Public Works & Transportation Committee
November 19, 2024
AGENDA REPORT
TO: Jestin D. Johnson FROM: Michael Kashiwagi
City Administrator Interim Director, Oakland
Public Works
SUBJECT: Waterfront Bay Trail Update DATE: November 05, 2024
City Administrator Approval Date:
RECOMMENDATION
Staff Recommends That The City Council Receive An Informational Report On The Status Of Waterfront Bay Trail Implementation.
EXECUTIVE SUMMARY
This Informational Report is an update on the status of Oakland Waterfront Bay Trail Implementation. At the request of the Public Works and Transportation Committee, this memorandum is the eighth update since July 2017 on the City of Oakland (City) efforts and progress in implementing continuous Bay Trail projects along the Oakland Waterfront.
BACKGROUND / LEGISLATIVE HISTORY
From the total $198,250,000 Measure DD General Obligation Bond approved by voters in 2002, $53,000,000 was allocated to the Estuary Waterfront Access category. Of that allocation, $43,500,000 is designated for waterfront trail and park acquisition and construction. Through this category of funding, Oakland is completing local segments of the regional San Francisco Bay Trail, a 500-mile walking and cycling path around the San Francisco Bay that passes through 47 cities and all nine Bay Area counties. Annual reports have been provided on July
11, 2017; March 13, 2018; January 15, 2019; February 10, 2020; March 3, 2021; March 21, 2022; and March 13, 2023.
Since the last annual report, the Fruitvale Land Crossing Bay Trail segment (approximately 420 linear feet) has been completed as shown in Attachment B: P hoto of Completed Fruitvale Trail Project.
Jestin Johnson (Nov 7, 2024 15:34 PST)
Nov 7, 2024
Jestin D. Johnson, City Administrator
Subject: Waterfront Bay Trail Update
Date: November 05, 2024 Page 2
Public Works & Transportation Committee
November 19, 2024
ANALYSIS AND POLICY ALTERNATIVES
Since the inception of Measure DD through the end of 2023, about two-thirds (approximately 4.3 miles) of the planned Bay Trail segments along the Oakland waterfront have been completed, as shown in Attachment A: Oakland Waterfront Bay Trail Projects Map, and listed in Tables 1 and 2, below. Building the Waterfront Bay Trail is a joint effort between the City and private parties. Completion of these twenty waterfront trail segments advances the Citywide Priorities of holistic community safety, vibrant, sustainable infrastructure, and responsive, trustworthy government by creating new or repairing existing trails to improve the safety and accessibility of the Bay Trail.
Table 1. Completed Trail Segments - Public
Item
Trail Segment
Map Designation
Name
1 2. Jack London Square Aquatic Center to Embarcadero Bridge 2 3. Harbor Master (1853 Embarcadero)
3 4. Embarcadero Cove
4 5. Livingston Pier
5 6. Cryer Boat House
6 7. Union Point Park
7 12. Derby to Lancaster
8 14. Alameda Avenue
9 16. 66th Avenue Gateway
10 17. Fruitvale Land Crossing
Table 2. Completed Trail Segment – Private
Item
Trail Segment
Map Designation
Name
1 A. Jack London Square
2 B. Brooklyn Basin (partial completion)
3 C. Homewood Suites
4 E. Executive Inn and Suites
5 F. Oakland Marina
6 G. Livingston Street to Dennison Street,
7 H. Phoenix Housing
8 I. Glasscock Housing
9 J. A-1 Self Storage
10 N. Tidewater Boating Center to Damon Slough
11 M. Tidewater Boating Center’s remaining segment
There are ten segments of the Bay Trail that remain unfinished. Of those, five will be completed by another agency or through ongoing private development. See Table 3 below.
Jestin D. Johnson, City Administrator
Subject: Waterfront Bay Trail Update
Date: November 05, 2024 Page 3
Public Works & Transportation Committee
November 19, 2024
Table 3. Trail Segments to be Completed By Private Developer or Other Agency
Item
Trail
Segment
on Map
Name
Project Status (work
completed since the last
update)
Notes/Next Steps
1. B. Brooklyn Basin
Private project
Design development
continues.
In Progress: The
Phase I trail is complete
(parcels A, B, C, G, and
F). The remaining
Brooklyn Basin trail
segments will be
completed over the next
three years, and all
segments are
anticipated to be open
by the summer of 2027.
