ Community Feedback

San Pablo Avenue Specific Plan
Housing Characteristics
Between 2010-2020, the number of housing units
in Berkeley increased by 6% (2,877 units). New
housing w
as primarily developed along major
corridors, like San Pablo, University, Shattuck,
Telegraph and Dwight Way. The increased number
of units in West Berkeley correlates with the
population growth. The number of units in West
Berkeley nearly doubled in the last decade,
accounting for about one-fifth of the total housing
growth in Berkeley.

Household Tenure
As of 2020, the Study Area makes up 17% of the
city’s households and 22% of the city’s population.

Consist
ent with the city’s household tenure
trends, the Study Area has more renter-occupied
households than owner-occupied households. The
Study Area has a higher proportion of overcrowded
housing units compared to the city, with 30% of
the city’s overcrowded units. In the Study Area,
significantly more renter-occupied households
(237) were overcrowded than owner-occupied (82
households).

Housing Cost
In 2021, the Study Area’s median household
income ($93,871) was approximately $7,000
below the B
erkeley median household income
($101,048).

In the Study Area, over 50 percent of tenants are
cost-burdened, meaning they spend more than
30 percent of their gross household income on
rent and utilities. Of those tenants, 26 percent
are severely cost-burdened, meaning they are
spending more than 50 percent of their income on
rent and utilities.

Homeowners in the area are spending a lower
share of their income on housing costs (mortgages
payments, deeds of trust, contracts to purchase,
etc.) than renters are, on average.

Household Eligibility for Affordable Housing
There are 1,513 severely cost-burdened
households in the Study Area, and 73 percent
(1,118) of thes
e households earn less than $35,000
and spend more than 50 percent of their income
for rent.

Approximately half of Study Area households earn
less than 80 percent of Area Median Income and
a third earn less than 50 percent of Area Median
Income. These households would likely be eligible
for affordable housing.
“To put in low-income housing and not
fully take care of businesses will create
re
sentment among residents and business
owners. It will be an uphill battle. ”
– Interviewed non-profit leader
Community and Housing
2018
328
242
Single Family
Multifamily (2-4 units)
Multifamily (5+ units)
2018
328
242
Single Family
Multifamily (2-4 units)
Multifamily (5+ units)
Figure 5. Distribution of Existing Housing Units in the Pl
an Area by Type. Source: City of Berkeley, 2023.
14 Chapter 2 | Existing Conditions+ Community Feedback

Community Assessment Report
Community Feedback: Affordable Housing
Affordable Housing
• The community supports more housing options,
particularly affordable housing, as it received
overall support from all outreach efforts.
• Some community members expressed strong
support for condominium and other ownership
opportunities along the corridor.
• Input from some events demonstrated specific
support for senior housing.

Community Service
• Several community comments noted that an
increase in affordable housing units should be
met with an increase in supporting services.

Suggestions spanned from “daily necessities” like
affordable grocery stores to flexible and low-cost
space for non-profit organizations.
15 Chapter 2 | Existing Conditions+ Community Feedback

San Pablo Avenue Specific Plan
Existing Uses
The Specific Plan Area contains a mix of residential
and commercial uses (see Figure 8). Residential
uses include multifamily, mixed-use, live-work, and
a fe
w single-family homes. Live-work spaces are
designed to be used both as a workplace and as
a residence by one or more persons, and a mixed-
use space is a use of a lot or building with two or
more different land uses. There are a variety of
existing commercial uses, however the main uses
include services, auto-related uses, restaurant,
and ret
ail uses. Popular commercial uses include
auto and home-improvement businesses,
including retail, manufacturing, and wholesale
uses. Many commercial uses along the corridor are
locally owned businesses with brick-and-mortar
storefronts. Approximately 90 percent of brick-and-
mortar businesses on San Pablo Avenue are locally
owned businesses; 21 percent of which are likely
owned by women; and 41 percent are likely owned
by people of color.

Land Use
Figure 6. Berkeley General Plan. Source: City of Berkeley, 2023. 16 Chapter 2 | Existing Conditions+ Community Feedback

Community Assessment Report
Community Feedback
Vacant storefront
Across all outreach events and forums, the
community e
xpressed concern about the high
number of vacant storefronts along San Pablo
Avenue. Reduced activity and vitality along the street
and perceived safety were often cited as primary
concerns.

Ground floor use types
Community members expressed support for
expanding permitted ground floor uses and advocated
for programs and incentives to fill vacant ground floor space
s. Specific ideas included:
• Allowing temporary ground floor uses and other
unconventional uses such as art galleries or other
pop-ups.
• Allowing a wider variety of uses such as co-
working spaces and meeting spaces, galleries and
art installations, business incubators, offices, and
artist housing.
• Establishing more flexible development
standards, reducing discretionary use permits,
and other regulatory barriers for small businesses.
• Establishing financial support programs for small
businesses for tenant improvements and other
startup costs.

Community member
s mentioned a variety of desired
business types and services including:
• Local-serving businesses to meet every day retail
and service needs
• Business with affordable products
• Restaurants, cafes and bars
Ground floor commercial challenges
Several members of the developer and professional
services community that live and work on and around
San Pablo Avenue identified the following challenges
for ground floor commercial uses:
• High Tenant Improvement (TI) costs are
prohibitive. Specifically, bathrooms and
specialized infrastructure such as grease-traps
and exhaust hood ducts are expensive costs for
small b
usinesses.
• Retail spaces in new developments are not
suitable for small businesses as they are currently
designed as wide retail storefronts. Small
businesses are looking for small storefronts with
deeper floorspace, and back of house access.
37 35
11 18
38 46
Service
Retail
Auto
Food & Beverage
Other
Manufacturing &
Wholesale
Vacancy Rates
According to the Berkeley Office of Economic
Development data, San Pablo Avenue’s ground
floor commercial vacancy rate (by square
footage) doubled from 5.5% in 2017 to 10.8%
in 2022. This rate increased most significantly,
by three percentage points, from 2020 to 2021
and then again from 2021 to 2022, likely due
to the imp
acts of the COVID-19 pandemic.

The latter vacancy rate is notably higher than
other commercial corridors such as Solano
(3.7%), Elmwood (7.7%), and North Shattuck
(4.4%), but similar to University (12.8%),
Downtown (11.9%) and South Berkeley (11.8%)
neighborhoods.

Figure 7. Locally Owned Businesses on San Pablo Ave.

So
urce: Finance Department Active Business License
Data & in-person observation (August 2023).
17 Chapter 2 | Existing Conditions+ Community Feedback

San Pablo Avenue Specific Plan
Figure 8. Ground Floor Use based on Land Use Codes. Source: City of Berkeley, 2023. Alameda County Assessor, 2023.
18 Chapter 2 | Existing Conditions+ Community Feedback

Community Assessment Report
Figure 9. Mix of ground floor locally owned, brick and mortar businesses. Source: Street Level Advisors and Gordon Consulting, 2023.
19 Chapter 2 | Existing Conditions+ Community Feedback

San Pablo Avenue Specific Plan
Existing Land Use Designations and Designated Nodes
Land uses are regulated by the City’s General
Plan and Zoning Ordinance (see Figures 6 and
10). The General P
lan land use designation along
the entire San Pablo Avenue frontage is Avenue
Commercial. The Zoning district for properties
fronting on San Pablo Avenue is predominantly
West Berkeley Commercial (C-W). Some parcels
front on San Pablo Avenue have split zoning C-W
and another zoning dis
tricts including Mixed Use-
Light Industrial (MULI), Multi-Family Residential
(R-4), and Single-Family Residential (R-1).

The C-W district aims to implement the West
Berkeley Plan by providing for diverse commercial
services to residents and businesses, including
restaurants and both small and large retail
formats. It delineates certain areas as nodes
to encourage the intensification of commercial
activity and prevent overspill into industrial areas
while creating a pedestrian oriented environment.

The district als
o aims to promote residential
development within commercial zones to support
local retail and the use of public transportation.

Overall, the district supports development in
underutilized commercial areas, while ensuring
the developments are compatible with adjacent
commercial, residential, and industrial zones.

The Specific Plan Area includes five of the six
Commercial Designated nodes in the West
Berkeley Plan. The five nodes are located in
areas around major intersections along San
Pablo Avenue at Gilman Street, Cedar Street,
Univer
sity Avenue, Dwight Way, and Ashby Avenue.

Another commercial node is located along Fourth
Street. The intent of these nodes is to intensify
retail, commercial, and mixed-use activity to
support a strong commercial and pedestrian-
oriented environment by requiring that ground
floors be activated with select commercial uses.

A University Commercial District Node Area is
located on the east side of the University and
San P
ablo intersection. This designation requires
that new residential uses be integrated with non-
residential uses. While ground floor commercial
is required in the nodes, existing commercial uses
are scattered along San Pablo Avenue (see Figure
9).

Community Feedback
The community expressed a wide range of
perspectives regarding the quantity and location of
ground floor commercial and retail along San Pablo
Avenue:
• Several comments supported continuing to
require ground floor retail in the nodes, while
others suggested removing the requirement
altogether.
• Some community comments questioned the
existing node locations and suggested expanded
or reduced node sizes.

The community also expressed competing priorities
for the nodes:
• Several members of the developer community
believe nodes should concentrate high density
residential housing.
• San Pablo Avenue visitors and users suggested
that nodes should have retail and other
commercial uses.
• Some local residents believe nodes should
have open space, plazas, and outdoor dining, as
opposed to commercial and retail uses.

Other suggestions for the nodes included:
• Prioritizing infrastructure and public realm
improvements at the nodes.
• Increasing density and height within the nodes.
20 Chapter 2 | Existing Conditions+ Community Feedback

Community Assessment Report
Figure 10. Zoning Map with designated nodes in the Specific Plan and Study Areas. Source: City of Berkeley 21 Chapter 2 | Existing Conditions+ Community Feedback

San Pablo Avenue Specific Plan
Existing Development Standards and Recent Development Trends The C-W zoning district permits 3-story (40 feet) residential- and commercial-only developments, and 4-story (50 feet) mixed-use developments with either ground floor commercial or live-work units. State Density Bonus Law (See “State Legislation” section) has resulted in developments ranging from six to eight stories and up to 85 feet in height. A detailed overview of the existing development standards is located in the Existing Condi
tions Report in Appendix A.

Designation
FAR
(Non-R
es/
MU)
Height
(Non-Res/Res/MU)
Stories
(Non-Res/MU)
Density
applied in
Housing
Element
(DU/acre)
Recent Proposed
and Approved
Development along

SPA (C-W)
C-W 3.0 40 - 50’ 3 - 4 150 6-8 st ory mixed-
use developments
50’ for mixed-use
Mixed-Use req. in
node
4 stories for mixed-use
4story must be res or
live-work

3.75-4.70 FAR
150-380 DU/ac
C-U 2.2 - 3.0 or
None
36 - 48’

/36’ 3 - 4

150
Res only: 36’
MU/non-res: 36’
MU req. in Node:
48’
Non-Re
s in Node:
40’
MU in Node: 4 stories
3rd floor and above
residential only.

General Plan:

Avenue
Commercial

1.0 to 5.0 Up to 65 f
t Up to 6 150
Table 2: Existing Development Standards
22 Chapter 2 | Existing Conditions+ Community Feedback

Community Assessment Report
State legislation
Several state laws and regional policies have been approved since the adoption of the City’s General Plan in 2002. The Berkeley Municipal Code continues to be updated to remain consistent with State laws and policies. The following provides an overview of legislation and policy relevant to the Specific Plan. Many recent State laws have made changes to the development review process, timeline, and requirements, as well as defined limitations on the city’s discretion regarding project approval, conformance with certain development standards, and the applicability of the California Environmental Quality Act (CEQA).

Housing Accountability Act (HAA): This
legislation limits cities’ ability to deny, reduce
the density of, or make infeasible housing
dev
elopment projects or emergency shelters
that are consistent with the city’s objective local
development standards.

Senate Bill 35 (2017): SB 35 streamlines
the housing approval process for qualifying
multifamily residential projects with certain
minimum affordable housing. This allows such
projects to move more quickly through the city’s
review process and restricts the city’s ability
to r
eject these proposals to encourage the
development of affordable housing. See more at
the Housing and Community Development SB
35 Guidelines.

Senate Bill 330 (2019): This legislation limits
cities’ ability to impose restrictions on housing
developments. SB 330 seeks to expedite the
housing appr
oval process, enhance housing
supply, and ensure predictability for developers
by reducing regulatory uncertainty and potential
obstacles to new housing construction.

Density Bonus (Gov Code 65915): State density
bonus provisions have changed frequently and
significantly in recent years to further incentivize
certain types of housing, including but not
limited to various levels of affordability, senior,
transitional, veterans, and student. In exchange
for a commitment to build the specified housing
type or meet a specified level of affordability, the
city must allow a density bonus — an increase
over the maximum allowable residential density.

In addition t
o increasing density under density
bonus law, developers can use “waivers” and
“concessions” to reduce, modify, or waive
development standards. The use of concessions
can limit the applicability of development
standards and other requirements for projects
that quality for a density bonus.

Assembly Bill 2011 (2022): AB 2011 allows
for by-right approval of one-hundred percent
affordable and mixed-income housing projects
in zones where office, retail, or parking are the
principally permitted use.
23 Chapter 2 | Existing Conditions+ Community Feedback

San Pablo Avenue Specific Plan
Potential Housing Production
An estimate of potential housing production within the Specific Plan Area has been prepared using data sources including:

1. Approved projects that have been entitled but
not yet issued Certificates of Occupancy

2. Permit Applications for projects that are
currently under review by the city

3. 2023-2031 Housing Element Opportunity
Sites which identifies an additional 51 sites
that could accommodate 2,023 housing units
by-right. Density Bonus law could result in
appro
ximately additional 700 units.

As of 2022, the approved and anticipated sites along San Pablo Avenue could accommodate over 5,300 units including over 800 deed-restricted affordable units, see Table 3. In addition to on-site affordable units, this level of development could generate roughly $20 million in-lieu fees, which is sufficient to fund abou
t one-third of the local subsidy needed to support the projected number of 100% affordable buildings in the Specific Plan Area.

Total Units 100%
Aff
ordable
On site
Affordable
%
Affordable
Approved (as of 2022) 589 63 52 19.7%
Permit Applications (as of 2022) 2,029 110 192 14.9%
Housing Element Opportunity Sites
(Including potential density bonus
units)
2,023 110 191 14.9%
Density Bonus
1 +1,090-2,700 +58-145 +100-255 14.9%
Total All Sites +5,690-7,400 +340-430 +535-700 15.4%
1 Estimated based on the typical density bonus achieved from recent projects in Berkeley.

Source: City of Berkeley, 2023. 2023-2031 Housing Element Update. Tables C-3, C-6, and C-10.

Table 3: Estimate of Potential Housing ProductionBerkeley Affordable Housing Preference Policy
In July 2023, Berkeley
adopted a policy to provide
a pref
erence for current
residents and descendants
of residents of the city’s
historically redlined areas.

Households with ties to
redlined areas receive
priority in leasing new
city funded or regulated
affordable units.
“Different kinds of housing. Not just
tall apartment buildings and mix of
socio-economic groups. ”
– Open House Comments
24 Chapter 2 | Existing Conditions+ Community Feedback

Community Assessment Report
Community Feedback
Housing Density
In all outreach events, participants expressed
support for more density and for more housing.

The community r
ecognizes that San Pablo Avenue
provides opportunities to address regional and
local housing issues.

Housing Height
• The community expressed varied
opinions regarding building height for new
developments on San Pablo Avenue. Some
comments raised concern about shadows
on adjacent low-rise neighborhoods, while
others supported increasing permitted
building height to allow 8 to 12 stories along
the corridor to increase housing capacity and
economic support for commercial activity.
• There was support for increased height for
residential-only projects along San Pablo
Avenue.

Housing Types and Ownership
• There is support for a greater diversity of
housing types. Most community feedback
supports a variety of housing typologies
(multi-family, townhouse, live-work, etc.).
• The community expressed competing
priorities between affordable rental housing
options and condominium ownership housing
options.

Building Design
• Some community comments expressed
concern over “bulky” and unarticulated
buildings.
• Community feedback supports the
development of buildings with engaging and
active building frontages. The community
shared the perspective that ground floor
setbacks and other strategies to increase the
pedestrian realm along San Pablo Ave will
increas
e pedestrian activity. The additional
ground floor setbacks at recent developments
along the corridor received positive feedback.

Multi-family Building Amenities and Access
• Some local residents expressed concern
about private amenities within new
developments resulting in the creation of
“urban gated communities” .
• Several community members suggested
that new developments provide local
public access to some amenities such as
gyms, rooftop lounges, etc., to encourage
community cohesion.
“Taller, denser housing urgently needed
to house more people. ”

– Open House Comments
“[Make building facades] Architecturally
unique. Implement standards that
aren
’t so strict to allow for variety (i.e.
ornamental, setbacks, etc.)”
– Open House Comments
“New developments [are] nice to live in,
but not to live around. ”
– Small Group Meeting comment
25 Chapter 2 | Existing Conditions+ Community Feedback

San Pablo Avenue Specific Plan
Public Realm and Open Spaces
The public realm and open space analysis evaluate the streetscape conditions and its elements, such as sidewalks, landscaping, street furnishings, lighting, and building and site frontages. While the Specific Plan Area does not have any existing public open space or parks, several physical conditions of San Pablo Avenue contribute to a sense of “community life, ” including semi-public spaces, community events, and soci
al engagement.

Streetscape Conditions
Landscape
A mature tree-canopy covers the majority of
San Pablo Avenue, adding greenery and shade
thro
ughout the corridor. However, there are gaps in
the tree canopy and maintenance issues with trees
and tree wells along the sidewalks. Other public
landscaping on San Pablo Avenue is minimal.

Some other major streets in the city have business
improvement districts that install and maintain
landscaping, but there are no existing improvement
districts in the Specific Plan Area.

Figure 11. Mature London Plain trees define the
character of San Pablo Avenue.

Figure 12. Existing Streetscape Section
26 Chapter 2 | Existing Conditions+ Community Feedback

Community Assessment Report
Sidewalk
The sidewalk along San Pablo Avenue is 13-feet
wide and in variable conditions along the corridor.

In some c
ases, front yard landscaping and other
elements extend into the sidewalk right-of-way.

The public-right-way is a State highway and
managed by Caltrans, not the city. Figure 13
Building and Site Frontages
A wide range of built form fronts along San
Pablo Avenue including occupied and vacant
brick-and-mortar s
torefronts and new mixed-
use developments, residential- and office-only
buildings, parking lots and semi-public spaces.

Painted murals and storefronts add visual
charact
er to buildings without windows. Some new
developments have contributed to the landscape
character of the street by setting back the ground
level of the building to provide additional sidewalk
and space of landscape, such as landscape
planters at The Jones north of Cedar Street. Others
like the Aquatic at Ashby Ave have a small seating
area and a bench and rain shelter built into the
additional sidewalk level space. See Figure 14.

Figure 13. Existing 13 ft. wide sidewalk.

Figure 14. Integrated bus stop seating in the recent
development “the Aquatic” a Ashby Avenue.

Community Feedback: Streetscape
• The community views the street trees and
landscaped medians as valued assets that makes
San Pablo Ave in Berkeley unique.
• The narrow sidewalk width in combination with
poor physical conditions was a frequent issue
mentioned by participants in regards to personal
safety and comfort as vehicles pass by at higher
speeds.
• Narrow sidewalks also limit pedestrian space and
opportunities for public interaction and gathering.

Overall, community feedback expressed support
for wider sidewalks.
• The community expressed the need for better
maintenance of the public right-of-way.

Participants were frustrated by poorly maintained
segments and would like to see repairs and
upkeep.
• A common and prevalent comment across all
community outreach events was the desire
for more pedestrian lighting along San Pablo
Avenue. Many community members expressed
concerns about personal safety and visibility
along the corridor at night. Both pedestrian-scale
lighting and lighting from storefront displays were
mentioned as possible solutions to improving the
sense of safety at night.
27 Chapter 2 | Existing Conditions+ Community Feedback

San Pablo Avenue Specific Plan
Lighting
Existing lighting along San Pablo Avenue primarily
includes streetlights. Nighttime sidewalk lighting
lev
els tend to be low between intersections,
unless storefront uses, buildings, or pedestrian
lights at bus stops illuminate the sidewalk. See
Figure 15. The 2004 Improvement Plan identified
this issue and set new lighting standards. While
there has been some implementation of the
st
andards in front of new development, there
have not been recent publicly funded pedestrian
lighting improvements along San Pablo Avenue.

The Alameda CTC Safety Enhancement Project will
upgrade lighting at some improved bus stops and
pedestrian crossings.

Street Furnishing
Street furnishings such as benches and trash
receptacles are almost exclusively at bus stops.

There ar
e some businesses that provide outdoor
“café” seating for their patrons. See Figure 16.

Community Feedback: Community Life
Art and Cultural Installations
• Community members are interested in
improvements in the public realm that include art
and cultural installations. They see the potential
in practical improvements, such as lighting not
only for safety but also for aesthetics and comfort
– light strings, artistic lighting, and lighting the
trees.
• People were supportive of the potential for
physical public art through murals and street
furnishings. Also, public art as special events with
local artists and performers was mentioned.
• Participants would like to see the ground floor
and underused spaces to become community
gathering spaces or places of common ground
activitie
s, including indoor or outdoor space for
community events, food trucks, pop-up retail to
support local businesses or art events.

Figure 16. Existing roadway and pedestrian lighting.

Figure 17. Existing private outdoor “café” seating.
28 Chapter 2 | Existing Conditions+ Community Feedback

Community Assessment Report
Open Space and “Community Life”
There are no public parks along San Pablo Avenue
or within the Specific Plan Area. A number of parks
surround San Pablo Avenue including George
Florence Park, James Kenney Park, Strawberry
Creek P
ark and San Pablo Park.

Several semi-public and private spaces along San
Pablo Avenue such as parking lots, restaurant and
café and residential development outdoor spaces
provide informal community gathering spaces.

There are also existing organizations that provide
community gathering venues including Brasarte
and Ashkenaz.

San Pablo Avenue, as a State Highway, does not
close for street festivals, however the SF Bay
Brazilian Day & Lavagem festival took place in the
Gilman District, and neighborhood street parties
close some streets that cross San Pablo Avenue,
see Figure 17.

Personal Safety
Conditions along the street can create an
environment that feels unsafe. Assessment of
crime dat
a from the Berkeley Police Department
from August 2022 to August 2023 shows a total
of 578 incidents in the Specific Plan Area, which
makes up 5 percent of the overall crime incidents
in Berkeley during that time.

Open Space
People have diverse feelings about open space
along San Pablo Avenue. For some, concerns about
pers
onal safety and lack of maintenance appear to
override the potential for community open space
on San Pablo Avenue. Others strongly expressed a
desire for civic open spaces and community gathering
places to bring new and existing residents together.

Some suggest that such an environment may support
commercial activity.

Several ideas were frequently raised across multiple
engagement events including:
• Establishing a parklet program to expand public
space.
• Expanding sidewalks and bulb-outs on side
streets.
• Temporary or permanent road closures of minor
streets intersecting San Pablo.

Transportation Safety
Concerns about personal safety were prominent, with
a majority feeling more unsafe at night and expressing
unease while w
alking along the corridor. Especially on
segments with empty property frontages and vacant
storefronts, participants experience discomfort as
pedestrians.

All outreach efforts resulted in a strong desire for
better pedestrian lighting. Participants cited more
lighting would improve the safety and walkability
during ev
ening and nighttime.

