San Pablo
Sustainable TOD
Master Plan
JANUARY 2024
“TOD is the planning, design,
and development of communities
where residents can live, work,
play, shop and learn in a walkable
and mixed-use community
supported by rapid transit and
where car ownership is an option,
not a necessity. ”
Gary Andrishak, Arcadis TOD Studio Founder
Table of Contents
INTRODUCTION
INTRODUCTION TO TRANSIT ORIENTED
DEVELOPMENT
EXPLORE PHASE
PUBLIC ENGAGEMENT SUMMARY &
INSIGHTS
ENVISION PHASE
TOD STRATEGY
IMPLEMENTATION
4 7
10 16
27 34
54 01
02 03
04 07
06 05
3 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
Introduction
01 SAN PABLO SUSTAINABLE TOD MASTER PLAN
4 INTRODUCTION
Project Background
The City of San Pablo is in west Contra Costa County off Interstate 80, nestled between the cities of Richmond, El Cerrito and Pinole. It is connected within the network of west coast cities via Interstate 80, Amtrak passenger train, and AC Transit and Westcat buses. As the city has grown, it developed from a Spanish colonial settlement to a Bay Area suburb, attracting working class families with single family homes and easy access to jobs, schools, services, shopping, and amenities. Today, as the diverse population grows, the city has prepared future plans to guide a thriving, sustainable community for years to come.
1.1 PLAN PURPOSE
As a part of the holistic planning at the city, to support local and statewide sustainable transportation goals, and ongoing efforts to integrate and improve development and transit service, the City of San Pablo was awarded a Sustainable Communities Planning Grant from Caltrans to create this Sustainable Transit Oriented Development (TOD) Master Plan. The plan includes analysis and recommendations to facilitate equitable and climate-resilient TOD in San Pablo. The Master Plan builds on the existing condition and context of San Pablo, already-underway planning work and strategic direction, input from stakeholders and the public, and best practices in the field of transit-oriented community and development planning.
Project objectives include achieving targets of local, regional, and state-wide strategies including:
• Decreasing vehicle miles traveled
• Supporting housing development through infill
• Supporting the goals of the City’ s General Plan 2030 and 2040 update (in progress) • Supporting the Climate Action Plan 2012
• Supporting the City Council Fiscal Year 2023-25 Priority Workplan 5 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
1.2 PLANNING PROCESS
In July 2022, Arcadis (then IBI Group) was selected as the multidisciplinary consultant team, along with Blue Point Planning and Aaron Welsh Planning, to undertake the development of the San Pablo Sustainable TOD Master Plan. This team brought together experts on transportation, land use, landscape, public consultation, policy planning, housing, and equity.
The planning process was divided into four phases: Explore, Envision, Plan, and Act. A community engagement component was a part of the first three phases, to keep the public informed and engaged at key milestones throughout the planning process.
Explore Phase
The “Explore” phase included studies of existing policies and conditions in San Pablo in order to equip the team with a thorough understanding of San Pablo’ s context. The team prepared a study of policies and existing conditions including a literature review, spatial and quantitative analysis, and TOD synthesis. Public pop-ups and a survey were conducted during this phase to introduce residents to TOD concepts, and invite early feedback about the challenges and opportunities locals experienced.
Envision Phase
The “Envision” phase included preparing the TOD vision for San Pablo. This was established through a series of stakeholder workshops and a survey, in order to cover the wide range of options and opportunities possible, and to visualize different potential scenarios for San Pablo’ s streets and buildings. The final result was a city-wide TOD vision, as well as defined TOD Priority Areas for San Pablo. The Priority Areas were also analyzed in this phase to highlight key opportunities and TOD elements that shape these areas, and how they can fulfill their role as the primary centers for TOD in the future. During this phase, the team also developed a San Pablo Streetscape Toolkit, which is a resource to help City staff, designers, and developers implement measures to improve streetscapes in a way that is responsive, consistent, and achieves high-quality results. Refer to the full Streetscape Toolkit in Appendix C.
Plan Phase
The “Plan” phase considered the inputs received from the public, the results of the studies, and equity and resiliency lenses to propose recommended policy and physical interventions. These were prioritized on a weighted criteria to create an implementation plan.
