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San Pablo Avenue Specific Plan Final Draft 51
EP-P.2 Support Flexible Commercial Spaces
The Specific Plan’s policies will provide flexibility for businesses to utilize existing and new commercial spaces .
An example of this is the Keep Innovation in Berkeley effort undertaken by the Planning and Development Department
and OED (see Supporting Policies and Programs section at the end of this chapter). This effort permitted more
streamlined land use approvals in commercial corridors, in response to the growing innovation sector. West Berkeley has long been a center of production and innovation, and the Specific Plan Area serves as a transition zone between West Berkeley’s industrial uses and residential districts east and west of San Pablo Avenue. As demand for mixed-use
and residential development along San Pablo Avenue grows, certain industrial uses would no longer be compatible with residential uses due to noise, fumes, or storage needs.
However, many other light industrial and related uses can be compatible with residences.
Makerspaces:
Bridging the gap, the Specific Plan establishes Zoning Ordinance provisions to support makerspaces as a form of light manufacturing use, targeting small-scale fabrication and artisan producers that operate solely indoors. Makerspaces can include workspaces, hardware businesses or woodworkers (see example in Figure 4.5), equipped with tools such as laser cutters, 3D printers, and sewing machines, that do not produce significant amounts of noise, vibration , or air pollution.
Co-Working Spaces:
The Specific Plan also ensures that co-working spaces would be viable, providing flexibility for businesses to utilize existing and new commercial spaces. Co-working spaces allow for a flexible mix of businesses, making it possible for retail, office, galleries and art studios - owned by different businesses or independent professionals - to collaborate and define their workspace based on their individual needs. Typical businesses that would operate in a co-working space are allowed with a Zoning Certificate, streamlining the land use review process and allowing the mix of specific uses to be flexible in response to changing needs and market conditions (See example in Figure 4.6).
For details, see LU-P.8 Expand the List of Allowed Uses and Allowed Temporary Uses.
ED-P.3 Establish Public -Private Partnerships to Activate the Specific Plan Area The Specific Plan encourages the creation of partnerships between the City and community organizations, local institutions, merchant groups, property owners, and other stakeholders to create vibrant, welcoming spaces and culturally relevant, artistic, and family-friendly activities.
Strategies:
• Promotion of new businesses and events in the Specific Plan Area, including developing a robust calendar of happenings that draw people from surrounding neighborhoods and the region. • Pop-up activations in vacant storefronts.
• Transformation of underused parking lots into spaces for food trucks, outdoor markets, or community gatherings.
Figure 4.5. Hybrid Makerspace and Coworking Space
in West Berkeley
Photo from Filma Collective, filmacollective.org, 2025
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San Pablo Avenue Specific Plan Final Draft 52
• Side-street closures for block parties, neighborhood festivals, events sponsored by adjacent businesses, and seasonal celebrations.
• Assistance with permitting and other logistics to support organizations in implementing activities and events.
Nurturing partnerships with existing and new associations and neighborhood groups will strengthen the identity of the Specific Plan Area as a lively and inclusive commercial district. City partnerships with businesses can demonstrate the potential role a business improvement district (BID) could play in the Specific Plan Area.
Programs Example partners and initiatives include:
• Partnering with existing organizations such as the West Berkeley Design Loop, or the International and the University Avenue Association. These organizations already coordinate events and business promotion in the Specific Plan Area; see also ED-P.4 Support and Expand Existing Business Clusters. The City should strengthen and expand these efforts by supporting their capacity to organize Specific Plan Area-wide initiatives, co-advertise, and partner with businesses.
• To support event planning, the City should 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 should 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.
Figure 4.6. Example of a Co-Working Space for Personal Services At 1518 San Pablo Avenue, Berkeley, a large commercial space was subdivided into smaller suites and then rented out to small businesses. Photo by CD+A.
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San Pablo Avenue Specific Plan Final Draft 53
Business Organizations
There are two main ways that business organizations can define and organize themselves in the Specific Plan Area. First, they can be geographically defined, such as the Berkeley International Marketplace (Figure 4.7) focused to San Pablo Avenue and University Avenue. Others, like the West Berkeley Design loop, are more strongly defined by business type and the market they serve. Given the diversity of businesses within the Specific Plan Area, it is likely that both types of business organizations will continue to exist. Those with a more focused geography have the potential to become a business improvement district (BID) and potentially grow into a larger BID covering the entire Specific Plan Area. Those that serve a business type or market sector have the potential to coexist with a BID. These two types of business organizations can define roles that are mutually supportive.
ED-P.4 Support and Expand Existing Business Clusters
The Specific Plan supports capacity-building of existing business “cluster” organizations and the formation of new organizations. These organizations promote and organize businesses in the Specific 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, and promotional collaboratives should be flexible in their geographic scope and business membership, modeled after existing efforts like the West Berkeley Design Loop and the Berkeley International Marketplace .
The intent is to facilitate coordination among businesses based on geographic location (Specific Plan Area-wide, within specific Designated Nodes, and connections with related businesses in adjacent areas), business type, or ownership structure, in order to enhance visibility, branding, and mutual support. Implementation of this policy further supports inclusive and flexible organizational models that reflect the Specific Plan Area’s diverse mix of retail, service, light industrial, and cultural uses, extending beyond traditional business improvement districts (BIDs).
City Support and Technical Assistance
The Office of Economic Development (OED) will take the lead to coordinate with other City departments and existing business organizations in these efforts:
Marketing
• Continue to provide access to City branding
and marketing tools (e.g.,
#DiscoveredinBerkeley local marketing
campaign, and connections to the City’s
Convention and Visitors Bureau known as
visitberkeley).
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 San Pablo Avenue
and University Avenue intersection. While
the initiative faded over time, remnants of
its identity remain visible through banners
on 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 1,
expanding outreach and featuring more
businesses along both San Pablo Avenue
and University Avenue on their website.
1Nathan Dalton. “Is This West Berkeley
Intersection About to Be Revived?”
Berkeleyside, May 14, 2025.
Figure 4.7. Berkeley International
Marketplace Participating Businesses
Photo from Berkeley International
Marketplace, binmar.org, 2025
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San Pablo Avenue Specific Plan Final Draft 55
Business Improvement and Community Benefit
District(s)
The community expressed frustration with the lack of
comfort and poor maintenance of existing public
spaces along San Pablo Avenue. Property and
business owners in the Specific Plan Area and West
Berkeley have shown interest in working together to
enhance the business and community environment in
the Specific Plan Area. Members of the West Berkeley
Design Loop and others in the business community
have also indicated interest in forming a business
improvement district (BID) 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. A business improvement district (BID) or
community benefit district (CBD) can take on a key
role in addressing these community concerns through
sidewalk maintenance and streetscape beautification,
security, business attraction and retention, and
community outreach.
ED-P.5 Study Feasibility of Forming a Business Improvement District (BID) or Community Benefit District (CBD)
The Specific Plan supports collaboration between the City and local businesses and property owners to study the feasibility and scope of establishing one or more BIDs or CBDs within the Specific Plan Area. The study should assess potential boundary options ranging from Specific Plan Area-wide to targeted areas around Designated Nodes and may also explore extensions into adjacent areas of West Berkeley where commercial synergies and business interest are strongest.
Study Objectives:
1) Analyze the feasibility of different boundaries and implementation approaches. Options to consider include:
• Establishing a pilot BID focused on 1 or 2 high-potential Designated Nodes (such as Cedar Street and/or University Avenue). A high potential Designated Node is a place where public investments and community business interest are already concentrated, long-term businesses What is a Business Improvement District (BID)?
A BID 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.
What is a Community Benefit District (CBD)?
A CBD is a public-private partnership between the City
and local communities within a defined geographic area, with a funding structure similar to a BID. CBDs typically include commercial, mixed-use, and residential property owners and businesses. Unlike BIDs, CBDs offer a
broader scope by engaging the community to preserve
and celebrate the area’s identity. Existing CBDs in
Oakland include the Downtown Oakland Association
and the Black Cultural Zone (BCZ).
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San Pablo Avenue Specific Plan Final Draft 56
with pedestrian-oriented storefronts are clustered, and planned or completed mixed-use developments are increasing residential density.
• Exploring hybrid models that begin with merchant associations or business clusters and evolve toward more formal entities.
• Examining the possibility of organizing a BID that extends outside the Specific Plan Area or a thematic district that includes parts of West Berkeley, such as the West Berkeley Design Loop or includes a portion of the Specific Plan Area in the discussion of a Gilman District BID. 2) Include an equity-centered outreach process that engages with a broad range of groups active in the Specific Plan Area, such as existing businesses and property owners, Black-owned businesses and cultural institutions, community-based organizations, nonprofits, arts groups, and unhoused residents who engage with the Specific Plan Area’s public realm. The City should partner with CBOs and business networks to facilitate this outreach (see ED-P.3 Establish Public-Private Partnerships to Activate the Specific Plan Area). The study should also define equity principles and guiding principless to guide the creation and operation of any future entity, ensuring alignment with community goals.
This effort should be coordinated with existing or proposed district initiatives in nearby areas 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.
ED-P.6 Economic Development Technical Assistance
To facilitate the implementation of the policies in this chapter, OED staff will provide technical assistance in the following areas:
• Implementation of Public-Private Partnerships in alignment with ED-P.3 Establish Public-Private Partnerships to Activate the Specific Plan Area.
• Implementation of ED-P.5 Study Feasibility of Forming a Business Improvement District (BID) or Community Benefit District (CBD) to initiate the study.
• Conduct outreach and engagement, with businesses and property owners within the Specific Plan Area to assess interest in forming business cluster organizations, a BID, or a CBD. • Provide technical assistance in navigating legal and financial requirements related to BID or CBD formation.
• 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/CBD feasibility study. • Facilitate discussions among businesses and property owners. • Coordinate early marketing and/or events to build momentum and community identity.
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San Pablo Avenue Specific Plan Final Draft 57
Public Investment
ED-P.7 Establish a Process to Prioritize Public Investment in Designated Nodes The Specific Plan seeks to concentrate resources within Designated Nodes for the purpose of delivering visible, coordinated improvements that can attract new businesses, enhance safety, and build community identity . By targeting grant and capital funding to these locations, ongoing transportation projects can be leveraged and aligned with public and private investments.
A process and criteria shall be established to prioritize public investments in Designated Nodes that strengthen safety, catalyze economic development and build momentum for the Specific Plan Area. The following metrics should be incorporated - number of existing businesses, number of residential units, number of commercial vacancies - and outreach should be conducted in an equitable manner. Initial public investment – such as pedestrian-scale lighting, transit-supportive infrastructure, and amenities for gathering – should be made within the highest priority Designated Node(s).
Supporting Policies and Programs
The policies within this Specific Plan, including those in Chapter 3 Land Use and Chapter 5 Streets – Transportation and Public Realm, are designed to work together to strengthen the Specific Plan Area as a whole, including the local economy along San Pablo Avenue.
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 either storefront or active ground floor frontage within Designated Nodes, allowing the extent of retail and restaurant uses to adapt over time as the population in the Specific Plan Area grows (See LU-P.9 Establish Ground Floor Form Types to Promote Pedestrian-Scaled and Flexible Ground Floors).
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 Specific Plan Area. These improvements will draw more potential customers and support the diverse mix of local and specialized businesses along San Pablo Avenue (Chapter 5 Streets – Transportation and Public Realm).
Public realm policies and standards to create consistent lighting and street furnishings, street trees, and public realm expansions, will improve comfort and encourage longer, more frequent visits that support commercial activity (Chapter 5 Streets – Transportation and Public Realm).
Together, these measures are designed to enhance the livability of the Specific Plan Area while driving long-term economic growth.
In addition, the City’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.
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San Pablo Avenue Specific Plan Final Draft 58
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 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 .
- Final Draft -
Chapter 5: Streets – Transportation and Public Realm
San Pablo Avenue Specific Plan Final Draft 59
Some stretches along San Pablo Avenue feature a
consistent tree canopy and active storefronts that
introduce a pedestrian-friendly setting, but these remain exceptions. New mixed-use developments and
streetscape improvements are gradually transforming
San Pablo Avenue into a 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 the changing needs of the street.
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 first
community open house, 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
vehicular centered conditions and the community’s
vision of 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.
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San Pablo Avenue Specific Plan Final Draft 60
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 5.2). At these
locations, one can find outdoor seating, decorative
plantings and other amenities that invite potential
customers and create a 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.
1 City of Berkeley. Pedestrian Plan Appendix B: Toolbox of Pedestrian Improvements. Adopted 2020, p. 8 San Pablo Avenue is also physically wide, with a typical right-of-way measuring 73 feet from curb to curb (see
Figure 5.1). 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 Plan1 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.
Figure 5.1 Section Graphic of the Typical Right-of-Way Configuration at San Pablo Avenue Graphic by CD+A
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San Pablo Avenue Specific Plan Final Draft 61
Transportation
Multimodal Mobility, Safety and
Comfort
According to the Vision Zero Policy and Plan (see page 58) San Pablo Avenue is classified as a High-Injury Street, one of the City’s streets with the highest number of severe injury and fatality traffic crashes. Risk and discomfort associated with crossing the street is driven by the
absence of dedicated bicycle crossing infrastructure,
limited pedestrian visibility, and high vehicle speeds and related traffic noise. These conditions create an
environment that is less safe for non-motorized users.
As mentioned previously, many cyclists avoid riding
directly on San Pablo Avenue and instead rely on parallel bicycle routes. However, crossing San Pablo Avenue
remains difficult. The 2017 Berkeley Bicycle Plan (see
page 58) identified all intersections at key east-west
bicycle routes designated as class III bicycle
boulevards—specifically Virginia Street, Channing Way,
and the Russell Street and Heinz Avenue connection— as
high-stress locations for cyclists and present significant barriers to safe and comfortable bicycle travel.
Several safety improvement projects are underway to
address some of these conditions. For project details,
see Appendix D: Street Improvements. The Specific
Plan (the Plan) establishes policies and standards for
further improving mobility, safety, and comfort for all users. Appendix D also outlines recommended projects
that may be implemented with future development.
Transit Network
Transit service within the Specific Plan Area is provided by the Alameda-Contra Costa Transit District (AC Transit), which operates local bus routes, a limited stop bus line along San Pablo Avenue, and transbay service connecting the area to the Salesforce Transit Center in San
Francisco. AC Transit routes 72, 72L, 72M, 52, 51B, 36, 12, J, G, FS, and San Pablo All Nighters (800 & 802)
connect the Specific Plan Area to North Berkeley,
Downtown Berkeley, or Ashby BART Stations, and San
Francisco.
Figure 5.2 Sidewalk with Bus Stop and Café Seating
On the West Side of San Pablo Avenue and Dwight Way Intersection. Photo by CD+A, 2025
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San Pablo Avenue Specific Plan Final Draft 62
Objectives
San Pablo Avenue does not need to look the same from end to end; in fact, the distinct character of different places along San Pablo Avenue is one of its valued assets (See Figures 5.3 and 5.4). However, many of these areas can benefit from stronger visual and physical connections. By establishing guidance for shared elements like trees, lighting, and street furnishings, the Plan seeks to create a sense of continuity while allowing for places along San Pablo Avenue to develop their own unique identity.
Tr
ansportation
Improve San Pablo Avenue’s function as a multimodal
street that safely and efficiently serves pedestrians,
cyclists, transit riders, drivers, deliveries, freight, emergency response and evacuation, and
maintenance access. Enhance access to transit and
reduce collisions. Improve the balance between
regional mobility and local access. Better manage on-
street parking and loading to support diverse uses
along San Pablo Avenue.
Figure 5.3 Daytime Traffic
San Pablo Avenue near Blake Street Intersection.
Photo by CD+A, 2025
P
ublic Realm
Transform San Pablo Avenue into a welcoming and
vibrant public realm, with public spaces that
enhance the distinct character of places along the
street and neighborhoods they connect to. Expand
and improve sidewalks and streetscape elements
and encourage public art, and cultural activities to
support a more active street life.
Figure 5.4 Sidewalk with Storefront
San Pablo Avenue Sidewalk South of Dwight Way.
Photo by CD+A, 2025
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San Pablo Avenue Specific Plan Final Draft 63
Transportation Policies, Standards and Projects
The Specific Plan Area needs improved local and citywide multimodal access to support anticipated growth in population, employment, and business activity in the Specific Plan Area and adjacent neig hborhoods in West and South Berkeley . Meeting the transportation needs of this growth will require reducing dependence on personal vehicles and expanding access to safer and more equitable travel options . This approach aligns with regional and City goals for climate action, economic vitality and equity. The following section outlines strategies to support this transition, including safer street crossings for all users , enhanced transit access and reliability, parking and curb management to support businesses, and measures to reduc e collisions while improv ing overall mobility.
Existing Policies and Standards
City of Berkeley
Vision Zero Policy and Plan
In 2020, the City of Berkeley adopted its Vision Zero
Action Plan with the goal to eliminate all traffic
fatalities and severe injuries by 2028. The plan focuses on engineering and design strategies that improve
safety for everyone travelling in Berkeley. Between
2011 and 2020, multiple collisions along San Pablo
Avenue resulted in severe injuries to people walking,
biking, and driving, including one fatality. According to the City’s 2022 Annual Report2, 42 percent of
Berkeley’s severe and fatal traffic collisions during
that same timeframe occurred within Metropolitan
Transportation Commission designated Equity Priority
Communities3, which includes most of the Specific
Plan Area.
To help meet Vision Zero goals, several safety
improvements are already planned or in progress, and
many are part of Alameda CTC’s San Pablo Corridor
Safety Enhancements Project. The Specific Plan also
includes transportation safety related policies,
improvements, and an implementation strategy that
supports Vision Zero goals.
Berkeley Bicycle Plan
The City of Berkeley Bicycle Plan Update was adopted
by City Council on June 16, 2026. The update began
with Phase 1 public outreach in 2022 and drafting of
the plan with additional engagement in 2025. Parallel
2 City of Berkeley. Vision Zero Annual Report 2021–2022. June 2022. Accessed 6 May 2025. 3 See Chapter 1 Introduction for definition of Equity Priority Communities. 4 City of Berkeley Bicycle Plan update, Final Draft, January 2026. Accessed 20 May 2026. Pp. 124-126 5 City of Berkeley Bicycle Plan update, pp. 126
development with the Specific Plan allowed for
coordination between both documents. The following
information is drawn from the Final Draft of the Bike
Plan, dated January 2026 which was adopted as the
Final Plan. The Bicycle Plan seeks to increase bicycle
use as a day-to-day mode of transportation. San Pablo
Avenue, as one of the City’s and AC Transit’s Primary
Transit Routes, was identified for further study to
evaluate options for improved Class IV bicycle acce ss
along the street. San Pablo Avenue is designated as a
Tier 2 Priority Project in the Bicycle Plan based on the project’s scoring for safety, community support,
equity, Safe Routes to Schools, and project feasibility.
As part of the Bike Plan’s Complete Streets Corridor
Study Recommendations
4, it recognizes the earlier
multimodal study completed by Alameda CTC and
states “Further study and design of parallel residential street bikeways, ped and bike crossing improvements,
and transit service improvements in progress.”5
Since the adoption of the initial 2017 Bicycle Plan, the City has partnered with Alameda CTC through its San
Pablo Avenue Safety Enhancements Project and
Parallel Bike Improvements Project to implement
crossing upgrades at several designated bicycle
boulevards and to establish new and improve existing
parallel bicycle boulevard routes. Additional
information about planned safety and mobility
improvements along San Pablo Avenue is provided in
the following section, which discusses the Alameda
CTC San Pablo Corridor Projects.
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San Pablo Avenue Specific Plan Final Draft 64
Berkeley Pedestrian Plan
The 2020 Pedestrian Plan6 outlines strategies to
improve pedestrian travel along Berkeley’s high-injury
streets and enhance overall pedestrian safety
consistent with the Vision Zero Action Plan. The plan
identifies San Pablo Avenue—from University Avenue
to Dwight Way—as a priority corridor, ranking it among
the top 10 locations for capital projects focused on
pedestrian safety.
The Plan’s proposed improvements at key
intersections along San Pablo Avenue align closely
with the Alameda CTC San Pablo Avenue Safety
Enhancements Project and include curb extensions,
raised medians, high-visibility crosswalk markings,
and pedestrian hybrid beacons (PHBs)/rapid-
reflective flashing beacons (RRFBs).
Additional recommendations go beyond the current
scope of the Safety Enhancements Project. These
include evaluating the feasibility of lowering speed
limits to 25 mph and introducing separate pedestrian
signal phases that do not conflict with turning
vehicles.
Transportation Demand
Management Policies
The City of Berkeley Municipal Code establishes a
Transportation Demand Management (TDM)
Program7 that supports the goals of the City’s
Transportation Element and Climate Action Plan by
reducing automobile travel, encouraging transit
ridership, and promoting bicycle and pedestrian
safety. This program requires new residential
developments of ten or more units to:
• Provide unbundled parking that is sold or leased
separately from units to incentivize reduced
automobile ownership
• Offer monthly transit passes at no cost to
residents to encourage transit use
• Provide real-time transportation information on
displays in common areas to facilitate transit use
Before a Certificate of Occupancy is issued, site
inspection is required to confirm that all required
physical improvements have been installed. Following
occupancy, property owners are responsible for
6 City of Berkeley. Berkeley 2020 Pedestrian Plan. 2020. Accessed 17 June 2025. 7 City of Berkeley. Berkeley Municipal Code § 23.334 - Transportation Demand Management. Accessed 16 June 16 2025. 8 City of Berkeley. Berkeley Municipal Code § 9.88 – Commuter Benefit Program. Accessed 2 July 2025. 9 City of Berkeley. Berkeley Municipal Code § 14.52.120 – Parking Meter and Pay Station Fees. Accessed 23 June 2025. 10 U.S. Access Board. Public Right-of-Way Accessibility Guidelines (PROWAG), 36 CFR Part 1190, Final Rule published in the Federal Register, 88 FR 54336. August 2023. Effective 7 September 2024. Accessed 23 June 2025. ongoing compliance and reporting to ensure that
required TDM measures remain in place and
effectively achieve the objectives of the program.
Additionally, the City requires employers with ten or
more employees to provide a Commuter Benefit
Program8 that encourages the use of transit,
vanpools, or bicycles by providing pre-tax payroll
deductions, direct payment of expenses, or a
company-funded shuttle service.
goBerkeley On-Street Parking
Meter Policy
In 2022, the City of Berkeley launched the goBerkeley
SmartSpace pilot, funded by MTC and FHWA, to
explore ways to reduce the need for residents to move
their vehicles every two hours due to on-street parking restrictions in neighborhoods near the Elmwood and
Southside/Telegraph commercial districts. As a result
of the pilot, the City adopted an on-street parking
meter pricing policy
9 for single-space meters and pay
stations within the goBerkeley meter zones that allows
for parking fee adjustments based on published
parking occupancy data. The goal is to maintain 65–
85% occupancy, or roughly 1–2 open spaces per
block, to minimize circling and improve parking
availability. Rates are adjusted two to three times per year.
On-Street Accessible Parking and
Passenger Loading Requirements
Accessible parking in the public right-of-way is
required and must comply with the U.S. Access
Board’s Public Right-of-Way Accessibility
Guidelines (PROWAG), federally adopted in 2024.10
Where on-street parking is metered or designated by
signage or pavement markings, the required number
of accessible spaces and their design must follow
PROWAG standards for dimensions, clearances, and
connection to the pedestrian access route. If
individual spaces are not marked, each 20 feet of
designated curb space is counted as one parking
space.
The following exceptions apply to implementation of
on-street accessible parking:
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San Pablo Avenue Specific Plan Final Draft 65
• Spaces reserved exclusively for residential,
commercial, or law enforcement use are exempt
and not counted toward required totals.
• If on-street spaces are altered, requirements
apply only to the modified spaces until the
minimum required number is reached.
Accessible passenger loading zones in the public
right-of-way are also required. At least one accessible loading zone must be provided per 100 feet (or
fraction thereof) of designated loading area, excluding transit stops.
Off-Street Parking Maximums in
Transit-Rich Areas
In 2021, the City of Berkeley adopted parking reforms
that established off-street parking maximums for
new residential developments well-served by transit,
limiting vehicle parking to a maximum of 0.5 spaces
per dwelling unit.11 Parking reductions are also defined for all uses in mixed-use buildings within the existing C-W zoning dlive-woistrict.12 This policy is intended to support TDM measures by discouraging car
dependency and encouraging transit-oriented,
sustainable growth in areas with good transit service.
The cap applies within a quarter mile of rail stations
and bus transit corridors with peak period frequency
of 15 minutes or better, which includes the entirety of the Specific Plan Area.
Bicycle Parking Policies
Bicycle parking facilities that are secure, accessible, and weather-protected support TDM measures by
encouraging bicycle use. Bicycle parking is also
included in the Pre-Occupancy TDM Program and
Bicycle Parking Ongoing Monitoring and Reporting
Statement, which new developments are required to
complete.
Building on the goals of the 2017 Berkeley Bicycle
Plan, the City of Berkeley Municipal Code requires
long- and short-term bicycle parking for new
commercial construction, development that expands
floor area, and new residential projects, including
residential portions of mixed-use developments.
13 Bicycle parking spaces are required on a per square-
11 City of Berkeley. Berkeley Municipal Code § 23.322.070 – Off-Street Parking Maximums for Residential Development.
Accessed 16 June 2025.
12 City of Berkeley. Berkeley Municipal Code § 23.322.050.A.7 – All Uses in Mixed-Use Building. Accessed 11 March 2025. 13 City of Berkeley. Berkeley Municipal Code § 23.322.090 – Bicycle Parking. Accessed 2 July 2025. 14 City of Berkeley. Berkeley Bicycle Facility Design Toolbox. May 2017. Accessed 16 June 2025. 15 City of Berkeley. Bicycle Parking Program. 2025. Accessed 26 June 2025. foot basis for commercial development and per
bedroom basis for residential development.
Detailed siting and design standards for bicycle
parking are outlined in the Bicycle Facility Design
Toolbox, provided as Appendix F of the 2017 Bicycle
Plan.
14 This guidance accounts for a range of bicycle
types and sizes and recommends long-term parking
strategies based on lot coverage. Projects on parcels
with high lot coverage (over 85%) are encouraged to
provide indoor long-term bike parking, such as a
secure room or cage. Sites with lower lot coverage
may use outdoor solutions like bike lockers or
covered, secure enclosures.
Bike corrals are a form of on-street bicycle parking
that provide high-capacity, short-term parking by
consolidating racks within the paved right-of-way,
typically in areas with high demand and limited
sidewalk space. In Berkeley, corrals may replace a
vehicle parking space or be installed adjacent to a red curb. Merchants or property owners may request a
bike corral in front of their business.
15 Requests are
reviewed based on safety, demand, and feasibility,
and installations must follow design standards
outlined in the City’s Bicycle Facility Design Toolbox.
The City may also create bike corrals in locations with high bike parking demand and limited sidewalk space,
such as in multimodal Mobility Hubs.
Transit-First Policy
Implementation Plan
The Transit-First Policy Implementation Plan (2023)
provides policies and guidelines for implementing the
City’s Transit-First Policy (Berkeley General Plan
Policy T-4) and for future planning for the City’s
existing transit priority corridors. It is a standalone document but planned to be implemented into a
future update of the Berkeley Strategic Transportation
(BeST) Plan.