Figure 18. 1901 San Pablo Avenue houses Brasarte and other Brazilian culturally oriented groups. This shows the 2023 Brazilian Day & Lavagem event on the block of Hearst St just east of San Pablo Avenue.
29 Chapter 2 | Existing Conditions+ Community Feedback

San Pablo Avenue Specific Plan
Transportation, Parking and Utilities
San Pablo Avenue is a California state highway (State Route 123) and improvements within the street right- of-way require approval by Caltrans. The city is responsible for maintenance of the sidewalks and medians, including s
treet trees and landscaping.

The Specific Plan will not focus on making transportation improvements to San Pablo Avenue, because regional transportation authority, the Alameda Transportation Commission (Alameda CTC), has completed a multimodal planning project for San Pablo Avenue throughout Alameda County. The project has led to three pr
ojects that will result in construction of safety improvements for all users, bus stop improvements, and parallel bicycle facility improvements, as well as a short segment of bicycle and bus lanes on the southern end of San Pablo Avenue in Berkeley.

The Specific Plan will focus on the public realm of the sidewalks along San Pablo Avenue, parking management, and other transportation improvements that are not being addressed through the Alameda CTC efforts.

Transit Network
Local Transit
AC Transit provides bus service throughout western
Alameda County and Contra Costa County and
opera
tes 12 bus routes within the Study Area that
provides direct access to the Specific Plan Area.

AC Transit is currently evaluating and developing
a new network in response to changing travel
pa
tterns through the AC Transit Realign Plan. The
Realign Plan may alter future AC Transit service in
the Specific Plan Area.

In addition to public transit, several privately-
operated shuttle services operate in Berkeley.

The We
st Berkeley Shuttle links the Ashby BART
station with employment centers in West Berkeley
on weekdays. Bear Transit, UC Berkeley’s shuttle
system, serves Campus Park, Downtown Berkeley,
and Berkeley Hills, offering free rides for the
university community and $1 fares for the public.

The Lawrence Berkeley National Laboratory (LBL)
Shuttle pr
ovides free service for LBL employees
and guests between LBL and North Berkeley BART,
with stops along San Pablo Avenue. Upcoming
developments like The Berkeley Commons Project
and TheLAB will introduce new shuttles between
the North Berkeley BART Station and their sites.

Though these services cross San Pablo Avenue,
they don’t directly serve the Specific Plan Area.

Regional Transit
BART provides regional commuter rail transit
in Alameda, Contra Costa, San Francisco, San
Mat
eo, and Santa Clara counties. BART provides
regional commuter rail transit in Alameda, Contra
Costa, San Francisco, San Mateo, and Santa Clara
counties.

Amtrak’s Capitol Corridor route operates between
San Jose and Sacramento and stops at the
Berkeley Rail Station. The station is located under
the University Avenue overpass, about 0.5 miles
west of San Pablo Avenue. The station provides
basic amenities, including outside seating and
automobile and bicycle parking.

Parking
Street parking is available along San Pablo Avenue
and on side streets within the Study Area. The
majority of p
arking is paid and timed as part of
the GoBerkeley paid parking pricing program. In
addition to street parking, many businesses within
the Specific Plan Area have small parking lots
specific to their business.
30 Chapter 2 | Existing Conditions+ Community Feedback

Community Assessment Report
Community Feedback: Transit & Parking
Transit Service
There are concerns about the possibility of reduced
transit service along San Pablo Avenue, specifically
the Transbay services. More accessible transit and
improved transit stop infrastructure were perceived as
important aspect
s for the corridor’s future.

Transit Routes
Some community members articulated the
importance of East-West transit connections and
expr
essed support for additional routes and service
for connectivity to and from Central Berkeley and UC
Berkeley.

Private vs Public Transit
Community members expressed varied interest
and support for private shuttles. Some community
comments s
uggested greater shuttle service
throughout San Pablo Avenue, while others raised
concerns about a two-tier transit system and
suggested transit investment in public networks.

Parking
• The community expressed mixed feedback related
to parking. Some local residents express concern
about parking overflow from new developments
into adjacent residential neighborhoods. Other
comments supported not requiring parking with
re
sidential or commercial uses.
• Some community comments express desire for
greater parking enforcement for vehicles parked
beyond the maximum parking times.
• Several local businesses and large employers
expressed support for maximum parking times
to prevent long-term parking in front of their
businesses for extended periods of time.
“My business’ storefront isn’t visible
to people driving by because of cars
parking in fr
ont of the store 24/7
[blocking the view and lack of timed
parking enforcement]. ”
– Small Group Meeting Comment
31 Chapter 2 | Existing Conditions+ Community Feedback

San Pablo Avenue Specific Plan
Community Feedback
Transportation Safety
• Throughout the community outreach, participants
stated that they desire a more pedestrian friendly
corridor, as survey data and feedback found
walking as the second most common mode of
transportation to and from San Pablo Avenue.
• Community feedback reveals that San Pablo
Avenue currently acts as a stress-inducing barrier
between east and west Study Area community.
• Several community members expressed concerns
about cycling across and along San Pablo Avenue.

The most frequent concern was safety due to
vehicular traffic and lack of protected bike lanes.
• Community comments included suggestions for a
variety of bike infrastructure including bike lanes
along San Pablo Avenue and/or cross-streets, and
bike boulevard crossing improvements.

Utilities
• Development stakeholders expressed concern
about the time and cost of making utility
connections, particularly when connections
occur on San Pablo Avenue and require approvals
by Caltrans.

Utilities
According to the 2023-2031 Housing Element
Update Environmental Impact Report (EIR),
exis
ting utility systems for domestic water,
wastewater, stormwater, telecommunications,
electricity, and natural gas facilities in Berkeley
have sufficient capacity to serve the planned
housing developments.

Transportation Safety
The entire length of San Pablo Avenue is included
in the City of Berkeley’s High-Injury Network.

Betw
een 2017 and 2021, there were 190 collisions
on San Pablo Avenue that resulted in an injury or
death, representing 7% of the Berkeley total.

The portion of San Pablo Avenue within Berkeley
does not have existing bicycle facilities. Four
East-West streets have existing bicycle facilities
that cross San Pablo Avenue going East-West
(Gilman Street, Virginia Street, Delaware Street,
and Channing Way). The Alameda CTC Parallel Bike
Improvement Project will construct bike safety and
connectivity improvements along streets parallel
to and across San Pablo Avenue, there are no
plans on providing bicycle lanes on the majority
of San Pablo Avenue. Bicycle improvements for
the Bus and Bike Lanes Project will extend into the
southern city limit to Heinz Avenue.
“SPA is stressful. Just realized it acts
as a border and I hate crossing over it.

Increas
e space for people, less space for
cars (i.e. parklets, bulb outs, turn median
into park.)”
– Open House Comment
32 Chapter 2 | Existing Conditions+ Community Feedback

Community Assessment Report
Figure 19. Transit Lines and Bicycle Routes. Source: City of Berkeley, Alameda CTC, and Fehr & Peers, 2023. 33 Chapter 2 | Existing Conditions+ Community Feedback

San Pablo Avenue Specific Plan
Berkeley’s Office of Economic Development’s
(OED’s) 2016 Economic Development Work
Session highlights two existing economic tensions
along San Pablo Avenue:
• Local and regional interests for transportation
and land use compete for space. Local
interests include better walkability, multi-
modal transportation options, a broad range
of businesses, and housing infill development.

Regional interests support car access, street
parking, and clusters of specialized businesses
not widely av
ailable in other parts of Berkeley.
• Demand for housing development in the area
threatens to displace the existing concentration
of auto businesses along San Pablo Avenue.

The COVID-19 pandemic and broader economic
impacts have also affected the corridor and
businesses across the city. Nationally, small
businesses closed at unprecedented rates from
Febr
uary to April of 2020. African-American,
Latinx, Asian, immigrant, and women business
owners were disproportionately affected, with
African-American businesses owners most
impacted. Since then, many small businesses
have re-opened or opened for the first time. During
2023, business owners cite inflation, supply
chain effects
, and filling open jobs as among their
primary concerns.

There are several existing business organizations
within the Specific Plan Area and Study Area:
• Gilman district association (Local breweries,
organic wineries, food producers, shopping,
art).
• West Berkeley Design Loop: Group of local
merchants, designers, consultants, and
builders that provide unique products and
ser
vices for design and building projects.
• SoU (South University) Berkeley “eclectic fun
shopping district in West Berkeley, South of
University near 4th Street” .
• West Berkeley Artisans and Industrial
Companies (WEBAIC): Collaboration of PDRR
(Production, distribution, repair and recycling
companies), existing art, music and dance
studios, initiated by Office of Economic
Development.

Economic Development
34 Chapter 2 | Existing Conditions+ Community Feedback

Community Assessment Report
“San Pablo is not a shopping destination
[like 4th St], rather people travel to specific
businesses along the corridor. ”
– Business Small Group Meeting participant
Community Feedback
Vacancy
Many community members across all outreach
events expressed concern over ground-floor
vacancies along the corridor. Several concerns were
raised related to the vacancy, including:
• Reduced vitality and vibrancy along the corridor.
• Fewer “eyes on the street” , resulting in personal
safety concerns.
• Visual and aesthetic concerns regarding
dilapidated storefronts.

During the outreach process, participants voiced
support for commercial uses and advocated for
programs and incentives to fill vacant ground floor
space. This is coupled with a belief that there is
too much retail space given current demand, and
theref
ore there is a desire to allow and encourage
other uses. Throughout the outreach, when asked
about opportunities vacant storefront could provide,
participants expressed a desire for more community
gathering space, entertainment and temporary uses
to avoid long term vacancies and accompanying
maintenance issues. Generally, community members
would like to see more support for businesses to fill
those spaces.

Business Incentives
Participants describe San Pablo Avenue as a series
of commercial destinations, with household goods,
food s
tores and restaurants/cafes being the most
frequently visited destinations They would like to see
more financial support for existing small businesses,
such as Mi Terra and Casa Latina, and are worried
about losing small and local businesses.

Tourism/ Marketing/BID
Participants suggested organizing special events with
local artists and performers. They also recommended
es
tablishing a Business Improvement District in
retail-heavy segments or nodes to fund streetscape
improvements.

Relationship to West Berkeley Employment
Development
Several comments highlighted the lack of safe walking
paths between employment campuses and San Pablo
Av
enue. Participants also expressed a desire for more
“quick and easy” lunch places, as well as after-work
restaurants to enhance the area’s vibrancy after work
hours.
35 Chapter 2 | Existing Conditions+ Community Feedback

San Pablo Avenue Specific Plan
There is currently no Business Improvement District associated with San Pablo Avenue. However, there are several city-led programs and initiatives to support small and independently owned businesses in Berkeley, which can help to make San Pablo Avenue a more attractive retail location. These include:
• Zoning Amendments: Berkeley’s City Council
passed the Zoning Amendments for Berkeley
Busines
s package on February, 2024 to
encourage local economic development and
enhance cultural offerings in an equitable
manner across Berkeley. The zoning ordinance
changes are wide ranging; spanning the
permitting of gr
oup class instruction, the service
of distilled spirits, expanded hours of operation,
live entertainment, pet stores, art and craft
studios, outdoor food service, and the removal
of restrictions related to change of use, removal
of food service quotas, and rentals of food
service establishments to third parties.
• Revolving Loan Fund & Resiliency Loan
Program: The City of Berkeley’s Revolving
Loan Fund offers capital to Berkeley-based
businesses and entrepreneurs for various
growth and operational needs, targeting those
who don’
t qualify for traditional bank loans.
• #DiscoveredinBerkeley Campaign: The
Discovered in Berkeley marketing campaign
show
cased diverse local businesses, achieving
over 3.8 million impressions and 146 thousand
direct engagements through various online
platforms and social media promotions.
• Expanded Outdoor Commerce: In 2020 and
2021, the City of Berkeley expanded outdoor
activity al
lowances and streamlined permits,
now offering businesses a permanent option
for outdoor commerce installations with fees
starting May 20, 2024, anticipating over 30
busine
sses to participate.
• Art Investments: The City established a
Civic Arts grant program offering up to $5,000
each in Fiscal Year 2025 to support local arts
and cultural programming. In addition, the
City cr
eated a Capital Project Grant for local
nonprofit arts and cultural organizations for real
estate and capital project support.
“San Pablo is not a shopping destination
[like 4th St], rather people travel to specific
businesses along the corridor. ”
– Business Small Group Meeting participant
36 Chapter 2 | Existing Conditions+ Community Feedback

Community Assessment Report
37 Chapter 2 | Existing Conditions+ Community Feedback

38 San Pablo Avenue Specific Plan

39 Community Assessment Report
This chapter summarizes key themes and issues identified throughout the Existing Conditions and Community Assessment phase. These findings will inform the development of policies, programs, guidelines and incentives for the Specific Plan. The summary is organized by theme, though many issues are interconnected and span multiple themes. Overall, the Community Assessment revealed three overarching objectives for the community’s vision for the Specific Plan:
1 Provide guidelines and
incentives for more housing
that improves the vitality of
the corridor.
2 Remove barriers and integrate
San Pablo Ave with the
surrounding community
and shape opportunities for
neighborhood life.
3 Broaden opportunities for
business and community
activities that can adapt
to economic and market
conditions.

Chapter 3
Key Themes + Issues

San Pablo Avenue Specific Plan
Increase Business and Activity Along the Corridor
Improve Commercial Identity
The Commercial Nodes are not being realized. While C-W nodes are intended to concentrate retail, commercial, and mixed-use hubs along San P
ablo Avenue, actual commercial activity and proposed housing developments are dispersed throughout the corridor.

Reduce Commercial and Retail Vacancy
The Community Assessment revealed that commercial and retail vacancy along San Pablo Avenue is a concern for all community groups. Key issues identified through the existing conditions research, and community f
eedback as contributing factors to vacancy include:
• Current market conditions: Vacancy rates increased due to broader economic impacts, leading to vacant and abandoned commercial ground floors throughout the corridor. • Land-use and regulatory restrictions:
• Limited range of permitted land-uses
• Lengthy and costly permitting process
• Over supply of retail spaces: Mixed-use developments are allowed greater heights than residential- only developments, incentivizing the construction of more mixed-use buildings and commercial space
. However, due to current economic market conditions and land-use restrictions, many retail and commercial ground floor space remain vacant.
• Incompatible design: The design of commercial and retail spaces are not compatible with small Support Local Business Vitality and Growth
Both the small business community and the developer community cited the following challenges and barriers for small businesses to start-up and thrive.
• Permitting process: The permitting process for new businesses is very long, adding costs and uncertainty to small business owners.
• High start-up costs:
• Tenant improvements are a substantial cost for small businesses and are often prohibitive in new commercial spaces.
• Compliance with commercial use regulations often requires additional costly tenant improvements, such as adding bathrooms and installing grease-ducts, driving up costs beyond what smal
ler businesses can afford.
• Ongoing maintenance and curb-appeal: Existing property owners/businesses/tenants face challenges in maintaining the street frontage and sidewalk next to their property due to incidents of vandalism and thef
t. The issue results in both a financial and time-sensitive burden demotivating additional street frontage improvements.
40 Chapter 3 | Key Themes + Issues

Community Assessment Report
Increase Housing Supply and Diversity
Improve and Increase Interaction between Private and
Public Spaces
The Community Assessment findings indicate overall support for housing along San Pablo Avenue. The following includes key issues raised by the local and professional community as to the challenges of low housing s
upply and development.

Revise Housing Development Regulations
Residential zoning regulations for Mixed-Use and Residential-only development are overly restrictive regarding height, floor area ratio, and gro
und-floor commercial requirements, therefore restricting development.

Support Increased Diversity of Housing Types
There are limited opportunities for home ownership other than single-family detached options, limiting options for renters and work
ers to stay within the community.

Support Housing Affordability
There is a need for Affordable Housing for people with a range of incomes on the corridor and throughout the city.

Encourage Engaging Buildings
Residents from surrounding neighborhoods feel isolated from new residential buildings, describing those as a single “bulky” dev
elopment. The lack of connection between the public realm and private open space oriented away from San Pablo Avenue reduces interactive experiences.

Support Engaging Site Frontage
Large vacant parking lots, and long, windowless frontages contribute to an alienating public environment that discourages walk
ability and makes pedestrians feel unsafe by fragmenting the urban fabric.
41 Chapter 3 | Key Themes + Issues

San Pablo Avenue Specific Plan
Improve the Public Realm
Increase Amount and Quality of Sidewalk Space
• The sidewalk width is limited by the amount of right of way currently used for vehicles due to San Pablo Avenue’s regional function and de
signation as a state highway. The sidewalk
narrows at several locations where existing development, landscaping, and other furnishing extends into it.
• The narrow sidewalk in combination with higher speeds of bypassing vehicles negatively affects pedestrian comfort and opportunitie
s for public interaction.

Improve Lighting and Maintenance of Sidewalk and
Landscape
• Several sidewalk segments lack the upkeep and maintenance of sidewalk, such as trash cleanup, paving and landscaping of tree wel
ls.
• The absence of essential public amenities, particularly pedestrian lighting for nighttime safety, is a concern. Currently, there ar
e insufficient public funds available to address these
improvements. This shortage impacts public safety and
community well-being.

Increase Public Open Space and Community Gathering
Space
• There are no publicly owned parcels available to convert or adapt into open spaces, and limited funds may restrict the pos
sibility of acquiring additional land for this purpose. • There is a shortage of community gathering spaces, as private open areas within new developments are inaccessible to the public
. Third spaces are limited to semi-private locations,
such as restaurant and café seating, and some private surface 42 Chapter 3 | Key Themes + Issues

Community Assessment Report
Enhance local Access
Improve East-West Connectivity
• Pedestrians and bicyclists feel unsafe crossing San Pablo Avenue.
• East-West transit routes are limited in number and frequency. • San Pablo Avenue suffers from a deficiency in public transit connections between East and West Berkeley, exacerbating its function as a b
arrier between neighborhoods. Presently, private
shuttles operated by major employers and UC Berkeley bridge this gap to a degree. However, their availability to the public is limited with no guarantee of access.

Enhance Pedestrian and Bicycle Safety and Access
• High car volume and fast speeds contribute to pedestrian and bicycle safety concerns.
• There are limited crossing points along San Pablo Avenue and many community members feel unsafe crossing the road.
• There is limited connectivity to adjacent parks and community spaces around San Pablo Avenue including a lack of clear signage
, pedestrian- and cyclist-friendly pathways, and safe
crossing facilities, further hindering community engagement and access to recreational areas.

Transit Access and Frequency/Availability
• AC Transit’s Realign Plan is still in development. So, the future of local transit service along San Pablo Avenue is uncertain.

Parking/ Loading Access/ Management of On-Street
Parking
• Potential reduction of on-street parking and loading along San Pablo Ave, as well as lack of time-parking enforcement makes 43 Chapter 3 | Key Themes + Issues

Date: 8.20.2024
To: Robert Riviera and Anne Hersch, City of Berkeley
From: Phil Erickson and Dewi Bleher, Community Design + Architecture Lynette Dias and Hannah Chan Smyth, Urban Planning Partners Re: San Pablo Avenue Specific Plan – Task 3.4 Policy and Development Options Memorandum Policy Options
This memorandum outlines policy options and a development framework to address key themes and issues identified in the Existing Conditions and Community Assessment phase of the Specific Plan process (see Chapter 3 of the Community Assessment Report). The policy options and development framework below provide a range of draft policy options and example development scenarios for public review and comment. Community input from the community outreach and engagement process and continued analysis will help the City identify a set of preferred policies that will be developed and refined for the Specific Plan.

The policy options are organized by Key Theme and Issue, which correspond to Chapter 3 of the Community Assessment Report:

A. (CAPITAL LETTER): Key Theme

1. (Number) Issue
a. (lowercase letter) Policy or Development Option
• (Bullet point) Incentives, strategies and alternatives Each policy option is sorted according to the relevant issue. If there are related policies under different issues, they are referenced in related policies. Incentives, strategies, and alternatives to the policy option are listed below each policy option, providing detailed actions and variables to consider when finalizing the policy and to achieve successful implementation. All policy options, including those not recommended, are discussed to transparently present the full range of community suggestions received during the Community Assessment. This approach ensures that all potential options are acknowledged and considered.

The Development Framework outlines three policy areas to shape development along the corridor and strengthen the designated nodes (see more information on nodes in Community Assessment Report, page 20). The Development Framework describes how key land use policies and standards – Height and Density, Ground Floor Use and Design, and Community Benefits can be used to shape future conditions and hierarchies between the nodes and the other parts of the corridor. The Development Framework is conceptual and designed to incorporate community input. No specific decisions or approaches have been finalized. The preferred Development Framework will be determined through the preparation of the Specific Plan and include further public review and input opportunities including public hearings with the Planning Commission and City Council.

The Development Scenarios are examples that illustrate how policy areas can shape different development scenarios, balancing community benefits with variations in height and density across designated nodes and the entire corridor.

ATTACHMENT 2

San Pablo Avenue Specific Plan Policy Options and Development Framework Memo August 21, 2024 2 of 3
Table of Contents
A. Increase Business Activity Along the Corridor ............................................................................................................... 3

1. Improve Commercial Identity ................................................................................................................................... 3

2. Reduce Commercial and Retail Vacancy ................................................................................................................... 3

3. Support Local Business Vitality and Growth ............................................................................................................. 4 B. Improve and Increase Interaction between Private and Public Spaces ........................................................................ 5

1. Engaging Buildings .................................................................................................................................................... 5

2. Engaging Site Frontages ............................................................................................................................................ 5 C. Increase Housing Supply and Diversity .......................................................................................................................... 6

1. Revise Housing Development Regulations ............................................................................................................... 6

2. Support Increased Diversity of Housing Types ......................................................................................................... 6

3. Support Housing Affordability .................................................................................................................................. 7 D. Improve the Public Realm ............................................................................................................................................. 7

1. Increase Amount and Quality of Sidewalk Space ..................................................................................................... 7

2. Improve and Maintain Lighting, Sidewalk, and Landscape ....................................................................................... 7

3. Increase Public Open Space and Community Gathering Space ................................................................................ 8 E. Enhance Local Access .................................................................................................................................................... 9

1. Improve East-West Connectivity .............................................................................................................................. 9

2. Enhance Pedestrian and Bicycle Safety and Access .................................................................................................. 9

3. Improve Transit Access and Frequency/Availability ................................................................................................. 9

4. Management On-Street Parking and Loading .......................................................................................................... 9 Development Framework .................................................................................................................................................. 10 Policy Levers .......................................................................................................................................................................... 10 Development Scenarios ..................................................................................................................................................... 13

San Pablo Avenue Specific Plan Policy Options and Development Framework Memo August 21, 2024 3 of 4
A. Increase Business Activity Along the Corridor

1. Improve Commercial Identity
a. Re-evaluate and adjust node boundaries, policies, and development standards to focus uses such as commercial, public resources (open space, community meeting/social spaces, etc.), or housing along the corridor. Node alternatives are further considered in the Development Scenarios section below. • Provide incentives for commercial clusters and mixed-use development within the nodes such as increased heights or intensity by-right1. (Related Policies – A.2.d; B.2.a; C.1.a; C.1.b) • Focus initial public investment on improvements in the nodes (Related Policies – A.3.a; D.1.a; D.3.c) • Target business support programs on local businesses in nodes, including tenant improvement grants or no- interest loans and rent support for a start-up period. (Related Policies – A.3.a) b. Work with the businesses, cultural institutions and artist groups in the community to identify Commercial and Cultural Districts along San Pablo Avenue, such as a maker/light industrial district, international district, or state- designated cultural district. (Related Policies – C.3.c) c. Support creation of business “cluster” organizations that publicize the range of businesses in the San Pablo Avenue and West Berkeley areas, such as the West Berkeley Design Loop with goal of creating an identity similar to a Commercial District while being more flexible with business location. (Related Policies – A.3.b)

2. Reduce Commercial and Retail Vacancy
a. Allow temporary pop-up uses such as business incubators, art installations, galleries, etc. b. Expand the list of by-right uses.
• Expand the list for selective uses to encourage community gathering space (public or semi-public third spaces such as a community center or public plaza) and maker-uses (light-industrial). Allow all office uses, public markets (open air and enclosed), art studios, galleries, theaters, and live work with a Zoning Certificate. Exclude heavy-industrial uses. (Related Policies – A. 2. c.; B.1.b; and B.2.a) • Allow 100% affordable housing conversion of existing non-residential building. c. Allow non-commercial ground floor use, in nodes.
• Allow for transitional ground-floor residential use along side streets within nodes. (Related Policies – A. 2. b.)
• Allow ground floor-residential use along San Pablo Avenue within nodes. Not Recommended – this would go against goals of reinforcing clusters of commercial and service uses at nodes/ high-service transit locations and improving commercial identity.
• Alternative: allow ground-floor residential towards node edges. d. Allow residential ground floor in mixed-use developments outside of nodes. Developers would be allowed to wave the commercial ground floor requirements by paying a ground floor retail in-lieu fee into a Small Business Support Fund. (Related Policies – A.3.a.)
e. Improve new ground floor commercial space viability with objective design standards for minimum floor-to- ceiling height, minimum depths, flexibility for different sized spaces, shared bathrooms, storefront design of building frontage. (Related Policies – B.2.a).