Act Phase
The “ Act” phase will occur after the adoption of this Master Plan, as the implementation plan is rolled out.
1.3 METHODOLOGY
Arcadis applied a systemic approach to establish a vision and plan that worked city-wide across San Pablo to promote equitable and sustainable TOD, while focusing specifically on the Priority Areas. This approach is a multi-step process that includes:
• Establishing the baseline condition for TOD in San Pablo including development patterns, transit nodes, urban characteristics, and unique elements
• Identifying Priority Areas based on location, transit service, and land uses • Assessing opportunities for Transportation, Open Space, and Development • Considering the readiness and capacity for change of each area • Applying select strategies that respond to the context, opportunities, and needs of each area • Recommending a prioritized implementation plan
6 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
Introduction To
Transit-oriented
Development
02 SAN PABLO SUSTAINABLE TOD MASTER PLAN
7 INTRODUCTION TO TRANSIT-ORIENTED
DEVELOPMENT
2.1 WHAT IS TOD?
In essence, TOD is the combined, intentional planning of dense, mixed use land use that is served by a network of frequent transit and walkable services with a high standard of design in a compact area. TOD promotes a community design that offers housing and transportation choices to residents that are convenient, affordable, and create a high-quality environment and experience for people.
TOD represents a necessary step and key strategy toward achieving a more sustainable future. In particular, TOD is critical to delivering on residents’ expectations for housing choice, improved livability, and socially strengthened communities.
2.2 COMPONENTS OF TOD
TOD is comprised of three ingredients, all of which should be coordinated to produce financially viable, technically feasible, and community supported plans that benefit the community. They are, following the acronym for T-O-D:
2.3 CHARACTERISTICS OF TOD
Also described as the Strategies of TOD, these broad attributes define what TOD looks and feels like as people experience it.
Transit or Transportation. The different transportation modes (transit, walking, bicycle, cars, taxis, etc.) and the infrastructure and amenities that these need (lanes, parking spots, stopping locations, stations, etc.) that provide mobility services to an area.
Oriented or Open Space. The public domain (plazas, patios, parks, sidewalks, etc.) that form the transition between the transportation facilities and the buildings, also known as ‘the spaces between, ’ which can be public or private property.
Development or Buildings. The built-up areas in (primarily) private parcels where a different human activities or uses occur that enable the activation of the surrounding open spaces and become a trip destination for transit and other modes.
Density: to create enough development intensity near station areas to ensure enough human activity and a transit-, bike-, and pedestrian-supportive ecosystem.
Land Use: to promote a series of land uses, including housing and jobs, which complement each other in creating a complete community that is active throughout the day, supporting transit ridership.
Mobility Choices: to provide a variety of mobility of options for residents, workers and visitors, so that they are not forced to use only one mode of transportation for their travel needs.
Placemaking: to produce a safe, comfortable, and human-scaled human environment within the influence area of the station, both improving the quality of the public realm and the accessibility to transit.
Sustainability: to produce an urban environment that minimizes the use of resources, both by producing these resources locally and efficiently using outside resources.
Health: to ensure an urban environment that is conducive to maintaining a healthy human lifestyle.
T
D
O
8 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
TransitT
D Development
Open SpaceO
Walk. Improvements that ensure
that walking to and from transit stops
and stations is convenient, safe and
comfortable.
Shared Mobility. Enhancements
to facilities/amenities that favor shared
mobility options such as carshare parking,
end-of-trip bicycle amenities, drop-offs,
etc.
Intersections. Improvements include
upgrades to increase safety and comfort
or reduce crossing delay, such as signals
with transit priority, raised crosswalks,
medians, etc.
Roads. Improvements to neighborhood
streets that are well traveled and/or have
high traffic speeds in order to manage or
calm traffic, balancing the needs of motorized
and non-motorized travel.
Public Plazas. New public open
spaces located at activity nodes, the
community heart, and transit stations.
Public Parks. Existing and new
public green spaces designed for public
use and enjoyment throughout the
community and accessible by transit and
active transportation.
Green Spaces. Similar to public parks
but with an emphasis on nature preservation
functions more than public use.