The Plan designates San Pablo Avenue as a Primary
Transit Route and a priority corridor for further study of transit infrastructure needs, building on the findings of AC Transit’s Major Corridors Study (2016). Together
with Telegraph and University Avenues, San Pablo
Avenue is identified as a potential Bus Rapid Transit
corridor in AC Transit’s Long-Term Improvements Plan
(targeted for implementation by 2040). Further, the
Chapter 5: Streets – Transportation and Public Realm
San Pablo Avenue Specific Plan Final Draft 66
Plan highlights Alameda CTC’s San Pablo Corridor
Project as the lead effort for shaping future transit
improvements and recommends ongoing
coordination with Alameda CTC, Caltrans, and
neighboring cities to develop a long-term
implementation strategy.
Council Referral for BRT in Berkeley
In September 2023, the Berkeley City Council directed
the City Manager to explore a feasibility analysis of
Bus Rapid Transit (BRT) options along AC Transit’s 51B
route, including University Avenue. University Avenue
bus service provides a key east-west connection
between San Pablo Avenue and Downtown Berkeley
and is designated a Primary Transit Route in AC
Transit’s Major Corridors Study.
Future BRT service on University Avenue could
enhance transit access between the Specific Plan
Area and major destinations such as Downtown
Berkeley, UC Berkeley, BART, and the Berkeley Amtrak
Capitol Corridor Station. Completed improvements in
the Southside area include bus-only lanes on Durant
Avenue and Bancroft Way that are used by the 51B
and 6 routes. The referral proposes future budget
allocations for corridor studies and ADA
improvements.
San Pablo Avenue Public
Improvement Plan
The San Pablo Avenue Public Improvements Plan,
adopted on December 7, 2004, was developed to
support pedestrians, cyclists, drivers, and transit
users, while also revitalizing the area along and
surrounding San Pablo Avenue. While many
improvements have been completed, the Plan itself is
now outdated and replaced by this Specific Plan. The
Improvement Plan’s recommendations served as a
foundation for the Specific Plan's public realm
framework, informing its policies, programs and
design standards.
Caltrans
As described in Chapter 1 Introduction, San Pablo
Avenue is a California state highway (State Route 123).
Any improvements within the street right-of-way must be approved by Caltrans, while the City of Berkeley is
responsible for maintaining sidewalks, roadway surface
and medians, street trees, landscaping, and electrical
work. Any modifications to the roadway itself, such as
lane configurations, signal equipment and timing, speed limits, curb changes, or median design, must comply with Caltrans design standards and receive their approval.
Because San Pablo Avenue functions as a freeway
reliever route for I-80, it is prioritized for regional vehicle movement. This limits the feasibility of changes that
could reduce vehicular capacity.
AC Transit
AC Transit provides bus service across Alameda and
Contra Costa counties, operating 12 routes that serve the Study Area and connect directly to San Pablo Avenue.
Realign Plan
In response to evolving travel patterns, AC Transit
developed the Realign Plan, a redesigned bus network,
which launched in August 2025. Under the new network,
bus service frequency along San Pablo Avenue in
Berkeley is expected to remain the same consistent with previous levels, while overall schedule reliability is
anticipated to improve.
AC Transit first introduced the RAPID bus, Line 72R,
service in 2003, a service that continues under 72L today.
The agency further upgraded transit efficiency with the San Pablo Avenue Rapid Corridors Project, completed in
2023. This effort improved traffic signals, installed GPS- enabled Transit Signal Priority (TSP) technology, and
enhanced overall operations from downtown Oakland to
the City of San Pablo.
Major Corridors Study
AC Transit’s 2016 Major Corridors Study laid out both
short- and long-term strategies for improving service
along San Pablo Avenue. The long-term vision calls for
Bus Rapid Transit (BRT) to boost capacity and reliability.
In the short- and mid-terms, the Rapid Corridors project and on-going planning and design led by Alameda CTC
are improving transit infrastructure along San Pablo
Avenue in Berkeley and adjacent communities. For more
details on their current work, see Appendix D.
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San Pablo Avenue Specific Plan Final Draft 67
Existing Transportation Projects
At the time of writing the Plan, several transportation and streetscape improvements are anticipated to take place over the next several years. The improvements proposed in the Plan build upon these ongoing and planned efforts, treating them as baseline conditions. For a comprehensive list and description of these projects, refer to Appendix D.
City of Berkeley Projects
The City moved forward with the implementation of
several projects identified in the 2017 Bike Plan and 2020 Pedestrian Plan, including several projects that cross or parallel San Pablo Avenue. These efforts were
coordinated with Alameda CTC’s San Pablo Avenue
Corridor Projects to support broader multimodal safety
goals. For a map of current connections and a full list of projects, see Appendix D and see Figure 5.8.
Alameda CTC Projects
The Plan does not focus on transportation improvements
to San Pablo Avenue, because the Alameda County
Transportation Commission (Alameda CTC) has
completed a multimodal planning study for San Pablo
Avenue throughout Alameda County. The study led to
three improvement projects (see Figure 5.5). These
projects 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. For detailed project
descriptions and timelines, refer to Appendix D. The Bus Lanes and Bike Lanes project which is planned to extend from Oakland to the south up to Heinz Street in Berkeley has experienced some planning delays and is not
expected to be finished with construction by 2035at the earliest. The Parallel Bike Improvements and Safety
Enhancement projects are expected to be completed by
2027 to 2028.
Alameda Countywide Bikeways Network
San Pablo Avenue is designated as a major bus and
bikeway corridor within the Alameda Countywide
Bikeways Network16; it is subject to regional All Ages and Abilities (AAA) bikeway design expectations. For
additional details, see Appendix D.
16 Alameda CTC. Alameda Countywide Bikeways Network Executive Report. December 2022. P.3. Accessed August 2025.
Figure 5.5 Alameda CTC San Pablo Avenue Multimodal Corridor Overview Map Map by Alameda CTC, CD+A
Chapter 5: Streets – Transportation and Public Realm
San Pablo Avenue Specific Plan Final Draft 68
Transportation Policies and Standards
Multimodal Mobility and Access
Ongoing and planned improvements to transportation infrastructure along San Pablo Avenue establish a foundation for improving mobility and access for all users. Future efforts will build on this momentum to provide infrastructure and operation systems that best serve the community’s vision for the Specific Plan Area as a vibrant mixed-use district.
T-P.1 Improve Mobility, Access, and Safety for All People The Specific Plan will improve conditions for people walking, biking, taking transit, driving, making deliveries, as well as emergency response and evacuation and maintenance access along San Pablo Avenue and throughout the Specific Plan Area. The Specific Plan considers particular needs of vulnerable users, including children, seniors, and people with disabilities.
The Specific Plan will support im plementation the goals for the City’s Complete Streets Policy and the Vision Zero Action Plan by designing all street and transportation improvements within the S pecific Plan Area to enhance
mobility, access and safety for people who are walking, biking, taking transit, and driving while providing access for deliveries, freight, emergency response, evacuation and maintenance. The Specific Plan will ensure that design and implementation consider the needs of vulnerable users, including children, seniors, and people of all abilities.
The City is planning to update the Pedestrian Plan and the Vision Zero Action Plan starting in 2026 or 2027. These updates provide the opportunity to further assess pedestrian and other multimodal conditions along San Pablo Avenue, and to prioritize multimodal recommendations and implementation of improvements identified in this Plan at a citywide level. As a part of these plan updates, the City will review and update regulations for maintaining accessibility for bicyclists, pedestrians, and transit riders during construction in the Specific Plan Area, as well as coordinating with Caltrans to receive their agreement with the regulations. See also Chapter 6 Administration and Implementation and other specific recommendations in this chapter.
T-P.2 Future Transportation Study Needs for San Pablo Avenue The Alameda CTC Bus and Bike Lanes Project currently ends at Heinz Street and San Pablo Avenue. Through previous planning and engagement efforts, the community expressed concerns regarding feasibility and the significant roadway changes required to extend dedicated bus or bicycle facilities through Berkeley along San Pablo Avenue.
These challenges include removal of all or some portions of the medians which hold mature street trees. With a growing population and reduced off-street parking requirements for all developments given proximity to high-quality transit (See off-street parking requirements discussion in the Parking and Curb Management section of this chapter), the demand for alternative transportation options is likely to increase. It is expected that the City will need to revisit the design of Berkeley’s portion of San Pablo Avenue in the future.
The Specific Plan recommends that the City, in partnership with Alameda CTC, AC Transit and Caltrans, and the City of Albany, explore a potential follow-up planning and design process to evaluate multimodal conceptual design options for San Pablo Avenue from Heinz Avenue to the Alameda County line. This potential future process could study a range of potential bike and bus improvements, including bus rapid transit, bus only lanes, and separated bike lanes. Depending on development activity in Berkeley and other San Pablo Avenue communities there may also be some future interest in studying the potential for streetcar service.
A multimodal study for San Pablo Avenue is a priority for the Project Plan Area, but it has not been identified as a priority in the on-going update to the City of Berkeley Bicycle Plan, and has not been identified as a priority in other City transportation documents. The upcoming updates to the Vision Zero Action Plan and the Pedestrian Plan should consider identifying a multimodal study as a city-level priority.
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San Pablo Avenue Specific Plan Final Draft 69
T-P.3 Maintain and Improve Bus Service in Collaboration with Alameda CTC and AC Transit
Maintain existing transit service levels along San Pablo Avenue and preserve key east-west “secondary route” connections identified in the City of Berkeley’s General Plan. In alignment with the City of Berkeley’s Transit First Policy (Policy T-2)17, the City will continue to coordinate with AC Transit to improve service on San Pablo Avenue as needed to enhance east-west service and improve infrastructure. This includes continuing to explore the implementation of AC Transit’s recommendations for primary transit routes and the need for improved connections to the Ashby and North Berkeley BART stations, which is further discussed in BART’s station and access plan.18 A key element of this approach will be identifying the appropriate lead agency for such studies and project development, as well as adequate funding. Efforts will be guided by the Transit First Policy Implementation Plan to ensure a coordinated and effective approach.
T-P.4 Implement Signal Timing and Transit Signal Priority (TSP) In collaboration with Caltrans and AC Transit, identify and implement additional TSP improvements at signalized intersections and signal timing that favors transit operations to increase transit reliability and encourage ridership.
This effort will build upon improvements made by AC Transit. This signal timing assessment will also identify changes to signal timing to manage mixed flow traffic speeds, encouraging travel at or below the speed limit. TSP provisions should also require emergency-vehicle preemption or prioritization, and the Fire Department should participate in the design, testing and performance monitoring of any TSP changes.
Parking and Curb Management
Many businesses along San Pablo Avenue depend on on-street parking for customer access and loading, particularly those without private parking lots or off-street loading.
With new residential developments, community members have raised concerns about parking availability to support the growing population. Business owners have also noted issues such as reduced storefront visibility due to parked cars and lack of parking enforcement leading to vehicles blocking parking spaces throughout the day.
Curb space in the Specific Plan Area, both on San Pablo Avenue and crossing streets, will be managed to support the needs of both businesses and residents, with a shared goal of maintaining available on-street parking access even during periods of peak demand. The Specific Plan recommends a strategy to ensure that on-street parking remains available for customers and other visitors arriving by car.
Provision of parking along San Pablo Avenue needs to be balanced with multimodal needs of all people that use San Pablo Avenue. See T-P.2 Future Transportation Study Needs for San Pablo Avenue regarding the need to study and implement multimodal
improvements along San Pablo Avenue.
17 City of Berkeley Transit-First Implementation Plan, 2023. Pp. 7-8. Accessed 20 May 2026 18 BART, Berkeley-El Cerrito Corridor Access Plan, February 2023. P. 66. Accessed 4 September 2025.
Off-St reet Parking Requirements
Assembly Bill (AB) 2097 is a California
law that prohibits public agencies or
cities from imposing minimum
automobile parking requirements on
most developments located within a
half-mile radius of major transit stops.
BMC 23.322.070 Establishes off-street
parking maximums for residential
development.
As San Pablo Avenue is a major transit
corridor (See Transit Network), most of
the Specific Plan Area falls under both
guidelines and is largely exempt from
minimum parking requirements.
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San Pablo Avenue Specific Plan Final Draft 70
T-P.5 Create an Active Parking and Loading Management Program for the Specific Plan Area
The program will include strategies such as adjusting parking meter rates and time limits through the City’s goBerkeley Parking Program. It will also consider expanding metered parking locations to side streets with commercial frontages to maintain the City’s target occupancy rate of 65 to 85 percent on metered blocks. Increased enforcement will accompany these measures to ensure compliance and support consistent parking turnover.
Currently, t he City of Berkeley is not encouraging the establishment of a dditional Residential Parking Permit (RPP)
areas, primarily due to cost considerations. As the effectiveness of pipeline and potential future multimodal improvements are assessed, the City will have an opportunity to reassess parking and loading needs along San Pablo Avenue and surrounding neighborhoods. Based on these assessments, the City Council will consider whether to establish new RPP area(s) in adjacent neighborhoods and whether to allow merchants to purchase permits to park in those areas.
Implement Mobility Hubs
The Metropolitan Transportation Commission (MTC) defines a Mobility Hub as an access point for “[…] travelers of all backgrounds to access multiple transportation options and supportive amenities. Built on the backbone of frequent and high-capacity transit, Mobility Hubs offer a safe, comfortable, convenient, and accessible space to seamlessly transfer across different travel modes.”
19 Identifying a Mobility Hub can strengthen eligibility for the Transit-Oriented Communities (TOC) program, improve transit access, and potentially improve eligibility for some funding sources. In 2020, MTC identified the University Avenue Node as a potential Mobility Hub.20 T-P.6 Implement Mobility Hub Features in the University Avenue Node In collaboration with MTC and AC Transit, the City will explore implementation of Mobility Hub strategies and features outlined in the Mobility Hub Implementation Playbook.
Improvements Potential mobility hub features in the University Node include:
• Improvements to bus stops and transit wayfinding.
• Bi ke share and shared micromob
ility stations.
• Bike corrals in parking lanes, and designated loading areas for ride-hail services, urban freight and delivery.
Install a bike corral near the bike boulevard crossing improvement at Addison Street as a first step toward creating a mobility hub in the University Avenue Designated Node.
T-P.7 Evaluate Other Locations for Some Mobility Hub Features Evaluate the potential for Mobility Hub features at other Designated Nodes or on a Specific Plan Area-wide basis, especially when transit service levels change. Even in locations that may not fully meet MTC’s criteria for a designated Mobility Hub, the City will consider incorporating select hub features.
19 Metropolitan Transportation Commission. MTC Mobility Hub Implementation Playbook. 30 April. 2021, p. 5. Accessed June 4, 2025
20 Metropolitan Transportation Commission. San Francisco Bay Region Mobility Hubs. ArcGIS Online Map Viewer. Accessed June 4, 2025
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San Pablo Avenue Specific Plan Final Draft 71
Multimodal Safety
Collision data identifies San Pablo Avenue as one of Berkeley’s most high-injury corridors, indicated the need for targeted safety interventions that reduce vehicle speeds, enhance visibility, and improve safety for all travel modes (See Figure 5.6). Improving sidewalk safety must also include interventions to support personal security and comfort. Measures such as pedestrian-scale lighting, wider sidewalks and Universal Design are further discussed in the Public Realm section of this chapter (see PR-P.14 Design for People of All Ages and Abilities).
Manage Vehicle Speeds and Lowering
Speed Limit
Reducing vehicle speeds along San Pablo Avenue can help create a safer, quieter, and more welcoming environment that supports the transformation of the Specific Plan Area into a vibrant mixed-use district.
T-P.8 Lower Speed Limit on San Pablo Avenue
San Pablo Avenue currently has a posted speed limit of 30 mph. . In California, speed limits are primarily established based on rounding the 85th percentile speed21 observed in an Engineering and Traffic Study (E&TS) to the nearest five mph. However, Assembly Bill 43 (2022) allows for greater flexibility in setting speed limits that better reflect safe road conditions for all users through the following mechanisms:
Agencies may round the 85th percentile speed observed in an E&TS down to the nearest five mph, even when the 85th percentile speed is ordinarily be rounded up.
For roadways where the 85th percentile speed is ordinarily be rounded down, agencies may reduce the speed limit by an additional five mph if the reasons for the lower limit are documented in an E&TS.
Local agencies may reduce the speed limits calculated in an E&TS by an additional five mph on designated Safety Corridors or corridors adjacent to land generating high bicycle and pedestrian volumes.
Regardless of the findings of the E&TS, local agencies may retain the existing speed limit or, if the immediately prior speed limit was lower than the existing speed limit, reduce the speed limit by five mph.
Local agencies may reduce speed limits from 30 mph to 25 mph (or from 25 mph to 20 mph) in Business Activity Districts without needing an E&TS.
Because San Pablo Avenue is operated by Caltrans, only the first two listed provisions apply
.22.The City will coordinate with Caltrans and AC
Transit to conduct an E&TS, with the goal of reducing the posted speed limit from 30 mph to 25 mph. A lower speed limit would complement other proposed traffic calming measures and pedestrian and bicycle safety enhancements along San Pablo Avenue. Signal timing adjustments at the intersections may also be needed to support this change. Ultimately, Caltrans has the authority to set the speed limit on San Pablo Avenue, because the full length of the street in Berkeley is a
21 The 85th percentile speed is the speed at or below which 85% of vehicles are observed to travel under free-flowing conditions.
22 California Department of Transportation. California Manual for Setting Speed Limits. Revised March 2025, pp. 19, 31-24 Speeding and safety
Collision data for San Pablo Avenue in
Berkeley indicates that from 2018 to
2022 unsafe speed was the primary
collision factor in 26 percent of
collisions that resulted in an injury or
fatality, more than any other collision
factor.
Figure 5.6 Dwight and San Pablo Avenue
Intersection
The existing crossing lacks safety interventions.
Photo by CD+A
Chapter 5: Streets – Transportation and Public Realm
San Pablo Avenue Specific Plan Final Draft 72
State Highway. The E&TS should include a supplementary assessment of how lowering the speed limit would affect transit performance in terms of speed and reliability.
If the E&TS process results in the speed limit remaining at 30 mph, but the E&TS shows that a high proportion of drivers are exceeding the speed limit. This information could be used for the City to continue advocating to expand the AB 645 speed safety pilot program to include Berkeley and potentially San Pablo Avenue as a pilot urban state highway high-injury corridor pilot.
23 Continue to Improve Intersections
Completed and ongoing intersection improvement projects along San Pablo Avenue ( see Appendix D) demonstrate a broad commitment to improve safety and multimodal connectivity. While these efforts addressed important locations, they represent only a portion of a comprehensive, long -term commitment to improving intersections throughout the street. Opportunities remain to expand existing improvement s – for example, by adding pedestrian lighting – and to apply consistent safety enhancements across all intersections. The following policies will inform the design and upgrades to San Pablo Avenue and other streets throughout the Specific Plan Area .
Note that improvements to San Pablo Avenue and its intersections with other streets are required to be approved by Caltrans.
T-P.9 Pedestrian Crossing Frequency
In an urban mixed-use area, frequent and safe pedestrian marked crossings are desired. According to the City of Berkeley Pedestrian Plan (2020), the average distance between marked crosswalks along San Pablo Avenue is 380 feet, with the longest gap reaching 625 feet between Gilman Street and Harrison Street.
Guideline To improve pedestrian convenience and reduce unsafe crossings at unmarked locations, the City should consider adding mid-block marked crosswalks at locations where the distance between marked crosswalks exceeds 600 feet.24
• With the expansion of multiple multifamily residential developments between Gilman Street and Harrison Street, the long distance (approximately 620 ft.) between these intersections makes it a strong candidate for installation of a mid-block crossing to support increased pedestrian activity.
• Ot her locations to consider new mid -block marked crosswalks include the blocks between G
ilman Street and Camelia Street (~600 feet), Cedar Street and Virginia Street (~615 feet), Allston Way and Bancroft Way (~615 feet), and Channing Way and Dwight Way (~590 feet). • Safe crossing features to align with T-P.10 Intersection Improvements.
T-P.10 Intersection Improvements
San Pablo Avenue has undergone several intersection improvements and continues to be the focus of additional planned improvements led by both Caltrans and Alameda CTC. A follow- up safety study should be explored after the completion of these projects to identify additional locations where improvements are needed and to assess whether any additional elements could enhance the effectiveness of previously implemented upgrades.
Improvements T o consider at intersections include the following (Intersection specific lists of potential improvements are in Appendix D):
• Signalized Intersections – These locations are to be evaluated for potential improvements such as curb extensions on side-streets, median refuge islands where they do not currently exist, and
23 This is consistent with the Berkeley City Council’s April 29, 2025 adoption a resolution asking the State Legislature to add the City to the existing program or similar program. (See Resolution No. 17,744-N.S. 24 City of Berkeley. Pedestrian Plan Appendix B: Toolbox of Pedestrian Improvements. Pedestrian Plan Appendix B: Toolbox of Pedestrian Improvements, adopted 2020. P. 10
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San Pablo Avenue Specific Plan Final Draft 73
improved roadway lighting and pedestrian-
scale lighting to enhance visibility of people
entering and crossing the street.
Improvements for bicycles should be
considered pursuant to the toolbox
recommendations of the Bike Plan, where
they do not exist. The need and benefit of
adding protected left turns at intersections
that lack them should be assessed, along
with consideration of right-turn-on-red
prohibitions.
• Un-Signalized Intersections – These
intersections are to be evaluated for
physical and lighting improvements similar
to those listed for signalized intersections.
The need for additional or upgraded traffic
flashers or signals should be evaluated,
such as rectangular rapid flashing beacons
(RRFB), pedestrian hybrid beacons (PHB), or full traffic signals.
In the long term, as population grows in the Specific Plan Area, and therefore pedestrian and bicycle activity increases within the Specific Plan Area, particularly in Designated Nodes, intersections have to be evaluated for the potential addition of full pedestrian signal phases. A full pedestrian phase stops all vehicle traffic while pedestrians cross in all directions, including diagonal crossings, also known as pedestrian scrambles. These signal phases improve pedestrian safety at intersections with high pedestrian volumes and complex turning movements. Detailed guidance on all-way pedestrian crossings is provided in the Berkeley Pedestrian Plan (2020), Appendix B: All -Way Pedestrian Crossings, p. B-18.
T-P.11 Pedestrian Crossing Design
Pedestrian crossing design in Berkeley is guided by the City of Berkeley Pedestrian Plan (2020), Appendix B:
Engineering & Design Guidance. Improvements to pedestrian crossings along San Pablo Avenue must also comply with the requirements of the Caltrans Highway Design Manual or receive approval for an exception from Caltrans.
Improvements along San Pablo Avenue shall prioritize the following:
• Curb extensions – The Alameda CTC Safety Enhancements project is planning bus curb extensions at select locations on San Pablo Avenue. While curb extensions into San Pablo Avenue can interfere with the potential for future multimodal improvements to use the full roadway width between existing curbs (see T-P.2 Future Transportation Study Needs for San Pablo Avenue for discussion of future multimodal study), the City should evaluate additional bus stop locations as potential opportunities for bus stop curb extensions. These also have the potential to be extended to provide additional public space, see PR-P.17 Design and Use of Curb Extensions.
• C rossing islands a
s integral part of medians and crosswalks to shorten the crossing distance. • Pedestrian-scale lighting, where needed per PR-P.3 Improve Street Lighting for the Safety and Comfort of All Users.
A map with the crossing locations and improvements is provided in Figure 5.7.
Street Improvements (Appendix D)
Potential improvements are scoped to build
upon those of the San Pablo Avenue Safety
Enhancement project which have not been
constructed at the time of this Plan’s
adoption. Other intersection improvements
have been recently completed. The
combination of these changes defines the
baseline for future transportation design
and investment. The list of improvements in
Appendix D is a compilation of
improvements defined by the 2020
Pedestrian Plan and additional potential
improvements. This list may be further
refined as part of a planned update to the
Pedestrian Plan.
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San Pablo Avenue Specific Plan Final Draft 74
Figure5.7 Locations with Need for Intersection Improvements For detailed list, see Appendix D. Source: Alameda CTC, AC Transit, City of Berkeley. 2025.
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San Pablo Avenue Specific Plan Final Draft 75
T-P.12 Minor Side-Street Intersection Improvements
The City will review collision data and monitor driver behavior at minor side -street intersections and make improvements as needed.
Improvements:
• Raised crosswalks on side-streets – Elevating the crosswalk between minor side-streets will slow drivers as they enter the minor street. Raising crosswalks should be considered in the context of service and emergency vehicle turn movements. Detailed guidance is provided in the Berkley Pedestrian Plan Appendix B: Toolbox of Pedestrian Improvements, p. B -19. • Side-street curb extensions – When space is available on side-streets provide a curb extension to shorten pedestrian crossing distance. Curb extensions narrow the opening for vehicles and allow for reduced curb radii, which will slow drivers entering the minor street and provide more space for directional curb ramps. Detailed guidance is provided in the Berkley Pedestrian Plan Appendix B: Toolbox of Pedestrian Improvements, p. B -13. (see PR-P.17 Design and Use of Curb Extensions on Side-Streets for design and use of curb extensions for public space). • Encourage more perpendicular (right-angle) turning movement at intersections to improve driver visibility of pedestrians in crosswalks. This can be done by extending medians to the crosswalk and providing a median nose to protect the crosswalk where turn movements allow.
Intersection legs without medians should have hardened centerlines (see Figure 5.8).
Figure 5.8 Before and After Hardened Centerline Improvement Graphics by Chicago.gov
T-P.13 Make Safety Improvements at Driveways
Some driveways in the Specific Plan Area have poor visibility for drivers accessing the street from the parking lot, such as the southern driveway at REI/Chipotle/Walgreens center. Driveways will be assessed for adequate sightlines and red curbs provided where sightlines need to be improved. Priority should be given to driveways with more activity , such as along Major Streets and Collector Streets25 and in locations that have a record of collisions.
T-P.14 Prioritizing Multimodal Safety Improvements
The following factors will be used in determining priorities for multimodal safety improvements in the Specific Plan Area.
San Pablo Avenue int ersections with Gilman Street, Cedar Street, University Avenue, Addison Street, and Ashby Avenue which are hi
gh-injury streets, as defined in the Vision Zero Plan, 2020, and segments of these streets within
25 For definitions of Major Streets and Collector Streets, see General Plan – Transportation Element. Adopted December 18 2001, p.T-31
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San Pablo Avenue Specific Plan Final Draft 76
the Specific Plan Area (see Figure 5.7). Prioritization of improvements to segments of these streets is discussed in T- P.18 Prioritize connections with Surrounding Neighborhoods and Districts.
San Pablo Avenue from University Avenue to Dwight Way is a priority area for multimodal improvements as the 2020 Pedestrian Plan identifies this segment as a Prioritized High-Injury Street.
The planned update to the Pedestrian Plan provides an opportunity to reassess all the streets in the Specific Plan Area for designation as Prioritized High-Injury Streets. For example, the Vision Zero Action Plan identifies the full length of San Pablo Avenue in Berkeley as a high-injury street and identifies several fatal injury collisions outside of the University Avenue to Dwight Way segment.
Consider traffic speed and traffic levels when identifying priority locations for safety improvements within the Specific Plan Area.
Intersection improvements at Russell Street and Heinz Street are part of Alameda CTC’s Bus and Bike Lane Project (Appendix D). Improvements for bicycle and pedestrian safety and access are identified in the 202 6 Bicycle Plan Update in this area.
26 Given the Alameda CTC project’s projected completion date of no sooner than 2035, the City should coordinate with Alameda CTC to pursue more immediate upgrades at these intersection and potential bicycle connections on San Pablo Avenue between them.
The Specific Plan calls for continuous review of transportation collision data and the Annual Vision Zero Report to identify safety “hot spots” for targeted assessment and improvements, and to prioritize improvements at intersections that serve key connections, in alignment with T-P.18: Prioritize connections with Surrounding Neighborhoods and Districts.