1 The use of the term “by-right” is used to mean that a use, height, intensity, etc. can be approved without discretionary review, public hearing, additional conditions or community benefits.

San Pablo Avenue Specific Plan Policy Options and Development Framework Memo August 21, 2024 4 of 5
f. Establish size limits for certain types of uses, wh ich may discourage larger chain businesses from locating on the corridor. Not recommended – can be challenging to define “larger chain” businesses (e.g., regional vs. national chains, etc.) and some can be smaller sized. Also, given the current weaknesses in the retail market some chains might be welcomed by the community.
g. Implement a commercial space vacancy tax to encourage owners to keep spaces occupied. Not Recommended – while a vacancy tax may encourage owners to fill vacant space that they are “holding” for one reason or another, success of vacancy taxes is variable. We commend implementing policies and programs to support businesses to locate on San Pablo Avenue first and evaluate if a vacancy tax is necessary to support those efforts after they have been in place for a period of time.

3. Support Local Business Vitality and Growth
a. Establish a Local Small Business Support Fund for start-up businesses. This would be funded through the combination of a ground floor retail in-lieu fee, development project community benefits, or other local funding sources. (Related Policies – A. 2.d; Also see, Policy Levers, Community Benefits, page 11) • Offer tenant improvement and relocation funding to small businesses . • Provide start up rent subsidies to small businesses.
• Waive permit fees or other City fees for small businesses. b. Work with businesses to establish business support programs including marketing campaigns, weekly market programs, and a Community Benefit, Business Improvement District, or Enhanced Infrastructure Financing District (Related Policies – A.1.c).
• City and local businesses/property owners to fund and initiate a study of the feasibility and scope of forming a Community Benefit or Business Improvement District for the San Pablo Avenue Specific Plan Area, subareas of the Plan Area, and/or the Plan Area and portions of West Berkeley. • Support existing and encourage new business organizations/affiliations such as the West Berkeley Design Loop, a sub-group of Open Studios that might be interested in more frequent co-marketing, and other location or service based “clusters” of businesses. c. Review City’s efforts to streamline new business use, building, and other permitting approvals. d. Establish public-private partnerships for implementing indoor- and outdoor community events. (Related Policies – A.2.a; A.2.b; and D.3 Increase Public Open Space and Community Gathering Space) e. Initiate a study of the feasibility and scope of forming an Enhanced Infrastructure Financing District (EIFD) to fund infrastructure maintenance and housing development, economic development, transportation infrastructure, sewage treatments, and climate adaptable projects, among other uses.

San Pablo Avenue Specific Plan Policy Options and Development Framework Memo August 21, 2024 5 of 6
B. Improve and Increase Interaction between Private and Public Spaces

1. Engaging Buildings
a. Incentivize public access to amenities in new developments, such as courtyards, rooftop open space, or public working stations.
• Provide semi-private access to amenities through neighborhood key-card programs. • Alternative: offer public access to private amenities as a community benefit contribution option to developers.
b. Require new development amenities to be on the ground floor (and to be sidewalk facing and visible), including gyms, coworking, and meeting spaces. (Related Policies – A.2.b) c. Define Objective Design Standards for articulation of upper floors that animate the façade by addressing design elements including materials, projections and recesses, balconies, and window design.

2. Engaging Site Frontages
a. Establish Objective Design Standards for the ground floor frontage that have key elements of pedestrian friendly building frontage design. (Related Policies – A.2.b)
• Storefront standards that provide a low proportion of “blank” walls, high windows percentage, and frequency of entries. These standards are designed to facilitate an easy change of use from retail to restaurant, gym, or similar active commercial or service use. • Active Ground Floor standards that provide more flexible design choices to allow a broader range of non- residential uses.
• Active Residential Ground Floor standards that require a transition or connection from public sidewalk to unit, including entry patios, stoops, shallow landscaped setbacks, etc.

San Pablo Avenue Specific Plan Policy Options and Development Framework Memo August 21, 2024 6 of 7
C. Increase Housing Supply and Diversity

1. Revise Housing Development Regulations
a. Increase by-right maximum allowed height and floor area ratio (FAR) – see Policy Levers – Height and Intensity section on page 10 for discussion of intensity scenarios that are being assessed. • Alternative 1: Increase throughout the whole corridor • Alternative 2: Increase only within the nodes
b. Alternative to by-right increase in height and FAR: Modify current approach of allowing additional height for mixed-use building. But allow 100%-residential buildings to achieve mixed-use height and FAR if the developments comply with all Objective Design Standards and provide a minimum threshold of community benefits (including payment of ground-floor retail in-lieu fee, provision of public open space, and other benefits). Also see Policy Levers, Community Benefits, page 11. (Related Policy – A.2.d, B.2.a; C.2.b; D.3.c) c. Review City’s efforts to Streamline Planning Approval and Building Permit process for new developments and make recommendations for further streamlining improvements.

3. Support Increased Diversity of Housing Types
a. Allow density to be counted as units or bedrooms to provide developers more flexibility in meeting min. density standards through either metric.
b. Allow an option to waive mixed-use development requirement for additional height outside of the nodes by providing a threshold percentage of workforce, senior or family-friendly housing. (Related Policy – C.1.b.)
c. Permit rezoning of select MULI and MUR zoned parcels within the Specific Plan if the development provides 100% percentage of workforce, senior or 2-3+ bedroom family-friendly housing; see Development Framework section for potential MULI and MUR zoned parcels that this policy could be applied to. (Related Policy – C.3.a)

Figure 1 Development Zoning Height Limits along
San Pablo Avenue

San Pablo Avenue Specific Plan Policy Options and Development Framework Memo August 21, 2024 7 of 8

4. Support Housing Affordability
a. Permit rezoning of select MULI and MUR zoned parcels within the Specific Plan if development provides 100%
affordable housing; see Development Framework section
for potential MULI and MUR zoned parcels that this policy could be applied to. (Related Policy – C.2.c)
b. Provide a density bonus for projects with a percentage of middle-income affordable units.
c. Reserve up to 10% of affordable housing units for artists in any state-designated cultural districts that are
established. (Related Policies – A.1.b)
d. Establish a site acquisition financing/funding program for 100% affordable projects.
e. Opt into and comply with the Metropolitan
Transportation Commission’s (MTC) Transit-Oriented
Communities (TOC) Policy to increase access to funding for housing and transit improvements including active transportation and pedestrian safety. 2 D. Improve the Public Realm

1. Increase Amount and Quality of Sidewalk Space
a. Provide community benefit for new or existing development to include sidewalk easements. (Related Policy – C.1.b.)
b. Create side street curb extensions for public and outdoor dining. c. Expand the sidewalk area and create public space through City-owned/ Caltrans-permitted parklets.

2. Improve and Maintain Lighting, Sidewalk, and Landscape a. Update Streetscape Standards including landscape, pedestrian lighting, bicycle parking, seating, and other public realm standards.
• Update pedestrian lighting standards, include street facing façade design and performance standards and require developments to implement.
b. Require developments to implement streetscape standards on their San Pablo Avenue frontage; this is an existing requirement that will be maintained by the Specific Plan.

2 As described in MTC’s April 2024 Working Draft Administrative Guidance for MTC's Transit-Oriented Communities Policy, jurisdictions with transit stops and stations that are not served by fixed- guideway service (e.g., areas that are only served by regular fixed-route bus transit) may choose to “opt in” and voluntarily meet TOC Policy requirements for these areas. For locations with no fixed-guideway transit service, the Tier 4 density and parking management requirements will apply in addition to all other TOC Policy requirements. The Tier 4 Average Minimum Zoning Density Required for Residential Development is 25 units/net acre or higher. The Tier 4 TOC Policy Parking Management Requirements is a parking maximum of 4.0 spaces per 1,000 square feet or lower and a minimum of 1 secure bicycle parking space per 5,000 square feet for commercial office. (MTC, May 14, 2024).

Figure 2 Section to illustrate sidewalk easement

San Pablo Avenue Specific Plan Policy Options and Development Framework Memo August 21, 2024 8 of 9
c. Pursue grant funding for public realm and infrastructure improvements. d. Study viability of funding districts for streetscape and other public improvements in the Specific Plan area:
• Alternative 1: a Landscape and Lighting District for public realm and infrastructure improvements.
• Alternative 2: modify development impact fees for public realm and infrastructure improvements.
• Alternative 3: a Tax Increment Financing District to fund capital improvements for the public realm.
• Alternative 4: a Community Facilities District (CFD) against specific properties to fund streetscape improvements.

3. Increase Public Open Space and Community Gathering Space a. Create small plazas by closing short and minor streets’ access to San Pablo Avenue (see Figure 3)
b. Purchase underutilized small properties for public parks or plazas funded through an in-lieu fee that allows developers a percentage reduction of on- site open space, and other public funds including grants. c. Require privately owned and publicly accessible open space for high-rise developments over a certain square foot threshold (in limited locations within nodes) with the requirement to provide a minimum area of private open public space (percent of total site area to be determined. (Related Policy – C.1.b)
• Alternative 1: Allow to credit against private open space requirement • Alternative 2: Allow payment of in-lieu fee to public open space community benefit funds.
d. Require a minimum amount of publicly accessible open space either for all projects, or for projects above a certain size.
e. Incentivize developments to create adjacent side-street public open space through a community benefits program.
• Projects that provide publicly accessible open space with amenities can count that space towards a to be determined percentage of required private amenity space.

4. Integrate Public Art and Cultural Programming into Public Open Space
a. Integrate public art into the San Pablo Avenue Specific Plan Area or subareas of the Plan Area to enhance the pedestrian experience along the corridor. b. Use public art to enhance and celebrate the unique characteristics of West Berkeley and to highlight distinct neighborhoods.
c. Use public art to enhance wayfinding and signage.

Figure 3 Potential side street closure
locations

San Pablo Avenue Specific Plan Policy Options and Development Framework Memo August 21, 2024 9 of 10
E. Enhance Local Access

1. Improve East-West Connectivity
a. Study feasibility of a shared shuttle service or an agreement between City and AC Transit to improve connections between Plan Area and West Berkeley, regional transit and East Berkeley (including Downtown Berkeley and the UC Berkeley Campus).

2. Enhance Pedestrian and Bicycle Safety and Access
a. Develop and implement wayfinding standards to improve connection between San Pablo Avenue and parallel bicycle facilities, the 4th Street West Berkeley node, adjacent parks and other community services. b. Improve sidewalk and streetscape conditions between San Pablo Avenue and adjacent parks and other community services.
c. Require public mid-block pathways for development sites that go through a block. d. Study feasibility of lowering speed limit on full length of segments of San Pablo Avenue. e. Study feasibility of separate bike lanes and bus lanes on San Pabo Ave with Alameda CTC .

3. Improve Transit Access and Frequency/Availability
a. Maintain and improve bus service in collaboration with Alameda CTC and AC Transit. (Related Policy – E.1.a) b. Evaluate Alameda CTC bus stop improvements, including bus bulbs and identify additional opportunities for streetscape and public open space improvements

4. Management On-Street Parking and Loading
a. Create an active parking and loading management program for San Pablo Avenue, including adjustment of parking meter rates, meter location expansion to side streets, and enforcement. b. Create residential and merchant parking permit area(s) on adjacent neighborhood streets.

San Pablo Avenue Specific Plan Policy Options and Development Framework Memo August 21, 2024 10 of 11
Development Framework
Throughout the public engagement process to-date, the community has expressed an overall interest in strengthening the nodes and prioritizing commercial viability with additional policy and beautification efforts. As described in the Community Assessment Report, there are five (5) nodes along the corridor at Gilman Street, Cedar Street, University Avenue, Dwight Way, and Ashby Avenue. The nodes are currently intended to provide focused clusters retail, commercial, and mixed-use activity to support a strong commercial and transit- and pedestrian-oriented environment by 1) requiring ground floor retail within the nodes, and 2) permitting only selective “active” commercial uses.

The Community Assessment report also identifies some challenges with existing nodes and opportuniti es for revising node boundaries within the Specific Plan. Existing node challenges include a lack of incentives for pedestrian -oriented retail, an oversupply of scattered retail space, and a non-distinct streetscape. Future opportunities include intensifying development at key areas, concentrating retail in walkable clusters, and investing in public space.

While many Specific Plan policies will apply to the entire corridor, this section outlines a development framework based on three policy areas that act as levers and tools to shape development outcomes both inside and outside of nodes, ensuring that strategies are tailored and effective for targeted areas. The Development Framework is conceptual and designed to incorporate community input. No specific decisions or approaches have been finalized. The preferred Development Framework will be determined through the preparation of the Specific Plan and include further public review and input opportunities including public hearings with the Planning Commission and City Council. The Development Scenarios section that follows presents three examples of how the framework, and its levers, can be applied to the corridor.

Policy Levers
Three key policy areas act as levers and tools to create a framework for future conditions and hierarchies between node and corridor development: height and intensity, ground floor use and design requirements, and community open space and activities.

Height and Intensity
Current development characteristics have deviated from existing zoning regulations due to density bonuses and market conditions. Developers often utilize density bonuses to propose 6 to 8 story buildings (3 to 4 stories permitted with existing zoning) with a Floor Area Ratio (FAR) between 3.75 and 4.7 (3.0 permitted with existing zoning) throughout the corridor.

Developers also chose to propose mixed use developments to establish a more intensive base zoning condition, which results in more commercial space throughout the corridor and in particular outside of nodes. This necessitates a reevaluation of the current height and density standards for the overall corridor and its nodes. Policy opportunities could include increasing the base zoning building heights and FAR for the corridor or varying the intensity between nodes and the areas in between.

Height and intensity options to consider include:
• An increase to 55 feet (5 stories) and 3.5 FAR (55 feet is within the height range allowed for the General Plan Avenue Commercial designation in the city. This height allows a 5-story building with a higher clearance for the ground floor, allowing for adequate space. The FAR increases to account for the additional height). If a project applies State Density Bonus, the likely maximum height would be 85 feet. Similarly, the local density bonus with community benefits would allow up to 85 feet in height and a maximum 5.0 FAR. • An increase to 85 feet (8 stories) and 5.0 FAR (85 feet is the maximum height for a wood framed construction type allowed by the building code. The 5.0 FAR reflects the increase in building height and is the current maximum FAR for Avenue Commercial, which is the General Plan designation for C-W zoned properties). If a project applies State Density Bonus, the likely maximum height would be 120 feet. Similarly, the local density bonus with community

San Pablo Avenue Specific Plan Policy Options and Development Framework Memo August 21, 2024 11 of 12
benefits would allow up to 120 feet in height and a maximum 8.0 FAR.

Most in-process or approved residential or mixed-use development projects are not moving forward at this point, g iven current market conditions, including higher interest rates, building code requirements, and increasing construction costs .

An exception to this could be some 100% affordable housing projects, because of lower interest funding that may be available for affordable projects. Projects with heights above 85 feet will likely not be feasible along San Pablo Avenue until there are significant decreases in construction costs and increases in market rents . Additional height and density allowances could be linked to contributions towards community benefits.

Density Bonus
The state density bonus allows developers to increase the maximum allowable residential density in exchange for providing affordable housing (See the Community Assessment Report, page 23), and allows them to waive, reduce or modify development standards. A local density or development bonus, such as codified in the City of Emeryville aims to encourage the inclusion of public benefits in addition to affordable housing in new development projects. A local bonus provides developers with increased density, height, or other zoning modifications in exchange for providing specific community benefits.

By increasing the base height and Floor Area Ratio (FAR) along San Pablo Avenue, there may be an increase in market-rate developments and a reduction in developments utilizing the state density bonus. If developers choose not to utilize the density bonus, they cannot waive any development standards proposed in the Specific Plan, such as Objective Design Standards, ground floor policies, and public open space requirements.

Berkeley’s inclusionary housing policies will still apply to all market-rate developments to ensure affordable housing availability for low- and moderate-income residents. Under these policies, housing development projects are required to provide a percentage of affordable units or choose alternatives such as paying an in-lieu fee or dedicating land for the construction of affordable units.

Figure 4 Development Zoning Height Limits along San Pablo Avenue

San Pablo Avenue Specific Plan Policy Options and Development Framework Memo August 21, 2024 12 of 13
In summary, Berkeley does not need state density bonus projects to create affordable housing because the City's own rules require that market rate projects integrate affordable housing or pay an in- lieu fee. By letting developers reach the same density levels with local standards, the City maintains more control over development designs, as developers would not have access to waivers and concessions that would be available if they used the state density bonus.

Ground Floor Use and Design
Outside of the nodes, mixed-use buildings are permitted an additional height (one residential floor) compared to residential-only buildings.

The difference in allowed height has led to mixed-use buildings being proposed by developers along San Pablo Avenue to achieve a 4 -story base zoning condition for new buildings instead of 3-story for a residential-only building. This is contributing to an oversupply of retail space scattered throughout the corridor. This presents an opportunity to leverage the demand for additional height by allowing more flexibility in ground floor use and implementing an in-lieu fee structure to waive ground floor commercial or live/work requirements in exchange for increased building height. Through the in-lieu fee, developers could be allowed to create active residential ground floor units instead.

Some developers may want to adhere to the mixed-use requirement and choose other ground floor uses. With the proposed active ground floor requirement, they would still have to follow pedestrian-friendly design standards.

Currently, within the nodes, there is a general requirement for ground floor commercial space. However, this designation lacks incentives for pedestrian-oriented retail, which undermines the original intention of these nodes. Adjustments such as broadening the allowed uses and emphasizing storefront ground floor design would create more flexibility and creating a built environment that can flex to more active retail uses as the population within th e Specific Plan Area increases over time, and better align with the intended pedestrian -friendly environment.

Community Benefits
The above-mentioned policy levers can serve as tools to incentivize community benefits, which refer to amenities, improvements or contributions that developers can provide to enhance the surrounding community as part of their project.

Developers may be offered trade-offs such as more height and density, or reductions for private open space. The following outlines potential community benefits:

1. San Pablo Avenue corridor open space contribution program

2. Streetscape setbacks to enhance the pedestrian experience

3. Additional streetscape improvements such as pedestrian lighting, furnishing, landscaping

4. Public rooftop or courtyard access

5. Privately owned public open spaces

6. Allocated community spaces for public use within developments

7. Provide neighborhood access to project amenities (roof top open space, gym, meeting space, community garden, etc.)

8. Community Benefit Fund to support small local serving businesses throughout the Specific Plan Area Expand Uses
The following describes three major types of
expanded ground floor uses. Note that all
types are equivalent to Ground Floor
Objective Design Standards (see B.2.a)
Storefront ground floor use focuses on
commercial type uses that allow for more
sidewalk visibility, such as restaurants, retail,
and certain office types.

Active ground floor use allows for all non-
residential (and live work) uses and provides
more flexible Objective Design Standards
Active residential ground floor allows for
apartments on the ground floor, which are
subject to Objective Design Standards.

San Pablo Avenue Specific Plan Policy Options and Development Framework Memo August 21, 2024 13 of 14

9. Additional workforce, senior or family friendly housing

10. Flexible Community Benefit proposed by the development

Development Scenarios
The development framework can be applied in various ways, creating different possibilities for developing nodes in the future. These possibilities include:
• Encourage more intensity of development
• Effectively concentrate retail in the nodes to create walkable neighborhood clusters • Focus public open space investments and community use

The following three scenarios are examples to demonstrate how policy levers can be used as tools to develo p various policy options. These scenarios illustrate the potential relationships between designated nodes and the entire corridor, showing how community benefits can be leveraged as trade-offs. This approach aims to achieve a variation in height and densit y while designating public realm and community improvements to priority areas.

San Pablo Avenue Specific Plan Policy Options and Development Framework Memo August 21, 2024 14 of 14

Scenario 1: Retail Focused Nodes with minor
height increase
Scenario 2: Flexible Storefronts with more
intensity at University Node
Scenario 3: Flexible Storefronts with expanded
nodes and more intensity at select parcels in
Gilman, University, Dwight, and Ashby Nodes

Maximum Development Intensity
Outside of Nodes:
 No change for single-use buildings
 Mixed-use Buildings maximum 55’ height and 3.5
FAR. Developers may pay an in-lieu fee to waive the
ground floor commercial requirements (See policy
option A.2.d)
 Mixed-use buildings can increase to 85’ height and

5.0 FAR, if they meet the Local Community Benefits
Requirement or through the State Density Bonus

Nodes:
 Base zoning: 55’ height and 3.5 FAR
 All buildings can increase to 85’ height a nd 5.0 FAR, if they meet the Local Community Benefits
Requirement or through the State Density Bonus
Note: This may be more attr
active than utilizing the
state density bonus for additional development
intensity

Maximum Development Intensity
Outside of Nodes:

See Scenario 1

Uni
versity Avenue Node:
 Base zoning: 85’ height and 5.0 FAR, if meet
Storefront Objective Standards (See policy option
B.2.a)

o Can increase to 120’ height and 8.0 FAR, if they
meet Local Community Benefits Requirements,
including:
o Storefront Objective Design Standards
o Provide privately owned public open space
(See policy option D.3.c). This may only apply to
developments over a certain sq. ft. threshold

Other Nodes:

See Scenario 1
Maximum De velopment Intensity
Outside of Nodes:

See Scenario 1

Gil
man Street West, University Avenue, Dwight, and
Ashby Avenue West Nodes select parcels:
 Base zoning: 85’ height and 5.0 FAR, if meet
Storefront Objective Standards (See policy option
B.2.a)

o Can increase to 120’ height and 8.0 FAR, if they
meet Local Community Benefits Requirements,
including:
o Storefront Objective Design Standards
o Provide privately owned public open space
(See policy option D.3.c). This may only apply to
developments over a certain sq. ft. threshold

Other Nodes:

See Scenario 1
Public Realm Improvements
Implement community benefits programs throughout
the corridor. Locations for improvement areas may
differ from nodes

Public Realm Improvements
University Node:
 High priority for public space

Oth
er Nodes:
 Priority for streetscape improvements
 Incentives a nd focus for privately owned public
spaces.