Other Open Spaces. Major TOD
redevelopment sites including public, semi-
public, and semi-private open spaces, such
as pocket parks, plazas, courtyards, mews
and community gardens.
School Sites. Sports fields and
playgrounds contribute to the open space
network in their community.
Contaminated Land. Specific
locations with soil contamination should be
kept free of public use until appropriate soil
remediation measures are undertaken.
Local Corridor Mixed-Use Infill.
Existing local corridors of varied scale and mix
of uses that have capacity to fill in with new
community-serving businesses and services.
Local Scale Mixed-Use Infill.
Primarily single-family, small-lot residential areas
not expected to substantially change in the near
or long term, but may be infilled with similar,
small-scale development.
TOD Contextual Mixed-Use Infill.
Areas near transit stops and stations planned for
context-sensitive incremental redevelopment.
TOD-Adjacent Transitional Infill.
Primarily small lot residential areas near transit
corridors that may redevelop and provide a
transition from local scale residential to TOD
related infill or redevelopment areas.
Long Term Redevelopment.
These are areas that will not be
redeveloped over the next decades as TOD
given the projected market demand.
TOD Major Mixed-Use
Redevelopment. Areas with larger-scale
buildings and a broader mix of uses with an
underlying large-lot pattern, usually separated
from established residential neighbourhoods.
Transit. Improvements that increase
frequencies of existing routes or, potentially,
development of new feeder routes to serve
Priority Areas, Outlying Corridors, and other
important areas.
Bike. Improving ‘bikability’ within
station areas by linking major local
destinations and connecting to the
wider bike network.
TOD Opportunities Examples
9 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
Explore Phase
03 SAN PABLO SUSTAINABLE TOD MASTER PLAN
10 “EXPLORE” PHASE
The project team developed the Existing Conditions Analysis Report, see Appendix A for the full report. This study was the key deliverable for the “Explore” phase, and created an understanding of the qualitative and quantitative elements of the City of San Pablo that informed the rest of the planning process. Relevant data was organized in a framework of transportation, open space, development, housing, and climate resiliency lenses. This was the foundation on which the rest of the analysis and planning was based.
3.1 LOCATION & CONTEXT
San Pablo is in Contra Costa County, surrounded by City of Richmond to the south, an area of Unincorporated Contra Costa County known as “Rollingwood” , and City of Pinole to the north, and located approximately one to two miles east of the San Francisco Bay.
I-80 runs north-south through San Pablo, connecting it to the San Fransisco Bay Area metropolitan region by highway. It is served by WestCAT bus to Contra Costa College and AC Transit local bus system. Approximately one mile south of the San Pablo city limit is the Richmond BART station, serving the Red and Orange BART lines. Twelve local AC Transit bus routes serve the City of San Pablo, and connect it to the surrounding cities.
San Pablo
Richmond El Cerrito
Pinole Hercules
11 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
3.2 EXISTING PLAN & POLICY FRAMEWORK
The Existing Conditions Analysis Report considered policy direction, priority, and expectations from the following documents:
• General Plan 2030 (2011) and General Plan 2040 Update (In Progress)
• 2015-23 Housing Element and 2023-31 Housing Element
Update (In Progress)
• Contra Costa College Mobility Hub Master Plan (In
Progress)
• Rumrill Boulevard Complete Streets Project (In
Progress)
• San Pablo Avenue Multimodal Corridor Study (In
Progress)
• Bicycle and Pedestrian Corridor Study (2022)
• Safe Routes to School Master Plan (2022)
• MTC Transit-Oriented Communities Policy (2022)
• Affordable Housing Strategy (2020)
• Green Infrastructure Plan (2019)
• Contra Costa County Electric Vehicle Readiness
Blueprint (2019)
• Caltrans Climate Change Vulnerability Assessment
Summary Report – District 4 (2018)
• Bicycle and Pedestrian Master Plan (2017)
• SCS by Strengthening Public Health Plan (2016)
• Climate Action Plan (2012)
• San Pablo Avenue Specific Plan (2011)
3.3 GROWTH MANAGEMENT AND LONG-RANGE PLANNING
TOD is predicated on the assumption of growth, that new development will occur to infill previous single-use, low density, inefficient uses of land and help complete the urban fabric. This ensures a financially feasible path forward in which the responsibility of the City is to guide development patterns and implementation without bearing the entire cost upon themselves.