Improve Connections Outside of the Specific Plan Area
Community members consistently described San Pablo Avenue as a barrier separating West Berkeley from the rest of the city. This perception is driven not only by the lack of safe crossings for people walking and biking, but also by the limited number of multimodal, east-west connections to places outside of the Specific Plan Area.
Although several parks are located within a few blocks of San Pablo Avenue, access to these is often hindered by unsafe or indirect pedestrian and bicycle routes. Side -streets that connect current and future residents along San Pablo Avenue to nearby parks and facilities require targeted multimodal improvements. Strengthening these connections will improve equitable access to help overcome the street’s physical divide.
Connections Network
Strengthening east-west connections across San Pablo Avenue is essential to linking adjacent neighborhoods with citywide destinations such as schools, parks and transit stations. Figure 5.9 illustrates the network of planned and completed projects aimed at enhancing these connections. The map identifies potential priority pedestrian and bicycle connections currently missing within the Specific Plan Area and consolidates information from several sources, including the Alameda CTC San Pablo Avenue Corridor Project, City of Berkeley and BART planned B icycle Improvements, and the proposed facilities from the Bike Plan Update (2026). A subsequent gap analysis highlights areas where east-west connectivity remains limited and where additional infrastructure investments are needed to support safe and continuous bicycle and transit travel.
Figure 5.10 complements this analysis by providing an overview of existing road designations and emergency access and evacuation routes. Comparing the two maps reveals that many major roadways continue to lack complete multimodal facilities.
There are also some locations in the Specific Plan Area where the distance between side streets hinders connections, and LU-S.4 Mid-Block Passage Incentive improves accessibility between the Specific Plan Area and surrounding mixed-use industrial districts and neighborhoods adjacent to the Specific Plan Area .
26 City of Berkeley. Berkeley Bicycle Plan update, Final Draft, January 2026. Accessed 24 April 2026. Page 114 and 115.
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Figure 5.9 Connections Map: Existing and Planned Projects Source: Alameda CTC, AC Transit, City of Berkeley. 2025.
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Figure 5.10 Existing Street Network Map
Source: Alameda CTC, City of Berkeley. 2025.
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T-P.15 Transit Improvements
The following efforts will be undertaken by the City with partner agencies to improve reliability and efficiency of transit service connecting the Specific Plan Area to BART, UC Berkeley, Downtown Berkeley, and other major destinations:
• I n alignment with Transit- First Policy 1827, explore further study of additional improvements along University Avenue and the Southside area to enhance transit service on Line 51B, strengthening connections between San Pablo Avenue, the Berkeley Amtrak Capitol Corridor Station, Downtown Berkeley, and UC Berkeley . • Coordinate with AC Transit, BART, and Capitol Corridor to improve connections, reduce transfer wait times, and support future frequency enhancements for east-west bus service that crosses San Pablo Avenue.
For other transit improvement policies, see section Multimodal Mobility and Access.
T-P.16 Bicycle Improvements
In alignment with the Berkeley Bicycle Plan (2017), Bicycle Plan Policy D-1, and consistent with the City’s 2026 Bicycle Plan Update, the City will continue to expand and improve a connected, low-stress bikeway network, with emphasis on comfort and safety:
• I mprove infrastructure at the intersections
at Gilman and Heinz Street, consistent with the City’s 2026 Bicycle Plan Update. These intersections are critical for enhancing east-west connectivity and safety. Recommended improvements include studying an extension to the existing cycletrack on Gilman Street from 4th Street to San Pablo Avenue and establishing an offset cycletrack crossing at Heinz Street to connect with Russell or Oregon Street and the larger bicycle boulevard network.
• Improve bicycle access for elementary and middle school students traveling to schools located east and west of San Pablo Avenue. Prioritize infrastructure improvements that create continuous, low -stress routes between neighborhoods and school campuses.
• Enhance bicycle connectivity to regional transit, including a safer and direct link to the Amtrak Capitol Corridor rail station to support multimodal travel options for students, commuters, and residents.
As bicycle improvements are made, provide bicycle wayfinding and directional signage consistent with standards and guidance in the Berkeley Bike Plan (2020), Appendix F and the 2026 Bicycle Plan Update to help navigate bicycle riders through intersections, and guide them to local and regional destinations. If bike lanes are not established on San Pablo Avenue, bicycle signage on the street must direct cyclists to the nearest bicycle boulevards and parallel routes to provide safe alternatives.
To help cyclists take advantage of these improvements and to access destinations bicycle parking in the Specific Plan Area will be prioritized. At a minimum, provide at least one bike rack near intersections where a bicycle facility crosses San Pablo Avenue. See T-P.6 Implement Mobility Hub features in the University Avenue Node and PR-S.9 Bicycle Racks.
27 City of Berkeley Transit-First Implementation Plan, 2023. Pp. 49-50. Accessed 20 May 2026
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T-P.17 Pedestrian Improvements
In alignment with the Pedestrian Plan (2020), additional improvements in the Specific Plan Area prioritize comfort, safety, and accessibility for pedestrians; the following priorities will be reflected and refined in the pending update to the Pedestrian Plan:
• P rovide c
rosswalk improvements, traffic calming, and
sidewalk upgrades along key walking corridors for
elementary and middle school students, such as Cedar
Street, Viginia Street, and Allston Way.
• Coordinate with any Alameda County Transportation
Commission Safe Routes to School Safety Assessment
plans along key walking routes that are within proximity to transit stops and commercial destinations.
• Provide safe, direct, and accessible pedestrian
connections to major employers in West Berkeley,
North Berkeley and Ashby BART stations, and the
Capitol Corridor rail station.
For sidewalk standards, see PR-S.1 Sidewalk Zone Standards and other policies and standards in the Sidewalk Space section.
For pedestrian crossing safety and improvements, see policies and standards in the Continue to Improve Intersections section.
For streetscape improvements to provide lighting, shading, and other amenities for pedestrians, see the Public Realm policies and standards in the Streetscape section.
T-P.18 Prioritize Connections with Surrounding Neighborhoods and Districts As development occurs in the Specific Plan Area, new residents will need safe and comfortable multimodal connections to parks, schools, grocery stores, and other uses in the surrounding community. These connections will be designed to accommodate users of all ages and abilities. The following priorities are based on public comment received during the Specific Plan planning process and expected needs of future residents. Future updates to the citywide Pedestrian Plan and Bicycle Plan can verify future residents’ needs :
• P rioritize pedestrian and bicycle improvements on s treets that provide access to schools and p
arks, as well as other routes that
typically serve students in the Specific Plan Area and adjacent neighborhoods to the east and west of San Pablo Avenue, including Longfellow Middle School at its temporary location just east of San Pablo Avenue, between Virginia Street and Francisco Street (The School is currently scheduled to return to original location to the east of Sacramento Street between Derby and Ward Streets in Summer 2027)
• Consider improvements that can serve the Berkeley Adult School and Berkeley Unified School District housing in the longer term. • Bike boulevards that cross San Pablo Avenue and provide parallel access in adjacent neighborhoods.
• Streets within ¼ or ½ mile of housing for elderly people. • Prioritize efforts in alignment with San Pablo Avenue improvement priorities discussed in T-P.14 Prioritizing Multimodal Safety Improvements.
Example Implementation
Pedestrian improvements resulting from
analysis of an intersection that is already
signalized, such as Allston Way, could
include extending the San Pablo Avenue
median noses toward crosswalks,
hardening centerlines on side-streets,
and/or installing pedestrian lighting at
corners. These changes would encourage
safe turning movements to and from San
Pablo Avenue and improve visibility of
pedestrians at night. Other intersections
along Allston Way between San Pablo
Avenue, Rosa Parks Elementary School and
Strawberry Creek Park could also be
assessed and improved to enhance
connections between these destinations
and the Specific Plan Area.
Public Input
During a public open house,
parents with a young child said
that they appreciated the
proximity of San Pablo Park to
their home, a mixed-use
apartment on San Pablo Avenue
near Ashby Avenue. However,
they had decided to move
because of the poor quality of the
pedestrian connection from their
apartment to the park.
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T-P.19 Monitor Changing Multimodal Needs and Conditions As multimodal activity and development increase within the Specific Plan Area and surrounding Study Area, the City will coordinate with local, county, regional, and state transportation agency partners to monitor travel patterns and evaluate the need for additional improvements to the connection network, including as needed:
• Co ordinate with Citywide p
riorities – The planned updates to the Vision Zero Action Plan and the Pedestrian Plan in 2026-2027 provide the opportunity to further assess and prioritize multimodal and pedestrian-focused improvements in the Specific Plan Area at a citywide policy level. The prioritization must reflect the Specific Plan Area being planned to accommodate a significant portion (about 20 percent) of new residential development in the city over the next eight or more years. • Regional traffic – Coordinate with Caltrans to monitor regional traffic, trips that pass -through Berkeley on Specific Plan Area streets and intersections with streets that have interchanges on I-80 to understand its impacts on multimodal safety and mobility.
• Transit service and use – Work with AC Transit to monitor travel time and reliability of bus service on streets and routes within the Specific Plan Area that provide connections from the Specific Plan Area to the surrounding communities and region. Periodically survey existing and potential transit riders as the population in the Specific Plan Area grows, to identify their travel needs. Use the results to modify bus service as appropriate to better align with changing demand.
• Vulnerable user needs – Monitor changes in land use, demographics, and traffic safety with a focus on vulnerable users, including children, seniors, and people with disabilities. For example, if new senior housing or services are developed, evaluate the surrounding streets for needed improvements and consider reprioritizing planned improvements so they are implemented sooner.
This monitoring and assessment will be coordinated with updates to the City’s modal plans and will also address multimodal intersections and priority improvement lists that relate to T-P.10 Intersection Improvements, T-P.11 Pedestrian Crossing Design, T-P.12 Minor Side-Street Intersection Improvements and T-P.14 Prioritizing Multimodal Safety Improvements.
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Public Realm Policies, Standards, and Projects
The public realm in the Specific Plan Area must satisfy a broad range of transportation, social, and economic needs. The policies, standards, and projects identified in this section are intended to create an inviting, safe, comfortable, and functional environment along San Pablo Avenue and throughout the Specific Plan Area. The public realm should enable people to move easily and safely along the street , whether access ing businesses, transit, home s, parked vehicles or bicycles , and also provi de welcoming spaces to meet a friend, exercise, and socialize .
Sidewalk Space
The sidewalk along San Pablo Avenue is typically 13 feet wide with variations in the use and condition of the sidewalk space, see Figures 5.11. In many areas, private landscaping and other encroachments reduce usable space, especially where pavement is damaged around tree wells. These constraints, combined with fast -moving traffic, were frequently raised by community members as safety and comfort concerns. Several mixed-use developments constructed after 2010 include setbacks that expand the sidewalk with additional landscaping or pavement.
Encouraging similar setbacks in future development presents one of the few opportunities to increase public space along San Pablo Avenue.
A well-designed sidewalk needs to provide enough space for safe, comfortable, and active use by all. The following policies and standards are intended to ensure that new development supports accessibility, safety, and vibrant pedestrian activity. The following policies and standards apply specifically to San Pablo Avenue and immediate side- streets, where noted. For guidance on other streets, refer to the City of Berkeley Pedestrian Plan (2020), Appendix B Engineering & Design Guidance.
Figure 5.11 Sidewalks on San Pablo Avenue, Berkeley
Left: Typical 13 foot sidewalk in front of 1411 San Pablo Avenue. Right: Sidewalk with additional setback i n front of1808 San Pablo Avenue
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PR-P.1 Sidewalk Zones
To serve the range of uses and infrastructure located within sidewalks, design standards define three zones across the sidewalk width: the Pedestrian Zone, the Amenity Zone, and the Frontage Zone ( see Figure 5.12). As San Pablo Avenue is a state highway, Caltrans has jurisdiction over the right -of-way, including sidewalks. The City is responsible for sidewalk maintenance and implements improvements to them in coordination with Caltrans.
The Berkeley Pedestrian Plan (2020)28 defines preferred widths for these zones for a Mixed-Use Residential Boulevard like San Pablo Avenue as follows:
Frontage Zone: 2 feet
Pedestrian Zone: 8 to 12 feet
Amenity Zone: 6 to 10 feet
Total Sidewalk: 16 to 24 feet
The existing sidewalks along San Pablo Avenue are typically 13 feet wide. This width is 3 feet narrower than the desired minimum as defined in the Pedestrian Plan. The sidewalk area cannot be widened within the existing public right of way.
To address this constraint, the Specific Plan standards define an approach that varies based on available sidewalk width to best meet the intentions of the Pedestrian Plan guidance (See Figures 5.13 and
5.14). While typical sidewalk width on San Pablo Avenue is 13 feet, there are some places where the sidewalk is 12 feet wide at the narrowest. The Specific Plan establishes a minimum required sidewalk width of 16 feet along San Pablo Avenue, University Avenue, Gilman Street, Cedar Avenue/Hopkins Street, Dwight Way and Ashby Avenue, which is achieved by widening the sidewalks where new development occurs.
In the Zoning Ordinance, the required minimum Ground Floor Frontage Setbacks work in tandem with this requirement.
PR-S.1 Sidewalk Zone Standards provides minimum widths for sidewalk zones along San Pablo Avenue. New development is incentivized to provide additional sidewalk space beyond the minimum 16 feet through PR-P.2 Sidewalk Incentive and standard LU-S.1 Sidewalk Expansion Incentive. See Table 5.1 for minimum zone width requirements.
PR-S.1 Sidewalk Zone Standards
Pedestrian Zone: This is the unobstructed portion of the sidewalk designated for pedestrian movement. The minimum required width for this zone varies and is based on the level of activity . Due to the existing right-of- way constraints within the Specific Plan Area, the Pedestrian Zone can be offset along the street to accommodate different sidewalk space needs in the Amenity and Frontage Zones.
Amenity Zone: This is the zone between the street and the Pedestrian Zone. It provides streetscape elements and buffers pedestrians from vehicle traffic. This zone includes the 6-inch curb at the edge of the sidewalk. The width varies as needed while ensuring the adjacent Pedestrian Zone meets minimum pedestrian clearance requirements. See Figures 5.13 and 5.14 for examples. The Amenity Zone can accommodate:
• Street tree wells (minimum 4 feet; see this chapter, Street Trees); • P ublic seating ( 5 to 6 fee
t where provided);
28 City of Berkeley. 2020 Pedestrian Plan – Appendix B, Adopted January 2021. Pp. 7-8.
Figure 5.12 Example of the Sidewalk Zones
Photo by CD+A
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• Other street furniture, such as bicycle racks (see PR-S.9 Bicycle Racks); • Bus stop amenities (see PR-P.10 Continue to Improve Bus Stops); • Street and pedestrian light poles, signal poles, utility boxes and panels, and other elements as needed (for more about lighting see PR-P.3 Improve Street Lighting for the Safety and Comfort of All Users)
Frontage Zone: This is the zone between the Pedestrian Zone and adjacent property and provides a buffer between people walking in the Pedestrian Zone and adjacent buildings . This zone can accommodate features such as outdoor seating, additional landscaping, or expanded general sidewalk space, see Figure 5.14 for examples. Improvements within the Frontage Zone must be installed and maintained by the property owner or adjacent business. • A maximum of 20 percent of the the Frontage Zone area may be permanent in the ground or raised landscaped areas. Pots and other above- ground planters that can be easily removed from the sidewalk are preferred for flexibility of use over time, and may cover a maximum of 30 percent of the Frontage Zone area.
Table 5.1 Sidewalk Zone Width Requirements
ZONE EXISTING NEW DEVELOPMENT
Pedestrian Zone Minimum 7 feet Minimum 8 feet
Amenity Zone No minimum Minimum 3.5 feet
Frontage Zone Minimum 6-inch [1] Minimum 4 feet
Notes:
[1] If an adjacent business applies for and receives an encroachment permit, the zone may extend up to 3 .5 feet into the sidewalk, provided this does not conflict with the required Pedestrian Zone width (see Figure 5.1 3).
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Figure 5.13 Sidewalk Zones Condition at Existing Buildings Left: Sidewalk Zones at tree well. Right: Sidewalk Zones with outdoor seating in the right way.
Figure 5.14 Sidewalk Zones Condition at New Developments Left: Outdoor seating in setback. Right: Sidewalk expansion.
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PR-P.2 Sidewalk Incentive
Widening the sidewalk improves pedestrian comfort, increases the distance between the Pedestrian Zone and roadway, and allows more space in the Amenity and Frontage Zones, resulting in more space for social and economic activity within the public realm. Some recent mixed-use residential developments incorporate front setbacks that effectively widen the sidewalk to enhance the pedestrian experience and contribute to a more attractive streetscape (see Figure 5.15). Widening the sidewalk beyond the minimum requirement is encouraged and supported by LU-S.1 Sidewalk Expansion Incentive.
Where developments provide an additional setback to widen the sidewalk, the additional space can be allocated to any of the sidewalk zones. For example, the Amenity Zone could be widened to allow for additional landscap ing and seating, or amenities for an adjacent bus stop or the Frontage Zone could be widened to a ccommodate public seating, outdoor dining, or additional landscape area.
PR-S.2 Reestablish Sidewalk Width
In several locations along San Pablo Avenue, sidewalks are less than 13 feet wide between the face of curb and landscape along adjacent property frontages. There are a limited number of locations where older buildings are less than 13 feet from face of curb, and these conditions will likely remain. If these locations lack an approved encroachment permit, the full sidewalk width should be reestablished over time as public improvements are made or building permit applications are filed. When adjacent properties are redeveloped the total minimum sidewalk width shall be 16 feet as required in PR-P.1 Sidewalk Zones - the combined width of the sidewalk within the public right of way (13 feet) and a ground floor frontage setback (3 feet).
Figure 5.15 Examples of Existing Mixed-Use Residential Developments with Sidewalk Setbacks Left: “Bloom Berkeley” 2747 San Pablo Avenue. Right: “The Jones” 2748 San Pablo Avenue.
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Streetscape
The Plan updates streetscape standards to improve San Pablo Avenue’s quality and identity of the public realm, and to support the economic and social vitality of the Specific Plan Area. These streetscape standards build upon and update the San Pablo Avenue Public Improvement Plan (2003) and include revised standards on pedestrian-scale lighting, street furnishing, bus stop improvements, medians, trees, and landscaping. Elements of the streetscape standards apply to side-streets within the Specific Plan Area, particularly to University Avenue.
Lighting
Improving pedestrian lighting along San Pablo Avenue was the most consistent need expressed by community members during the Specific Plan process. Existing streetlights are mostly designed to light the roadway and intersections, leaving sidewalks dimly lit, unless there is light spilling from storefronts, nearby buildings, or the occasional pedestrian fixture at a bus stop. This issue was raised in the 2004 San Pablo Avenue Public Improvement s Plan, which proposed new lighting standards. While some private developments have added pedestrian-scale lighting, no comprehensive public investment has yet been made. There are similar existing lighting conditions on other streets within the Specific Plan Area. The City has been preparing a citywide streetlighting standards document but it has not been fully drafted to date. The following recommendations should be considered as the citywide standards are finalized; some may be included as San Pablo Specific Plan Area requirements within the final citywide standards document.
PR-P.3 Improve Street Lighting for the Safety and Comfort of All Users The following policies and design recommendations build upon those of the 2004 San Pablo Avenue Public Improvement Plan.
Roadway and Pedestrian-Realm Lighting
To cost-effectively improve lighting within the Specific Plan Area, the City should implement the design approach defined in the San Pablo Public Improvement Plan, which calls for the maintenance and incremental improvement of existing roadway lighting. This approach includes attaching pedestrian pendent lights to the existing roadway poles and painting the roadway poles and fixtures the color defined below (see Figure 5.16). Depending on roadway pole spacing, one or two 12-foot poles with pedestrian pendant lights should be added between roadway poles . The Figure 5.16 Pedestrian Light
Source: San Pablo Avenue
Public Improvement Plan,
2004
Figure 5.17 Example of Pedestrian Scale Lighting
“Aquatic at Ashby” 3000 San Pablo Avenue. Photo by
CD+A
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pendant lights should extend over the sidewalk, positioned below the mature tree canopy to maximize the illumination of the public realm.
Pedestrian-scale Light Fixture: Selux, Beta Pendant LED with pole mount fitter or single arm as appropriate (see Figure 5.16).
Color: RAL 5008 dark slate blue
Lighting Analysis: Scoping, funding, and implementation of street improvement projects should include a lighting analysis of existing lighting conditions within the project area so that lighting improvements can be implemented as part of the project where feasible.
Lighting Levels: The recommended light levels in Table 5.2 below are informed by lighting standards from other Bay Area cities and can be revised through technical analysis and future development of citywide standards.
Table 5.2 Recommended Light Levels
LOCATION MINIMUM OPTIMUM1
Illuminance
(footcandles)
Uniformity
Ratio
(avg. to min.)
Illuminance
(footcandles)
Uniformity
Ratio
(avg. to min.)
San Pablo Avenue, Gilman Street,
University Avenue, and Ashby Avenue
1.5 3:1 2.5 2:1
Hopkins Street, Cedar Street, and
Dwight Way with C-SP frontage
1.1 4:1 1.8 3:1
Other streets in Specific Plan Area 0.8 6:1 1.2 4:1
Transit Areas2 2.0 3:1 3.0 2:1
Notes:
1. W hen installed or u
ntil end of maximum lighting with smart lighting systems.
2. On both sides of the street within one block of bus stops on San Pablo Avenue, Gilman Street, University Avenue, and Ashby Avenue, and within one-half block on both sides of the street for bus stops on other Specific Plan Area streets.
Smart Lighting Systems
The City should pursue grants and other funding to implement a smart lighting system on San Pablo Avenue and throughout the Specific Plan Area to maximize the utility and efficiency of the street and public realm lighting. Smart lighting systems allow for centralized control and management of lighting. Lighting levels can be programmed and automatically adjusted based on time of day, season, ambient light level sensors, motion detectors, and other relevant factors. These systems also monitor the condition and performance of lighting equipment, improving lighting management, energy efficiency, and maintenance.
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Landscaping
The mature street tree canopy and landscaped medians of San Pablo and University Avenues are defining features of these streets’ visual identity. The community views these as valued assets giving the streets their unique character (see Figure 5.17). However, the tree canopy is inconsistent, with noticeable gaps and maintenance issues affecting both trees and tree wells. Beyond the median landscaping, public landscaping is limited. In some locations, adjacent property owners and tenants maintain landscape along their frontages, which sometimes narrows the available sidewalk width.
Many of the existing gaps and maintenance issues were identified previously in the 2004 San Pablo Avenue Public Improvement Plan. Since then, some improvements have been made through private initiative or targeted City investments, but funding constraints have limited the extent of implementation. The Plan builds on these earlier recommendations to shape future public realm improvements.
Since 2004, landscape standards and requirements have evolved to reflect new priorities. These include new irrigation standards, and requirements for landscaping that captures and treats stormwater runoff from development and street projects. Current best practices emphasize water-efficient plant selection and species that can thrive under global climate change impacts, such as changes to local rainfall, higher average temperatures, and other factors. The Plan updates those outlined in the 2004 Improvement Plan to reflect these practices.
Additional policies, standards, and implementation strategies address the issues of capital, maintenance cost and responsibilities for landscaping within the Specific Plan Area.
PR-P.4 Enhance Street Tree Health and Expand Tree Canopy Existing street trees should be well maintained, and their positive impact on the public realm should be enhanced by planting additional trees and other landscaping. Establishing a consistent and continuous tree canopy along sidewalks and medians will strengthen the Specific Plan Area’s character, improve pedestrian comfort, help to reduce urban heat island effect, and address the community’s desire for a greener environment.
Tree Canopy: T he tree canopy should be as continuous as possible with mature tree canopies touching those of adjacent trees. Breaks will occur at roadway street light locations. Pedestrian-scale lighting is to be installed below the mature tree canopy to minimize conflicts.
Figure 5.18 Examples of Tree Canopy along San Pablo Avenue Left: Mature street trees grew to the same height as this four -story mixed-use building. Right: Median trees contribute to the canopy cover. Photos by CD+A
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Street tree planting will follow the City of Berkeley standards, including tree well modifications described below.
Tree wells: Tree wells should be as large as feasible and meet the minimum size standards for San Pablo Avenue (PR-S.3), University Avenue (PR-S.4), and other side-street trees(PR-S.5) below. These tree well standards supplement the citywide Tree Planting Location Standards as applied within the Specific Plan Area. Maximizing tree well size supports the long-term tree health and allows for additional plantings. The following is a summary of tree well surface treatments:
• Flexible porous pavement should be used along San Pablo Avenue, University Avenue within C-SP, at Designated Nodes, and within proximity to bus stops and other high pedestrian activity areas. This material allows water and oxygen to reach the soil and roots to provide for better tree health, while the pavement surface provides a level, walkable and ADA compliant surface (see Figure 5.19).
• Gravel mulch should be used in all other tree wells along with other plantings to enhance visual interest. See PR-S.6 Landscaping in Tree Wells and Planters, below for further discussion.
PR-S.3 San Pablo Avenue Tree Standards
Some of the most comfortable and engaging blocks along San Pablo Avenue feature large mature trees in the sidewalks and medians that form a full tree canopy across the street. This canopy creates a human scaled streetscape (see Figure 5.18). As taller mixed-use buildings are built along San Pablo Avenue, expanding the street tree canopy will soften the perceived scale of these structures, enhance the character of the public realm and provide meaningful urban greening.
Tree species: The predominant tree species along San Pablo Avenue are London Plane (Platanus x acerifolia, see Figure 5.20), Western Sycamore (Platanus racemosa), American Sweet Gum (Liquidambar
styraciflua), and Red Sunset Red Maple (Acer rubrum ‘Franksred’).
Other trees and smaller tree species are also present. However, several trees, particularly the American Sweet Gums, are in decline or poor condition. While Ginkgo biloba trees have also been planted, they tend to grow slowly and do not achieve the desired large and rounded form.
• London Plane trees should be prioritized for new plantings and when existing trees are replaced.
• To avoid a m
onoculture of tree species, different cultivars such
as ‘Exclamation’ and ‘Columbia’, which can grow wide and up to 50 feet tall can be planted. Western Sycamore is another alternative to support more diversity of tree species.
• In locations where these species are not suitable, as determined by the City forestry staff, a deciduous tree similar to the London Plane in height and canopy width should be selected. Red Maple trees are one example with appropriate cultivars and some Red Sunset Maples are already planted along San Pablo Avenue. • If tree size is the limiting factor, a tree that will reach the largest possible size given the specific location conditions should be selected, and tree spacing should be adjusted to maintain a more continuous tree canopy.
Figure 5.19 Flexible Porous
Pavement
Downtown Berkeley Tree Well.
Photo by CD+A
Figure 5.20 Trees along
Sidewalk
Sidewalk on San Pablo Avenue
South of University Avenue.
Photo by CD+A
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Trees in Medians: The size and placement of trees in San Pablo Avenue’s medians are governed by the Caltrans Highway Design Manual and other Caltrans Standards. The full-width medians along San Pablo Avenue are typically 13 feet wide. Caltrans Standards require a minimum clearance of five feet from median curb face to the tree trunk of a mature tree. The trees recommended above satisfy this requirement.
Tree Wells: The predominant size of existing tree wells along San Pablo Avenue is 3 x 3 feet and undersized for large canopy trees (see Figure 5.21). • A minimum size of 4 x 6 feet is required for new wells, with the longer dimension oriented parallel to the curb. (See PR-S.1 Sidewalk Zone Standards for minimum Amenity Zone width
requirements.)
• W here possible, a 4
x 8 feet tree well is desirable.