Public Realm Improvements
Gilman West, University, a nd Ashby West Nodes:
 High priority for public space

Ot
her Nodes:
 Priority for streetscape improvements
 Incentives for privately owned public spaces
Boundary and Zoning Designation Changes
To be determined
Bo
undary and Zoning Designation Changes
To be determined
Boundary and Zoning Designation Changes
To be determined

Chapter Implentation Measures Status Notes

1.1 Rezoning COMPLETE Manufacturing Zoning districts

1.2 Redevelopment Plan Amendments N/A Redevelopment Agency was dissolved

1.3 Truck Weight Ordinance COMPLETE BMC Chapter 14.56 (Movement of Heavy Vehicles and Equipment (Ordinance 6799-NS; 2004)

2.1 Consolidated Parking INCOMPLETE Neither site available for parking now

3.1 Inventory of Industrial Space COMPLETE Ordinance 65,210 -NS - 2011 West Berkeley Plan Update - inventory conducted as part of the update

1. Target Industrial retention and attraction program COMPLETE (i.e. Manufacturing Week)

2. Large Site Reuse Project COMPLETE Ordinance 65,210 -NS - 2011 West Berkeley Plan Update

3. Major Employer Training Project COMPLETE OED - Confirmed Complete

1. Rezoning COMPLETE Manufacturing Zoning districts

2. Arts and Crafts Ordinance Review COMPLETE Ordinance 65,210 -NS, 2011 West Berkeley Plan Update, and Berkeley Business zoning updates

3. Mitgations as ordinance related to housing, child care and others COMPLETE Inclusionary Housing ordinance - Family Dare Care use updates

4. Coordination with County ONGOING
B.1 Building Buyout Program COMPLETE Mitigation for Durkee project B.2 Buyouts of Retiring Owners COMPLETE Project Equity
B.3 Employment/Training System COMPLETE First Source
B.4 Recognition system COMPLETE Berkeley Manufacturing Week; Green Business Certification B.5. Business Assistance COMPLETE OED Business Assistance C.1 Business Directory COMPLETE Developed internally OED Economic snapshot.

D.1. San Pablo Ave Economic Development Study COMPLETE San Pablo Avenue Specific Plan D.2. Redevelopment Feasibility Study N/A Redevelopment Agency was dissolved D.3 Economic Development Organization - COMPLETE Explored - OED marked complete

1.1 Centralize and Coordinate Environmetal Information
COMPLETE https://berkeleyca.gov/your-government/public-records/community-right-know-hazardous-materials California Environmental Recording System

1.2 Development and Implement work program for the Community Environmental Advisory Commission COMPLETE The CEAC is now the Environment and Climate Commission

1.3 Revise and resubmit to state Citywide Chemical Emergency Response Plan COMPLETE Toxics' Area Plan: reviewed by state every 3 years

1.4 Provide Risk management and communication program assistance to manufacturers and other businsses. ONGOING

1.5 Work with businesses to improve existing odor problems COMPLETE Air District regulates

1.6 Continue to review new and expanded uses for odorous potential ONGOING

1.7 Provide assistance to businesses through the Recycle Market Development Zone (RMDZ) COMPLETE Recycling Market Development Zone through CalRecycle B.1 Map source sites and groundwater contamination plumes COMPLETE CalEnviroScreen B.2 Construct acoustic berm along western edge of Aquatic Park via Aquatic Park Master Plan INCOMPLETE Studied; found infeasible; barriers upgraded at Aquatic Park; acoustic berm was found to be too costly because of the need for concrete piers and a retaining wall. $13M - likely higher now.

C.1 Implement 1991 Hazardous Material Importation Regulation Act COMPLETE regulation required by state law C.2. Create a hazard ranking system for use in charging fees and evaluating Use Permits COMPLETE Fees scale for larger haz mat quantities on-site C.3 Develop and Implement standard Use Permit conditions for hazardous waste hauling COMPLETE Regulated by Department of Toxic Substances Control C.4 Adopt requirement for pollution prevention planning COMPLETE Toxics C.5 Implement Non-Point Discarge Program (runoff program) COMPLETE Storm Water Management Plan C.6. Work with BAAQMD to ensure clean air measures are implemented ONGOING C.7. Implement Ozone Depletion Ordinance COMPLETE https://berkeley.municipal.codes/BMC/11.62 C.8 Revision of Noise Ordinance COMPLETE https://berkeley.municipal.codes/BMC/13.40.050 C.9 Improve consideration of noise in Use Permit decisions COMPLETE https://berkeley.municipal.codes/BMC/13.40.050 D.1. Study requirements for increase public notification for environmetal review when related to hazardous materials.

COMPLETE no study was conducted however increased notification and state requirements have been implemented through CERS and permit requirements through the Toxics Division; exceptions to exemptions D.2. Study possibilty of extending tax credits or other incentives for pollution preventions, source and toxic use reduction. INCOMPLETE Study not conducted. State offers various incentives (cap and trade, Carl Moyer, California Pollution Control Financing Authority, etc)
D.3 Research more comprehensive Hazardous Materials Transprotation Ordinance COMPLETE https://berkeley.municipal.codes/BMC/11.50 Yes: Railway Study
D.4. Research a Mandatory Commercial Hazardous waste recycling Ordinance COMPLETE Nicole Kim: supereded by desginated hauling o ut of Berkeley D.5 Identify sources of night noise and develop appropriate mitgations when possible INCOMPLETE Environmental Quality
Land Use
Economic Development
ATTACHMENT 3

Chapter Implentation Measures Status Notes

1.1 Redevelopment Area Public Improvement N/A Redevelopment Agency was dissolved

1.2 Soundwall Design and Construction Monitoring

INCOMPLETE
https://aquaticpark.org/wp-content/uploads/2023/08/AqPk-Sound-Barrier-Options-2000.pdf Caltrans found the "living sound wall" would cost $13 million because of concrete piers and retaining wall, rending project infeasible.

1.3 News rack Ordinance-Explore the feasibility-given both aesthetic and First Amendment concerns-- of an Ordinance regulating the placement and design of news racks. COMPLETE https://berkeley.municipal.codes/BMC/16.44

1.4 Train Station Design Concept COMPLETE

1.5 Facade Improvement Program - seek funding to develop a facade and signage improvement. INCOMPLETE Likely attempted to seek funds however no signage or facade improvement program is in place

1.6 4th St. Area Strategic Plan INCOMPLETE

1. 7 Development of Design Guidelines for various areas IN

PROGRESS SPA SP

1.8 Gateway Improvement Studies
IN

PROGRESS SPA SP

1.9 1-80 Corridor Visual Improvement Study COMPLETE https://www.alamedactc.org/wp-content/uploads/2019/08/I- 80_Gilman_Visual_Impact_Assessment_Aug2018.pdf

1.10 Billboard Amortization removing billboards from San Pablo Avenue IN

PROGRESS SPA SP

1.11 Zoning Ordinances Changes for and between Nodes COMPLETE

1.12 Sign Ordinance Amendment COMPLETE Sign Ordinance has been amendmended since WBP adoption

1.13 Review of Major Public Improyements ONGOING

2.1 Designation as Certified Local Government-Apply to State Historic Preservation Office for certification as a Certified Local Government. COMPLETE Certified: March 1, 2000

2.2 Completion of West Berkeley Historic Survey (with BAHA) INCOMPLETE Shifted to citywide historic statement and survey via HE EIR mitgation; HE EIR says we shoud do this citywude, which would include West Berkeley. So, still in GP

2.3 Research for Landmark Designation on State Historic Resources Inventory building COMPLETE 4 local landmarks and 1 landmark district established post 1993 in WBP area

2.4 Historic signs program-Install signs at historic buildings and sites, COMPLETE https://berkeleyplaques.org/

2.5 Elementary educational program INCOMPLETE

2.6 Heritage Area Designation INCOMPLETE "when residents suport such efforts"

3.1 Codomices Creek Regulation and Improvement ONGOING Updates to the creek ordinance in 2006

3.2 Tree Planting Program COMPLETE https://berkeleyca.gov/city-services/streets-sidewalks-sewers-and-utilities/city-trees-and-coast-live-oak- ordinance

3.3 Aquatic Park Access Improvements: Improve access to Aquatic Park COMPLETE Email Nelson Lam

3.4 Other Aquatic Park Master Plan Improvements COMPLETE Email Nelson Lam

3.5 Neighborhood park Improvements/addition COMPLETE Seek funding to improve facilities and services at neighborhood parks - Mea sure F

1.1 Trip Reduction Ordinance COMPLETE TDM ordinance

1.2 Bikeway Redesignations COMPLETE Bicycle Plan

2.1 Employee Shuttles ONGOING Approached them and they were not interested (TDM)- continue to approach

2.2 Transit improvements ONGOING "Work with AC Transit..."

2.3 Freeway reconfiguration COMPLETE https://www.cahighways.org/ROUTE080.html

2.4 Bikeway Improvements ONGOING

2.5 Bicycle Facilities ONGOING

2.6 Improvements for pedestrians ONGOING

2.7 5th St. Extension COMPLETE likely assessed and found to not be viable solution to congestion

2..8 Street System Improvements COMPLETE

3.1 Train Station Design Concept COMPLETE

3.2 Centralized Parking Demand and Cost Analysis COMPLETE Sites conveyed/developed

3.3 Aquatic Park Access Study

COMPLETE
https://aquaticpark.org/wp-
content/uploads/2024/06/APIP_Study_2008_W_TechnicalReportAndAppendices.pdf Aquatic Park Improvement Program (2008)

3.4 9th Street Connection Study COMPLETE Berkeley Bowl West did not include this.

Housing and Social
Services Miles Development Agreement Housing Programs COMPLETE West Berkeley's housing programs will generally be those adopted in the 1990 COMPLETE updated in each iteration of the Housing E lement Transportation
Physical Form

City of Berkeley
San Pablo Avenue
Specific Plan
Public Review Draft – October 28, 2025
Attachment 4

San Pablo Avenue Specific Plan Public Review Draft i
Land Acknowledgement
The City of Berkeley recognizes that the community we live in was built on the territory of xučyun (Huchiun (Hooch- yoon)), the ancestral and unceded land of the Chochenyo (Cho-chen-yo)-speaking Ohlone (Oh-low-nee) people, the ancestors and descendants of the sovereign Verona Band of Alameda County. This land was and continues to be of great importance to all of the Ohlone Tribes and descendants of the Verona Band. We acknowledge and honor the original inhabitants of Berkeley, the documented 5,000-year history of a vibrant community at the West Berkeley Shellmound, and the Ohlone people who continue to reside in the East Bay. We recognize that Berkeley’s residents have and continue to benefit from the use and occupation of this unceded stolen land since the City of Berkeley’s incorporation in 1878. As stewards of the laws regulating the City of Berkeley, it is not only vital that we recognize the history of this land, but also recognize that the Ohlone people are present members of Berkeley and other East Bay communities today. The City of Berkeley will continue to build relationships with the Lisjan Tribe and to create meaningful actions that uphold the intention of this land acknowledgement.

Plan Acknowledgment
This section will be made to include specific names, organizations, and contributors prior to final publication.

San Pablo Avenue Specific Plan Public Review Draft ii
Table of Contents
Chapter 1 Introduction

Chapter 2 Vision

Plan Purpose ..................................................................................................................................... 2 Specific Plan Area .............................................................................................................................. 3 Location ............................................................................................................................................... 3 Definition of the Specific Plan Area ........................................................................................................ 4 Study Area ........................................................................................................................................ 4 Specific Plan Area .............................................................................................................................. 4 Significance of the San Pablo Avenue Corridor .................................................................................... 6 Historical Context ............................................................................................................................. 6 Community Demographics ................................................................................................................ 7 Economic Vitality Conditions ............................................................................................................. 8 Planning Context ................................................................................................................................ 9 Regulatory Context ............................................................................................................................... 9 Relationship to other Planning Documents and Projects ....................................................................... 10 Community Engagement and Plan Development Process .................................................................. 11 Engagement Events and Methods ........................................................................................................ 11 Phase 1 ........................................................................................................................................... 11 Phase 2 ........................................................................................................................................... 11 Phase 3 ........................................................................................................................................... 11 Marcel Pardo Ariza: Municipal Artist-in-Residence ................................................................................ 12 Specific Plan Organization ................................................................................................................ 13 How to use this Document .................................................................................................................. 13

Vision .............................................................................................................................................. 14 Desired Outcomes .............................................................................................................................. 15 Increased Diversity and Supply of Housing ........................................................................................ 15 Increased Business Activity to Support a Thriving Community ............................................................ 15 Enhanced Interaction Between Public and Private Spaces ................................................................. 15 Enhanced Local and Citywide Access ............................................................................................... 15

San Pablo Avenue Specific Plan Public Review Draft iii
Chapter 3 Land Use

Chapter 4 Economic Development

Existing Local and State Land Use Policies and Standards ............................................................................. 18 Land Use Plan .............................................................................................................................................. 19 Existing Land Use and Zoning ............................................................................................................................ 19 C-W Zoning Evaluation .................................................................................................................................. 22 Proposed Land Use and Zoning Policies and Standards ................................................................................. 22 Zoning, Nodes, and Development Policies (P) and Standards (S) ..................................................................... 22 Allowed Uses ............................................................................................................................................... 33 Ground Floor Uses ........................................................................................................................................ 35 San Pablo Avenue Density Bonus Program ..................................................................................................... 35 Other Policies and Programs ......................................................................................................................... 38 Boundary Adjustments and Rezonings ........................................................................................................... 38 Opportunity Sites and Potential Buildout ...................................................................................................... 38 Development Potential and Buildout ............................................................................................................. 39

Interview with Business Owners ....................................................................................................... 44 Shirley Everett-Dicko, Everett & Jones ............................................................................................... 44 Jaime Alejo, Mi Ranchito Market ....................................................................................................... 45 Economic Development Policies and Programs ................................................................................. 46 Small Business Support ...................................................................................................................... 46 Business Organizations ....................................................................................................................... 48 Business Improvement District(s) Study ............................................................................................... 50 Investment ...................................................................................................................................... 51 Supporting Policies and Programs .................................................................................................... 51

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Chapter 5 Streets

Existing Conditions .......................................................................................................................... 54 Public Realm .................................................................................................................................. 54 Transportation ................................................................................................................................ 55 Objectives ....................................................................................................................................... 56 Transportation Policies, Standards and Projects ............................................................................... 57 Existing Policies and Standards ........................................................................................................... 57 City of Berkeley ............................................................................................................................... 57 Caltrans .......................................................................................................................................... 60 AC Transit ....................................................................................................................................... 60 Existing Transportation Projects ........................................................................................................... 61 City of Berkeley Projects .................................................................................................................. 61 Alameda CTC Projects ..................................................................................................................... 61 Transportation Policies and Standards ................................................................................................. 62 Multimodal Mobility and Access ....................................................................................................... 62 Multimodal Safety ........................................................................................................................... 64 Improve Connections Outside of the Plan Area .................................................................................. 69 Public Realm Policies, Standards, and Projects ................................................................................. 74 Sidewalk Space .................................................................................................................................. 74 Streetscape ........................................................................................................................................ 77 Lighting ........................................................................................................................................... 78 Landscaping ................................................................................................................................... 79 Street Furniture ............................................................................................................................... 85 Wayfinding, Placemaking and Public Art ........................................................................................... 88 Universal Design ............................................................................................................................. 89 Public Realm Expansion and Improvements ......................................................................................... 90 Utilities ............................................................................................................................................ 96 Water.............................................................................................................................................. 96 Stormwater ..................................................................................................................................... 96 Electric, Gas, and Communications ................................................................................................. 97 Waste and Recycling ....................................................................................................................... 97

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Implementation

Appendix
Appendix A – Key Existing Conditions
Appendix B – Opportunity Sites
Appendix C – Buildout Summary Memorandum
Appendix D – Street Improvements
Appendix E – Objective Design Standards
Project Administration ................................................................................................................... 100 Environmental (CEQA) Review ........................................................................................................ 100 Implementation Actions ................................................................................................................. 101 Table 6.1 Plan Administration Implementation Actions .................................................................... 102 Table 6.2 Land Use Implementation Actions ................................................................................... 103 Table 6.3 Economic Development Implementation Actions.............................................................. 107 Table 6.4 Street Implementation Actions......................................................................................... 110

San Pablo Avenue Specific Plan 1

Chapter 1
Introduction

San Pablo Avenue is a corridor in transition, shaped by growing demand for housing and fluctuating levels of commercial activity as new businesses open and others close. Existing zoning and State housing laws support additional housing development, but there is no cohesive vision to shape future growth toward a mixed -use district with stronger economic and social vitality.

In 2023, the City of Berkeley launched the San Pablo Avenue Specific Plan process to create a framework for equitable and sustainable development, safer streets, better access to the surrounding community, and a more vibrant economy and public realm. Building on City Council direction from 2015, the Specific Plan planning process prioritized inclusive engagement, with targeted outreach to those who live and work in and around the Specific Plan Area (the Plan Area) and multiple opportunities for the public to participate and shape the plan.

- Public Review Draft -

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Plan Purpose
The Specific Plan responds to the question: “What will the future of San Pablo Avenue look like?” Its purpose is to establish community-based, context-sensitive regulations and policies that articulate a shared vision for a mixed-use district along San Pablo Avenue. Through the planning
process, the City, in collaboration with the consultant team and the community, identified improvements and innovative programs that expand opportunities for living, working, shopping, and community life along San Pablo Avenue.

In February 2021, the City of Berkeley received a Priority Development Area (PDA) Planning Grant from the
Metropolitan Transportation Commission (MTC) and the
Association of Bay Area Governments (ABAG) to create the San Pablo Avenue Specific Plan.

The Specific Plan establishes a comprehensive framework of land use, public space, transportation, and economic development policies and strategies, including revised
standards for allowed uses in existing and new buildings, updated development intensities, and design standards for new development. It also outlines programs and policies to support diverse housing options, strengthen new and
existing businesses, enhance public amenities, and
improve connections between the Specific Plan Area and
surrounding neighborhoods and destinations.

Desired outcomes of the planning process
The San Pablo Specific Plan:
• Identifies a community vision and provides a plan for achieving the vision. • Includes a framework for transforming San Pablo Avenue into a multimodal street that functions well for all users, not just as a thoroughfare, but as a mixed-use place that provides a multitude of opportunities for living, working and taking part in community life.
• Explains, updates and creates new local planning policies, development standards and practices, and highlights their interrelationship, relevancy, and adherence with State, regional, and Citywide planning policies and processes.
• Includes implementation strategies with clear actions and responsibilities. • Prioritizes equity, promotes inclusivity, and strives to eliminate disparities through the Plan’s policies, programs, and implementation strategies.

Mutual knowledge exchange
The Specific Plan planning process facilitated
meaningful knowledge exchange between the
community and the Specific Plan team:
• Stakeholders gained an understanding of
how recent changes in Citywide policies and
State housing legislation have affected the
housing development approvals process. The
Specific Plan public engagement focused on
where the community’s input can be
meaningful in the context of streamlined
project approvals.
• Stakeholders identified current community
assets and expressed their vision for
enhancing them, as well as their aspirations
for other positive changes along San Pablo
Avenue.
• Stakeholder input provided insight into the
unique aspects of the community and their
ideas for the future. This informed Specific
Plan policies and standards, the land use
map, implementation, strategies, and many
other aspects of the Plan.

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Specific Plan Area
Location
San Pablo Avenue is one of the primary multi-jurisdictional transportation corridors in northern Alameda County and west Contra Costa County, extending as a major street from the Carquinez Bridge to Downtown Oakland, through the cities of Hercules, Pinole, San Pablo, Richmond, El Cerrito, Albany, Berkeley, Emeryville and Oakland. The Specific Plan Boundary (Specific Plan Area) encompasses the 2.35-mile corridor along San Pablo Avenue, from the Berkeley/Albany border in the north to the Berkeley/Oakland border in the south.

Figure 1.1 San Pablo Avenue in Berkeley and adjacent cities. Source: Google Earth

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Definition of the Specific Plan Area
Study Area
The Study Area includes the neighborhoods, commercial districts, and employment areas that are proximate to and have a strong relationship with the uses along San Pablo Avenue. The Study Area extends from the I -80 freeway in the west to Sacramento Street in the east and from the Albany border in the north to Emeryville and Oakland borders in the south (see Figure 1.2). The Study Area has been studied in select analyses throughout the Specific Plan process to gain an understanding of the social and economic relationships between San Pablo Avenue and West Berkeley, to identify historic and culturally significant locations in proximity to San Pablo Avenue, and to identify parks, open spaces, and other community assets that can be used by people living and working in the Specific Plan Area.

Figure 1.2 Map of Study Area in relation to the City of Berkeley. Source: City of Berkeley

Specific Plan Area
Definition of the Specific Plan Area was informed by the Plan Bay Area 2050 (2021) Priority Development Area (PDA) (see Regulatory Context below for more information). The Plan Area is comprised of individual parcels for which the Plan's policies, standards, and implementation actions will apply. These parcels primarily front onto San Pablo Avenue, as well as some adjacent parcels on side-streets and other adjacent areas that have the potential to support new housing and mixed-use development at a similar scale (see Chapter 3 Land Use for more detail). Along University Avenue, the area covers parcels between Ninth Street and Curtis Street (see Figure 1.3).

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Figure 1.3 Study Area and Specific Plan Area. Source: City of Berkeley

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Significance of the San Pablo Avenue Corridor
Running parallel to I-80, San Pablo Avenue connects tens of thousands of people each day to residential neighborhoods, employment centers, schools, public gathering spaces, and other key destinations in the East Bay.

The character and intensity of the streetscape, development, and uses along San Pablo Avenue varies along its length; its connectivity and diversity of uses establishes it as a mixed -use corridor in the East Bay. As State Route 123, it also functions as a designated reliever route during incidents on the I -80 freeway. Due to this role, the right-of-way in Berkeley is under the jurisdiction of the State of California through Caltrans, requiring the City of Berkeley to obtain Caltrans approval before making physical changes to the street . For these reasons, San Pablo Avenue has been the subject of multiple regional planning efforts – such as the Association of Bay Area’s (ABAG) East Bay Corridor Initiative and Alameda County Transit Commission’s (Alameda CTC) San Pablo Avenue Corridor Projects. Berkeley has taken part in these efforts and has also followed the development and adoption of Specific Plans in neighboring jurisdictions with great interest.

Historical Context
Originally known as part of the Lincoln Highway in the early 1900s, San Pablo Avenue served as the primary north-south connection prior to the construction of I-80. Its original role as a key regional and national route contributed to its designation as a state highway and shaped the corridor's pattern of region-serving, auto-oriented land uses.

San Pablo Avenue and the Study Area are also part of West Berkeley’s history of ethnic and racial segregation. On the 1937 federal Home Owners' Loan Corporation (HOLC) redlining maps, much of West Berkeley — particularly the neighborhoods near San Pablo Avenue — were marked in red and deemed “hazardous” for investment, largely because of the presence of African American, Asian American, and immigrant communities
(see Figure 1.5).1 These classifications led to
systematic disinvestment, exclusion from mortgage lending, and lasting economic and environmental inequalities. As a result, West Berkeley became both a hub of diverse working-class communities and a target of discriminatory practices limiting their access to housing elsewhere in the City.

At the same time, the area west of San Pablo Avenue developed as one of Berkeley’s primary industrial and manufacturing centers. Industries such as ironworks, chemical production, food processing, and printing thrived, drawing on the surrounding diverse workforce. Although large- scale manufacturing declined after World War II, West Berkeley’s industrial legacy remains visible in its historic building stock. Today, a new generation of small-scale manufacturers, makers, and biotechnology firms are located within the Study Area west of San Pablo Avenue, continuing the role of West Berkeley as a center of production and innovation. The Specific Plan Area’s proximity to West Berkeley has led to some complementary businesses locating on San Pablo Avenue and supports general business vitality along San Pablo Avenue.