2. D. Crowley Site
East Bay
Regional Park
District
(EBRPD)
project
The project is in the preliminary
design phase. The EBRPD
project manager is gathering
site information. Funding
request for the United States
Department of Transportation
and RAISE program funds was
not successful.
In Progress: Secure
funding and then
complete design and
site programming.
Timing depends on
funding availability.
3. K. Gallagher &
Burk (344 High
Street – Oliver
De Silva Inc.,
owner)
EBRPD project
No trail easement acquisition
discussions are underway yet.
Planning: EBRPD is in
the preliminary stages
of assessing project
feasibility.
4. L. Hanson
Aggregates
(4501
Tidewater
Avenue) –
Home Dock
Properties
EBRPD project
EBRPD is continuing to work
on planning and designing this
segment of the trail.
Negotiation and
Planning: EBRPD is
continuing negotiations
with the property owner
for the easement.
5. 15. High Street
Bridge
Connection
(Trail
Undercrossing)
EBPRD project
Per the previous annual
Report, March 13, 2023, the
undercrossing trail connection
has been discontinued as a
City project.
Planning: EBRPD is
planning to pursue an
upland alternative to
connect the Bay Trail at
the Tidewater Boating
Center to High Street.
Jestin D. Johnson, City Administrator
Subject: Waterfront Bay Trail Update
Date: November 05, 2024 Page 4
Public Works & Transportation Committee
November 19, 2024
Only one other segment, out of the aforementioned eleven unfinished segments, will move ahead and remain managed by the City. It is the trail segment that runs through Estuary Park.
See Table 4 below.
Table 4. Trail Segment to be Completed - Public
Item
Trail
Segment
on Map
Name Project Status (work
completed since the last
update)
Notes/Next Steps
1. 1 Estuary Park
City of Oakland
project
90% Design complete; Bay
Conservation and
Development Commission
working with staff on project
permit; Project awarded CA
Coastal Conservancy Climate
Adaptation fund grant for
enhanced design of the living
shoreline. Draft California
Environmental Quality Act
(CEQA) Environmental Impact
Report (EIR) Addendum and
Park Master Plan documents
are currently complete and
seeking Council adoption.
In Design: Phase 1
construction is planned
for 2026. Additional
funding is needed to
complete the design,
permitting, and
construction of Phase 1.
City staff is working
with stakeholders to
define Phase 1 scope
outside of Parcel N.
Phase 1 scope
definition will be
dependent on available
funding. It is expected
that future Series D
Measure DD bonds will
provide funding for
Phase 2 construction.
The last four (out of ten) trail segments are recommended to be discontinued at this time, as the anticipated costs and schedule exceed the capacity of Measure DD. See Table 5 below.
Approximately $3 million remains in Measure DD funding category II, Estuary Waterfront Access, Parks, and Clean-up. Approximately $20 million in Category II Series D bonds will be sold in the future. All of these funds will be needed to complete the Estuary Park projects. The E. 7
th St. to 23rd St./29th Ave. project and the Park Street Bridge undercrossing projects are mutually dependent on each other for permitting and construction, resulting in a combined cost estimate for the completed construction of $50 million and a projected duration of nine years.
These are particularly difficult trail locations for both construction and maintenance post- construction. Additionally, the project would have to secure the privately-owned industrial properties from public intrusion/vandalism/break-ins. Lastly, the “undercrossing” is actually building a bridge beneath the historic Park Street Draw Bridge.
Jestin D. Johnson, City Administrator
Subject: Waterfront Bay Trail Update
Date: November 05, 2024 Page 5
Public Works & Transportation Committee
November 19, 2024
Table 5. Trail Segments to be Discontinued - Public
Trail
Segment
on Map
Name
Project Status (work
completed since the last
update)
Notes/Next Steps
1. 8 Miller Milling
(2201 E 7th St.)
City of Oakland
project
These three segments are
referred to as the E. 7th St. to
23rd St./29th Ave. project. The
Phase II Environmental Site
Assessment and Geotechnical
Reports are complete. An
order-of-magnitude cost
estimate was prepared for
easement/Right of Way
negotiations and purchase,
permitting, design, and
construction that showed a
project cost of roughly $30
million in 2023 dollars. This
project cannot be built without
the underpass connection at
Park Street Bridge, which is
estimated to cost $20 million in
2023 dollars. The combined
total of $50 million.
The estimated project duration
is 9 years.
The staff has recommended
that the City close this project.
It is considered infeasible for
the foreseeable future due to
cost and duration.
Agenda Report: Staff
will prepare an Agenda
Report for official
notification of the City
Council and the general
public in the spring of
2025, to officially
discontinue this project.