• The 4-foot minimum can be increased where the Amenity Zone width allows, consistent with Policy PR-S.1 Sidewalk Zone Standards. • See Policy PR-P.4 Enhance Tree Health and Expand Tree Canopy for tree well surface treatments and PR-S.6 Landscaping in Tree Wells and Planters for landscaping.
PR-S.4 University Avenue Tree Standards
On University Avenue within the Specific Plan Area, sidewalks are ten feet wide, narrower than those along San Pablo Avenue. The median between 10th Street and San Pablo Avenue contains an extended left-turn lane and only one tree.
Tree Species and Spacing: Existing trees along this section of University Avenue are of various species. Chinese Elm trees (Ulmus parvifolia, Ulmnus ‘Frontier’ and other varieties ) are most common, accompanied by Tulip trees (Liriodendron tulipifera) and Honey Locusts (Gleditsia triacanthos). Many trees are in poor health. Elm trees with a large mature vase-shaped form, such as Allee Elm (Ulmus parvifolia ‘Emer ll’), should be prioritized for replacement and new plantings. As tree health is evaluated, new trees should be added to create a continuous tree canopy with a spacing that allows mature tree canopies to touch those of adjacent trees.
Trees in Medians: The medians are planted with various California natives. Coast Live Oaks ( Quercus agrifolia) have performed the best, while California Buckeye (Aesculus californica) and Blue Blossom Ceanothus (Ceanothus thyrsiflorus) are in poorer condition. Narrow, medium-sized, drought-tolerant deciduous oaks, such as Chisos Red Oak (Quercus gravesii) or Spanish Oak (Quercus cerrioides) should be used as replacement species.
Tree Wells: The predominant size of existing tree wells along this part of University Avenue is three x three feet and undersized for large canopy trees.
• The minimum size of 4 x 6 feet is required for new wells, with the longer dimension oriented parallel to the curb.
• W here possible, a 4
x 8 feet tree well is desirable.
• Given the narrower typically 10-foot sidewalk width along University Avenue the tree wells should use flexible porous pavement in order to provide the desired 6- foot minimum width for the sidewalk’s Pedestrian Zone that meets universal access design considerations. • See Policy PR-P.4 Enhance Tree Health and Expand Tree Canopy for more details about tree well surface treatments and PR-S.6 Landscaping in tree wells and planters for landscaping.
PR-S.5 Other Side-Street Trees
A wide variety of tree species are planted on streets intersecting San Pablo Avenue. The following design standards apply to those portions of the intersecting streets, except for University Avenue, within the Specific Plan Area. For Figure 5.21 Tree on San Pablo
Avenue
Overgrowing a 3-Foot by 3-Foot
Tree Well. Photo by CD+A
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University Avenue, see PR-S.4 University Avenue Tree Standards above.
Tree Species Should match the following type and spacing, except where deemed infeasible under the citywide Tree Planting Location Standards:
• Outside of Designated Nodes, side-street trees adjacent to properties that front or side onto San Pablo Avenue should match the species planted on the adjoining block face of San Pablo Avenue.
• I n Designated Nodes, street trees should match the adjacent San Pablo Avenue s pecies for the
length of the sidewalk that is within the Specific Plan Area. • If San Pablo Avenue tree species are infeasible, trees should match the predominant species already established along the side-street.
Tree Wells: Sidewalk widths vary alongside-streets, resulting in different tree well sizes. • A minimum tree well size of 4 x 6 feet, as defined for San Pablo Avenue, is preferred. • W here si
dewalks widths are too narrow to provide both a 6-foot-wide Pedestrian Zone with a 4- foot-wide tree well, the tree wells width is reduced in size or surfaced with flexible porous pavement in compliance with the citywide Tree Planting Location Standards. This pavement allows the Pedestrian Zone to overlap the tree well.
• PR-P.4 Enhance Tree Health and Expand Tree Canopy for more details about tree well materials and PR-S.6 Landscaping in tree wells and planters for landscaping.
PR-P.5 Enhance and Expand Other Landscaping
Beyond street trees, the landscape character of the Specific Plan Area is defined by other plantings in the medians and some street tree wells (see Figure 5.22), and other small areas of plantings along the sidewalk. As the Plan is implemented, additional opportunities for landscaping arise in new curb extensions, partial and full side-street plazas (see PR-P.15 Create Side-Street Plazas), planters in the sidewalk Amenities and Frontage Zones, and in privately-owned public open spaces (see PR-P.19 Privately Owned Public Open Spaces).
In the future, should a community benefit or business improvement district form within a portion of the Specific Plan Area, the organization should negotiate an agreement with the City to improve and maintain landscaping within the sidewalk, median, and other landscaped areas within the public right -of-way. See ED-P.5 Study Feasibility of Forming a Business Improvement District (BID ) or Community Benefit District (CBD).
Figure 5.22 Additional
Landscape in Large Tree Well
On San Pablo Avenue. Photo:
By CD+A
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PR-S.6 Landscaping in Tree Wells and Planters
Where tree wells do not need to be filled with flexible porous pavement, tree wells can be planted to create a distinct identity for locations along San Pablo Avenue (see Figure 5.22).
Plantings in tree w
ells, except for the tree itself, will not be maintained by the City. Tree wells with landscape planting need to be maintained by adjacent property owners, residents, businesses, tenants, or a future c ommunity benefit or business improvement district.
Planting of a tree well must comply with the Specific Plan standards and the requirements of the Berkeley Municipal Code Chapter 12.44 Trees and Shrubs.
Plantings cannot impede public use of other sidewalk areas, such as adjacent Pedestrian and Amenity Zones.
Landscaping in medians
Full-width and narrow width landscaped medians are generally planted with grass and not irrigated along San Pablo Avenue. Narrow medians next to left turn lanes vary in conditions with some narrow medians having hedges, which were once a dominant treatment, but these have not been consistently replaced as they die or become damaged. Where narrow medians next to left-turn lanes have been modified, they have typically been paved with concrete.
Although the grass and tree treatment in the medians positively impact the character of San Pablo Avenue, during dryer times of the year the appearance of the grass deteriorates (see Figure 5.23). Maintaining green grass requires regular irrigation which is not environmentally appropriate, and existing irrigation systems are not currently in use. In addition, the grass requires regular mowing and other maintenance. A more sustainable and climate-resilient approach involves replacing grass over time with a low- water drought-tolerant landscape treatment that can adapt to climate change and not require irrigation after the plants are established.
PR-P.6 Long-term Landscaped Median Design
In the long-term, landscape medians along San Pablo Avenue should be aesthetically pleasing, low- maintenance, and free of irrigation. The design should include a ground cover of crushed rock or wood mulch, with trees and low - water, drought-tolerant, low growing shrubs, grasses, succulents, and other plantings. Suitable species include mat rush (Lomandra species), California yarrow (Achillea millefolium), aloe (Aloe species), finger aloe (Cotyledon orbiculata var. oblonga ‘Flavida’), and Majorcan germander (teucrium cosonii). Berkeley’s Parks, Recreation and Waterfront Department will take a lead role in determining which plant species are most appropriate for long -term landscaping in medians.
PR-P.7 Near-term Opportunities for Re-landscaping Medians When opportunities arise through transportation improvement projects, the City should replant sections of medians using landscape design treatments that reflect the long-term landscaped median design vision. These demonstration segments can help build support and establish precedent for larger future improvement projects.
Figure 5.23 Median Planting
On San Pablo Avenue. Photo
by CD+A
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Green Infrastructure
Transportation improvements and other construction within the Specific Plan Area that meet specific criteria must include green infrastructure consistent with the Caltrans NPDES Order 2022-0033-DWQ Stormwater Permit when within the Caltrans right of way of San Pablo Avenue and the Municipal R egional Stormwater NPDES Permit Order No.
R2-2022-0018 (MRP 3.0) when in City right of way or private property. Green infrastructure is a sustainable landscape and civil engineering improvement that captures, slows, and treats stormwater runoff with a primary goal of reducing pollutants entering the San Francisco Bay.29 Green infrastructure systems support Berkeley’s climate change and sustainability goals. The City’s Green Infrastructure Plan (2019) includes guidelines for implementation of green infrastructure in Berkeley and should be referred to during the planning and design phases of both streetscape improvement and private development projects in the Specific Plan Area.
PR-P.8 Green Infrastructure in Public Projects
All publicly funded projects must meet the requirements of the current MRP and/or the Caltrans NPDES permit as applicable. In addition to fulfilling the Specific Plan’s public realm policies and standards, green infrastructure should contribute positively to pedestrian comfort and safety.
Design:
• Approaches include permeable or porous pavement materials to maintain required sidewalk widths, and use of tree wells, and can be integrated into side-street curb extensions and side- street plazas if Caltrans and the City reach a maintenance agreement for specific improvements.
• S ee T-P.12 Minor Side-Street Intersection Improvements, and PR-P.14 Create Side-Street Plazas for design related p
olicies and standards.
PR-P.9 Green Infrastructure in Private Development
Private development projects are required to meet the requirements of the current MRP. The Specific Plan supports and provides flexibility for private development to fund and integrate public spaces that serve dual purposes for stormwater management and the community.
Green infrastructure that serves to treat private property stormwater can be integrated into the public realm and can be included in side-street curb extensions, see T-P.12 Minor Side-Street Intersection Improvements, or within PR-P.2 Sidewalk Easements, PR-P.18 Privately Owned Public Open Spaces, PR-P.15 Create Side-Street Plazas for design related policies and standards
When a development constructs green infrastructure in the public right -of-way the property owner must enter into a maintenance agreement with the City. Then the improvement may be used towards the project’s stormwater compliance requirements with the concurrence of the Regional Water Quality Control Board .
29 San Francisco Bay Regional Water Quality Control Board, Stormwater webpage , accessed June 30, 2025.
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Street Furniture
PR-S.7 Public Seating
Public seating will be installed within the Amenity Zone of the sidewalk or integrated into curb extensions, see T-P.12 Minor Side-Street Intersection Improvements and PR-P.14 Create Side- Street Plazas. Seating must not encroach into the Pedestrian Zone, which will remain clear as required in PR-S.1 Sidewalk Zone Standards. Public seating must provide wheelchair- accessible space per the requirements of current Public Rights- of-Way Accessibility Guidelines (PROWAG). These standards are in addition to, not a replacement of, Berkeley Municipal Code
14.48.150 Sidewalk Seating, Benches and Planters.
Placement: Benches in the Furniture Zone should face away from the street. Alternatively, there may be
pairs of short benches placed perpendicular to
the street that face each other to allow for a
small group gatherings.
Style:
• Benches provided and maintained by the City
will be “Landscape Forms Scarborough” bench
in black. This bench model is available in four
standard lengths in both back or backless
versions. These benches have been used in the
Shattuck Avenue reconstruction project in
Downtown Berkeley and other improvements in
Berkeley. Using the same model on San Pablo
Avenue will streamline City maintenance.
• Benches or other public seating installed and
maintained by adjacent property owner or
businesses may bea c ustom design or an
alternative style. All seating and street furniture
must be approved by the City through their
sidewalk seating application process.
30 The
applicant is responsible for installation and
ongoing maintenance. Privately installed public
seating must satisfy the requirements and
guidance of PROWAG and other ADA
requirements.
• Seating in curb extensions and side-street
plazas can be integrated into planter walls that
are part of green infrastructure systems, or
consist of movable tables and chairs or other
context-sensitive design.
30 City of Berkeley. Outdoor Commerce, Sidewalk Seating, and Parklets .
Seating Types
Developments along San Pablo Avenue have
introduced public-facing elements such as
benches or seating areas within the ground
floor setbacks. While located on private
property, these spaces are accessible to the
public.
Figure 5.24 Seating Options
Top: Seating Wall at 3000 San Pablo Avenue,
B
erkeley. Bottom: Bench variations of
Landscape Forms Scarborough bench in
Downtown Berkeley. Photos by CD+A
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PR-S.8 Trash and Recycling Receptacles
City-standard trash and recycling receptacles will be placed in the sidewalk Amenity Zone or integrated into curb extensions on side-streets and side-street plazas.
Style: The color and design of public trash and recycling receptacles must follow the citywide standard and be Forms + Surfaces “Modified Urban Renaissance” (Figure 5.25) model with upper integrated recycler module in dark green color or approved equal.
• PR-P.10 Privately Owned Public Open Spaces will have adequate receptacles and can be of a different manufacture and model as they will be maintained by the property owner.
Placement:
• In Designated Nodes, where foot traffic and stores are more frequent, two (2) city-standard receptacles should be installed per intersection, on opposite sides of the street.
• B etween Designated Nodes, one c
ity-standard receptable should be
installed per block face. Consider placement at bus stops or locations where trash otherwise accumulates.
• Businesses, property owners, and future community benefit or business improvement districts may place and maintain trash and recycling recept acles in the public right of way if they have a maintenance agreement with the City.
PR-S.9 Bicycle Racks
Bicycle racks along streets in the Specific Plan Area will be placed in the Amenity Zone and meet the clearance and space standards outlined in the Berkeley Bicycle Plan, Appendix F.31 Style: All racks in the right-of-way must be a city-approved design, such as Figure
5.26. The color is black or galvanized as in other parts of the City.
Placement:
• The City offers a bike rack installation program to improve bicycle access to local businesses and destinations. Through this program, the City installs bike racks on sidewalks in commercial areas at no cost to property or business owners. Business owners and community members can request new bike racks in areas where demand exists, or existing bicycle parking is insufficient. The application procedures are av ailable
on the City’s website, under the section Bike Parking.
• Install bike racks at San Pablo Avenue intersections with bicycle facilities. Where a bicycle facility crosses a Major Street or a Collector Street in a Designated Node, City staff will evaluate expected use of the facility and implement a bicycle parking corral when appropriate. See T- P.16 Bicycle Improvements.
• Id
entify funding for installing bicycle parking corrals in 20 -f oot daylighting setback area of
parking lanes, prioritizing locations in Designated Nodes and locations where streets with bicycle facilities intersect with San Pablo Avenue; corrals would be placed on San Pablo Avenue or the crossing street. See also T-P.6 Implement Mobility Hub features in the University Avenue Node regarding priority to install a bike corrals proximate to Addison Street Bike Boulevard.
31 City of Berkeley. Berkeley Bicycle Plan, Appendix F Facility Design Toolbox . Adopted 2017, p. F-106 Figure 5.25 Trash
Receptacle
Photo by CD+A
Figure 5.26 Bicycle
Rack
Photo by CD+A
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San Pablo Avenue Specific Plan Final Draft 97
• Private development projects may install bike racks in the public right of way adjacent to their developments with approval of the Public Works Department.
PR-S.10 Raised Planters
Raised planters can enhance the streetscape by adding greenery and visual interest, providing a buffer from the roadway, and expressing community care for public space.
Placement:
• Raised planters as shown in Figure 5.27 may be used in the Frontage Zone, (see PR-S.1 Sidewalk Zone Standards). They cannot be used in the Amenity Zone, with exception to curb extensions, plazas, side-street plazas, and privately owned public open spaces, with planters edges offering opportunities for informal seating.
• F reestanding planter pots a
llow for flexible placement as single
installations or groupings.
• All planters must be stable and secure to prevent tipping or shifting.
• Planters cannot encroach into the Pedestrian Zone and must maintain the sidewalk clearances specified in PR-S.1 Sidewalk Zone Standards.
• Planters have to maintain required clearances from the face of the curb.
Design:
• Planters and low walls cannot exceed 30 inches in height from sidewalk grade, and the combined height of planter and landscaping cannot exceed 36 inches above the sidewalk when within 20 feet of an intersection or 10 feet of a driveway to provide line of sight between pedestrians and vehicle drivers.
PR-P.10 Continue to Improve Bus Stops
To support use of bus transit along San Pablo Avenue, Berkeley and its agency partners, AC Transit and Alameda CTC, have been planning and building bus stop improvements. Improvements include new shelters, benches, lighting, and other improvements to adjacent intersections and crosswalks. Within the Specific Plan Area, bus stop improvements will be made as part of the San Pablo Avenue Safety Enhancement project. The improvements are focused on stops that are used by limited-stop bus routes. These efforts are achieving the goals of Berkeley’s Transit-First Policy Implementation Plan (2022) and AC Transit’s Bus Stop Furniture Guidelines (September 2022). In addition, improvements made in the Specific Plan Area have to treat ADA requirements as the minimum standards for accessibility and strive to achieve universal design for users with a broad range of abilities. (see PR-P.13 Design for People of All Ages and Abilities).
Berkeley and its a
gency partners should continue to identify
improvements beyond those p
rovided through the San Pablo Avenue
Safety Enhancement project. This should include seeking funding to make improvements to bus stops from Heinz Street to the south along San Pablo Avenue that are compatible with potential Figure 5.27 Planter Pots
in Front of 1443 San Pablo
Avenue. Picture by CD+A,
2023
Figure 5.28 Bus Stop at the San Pablo Avenue
and Dwight Way Intersection
Photo by CD+A, 2025
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improvement that could be made by the Alameda CTC San Pablo Avenue Bus Lanes and Bike Lanes Project, rather than waiting for the Alameda CTC project to improve these bus stops . Other bus stops in the Specific Plan Area along San Pablo Avenue and those serving bus routes on crossing streets should also be assessed and improved as funding is identified.
Prioritization of bus stops to receive improvements should consider existing ridership and potential ridership growth based on nearby destinations and development that brings new residents to the area, as well as the current condition or absence of bus stop improvements.
Improvements:
• Benches and other seating should be prioritized when improving bus stops as part of the universal design approach to Specific Plan Area improvements. • Ot her potential improvements include installation of shelters, pedestrian lighting, maps, signage, emergency call systems, and street tree plantings for additional shade. • Ot
her features and fixtures identified in Berkeley’s Transit-First Policy Implementation Plan (2022) and AC Transit’s Bus Stop Furniture Guidelines (September 2022) should also be considered.
Berkeley and AC Transit should collaborate to identify and determine bus shelter models that provide weather protection and a safe and comfortable environment for waiting transit riders at bus stops while being practical to maintain.
PR-P.11 Other Street Furnishings
Additional public street furnishings, such as public restrooms or information kiosks, will be installed in the right-of- way where an identified need exists. These furnishings must be designed and located in accordance with the PR-P.1 Sidewalk Zones and all other applicable standards and policies in this document.
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Wayfinding, Placemaking and Public Art
PR-P.12 Facilitate Wayfinding and Placemaking Programs As development occurs in the Specific Plan Area and pedestrian and business activity grows implementing coordinated signage, banners, and public art can support navigat ing the area , reinforce local identities and highlight distinct places in the Specific Plan Area .
• The C ity’s Office of Economic Development sh
ould work with existing business organizations or clusters, such as the Berkeley International Marketplace to facilitate installation of signs, banners, public art, and similar elements to support placemaking efforts, see Policy ED-P.4 Support and Expand Existing Business Clusters. • Developers and businesses are encouraged to collaborate with artists, museums, and galleries to provide storefront display areas for art and craft installations. This strategy can provide privacy for businesses, and create visual interest even when a storefront is vacant. (See San Pablo Avenue Design Standards Document:
Ground-Floor Design, for requirements).
• Wayfinding opportunities that reflect distinct character areas for business clusters or Designated Nodes should be identified, and coordinated branded approaches across San Pablo Avenue in Berkeley should be explored. In the near-term, these could be funded by a combination of the City and local business groups . • Public art should be incorporated into wayfinding design to reflect local character, history, and destinations. • Once community benefit and/or business improvement district(s) form in the Specific Plan Area, these organizations should take on a larger role in managing and expanding wayfinding efforts. See Policy ED-P.5 Study the Feasibility of Forming a Business Improvement District (BID ) or Community Benefit District (CBD).
Examples of Art in the Public Realm
Wall art and window displays are two approaches to activating building facades. The façade of Ashkenaz at 1317 San Pablo Avenue features a business-funded mural, demonstrating how individual businesses can contribute to the visual character of the street. The Milvia Window Display at 2100 Milvia Street offers a different model, hosting rotating exhibitions funded through the Kala Art Institute, while the space behind the display functions as a private office, which illustrates how activation can be achieved without compromising the interior use of a space.
Figure 5.29 Examples of Visible Art in the Public Realm Left: A shkenaz at 1317 San Pablo Avenue, Berkeley. Photo by CD+A, 2023. Right: 2100 Milvia Street, Berkeley. Photo from Kala Institute, k
ala.org. Accessed April 2026
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PR-P.13 Facilitate Installation of Public Art that Benefits the Public Realm San Pablo Avenue currently features a range of informal and formal public art that create or reflect historic, demographic or commercial identities for Specific Plan Area segments. Community input expressed support for more public art to enrich the public realm and strengthen the Specific Plan Area ’s sense of place. For design standards that apply within the Specific Plan Area, see the San Pablo Avenue Design Standards Document, Public Art.
Public art should be integrated into public spaces throughout the Specific Plan Area to enhance the pedestrian experience and reflect the community’s character and culture.
The process for incorporating art in public spaces is governed by Berkeley Municipal Code Chapter 6.13 Visual Art in Public Places , and is administered by the Civic Art Commission and Civic Arts Coordinator.
Opportunities for public installations include public infrastructure projects (as funding allows), existing medians and sidewalks (with specific public art funding), and within the public right of way through partnerships with adjacent property owners, businesses, and community development or business improvement districts (see ED -P.5 Study Feasibility and Scope of Forming a Business Improvement District (BID) or Community Benefit District (CBD)).
Public art proposed within San Pablo Avenue’s right-of-way, which includes medians, street murals, or sidewalks, requires review and approval by Caltrans. This includes obtaining an encroachment permit, and a maintenance agreement between the City and Caltrans. This process adds time and cost.
Future community benefit or business improvement district(s) are also encouraged to integrate art into their marketing and identity programs.
This could include art installations in the public realm with maintenance agreements with the City.
Cultural programming and community art events should be promoted along the street by supporting flexible gathering and event spaces that can host a wide range of activities. Such events should complement existing programming, expand the diversity of event types, and attract both local residents and visitors. Cultural events can help ac tivate the public realm, strengthen its identity, and foster a more vibrant and inclusive public realm.
Examples of public art
installations in Berkeley
Temporary and permanent art
installations demonstrate the
potential for integrating public art into
the Specific Plan Area's streetscape.
A temporary installation produced
through the Berkeley Art Project on
Heinz Street creates visual interest on
the sidewalk. At the intersection of
Martin Luther King Jr. Way and
Addison Street, the permanent
sculpture shows how commissioned
public art can serve as a landmark.
Figure 5.30 Public Art Installations
Top: Temporary art installation by
Amrita Singhal. Photo by CD+A, 2023.
Bottom: Sculpture Delivered, Mable’s
Promissory Note; 2024 by Milred
Howard. Photo by Ethan Kaplan
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Universal Design
PR-P.14 Design for People of All Ages and Abilities
The Specific Plan Area’s public realm has to be designed, implemented, maintained, and operated to serve people of all ages, sizes, and abilities. Universal design approaches appl y to promote inclusive access to streets, sidewalks, open spaces, and transit.
At a minimum, all improvements must comply with the Federal Public Right-of-Way Accessibility Guidelines (PROWAG) and Americans with Disabilities Act (ADA) regulations.
The Specific Plan prioritizes accessibility improvements that are proximate to senior housing and other uses frequently visited by individuals with a range of abilities.
When public realm improvements are being programmed and designed, the City, developer, and/or other project sponsors should consult with accessibility advocates and organizations serving people with access and functional needs to guide priorities and ensure inclusive design.
Elements Universal design strategies beyond minimum requirements include:
• Accessible Pedestrian Signals (APS)32, Leading Pedestrian Interval (LPIs)33 and extended pedestrian signal phases to maximize crossing time.
• U se of tactile d
etectable warning surfaces, in addition to typical truncated dome panels at crosswalks. These additional warning surfaces should be used when blind/low -vision people may experience unusual circulation conditions in the public right-of-way. Use of these materials should be discussed in consultation with accessibility stakeholders during the design of public realm improvements in the public realm.
• Use of tactile detectable surfaces to guide circulation is an evolving practice in the United States and designers of improvements in Berkeley and City staff who review them need to stay informed about current best practices and design guidance from the state, MTC, transit agencies, and adjacent jurisdictions.
• Passenger loading zones and accessible parking near senior and mixed-use housing meet and, where possible, exceed PROWAG and ADA regulations.
32 City of Berkeley. Pedestrian Plan Appendix B: Toolbox of Pedestrian Improvements. Adopted 2020, p. 16 33 City of Berkeley. Pedestrian Plan Appendix B: Toolbox of Pedestrian Improvements. Adopted 2020, p. 17
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Public Realm Expansion and Improvements
As noted in Appendix A: Key Existing Conditions, the Specific Plan Area lacks public parks or plazas34, and the streets and sidewalks are the only public spaces at the time of Specific Plan adoption. As new homes are built in the Specific Plan Area, demand on the public realm will grow, since it functions as the primary social space for the people living, working and shopping in the area.
During community outreach, residents and business owners expressed a strong desire for shared spaces that bring people together, support street-level business and community activity. In addition to opportunities for sidewalk widening (see PR-P.2 Sidewalk Easements), the Specific Plan encourages a variety of new public spaces, including:
• Corner plazas at University Avenue to highlight the intersection as a major entry point into Berkeley from the highway . • Plazas in Designated Nodes and near (rapid) transit stops. • Adaptive reuse of parking lots as outdoor spaces that allow for community interaction.
• Mini-plazas in the public right-of-way created through full or partial side-street closures.
• Flexible spaces between sidewalks and adjacent buildings that can be used for seating, planting, and gathering.
• Side-street parklets and curb extensions used for public space and/or outdoor dining.
The following policies and standards offer strategies to expand the public realm and support the development of new public spaces. In the near term, improvements can be made through pavement -to- park initiatives like adaptive reuse of parking lots, parklets and side- street entry closures. Over the long term, opportunities include curb extensions and side-street plazas, public open space and privately owned public open spaces (POPOS) mini-parks, and mid- block pedestrian passages can provide lasting enhancements to the public realm.
San Pablo Avenue’s designation as a state highway limits opportunities for its closure for street festivals. For special events or any activity within the State highway right-of-way an Encroachment Permit
35 with an extensive approval process is
required. However, events and neighborhood gatherings have taken place on side-streets, see sidebar.
34 Codornices Creek Park is a small property at the northern end of the Specific Plan Area that has not been fully developed as of the adoption of the Plan and it is not directly accessible from San Pablo Avenue. 35 California Department of Transportation. Local Development Review and Encroachment Permit Process. 2025 Festival Street Closure
Until the end of 2024, the non-profit cultural
organization Brasarte, which is dedicated to
preserving Brazilian arts and culture in the Bay
Area, was located on San Pablo Avenue at the
Casa de la Cultura. Each year, for their
celebration of SF Bay Brazilian Day & Lavagem
Festival, they organized a street closure
adjacent to their building, closing a block of
Hearst Street and activating an adjacent
parking lot for festivities.
Figure 5.31 SF Bay Brazilian Day & Lavagem
Festival in 2023
Photos by CD+A, Sept. 2023
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Adaptive Reuse of Parking Lots
Along 4th St in Long Beach, CA, a placemaking study created a framework for opportunities to activate the pedestrian realm. An idea of “bulb-ins” created pilot plaza spaces at the edge of parking lots that fronted the sidewalk. There is one plaza at the corner of a parking lot that is permanent; see Figure 5.32, The bulb-in concept provides an idea of the types of spaces and activation that are possible with underutilized parcels and parking lots along a commercial corridor.