1 A detailed review on the History of Redlining in the East Bay can be found here:
https://dsl.richmond.edu/panorama/redlining/map/CA/Oakland/context#loc=12/37.8839/ -122. 2562. L ast accessed
10/02/2025
Figure 1.4 The Key System and Berkeley sign at
San Pablo Avenue and University Avenue, ca.
1925. Source: Berkeley Public Library. Online
Archive of California

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San Pablo Avenue Specific Plan Public Review Draft 7

Figure 1.5 Historical Redlined Areas and Equity Priority Communities Map. Source: R.K.Nelson and E.L.Ayers, Mapping Redlining, 2023. MTC, Equity Priority Communities, 2021.

Community Demographics
The Study Area has a greater racial and ethnic diversity compared to the city as a whole and Alameda County, with a notably higher percentage of Black population. This pattern reflects the legacy of historic redlining that shaped neighborhood demographics and limited mobility for communities of color over time. Although racially restrictive covenants were ruled unenforceable by the Supreme Court in Shelley v. Kraemer (1948), the practice of redlining persisted until it was prohibited under the Fair Housing Act of 1968. Its impacts persist today, as formerly redlined areas continue to experience greater economic inequality and higher risk of displacement.

The Study Area’s population in 2020 was 26,360. The population grew 16% between 2010 to 2020, representing 22% of the city’s total population and outpacing the city’s overall population growth of 9% in the same period.2
As neighborhoods within the Study Area continue to grow, demographic shifts have varied across racial and ethnic groups. From 2000 to 2020, the White population increased by over 3,900 (+45%), while the Black population decreased by over 2,600 (-39%) (see Figure 1.6). The population increase of Hispanic/Latinx, Asians/API, and other races during that period was moderate.

2 United States Census Bureau. Decennial Census. 2010, Table P7. 2020, Table P1.

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As a result of being historically underserved, some census blocks within the Study Area are part of the Metropolitan Transportation Commission (MTC)’s Equity Priority Communities (EPCs). The EPC designation helps provide funding and assistance to census tracts that have a significant concentration of underserved populations.3

Figure 1.6 Left: Population Shift by Race and Ethnicity in Study Boundary. Source: United States Census Bureau. Decennial Census. 2010, Table P7. 2020, Table P1. Right: Comparison of Racial Composition in Study Area, Berkeley, and Alameda County.

Source: United States Census Bureau. Decennial Census. 2010, Table P7. 2020, Table P1.

Economic Vitality Conditions
San Pablo Avenue is a unique commercial corridor in Berkeley , historically defined by regional and specialty businesses, along with uses connected to industry and manufacturing. Previous City plans and economic assessments have characterized the corridor in ways that remain relevant today :
• Historic industrial identity: Once a center for manufacturing and production, the West Berkeley neighborhoods adjacent to San Pablo Avenue still include industrially zoned areas. Automotive and repair related businesses continue to operate along the corridor, contributing significantly to the local and regional economy. 4 • Commerce and production: Many businesses on the corridor produce goods on-site and sell directly to customers, occupying a niche at the intersection of commerce and light industry.4 • Regional destination: San Pablo Avenue functions primarily as a destination for specialized goods and servi ces, such as auto repair, construction materials, home improvement, and restaurants , rather than serving as a walkable, neighborhood-serving retail district.5
This strong regional identity can at times be at odds with local aspirations for a more walkable, mixed-use environment that supports multi-modal transportation options, a broad range of businesses, and new infill housing.

Vacancy and Broader Economic Impacts
San Pablo Avenue experienced a significant rise in ground -floor commercial vacancies in the years following the COVID-19 pandemic. Office of Economic Development data indicates that San Pablo Avenue’s ground floor commercial vacancy rate (by square footage) doubled from 5.5% in 2017 to 10.8% in 2022. The rate peaked in 2023 at

15.5%, reflecting ongoing challenges for local businesses.

3 To learn more about the MTC/ABAG’s EPC designation and methodology, visit mtc.ca.gov. 4 City of Berkeley. Office of Economic Development’s 2016 Economic Development Work Session, 2016. p.9, 13. 5 City of Berkeley. 2022 Economic Dashboard. Office of Economic Development, 2022.

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San Pablo Avenue Specific Plan Public Review Draft 9
By 2024, the vacancy rate had declined to 7.1% along San Pablo Avenue6, signaling a recovery in ground floor activity.

By comparison, the average citywide vacancy rate in 2024 was 7.5%.

The past few years were defined by several high-profile closures along San Pablo Avenue, many of which were establishments with broad name recognition and historic and cultural significance in Berkeley. KC’s BBQ, for instance, was a Black-owned, family-run business that first opened in 1968; Kirsten Davis, a third-generation co- owner told NBC Bay Area in April 2023 that “The brick and mortar are a monster for a lot of small businesses. People are trying to find funding and to hold onto and retain employees.” Despite these closures, the decline in vacancy rate and the arrival of new neighborhood -serving businesses suggest that San Pablo Avenue is entering a period of renewal. The Specific Plan aims to build on this recovery by supporting small business retention, improving storefront vitality, and reinforcing the Plan Area’s role as a diverse, mixed-use district.

Planning Context
The San Pablo Avenue Specific Plan is a key component of Berkeley’s broader long-range planning efforts. The Plan’s policies and implementation strategy reflect recent changes in State housing and land use law that require a new approach to local planning. The Specific Plan is consistent with State guidance for the preparation of a specific plan, as identified in the California Government Code §65450-65457.

Regulatory Context
Citywide Policies
The City’s General Plan, adopted in 2002, outlines Berkeley’s long-range vision and priorities for growth, development, and conservation. It includes elements on Land Use, Transportation, Housing, Disaster Preparedness and Safety, Open Space and Recreation, Environmental Management, Economic Development and Employment, Urban Design and Preservation, Citizen Participation, and Implementation.

The San Pablo Avenue Specific Plan will serve as an extension of the General Plan, providing policy and regulatory guidance tailored to the Specific Plan area. All land-use decisions are consistent with the goals, objectives, and policies of the General Plan
The Housing Element of the City’s General Plan serves as the City’s framework for housing goals, policies, and programs for meeting existing and future housing needs and increasing affordable housing opportunities to accommodate the Regional Housing Needs Allocation (RHNA) established by the State. In the 2023-2031 Housing Element Update, approximately 31%, or 2,023, of the housing units needed to accommodate the RHNA fall within the Specific Plan Area, indicating the Plan Area’s potential to accommodate a significant share of future housing. The Housing Element also identified land use and zoning actions to help meet the RHNA, including the implementation Program 27- Priority Development Areas (PDAs), Commercial and Transit Corridors to develop San Pablo Avenue as a PDA.

The West Berkeley Plan (adopted in 1993 and amended in 2011) defines the City’s key land use, environmental, economic development, transportation, housing and social services, and physical form policies for West Berkeley, which includes the Specific Plan Area, as well as parts of the broader Study Area to the west of San Pablo Avenue. The West Berkeley Plan defines West Berkeley’s land use to support desired economic development, as well as identifies retail “nodes”, including those that are now “designated nodes” in the C-W West Berkeley Commercial District zoning standards.

This Specific Plan supersedes the West Berkeley Plan for all properties within the Specific Plan Area while carrying forward its key goals related to land use and community character. All future development must comply with both this Specific Plan and the Berkeley Municipal Code (BMC). Additional details can be found in Chapter 3 Land Use .

6 City of Berkeley. Berkeley Economic Dashboards Update, 25 Feb. 2025, p. 3. Accessed 6 May 2025.

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San Pablo Avenue Specific Plan Public Review Draft 10

Regional Policies
The PDA designation stems from Plan Bay Area 2050, which is a long-range regional plan developed by the Metropolitan Transportation Commission (MTC) and the Association of
Bay Area Governments (ABAG). 7 The Plan Bay Area 2050
includes strategies to improve housing, the economy,
transportation, and the environment with a focus on the region. As part of this effort, PDAs in Berkeley were
identified by the City and Bay Area Metro to promote
sustainable development patterns for jobs and housing in walkable and transit-oriented infill locations. The PDA designation increases the City’s eligibility for funding to support improvements in and provide benefit to a PDA.

State Legislation
Many State laws and regional policies related to housing and land use have been approved since the adoption of the City’s General Plan in 2002. The Berkeley Municipal Code continues to be updated to remain consistent with the laws and policies. Many recent State laws have made changes to the development review and approval process, timeline,
and requirements, as well as defined limitations on the City’s discretion regarding project approval, conformance with certain development standards, and the applicabil ity of the California Environmental Quality Act (CEQA).

Relationship to other Planning Documents and Projects
Other related plans and improvements that support the goals of the Specific Plan are discussed in their respective chapters. Key connections to the Specific Plan are summarized below:
• The 2016 San Pablo Avenue Commercial Corridor Report highlighted the area’s economic growth and diversity, identifying long-term opportunities for land use, transportation, and public realm improvements. While it did not propose immediate actions, its recommendations, such as sidewalk upgrades, public art, and branding, helped inform the goals of Chapter 4 Economic Development.
• Previous planning efforts have addressed streetscape issues along San Pablo Avenue. The San Pablo Avenue Public Improvements Plan, adopted on December 7, 2004, aimed to enhance the corridor for pedestrians, cyclists, drivers, and transit users, while also supporting revitalization of the surrounding area. While some improvements have been implemented, others remain unaddressed or are outdated. The Specific Plan includes updated streetscape standards as part of its improvement strategy, outlined in Chapter 5 Streets - Transportation and Public Realm.
• The Transit-First Policy Implementation Plan (2022) identifies San Pablo Avenue as a Primary Transit Route and a corridor for future study of transit infrastructure needs based on the AC Transit Major Corridors Study (2016). It describes the Alameda CTC’s San Pablo Avenue Corridor Project as the lead effort for designing transit improvements along the corridor. Concurrent with the Specific Plan development, the Alameda CTC San Pablo Avenue Corridor Project is providing key improvements in the Specific Plan Area to improve safety and transit reliability along the streets’ Corridor.

7 More information regarding Priority Development Areas (PDAs) can be found on the Metropolitan Transportation Commission’s Website mtc.ca.gov.

Figure 1.7 Key California Laws that Support Housing.

Source: UPP

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San Pablo Avenue Specific Plan Public Review Draft 11
• In 2023, the City began work on a Zoning Update for North Shattuck, College Avenue, and Solano Avenue commercial corridors that, like San Pablo Avenue, are designated as priority commercial and transit corridors in the 2023–2031 Housing Element. This initiative aims to establish clear and objective development standards in compliance with State law, while reassessing land uses and permitting processes to support future growth along these key corridors. The San Pablo Avenue Objective Design Standards (see Appendix E) have been developed with this broader zoning context in mind, with the goal of creating cohesive, high-level design guidance that aligns with the citywide approach.

Community Engagement and
Plan Development Process
The Specific Plan’s community engagement process provided multiple opportunities for participants to share perspectives, ideas and feedback, representing a broad range of existing and future residents, workers, business owners, property owners, and corridor users. The process also included close collaboration with City staff and included regular discussions with the Planning Commission and City Councilmembers, as well as collaboration with staff from regional planning and transportation agencies.

Engagement Events and Methods
Phase 1
The outreach process included a series of five focus group meetings, five interviews, one community open-house, one survey and one pop-up held between 2023 and Spring 2024 (see Figure

1.7). Phase 1 of the outreach concluded in May 2024, gathering feedback on key issues. The findings from this phase were summarized in the Community Assessment Report.

Phase 2
The outreach in Phase 2 focused on Policy Development and feedback to policy options created by the Specific Plan team . Phase 2 included one community workshop, a survey, two pop-ups and a site tour in 2024. Community feedback echoed the issues outlined in Phase 1 and solidified the Specific Plan’s Vision and Desired Results (see Chapter 2).

Phase 3
Note: The following description will be updated and expanded upon following the Specific Plan Public Review period and adoption process to reflect the input received.

The Specific Plan team held four stakeholder interviews for preliminary feedback and will hold the final Community Open House to present the Public Review Draft Specific Plan in October 2025 and to gather initial feedback from the public. Input from the Open House and additional comments received during the public comment period w ill be documented, summarized, and communicated to the Transportation and Infrastructure Commission, Planning Commission, and City Council, along with a description of recommended changes and refinements to the Public Figure 1.8 Community Engagement Timeline

Chapter 1: Introduction
San Pablo Avenue Specific Plan Public Review Draft 12
Review Draft. Additional public comments received during the Commission and City Council meetings will be taken into consideration in the Council’s adoption of the Plan.

What We’ve Heard
The community expressed strong support for developing more affordable, mixed-income housing, with a majority in favor of higher-intensity development along San Pablo Avenue. However, some participants voiced concerns that excessive building height or bulk could create a "tunnel effect" limiting sunlight and worsening the pedestrian experience.

There was broad agreement that the current sidewalks and mobility conditions are inadequate. Participants emphasized the need for safety and public realm improvements, including wider sidewalks, better pedestrian lighting, additional greenery, and public art to enhance comfort, livability and corridor identity.

Community members also supported activating ground floors with flexible commercial and creative uses. This approach is intended to reduce vacancies, prevent inactive storefronts, and strengthen the overall pedestrian experience in the Plan Area.

Marcel Pardo Ariza: Municipal Artist-in-Residence
As part of the 2023-2024 Print Public Municipal Artist-in-Residence at Kala Art Institute, artist Marcel Pardo Ariza worked with Robert Rivera and the San Pablo Avenue Specific Plan process. In response to the San Pablo Avenue Corridor Study and in dialogue with local community members, Marcel Pardo Ariza highlighted and celebrated seven local businesses along San Pablo Avenue: CASA LATINA, Belmo Cafe, Middle East Market, Heyma Yemeni Coffee, Rainbow Donuts, Everett & Jones, and Mi Ranchito Bayside Market. Through this exploration, Ariza emphasized the critical role these businesses play in the fabric and legacy of the community, underscoring the urgent need for C ity support in a landscape where vacant retail spaces proliferate across the Bay Area.

As part of the Municipal Artist-in-Residence, Marcel Pardo Ariza and Cheryl Derricotte presented their exhibition Roadwork at Kala Gallery from October 24, 2024, to February 14, 2025.

Figure 1.9 Images of Marcel’s work for the Roadwork Exhibition. Source: Marcel Pardo Ariza

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San Pablo Avenue Specific Plan Public Review Draft 13
Specific Plan Organization
The Plan is organized into five (5) chapters following this introduction.

Chapters 3 through 5 form the core of the Specific Plan, outlining the proposed policies, programs, and
standards that advance the vision and goals established in Chapter 2. While each chapter focuses on a primary
topic, they are not mutually exclusive, and therefore,
many policies are interrelated and advance the overall
vision and goals across multiple topic areas. For
example, policies in the Land Use and Street chapters
also support economic development by shaping where
commercial and retail activity is prioritized as well as the pedestrian experience throughout the Plan Area.

The Plan concludes with an Implementation Chapter 6,
which summarizes key priorities and actions needed to
carry out the Plan across each topic area. In addition, the Plan is also accompanied by Objective Design
Standards (ODS) in Appendix E.

How to use this Document
This Plan includes land use, economic development, public space, and transportation policies and standards to support the Vision and Goals outlined in Chapter 2. To ensure clarity and ease of use:

Policies are the core statements of intent that guide
decision-making. They articulate the City’s goals for future development, community benefits, public investment, and implementation initiatives. Policies are organized in the Land-Use, Economic Development, and Streets – Mobility
and Public Realm chapters. Each policy is numbered using the first letters of their respective chapter, followed by a “P” and a sequential number. For example, the first policy listed in the Chapter 3: Land Use is numbered LU-P.1. All policies appear in the chapter’s designated color.

Standards are measurable requirements that implement
the Specific Plan’s Policies. They include zoning regulations and development requirements. Standards follow the same numbering system as the policies, using “S” instead of “P”.

For example, the first standard in the Chapter 3: Land Use is numbered LU-S.1. All Standards appear in the chapter’s designated color.

In many chapters, specific standards are provided directly under the policy they intend to implement. These standards indicate their direct relationship to the corresponding policy.

The final chapter includes the Implementation Table, which outlines implementation actions, responsibilities, timelines, and funding mechanisms to carry out the Specific Plan’s goals.

Appendices:
• Appendix A: Key Existing Conditions
• Appendix B: Opportunity Sites
• A
ppendix C: Buildout Summary Memorandum
• Appendix D: Street Improvements
• Appendix E: Objective Design Standards

San Pablo Avenue Specific Plan Public Review Draft 14

Chapter 2
Vision and Desired Outcomes

Vision
The community envisions the San Pablo Avenue Specific Plan Area as a mixed-use district that is integrated with the neighborhoods and employment areas that surround it. The Specific Plan Area will serve Berkeley’s broad range of community members and continue to support citywide and regional needs as it has historically. “[We need a] Lively corridor where people from all walks of life can enjoy, mingle, and support local businesses. Good mix of housing, restaurants, stores (and grocery stores).” – Open House Comment With a history of demographic diversity and cultural exchange, community members are deeply protective of the area’s heritage. They continue to advocate for measures to strengthen its distinctive character while accommodating Berkeley’s housing needs. Central to this vision is redefining San Pablo Avenue not simply as a car-centric corridor, but as a place that connects east to west Berkeley and serves as an extension of surrounding neighborhoods. - Public Review Draft -

Chapter 2: Vision and Desired Outcomes
San Pablo Avenue Specific Plan Public Review Draft 15
Desired Outcomes
Increased Diversity and Supply of Housing
“It is essential to ensure that the plan addresses the needs of the historically underserved communities around San Pablo Avenue.” – Community advocate from Beautiful San Pablo The Plan will encourage more housing along San Pablo Avenue, offering more variety of unit types and building designs that reflect community diversity and meet the needs of residents ranging from young singles to families, seniors, and others. New and refined design standards, land use, and other policies for new development , paired with incentives for community-oriented spaces, will foster social interaction, support local businesses, and strengthen connections between new residents and the broader communi ty.

Increased Business Activity to Support a Thriving Community “It is our urban center or spine. Be more for the people that live here. [We are] Missing boutiques, groceries, and practical things.” – Open House Comment
The Plan envisions San Pablo Avenue as a vibrant and economically resilient corridor with welcoming storefronts, active ground floors, and businesses that contribute to an engaging public realm. Support for small and locally owned businesses will help activate ground-floor spaces and foster a diverse mix of creative, community -oriented uses.

Partnerships between businesses, the City, and neighborhood groups will facilitate community and cultural events that strengthen the corridor identity and establish San Pablo Avenue as a distinct, mixed-use district. Community and social events, organized by partnerships between businesses, the City, and neighborhood groups, will help establish a community identity for the mixed-use district.

Enhanced Interaction Between Public and Private Spaces
The Plan envisions streets where public and private spaces combine to support daily life and community vitality.

Wider sidewalks, small plazas, and other gathering spaces will provide welcoming places or “third spaces” for recreation, social interaction, and community events. Investments in street furniture, lighting, and landscaping will enhance safety, comfort, and accessibility for people of all ages and abilities, while preserving and expanding the tree canopy to create a greener, more inviting streetscape.

Enhanced Local and Citywide Access
“SPA is stressful. Just realized it acts as a border, and I hate crossing over it. Increase space for people, less space for cars (i.e. parklets, bulb outs, turn median into park.)” – Open House Comment The Plan aims to build upon ongoing City and regional efforts to transform San Pablo Avenue into a safe, inclusive, and welcoming street that prioritizes access and mobility for people of all ages and abilities. By improving crossings, lighting, and streetscape design, and by supporting reliable transit and active transportation options, the Plan’s street network will better connect residents to neighborhoods, parks, jobs, and the waterfront. This integrated approach reduces reliance on cars while preserving essential vehicle access and circulation.

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San Pablo Avenue Specific Plan Public Review Draft 16
How does the vision translate into desired outcomes? The table below outlines the key outcomes that the Specific Plan aims to achieve for each theme of the community’s vision. It also provides guidance on where to find more detailed information within the document. The chapters are abbreviated as follows: LU = Land Use, ED = Economic Development, PR = Streets and Public Realm, T = Streets and Transportation, and ODS = Objective Design Standards.

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Chapter 3 Land Use

The land uses along San Pablo Avenue have been shifting away from the historically regional - serving, auto-oriented land use pattern of primarily commercial and light industrial businesses . The Plan Area is now seeing the addition of higher density residential and more local -serving commercial uses, a transition that is beginning to transform the Plan Area in to a more vibrant , mixed-use district .

- Public Review Draft -

Chapter 3: Land Use
San Pablo Avenue Specific Plan Public Review Draft 18
This chapter establishes a land use and development framework to help achieve the community’s vision, focusing on policies and development standards that will achieve the following outcomes:
• Increase the diversity of housing types and supply of housing, including affordable options;
• Support commercial vitality and reduce ground-floor
vacancies;
• Promote active, pedestrian-oriented development and public realm improvements; and
• Coordinate land use with transportation and infrastructure investments.

Together with the Specific Plan’s Chapter 4 Economic Development strategies, Chapter 5 Streets - Transportation and Public Realm policies and standards, the Appendix E Objective Design Standards, and Chapter 6 Implementation actions, the Land Use policies and standards provide a unified framework to guide the continued transformation of the San Pablo Avenue Specific Plan Area into a mixed -use district that supports Berkeley’s housing, equity, and economic goals while strengthening its role as a central place for community life.

This Specific Plan supersedes the 1993 West Berkeley Plan for all properties within the Specific Plan Area while carrying forward its key goals related to land use and community character. All future development must comply with both this Specific Plan and the Berkeley Municipal Code (BMC). Title 23 of the BMC contains the zoning provisions that implement the Specific Plan, and any topics not addressed here are governed by the BMC and applicable building codes.

Existing Local and State Land Use Policies and
Standards
The Specific Plan land use framework is guided by both recent State housing laws and the City’s 2023-2031 Housing Element Update (HEU). State laws – including the Housing Accountability Act (HAA), Density Bonus Law, Senate Bills (SB) 35 and 330, and more recently Assembly Bill (AB) 130 and SB 131 – have made changes to the development review process, timelines, and requirements, and have defined limitations on the City’s discretion regarding project approval, conformance with certain development standards, and the applicability of the California Environmental Quality Act (CEQA). These State laws have modified the City’s review process and have resulted in more streamlined review.

At a local level, the City’s Housing Element Update (HEU) establishes goals, policies, and programs to address housing affordability, preservation, production, and equity. Of particular relevance, Program 27 – Priority Development Areas, Commercial and Transit Corridors, directed the initiation of the San Pablo Avenue Specific Plan to increase densities, evaluate design standards and public improvements, and incentivize affordable housing .

The Specific Plan therefore functions as the primary tool to implement Program 27 while aligning with State housing requirements and advancing the City’s adopted housing strategies. A full description of applicable State and local policies is provided in Appendix A: Key Existing Conditions.

Summary of Community Vision
As detailed in Chapter 2 Vision and
Desired Outcomes, the community
envisions the San Pablo Avenue Specific
Plan Area as a mixed-use district that is
integrated with the neighborhoods and
employment areas that surround it. The
Specific Plan Area will serve Berkeley’s
broad range of community members and
continue to support citywide and
regional needs as it has historically.

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Land Use Plan
Existing Land Use and Zoning
The Plan Area contains a mix of residential,
commercial, and light manufacturing uses.

Residential uses include multi-family, mixed-use,
live-work, along with a limited number of single-
family homes. There are a variety of existing
commercial uses, however the main uses include
service-oriented1, vehicle service and sales,
restaurant, manufacturing, and retail
establishments. Common business types include
automobile repair and home-improvement supply
businesses. Many of these businesses are locally-
owned and operate with brick-and-mortar
storefronts, contributing to the corridor’s unique
and varied economic profile. As of 2020, there were
approximately 2,588 existing housing units in the
Specific Plan Area. The majority of those, about
2,018, are in multi-family buildings with 5 or more units (see Figure 3.1). The Plan Area also includes approximately

1.49 million square feet of commercial space.