Staff will recommend in
the Resolution that the
remaining balance of
Measure DD funds be
transferred to the
Estuary Park project.
2. 9 333 Kennedy St.
City of Oakland
project
3. 10 CEMEX (333
23rd Ave.)
City of Oakland
project
4. 11 Park Street
Bridge
Connection
(Trail
Undercrossing)
City of Oakland
project
This project relies on the
construction of the E. 7th Street
to 23rd/29th Avenue trail
because the connection to
land for this bridge
undercrossing is at the
CEMEX property.
Per the above, the combined
total for these two projects is
estimated to be $50 million
with a duration of 9 years.
The staff has recommended
that the City close this project.
Agenda Report: Staff
will prepare an Agenda
Report for official
notification of the City
Council and the general
public in the spring of
2025, to officially
discontinue this project.
Staff will recommend in
the Resolution that the
remaining balance of
Measure DD funds be
transferred to the
Estuary Park project.
Jestin D. Johnson, City Administrator
Subject: Waterfront Bay Trail Update
Date: November 05, 2024 Page 6
Public Works & Transportation Committee
November 19, 2024
Trail
Segment
on Map
Name
Project Status (work
completed since the last
update)
Notes/Next Steps
It is considered infeasible for
the foreseeable future due to
cost and duration.
FISCAL IMPACT
This item is for informational purposes only and does not have a direct fiscal impact or cost.
PUBLIC OUTREACH / INTEREST
The advancement of Measure DD-funded projects is overseen by the Measure DD Community Coalition (Coalition), which is open to any member of the public wishing to participate. The Coalition meets bi-monthly on the third Monday. Meeting agendas, minutes, and other documents pertinent to Measure DD actions are available on the Measure DD website at https://www.oaklandca.gov/topics/measure-dd-community-coalition. Specific public outreach and engagement for each of the projects referenced in this report occurs on a project-by-project basis.
SUSTAINABLE OPPORTUNITIES
Economic: Although this report is for informational purposes and has no direct economic opportunities, the continued efforts to implement trail improvement projects have provided contracting opportunities for City vendors and contractors through the design and construction process. The completed trail along the waterfront may also enhance economic opportunities for Oakland businesses and may improve economic opportunities for persons needing to commute by walking or biking.
Environmental: Although this report is for informational purposes and has no direct environmental impacts, completion of the waterfront trail projects referenced in this report will benefit the environment by encouraging pedestrian and bicycle use of the trail to access destinations, thereby reducing vehicle usage and its associated pollution. Encouragement of trail use may also improve appreciation for and stewardship of the adjacent Oakland Estuary.
Race & Equity: Although this report is for informational purposes and has no direct race and equity impacts, the waterfront trail projects referenced in this report are part of the regional San Francisco Bay Trail, which serves and connects many communities around the San Francisco Bay, including many frontline communities. It provides a safe and low-impact connection between numerous points and neighborhoods of Oakland. It encourages physical activity, recreation, and invites engagement with the environmental habitat of the Bay to improve the quality of life for residents throughout the city. The trail system provides a safe means of travel via walking or biking for recreational transportation or commuting. This is especially important Jestin D. Johnson, City Administrator
Subject: Waterfront Bay Trail Update
Date: November 05, 2024 Page 7
Public Works & Transportation Committee
November 19, 2024
for residents who may not have access to a vehicle. The trail projects will be compliant with the Americans with Disabilities Act and provide equitable access to seniors and those with mobility impairment. Improvement of the trails could allow expansion of programs promoting youth recreation and health improvements.
Jestin D. Johnson, City Administrator
Subject: Waterfront Bay Trail Update
Date: November 05, 2024 Page 8
Public Works & Transportation Committee
November 19, 2024
ACTION REQUESTED OF THE CITY COUNCIL
Staff Recommends That The City Council Receive An Informational Report On The Status Of Waterfront Bay Trail Implementation.
For questions regarding this report, please contact CHRISTINE REED, Project and Grant Management Division Manager, at [email protected] or 510-238-6540.
Respectfully submitted,
____________________________
Michael Kashiwagi
Interim Public Works Director
Reviewed by:
Emily Ehlers, Interim Assistant Director
Bureau of Design & Construction
Prepared by:
Christine Reed, Division Manager
Project and Grant Management Division
Attachments (1):
A: Oakland Waterfront Bay Trail Projects Map
B: Photo of completed Fruitvale Trail project