For a number of years, the Bixby Knolls Business Improvement Association has hosted ‘Concerts in the Park(in Lot)’ which is a free series of early evening concerts/dances that take place in a portion of a commercial shopping center’s parking lot people can get food from surrounding restaurants and enjoy the concerts. These events are similar to performances in the Berkeley Downtown Plaza on Shattuck Avenue
Figure 5.32 Examples of Adaptive Reuse of Parking Lots
Left: Parking Lot “bulb-in” open space, 4th Street, Long Beach. Right: Bixby Knolls Business Improvement Association, 2023. Photo by bixbyknollsinfo.com.
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PR-P.15 Create Side-Street Plazas
The City will explore opportunities to convert minor streets into small side-street plazas by limiting or removing vehicle access between San Pablo Avenue and these streets. These closures create room for public gathering spaces, urban greening and green infrastructure improvements. Potential locations include side-streets that extend only a few blocks east or west from San Pablo Avenue, or streets that intersect where San Pablo Avenue does not have a vehicular median break. See Figure 5.33.
Goal: Side-street plazas create true public space that is accessible, welcoming, and usable by all members of the public.
Access: The plazas can be designed to close vehicle access entirely or only allow one-way entry or exit. To ensure adequate emergency access, the Fire Department shall be included as a principal and early partner on location selection and design, and final design will be subject to approval by the Fire Department, Public Works, and Caltrans as appropriate. Access requirements must be determined in coordination with the City departments and must allow emergency vehicle and refuse 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. Limited access for large vehicles such as moving vans can be accommodated as needed. Site and use specific conditions will be assessed during the scoping and design of each plaza, such as side-street commercial loading, and ability of parallel streets to provide for vehicle access to the uses on the side-street. The design also must provide necessary property access along the side-streets.
Design: Side-street plaza design responds to the needs and character of the surrounding neighborhood and community. Plazas should incorporate lighting, furnishings, play elements, landscaping, surface treatments, and public art or community -generated art to create an active, comfortable, and visually engaging space. • Edge treatments shall be placed along the perimeter of the plaza to clearly define the public space from vehicular and bicycle access and to provide a protective buffer for plaza users. These elements should be tall enough to be visible to motorists, yet not so large that pedestrians are obscured or otherwise unable to see motorists.
• The s
pace m
ust be designed to comply with PR-P.14 Design
for People of All Ages and Abilities.
In the near-term, the City can partner with non-profits, businesses and neighborhood advocacy groups, and other community
organizations to identify pilot locations for quick-build plaza projects. These should be prioritized where local community partners will use, program, or activate the plaza space. • Quick-build treatments can include barriers (e.g., jersey barriers, stone blocks or planters), pavement markings
identifying the plaza space with striping and paint, and tables with seating of different types. Also, boulders, logs, or small structures can be installed to engage children in informal play.
Figure 5.33 Map of Potential
Side-Street Plaza Locations
Source: City of Berkeley, CD+A
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San Pablo Avenue Specific Plan Final Draft 105
In the long-term, when funding is available and where
community support in activating a side-street plaza is
strong, permanent plaza improvements should be pursued.
A reconstruction of the street space provides additional opportunities for improving and activating the plaza.
Permanent designs must incorporate durable, high-quality materials, and include any of the following amenities:
• paving that smoothly transitions with sidewalk grade; • permanent seating and tables, or moveable seating and tables if managed by a future business improvement
district or adjancent business or property manager;
• landscaped areas including trees;
• edge definition with seat walls, planters, and/or safety features, such as bollards;
• pedestrian scale lighting;
• elements that engage people in activities, such as play and exercise elements for children and adults; and
• other elements suggested by community members during the design process .
Implementation:
There are several ways that a side-street plaza could be created, operated, and maintained. • City-Community Partnership: Local groups of residents, businesses, and/or property owners may reach out to the City and work with the Office of Economic Development (OED) and the Public Works Department to identify funding for design, approval, and construction. The community can take an active role in ongoing maintainance and programming of the plaza. • Future community benefit or business improvement district: They will take a leadership role and partner with the City and adjacent community, to manage and maintain the plaza, under a Figure 5.34 Sunset Triangle Quick-
Build Plaza
Photo by LADOT
Figure 5.35 Street Closed to Vehicles and Converted into a Plaza With Bicycle and Emergency Vehicle Pass-Through, Vancouver Street/ McClure Street, Victoria, BC. Image from Google maps, Nov. 2022.
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formal agreement with the City, similar to how the Downtown BART Plaza or the plaza space in Strawberry Creek Park is managed (see ED-4. Study Feasibility of Forming a Business Improvement District or Community Benefit District (CBD)). • Adjacent Development: A property owner or property manager of a new residential or mixed- use building adjacent to the plaza may design and build a side-street plaza to receive development credits (see LU-S.3 Side-Street Plaza Incentive). • Infrastructure Improvement Projects: Future infrastructure improvement projects should include side-street plazas as a strategy for traffic calming,
Parklets and Curb Extension Common Spaces
Though smaller in scale than side-street plazas, parklets and curb extensions offer opportunities to create community gathering areas, outdoor commerce areas and streetscape landscaping within the public right-of-way.
Opportunities for these types of spaces include smaller parklets along the commercial frontages on the southside of Dwight Way on either side of San Pablo Avenue, as well as a larger potential gathering space on the east side of San Pablo Avenue at the Hopkins Street and Cedar Street merge, where intersection reconfiguration could create a more usable and inviting public area.
PR-P.16 Support Use and Creation of Parklets
Parklets are allowed on San Pablo Avenue but must follow strict design criteria set by the Caltrans Encroachment Permits Manual. They must also be publicly accessible, be applied for and maintained by the City, and cannot serve as semi-private spaces, such as excusive outdoor seating for restaurants or cafés. Permits for parklets are limited to one year, and extensions are not guaranteed, adding to the uncertainty of long-term use.36 Side-streets, including Gilman Street, Cedar/Hopkings Street, University Avenue, Dwight Way, and Ashby Avenue, however, provide opportunities for parklets to support outdoor seating and dining for nearby businesses. This approach can enhance corner locations, making them more appealing for restaurants and cafés, thereby boosting business activity and economic vitality while providing the public with valued common space. Preferred locations include Designated Nodes and areas prioritized for pedestrian safety improvements (see Figure 5.7). Parklets could also be used to pilot a side-street plaza (see PR-P.15).
The City administers a parklet program37, and reviews applications for compliance with standards such as location, design, and use, which are codified in Berkeley Municipal Code Sections 14.48.190 Parklets and 14.48.150 Sidewalk seating, benches, and planters.
Incentive: To support business activity within the Specific Plan Area, the yearly Outdoor Commerce Use Fee will be waived for businesses using free parking spaces and reduced by 75 percent for those using paid parking spaces upon application. Evaluate incentive after first three years of implementation and revise as appropriate.
PR-P.17 Design and Use of Curb Extensions
Curb extensions (also called bulb-outs) extend the sidewalk into the parking lane to narrow the roadway , shorten pedestrian crossing distances, and slow turning vehicles.
Placement: New curb extensions will primarily be located on side-street corners along San Pablo or University Avenues and extend only into the side-street parking lane in order to preserve flexibility for potential multimodal improvements to these streets.
36 California Department of Transportation. Encroachment Permits Manual. Section 500.3I, "Parklets," July 2021, pp. 5-12 37 City of Berkeley, Doing Business, Operating Berkeley, Outdoor Commerce Sidewalk Seating and Parklets. Outdoor Commerce, Sidewalk Seating, and Parklets | City of Berkeley
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The Alameda CTC Safety Enhancements project designs bus curb extensions at select locations on San Pablo Avenue. For these locations and future bus stop curb extension projects, the City should assess whether added space can accommodate outdoor
seating or other placemaking efforts when a curb extension primarily enhances transit service. This is similar to the “buslet” concept that has been implemented in two
locations on Solano Avenue in Albany.
Potential curb extensions should be evaluated for feasibility in terms of private vehicle, truck, and emergency vehicle turn movements.
Use: Curb extensions can be used in the public realm for a variety of associated improvements:
• Street Trees on San Pablo or University Avenues should be planted behind the original curb line to allow
flexibility for future multimodal improvements (See
Street Trees, this chapter);
• L andscaping opportunities such as G reen Inf
rastructure
can be implemented on side streets (See Landscaping,
this chapter);
• Pedestrian-Realm Lighting on San Pablo or University Avenues should be located behind the original curb line to provide flexibility for future multimodal improvements (see PR-P.3 Improve Street Lighting for the Sarety and Comfort for all Users); • Outdoor seating (see Figure 5.36) or dining (see PR-P.18 Commercial and Other Private Use of Sidewalks and the Public Realm); and
• Public art in public spaces on San Pablo or University Avenues should be located behind the original curb line or be relocatable in order to provide flexibility for future multimodal improvements.
Standard: Similar to side-street plazas, see PR-P.15 Create Side-Street Plazas, a developer or property owner of a new building adjacent to a side-street identified in Figure 5.33 may propose to design, construct and activate a curb extension.
• The location and design of any curb extension must approved by the Public Works Department. • R equirements of BMC Section 14.48.150 Sidewalk seating, benches, and planters apply to t hese
curb extensions.
• This space shall be maintained through an agreement with the City.
Incentive: To encourage construction of curb extensions and activation of the c ommon space, Sidewalk Seating Permit fees that would otherwise result from commercial use of the curb extension space will be waived for up to 10 years for the first commercial seating use of the space.
Sidewalk and Other Public Realm Activation
PR-P.18 Commercial and Other Private Use of Sidewalks and the Public Realm While side-street plazas, parklets, and curb extensions focus on enhancing side-streets adjacent to San Pablo Avenue, the sidewalk frontage, particularly along San Pablo Avenue, offers opportunities for activation through seating, landscaping and small gathering spaces.
The requirements of BMC Section 14.48.150 Sidewalk seating, benches, and planters apply to commercial and other private use of the sidewalk.
Figure 5.36 Curb Extensions with
Seating and Planters
At University Avenue and Kala Bagai
Way. Photo by CD+A
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As discussed in PR-P.2 Sidewalk Incentive, new developments may expand the useable sidewalk space on San Pablo Avenue and other streets in the Specific Plan Area.
Incentive: In these cases, the Outdoor Commerce Fee for the commercial use of the sidewalk is waived for up to 10 years from the date of first commercial seating use.
Pocket Parks and Plazas Along San Pablo Avenue
There are no publicly owned park, plazas, or other community spaces located along San Pablo Avenue. There is one park (George Florence Park) partially within the Specific Plan Area. Kains Avenue Park, located at the north end of the Specific Plan Area along Cordonices Creek is not yet open to the public.
However, several parks, including George Florence Park, James Kenney Park, Strawberry Creek Park, and San Pablo Park are located within a few blocks (see Figure 5.10. Street Network Map).
Community feedback throughout the planning process emphasized a strong desire for accessible public open space along San Pablo Avenue. In the absence of dedicated public open space, a variety of semi-public spaces or “third places” have emerged organically. These include outdoor seating at restaurants and cafes, and the use of gas stations or paved areas by food trucks and trailers with temporary seating (See Figure 5.37).
PR-P.19 Purchase Underutilized Small Properties for Public Open Space Several small and underutilized properties within the Specific Plan Area could, over time, have the potential for public acquisition and could be developed as public parks or plazas. The Parks, Recreation and Waterfront Department should seek funding to purchase property along San Pablo Avenue for the purpose of developing new public parks or plazas. A potential funding mechanism is a potential Nexus Study to Support Citywide Park and Open Space Funding (See Chapter 6 Administration and Implementation). This study could include an evaluation of public park space needs in the Specific Plan Area and identify opportunities to qualify for priority funding.
Figure 5.37 Example of a Food
Truck Using a Parking Lot
Photo by CD+A
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San Pablo Avenue Specific Plan Final Draft 109
PR-P.20 Privately Owned Public Open Spaces
An important strategy to create public open space within the Specific Plan Area is to encourage and incentivize the development of privately-owned public open spaces (POPOS). POPOS are publicly accessible open spaces that are built and maintained on private property. They can come in many forms, e.g., plazas, courtyards, recreational facilities, play areas, dog parks and usable green space; see Figure 5.38 . Key benefit of POPOS is that the construction and maintenance costs are typically the responsibility of the private developer, rather than the City .
These spaces are encouraged in new commercial, multi-family, and mixed-use developments, and they also present an opportunity to transform existing parking lots or underutilized properties into open areas for the public.
LU- S.2 Privately Owned Public Open Space w
ithin the Designated Nodes Incentive, further encourages POPOS as part of new mixed-use residential development projects in a Designated Nnode in the Specific Plan Area. This land use policy defines access and design standards, as well as a range of incentives and benefits when a development provides a POPOS.
Figure 5.38 People using Privately Owned Public Open
Spaces
Right: Student practices painting in a POPOS provided by the adjacent development. Hudson Yard, New York City.
Bottom left: Quick-build POPOS plaza on former parking
lot at Broadway and 21st Street in Oakland .
Bottom right: POPOS Plaza in front of mixed-use
development, 2161 Allston Way, Berkeley.
All pictures by CD+A.
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Utilities and Fire Services
Utility and fire services are required to support new development within the Specific Plan Area, including domestic water, wastewater, stormwater, telecommunications, electricity , natural gas, waste and recycling, and fire services.
According to the City of Berkeley 2023-2031 Housing Element Update (HEU) EIR – SCH #2022010331 – (HEU Final EIR), including the San Pablo Avenue Specific Plan Addendum to the Housing Element Update Final EIR (SCH #2022010331) (HEU EIR Plan Addendum), existing utility systems and fire services have sufficient capacity to serve the planned housing developments.
Domestic Water and Wastewater
Domestic Water
The City of Berkeley and East Bay Municipal Utility District ( EBMUD), the water supplier for the City of Berkeley, typically requires individual developments to make any necessary upgrades. EBMUD’s water system is primarily sourced by the Mokelumne River Watershed west of the Sierra Nevada Mountain Range. There is currently sufficient water capacity for the city and the development anticipated by this Specific Plan. However, the long-term adequacy of the water supply has been susceptible to the effects of climate change. The development of water recycling and conservation programs have offset climate change concerns to date. California Green Building Standards Code (CalGreen) requirements include plumbing fixture maximum flow rates intended to reduce water consumption for all residential and commercial buildings. These standards w ill be implemented with new development in the Specific Plan Area.
Wastewater
There are two components to ensure the City of Berkeley’s wastewater is properly managed: (1) the treatment facility and (2) the collection and conveyance pipes. EBMUD operates the large diameter interceptor sewer and provides municipal wastewater treatment for Berkeley. The City owns and maintains its own sewage collection system. This system includes 254 miles of City-owned sanitary sewer pipe.
EBMUD is anticipated to have adequate dry weather capacity to accept wastewater flows from the planned buildout of this Plan38. Wet weather flows may also be accommodated with implementation of ongoing local and regional programs to reduce infiltration and inflow during wet weather event s (City of Berkeley, Housing Element Update EIR, 2022).
Future development under the proposed HEU will require new connections for wastewater conveyance. As described in the HEU Final EIR (see page 4.16-4 of the Draft EIR), Chapter 17.05 of the BMC requires that new development pay s its fair share of improvements to the sewer system that would be necessary to accommodate increased flows. This policy and BMC requirements ensure that new developments are not approved until it can be demonstrated that adequate wastewater collection capacity exists, or until a financial commitment to create such capacity has been made.
The City of Berkeley will be making improvements to the sanitary sewer on San Pablo Avenue and other Major and Collector Sreets in the city through their Sanitary Sewer Rehabilitation and Replacement Project . Construction is scheduled for April through June of 2026 for the following segments of San Pablo Avenue:
• Carleton Street to Derby Street – 14" High Density Polyethylene Pipe (HDPE) • Oregon Street to Grayson Street – 12" HDPE and 21” Cured in Place Pipe (CIPP) lining crossing San Pablo Avenue along Grayson Street
• Haskell Street to Folger Avenue – 24" HDPE
38 The City’s wastewater treatment capacity is 320 million gallons per day (mgd). The existing average daily flow is 63 mgd and the HEU would add 0.77 mgd. Based on the HEU wastewater generation assumption of 40 gallons per day (gdp) for a multifamily unit, the Plan buildout, which is 4,250 units above the HEU maximum buildout, would add 170,000 gdp, which is
0.17 mgd and well within the City’s treatment capacity.
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Noted improvements are for ongoing maintenance of the C ity’s sanitary sewer system rather than for increasing capacity.
Stormwater
The Specific Plan Area is highly urbanized and the area is almost entirely covered with impervious surfaces, except for landscaped areas. Future development will have to comply with existing programs and permits, including the BMC and the Municipal Regional Stormwater (MRP 3.0) NPDES Permit (No. CAS612008). All new development or redevelopment projects that create or replace 5,000 square feet of impervious surfaces are “regulated projects” and are required to implement Low Impact Design (LID) Measures and hydromodifications management measures required under the C.3 provisions of the Municipal Regional Stormwater Permit (MRP) . These features may include but not be limited to bioretention, permeable paving, detention basins, underground stormwater storage (see PR-P.8 Green Infrastructure in Public Projects and PR-P.9 Green Infrastructure in Private Development for Plan policies related to rainwater management). For example, on-site infiltration would improve the water quality of stormwater.
Implementation of rainwater measures can be especially challenging in a dense urban area. Measures such as rain barrels and cisterns, green roofs, and preserving undeveloped open space may also need to be considered. MRP 3.0 specifies methods to calculate the required size of treatment devices.
Improvements with Caltrans right-of-way are subject to requirements of Caltrans NPDES Permit Order No. 2 -2022- 0033-DWQ.
There is a minor possibility that underground creeks beneath San Pablo Avenue, due to deterioration, daylighting, or other creek crossings, could cause the need to reconstruct major storm drain infrastructure. H owever, the risk appears low given that the historic creek crossings have already been directed into a main storm drain within San Pablo Avenue through this area. The Specific Plan Area also falls outside of the Federal Emergency Management Agency (FEMA) Flood Zone.
Electric, Gas, and Communications
Natural gas and electrical services for the City of Berkeley are provided by Pacific Gas and Electric Company (PG&E).
There is also telecom (cable and internet) service throughout the Specific Plan Area, mainly provided by AT&T and Comcast. Electrical systems within the Specific Plan Area have mainly been undergrounded. Most overhead electrical lines are located within the cross streets.
Electricity, Natural Gas, and Communications upgrades will continue to be available from the providers. Typically , the utility companies will upgrade facilities as needed. It is expected that PG&E will accommodate the electrical and gas demands of the Plan. A service application submitted to PG&E will be required to trigger a review of added electrical and natural gas demand for each new individual development. Likewise existing telecom infrastructure and providers are expected to be able to accommodate development that may be generated by the Plan. In addition, East Bay Community Energy (EBCE) is a local public agency tasked with supplying clean electricity at low rates to customers in Alameda County. EBCE procures electricity and provides local renewable resources, while PG&E continues to administer natural gas service as well as energy transmission, distribution, repair, customer service, and billing for EBCE customers.
Waste and Recycling
The City of Berkeley is one of the few cities in Northern California to operate its own refuse, dual stream recycling and green/food waste curbside collection system, as well as material recovery/drop-off and buyback facilities. The service provides curbside recycling, green/food waste, and refuse collection services. Some of the programs offered by the City’s Solid Waste Division include recycling collection programs for businesses as well as residential and commercial refuse and organic waste collection. Solid waste, recyclable, and compostable materials collected by the City and its contracted companies are transported from the Berkeley Transfer Station, located at 1201 Second Street, for sorting or disposal at off-site facilities.
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One permitted landfill in Alameda County has the capacity to accommodate solid waste generated in Berkeley: the Altamont Landfill. The maximum permitted daily throughput at the Altamont Landfill is 11,150 cubic yards, and the maximum permitted capacity is 124.4 million cubic yards. The remaining capacity for solid waste at this landfill is approximately 52.3 million cubic yards (CalRecycle, Solid Waste Information System (SWIS), 2025). The City of Berkeley has achieved a solid waste diversion rate of 69 percent of its solid waste.
Development facilitated by the Plan will not generate solid waste in excess of State or local standards, or in excess of the capacity of local infrastructure. The Landfills that serve the City of Berkeley have adequate capacity to serve development under the Plan
39. The solid waste reduction goals are in alignment with the development of projects within the Specific Plan Area and comply with federal, State, and local statutes and regulations related to solid waste (City of Berkeley, Housing Element Update EIR, 2022).
The City of Berkeley General Plan’s Environmental Management Element includes the following goals and policies applicable to solid waste:
• Policy EM-7: Reduced Wastes. Continue to reduce solid and hazardous waste. • Policy EM-8: Building Reuse and Construction Waste. Encourage rehabilitation and reuse of buildings whenever appropriate and feasible in order to reduce waste, conserve resources and energy, and reduce construction costs.
• Policy EM-9: Recycling and Waste Transfer Stations. Ensure convenient access for Berkeley citizens to transfer stations, recycling, composting, and collection of household hazardous waste products. • Policy EM-10: Materials Recovery and Remanufacturing. Support and encourage serial materials recovery and remanufacturing industries.
Development facilitated by the Plan will follow the City of Berkeley policies for waste reduction and recycling.
Fire Services
The San Pablo Specific Plan supports increases in development capacity and population in the Specific Plan Area.
While the City of Berkeley 2023-2031 Housing Element Update (HEU) EIR, including the San Pablo Avenue Specific Plan Addendum, finds that there is sufficient fire service capacity to service the proposed new development, ongoing monitoring of building heights, densities, and population growth, and how those trends relate to calls for service and other service demands, is a municipal best practice.
Accordingly, implementation of the San Pablo Specific Plan will include periodic evaluation of fire service demands, including both calls for service related to fire suppression and paramedics services, as well as demand for fire inspections, plan check and other fire prevention-related services.
39 Based on the HEU solid waste generation rate of 4/lbs/unit/day, and conversion factor of 1,000 pounds per cubic yard, the plan buildout would generate 17 cubic yards of solid waste per day. With Berkeley’s 69% diversion rate, the Plan buildout would generate an additional 5.27 cubic yards of solid waste per day, which equates to 1924 cubic yards per year. This represents 0.00368% of the current total remaining landfill capacity of 52.3 million cubic yards.
Internal
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Chapter 6
Administration and
Implementation
- Final Draft -
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San Pablo Avenue Specific Plan Final Draft 114
Specific Plan Administration
Recognizing the Specific Plan’s long-term horizon and the potential for changing conditions, new opportunities, and evolving community and City priorities, this section outlines the Specific Plan’s adoption, procedures for its administration, and subsequent amendments.
Specific Plan Adoption
The Specific Plan Area is identified as a Priority Development Area (PDA) in Plan Bay Area 2050, a long -range regional plan, prepared by the Metropolitan Transportation Commission (MTC) and the Association of Bay Area Governments (ABAG). PDAs are select areas with strong potential to support sustainable development patterns for housing and jobs in walkable, transit-oriented infill areas. To support preparation of this Specific Plan, the City received a PDA Planning Grant from MTC and ABAG.0F
1 Additionally, the City’s Housing Element Update (2023–2031) includes Program 27 calling for the preparation of the “San Pablo Avenue PDA Specific Plan,” to evaluate opportunities to increase allowed densities and development capacity and to study design standards, public improvements, and mechanisms to incentivize affordable housing .
Preparation of the Specific Plan began in 2023 and involved regular discussions with the Planning Commission and City Councilmembers, and coordination with staff from regional planning and transportation agencies.
The City of Berkeley initiated and prepared the Specific Plan pursuant to the provisions of California Government Code, Title 7, Division 1, Chapter 3, Article 8 (Sections 65450 through 65457). The law allows the preparation of specific plans as required for the implementation of the General Plan. Specific plans act as a bridge between the vision and ideas of a general plan and specific needs and appropriate standards for an area of the city . They provide standards and guidelines that are tailored for the Specific Plan Area. Jurisdictions may adopt specific plans by resolution or ordinance.
Upon adoption by resolution, the Specific Plan, together with the following accompanying actions, shall govern all properties within the Specific Plan Area: (1) a General Plan amendment, involving revisions to both text and the Land Use Diagram to achieve consistency with the Specific Plan; (2) a Berkeley Municipal Code ( BMC) amendment, involving revisions to the Zoning Ordinance and the Zoning Map to achieve consistency with the Specific Plan; (3) the retirement of the West Berkeley Plan and the San Pablo Avenue Public Improvements Plan; and (4) the adoption of the Design Standards Document.
Environmental (CEQA) Review
The Housing Element Update Environmental Impact Report ("2023 HE U EIR"), certified by the City of Berkeley in January 2023, analyzed citywide housing growth under the Housing Element Update, including 3,682 housing units anticipated within the San Pablo Avenue Plan Area. The Specific Plan would increase the development potential to a total of approximately 8,000 units, representing an additional 4,318 units, rounded to 4,500 for the purposes of the CEQA analysis.
The City prepared an Addendum to the 2023 HEU EIR. The Addendum, which includes a Checklist for each environmental topic, documents that the Specific Plan in addition to the HEU would not result in any new or substantially more severe significant environmental impacts than those previously identified in the 2023 HE U EIR, or require new or different mitigation measures.
The project analyzed in the Addendum includes amendments to the BMC and the General Plan, which include new development standards for the C-SP zoning district such as height and FAR, particularly at Designated N odes, as well as retirement of the West Berkeley Plan and San Pablo Avenue Public Improvements Plan. Pursuant to CEQA Guidelines Section 15164, the Addendum concludes that the proposed changes do not meet the conditions outlined
1 Priority Development Area (PDA) Grants | Metropolitan Transportation Commission. Last accessed 05/08/2026.
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in CEQA Guidelines Section 15162 that would require preparation of a subsequent or supplemental EIR. The City’s decision makers will review the Addendum and assess if they agree with the findings that no additional environmental review is needed pursuant to CEQA.
Based on recent housing and CEQA legislation as well as Section 15183 of the CEQA Guidelines it is anticipated that many of the future mixed-use or residential development projects proposed under the Specific Plan will be exempt from further CEQA review. However, the City will make a determination as individual development proposals are submitted to the City for review and approval based on CEQA and permit streamlining legislation in place at that time.
Administering the Specific Plan
Upon City Council adoption of the Specific Plan, all new projects within the Specific Plan Area must demonstrate consistency with the Specific Plan along with the Berkeley Municipal Code (BMC), the Design Standards Document, the City’s General Plan and other circulation and public realm standards and plans. See Regulatory Context and Relationship to Other Planning Documents and Projects in Chapter 1 Introduction for other plans and policies acting in the Specific Plan Area, such as the Transit-First Policy Implementation Plan.
Conflict: If any policy or standard in the Specific Plan conflicts with the BMC or the Design Standards Document, the BMC and/or the Design Standards Document shall prevail.
Severability: If any chapter, subsection, sentence, clause, or phrase of this Plan, or future amendments or additions hereto, is for any reason held to be invalid or unconstitutional by the decision of any court, such decision shall not affect the validity of the remaining portions of the Specific Plan.
Minor Amendments: Non-substantive changes to the Specific Plan such as corrections or technical changes to ensure consistency or clarify uncertainties or ambiguity may be executed by Staff through an administrative process.
Major Amendments: Changes to the Specific Plan that are not minor are considered major amendments, such as substantive changes to policies, land use designations, or development standards, must follow procedures outlined in BMC 22.04.020.
Development Review and Project Approvals
The Specific Plan aims to make development approvals more streamlined. See Berkeley Municipal Code (BMC)
23.204.020, Allowed Land Uses, for permit thresholds by use. BMC Chapter 23.402 (Administrative Responsibility) describes City roles and responsibilities when administering the Zoning Ordina nce. There are 4 permit application review and decision-making authorities that have responsibilities and duties associated with processing permit applications and other requested development project -related approvals:
Zoning Officer: A project that requires approval of a Zoning Certificate can be approved ministerially through a Zoning Certificate issued by a Zoning Administrator. See BMC Section 23.402.04 0 for details about the Zoning Officer responsibilities and duties.