Land uses are regulated by the City’s General Plan and Zoning Ordinance. As shown in Figure 3.2, the General Plan land use designation along the entire San Pablo Avenue frontage is Avenue Commercial. As shown in Figure 3 .3, the zoning district for properties fronting on San Pablo Avenue is predominantly West Berkeley Commercial (C -W). The portion of University Avenue within the Plan Area includes parcels zoned C-W and C-U (University Avenue Commercial). Other zoning districts within the Plan Area include Mixed Use-Light Industrial (MU-LI), Mixed Use- Residential (MU-R), Restricted Two-Family Residential (R-2), Restricted Multiple-Family Residential (R-2A), and Multi- Family Residential (R-4).

The 1993 West Berkeley Plan and the City’s Zoning Ordinance also include Commercial Designated Nodes at the following major intersections along San Pablo Avenue: Gilman Street, Cedar Street , University Avenue, Dwight Way, and Ashby Avenue (see Figure 3.3). The purpose of the nodes is to intensify retail, commercial, and mixed-use activity to support a commercial and pedestrian-oriented environment by requiring new development to include certain ground-floor commercial uses.

A full description of existing land use is provided in Appendix A: Key Existing Conditions.

1 Services include personal services such as laundromats and cleaners, as well as professional services such as retail finance services. For additional information, see the Key Existing Conditions in Appendix A.

Figure 3.1. Distribution of Existing Housing Units in the Plan Area by Type. Source: City of Berkeley, 2023.
242
328
2018
Plan Area Existing Housing Units
Single Family
Multifamily (2-4 units)
Multifamily (5+ units)

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San Pablo Avenue Specific Plan Public Review Plan 20
Figure 3.2 Existing Berkeley General Plan. Source: City of Berkeley, 2023 and CD+A, 2025.

San Pablo Avenue Specific Plan Public Review Plan 21

Figure 3.3. Existing Zoning Map with designated nodes in the Specific Plan and Study Areas. Source: City of Berkeley, 2023 and Community Design + Architecture, 2025.

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C-W Zoning Evaluation
The current C-W Zoning District applies uniform height limits across the entire Plan Area and does not vary them within Nodes or other specific locations. It establishes different height limits for single-use and mixed-use residential buildings. Single-use projects, whether residential or commercial are limited to three stories (40 feet), while mixed- use projects may reach four stories (50 feet). The additional height allowance for a mixed-use project was originally intended to encourage the development of ground-floor commercial spaces.

However, feedback from real estate developers during the Specific Plan’s community engagement process revealed that in many cases there is insufficient demand for ground floor commercial space. Nevertheless, many projects continue to include ground-floor commercial space because the additional residential floor area granted to mixed- use projects typically outweighs the cost of constructing the commercial space, even if it remains vacant. This has contributed to an oversupply of ground-floor commercial space, diluting retail concentration and undermini ng the intended role of designated Nodes as focal points for commercial activity.

In response, the Specific Plan process re-evaluated how height incentives and ground floor requirements could be structured along San Pablo Avenue to better align with market conditions and achieve the Plan’s goals of vibrant, active Nodes.

During the Specific Plan’s community engagement process, many community members expressed support for increased density along San Pablo to allow for greater housing capacity and economic activity . Overall, participants favored allowing building height of 8 to 12 stories, with the taller buildings being primarily concentrated at the Ashby, University, and Gilman Nodes.

Proposed Land Use and Zoning Policies and
Standards
This section details the land use and zoning policies and standards for the Plan Area. The policies and standards implement refinements based o n current community needs , development patterns, and updated S tate and local legislation.

The land use and zoning policies and standards work in tandem with existing City of Berkeley policies, programs and standards, as well as with the Specific Plan’s transportation, public realm, and economic development components.

Together, these elements work to achieve the Specific Plan’s desired outcomes, which include:
• Revised housing development regulations
• Increased local business vitality and growth
• Expansion and improvement of the public realm
• Reduced vacancy of ground floor spaces
• Establishment of identifiable commercial areas with a stronger business presence To achieve these outcomes, the land use policies and standards emphasize:
• Concentrating retail uses and ground floor activation within designated Nodes. • Establishing a hierarchy of development intensity across the Plan Area, with greater height and density focused at the Ashby, University, and Gilman Nodes.
• Providing incentives for development to enhance and expand the public realm Zoning, Nodes, and Development Policies (P) and Standards (S) LU-P.1 Establish the Commercial San Pablo (C -SP) Zoning District The Specific Plan establishes the Commercial San Pablo (C-SP) Zoning District to replace the existing Commercial West Berkeley (C-W) and Commercial University (C-U) Zoning District within the Specific Plan area (see Figure 3.3).

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The General Plan text and map will be amended to reflect the zoning change and other Specific Plan policies. The C- SP Zoning District will increase residential and mixed-use development intensity within the Specific Plan Area by allowing greater height, density and Floor Area Ratios (FAR).

LU-P.2 Establish a Tiered Node Structure to Focus Growth and Commercial Uses The Specific Plan defines the following two-tiered Node structure to strategically concentrate higher-intensity mixed- use development and commercial uses at key intersections . The Specific Plan includes tier-specific development standards to incentivize commercial clusters:
• Tier 1 Nodes: Thes e are the highest intensity areas in the Pl an Area, allowing for increased height and FAR to
support housing and commercial services near major intersections. Tier 1 N odes include: University, Ashby, and Gilman.
• Tier 2 Nodes: These are the moderate intensity areas in the Plan Area, allowing for moderate increases in height and FAR compared to standards outside of the Nodes. The Tier 2 Nodes include: Cedar and Dwight.

In order to preserve and encourage active street frontages with commercial, retail, and community -service uses within all Nodes, residential ground-floor uses are generally not permitted with limited exceptions to the residential ground-floor restriction (see LU-P.10). Recognizing current market challenges – including elevated vacancy and less demand for retail spaces – the Specific Plan includes adaptive land use policies that expand permitted uses and promote short-term activation, while ensuring flexibility for changing uses and future adaptation (see LU-P.8 and LU-P.10). Together, these policies are all intended to balance near-term flexibility with long-term commercial viability, anticipating that stronger market conditions will emerge over the Plan’s horizon as development and population increase within the Plan Area.

Tier 1: Gilman Node
Tier 1: University Node
Tier 1: Ashby Node
Tier 2: Cedar Node
Tier 2: Dwight Node
Figure 3.4 Proposed Nodes

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LU-P.3 MU-LI Housing Overlay District to Allow Affordable and Family Friendly Housing
The Specific Plan creates a Housing Overlay District that permits 100% affordable housing and multi-family developments that include family-sized housing units in parts of the Plan Area where residential uses are not currently permitted. Projects that meet the affordability or family-sized unit size requirements may apply the development standards of the C-SP Zoning District.

The following provisions are to be included in the housing overlay zoning standards:

Applicability:
• Applies only to 6 existing MU-LI parcels within the Plan Area. • Available for projects that either:
• Provide 100% affordable housing, or
• Dedicate 50% of the project’s gross floor area to family-sized units.

Development standards: Qualifying projects may use the C-SP development standards.

Affordable Housing Requirements:
• Projects must ensure that 100% of units (excluding any manager unit) are restricted to households earning less than 60% of Area Median Income (AMI) for rental and 80% of AMI for ownership . • Projects can be for-sale or rental.
• Units must be deed restricted as affordable housing under a Regulatory Agreement similar to those used for projects approved under the Inclusionary Housing Ordinance.

Family-Sized Housing Requirements:
• Family-sized units are defined as units with two or three bedrooms. • Projects using the family housing option must provide 50% of gross residential floor area as family-sized units.
• Projects can be for-sale or rental.

The housing overlay will make MU-LI sites viable for housing while advancing two of the community’s priorities:
increasing affordable housing production and expanding the supply of family -sized units.

In 2025, land values in the MU-LI zone were approximately half the value of comparable residentially-zoned sites. This is primarily due to the current prohibition on residential uses within the MU -LI district, as well as the lower rents commanded by industrial uses. By restricting the overlay to projects that are either 100% affordable or that provide 50% of their gross floor area as family-sized units, this policy intends to improve the ability of affordable housing developers to compete for these sites and ensure that new housing better serves families in Berkeley.

While these parcels are located in “moderate resource” census tracts and may be less competitive for some state affordable housing funding, the overlay creates a clear zoning pathway that will enable housing development as additional funding becomes available. It also addresses a gap in State housing laws, which generally do not permit residential development in industrial zones, by creating a local mechanism for housing on select MU-LI parcels consistent with the City’s Housing Element commitments.

LU-P.4 Amend the General Plan and Zoning Map
Amend the General Plan and Zoning Map to incorporate the San Pablo Avenue Specific Plan, the C -SP zoning district, Nodes, and the MU-LI Housing Overlay District to support higher-density development in the Plan Area. General Plan amendments include changes in land use designation and text for overlapping Area Plans such as the West Berkeley Plan and University Avenue Specific Plan.

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San Pablo Avenue Specific Plan Public Review Draft 26
LU-P.5 Planning and Commercial Use Permit Streamlining Conduct a one-time, citywide review of the City’s efforts to streamline planning approval and building permit processes, including commercial permitting, new development, land use changes/use permits, commercial tenant improvements, event permits, short-term use permits, and other permitting processes.

LU-P.6 Public Space Development Incentives
Encourage the creation of high-quality, publicly accessible space within private development projects to enhance the pedestrian environment, support placemaking, and deliver community benefits along San Pablo Avenue, including the following Standards:

LU-S.1 Sidewalk Expansion Incentive
Encourage sidewalk widening of the Frontage Zone (PR-S.1 Sidewalk Zone Standards) to improve the pedestrian environment and support street activation.

Standard: Projects must meet the following standards to qualify for the Incentive. • Applies only to developments fronting on San Pablo Avenue, Gilman Street, Cedar and Hopkins Streets, University Avenue, Dwight Way, and Ashby Avenue with non-residential ground floor uses. • Provide a sidewalk expansion (Policy PR-S.1) via a first-floor setback and public access easement. Note that floors above may extend to the property line with no setback. • Also see Chapter 5 Streets, Sidewalk Space Section which includes policies and standards for sidewalk design and use.

Incentive: Qualifying projects would receive the following incentive. • 1 square foot of expanded sidewalk counts as 1.5 square feet of required open space. Eligible credits and incentives, including this provision, may reduce the project's required Private Open Space by no more than 70%.

LU-S.2 Privately-Owned Public Open Space within Nodes Encourage the creation of high-quality privately-owned and publicly-accessible open space (POPOS) within Nodes to enhance placemaking and provide community open space. Also see Policy PR-P.18 Privately Owned Public Spaces.

Standard: POPOS must meet the following objective design standards:
• Size: A minimum of 5% of site area, or 400 square feet, whichever is greater. • Location: Must be at ground level or on a podium, visible, located adjacent to or clearly visible from the public right-of-way and directly connected to a sidewalk on San Pablo Avenue. • Portions of the building at or above the second story may project over a POPOS by up to 6 feet. • Where a POPOS has a clear vertical volume of 3 stories or more, the building may fully bridge or cover the POPOS with upper stories (i.e., the POPOS may be entirely roofed/overhung by the building mass).
• Dimension: Must have a minimum dimension of 20 feet in any direction to ensure usability. • Access: Public access must be provided daily from 7 a.m. to 9 p.m ., or at least during daylight hours. It may open earlier or later to support adjacent and nearby businesses or on- site commercial activity, such as a coffee cart.
• An Information panel must be provided that states the public’s right to use the space, access hours, and identifies the party responsible for maintenance. Incorporate visible wayfinding signage where appropriate. • Maintenance: The City shall prepare an ordinance defining clear regulations for POPOS, along with a memorandum of understanding (MOU) between the property owner/manager and the City of Berkeley to establish maintenance responsibilities.

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San Pablo Avenue Specific Plan Public Review Draft 27
• Design:
• A maximum of 40% of open space may be covered. Shade structures such as awnings, trellises and umbrellas that provide protection are encouraged
• Railing, fencing, or landscaping material, when used to define the edge of POPOS, shall be a maximum of 36 inches in height and decorative, transparent, and/or perforated with a minimum of 75% transparency.
• POPOS should be programmed to support social activity and at least three amenities shall be provided from the following list:
• A minimum of 20% of open space shall be landscaped. Landscaping may include in- ground planting areas, raised planters, pots, or integrated Green Infrastructure elements.
• Provide one tree per 400 square feet of open space.
• Pedestrian amenities, such as seating options (e.g., seat walls, planter ledges, benches, picnic tables, and seating steps) or drinking fountains; • Pedestrian-scale lighting.
• Public art.
• Recreational features.

Incentive: Qualifying POPOS will receive the following incentives. • Count each square foot of POPOS towards 2 square feet of required private open space. Eligible credits and incentives, including this provision, may reduce the project's required Private Open Space by no more than 70%.
• Receive fee waivers for any associated park or public works review of facilities . • Qualify to receive public open space community benefit funds 2 to subsidize amenities and programming of
the spaces.

LU-S.3 Side-Street Plaza Implementation Incentive
The City shall explore establishing a development incentive for Side-Street Plazas at select intersections along San Pablo Avenue, as described in the PR-P.14 Side-Street Plazas policy. Residential or mixed-use projects at select intersections may receive an incentive if they contribute to designing, building, and /or maintaining a Side-Street Plaza.

Incentive: Projects that contribute to the design, construction or maintenance of a q ualifying Side-Street Plaza would receive the following incentives.
• Count it against any setback, lot coverage, or frontage requirements, • Count each 1 square foot of Side-Street Plaza towards two 2 square feet of required private open space.

Eligible credits and incentives, including this provision, may reduce the project's required Private Open Space by no more than 70%.
• Receive fee waivers for any associated park or public works review of facilities, • Qualify to receive public open space community benefit funds to subsidize amenities and programming of the spaces, and/or
• Receive waivers of other discretionary City requirements.

LU-S.4 Development Standards
The development standards in Table 3.1 define what types of development would be permitted while ensuring new buildings contribute to an active, walkable, and inclusive Specific Plan Area. The standards support a variety of building types and intensities, consistent with the Specific Plan’s Land Use and Zoning Policies and Standards, while focusing the greatest development capacity such as height, floor area ratio (FAR), and number of stories in the Tier 1

2 See potential in lieu fee in LU- S.5 Medium Development and Mid-Rise Public Open Space Requirement.

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and Tier 2 Nodes. These location-specific development standards reflect community priorities to concentrate growth near transit and key commercial intersections, while supporting context -sensitive infill in other areas of the Plan Area.

These baseline regulations are complemented by the Specific Plan’s Ground Floor Use Standards and Objective Design Standards (see Appendix E). The development standards may also be modified by future State legislation and regulations. Together these tools are intended to foster predictable, equitable, and high-quality development outcomes throughout the Specific Plan Area.

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San Pablo Avenue Specific Plan Public Review Plan 29

Table 3.1 Development Standards
Zone/ Category Max.

FAR
Max.

Height
Max
Stories
Min.

Density
Private
(Usable)
Open Space
[1]
Lot Line Setbacks [5] Max Lot
Coverage
Existing C-W
Single-Use 3.0 40’ 3 - 40 sq. ft.

Abutting/
Confronting a
Non-residential
District:

No min 100%
Mixed-Use 3.0 50’ 4 [2] - 40 sq. ft.

Abutting/
Confronting a Lot
in a Residential
District:

Front: Same as required in adjacent
Residential District
Rear: 10 feet or 10% of the lot depth,
whichever is less
Interior side: 5 ft.

Street side: Same as required in adjacent
Residential District

Proposed C-SP
Outside Nodes
Single-Use 3.0 40’ 3
135 du/ac
(residential
only)
40 sq. ft. Abutting/
Confronting a
Non-residential
District:

Non-Residential Build-To Line (BTL) [4]: The
required BTL shall be either:
• The front property line, or
• the edge of a recorded sidewalk
easement or POPOS that functions
as the public space.

Residential Front/Street Side Setback:

Where ground floor residential units front a
public street or publicly accessible
street/pathway the first two floors or first
floor with a minimum 12 feet clear height
from sidewalk grade shall be set back a
minimum of 4 feet and maximum of 6 feet
(for ADA unit minimum is 6 feet and
maximum is 8 feet).
100%

San Pablo Avenue Specific Plan Public Review Draft 30
Zone/ Category Max.

FAR
Max.

Height
Max
Stories
Min.

Density
Private
(Usable)
Open Space
[1]
Lot Line Setbacks [5] Max Lot
Coverage
Residential Mixed-
Use
As defined by
SPASP

3.0 55’ 5 [3]
135 du/ac 40 sq. ft. Abutting/
Confronting a Lot
in a Residential
District:

Non-Residential Build-To Line (BTL) [4]: The
required BTL shall be either:
• The front property line, or
• the edge of a recorded sidewalk
easement or POPOS that functions
as the public space.

Residential Front/Street Side Setback:

Where ground floor residential units
front a public street or publicly-
accessible street/pathway the first two
floors or first floor with a minimum 12
feet clear height from sidewalk grade
shall be set back a minimum of 4 feet and
maximum of 6 feet (for ADA unit minimum is
6 feet and maximum is 8 feet).

Rear: 10 feet or 10% of the lot depth,
whichever is less
Interior side: 5 ft.

Street side: Same as required in adjacent
Residential District

Nodes
Residential Mixed-Use
Abutting/
Confronting a
Non-residential
District:

Non-Residential Build-To Line (BTL) [4]: The
required BTL shall be either:
• The front property line, or
the edge of a recorded sidewalk easement or
POPOS that functions as the public space.
100%
Tier 1 Nodes
(Ashby,
University,
Gilman)

4.75 85’ 8 [3]
150 du/ac 40 sq. ft. Abutting/
Confronting a Lot
in a Residential
District:

Non-Residential Build-To Line (BTL) [4]: The
required BTL shall be either:
• The front property line, or

San Pablo Avenue Specific Plan Public Review Draft 31
Zone/ Category Max.

FAR
Max.

Height
Max
Stories
Min.

Density
Private
(Usable)
Open Space
[1]
Lot Line Setbacks [5] Max Lot
Coverage
Tier 2 Nodes
(Dwight,
Cedar)

3.75 65’ 6 [3]
135 du/ac 40 sq. ft. the edge of a recorded sidewalk easement or POPOS that functions as the public space.

Rear: 10 feet or 10% of the lot depth,
whichever is less
Interior side: 5 ft.

Street side: Same as required in adjacent
Residential District

Commercial / Light-
industrial

3.0 40’ 3 - None
Notes:

1. per dwelling unit or live/work unit; no minimum per group living accommodation resident.

2. The fourth floor must be used for residential or live/work purposes.

3. The fourth and floors above must be used for residential or live/work purposes.

4. A minimum of 75% of the building frontage shall be built to the Built -To Line (BTL). Up to 25% of the building façade may be located behind the maximum setback to allow for massing breaks, forecourts, plazas, etc. Publicly accessible plazas/open spaces may be subtracted from the overall facade length to calculate the minimum percentage of building facade to be located within the setback range. Building façade setbacks are calculated separately for building frontage onto publicly accessible plazas/open spaces.

5. See also Sidewalk and Public Realm Improvement Standards in Chapter 5 – Streets – Transportation and Public Realm.

6. For the Specific Plan Area, Private Open Space is the equivalent term of “Usable Open Space” as defined in the Zoning Code. This term is used, because the Plan allows for publicly accessible open space on private properties that is “usable” in broader meaning. There are two categories of Private Open Space (see Appendix E:

Objective Design Standards for a full definition.)
• Common Private Open Space. Usable Open Space provided for the shared use of residents and authorized guests of the residential project (see ODS.57-58) . • Personal Private Open Space. Usable Open Space provided for the exclusive use of an individual dwelling unit’s occupants (see ODS.59)

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LU-S.5 Medium / Mid-Rise Development Public Open Space Requirement Require that Medium/Mid-Rise developments within the Nodes provide privately owned and publicly accessible open space (POPOS) on-site.

Standard
• Appli
cability: Developments within Nodes with a site larger than 14,0 00 square feet, or exceed 65,000 square
feet of gross floor area, or are at least 7 stories in height. • Minimum Open Space Area: A minimum 5% of site area, or 800 square feet, whichever is greater. • Dimension: Must have a minimum dimension of 20 feet in any direction to ensure usability • Access: Public access must be provided daily from 7 a.m. to 9 p.m., or at least during daylight hours. It may open earlier or later to support adjacent and nearby businesses or on- site commercial activity, such as a coffee cart.
• An Information panel must be provided that states the public’s right to use the space, access hours, and identifies the party responsible for maintenance. Incorporate visible wayfinding signage where appropriate. • Location: Must be at ground level or on a podium visible and accessible from San Pablo Avenue or an intersecting street.
• Portions of the building at or above the second story may project over a POPOS by up to 6 feet. • Where a POPOS has a clear vertical volume of 3 stories or more, the building may fully bridge or cover the POPOS with upper stories (i.e., the POPOS may be entirely roofed/overhung by the building . • Maintenance: A memorandum of understanding (MOU) between the property owner/manager and the City of Berkeley shall establish ongoing maintenance responsibilities. • Alternatives to On-Site Provision:
o In-lieu fee payment to a San Pablo Avenue Open Space Fund; or o Combination of on-site POPOS, minimum of 400 square feet, and proportional in-lieu fee payment to achieve equivalent public benefit.
• Credits: On-site POPOS may count toward private open space requirements for residential projects if they meet specified design standards with 1 square foot of POPOS off-setting 2 square feet for private open space.

LU-S.6 New Development Amenities
Require 50% of new development residential amenities to be on the ground floor (and to be sidewalk facing and visible, including but not limited to gyms, coworking, and meeting spaces ). Private Open Space is excluded from this requirement.

LU-S.7 S treetscape Standards
Require that new developments implement streetscape standards (see Streetscape in Chapter 5) on their San Pablo Avenue frontage; this is an existing requirement that will be maintained by the Specific Plan.

LU-S.8 Mid-Block Pa ssages
Require public mid-block connections for development sites that span the full depth of a block and include more than 170 linear feet of site frontage along San Pablo Avenue or University Avenue. Mid-block connections may be

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differentiated between private publicly-accessible streets designed to accommodate low-volume vehicular connection and Mid-Block Passages, designed for pedestrian and bicycle use only.

Mid-Block Passage Standard: As described in PR-P.18 Privately Owned Public Open Spaces, are considered a type of POPOS and may qualify for incentives outlined below. • Size, dimension and design shall comply the ODS.61 in Appendix E. • Location: Must be at ground level and accessible from San Pablo Avenue or University Avenue. • Information panel that states the public’s right to use the space, access hours, and identifies the party responsible for maintenance. Incorporate visible wayfinding signage where appropriate. • Maintenance and Operation: property owner is responsible of maintenance and operations in the Mid -Block Passage, including and not exclusively, lighting, stormdrainage, landscaping, and paving.

Incentive: Qualifying Mid-Block Passages will receive the following incentives. • Count each square foot of Mid-Block Passage toward 1.5 square feet of required private open space. Eligible credits and incentives, including this provision, may satisfy no more than 70% o f the project’s required Open Space.

Private publicly accessible streets shall be designed to accommodate bicycles and vehicles in accordance with the Berkeley Municipal Code and applicable Emergency and Fire Access requirements, including minimum and maximum width, turning radii, and clearance dimensions necessary to accommodate service and emergency vehicles.

When two adjacent sites are developed concurrently, developers are encouraged to coordinate site planning efforts to identify and implement opportunities for mid-block connections or shared access improvements that enhance pedestrian and multimodal circulation.