Zoning Adjustments Board: A project that requires approval of a discretionary permit, such as a Use Permit, Variance, or Administrative Use Permit is reviewed and approved by the Zoning Adjustments Board . See BMC Section 23.402.070 for details about the Zoning Adjustments Board responsibilities and duties.
Design Review: A request for an exemption to a design standard in the Design Standards Document would be reviewed and approved by the Design Review Committee and/or Design Review staff. See the Design Standards Document for details about the design review process in the Specific Plan Area. See BMC Section
23.402.060 for details about the Design Review Committee responsibilities and duties and BMC Section
23.406.070 for details about the City’s design review process.
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Landmark, Structures of Merit, and buildings within a Historic District Review: A project that would affect a designated landmark, structure of merit or a building within a historic district requires approval of a Structural Alteration Permit. The Landmark Preservation Commission reviews and acts on such permits. See BMC Section 23.402.050 for details about the Landmark Preservation Commission responsibilities and duties.1F
2 In addition to the City’s local development review procedures, State law may influence how projects in the Specific Plan Area are reviewed and approved. Depending on the nature of the proposed project, State laws can require ministerial approval, limit the City’s ability to impose certain standards or conditions , or otherwise alter the applicable review process. As State housing and land use laws continue to change, the development review framework affecting the Specific Plan Area will continue to evolve.
Implementation
The Specific Plan will be implemented through the adoption of policies and standards in the Land Use, Economic Development and Streets -Transportation and Public Realm Chapters, and the Design Standards Document, which are designed to align public and private investments with the Specific Plan’s vision and goals. These policies and standards are reflected in amendments to the text and maps of the Berkeley Municipal Code (BMC) and the General Plan, as well as through the retirement of the West Berkeley Plan and the San Pablo Avenue Public Improvements Plan.
The City maintains a dedicated webpage for the adopted Specific Plan, implementation updates, and resources for property owners, developers, businesses, and community members.
Monitoring and Funding
To ensure that the public and City Council remain informed about Specific Plan implementation, the City will continue to prepare annual progress reports and adjust programs and actions, as needed, to advance the objectives outlined in Chapter 2 Vision and Guiding Principles.
This Specific Plan is limited in its ability to establish new funding mechanisms; rather, it can only identify potential tools and strategies that may be used to support implementation. To realize the vision of this Specific Plan, the City and community must be creative and proactive in leveraging existing resources and pursuing new funding opportunities that respond to the needs of the Specific Plan Area. The following section, summarized in Table 6.1, identifies potential funding and financing strategies. While not comprehensive, it provides a starting point for identifying tools to support future improvements and investments. In addition, potential funding sources are identified for each policy in the Implementation Actions section of this chapter.
Local Revenue and Fees: The City may fund implementation projects in the Specific Plan Area through a range of local revenue sources. These include allocations from the General Fund through the City’s budgeting process, or Measure FF Sidewalk and Street Repairs Parcel Tax funds could be made available for the design and construction of street and sidewalk improvement projects in the Specific Plan Area.
Property-Based Financing Tools: Property-based financing tools allow local governments to fund infrastructure and public improvements through revenues generated within a defined area. Mechanisms such as b usiness improvement districts or community benefit districts (BIDs or CBDs) enable property and business owners to collectively fund services and improvements that benefit the district, such as streetscape enhancements, maintenance, and economic development programs. ED-P.5 Study Feasibility of Forming a BID or CBD, calls for studying the potential formation of a BID or CBD in the Specific Plan Area and assessing possible boundary options ranging from the entire Specific Plan Area to targeted areas around Designated Nodes. Enhanced infrastructure financing districts (EIFDs),
2 Landmark Alterations | City of Berkeley. Last accessed 05/08/2026.
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assessment districts, and community facilities districts (CFDs) can generate funding by capturing increased property tax revenues or levying special assessments or taxes on properties that benefit from the improvements.
Development Mechanisms: Development-based funding mechanisms help implement public improvements by leveraging private development activity. Development agreements allow cities and developers to establish negotiated terms for projects, though the level of public benefits provided must be determined on a case-by -case basis. Public- private partnerships allow the City to collaborate with private entities to finance, construct, or maintain infrastructure and other improvements that benefit both new development and the surrounding community. Partnerships with large institutions can result in significant infrastructure investment, while collaborations with local organizations or nonprofits, particularly those connected to the history and character of San Pablo Avenue, may lead to more responsive and place-specific outcomes.
Grant Programs: San Pablo Avenue is a major regional road with frequent transit service and strong potential for multimodal improvements, making it well positioned to compete for federal, State, or regional transportation and transit-oriented community funding. Projects that enhance pedestrian, bicycle, and transit infrastructure within the Specific Plan Area align with regional and State priorities to improve safety, support transit use, and reduce greenhouse gas emissions. Potential funding sources include the following:
• Caltrans’ Active Transportation Program grants program (ATP) • Alameda County Transportation Commission (ACTC) grant programs • One Bay Area Grant (OBAG) Program administered by the Metropolitan Transportation Commission (MTC) • Affordable Housing and Sustainable Communities (AHSC) Program administered by the California Department of Housing and Community Development (HCD)
• Alameda County (AC) Transit capital funding for transit infrastructure improvements • Various federal grant programs
Other Tools: Revolving loan funds provide low-interest financing for housing and economic development projects, with loan repayments returned to the fund to support future projects. This structure allows the same pool of funding to be reused over time to support activities such as affordable housing development, building rehabilitation, and small business improvements.
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Table 6.1 Potential Funding Strategies and Sources
Table 6.1 Potential Funding Strategies and Sources
Funding
Source
Category
Funding Source
Improvement Category
Streets and
Public Realm Transit Housing Economic
Development
Local Revenue
& Fees Local Revenue X X X X
Property-
Based
Financing
Tools
Business Improvement District or
Community Benefit District (BID/CBD) X X X
Enhanced Infrastructure Financing Tool
(EIFD) X X X X
Assessment District X X
Community Facilities District X X X
Development
Mechanisms
Development Agreement X X X X
Public-Private Partnership X X X
Grant
Programs
Active Transportation Programs (ATP) X X
Alameda County Transportation
Commission (ACTC) Grants X X X
Metropolitan Transportation
Commission (OBAG) X X X
Affordable Housing & Sustainable
Communities (AFSC) X X X
AC Transit Capital Funding X X
Federal Grant Programs X X X X
Other Tools Revolving Loan Fund X X
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Implementation Actions
The following tables (6.2 - 6.4) describe a range of implementation measures, actions, responsibilities, and timeframes, as well as potential funding sources for these measures. These actions should be considered in tandem with the corresponding policies and standards outlined in C hapters 3 through 5.
Abbreviations
City of Berkeley
BFD – Berkeley Fire Department
CMO – City Manager’s Office
CAO – City Attorney Office
HHCS – Health, Housing and Community Services
OED – Office of Economic Development
PLNG – Planning and Development Department
PRW – Parks, Recreation and Waterfront Department
PW – Public Works
• Transportation Division (“PW Trans”)
• Engineering Division (“PW Eng”)
RSB – Rent Stabilization Board and Staff
BHA – Berkeley Housing Authority
Other:
Alameda CTC – Alameda County Transportation
Commission
AC Transit – Alameda-Contra Costa Transit District
Alameda County SBDC – Alameda County Small
Business Development Center
BART – San Francisco Bay Area Rapid Transit District
BBDN – Berkeley Business District Network
Caltrans – California Department of Transportation
Timeline
Each table includes the timing of each implementation action. Many implementing actions depend on the availability of funding, and once initial funding is secured, it can be used to identify and pursue additional resources to carry out the program or improvement. Therefore, the timeline will need periodic refinement and updating. • On-going – actions that are already occurring and may be affected by Specific Plan policies and standards. • Immediate – actions that will start with adoption of the Specific Plan. • Following other actions – actions that depend on implementation of projects or other actions. In this case, the dependent project or action is listed.
• Specific time periods are listed for some implementation actions; time periods are in response to:
o Priorities for the action;
o Estimate of time needed to undertake action; and
o Dependency on other actions.
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Table 6.2 Plan Administration Implementation Actions
Table 6.2 Plan Administration Implementation Actions
Action Description
Lead
Responsibility Partners Timeline
Potential Funding
Source
Provide annual updates on Plan implementation through the General Plan Annual Progress Report (APR)
PLNG Input from other
City Departments
and Partner
Agencies
On-going General Fund
Provide periodic updates to City Council on the following metrics:
• Number of new housing units entitled, permitted, or
completed.
• Summary description of transportation, streetscape, and open space improvements under design, construction and
completed.
• Summary report of collisions that have occurred within the Specific Plan Area.
• Number of active businesses, including new business licenses within the Specific Plan Area.
• Funding secured and partnerships established with community groups, agencies, and developers.
• Status of implementation actions outlined in this chapter.
PLNG Input from other
City Departments
and Partner
Agencies
On-going General Fund
Identify and pursue funding opportunities
Coordinate and monitor grant and other funding opportunities to implement Specific Plan policies.
PLNG, OED, PW On-going General Fund
Monitor opportunities to pursue Affordable Housing and
Sustainable Communities (AHSC) grants
AHSC is an annual State grant program that funds construction of affordable housing and improvements related to reducing GHG
HHCS, PW PLNG,
Affordable
housing
developers,
On-going General Fund
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San Pablo Avenue Specific Plan Final Draft 121
Action Description
Lead
Responsibility Partners Timeline
Potential Funding
Source
emissions. Certain multimodal and other transportation improvements are fundable.
Work with affordable housing developers and partner agencies to prepare and submit proposals for AHSC grants for housing within the Specific Plan Area and transportation infrastructure improvements that are prioritized in this Specific Plan, as appropriate.
AC Transit,
Caltrans, etc.
Table 6.3 Land Use Implementation Actions
Table 6.3 Land Use Implementation Actions
Action Description
Lead
Responsibility Partners Timeline
Potential Funding
Source
LU-P.1 Establish the Commercial San Pablo (C-SP) District • Amend Title 23 of the Berkeley Municipal Code to establish the C-SP zoning district and the following standards as described in Chapter 3 Land Use:
• LU- S.5 Development Standards
• LU-S.7 Streetscape Standards
PLNG I mmediate General Fund (staff time)
LU-P.2 Focus Commercial Uses within Designated Nodes
• Amend the Berkeley Municipal Code to include Designated Nodes, as described in Chapter 3 Land Use, and adopt
Designated Node-specific ground-floor frontage requirements and allowed use requirements.
• Periodically evaluate Designated Node performance and adjust standards and regulations as needed.
PLNG Immediate +
On-going
General Fund (staff time)
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San Pablo Avenue Specific Plan Final Draft 122
Action Description
Lead
Responsibility Partners Timeline
Potential Funding
Source
LU-P.3 Boundary Adjustments and Re-zonings
• Rezone parcels in the C-W and C-U zoning districts within the Specific Plan Area to C-SP.
• Rezone split-zoned parcels fronting San Pablo Avenue and University Avenue to C-SP.
PLNG Immediate General Fund (staff time)
LU-P.4 Amend the General Plan and Map
• Amend the General Plan text and map as described in Chapter 3 Land Use.
• Amend Title 23 of the Berkeley Municipal Code text and map as shown in Figure 3.5 in Chapter 3 Land Use, including:
• Specific Plan Area Boundary
• Designated Nodes
• Rezone all C-W and C-U parcels within the Specific Plan Area to C-SP
• Include MU-LI Affordable and Family Friendly Housing
Areas
• Remove split-zoning inconsistencies and other minor
rezoning corrections
PLNG Immediate General Fund (staff time)
LU-P.5 Facilitate Housing on MU-LI Parcels
• Amend Title 23 of the Berkeley Municipal Code text to designate parcels as Affordable and Family-Friendly Housing Areas on MU-LI parcels within the Specific Plan Area,
consistent with the Policy description in Chapter 3 Land Use. • Require qualifying projects to comply with C-SP development standards.
PLNG Immediate General Fund (staff time)
LU-P.6 Planning and Commercial Use Permit Streamlining
Review permitting processes after 5 years. Determine if further monitoring is needed.
PLNG OED, PW 5 years General Fund (staff time)
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San Pablo Avenue Specific Plan Final Draft 123
Action Description
Lead
Responsibility Partners Timeline
Potential Funding
Source
LU-P.7 Public Open Space Enhancements
Amend the Berkeley Municipal Code to implement the following standards consistent with their descriptions in Chapter 3 Land Use:
• LU-S.1 Sidewalk Expansion Incentive
• LU-S.2 Privately-Owned Publicly Accessible Open Space within Designated Nodes
• LU-S.3 Side-Street Plaza Incentive
• LU-S.4 Mid-Block Passage Incentive
PLNG Immediate General Fund (staff time)
LU-P.8 Expand Allowed Primary and Temporary Uses
Add the C-SP zoning district to the Allowed Uses Table in Title 23 of the Berkeley Municipal Code. Compared to the existing C-W zoning district, expand by-right uses (e.g. galleries, light-industrial) and allow additional uses that align with the Specific Plan’s goals.
PLNG OED Immediate General Fund (staff time)
Develop outreach program for small businesses (coordinate with ED- P.1,2,3)
OED PLNG 0 to 3 years General Fund (staff time)
LU-P.9 Establish Ground Floor Form Types to Promote Pedestrian- Scaled and Flexible Ground Floors
• Amend the Berkeley Municipal Code to establish ground floor frontage types and location requirements as described in the policy.
PLNG I mmediate General Fund (staff time)
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San Pablo Avenue Specific Plan Final Draft 124
Action Description
Lead
Responsibility Partners Timeline
Potential Funding
Source
LU-P.10 Establish a Pilot San Pablo Avenue Density Bonus Program Research and consider adopting a pilot local density bonus program for the Specific Plan Area consistent with the policy described in Chapter 3 Land Use, including:
• Requiring in-lieu contributions to the City’s Affordable Housing Trust Fund.
• Prohibiting waivers of critical development and design standards.
• Requiring applicants opt-out of State Density Bonus.
PLNG HHCS Within 1 year General Fund (staff time)
• Develop and provide developer and administrative guidance documents for the program.
PLNG HHC
S Within 6
months after
pilot program
initiation
General Fund (staff time)
LU-P.11 Artists Housing and Cultural Districts
If the City creates a cultural district within one-half mile of the Specific Plan Area, coordinate with the Civic Arts Commission and the Housing Advisory Commission to consider creation of an affordable artist housing overlay in portions of the Specific Plan Area.
PLNG OED/Civic Arts,
HHCS
Timing
dependent on
City
establishing a
cultural
district
General Fund (staff time)
Supportive Action - During the Plan Bay Area update, MTC allows cities to request PDA adjustments. The City will request that the PDA boundary be updated to match the Specific Plan Boundary.
PLNG M TC Up to 3 y ears
for Plan Bay
Area update
coordination
General Fund (staff time)
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San Pablo Avenue Specific Plan Final Draft 125
Table 6.4 Economic Development Implementation Actions
Table 6.4 Economic Development Implementation Actions
Action Description
Lead
Responsibility Partners Timeline
Potential Funding
Source
ED-P.1 Outdoor Business Activation Toolkit
See implementation action of the following policies and standards:
• LU-P .8 Expand Allowed Primary and Temporary Uses
• PR-S.1 Sidewalk Zone Standards
• PR-P.16 Support Use and Creation o
f Parklets
PLNG OED Immediate +
On-going
General Fund (staff time)
EP-P.2 Support Flexible Commercial Spaces
See implementation action of LU-P.8 Expand Allowed Primary and Temporary Uses, which establishes new uses per policy description.
PLNG O ED Immediate General Fund (staff time)
ED-P.3 Establish Public-Private Partnerships to Activate the Specific Plan Area
Build partnerships with community organizations, local institutions, merchant groups, property owners, and other stakeholders to activate community spaces and organize events consistent with the p olicy description in Chapter 4 Economic Development. The goals of this are two-fold. First, building partnerships will help city staff better understand and track the changing needs of the local community , and supporting initial activation by the local community will encourage the local community to take a continuing role in activating the Specific Plan Area.
OED PLNG, CBOs and
business
organizations
On-going General Fund (staff time);
partner contributions
Outreach by OED in alignment with ED-P.6 Economic
Development Technical Assistance to potential community organization, business, and other private and institutional partners. Outreach should consist of mailing to the existing community and to new businesses and organizations that
locate in the Specific Plan Area regarding available assistance and the ability to meet with groups to discuss available assistance. This can include technical assistance for navigating
OED PLNG, PW,
Neighborhood
Services/Special
Events
Up to 3 years
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San Pablo Avenue Specific Plan Final Draft 126
Action Description
Lead
Responsibility Partners Timeline
Potential Funding
Source
permit requirements such as encroachment permits,
temporary use, temporary street closures, and vendor permits.
Leverage Berkeley Business District Network (BBDN) and
CBOs to coordinate events and Specific Plan Area-wide
promotions through on-going OED staff interactions with BBDN and related organizations and providing information about potential relationship between Specific Plan Area businesses and organizations and BBDN member events and promotions.
OED BBDN, CBOs On-going
ED-P.4 Support and Expand Existing Business Clusters
City Support and Technical Assistance
• OE D to offer technical assistance to emerging clusters as defined in the policy description in Ch
apter 4 Economic
Development.
OED BBDN On-going +
up to 5 years
General Fund (staff time)
Coordination with related policies:
• C oordinate with implementation of ED -
P.7 Establish a Process
to Prioritize Public Investment in Designated Nodes to ensure improvements are aligned with cluster organization initiatives.
See discussion of existing cluster organizations in Chapter 4 Economic Development. OED can add to the list of cluster organizations, as they form, through contacts with the Specific Plan Area community as part of other efforts.
• Coordinate with implementation of Policy ED-P.5 Study Feasability of Forming a Business Improvement District (BID) or Community Benefit District (CBD) to ensure business clusters are included in the study.
OED, PLNG PW Trans, PR&W On-going +
up to 5 years
General Fund (staff time)
ED-P.5 Study Feasibility of Forming a Business Improvement District (BID) or Community Benefit District (CBD)
Fund and initiate a study evaluating the feasibility of creating 1 or more business improvement districts (BIDs) or community benefit districts OED Local businesses
and property
owners
3 years
(potentially
earlier if
strong
interest is
expressed by
General Fund (staff time)
Grants
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San Pablo Avenue Specific Plan Final Draft 127
Action Description
Lead
Responsibility Partners Timeline
Potential Funding
Source
(CBDs) within the Specific Plan Area, consistent with the policy description in Chapter 4 Economic Development.
• Gauge Specific Plan Area stakeholder interest in moving forward with a feasibility study through initial outreach. • C onsider multiple geographies (full S
pecific Plan Area vs.
Designated Nodes), hybrid models, and cultural district components.
• Consider the potential for other organizations similar to BIDs and CBDs.
• Conduct equity-centered outreach with businesses, CBOs, and nonprofits.
Specific Plan
Area
stakeholders
and funding is
available)
ED-P.6 Economic Development Technical Assistance
OED will provide technical assistance consistent with Policy description in Chapter 4 Economic Development.
• Establish approach for outreach, assistance, and Plan Area economic performance.
• Review effectiveness after 24 months and decide future viability.
OED Within 1 year
Review: 24
month after
start
General Fund
ED-P.7 Establish a Process to Prioritize Public Investment in Designated Nodes
Pursue funding for improvements in the Designated Nodes, such as grants for streetscape improvements, Alameda CTC improvement funding, other state and federal grants and funding.
As citywide multimodal transportation plans are updated, take this Specific Plan’s prioritization of future improvements into account. See also T-P.14 Prioritizing Multimodal Safety Improvements and T-P.18 Prioritize Connection with Surrounding Neighborhoods and Districts .
PW Trans, PRW,
PLNG
OED, MTC, and
Alameda CTC
On-going Identify funding for public
improvements (potential
General Fund and grant
funding)
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San Pablo Avenue Specific Plan Final Draft 128
Table 6.5 Street Implementation Actions
Table 6.5 Street Implementation Actions
Action Description
Lead
Responsibility Partners Timeline
Potential Funding
Source
0BTransportation
Retire San Pablo Avenue Public Improvements Plan (2004) The San Pablo Avenue Public Improvements Plan (2004) was adopted by Resolution No. 62,741-N.S. December 7, 2004. The Specific Plan replaces the street design policies and standards of the San Pablo Avenue Public Improvements Plan and the retirement of the San Pablo Avenue Public Improvements Plan is an action taken with the adoption of the Specific Plan.
PLNG Immediate General Fund (staff time)
T-P.1 Improve Mobility, Access, and Safety for All People Implement the goals for the City’s Complete Streets Policy and Vision Zero Action Plan by designing all street and transportation improvements within the Specific Plan Area to enhance mobility, access and, safety for all people of all abilities who are walking, biking, taking transit, and driving while providing for deliveries, freight, emergency response, evacuation and maintenance access.
PW Trans Alameda CTC
Caltrans
AC Transit
On-going General Fund (staff time)
T-P.2 Future Transportation Study Needs for San Pablo Avenue Coordinate with Alameda CTC, AC Transit, Caltrans, and potentially the City of Albany to initiate and complete Multimodal Complete Streets Study of San Pablo Avenue in Berkeley to determine a preferred design concept for redesign of the street and work together towards construction of the preferred concept. This study will address the feasibility of dedicated bus lanes and separated bikeways on San Pablo Avenue from Heinz Street to the south city limits.
PW Trans Alameda CTC
Caltrans
AC Transit
City of Albany
Partner
agency
coordination
and
discussions,
1 to 2 years
Study, timing
to be
determined.
General Fund (staff time)
for partner agency
coordination and
discussions
General Fund for grant
matching funds
County, Regional, State,
and Federal Grants to
fund studies and
implementation
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San Pablo Avenue Specific Plan Final Draft 129
Action Description
Lead
Responsibility Partners Timeline
Potential Funding
Source
Alameda CTC CIP
potential to support
implementation
Supportive Implementation Action:
Vision Zero Action Plan and Pedestrian Plan updates should assess transportation needs and performance of multimodal improvements to decide if a San Pablo Avenue Multimodal Complete Streets Study is a City priority.
PW Trans Alameda CTC,
AC Transit,
Caltrans, PLNG
1 to 2 years
for Plan
updates
General Fund
Grants
Supportive Implementation Action:
A S an Pablo Avenue Safety Assessment s
hould be coordinated with
Alameda CTC to conduct a follow-up safety assessment after completion of the Alameda CTC San Pablo Avenue Corridor Safety Enhancements and Parallel Bike Routes Projects to evaluate the effectiveness of improvements for pedestrians and cyclists.
Construction is expected to be completed in 2027 to 2028.
Also see implementation steps for T-P.2 Future Transportation Study Needs for San Pablo Avenue.
• Review and update list of intersection improvements . As part of the follow-up safety study, review, update, and implement improvements identified in Figure 5.7 in Chapter 5 Streets- Transportation and Public Realm and Appendix D. Use this updated list to guide future implementation, reflecting current conditions, safety need and community input.
• Assess Bulb-Out Extensions for Public Use. After completion of the ACTC San Pablo Avenue Corridor Safety Enhancements
assess opportunities to enhance constructed bus bulb-out extensions on San Pablo Avenue for general public and transit rider benefit, such as seating, additional trees and landscaping, bicycle racks, pedestrian-scale lighting, or public amenities.
PW Trans Alameda CTC 1 to 3 years
after
completion of
the Alameda
CTC San
Pablo Avenue
Corridors
Safety
Enhancement
s and Parallel
Bike Routes
Projects
General Fund (staff time)
Alameda CTC
Supportive Implementation Action: PW Trans A lameda CTC 1 to 3 years General Fund (staff time)
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San Pablo Avenue Specific Plan Final Draft 130
Action Description
Lead
Responsibility Partners Timeline
Potential Funding
Source
Advocate for Alameda CTC Bus Lanes and Bike Lanes Project implementation including finalizing design, identifying full funding, and constructing project.
T-P.3 Maintain and Improve Bus Service in Collaboration with Alameda CTC and AC Transit
Coordinate with partners to align service levels to meet demand and implement infrastructure upgrades in alignment with the Transit First Policy Implementation Plan. Monitor progress, needs, and implementation through the AC Transit/City of Berkeley Interagency Liaison Committee.
Also see implementation steps for T-P.2 Future Transportation Study Needs for San Pablo Avenue.
PW Trans AC Transit,
Alameda CTC,
Caltrans, PLNG
On-going General Fund (staff time)
T-P.4 Implement Signal Timing and Transit Signal Priority (TSP) Coordinate with partner agencies to assess bus transit reliability resulting from existing TSP improvements and Safety Enhancement project bus stop improvements. It is assumed that Safety Enhancement improvements will be complete by end of 2028.
2F
3 Following assessment,
identify funding for design and construction of any recommended additional improvements.
BFD shall participate in the design, testing and performance monitoring of TSP systems. City-supported TSP efforts shall include emergency vehicle signal preemption.
PW Trans Alameda CTC,
Caltrans
AC Transit
City of Albany
BFD
3 to 5 years County, Regional, and
State grants
T-P.5 Create an Active Parking and Loading Management Program for the Specific Plan Area
Reach out to businesses and property owners within the Specific Plan Area to identify a location to pilot an active parking and loading management program. Likely locations include the University Avenue, Cedar Street, and Dwight Way Designated Nodes. The pilot includes discussion with businesses and surrounding neighborhoods regarding PW Trans OED 3 years General Fund
3 San Pablo Avenue Corridor Safety Enhancements fact sheet , August 2025.
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San Pablo Avenue Specific Plan Final Draft 131
Action Description
Lead
Responsibility Partners Timeline
Potential Funding
Source
their interest in opting into the Residential Preferential Parking (RPP) program. Council approval would be needed to make these areas eligible for the RPP program.
T-P.6 Implement Mobility Hub Features in the University Avenue Node
Gauge level of interest and support from partner agencies and organizations (MTC, AC Transit, and Bay Wheels) to study feasibility and implementation of Mobility Hub features.
PW Trans MTC,
AC Transit, and
Bay Wheels
3 to 5 years General Fund
Install a bike corral near the Addison Street bike boulevard crossing improvement at as a first step toward creating a mobility hub in the University Avenue Designated Node.
Crossing is being constructed by the Alameda CTC Safety Enhancement project; coordinate with project and possibility of locating the corral outside of the construction area to allow for early installation.
PW Trans A
C Transit 1 to 3 years General Fund
Identify funding for study and design of Mobility Hub and undertake study, including business, transit rider, and general community outreach to identify types of improvements, their locations and cost to implement. Also identify funding sources and timeline.
PW Trans M
TC,
AC Transit, and
Bay Wheels
1 to 2 years
following
installation of
bike corral
given funding
availability
General Fund and
potential grant funding
Implement Mobility Hub features in the University Avenue Node through coordination with partner agencies and
organizations, City work crews, and possibly work by
construction contractors to install Mobility Hub features and make associated improvements.
PW Tra
ns MTC,
AC Transit, and
Bay Wheels
1 to 2 years
completion of
Mobility Hub
Study given
funding
availability
General Fund and
potential grant funding
T-P.7 Evaluate Other Locations for Some Mobility Hub Features PW Trans MTC, AC Transit, and
Bay Wheels
6 to 8 years General Fund
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San Pablo Avenue Specific Plan Final Draft 132
Action Description
Lead
Responsibility Partners Timeline
Potential Funding
Source
As development occurs in the Specific Plan Area and mobility needs change, evaluate needs for potential improvements in other Designated Nodes.
T-P.8 Lower Speed Limit on San Pablo Avenue
Evaluate Potential to Lower Speed Limit:
• C onduct an Engineering and Traffic Survey (E&TS) to evaluate the feasibility of reducing speed limits along San Pablo Avenue.
The study should identify the need and potential for traffic calming improvements including signal timing and physical improvements. E&TS will not be done until Alameda CTC Safety Enhancement Project has been constructed and operated for at least 1 year.
• If the E&TS supports lower speed limit, request Caltrans approval and prepare plans to implement improvements, such as signal timing changes and replace speed limit signs. • If Caltrans approves, implement improvements.
• If Caltrans does not approve, advocate for State legislation to support the ability to lower the speed limit on urban state highways in a mixed-use environment with high transit service.
PW Trans Caltrans,
AC Transit, and
Alameda CTC
Approximately
3 years
(at least 12
months after
Safety
Enhancement
project
construction
is complete)
General Fund and
potential grant funding
T-P.9 Pedestrian Crossing Frequency
Monitor safety at the 5 long San Pablo Avenue blocks within the Specific Plan Area as part of collision data and other transportation safety studies that are performed. If safety monitoring indicates the need for mid-block crossings of San Pablo Avenue along any of these long blocks, prioritize improvements, design, and implement ation based on safety and available funding.
PW Trans C
altrans,
PLNG
On-g
oing General Fund,
State Affordable Housing
Sustainability Grants,
Developer Funding
T-P.10 Intersection Improvements Monitor multimodal safety at intersections within the Specific Plan Area and identify improvements as needed.
PW Trans Caltrans,
PLNG
On-Going General Fund,
State Affordable Housing
Sustainability Grants,
Developer Funding
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San Pablo Avenue Specific Plan Final Draft 133
Action Description
Lead
Responsibility Partners Timeline
Potential Funding
Source
T-P.11 Pedestrian Crossing Design Monitor safety at the pedestrian crossings that have been identified for additional improvements.
T-P.12 Minor Side-Street Intersection Improvements Same actions as for T-P.10 Intersection Improvements, above.
Prioritize, design, and implement improvements based on safety and available funding. Monitoring safety, updating prioritization, and types of improvements are addressed in T-P.19 Monitor Changing Multimodal Needs and Conditions.
Include in other planned
public improvement
project
Supportive Implementation Action:
Verify that the Pedestrian Plan update reviews and prioritizes intersection improvements in the Specific Plan Area.
PW Trans 1 to 2 years
for Pedestrian
Plan update
General Fund
T-P.13 Make Safety Improvements at Driveways
Monitor development and other improvement projects with driveways on major roads and require that safety improvements are made as needed as part of proposed projects.
PW Trans and
PLNG
Caltrans On-Going Funded by
owner/developer
T-P.14 Prioritizing Multimodal Safety Improvements
• As multimodal safety, access, and comfort issues are
identified through on-going review of collision data and transportation safety studies are performed in the Specific Plan Area, continue to identify and prioritize multimodal safety improvements at these locations. For those with particular modal priorities, implement T-P.15 Transit Improvements, T- P.16 Bicycle Improvements, and T-P.17 Pedestrian
Improvements below.
• P
rioritize safety improvements identified in A
ppendix D.
PW Trans Caltrans and
Alameda CTC
On-going,
address other
improvement-
s as identified
General fund (staff time)
State, Regional, or
Alameda CTC CIP or grant
funding
Supportive Implementation Action:
• As part of the Vision Zero Action Plan update, maintain the designation of the full length of San Pablo Avenue as a high- injury street. The Pedestrian Plan update reflects this by PW Trans 1 to 2 years General Fund
Chapter 6: Implementation
San Pablo Avenue Specific Plan Final Draft 134
Action Description
Lead
Responsibility Partners Timeline
Potential Funding
Source
designating the full length of San Pablo Avenue as a Prioritized High-Injury Street.
T-P.15 Transit Improvements
• Continue to coordinate AC Transit service through on-going staff communication and the AC Transit/City of Berkeley Interagency Liaison Committee to best serve the needs of Specific Plan Area residents, businesses, workers, and visitors. • C oordinate with partner agencies to set a timeline for achieving Transit First Policy 18, to complete the University Avenue transit corridor pla
n by 2029; or as possible given funding
constraints. This could be done as part of a University Avenue Specific Plan process to update the 1996 University Avenue Area Plan.
• Verify citywide priorities between University Avenue and San Pablo Avenue through an update of Vision Zero Action Plan, as studying transit improvements is part of comprehensive
multimodal access and safety planning efforts for both streets.
PW Trans and
PLNG
AC Transit, BART,
and Capitol
Corridor
Service
Coordination:
on-going
University
Avenue
Transit Study:
establish
timing for
study in next
1 to 3 years
General Funds from City
and partner agencies
Coordinate with partner
agencies for County,
Regional, and State grant
funding
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San Pablo Avenue Specific Plan Final Draft 135
Action Description
Lead
Responsibility Partners Timeline
Potential Funding
Source
T-P.16 Bicycle Improvements
• Russell/Oregon Street and Heinz Street intersection
improvements – These intersections and the sections of San Pablo Avenue between them are being planned for bicycle and pedestrian improvements as part of the Alameda CTC Bus
Land and Bike Lane Project. Given the current estimate of 2035 for completion of this project and the Bike Plan Updates identification of this project as a priority, the City will begin working with Caltrans and Alameda CTC to complete these improvements as an independent project.
• P rioritize bicycle improvements to b
est serve the needs of
Specific Plan Area residents, businesses, workers, and visitors.
Work to design and construct priority improvements.
• Also see, T-P.6 Implement Mobility Hub Features in the University Avenue Node implementation action for
implementing bike corral at Addison Street bike boulevard intersection.
PW Trans Caltrans and
Alameda CTC
Russell and
Heinz Street
improvement
to be
determined
On-going,
address other
improvement-
s as identified
Prioritization – General
Fund
Planning, Design, and
Construction – Measure
FF
State, Regional, or
Alameda CTC CIP or grant
funding
T-P.17 Pedestrian Improvements
• Prioritize pedestrian improvements to best serve the needs of Specific Plan Area residents, businesses, workers, and visitors.
Work to design and construct priority improvements.
• A s part of the Pedestrian Plan update, evaluate the streets in the Specific P
lan Area for potential designation as Prioritized
High-Injury Network, and evaluate prioritization of pedestrian improvements in the Specific Plan Area as well as those providing access to the Specific Plan Area.
PW Trans Caltrans and
Alameda CTC
On-going,
address other
improvement-
s as identified
1 to 2 years
for Pedestrian
Plan Update
Prioritization – General
Fund
Planning, Design, and
Construction – Measure
FF
State, Regional, or
Alameda CTC CIP or grant
funding
T-P.18 Prioritize Connection with Surrounding Neighborhoods and Districts
Review and update priorities for future residents’ needs for multimodal connections with the surrounding community and take these priorities into consideration in future updates to the Berkeley Pedestrian Plan, the Bicycle Plan, and the Transit First Policy Implementation Plan.
PW Trans P
artner agencies Per timing of
updates to
other modal
plans
General fund
G
rants
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Action Description
Lead
Responsibility Partners Timeline
Potential Funding
Source
T-P.19 Monitor Changing Multimodal Needs and Conditions • Coordinate with citywide priorities by assessing and prioritizing multimodal and pedestrian-focused improvements in the
Specific Plan Area at a citywide policy level through the updates to the Vision Zero Plan and Pedestrian Plan.
• W ork with partner agencies to u
ndertake periodic safety
assessments and assess multimodal needs within the
Specific Plan Area and the safety record of streets in the Specific Plan Area. This could include a review and update of priorities and needed improvements. Use this updated list to guide future implementation, reflecting current conditions, safety need and community input.
PW Trans Partner agencies 1 to 2 years
for Plan
Update
coordination
Periodically
as needed
Coordinate
with updates
to modal
plans
General Fund (staff time)
1BPublic Realm
PR-P.1 Sidewalk Zones
Implement the Specific Plan’s sidewalk zone standards through public improvement projects and private improvements including sidewalk widening and private improvements in the public right of way associated with development projects.
Overtime, as public improvements are made to San Pablo Avenue and new development occurs, projects and planning approvals will reestablish the public right of way where adjacent landscape or other elements have reduced it.
Related standards to be used in implementation of this policy include:
• LU-S.1 Sidewalk Expansion Incentive
• PR-S.1 Sidewalk Zone Standards
• PR-S.2 Reestablish Sidewalk Width
PW PLNG
Partner agencies,
private
development,
and businesses
On-going Funding through other
public and private
projects
Permit Service Center
fund
PR-P.2 Sidewalk Incentive PW PLNG
D
evelopers
On-going Funding through other
public and private
projects
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Action Description
Lead
Responsibility Partners Timeline
Potential Funding
Source
Review development projects to ensure that the required public sidewalk widening are provided and verify proper use of incentive credit for reduction of required Private Usable Open Space.
Related standards include:
• LU-S.1 Sidewalk Expansion Incentive
• PR-S.1 Sidewalk Zone Standards
• PR-S.2 Reestablish Sidewalk Width
PR-P.3 Improve Street Lighting for the Safety and Comfort of All Users
Integrate the design recommendations in this policy into the City’s draft Streetlight Comprehensive Plan and in the interim use the design recommendations to guide street lighting improvements that are made within the Specific Plan Area.
PW Partner agencies 1 to 2 years General Fund (staff time) Permit Service Center
fund
PR-P.4 Enhance Street Tree Health and Expand Tree Canopy The City and developers/property owners will plant new trees and/or improve conditions for existing trees as part of public improvements made to streets and sidewalks through public projects and as required for new development and major remodeling projects. New tree plantings and improvements will be made in compliance with the following Specific Plan standards:
• PR-S.3 San Pablo Avenue Tree Standards
• PR-S.4 University Avenue Tree Standards
• PR-S.5 Other Side-Street Trees
• PR-S.6 Landscaping in Tree Wells and Planters
PW
Developers or
property owners
PRW and PLNG,
review planned
improvements
On-going General Fund (staff time)
Potential new Parks and
Recreation Fees
Grants or General Fund
for City improvements
Developer or property
owners for private
improvements
PR-P.5 Enhance and Expand Other Landscaping
The City and developers/property owners will plant other landscaping as part of public improvements made to streets and sidewalks through public projects, as required for new development and major remodeling projects, and in tandem with other improvements that property owners, businesses and residents may make along sidewalks adjacent to their PW
Developers,
property owners,
or businesses
PRW, review
planned
improvements
On-going General Fund (staff time)
Potential new Parks and
Recreation Fees
Grants or General Fund
for City improvements
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Source
properties. New landscape plantings and improvements will be made in compliance with the following Specific Plan policies and standards:
• PR-S.6 Landscaping in Tree Wells and Planters
• P R- P.6 Long-term Landscaped Median Design
• PR-P.7 Near-term Opportunities for Re-landscaping Medians • PR-P.8 Green Infrastructure in Public Projects
• PR-P.9 Green Infrastructure in Private Development
Developers, property
owners, businesses, or
residents for private
improvements
Street Furniture
The City and developers/property owners will install street furniture as part of public improvements made to streets and sidewalks through public projects, as required for new development and major remodeling projects, and in tandem with other improvements that property owners, businesses and residents may make along sidewalks adjacent to their properties. New street furniture installations will be made in compliance with the following Specific Plan policies and standards:
• PR-S.7 Public Seating
• PR-S.8 Trash and Recycling Receptacles
• PR-S.9 Bicycle Racks
• PR-S.10 Raised Planters
• PR-P.11 Other Street Furnishings
Also see, T-P.6 Implement Mobility Hub Features in the University Avenue Node implementation action for implementing bike corral at Addison Street bike boulevard intersection.
PW and PRW Developers,
property owners
or businesses
On-going General Fund
Grants
Developers, property
owners, or businesses
Bus Stop Improvements
The City and AC Transit will work together to evaluate and improve bus stops in the Specific Plan Area in support of the following Specific Plan policies:
• PR-P.10 Continue to Improve Bus Stops
PW Trans and
AC Transit
Caltrans Following
completion of
Alameda CTC
Safety
Enhancement
Project and
on a 5-year
evaluation
cycle after
Grants and Measure FF
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Responsibility Partners Timeline
Potential Funding
Source
PR-P.6 Long-term Landscaped Median Design
The City will provide long-term guidance for median landscape design and planting based on the recommendations in this policy and related Specific Plan standards and policies, including:
• P R- S.3 San Pablo Avenue Tree Standards
• PR-S.4 University Avenue Tree Standards
PW and PRW On-g
oing General Fund (staff time)
Grants
PR-P.7 Near-term Opportunities for Re-landscaping Medians As intersection and other improvements are made to San Pablo Avenue associated median improvements the design of the improvements will implement Specific Plan policies and standards, including:
• P
R- S.3 San Pablo Avenue Tree Standards
• PR-S.4 University Avenue Tree Standards
• PR-P.6 Long-term Landscaped Median Design
PW PRW, review
planned
improvements
On-g
oing General Fund (staff time)
Grants or General Fund
for City improvements
PR-P.8 Green Infrastructure in Public Projects
Implement green infrastructure improvements as required by the current MRP and/or the Caltrans NPDES permit as applicable to the public improvement project and in consideration of the guidance in this policy.
PW an d Caltrans PRW and PW,
review planned
improvements
On-going General Fund (staff time)
PR-P.9 Green Infrastructure in Private Development
The City and developers/property owners will coordinate implementation of green infrastructure in the public realm as part of private project investments.
Developers,
p
roperty owners,
or businesses
PRW, PW, and
PLNG review
planned
improvements
On-g
oing Developers, property
owners, businesses, or
residents for private
improvements
Permit Service Center
fund
PR-P.10 Continue to Improve Bus Stops PW Trans Alameda CTC C
altrans
AC Transit
City of Albany
On-g
oing General Fund (staff time)
for partner agency
coordination and
discussions
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Responsibility Partners Timeline
Potential Funding
Source
The City will coordinate with Alameda CTC, AC Transit, and Caltrans to identify funding for bus stop improvements independent from the Alameda CTC San Pablo Avenue Projects.
Grants
PR-P.11 Other Street Furnishings
Additional public street furnishings, such as public restrooms or information kiosks, will be installed in the right of way where an identified need exists. As these needs are determined, it may be appropriate to identify Specific Plan Area standards that are coordinated with the street furnishing standards in the Specific Plan.
PW and PRW C altrans
AC Transit
As needed General Fund (staff time)
Budgets of specific
projects implementing
other street furnishings
PR-P.12 Facilitate Wayfinding and Placemaking Programs
Identify opportunities to implement wayfinding and placemaking as part of the implementation of the following Economic Development policies:
• ED-P.4 Support and Expand Existing Business Clusters
• ED-P.5 Study Feasibility of Forming a Business Improvement District (BID) or Community Benefit District (CBD)
OED PW and Caltrans
Potential future
BID
On-going and
up to 5 years
General Fund (staff time)
Support from local
businesses
Grants
PR-P.13 Facilitate Installation of Public Art that Benefits the Public Realm
OED/Civic Arts, Public Works, and Parks, Recreation and Waterfront staff are to review feasibility of integrating public art into public improvement projects within the Specific Plan Area as those projects receive funding for conceptual design, environmental documentation, and final design.
OED/Civic Arts
a
nd Civic Arts
Commission
PW and PRW On-g
oing General Fund (staff time)
Grants
Donations for design and
installation of art
PR-P.14 Design for People of All Ages and Abilities
Public improvements in the Specific Plan Area will be design, implemented, maintained, and operated through the use of a universal design approach that meets and exceeds compliancy with the Federal Public Right-of-Way Accessibility Guidelines (PROWAG) and Americans PW and PRW Partner agencies
Potential future
BID
On-going Planning, Design, and
Construction – General
Fund, Measure FF, and
other local, regional, and
state funding; and private
funding as appropriate.
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Responsibility Partners Timeline
Potential Funding
Source
with Disabilities Act (ADA) regulations by following the guidance of this policy and other best practices of universal design.
Maintenance and
operations – General
Fund and private funding
as appropriate.
PR-P.15 Create Side-Street Plazas
Implementation of this policy will utilize a phased process:
In the near-term, City staff will reach out to non-profits, businesses, neighborhood groups, and other community organizations to identify opportunities for quick-build plazas. If community partners are identified and commit to supporting implementation, funding can be pursued, improvements can be designed and implemented, along with an assessment to verify viability of full or partial street access.
If community partners are not identified, the City may choose to pursue near-term quick-build plazas as a public project if funding is available.
The City will also coordinate with other City efforts (see implementation actions of T-P.2 Future Transportation Study Needs for San Pablo Avenue) and other agency transportation improvement projects to include them as priority improvement projects.
PW, OED, BFD,
and PRW
Community
partners and
Caltrans
Up to 3 years General Fund (staff time)
Community partner’s
funds
Grants
Long-term, City staff and community partners, including potential future BID(s) can pursue design, fundraising, and implementation of permanent side-street plazas.
Community
p
artners
PW, OED, P RW,
Alameda CTC
and Caltrans
3 to 6 years
and after
near-term
implementati
on
Community partner’s
funds
Potential new Parks and
Recreation Fees
Grants
In the near-term and long-term, the City will pursue opportunities to implement side-street plazas by funding and undertaking the design and construction of permanent side-street plazas as standalone projects or in conjunction with adjacent public improvement projects.
The Berkeley Fire Department will be included as principal and equal partner in the selection and design of locations.
BFD, P
W and
PRW
Alameda CTC
and Caltrans
On-g
oing General Fund (staff time)
Grants
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Responsibility Partners Timeline
Potential Funding
Source
New development projects may design, build, and provide activation for side-street plazas adjacent to their projects.
Developer PL NG, PW, P RW,
and Caltrans
As proposed Developers
PR-P.16 Support Use and Creation of Parklets
For the first 3 years of Specific Plan implementation, waive annual Outdoor Commerce Use Fee for parklets using free parking spaces and reduce paid parking fee by 75% for parklets using paid parking spaces.
After 3 years of implementation, review effectiveness of fee reductions and revise as needed.
PW OED
PLNG
Up to 3 years;
afterwards,
review and
revise fee
reductions as
needed
Businesses, property
owners, Parking Meter
Fund
PR-P.17 Design and Use of Curb Extensions
When a developer or property owner receives approval for construction and use of a curb extension, waive annual Sidewalk Seating Permit fees for up to 10 years from the first commercial use of the increased sidewalk space.
After 3 years of implementation,
review effectiveness of fee reductions
and revise as needed.
PW OED Up to 3 years;
afterwards,
review and
revise fee
reductions as
needed
Businesses, Permit
Service Center Fund
PR-P.18 Commercial and Other Private Use of Sidewalks and the Public Realm
Short Term Use and Activation – In the near-term, OED staff should facilitate community, business, and property owner- supported activation of the public realm by informing potential partners about possibilities and supporting them in getting permit approvals for activation and use of public space.
When a developer or property owner receives approval to expand the sidewalk and applies for commercial use of the sidewalk, waive annual Outdoor Commerce fee for up to 10 years from the first commercial use of the increased sidewalk space.
After 3 years of implementation, review effectiveness of fee reductions encouraging active commercial use of the sidewalk in the Specific Plan Area, and revise as needed.
OED and
Community
partners
PW, PRW,
Caltrans
Up to 5 years OED (initial staff time)
Potential new Parks and
Recreation Fees
Community partner’s
funds
Grants
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Action Description
Lead
Responsibility Partners Timeline
Potential Funding
Source
Short Term or On-going Use and Activation – Potential BIDs or property owners/managers who have implemented side-street plazas, POPOs, or provided sidewalk widening can propose and implement activations that receive permit approval.
BIDs or property
o
wners and
managers
PW, PR&W,
Caltrans
As proposed B
ID or property
owner/manager funds
PR-P.19 Purchase Underutilized Small Properties for Public Open Space
Assess potential for funding the cost of property acquisition.
PRW PLNG Up to 3 years General Fund (staff time)
Following assessment, if funding can be identified, move forward to purchase, improve, and maintain new public open space.
PRW — 3 years after
assessment
complete
Potential new Parks and
Recreation Fees
Grants
Supportive Action – Nexus Study to Support Citywide Park and Open Space Funding
Parks, Recreation and Waterfront Department staff should undertake a citywide nexus study that assesses the need for new parks and public open spaces within the Specific Plan Area and evaluates the legal and financial basis for establishing a development impact fee and/or adjusting the local property tax rate to support property acquisition, development and maintenance of public park space within the Specific Plan Area and maintenance of parks elsewhere in the city.
Related Policy: PR-P.18 Purchase Underutilized Small Properties for Public Open Space
PRW PW
PLNG
Up to 3 years General Fund
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Responsibility Partners Timeline
Potential Funding
Source
PR-P.20 Privately Owned Public Open Spaces
Implement supportive land use policies and standards.
• LU-S.2 Privately-Owned Public Open Space within Designated Nodes Incentive
PLNG and PRW Developers On-going Permit fees for review and approval
General Fund for ongoing
review of operations and
maintenance
2BUtilities and Fire Services
Implementation of infrastructure services and improvements will be achieved through current and on-going policies, programs, and actions.
PW P
LNG
(Development
Review)
Utility provider
partners
On-g
oing Utility and City
Development Fees
Conduct periodic analysis of how increased population, density, and building heights change the community’s risk profile, Fire Department deployment, staffing, facilities, and equipment. The review would include analysis of Standards of Coverage and Community Risk Assessment, updated San Pablo Fire/EMS Deployment Impact Analyses, and increased demand for Fire Life Safety Plans Examiners and Fire Prevention Inspectors, for review of proposed plans new construction, and on-going routine fire inspections.
BFD PLNG 3 years after
adoption, and
every 5 years
thereafter.
General Fund
San Pablo Avenue Specific Plan Final Draft
Appendix A:
Key Existing Conditions
San Pablo Avenue Specific Plan
- Final Draft –
Appendix A: Key Existing Conditions
Project Team
Community Design + Architecture
Urban Planning Partners
Street Level Advisors
InterEthnica
Aaron Welch Planning
Fehr & Peers
Diablo Engineering
Table of Contents
Introduction ................................................................................................................................................... 1 San Pablo Specific Plan Area and Study Area ................................................................................................... 2 Community Demographic and Housing Characteristics ................................................................................... 4 Population Change ........................................................................................................................................ 4 Racial and Ethnic Diversity and Equity ............................................................................................................. 6 Household and Housing Conditions ................................................................................................................ 8 Infrastructure Assessment ........................................................................................................................... 12 Mobility Conditions, Projects, and Planning .................................................................................................. 13 Land Use Planning Policies and Gaps ............................................................................................................ 19 Existing Land Use Policies and Standards ..................................................................................................... 19 Zoning ......................................................................................................................................................... 21 Existing Land Use ......................................................................................................................................... 23 State Legislation and Regional Policies ......................................................................................................... 27 Existing Policy Capacity Assessment ............................................................................................................ 28 Affordable Housing Policies and Potential Production ................................................................................... 32 Commercial Displacement Risk ................................................................................................................... 33 Existing Commercial Conditions ................................................................................................................... 33 Potential Future Changes to Supply of Commercial Space ............................................................................. 35 Public Realm Assessment ............................................................................................................................ 37 Streetscape Conditions ............................................................................................................................... 37 Safety ......................................................................................................................................................... 40 Community Life along San Pablo Avenue ...................................................................................................... 40 Resilience and Climate Adaptation Conditions and Plans .............................................................................. 43 Existing Plans .............................................................................................................................................. 43 Potential Future Opportunities ..................................................................................................................... 45 Appendix A.1 ................................................................................................................................................ 47 Appendix A.2 ................................................................................................................................................ 50
Appendix A: Key Existing Conditions
San Pablo Avenue Specific Plan Final Draft Page 1 of 50 Introduction
This report describes the location of the Specific Plan Area and surrounding Study Area, and the key existing conditions in the area that will inform the public planning process and development of the Specific Plan’s policies, standards, and implementation actions.
The desired outcomes of the San Pablo Avenue Specific Plan are to:
• Identify the community’s vision for the future of the area. • Provide a framework for that offers opportunities for living, working, and taking part in community life. • Defines policies, standards, and implementation actions for achieving the community’s vision. • Prioritizes equity, promotes inclusivity, and strives to eliminate disparities
This document includes the following sections:
1. San Pablo Specific Plan Area and Study Area defines the Specific Plan Area, and the Study Area surrounding the Plan Area, and the methodology used in defining these planning areas .
2. Community Demographics and Housing Characteristics presents assessments of recent population change and shifts in racial and ethic diversity. It includes an overview of historic and current policies related to equity, and an assessment of household incomes, tenancy, and housing cost with the Study Area.
3. Infrastucture Assessment provides information on the relationship between expected growth in the Specific Plan Area and the capacity of utilities and other infrastructure to serve these expanded needs.
4. Mobility Conditions, Projects, and Planning describes existing traffic conditions, transit services, recent transportation safety conditions, and related plans and policies, including transportation improvement projects planned between 2025 and 2028.
5. Land Use Planning Policies and Policy Gaps provides an overview of existing land use, policies and standards, along San Pablo Avenue, State legislation and regional policies that will influence the development of the Specific Plan, an estimate of the housing capacity of existing policies, and a discussion of the policy gaps that the Specific Plan can address.
6. Affordable Housing Policies and Potential Production describes recent and the potential production of affordable housing in the Specific Plan Area given existing State and local policies, including Berkeley’s affordable housing preference policy.
7. Commercial Displacement Risk provides an assessment of existing commercial conditions along San Pablo Avenue focusing on locally owned businesses. The assessment highlights the types of businesses that have a risk of displacement and the factors that influence the risk of displacement.
8. Public Realm Assessment describes the conditions that shape the public realm along San Pablo Avenue including streetscape, sidewalk conditions, and building and site frontages along the street. Safety conditions and people’s perception of safety are discussed. An assessment of existing co mmunity life and the factors that shape the potential for community life along San Pablo Avenue is also included.
9. Resilience and Climate Adaption Conditions and Plans describes the elements and policies of the Local Hazard Mititgation Plan and the Climate Action Plan that are related to the Specific Plan Area. Relevant General Plan Open Space and Recreation policies, a discussion of San Pablo Avenue’s urban tree canopy, and potential for the Specific Plan Area to be a designated Transit-Oriented Community are also provided.
Appendix A: Key Existing Conditions
San Pablo Avenue Specific Plan Final Draft Page 2 of 50 San Pablo Specific Plan Area and Study Area
The San Pablo Specific Plan Area is informed by the existing Priority Development Area (PDA) boundary and is comprised of individual parcels for which the Plan's policies, standards, and implementation actions will apply . The City of Berkeley identified and nominated the PDA boundary along San Pablo Avenue during the formation of Plan Bay Area 2050 (2021) and in response to regional land use and transportation planning, and associated planning and funding opportunities.1 These parcels primarily front onto San Pablo Avenue and are zoned West Berkeley Commercial (C-W). In addition, adjacent parcels with the C-W zoning that are on side streets to San Pablo Avenue or in designated nodes are also included (see further discussion of nodes in the Land Use section). Along University Avenue, the majority of properties are zoned C-W and University Commercial District (C-U), and these properties are included as well. Some parcels are “split zoned” between C-W and another zoning designation See 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 Area extends from the I-80 freeway in the west to Sacramento Street in the east and from Albany in the north to Emeryville and Oakland in the south. See Figure 1. The Study Area is included in select existing conditions assessments to gain an understanding of the social and economic relationships between San Pablo Avenue and West Berkeley, to identify historic and culturally significant2 locations in proximity to San Pablo Avenue, and to identify parks, open spaces, and other community assets that are used by people living and working in the Specific Plan Area .