Allowed Uses
LU-P.7 Encourage a Mix of Community -Serving Uses
The Specific Plan aims to provide for a broad mix of land uses that will contribute to a vibrant, economically resilient, and pedestrian-oriented Plan Area that both serves the community and supports small business developments, while preserving existing legacy businesses and cultural institutions. The following uses are encouraged within the P lan Area:

Residential Uses - Housing is allowed anywhere in the Pl an Area, either as standalone residential or as part of a mixed-use project depending on location. Ground-floor residential is allowed outside of the Nodes and permitted in select Nodes along side-streets (see Ground Floor Typologies and Figure ODS.1 in Appendix E: Objective Design Standards).

Retail & Commercial – General retail and commercial, including restaurants and café uses, are allowed throughout the Plan Area, with emphasis on clustering at Nodes. Pop-ups and temporary retail are also permitted with streamlined approvals to reduce vacancies, enhance commercial vibrancy, and support small business.

Public & Quasi-Public – Community and civic uses such as community centers, libraries, educational uses and cultural institutions are allowed throughout the Plan Area , including within the Nodes.

Office Uses & Workspaces – Professional and medical offices, and co-working spaces, are permitted in the Plan Area, including on the ground floor within Tier 2 Nodes subject to design standards (see Figure 3.4). Artist workspaces, maker workshops, and compatible light-industrial uses are also permitted.

Arts & Entertainment - Arts, entertainment, gallery, and studio spaces are allowed and strongly encouraged in the Plan Area.

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LU-P.8 Expand the list of Allowed Uses and Allow ed Temporary Uses Allowed Uses: Expand the list to include maker-spaces, galleries, office uses, and temporary pop -ups. By-right Uses (or permitted with Zoning Certificate):
• Support an expanded list of allowed u ses by right, co mpared to C-W zone, to encourage community
gathering space, and allow a broader range of community-oriented commercial and light-industrial activities. • Allow office uses, public markets, co-working spaces, galleries, maker spaces, live-work, and other third spaces with a Zoning Certificate, while excluding heavy -industrial uses incompatible with mixed-use development.
• Maintain the current zoning approach for Research and Development (R&D) uses. Under 20,000 square feet they may proceed with a Zoning Certificate, while uses over 20,000 square feet or larger require an Administrative Use Permit.

Temporary Uses: Expand temporary uses to allow for a variety of businesses to reduce vacancies and support small business creation.

Affordable Housing:
• Allow 100% affordable housing conversion of existing non-residential buildings, consistent with State Law. • Allow 100% affordable housing or multi-family residential projects that include family-sized housing on MU- LI zoned parcels(See LU-P.3)
LU-P.9 Define Residential Mixed-Use with On -Site and In- Lieu Options To provide for flexibility in ground floor use and support the concentration of active commercial space in N odes, the Specific Plan would allow residential ground floors in-lieu of commercial space in mixed-use developments outside of the Nodes. Under the Specific Plan, Residential Mixed-Use refers to projects with both residential and non- residential uses. Residential Mixed-Use is permitted throughout the Specific Plan Area. To be designated as Residential Mixed-Use project under this Specific Plan a development project must comply with one of the following conditions:
• On-Site Mixed-U se: The project must include at least 5% of the total gross floor area as non-residential use,
located on the ground floor along the primary street frontage. • In-Lieu Mixed-Use: For sites outside of Nodes, projects may substitute residential use in place of the required non-residential component if:
• The developer pays a Commercial In-Lieu fee, calculated based on the square footage of omitted required non-residential space (5% of total gross floor area); • The fee is deposited into the San Pablo Avenue Small Business Support Fund (See ED-P.1). • A portion of the fees may also be used to fund the start up of the Economic Development Liaison for the San Pablo Specific Plan Area (see ED-P.5). Should funds be used to fund the Liaison position, following 2 years of such funding, an evaluation of the effectiveness of the Liaison efforts should be prepared and a decision should be made if funding should be adjusted or discontinued.

Projects that meet either requirement shall be classified as Residential Mixed-Use for the purpose of applying development standards. Projects will be required to apply applicable Objective Design Standards ( ODS) based on their ground-floor use: on-site mixed-use projects would apply commercial or non-residential ground floor ODS, and in-lieu mixed-use projects would apply residential ground floor ODS.

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San Pablo Avenue Specific Plan Public Review Draft 35
Ground Floor Uses
Ground floor use requirements play a critical role in shaping the pedestrian experience, supporting local businesses, and ensuring a vibrant street life. To support the Specific Plan’s goals of a more active, pedestrian-oriented, and economically resilient area, the Specific Plan introduces a revised typology of ground floor types. These categories are designed to respond to different context conditions – such as Node tier – while providing flexibility to adapt to changing demand over time.

LU-P.10 Establish Ground Floor Typologies to P romote Pedestrian -Scaled and Flexible Ground Floors
Establish four ground floor typologies— Storefront, Other Non-Residential, Active Residential, and Live-work— with tailored design standards to support an adaptable and walkable public realm. Prioritize transparency, architectural articulation, and seamless adaptability between commercial uses ( Ground Floor Typologies in Appendix E:

Objective Design Standards for applicable standards). Additional ground floor typologies may be added to the objective development standards to achieve the Plan’s vision.

Ground Floor Typologies
• Storefront Ground Floor: Designed to allow for more visibility from the sidewalk to support pedestrian - oriented commercial activity, such as restaurants, retail, and certain office types. These standards are designed to ensure compatibility with a wide range of uses to facilitate an easy change of use from retail to restaurant, gym, or similar active commercial or service use. Storefront Ground Floor Design is required within the Nodes (exceptions apply see Appendix E: Objective Design Standards Figure ODS.1). • Other Non-residential Ground Floor: Designed to allow for all non-residential uses and provides more flexible Objective Design Standards.
• Active Residential Ground Floor: Designed to allow residential units at the ground floor, subject to Objective Design Standards that require a transition or connection from the public sidewalk to a residential unit, including entry patios, stoops, shallow landscaped setbacks, etc. • Live-work: Design to allow spaces for both living and working at the ground floor level, subject to Objective Design Standards.

San Pablo Avenue Density Bonus Program
State Density Bonus law allows developers to increase the allowable residential density of a project in exchange for providing affordable housing within their developments. The law also allows developers to waive, reduce or modify development standards, such as setbacks, design standards, and open space requirements, to accommodate the additional units.

Throughout the Specific Plan’s community engagement process, local residents emphasized housing goals that extend beyond simply increasing unit production. Key priorities included improv ing housing affordability, ensuring high-quality housing design that fosters social connection, and increased public open space and community gathering areas.

Establishing a San Pablo Avenue Density Bonus Program would provide an alternative to the State Density Bonus within the Plan Area and allow the City to achieve affordable housing production while maintaining greater control over the form and character of development in the Specific Plan Area. Under this program, a project could choose either the State Density Bonus or the San Pablo Avenue Density Bonus, but not both. Selecting the San Pablo Avenue Density Bonus would mean that the project chooses to opt-out of the State Density Bonus, including the rights to some waivers and concessions. This would ensure that the City can offer a clear, locally administered path to additional density while retaining the ability to define which waivers and concessions apply.

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The San Pablo Avenue Density Bonus would generate dedicated funding for the City’s existing Affordable Housing Trust Fund, a proven program with a backlog of projects in need of additional funding. By offering a local alternative to the State Density Bonus, the City would still receive an affordable housing benefit, but would maintain control over which waivers and concessions would apply to eligible projects, ensuring that important urban design standards and public realm priorities from this Specific Plan— such as active ground-floor frontages and open space requirements— are protected.

It is worth noting that Berkeley’s Inclusionary Housing policies would continue to apply to all market-rate development, ensuring that every project contributes to affordable housing — either through on-site units or in-lieu fees. Because of these requirements, Berkeley does not rely solely on the State Density Bonus program to create affordable housing. Instead, the San Pablo Avenue Density Bonus would provide an additional pathway for developers to achieve equivalent density while giving the City stronger tools to align new development with community objectives, particularly in housing affordability, urban design, and public realm improvements.

LU-P.11 Establish a San Pablo Avenue Density Bonus Program Establish a San Pablo Avenue Density Bonus Program by developing an affordable-housing benefit for new residential projects that is exclusively met through paying an in-lieu fee to the City’s Affordable Housing Trust Fund. The following components shall be included in the program:

Program Exclusivity
• A p
roject may utilize onl
y the San Pablo Avenue Density Bonus Program and would be required to waive the ability to use the State Density Bonus for the project. • Developers must declare their selected program at the time of application, and the selected program’s provisions would govern density, incentives, waivers, and concessions.

Affordable Housing Contribution
• In-lieu fee shall be placed in the City of Berkeley’s Housing Trust Fund equivalent to the City’s inclusionary housing in-lieu fee (currently $62.83 per square foot of residential floor area). • Funds shall be prioritized for projects within the Plan Area to support the creation and preservation of affordable housing.
• Fund management and allocation will be determined in accordance with the City of Berkeley Housing Trust Fund and Small Sites Program Guidelines, as amended.

Incentives
• Bonus density, waivers, and concessions under this program shall mirror the structure of the State Density Bonus, with the exception that the City may identify certain standards (e.g., ground-floor design, step-backs, or public realm improvements) that are not eligible for waiver under the San Pablo Avenue Density Bonus Program, such as:
• Ground floor frontage use requirements, including their corresponding ODS. • Medium Development and Mid-Rise Public Open Space Requirement • Streetscape Standards
• Maximum Building Length (ODS)
• Reduced Massing for Large/High-Rise Buildings (ODS)
• Vertical Rhythm/Façade Articulation (ODS)
• Minor Modulation/Massing Breaks (ODS)
• Ornamental Façade (ODS)
• Facade Articulation (ODS)

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• Blank Walls (ODS)
• Treatment of All Facades (ODS)
• Through-Block and Access and Connectivity (ODS)
• Parking ODS Standards

Figure 3.5: Specific Plan proposed density bonus and comparison with Berkeley and other cities. Source: CD+A, 2025

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San Pablo Avenue Specific Plan Public Review Draft 38
Other Policies and Programs
These are some policies and programs that are related to other citywide policies and programs, where implementation would need coordination with citywide efforts.

LU-P.12 Artists Housing and Cultural District s
State law allows for locally-required affordable housing to be set aside for artists. This would apply to new affordable housing developments within one-half mile of State-designated cultural district or a similar local designated district.

The Plan Area is not currently within one-half mile of such a district. However, if the City of Berkeley designates a cultural district that is within that proximity, consideration should be given to create an affordable artist housing overlay to a portion of the Plan Area. This should be coordinated with the City Civic Arts Commission/Housing Advisory Commission. This approach would support a variety of housing supply while strengthening cultural representation and identity within the Plan Area.

Boundary Adjustments and Rezonings
The Specific Plan includes the establishment of the C -SP zone and the C-SP Tier 1 and Tier 2 Nodes. To ensure consistency with the City’s Zoning Ordinance, the following rezoning actions will be proposed as part of the Specific Plan approval/adoption process:
• Rezone existing C-W zoned parcels within the Specific Plan Area to C -SP. • Rezone existing C-U parcels within the Specific Plan Area to C-SP • Rezone 12 parcels to eliminate existing split-zoned properties. These changes are limited to parcels fronting on either San Pablo Avenue or University Avenue, and would result in the subject parcel being zoned C -SP. In cases where the split zoned portion of a parcel fronts on a side- street, the split zone is maintained. • Establish C-SP Nodes and remove the C-W Designated Nodes and the C-U Node that is located within the Specific Plan Area

Opportunity Sites and Potential Buildout
The most substantial redevelopment opportunities in the Plan Area consist of the 51 Housing Opportunity Sites identified in the City’s Housing Element Update (HEU) , along with an additional 15 sites identified through the Specific Plan process.

In the HEU, Opportunity Sites are one of three categories in the State-required Housing Sites Inventory, which demonstrates that the City has adequate land to meet its Regional Housing Needs Allocation (RHNA). The three site types are:
• Likely Sites – parcels with approved housing projects (at the time of the HEU). • Pipeline Sites – parcels with housing applications in process (at the time of the HEU). • Opportunity Sites – parcels without active redevelopment applications that are either vacant or underutilized and have near-term potential for residential or mixed-use development.

The classification of Opportunity Sites is important for State housing law because it establishes a jurisdiction’s ability to meet RHNA targets without relying on market speculation. Opportunity Sites are typically those where zoning, parcel size, infrastructure capacity, and market conditions make residential development feasible within the HEU’s planning period.

The full Housing Element Site’s Inventory is available in the adopted HEU on the City’s website.

During the Specific Plan process, an additional 15 parcels were identified that meet the HEU O pportunity Site criteria but were not included in the original inventory. These include parcels that:

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San Pablo Avenue Specific Plan Public Review Draft 39
• Have become eligible as Opportunity Sites since adoption of the HEU, • Share ownership with a HEU-listed Opportunity Site, and/or • Have site-specific characteristics warranting inclusion despite being omitted from the original list.

Several of these additional sites are located at key intersections within the Plan Area Nodes, where increased residential density can also reinforce vitality and improve access to services.

The HEU sites and additional 15 sites identified the Plan are provided in Appendix B: Opportunity Sites.

Development Potential and Buildout
The Specific Plan estimates the amount of new development that could occur in the Plan Area during the Specific Plan’s planning period. The estimates for this are based on three categories of development potential:

1. HEU Likely and Pipeline Sites – already developed or assumed to develop under existing C -W zoning and development standards.

2. HEU Opportunity Sites – assumed to develop under proposed Specific Plan zoning and development standards.

3. New SPASP Opportunity Sites – also assumed to develop under proposed Specific Plan zoning and development standards.

In addition to housing, the buildout analysis estimates changes in commercial square footage as parcels redevelop.

The results are summarized in Table 3.2.

As shown, under maximum buildout assumptions, the
Plan Area could accommodate approximately 6,700 new
multi-family housing units. This level of housing growth would support an estimated 16,875 new residents,
based on the HEU’s average household size for multi-
family residential.

This potential residential growth represents a significant share of Berkeley’s overall housing strategy. In the
context of the Housing Element, the Plan Area would
account for a substantial portion of new housing
capacity in transit-rich locations. The Plan Area’s growth also leverages existing infrastructure and facilitates the creation of a more walkable, mixed-use district.

It’s important to note that approximately 3,500 of these housing units are already anticipated in the HEU,
meaning the Specific Plan would increase the maximum
potential buildout by roughly 3,200 units. The estimate represents maximum development capacity; actual
development will depend on market conditions, property
owner decisions, and other factors, and not all sites are expected to redevelop within the Specific Plan’s time horizon.

The zoning changes associated with increasing the opportunity for residential development may affect the amount of commercial square footage within the Plan Area. Although a net decrease in commercial square footage is estimated, it is difficult to quantify the extent of this change under existing zoning given the shifting demand for commercial uses and the high rate of ground floor vacancy. It is expected that the increase in residential development would incrementally reduce opportunities for new commercial uses and eliminate some existing commercial uses. This net reduction may appear counter to economic development goals, but the intent of the policies is to facilitate redevelopment of underutilized properties over time (i.e., properties consisting of low-intensity uses with limited pedestrian engagement) replacing such uses with higher-quality, more flexible commercial spaces integrated into Table 3.2 Estimated Maximum Buildout
Type Unit / Sq. Ft.

Residential (Multi-Family) Units
HEU Likely and Pipeline Sites 1,500
HEU Opportunity Sites 2,900
New SPASP Opportunity Sites 2,300
Total New Dwelling Units (rounded) 6,700
Commercial Sq. Ft.

New Commercial 92,000
Lost due to New Housing 413,000
Net Change -321,000
Existing 1,491,000
Total After Buildout (rounded) 1,170,000

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San Pablo Avenue Specific Plan Public Review Draft 40
mixed-use buildings, particularly within the established Nodes. This will improve commercial and other business viability, support more a diverse mix of uses and reduce long-term vacancy without compromising an engaging public realm.

A full description of the SPASP Buildout is provided in Appendix C: Buildout Summary Memorandum.

San Pablo Avenue Specific Plan Public Review Draft 41

Chapter 4
Economic Development

San Pablo Avenue has long served as a vital commercial corridor in West Berkeley – home to many small, locally owned businesses, light industrial uses, service providers, and community institutions that reflect the neighborhood’s cultural and economic diversity.

Today, the corridor faces both opportunities and challenges: shifting retail dynamics, market conditions, and storefront vacancies are transforming the business landscape. - Public Review Draft -

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San Pablo Avenue Specific Plan Public Review Draft 42
Throughout the Specific Plan process, the community voiced that San Pablo Avenue should be a lively and inclusive corridor that represents and serves the people who live nearby and supports new residents as homes are built in the Plan Area. Community members, local business owners, and stakeholders voiced concerns about the risk of commercial displacement, the loss of their historically diverse cultural identities, and the lack of support for existing businesses. Participants at community engagement events emphasized the need to retain and grow small businesses, fill empty storefronts with active and relevant uses, and improve San Pablo Avenue’s overall appeal and visibility. Many shared a vision of San Pablo Avenue as a culturally vibrant, economically inclusive mixed -use district where it is possible to live, work, and shop locally.

An assessment conducted as part of this Specific
Plan indicates that approximately 90% of the brick-
and-mortar businesses are locally owned. Those
establishments continue to provide a diverse mix of
commercial activities (see Figure 4.1).

This chapter establishes policies that respond to these concerns and aspirations. It presents strategies to retain and grow local businesses, activate vacant or underutilized spaces, and foster a thriving commercial environment that reflects the diversity of the Plan Area. The policies advance the community’s vision for a more vibrant business
environment and supportive public realm, including the
following objectives:
• Increase business activity by supporting existing
businesses and making it easier for new local
businesses to locate and thrive within the Plan Area
• Support commercial vitality and reduce ground-floor vacancies by providing financial assistance for local businesses improvements and by encouraging the concentration of new commercial development within focused Nodes.
• Strengthen connection between public and private spaces by establishing partnerships for indoor and outdoor events and identifying collaborative opportunities to fund and maintain streetscape and public realm improvements
While this chapter is focused on strategies for business support and commercial vitality, many of the Specific Plan’s economic goals are also advanced through policies in other chapters – particularly Chapter 3 Land Use and Chapter 5 Streets. These chapters address how and where ground-floor retail is encouraged, how storefronts are designed to engage pedestrians, and how San Pablo Avenue’s physical environment supports a vibrant mixed-use district. Land Use policies shape the distribution of commercial activity by establishing new strategies to focus retail and services at key Nodes and allow for flexible uses to meet local needs. Chapter 5 Streets’ public realm policies aim to improve the pedestrian experience through wider sidewalks, pedestrian- scaled lighting, street trees, and other amenities to make the corridor more inviting for customers, businesses, and workers.

“It is our urban center or spine.

Be more for the people that live
here. [We are] missing boutiques,
groceries, and practical things.”
– Community Member
Figure 4.1 Locally owned Businesses on San Pablo
Avenue. Source: Financial Department Active
Business License Data, In-person observation.

August 2023.

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San Pablo Avenue Specific Plan Public Review Draft 43
Together, these policies and programs create a
framework to implement the vision of San Pablo Avenue
as a mixed-use district that welcomes everyone—
residents, workers, artists, entrepreneurs, and visitors— with local businesses that are diverse, stable, and
essential to community life.

Relevant Policies
LU-P.2 Establish a Tiered Node Structure to Focus
Growth and Commercial Uses (see Chapter 3 Land
Use)
LU-P.5 Planning and Commercial Permit
Streamlining (see Chapter 3 Land Use)
LU-P.7 Encourage a Mix of Community-Serving
Uses (see Chapter 3 Land Use)
LU-P.8 Expand the list of Allowed Uses and Allowed
Temporary Uses (see Chapter 3 Land Use)
LU-P.9 Define Residential Mixed-Use with On-Site
and In-Lieu Options (see Chapter 3 Land Use)
LU-P.10 Establish Ground Floor Typologies to
Promote Pedestrian-Scaled and Flexible Ground
Floors (see Chapter 3 Land Use)
PR-P.2 Sidewalk Easements (see Chapter 5 Streets)
PR-P.3 Improve Street Lighting for the Safety and
Comfort of all Users (see Chapter 5 Streets)
PR-P.12 Facilitate Wayfinding and Placemaking
Programs (see Chapter 5 Streets)
PR-P.14 Side-Street Plazas (see Chapter 5 Streets)
PR-P.15 Support Use and Creation of Parklets (see
Chapter 5 Streets)
PR-P.18 Privately Owned Public Open Spaces (see
Chapter 5 Streets)

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Interview with Business Owners
As part of Marcel’s Municipal Artist-in-Residence program, he conducted interviews with business owners along San Pablo Avenue. Here are two of those conversations:

Shirley Everett-Dicko, Everett & Jones
Hi, Shirley! I’m so excited to be here at Everett and Jones Barbecue. It’s such an iconic place, especially with all the changes happening in the neighborhood. Can you tell us a bit about yourself and your role here? Shirley Everett-Di cko: Absolutely! My name is Shirley Everett-Dicko, and I’m one of the original owners of this location, which opened in 1974. My mom, Dorothy Turner, along with my seven sisters and brother, helped start it.

This was our second location— the
first was in Oakland.

Can you share a little about your mom’s journey into the barbecue business? My mom’s story began on Seventh Street in West Oakland, once known as the “Harlem of the West.” In the 1960s, she worked at Jenkins Barbecue, run by Reverend Jenkins, our church pastor. Later, she became the first manager at Flint’s Barbecue. With help from Harry Mott, she opened Everett and Jones in 1973.

And how did you all choose the name “Everett and Jones”? Everett is my dad’s name, and Jones was my sister’s married name. It’s always been a family affair! Tell us about your famous barbecue sauce.

That’s Mom’s recipe! We started bottling it in 1983 after a customer suggested it, and it’s been a hit ever since.

I’ve heard this place also has ties to the Black Panther movement.

Yes! The East Bay Dragons Motorcycle Club— one of the oldest Black motorcycle clubs in the U.S.— used to provide security for the Black Panther Party. Our first location was next to their clubhouse, so we’ve always shared that community connection.

How have you seen the San Pablo corridor change over the years? It’s changed a lot. There used to be several barbecue restaurants and plenty of foot traffic from university students.

Now there are fewer spots, but we’re still holding our ground! For someone visiting for the first time, what should they order? Definitely the ribs and links combo— with potato
salad and our homemade sauce. It’s the best way
to experience our barbecue.

Anything else you’d like people to know?
Just that Everett and Jones has always been a
gathering place. We’re proud to keep our family
legacy and community spirit alive.

Figure 4.2 Shirley Everett-Dicko and her family at Everett & Jones (1955 San Pablo Ave, Berkeley, CA 94702) Photo by

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San Pablo Avenue Specific Plan Public Review Draft 45
Jaime Alejo, Mi Ranchito Market
Hi, Jaime! We're here at Mi Ranchito Market. Could you tell us a bit about yourself and your role here? Jaime Alejo: Of course! I’m Jaime Alejo, the store manager. I’ve been here for many years and love being part of this family dream that started over twenty-four years ago. My dad wanted to build something for our family, and now my four siblings and I work together to keep it going.

How did it all begin?
It all started with my dad’s dream to create a place where the community could feel at home. In the beginning, we were a small store, but over time we’ve grown. Despite challenges and changes in the neighborhood, we’re still here— always dreaming big and providing good service.

How has the community around the market changed?
It’s changed a lot. Most of our customers used to be Latino, and now there’s a mix of cultures from everywhere. Sadly, many Latinos have had to leave because of the high cost of living. Most of our current customers are students or new residents. Gentrification has really impacted our community.