1 Information regarding Priority Development Areas (PDAs) can be found on the Metropolitan Transportation Commission’s https://mtc.ca.gov/planning/land-use/priority-development-areas-pdas 2 For this analysis, Cultural Significance means that the business advances art and culture; meets a specific need for a particular group; or may hold a special meaning for a cultural group.
Appendix A: Key Existing Conditions
San Pablo Avenue Specific Plan Final Draft Page 3 of 50 Figure 1. Proposed Specific Plan Area and Study Area. Source: City of Berkeley, 2023. Metropolitan Transportation Commission (MTC), 2023.
Appendix A: Key Existing Conditions
San Pablo Avenue Specific Plan Final Draft Page 4 of 50 Community Demographic and Housing
Characteristics
Population Change
Berkeley’s population grew by 9% from 2010 to 2020, to 122,580 people. In contrast, the Study Area grew by 16% in that time, to a population of 26,360 people, 22% of Berkeley’s total population.3 The extent of population growth or decline varied in different parts of the city during this time. The western-most census tract in the city, portions of Downtown, and Southside experienced the largest population growth, increasing by 2,404, 1,019, and 2,877 people, respectively. The population of the western-most census tract in Berkeley, and in the Study Area, increased by 137%. See Figure 2. Other census tracts in the Study Area experienced population growth that was similar to other parts of the city .
Between 2010-2020, the number of housing units in Berkeley increased by 6% (2,877 units). New housing was primarily developed along major corridors, like San Pablo, University , Shattuck, Telegraph and Dwight Way. See Figure 3. 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.4
Figure 2. Population Change from 2010 to 2020. Source: United States Census Bureau. Decennial Census. 2010, 2020, Table P1.
3 United States Census Bureau. Decennial Census. 2010-2020, Table P1. [Online] https://data.census.gov/. 4 Markovich, Ally. “A Changing Berkeley: 6 Maps Show How the Past Decade Has Remade the City.” Berkeleyside, 18 Oct. 2022. http://www.berkeleyside.org/2022/07/17/berkeley-population-demographics-housing-census-2020-maps
Appendix A: Key Existing Conditions
San Pablo Avenue Specific Plan Final Draft Page 5 of 50
Figure 3. Change in Housing Units by Census Block, 2010 to 2020. Source: United States Census Bureau. Decennial Census. 2010, 2020, Table H1.
Appendix A: Key Existing Conditions
San Pablo Avenue Specific Plan Final Draft Page 6 of 50 Racial and Ethnic Diversity and
Equity
Racial and Ethnic Population Change: The White
population increased by over 3,900 (+45%) from 2000
to 2020. In the same time span, the Black population
decreased by over 2,600 (-39%), while the population
increase of Hispanic/ Latinx, Asians/ API, and other
races was moderate. 5 See Figure 4. Historical data
shows citywide Black population decreased from its
peak of 27,421 (23.5% of total population) in 1970 to
9,812 (8% of total population) in 2020. See Figure 5.
Changes in Racial and Ethnic Diversity: From 2000 to
2020, the Diversity Index6 for the Study Area decreased slightly from 72.8% to 71.6% while the city’s Diversity Index increased from 63.9% to 67.6%. In comparison,
the Alameda County’s Diversity Index was 74.6% in
2020.7
Historic Redlining and Equity: In 1933, as part of the federal program and policies, the Home Owners’ Loan Corporation (HOLC) was created to refinance home mortgages and expand home buying opportunities. HOLC is the originator of the color-coded mortgage security risk practice known as redlining and redlined the majority of the Specific Plan Area and Study Area. See Figure 6. This discriminatory practice withheld significant investment to areas deemed “D (Hazardous),” because of adjacent industrial areas, older buildings, and the presence of “undesirable populations” (e.g., Jewish, Asian, Mexican, and Black families). Due to this redlining practice, marginalized minority
5 United States Census Bureau. Decennial Census. 2000, Table 7. 2010-2020 Table 9. [Online] https://data.census.gov/. 6 A measure used by the U.S. Census Bureau that calculates the probability of two random people, picked from a population, are from different Racial and Ethnic Groups. The higher the number, the more diverse a population is. 7 United States Census Bureau. Decennial Census. 2000, Table 7. 2010-2020 Table 9. [Online] https://data.census.gov/.
Figure 4. Population Shift by Race and Ethnicity in Study Boundary. Source: United States Census Bureau. Decennial Census. 2010, Table P7. 2020, Table P1.
Figure 5. Comparison of Racial Composition in Study Area, Berkeley, and Alameda County. Source: United States Census Bureau. Decennial Census. 2010, Table P7. 2020, Table P1.
Appendix A: Key Existing Conditions
San Pablo Avenue Specific Plan Final Draft Page 7 of 50 communities were restricted to south and west Berkeley . 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 racial and economic segregation, economic inequality, risk of displacement, and associated conditions.
As a result of being historically underserved, the Study area is part of the Metropolitan Transportation Commission (MTC)'s Equity Priority Communities (EPCs)8. The EPC designation helps provide funding and assistance to c ensus tracts that have a significant concentration of underserved populations, such as households with low incomes, limited English proficiency, zero-vehicle households, seniors 75 years and over, people with disability, single-parent families, and severely rent-burdened households, and people of color. EPC designations are used to make decisions about:
o Planning, including Plan Bay Area, the Transportation Improvement Program and equity analyses ; o Investment of funds, including the Active Transportation Program, OBAG Grants, Community -Based Transportation Planning Grants and the Lifeline Transportation Program ; and o Engagement with the community9
Figure 6. Equity Priority Communities and Historical Redlined Areas. Robert K. Nelson and Edward L. Ayers, Mapping Redlining, 2023. Metropolitan Transportation Commission (MTC), Equity Priority Communities, 2021.
8 Equity Priority Communities (EPC) is a term defined by the Metropolitan Transportation Commission (MTC) that identifies Bay Area communities that are or have historically been underserved. For more information, go to: https://mtc.ca.gov/planning/transportation/access-equity- mobility/equity-priority-communities.
9 More about EPC priorities in funding programs can be found on the MTC weblink above.
Appendix A: Key Existing Conditions
San Pablo Avenue Specific Plan Final Draft Page 8 of 50 Household and Housing Conditions
Household Income Distribution
The neighborhoods in the Study Area are a mix of high- and low-income households. To better visualize the location of lower-income households, Figure 7 shows the household income range of the lowest twenty percent in each census tract in Berkeley. Neighborhoods to the south and east of San Pablo Avenue have the lowest income quintiles ranging from $15,000 - $45,000. The tracts north of University Avenue display higher quintile ranges, with lowest quintiles over $30,000.
Figure 7. Household Income for Lowest Quintile. Source: United States Census Bureau. ACS. 2021, Table B19080.
Appendix A: Key Existing Conditions
San Pablo Avenue Specific Plan Final Draft Page 9 of 50 Household Tenancy
Citywide Berkeley had more renter-occupied units (54%) than owner-occupied (46%) in 2021. The Study Area, with about 10,781 units, has a higher share of renters (55.3%) relative to owners (44.7%) compared to the Citywide share.10 See Figure 8.
Overcrowded Housing
U.S. Census Bureau defines overcrowded housing as units with 1.01 or more persons per room, excluding bathrooms and kitchens.11 If the occupancy surpasses 1.5 persons per room, a unit is classified as severely overcrowded. In 2021, the Study Area contained 319 occupied units that were overcrowded. This accounts for 30% of overcrowded housing citywide, while only 17% of the city’s total households and 22% of the city’s population live in the Study Area.12 In the Study Area, significantly more renter-occupied households (237) were overcrowded than owner- occupied (82 households).
Figure 8. Mix of Households that Own or Rent in Berkeley. United States Census Bureau. ACS. 2021, Table DP04.
10 United States Census Bureau. American Community Survey. 2021, Table B25014. [Online] https://data.census.gov/. 11 Definition of overcrowding and severe overcrowding are from the US Department of Housing and Urban Development. For more information, go to: hcd.ca.gov/planning-and-community-development/housing-elements/building-blocks/overpayment-payment-and-overcrowding. 12 United States Census Bureau. American Community Survey. 2021, Table B25014. [Online] https://data.census.gov/.
Appendix A: Key Existing Conditions
San Pablo Avenue Specific Plan Final Draft Page 10 of 50 Household Income and Housing Cost
In 2021, the Study Area median household income ($93,871) was about $7,000 below the Berkeley median ($101,048). The median household incomes increased by similar levels in both the Study Area (+79%) and Berkeley as whole (+78%) from 2010 to 2021.13
Renters at the southern end of the Study Area pay higher shares of their income on rent on average. In several neighborhoods on the northern end of the Study Area, the average tenant is paying less than 20% of their income in rent, while there are several neighborhoods on the south end of the Study Area where the average is above 50%.14 See Figure 9.
Owners in the area are spending a lower share of their income on housing costs, costs reflect sum of payments for mortgages, deeds of trust, contracts to purchase, or similar debts , on the property than renters are, on average.15 See Figure 10.
Figure 9. Median Gross Rent as a Percentage of Household Income. Source: United States Census Bureau. ACS. 2021, Table B25071.
13 United States Census Bureau. American Community Survey. 2021, Table S2503. [Online] https://data.census.gov/. 14 United States Census Bureau. American Community Survey. 2021, Table B25071. [Online] https://data.census.gov/. 15 United States Census Bureau. American Community Survey. 2021, Table B25092. [Online] https://data.census.gov/.
Appendix A: Key Existing Conditions
San Pablo Avenue Specific Plan Final Draft Page 11 of 50
Figure 10. Median Selected Monthly Owner Cost as a Percentage of Household Income. 16 Source: United States Census Bureau. ACS. 2021, Table B25092.
Housing Cost Burden
In the Study Area, more than half of tenants are cost-burdened,17 meaning they spend more than 30 percent of their gross household income on rent and utilities. Of those tenants, 26% are severely cost-burdened, meaning they are spending more than 50 percent of their income.18
For severely cost-burdened households (1,513 households), 73 percent (1,118 households) earn less than $35,000 and spend more than 50 percent of their income for rent.19 Household Eligibility for Affordable Housing
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.20 These households would likely be eligible for affordable housing.
16 “Selected Monthly Owner Cost” includes recurring payments like dept (if any), taxes, insurance and utilizes. For more information on definition and methodology, please visit: https://www.census.gov/quickfacts/fact/note/US/HSG650221 17 Definition of cost-burden and severe cost-burden are from the US Department of Housing and Urban Development. For more information, go to:
hcd.ca.gov/planning-and-community-development/housing-elements/building-blocks/overpayment-payment-and-overcrowding. 18 United States Census Bureau. American Community Survey. 2021, Table B25074. [Online] https://data.census.gov/ 19 United States Census Bureau. American Community Survey. 2021, Table B25074. [Online] https://data.census.gov/ 20 United States Census Bureau. American Community Survey. 2021, Table B19001 [Online] https://data.census.gov/, United States Department of Housing and Urban Development, Income Limits, 2021[Online] https://data.HUD.gov/ Street Level Advisors calculations.
Appendix A: Key Existing Conditions
San Pablo Avenue Specific Plan Final Draft Page 12 of 50 Infrastructure Assessment
Infrastructure includes utility service for domestic water, wastewater, stormwater, telecommunications, electricity, and natural gas. According to the 2023-2031 Housing Element Update Environmental Impact Report (EIR), existing utility systems for domestic water, wastewater, stormwater, telecommunications, electricity , and natural gas facilities in Berkeley have sufficient capacity to serve the planned housing developments. Relocation or construction of new or expanded facilities resulting in significant environmental impacts would not occur, and adequate wastewater capacity exists to serve the project’s projected demand in addition to the provider’s existing commitments. Impacts would be less than significant.
21 Residential capacity based on existing zoning assumes 2,588 existing units in the Specific Plan Area and between 3,700 to 5,350 future multifamily units in the next 8 years. Existing versus future capacity for non-residential use is not anticipated to have much effect on utility upgrade needs . The Housing Element Update EIR studied the sites inventory including a total of 15,153 units. The increase in units in the San Pablo Specific Plan area is negligible in relation to the required infrastructure needs, however some localized improvements will likely be required. • Localized upsizing of domestic water and wastewater in San Pablo Avenue may be necessary to accommodate the additional units. The City of Berkeley and EBMUD typically require individual developments to make these upgrades.
• Stormwater from new development will be required to comply with the Municipal Regional Stormwater NPDES Permit (MRP) requirements. Rainwater management including bioswales, permeable paving, underground stormwater storage and/ or rain gardens will be requi red. • Telecommunications, electricity and natural gas upgrades will continue to be available from the providers.
Typically, the utility companies will upgrade facilities as needed. • Lighting is provided by the City’s Public Works Department.
The Specific Plan process includes consideration of corridor wide and/or district level infrastructure improvements.
This approach could result in efficiencies, multiple benefits, and could spread the cost of localized infrastructure upgrades over multiple developments.
21 City of Berkeley 2023-2031 Housing Element Update, Draft Environmental Impact Report; City of Berkeley; August 2022, page ES-
21.
Appendix A: Key Existing Conditions
San Pablo Avenue Specific Plan Final Draft Page 13 of 50 Mobility Conditions, Projects, and Planning
Transportation Focus of the Specific Plan
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 of Berkeley is responsible for maintenance of the sidewalks and medians, including street trees and landscaping.
The Specific Plan is not making transportation improvements to San Pablo Avenue, because 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 projects 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 effort focused 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.
Traffic Volumes
Annual Average Daily Traffic (AADT) volumes along San Pablo Avenue average about 20,000 vehicles per day in Berkeley. In addition to serving as a major thoroughfare for local travel and providing access to local businesses and residents, San Pablo Avenue also is an alternative route for travelers on I -80 during periods of heavy freeway congestion. Cross streets providing interstate access include Gilman Street (9,000 AADT), University Avenue (19,000 AADT), and Ashby Avenue (42,000 AADT).22
Transit Network
AC Transit – AC Transit provides bus service throughout western Alameda County and Contra Costa County and operates 12 bus routes within the study area that provides direct access to the plan area. See Table 1 and Figure 11.
AC Transit developed a new network in response to changing travel patterns through the AC Transit Realign Plan, which was implemented in August 2025. The Realign Plan did not significantly alter the service within the Specific Plan Area.
Table 1: AC Transit Service Summary (August 2023)
Line Route Nearest Bus Stops Weekday Weekend
Hours Headway Hours Headway
12 MLK Jr. – Temescal –
Grand
On Gilman Street
between San Pablo
Avenue and Tenth Street
5:55 AM – 12:55 AM 20 min 6:00 AM – 12:00 AM 30 min
36 Dwight – Shellmound –
Adeline
On Dwight Way between
Tenth Byron Streets 5:50 AM – 12:35 AM 30 min 5:50 AM – 12:30 AM 30 min 51B University – College –
Rockridge
On University Avenue
between Tenth and
Curtis Streets
4:55 AM – 12:20 AM 15 min 5:00 AM – 12:20 AM 15 min
52 UC Village – Cedar –
UC Campus
On San Pablo Avenue
between Albany City
Limit and Cedar Street
6:00 AM – 11:45 PM 15 min 8:15 AM – 8:25 PM 20 min
22 San Pablo and Ashby Avenue data source – Caltrans Traffic Census Program, 2021; Gilman Street data source – collected for the Gilman Gateway rezoning project, 2019; and University Avenue data source: collected for the San Pablo Avenue Corridor Project, 2018.
Appendix A: Key Existing Conditions
San Pablo Avenue Specific Plan Final Draft Page 14 of 50 Line Route Nearest Bus Stops Weekday Weekend
Hours Headway Hours Headway
72 /
72M
Hilltop – CCC – San
Pablo / Macdonald –
San Pablo
Along entire length of
San Pablo Avenue 4:45 AM – 1:20 AM 15 min 4:55 AM – 1:45 AM 20 min 72L San Pablo Rapid Along entire length of
San Pablo Avenue 6:00 AM – 8:15 PM 30 min 7:00 AM – 7:55 PM 30 min 800 Richmond – Oakland
Transbay All Nighter
On University Avenue at
San Pablo Avenue 12:20 AM – 7:25 AM 30 min 12:20 AM – 7:25 AM 30 min 802 San Pablo All Nighter
On San Pablo Avenue
between University
Avenue and Oakland City
Limit
12:40 AM – 5:35 AM 60 min 12:40 AM – 5:35 AM 60 min
G Colusa – Solano
Transbay
On San Pablo Avenue
between Albany City
Limit and University
Avenue
7:00 AM – 9:45 AM,
4:10 PM – 6:50 PM
30 – 60
min No service No
service
FS Shattuck – University
Transbay
On University Avenue at
San Pablo Avenue
6:10 AM – 8:30 AM,
4:30 PM – 7:25 PM 90+ min No service No
service
J Sacramento – Christie
Transbay
On Ashby Avenue at San
Pablo Avenue
7:10 AM – 10:10 AM,
4:45 PM – 7:00 PM
20 – 60
min No service No
service
Source: AC Transit website, August 2025 Schedules; Fehr & Peers, CD+A, 2025.
West Berkeley Shuttle – This is a free shuttle funded by the Berkeley Gateway Transportation Management Association that provides transit connections between the Ashby BART station and major employment centers in West Berkeley. The shuttle operates on weekdays from 6:00 AM to 10:00 AM and 3:00 PM to 7:00 PM with approximately 30-minute headways. The West Berkeley Shuttle does not currently have any stops on San Pablo Avenue or in the Specific Plan Area. See Figure 11 illustrates the route alignment.
Bear Transit – This is UC Berkeley’s shuttle system, primarily providing service between Campus Park, Downtown Berkeley, and Berkeley Hills. Bear Transit is free for the UC Berkeley community and members of the public may ride for a $1 fare. Prior to the COVID-19 pandemic, Bear Transit provided service to the plan area on the Campus Shared Services (CSS Line). The CSS line operated between the North Berkeley BART Station and the UC Berkeley Shared Services Building on 4
th Street via Delaware Street, San Pablo Avenue, Cedar Street, and Virginia Street.
Lawrence Berkeley National Laboratory (LBL) Shuttle – The LBL operates a free shuttle service for LBL employees and guests between LBL and North Berkeley BART and other destinations in West and North Berkeley. The shuttle provides morning service between 6:00AM and 11:00AM and afternoon service between 3:30PM and 7:30PM. The shuttle operates at 60-minute headways during both periods. The shuttle stops along San Pablo Avenue at Cedar Street, Gilman Street, and Buchanan Street during both morning and afternoon service.
Other Existing and Planned Shuttle Services – In addition to the shuttles described above, Kaiser Permanente used to operate an employee shuttle between the North Berkeley BART Station and its facility on Second Street at Virginia Street in West Berkeley prior to the pandemic. Although this shuttle crossed San Pablo Avenue, they did not directly serve the Specific Plan Area.
The Berkeley Commons Project (600 Addison Street), and TheLAB (747 Bancroft Way) are recently approved developments in West Berkeley that are conditioned to operate shuttles between the North Berkeley BART Station
Appendix A: Key Existing Conditions
San Pablo Avenue Specific Plan Final Draft Page 15 of 50 and their respective sites. Although these shuttles would cross San Pablo Avenue, they are not expected to directly serve the Specific Plan Area.
BART – BART provides regional commuter rail transit in Alameda, Contra Costa, San Francisco, San Mateo, and Santa Clara counties. As of August 2023, BART trains operate weekdays from 5:00 AM to 2:00 AM, Saturdays from 6:00 AM to 2:00 AM, and Sundays from 8:00 AM to 2:00 AM. The North Berkeley, the Downtown Berkeley, and the Ashby BART stations are located to the east of San Pablo Avenue. See Figure 11.
These stations are served by the Richmond-Berryessa-North San José (orange) and Richmond-Millbrae/SFO (red) lines. Other destinations in the BART system can be reached by transferring at stations in Oakland. As of August 2023, the Berryessa-North San José line provides service every 15 minutes on weekdays and every 30 minutes on Saturdays, Sundays, and Holidays. The Richmond-Millbrae/SFO line provides service every 15 minutes on weekdays and every 30 minutes on Saturdays, Sundays, and Holidays. In June 2023, there were approximately 3,400, 8,900, and 3,700 entries and exits on an average weekday from the North Berkeley, Downtown Berkeley, and Ashby BART stations, respectively.
23 Capitol Corridor - 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. There are 12 daily weekday departures and arrivals and 11 daily weekend departures and arrivals per direction at the Berkeley Station.
24 In FY2021, the station served about 26,000 rail passengers.25 The Amtrak station is served by AC Transit Line 51B, with additional bus service nearby. The station provides basic amenities, including outside seating and automobile and bicycle parking.
23 Bay Area Rapid Transit 2019 Monthly Ridership Reports. 24 Amtrak Capitol Corridor Schedule.
25 Amtrak California Fact Sheet, Fiscal Year 2021.
Appendix A: Key Existing Conditions
San Pablo Avenue Specific Plan Final Draft Page 16 of 50
Figure 11. Transit Lines and Bicycle Routes. Source: City of Berkeley, Alameda CTC, and Fehr & Peers, 2023.
Appendix A: Key Existing Conditions
San Pablo Avenue Specific Plan Final Draft Page 17 of 50 Transit-First Policy Implementation Plan – December 2022 This plan provides policies and guidelines for implementing the City’s Transit -First Policy (Berkeley General Plan Policy T-4) and for future planning for the City’s existing transit priority corridors. The plan aligns with the City’s Climate Action Plan goals to prioritize transit over single-occupant vehicles and reduce emissions. Objectives of the plan include improving transit efficiency, reliability, and accessibility, increasing transit ridership, and prioritizing transit corridors.
It 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). San Pablo Avenue Corridor together with the Telegraph and University Avenue Corridors are AC Transit designated future Bus Rapid Transit Corridors and part of the AC Transit Long-Term Improvements (by 2040) plan.
The document describes Alameda CTC’s San Pablo Corridor Project as the lead project for the design of future transit improvements to San Pablo Avenue, and recommends continuing work with Alameda CTC, Caltrans, and neighboring cities to develop a long-term implementation plan for the whole corridor to meet projected transit needs of planned land uses and anticipated growth of housing.
Council Referral for BRT in Berkeley
In September 2023, the City Council referred to the City Manager to move forward with a feasibility analysis and community engagement process to develop options for Bus Rapid Transit (BRT) for AC Transit’s 51B route, including on University Avenue which is designated a Primary Transit Route by AC Transit through their Major Corridors Study.
If the City continues to pursue implementation of BRT service on University Avenue to Downtown this would improve transit access from the San Pablo Specific Plan Area to Downtown, UC Berkeley, BART, and other locations proximate to University Avenue. It would also reinforce the importance of the San Pablo Avenue and University Avenue Node.
Transportation Safety
The entire length of San Pablo Avenue is included in the City of Berkeley’s High- Injury Network. Between 2017 and 2021, there were 190 collisions on San Pablo Avenue that resulted in an injury or death, representing 7% of the Berkeley total.26
Vision Zero Action Plan - This plan was approved March 10, 2019, and describes the goal to eliminate all traffic fatalities and severe injuries in Berkeley by 2028 through data-driven engineering strategies. The plan prioritizes infrastructure within an Equity Priority Area, which includes much of the Study Area. Between 2008 and 2018, 46% of severe and fatal collisions within Berkeley occurred within the EPA area. The plan also identifies San Pablo Avenue as a High-Injury Street, the streets in Berkeley with the most severe injury or fatality collisions between 2008 and 2018.
During that time, there were multiple collisions on San Pablo Avenue that resulted in severe injury to pedestrians and vehicle occupants, but no reported fatalities.
Implementation of the Alameda CTC San Pablo Corridor Project’s Safety Enhancements Project and the bike i
nfrastructure projects are described below. This work will improve traffic calming and pedestrian safety and support the goals of the Vision Zero Action Plan.
Ongoing Projects, Approved Plans and Future Planning
Current City, countywide, and regional action plans focus on multimodal strategies to achieve improvements for all modes of transportation in San Pablo Specific Plan and Study Areas. The alignments of these improvement projects are mapped in Figure 11.
26 Statewide Integrated Traffic Records System (SWITRS) via Transportation Injury Mapping System (TIMS), 2017-2021.
Appendix A: Key Existing Conditions
San Pablo Avenue Specific Plan Final Draft Page 18 of 50 San Pablo Avenue Corridor Project – This project is led by the Alameda County Transportation Commission (“Alameda CTC”) and consists of three near-term projects in the Specific Plan Area to improve safety and transit reliability along the San Pablo Avenue Corridor. Additional information about these projects can be found on the Alameda CTC web site.27
• The Safety Enhancements Project will construct improvements for pedestrians and cyclists to cross San Pablo Avenue more safely and improve transit speed and reliability along San Pablo Avenue. Transit improvements include bus stop bulb-outs for Rapid Bus stops, lighting upgrades, and some bus stop relocations to improve bus operations. Within Berkeley, improvements will extend between Heinz Avenue and the northern city limit. • The Parallel Bike Improvement Project will construct bike safety and connectivity improvements along streets parallel to and across San Pablo Avenue in Berkeley, Albany, and Oakland. Improvements on parallel streets will consist of diverters, traffic circles, modifications to existing stop controls, traffic humps, and vertical separation for bicycles.
• The Bus and Bike Lanes Project located primarilly within the Cities of Oakland and Emeryville will convert one travel lane in each direction on San Pablo Avenue to a bus-only lane and convert on-street parking lanes to protected bike lanes. In Berkeley, the Project’s bicycle improvements will extend along San Pablo Avenue from the southern city limit to Heinz Avenue, a distance of approximately 0.25 miles, and the bus improvements will end at the Ashby Avenue intersection.
Other multimodal projects – The City is moving forward with implementation of several projects identified in the 2017 Bike Plan within the Study Area. These, combined with the Alameda CTC projects, will improve accessibility and safety for bicyclists and pedestrians, enhancing connectivity between the Specific Plan Area and the surrounding Study Area. The project include:
• Ohlone Greenway Safety Improvements Project – This project will improve a portion of the existing pathway from Virginia Gardens to the crossing of Santa Fe Avenue. The project is in conceptual design and has completed initial public engagement. Design is expected to be completed in mid -2024 with construction occurring soon after, assuming necessary additional funds are secured. • Hopkins Corridor Traffic and Placemaking Study – A small portion of this project, from Gilman Street to Sacramento Street is within the Study Area. The project’s goal is to make the street safer and more accessible for all modes of transportation. As of November 2023, the project is on hold due to City staffing constraints and a final decision by City Council regarding project design. • West Hopkins Corridor Street Rehabilitation Project – This project includes Hopkins Street from Gilman Street to San Pablo Avenue. Similar to the other Hopkins Study, as of November 2023, the project is on hold. • Parker-Addison Mobility and Safety Improvement Project – This project will provide bike boulevard and associated improvements to connect from the West Street multiuse pathway to San Pablo Park via Bonar and Mabel Streets. It will also improve Parker Street to connect with the 9 th Street Bike Boulvard. Design is nearly
complete and construction is expected to occur in 2024. • Addison Street Bicycle Boulevard Project – This project has received funding, but design and public involvement has not yet begun. The project’s goal is to make improvements to the Addison Street Bicycle Boulevard from Aquatic Park to Sacramento Street.
• North Berkeley Bicycle and Pedestrian Access Improvements – This is a BART project that is under construction and is improving bicycle and pedestrian access at and around the North Berkeley BART Station to improve connectivity from the Ohlone Greenway at Virginia Gardens to the crossing and connection to the Ohlone Greenway at Sacramento Street.
27 General website for the Alameda CTC project can be found here https://www.alamedactc.org/programs-projects/multimodal-arterial- roads/sanpabloave. Boards illustrating the locations for specific improvements for the Safety Enhancement and Parallel Bike Improvement Projects can be found on the “Key Materials” page.