How have you adapted to these changes?
The key has been to stay flexible and welcoming. We try to keep a family -friendly environment where everyone feels at home. Many customers tell us they find comfort here, and we love helping them discover products that remind them of their homeland.

What kind of products do you offer?
We carry a wide range of Mexican products— fresh foods, household items, meats, and even some Brazilian and Peruvian goods. Our fresh meat section is one of our biggest draws.

What would you say to someone who’s never visited Mi Ranchito? Come anytime! We’re open from eight to eight, and there’s always something new to discover. Whether you’re looking for a specific ingredient or just want to chat, you’ll feel welcome here.

What changes would you like to see in Berkeley to
support small businesses?
I hope the city provides more support and subsidies
for small businesses. Gentrification has raised costs,
making it hard to compete.

Anything else you’d like to add?
Even though times are tough, we’re still here thanks
to our community’s support. Every customer matters,
and we hope to keep being a place where everyone
feels at home.

Figure 4.3 Jaime Alejo and his brother at Mi Ranchito Bay Side Market. Photo by Marcel Pardo Ariza, 2025

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San Pablo Avenue Specific Plan Public Review Draft 46
Economic Development Policies and Programs
Small Business Support
Throughout the Specific Plan engagement process, community members expressed the importance of retaining existing businesses and called for greater City support to improve conditions for new small businesses.

A key concern raised by business owners, developers, commercial real estate agents, and Office of Economic Development staff is the high cost of tenant improvements (TI) required to make existing ground floor retail spaces move-in ready. For both new and existing spaces, the need for infrastructure such as grease ducts, commercial kitchen ventilation systems, and ADA-compliant restrooms poses significant barriers for small business owners, even when lease terms are favorable. In many cases, new commercial spaces enter the market as “cold shell,” meaning they lack not only the necessary infrastructure but also basic finishes such as concrete slab floors, wall finishes or ceilings. While this provides flexibility for tenants to customize their spaces, it also results in higher TI costs and ultimately, higher rents, which often negate the value of any owner-contribution toward buildout.

To address this issue in future mixed-use development, ODS.23 to 26 introduce new standards for ground floor interior buildout. In combination with other proposed policies and standards, such as establishing a Plan Area- focused business and commercial space loan and grant program, these measures are intended to reduce the TI cost, shorten start-up periods, and help decrease commercial vacancies.

ED-P.1 Specific Plan Focused - Small Business Support Fund Establish a Specific Plan focused Small Business Support Fund to augment the City’s existing Revolving Loan Fund program. The Fund would provide targeted financial and technical assistance to small businesses, particularly those that are locally owned1, culturally significant, at risk of displacement, or owned by people of color, women, and other underserved applicants. The purpose of the Small Business Support Fund is to strengthen commercial activity along San Pablo Avenue by supporting both new and existing businesses. Eligible uses may include financing for tenant improvements, relocation costs, façade improvements, and outdoor improvements such as sidewalk café seating and landscaping.

The Small Business Support Fund will make it more feasible for locally owned businesses to occupy and activate ground-floor spaces along San Pablo Avenue. By offering low- interest, flexible repayment loans, this policy is intended to help small businesses finance tenant improvements, reinvest in their existing locations, or relocate within the Plan Area. The fund will prioritize tenant-ready businesses with demonstrated financial need and clear community value, ensuring that new commercial activity advances the broader vision for San Pablo Avenue as a vibrant, inclusive mixed-use district.

Over time, the Fund will also replenish itself through loan repayments, creating a sustained source of support for commercial activation and small business resilience within the Plan Area. The City shall integrate this new Fund into the management of its existing Revolving Loan Fund program or economic development funding mechanisms to ensure long-term administration stability, accountability, and alignment with broader City goals.

The Fund will be primarily financed through a commercial In-l ieu fee that allows developers to substitute the required non-residential ground-floor space with residential use (see LU-P.9). The City may allocate a portion of the funds to support additional Small Business Support Programs in the Plan Area . Additional funding sources may include grants, partnerships, or targeted reinvestment of repayments to expand support for small business programs in the Plan Area.

1 Locally owned shall be defined as having business owners that are local to Alameda County, and the business should not already have more than one location.

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The following components should be included in the program:

Eligible uses of funds (in order of priority)
• Node Priority: Eligible uses of funds located within one of the five designated Nodes may receive the highest priority to support commercial activity at these locations, in alignment with LU -P.2 Establish a Tiered Node Structure to Focus Growth and Commercial Uses.
• Developer/Building Owner Incentives: Developers and building owners may be eligible for funding to support façade improvements and upgrades to retail spaces within designated Nodes, provided the improvements target small businesses occupying those spaces. • Tenant Improvements: Loans may cover costs associated with code-required or functional interior and exterior façade or sidewalk frontage upgrades necessary for commercial occupancy. For example, an existing sidewalk may need reconstruction to meet ADA cross slope requirements for café seating. This may include kitchen grease ducts and ventilation systems, HVAC installation and upgrades, ADA-compliant restrooms and accessibility features, plumbing and electrical work, and fire/life safety improvements. • Business Relocation: Assistance in relocation within the Plan Area due to redevelopment, displacements, or lease non-renewal. Eligible expenses may include move-in and tenant improvement costs in the new business location.
• Succession Planning: Support small and legacy businesses that have operated in the Plan Area for at least 10 years. Eligible businesses should be independently or locally owned, serve as cultural anchors, or be publicly facing and community-oriented.
• Marketing and Branding (Limited Use): A portion of loan proceeds may be allowed for branding, signage, website development, or participation in corridor-wide promotions.

Loan structure
• Interest-free, low-interest fixed-term loans issued through the City’s revolving loan program. • Repayment terms tailored to small business cash flow, with potential deferral options during buildout and startup phases.
• Loans will be provided on a first-come first-served basis.

Borrower Eligibility and Disbursement Structure
• When the loan is distributed to a building owner or developer, they must agree to lease the space to qualifying local businesses for at least 10-years. During this period, the local business tenant may be replaced by another local business, if needed.
• Developers or building owners who received funding may be required to repay the loan in full if the space is leased to a non-qualifying business.
• Business owners must be local to Alameda County, and should not already have more than one location. • Businesses must demonstrate financial viability through a business plan and cash flow projections • Businesses must have site control (e.g., executed lease or letter or intent) • Loans will be provided on a first-come, first-served basis within funding cycles, with priority for businesses that are culturally significant, at risk of displacement, as well as people of color, women, and other underserved applicants.
• All recipients will be connected to technical assistance programs through the City’s Office of Economic Development.

Administration and Oversight
• Administered by the Office of Economic Development and the non-profit administrator of the existing Revolving Loan Fund.
• Funding should be for at least $25,000 and provided in cash rather than as reimbursement. • Establish partnerships with Community Business Organizations (CBOs) and business networks to ensure that small businesses are aware of the fund and how to apply. Potential partners include:
• Bay Area Manufacturing Initiative

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San Pablo Avenue Specific Plan Public Review Draft 48
• West Berkeley Design Loop
• The Bay Area Organization of Black-Owned Businesses
• West Berkeley Artisans and Industrial Companies
• Regular performance tracking and annual reporting to City Council on fund deployment, repayment, and Plan Area impacts.
• The program, include eligible use of funds, loan structure, and borrower eligibility shall be reviewed every five years and included in the annual report to City Council.

ED-P.2 Establish Public-Private Partnerships
The City will pursue partnerships with community organizations, local institutions, merchant groups, property owners, and other stakeholders to plan, fund, and implement a range of indoor and outdoor community spaces and events that activate San Pablo Avenue, and its adjacent neighborhoods.

These partnerships should focus on creating vibrant, welcoming spaces and cultural, artistic, and family -friendly activities. Strategies may include:
• Promotion of new businesses and events in the Plan Area • Pop-up activations in vacant storefronts
• Transformation of underused parking lots into spaces for food trucks, outdoor markets, or community gatherings
• Side-street closures for block parties, neighborhood festivals or seasonal celebrations

Existing organizations such as the West Berkeley Design Loop and the University Avenue Association already coordinate events and business promotion in the Plan Area. The City should strengthen and expand these efforts by supporting their capacity to organize corridor-wide initiatives, co-advertise, and partner with new and existing businesses.

To support event planning, the City will clearly communicate how permit processes work, provide technical assistance to organizers, and help facilitate applications with the appropriate departments for activities such as encroachment permits, temporary street closures, or outdoor vendor activations. The City will also leverage networks such as the Berkeley Business District Network (BBDN) to connect associations and event organizers with City staff and resources. These meetings are critical opportunities to share information on local trends and conditions affecting small businesses, district events, policy issues, and other relevant topics .

By investing in sustained partnerships with existing and new associations and neighborhood groups, and by providing assistance to navigate permitting and coordination, the City can help build a robust calendar of events that draws visitors, supports small businesses, and strengthens the identity of San Pablo Avenue as a lively and inclusive commercial corridor.

Initially, this effort could be coordinated by a potential OED Liaison. Over time, business organizations or a potential business improvement district could assume the lead role in coordination with the City. (See ED-P.4 Study Feasibility of Forming a Business Improvement District (BID) and ED-P.5 Establish an Economic Development Liaison for the San Pablo Avenue Specific Plan Area).

Business Organizations
ED-P.3 Support and Expand Existing Business Clusters
Support the formation and capacity-building of business “cluster” organizations that promote and organize the range of businesses in the Plan Area and adjacent areas, with the goal of enhancing local identity, improving business coordination, and laying groundwork for future collective action. These organizations – such as merchant associations, property-owner groups, or promotional collaboratives should be flexible in their geographic scope and

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business membership, modeled after existing efforts like the West Berkeley Design Loop and the Berkeley International Marketplace.

Berkeley International Marketplace
In 2006, local business owners, in partnership with the City’s Office of Economic Development, established the
“Berkeley International Marketplace” to celebrate the
cultural diversity of businesses near the University
Avenue intersection. While the initiative faded over time, remnants of its identity remain visible through banners on nearby light poles, and many existing businesses
continue to reflect the area’s international character. In 2025, local businesses began working together to
revitalize the neighborhood designation 2, expanding
outreach and featuring more businesses along both San
Pablo Avenue and University Avenue on their website.

The intent is to facilitate coordination among businesses based on geographic location (Plan Area-wide,
designated Nodes), business type, or ownership
structure, in order to enhance visibility, branding, and mutual support. Implementation of this policy would further support inclusive and flexible organizational models that reflect the Plan Area’s diverse mix of retail, service, light industrial, and cultural uses, extending beyond traditional Business Improvement Districts (BID). This policy framework includes:

City Support and Technical Assistance
• The Office of Economic Development (OED) should offer technical assistance to emerging clusters in the form of:
• Organizational development guidance
• Access to City branding and marketing tools (e.g., #DiscoveredinBerkeley local marketing campaign, and connections to the the City’s Convention and Visitors Bureau known as visitberkeley). This could include assistance in design and installation of signs, banners, or similar elements to define business cluster locations or the location of member businesses that are more dispersed in the Plan Area and in adjacent areas, see Policy PR-P.12 Facilitate Wayfinding and Placemaking Programs.
• Facilitation of peer learning with other local clusters or organizations • Grant opportunities for operational support or shared marketing campaigns • The City should continue to provide strategic support to assist with expansion of cluster organization expansion and implementation of new projects, as well as marketing, branding and events. • The City should continue to use the Berkeley Business District Network (BBDN) meetings as a platform to connect representatives from commercial groups with the City Manager, other City staff and resources.

Pathway to Long-Term Structures
• Recognize cluster organizations as potential precursors to formalized business associations such as BIDs, if warranted and supported by members.
• Evaluate alternatives to BIDs where relevant, including merchant associations or targeted City partnerships on streetscape improvements and shared amenities.

2 Nathan Dalton. “Is This West Berkeley Intersection About to Be Revived?” Berkeleyside, May 14, 2025.

Figure 4.4 Participating business pictures on their
website. Source: Berkeley International Marketplace,
Homepage, Accessed October 20, 2025.

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Coordination with related policies:
• Ensure coordination with implementation of Policy ED-P.6. Prioritize Initial Public Investment on Improvements in the Nodes to ensure improvements are aligned with cluster organization initiatives. • Ensure coordination with Policy ED-P.1. Small Business Support Fund to ensure that the use of funds and business eligibility are aligned with small business needs.

Business Improvement District(s) Study
Throughout the planning process, the community expressed frustration with the lack of comfort and poor maintenance of public spaces along San Pablo Avenue. Property and business owners in the Plan Area and West Berkeley have expressed these concerns and shown interest in working together to enhance the streetscape, especially in retail-focused areas that benefit most from pedestrian activity. Members of the West Berkeley Design Loop and others in the business community have also indicated potential interest in forming a business improvement district to expand on business support efforts such as co -marketing, event programming, and enhanced maintenance and safety similar to those of the Downtown Berkeley Association.

ED-P.4 Study Feasibility of Forming a Business Improvement District (BID) The City should collaborate with local businesses and property owners to fund and initiate a study of the feasibility and scope of establishing one or more BIDs within the San Pablo Avenue Specific Plan Area. The study should assess potential boundary options ranging from corridor-wide coverage to targeted districts centered around high-priority Nodes and may also explore extensions into adjacent areas of West Berkeley where commercial synergies and business interest are strongest.

What is a BID? A Business Improvement District is an independent non- profit organization funded primarily through property-owners and/or business owners within a defined geographic area who agree to assess (or tax) themselves to support specific improvements and/or services beyond those typically provided by the City. A BID provides a dedicated management structure, with a governing board, annual work plan, and budget, ensuring accountability and transparency. This structure gives local businesses a unified voice and increases capacity to collaborate with the City and other community organizations. Existing BIDs in Berkeley include Downtown Berkeley, Telegraph, North Shattuck, Solano, and Elmwood.

The study should analyze the feasibility of different boundaries and implementation approaches. Options to consider include:
• Establishing a pilot BID focused on one or two high-potential Nodes (such as Cedar and Dwight), particularly where new public investments or community business interest is already concentrated. • Exploring hybrid models that begin with merchant associations or business clusters and evolve toward more formal entities.
• Examining the possibility of organizing a cross-jurisdictional or thematic district that includes parts of West Berkeley, such as the West Berkeley Design Loop.

An equity-centered outreach process should be a core component of the feasibility study. This includes engagement with a broad range of Plan Area users, including existing businesses and property owners, Black-owned businesses and cultural institutions, community-based organizations, nonprofits, arts groups, and unhoused residents who use the Plan Area’s public spaces. The City should partner with CBOs and business networks to facilitate this outreach (see ED-P.2). The study should also define equity principles and desired outcomes to guide the creation and operation of any future entity, ensuring alignment with community goals.

The City should coordinate this effort with existing or proposed district initiatives in nearby areas such as Gilman District and explore opportunities for shared services or partnerships. Lessons from other Berkeley BIDs and national models— particularly those with cultural district components— should inform the structure, governance, and service priorities of a potential San Pablo Avenue district.

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ED-P.5 Establish a n Economic Development Liaison for the San Pablo Avenue Specific Plan Area
To facilitate the implementation of the policies in this chapter, the City shall establish a San Pablo Avenue Economic Development Liaison role. The Liaison role will act as a central coordinator between businesses, property owners, developers, the City’s OED, Planning and Development, and other City departments and community organizations.

The Liaison role may be structured in several ways: through a contract with a local economic development partner, as a part-time City staff role, or as shared responsibility integrated into an existing full-time City staff role, such as one connected to adjacent business organization initiatives. Following an initial evaluation to assess the role’s impact, the City may consider allocating funding to expand the position into a dedicated part or full-time role or to integrate it more formally into an existing staff position. The City could consider the Commercial in-lieu fee as a potential funding source for this role (see LU-P.9).

Key responsibilities include:
• Lead implementation of Public-Private Partnerships in alignment with ED-P.2. • Lead implementation of ED-P.4 to initiate a BID feasibility study, as well as support the implementation of other policies in this chapter.
• Conduct outreach and engagement, as described in ED-P.4, with businesses within the Plan Area to assess interest in forming business cluster organizations or a BID. • Facilitate discussions among businesses and property owners. • Provide technical assistance in navigating legal and financial requirements related to BID formation. • Coordinate early marketing or events to build momentum and community identity. • Work with the businesses, cultural institutions and artist groups in the community to identify potential Commercial and Cultural Districts along San Pablo Avenue, such as a maker/light industrial district, international district, or State-designated cultural district. Report on the feasibility of integrating Commercial and Cultural Districts into marketing efforts and BID feasibility study. • Track corridor economic performance indicators (vacancy rates, tenant turnover, etc.) and assist in providing updates to OED management and the City Council .

Investment
ED-P.6: Prioritize Initial Public Investment on Improvements in the Nodes The City should focus initial public investment – such as pedestrian-scale lighting, transit-supportive infrastructure, and amenities for gathering within the Nodes, beginning with the Tier 1 University Avenue N ode. Improvements should be prioritized in areas with high pedestrian demand, commercial vacancies, and community support in order to strengthen safety, catalyze economic development and build momentum for the Plan Area.

When funding is secured (e.g., through grants for streetscape or lighting, Alameda CTC improvement funding, or other pu
blic sources), priority should be the Nodes, and when the N od es are completed, the City should conduct a follow-
up study to determine the next priority locations for public investment.

Concentrating resources within the Nodes will deliver visible, coordinated improvements that can attract new businesses, enhance safety, and build community identity b y targeting grant and capital funding to these locations, the City can leverage ongoing transportation projects, and align public and private investment.

Supporting Policies and Programs
The policies within this Specific Plan, including those in the Land Use and Streets chapters, are designed to work together to strengthen the Plan Area as a whole, including the local economy along San Pablo Avenue.

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Land Use policies that increase housing capacity will bring more residents within walking distance of local businesses, thereby expanding the customer base and supporting neighborhood -serving retail and services.

Concentrating activity in designated Nodes and promoting a broader mix of uses will enhance the vitality of these areas, helping them evolve into distinct commercial destinations. Building design standards require storefront ground floor frontage within Nodes, allowing the extent of retail and restaurant uses to adapt over time as the population in the Specific Plan Area grows.

Transportation policies are designed to make San Pablo Avenue more attractive, accessible and comfortable for pedestrians, cyclists, and transit riders. Enhancing multimodal connections both within Berkeley and to the broader East Bay region will increase foot traffic, improve accessibility for surrounding neighborhoods, and expand regional connectivity to the Plan Area. These improvements will draw more potential customers and support the diverse mix of local and specialized businesses along San Pablo Avenue.

Public realm policies and standards to create consistent lighting and street furnishing s, street trees and public realm expansions, will improve comfort and encourage longer, more frequent visits that support commercial activity.

Together, these measures are designed to enhance the livability of the San Pablo Avenue Plan Area while driving long- term economic growth.

In addition, the City continues to provide programs and services that assist local businesses and foster economic and community development. Several of these ongoing efforts present opportunities for the Specific Plan Area, and include the following:

Revolving Loan Fund
The City of Berkeley’s Revolving Loan Fund program can provide access to capital for businesses and entrepreneurs who seek to grow and retain jobs, but do not qualify for a traditional bank loan. The loan can be used to fund business expansion, fixed assets, equipment, working capital, and real estate. The fund has opportunities to integrate San Pablo Avenue specific programs, see ED-P.1 San Pablo Avenue Specific Plan Focused Small Business Support Fund.

Keep Innovation in Berkeley Efforts
In 2024, the Office of Economic Development (OED) published a set of recommendations aimed to Keep Innovation in Berkeley by encouraging growth and retention of the local Research & Development (R&D) industry3. As part of this effort, the City revised zoning regulations in the C-W district, which includes areas within the Specific Plan Area, to permit R&D uses under 20,000 square feet with a Zoning Certificate (ZC), and those over 20,000 square feet with an Administrative Use Permit (AUP). These changes do not apply to ground -floor spaces within designated C-W Nodes.

The updated zoning intends to strength Berkeley’s innovation economy by accommodating R&D businesses, generating local employment opportunities, and reinforcing broader economic development goals.

3 Staff presentation to City Council, December 3, 2024.

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Chapter 5
Streets – Transportation
and Public Realm

Originally part of the Lincoln Highway, San Pablo Avenue has long served as a major regional and national transportation route and remains designated as a s tate highway. This legacy established a corridor pattern focused on regional mobility and vehicle access, influencing the form of adjacent development . This function has historically prioritize d automobile s and resulted in a street environment that favors vehicles but offers limited comfort and safety for multimodal travel, along with fewer high- quality public spaces. Chapter 1 Introduction provides more detail about the historical context of San Pablo Avenue .

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Some stretches along San Pablo Avenue feature a consistent tree canopy and active storefronts that create a more pedestrian-friendly setting, but these remain exceptions. New mixed -use developments and streetscape improvements are gradually transforming San Pablo Avenue into a more balanced and multimodal corridor. These ongoing efforts aim to enhance comfort, safety, and accessibility for people walking, biking, and using transit, while creating a more attractive and functional public realm that reflects t he changing needs of the corridor.

Community feedback gathered through the outreach process reinforces this shift in priorities. Participants expressed strong support for improving the pedestrian, bicycle, and transit environment along and across San Pablo Avenue.

Survey responses identified walking as the second most common mode of travel to and from destinations along San Pablo Avenue. At the community open houses, focus group meetings, and other engagement events, community members emphasized the need for safe streets and streetscape improvements. Many also voiced concerns about existing traffic speeds and noise, highlighting the ongoing tension between these conditions and the community’s vision for a vibrant mixed-use place where people live, work, shop, and socialize.

This chapter defines policies, programs and standards that aim to balance the transportation, land use, and public realm functions of San Pablo Avenue and the evolving mixed-use district along it. The focus is to transform San Pablo Avenue into a multimodal street that not only facilitates safe and efficient travel for all users but also enhances the availability and quality of public space.

Existing Conditions
This section provides an overview of existing transportation conditions, including transit access, and multimodal mobility, safety and comfort and summarizes existing public realm conditions. A detailed assessment is available in Appendix A: Key Existing Conditions.

Public Realm
The public realm experience varies along San Pablo Avenue –some areas support street life, while others feel inactive at the pedestrian scale. There are engaging places with a combination of active street life and vibrant businesses, such as the blocks south of University Avenue and Dwight Way (see Figure 5.1). At these locations, one can find outdoor seating, decorative plantings and other amenities that invite potential customers and create a more comfortable environment for people walking along the street. On stretches where business activity is slow, sidewalks are more likely to be in poor condition, landscaping is less likely to be maintained, and the street edge is framed by vacant or vandalized building frontages, or tall fencing. These segments experience less foot traffic and fewer parked cars, as the public realm offers little reason for people to linger as they pass through.

San Pablo Avenue is also physically wide, with a typical right-of-way measuring 73 feet from curb to curb (see Figure

5.2 Section graphic). This includes four travel lanes (two in each direction), street parking , and a landscaped median.

There are no designated bicycle facilities or markings along San Pablo Avenue, so cyclists ride in the roadway, on the sidewalk, or more commonly, use nearby streets which include parallel bicycle routes. While this configuration supports vehicle traffic movement and access, it creates a sense of separation between the two sides of the street and confines pedestrian space to the standard 13-foot sidewalks on either side. Sidewalks are narrow compared to the preferred width guidance set in the 2020 Pedestrian Plan 1 and offer limited protection from adjacent vehicle traffic. During community engagement activities, participants frequently expressed concern about narrowness, their exposure to vehicle traffic, and associated noise levels.

1 City of Berkeley. Pedestrian Plan Appendix B: Toolbox of Pedestrian Improvements . Adopted 2020, p. 8 Figure 5.1: Sidewalk with bus stop and café
seating on the west side of Dwight Way
intersection.