San Pablo has a population of almost 31,000 people, with an average density of approximately 11,775 people per square mile.
Density is higher on the west side, nearest North Richmond. Per the Contra Costa County 2022 Economic Forecast, almost all indicators show growth: population, employment, and land use values. The county population is expected to grow at a faster rate than the Bay Area during the five-year forecast period, and more homes are expected to be built than in the previous five years. In tandem, real estate values have risen since 2021, which can both attract new development and compound housing insecurity and unaffordability.
San Pablo’ s 2015-2023 Housing Element and RHNA Update provides San Pablo-specific data on growth. Per the Housing Element, key trends are:
• Relatively modest growth is expected in the overall population over the next 25 years • Continuing racial and ethnic community diversity
• Relatively high numbers of low-income-earning younger adults • Increasing number of seniors
• Significant number of families with children and larger households • A continuing need for affordable housing, a variety of housing types, and affordable rentals.
San Pablo’ s Growth Management Element (GME) directs sustainable, efficient growth and development. It also provides mechanisms for the city to implement and pay for a range of programs to ensure that public services keep up with growing demand. Important guiding principles that support the San Pablo Sustainable TOD Master Plan include promoting mixed-use, high-density infill and support land use patterns that make efficient use of the transportation system, continued cooperation between San Pablo and other cities and regional agencies to improve transportation systems. 12 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
3.4 NEEDS ASSESSMENT SUMMARY
The policy review of San Pablo identified several needs in the community where policy is working towards filling service gaps. The following table summarizes and synthesizes those needs in each of the TOD component categories.
KEY NEEDS IDENTIFIED
TransportationT
Safety • Continue to work towards making San Pablo a safe community for cyclists and pedestrians, including by looking for opportunities to implement safe cycling infrastructure along or parallel to corridors Location • Locate new housing close to high-capacity transit • Need for vibrant, mixed-use corridor with multimodal transportation options along San Pablo Avenue Multiple • Consider student’ s need for non-automotive transportation modes to and from school Modes • Need to shift transit modes and reduce carbon emissions, as transportation accounts for nearly half of the targeted CO2 reductions by 2035 in the Climate Action Plan User • Cyclists and transit riders need improved facilities and amenities Experience
Sustainability • Need to prepare for low or zero-emission ready transportation options" Open SpaceO
More Parks • New parks and trails are a high priority need across the city Conserve Land • Compact housing development to preserve open space Better Public • Significant improvements to streetscape, public spaces, and pedestrian amenities Places • On and off-street corridor improvements to create holistic streetscapes for all user Well Located • Public spaces and amenities adjacent to affordable housing Connected • Parks and public spaces connected by the transportation network • Connect open space and schools
Serve All Ages • Young people and children especially have a higher need for park access and Abilities
DevelopmentD
Improve • Removing regulatory barriers to housing production is critical to meeting housing needs Process • Eased land use restrictions in order to achieve density on redevelopment sites Empower • Utilize development as an opportunity to make streetscape improvements Land Owners
Maintain • Frontage and sidewalk improvements and long-term maintenance plans 13 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
KEY NEEDS IDENTIFIED
Densify • More compact, dense, and mixed-use development and redevelopment to support housing affordability Affordability • A continued need for affordable housing • Affordable rental housing
Variety • A variety of housing types
Suitable • Housing for families with children and larger households Housing for • Housing suitable and appropriate for all segments of the community including diverse ethnic groups, Diverse People seniors, and low-income earning young adults • Housing suitable and appropriate for all segments of the community including diverse ethnic groups, seniors, and low-income earning young adults
Improve Process • Regulatory housing supports in zoning to further affordable housing supply, especially in TOD areas Locate Near • Housing near schools and walkable neighbourhoods may help provide needs in low-income households Daily Needs by alleviating costs incurred for driving children to school HousingH
Use Data • Housing market data to understand development feasibility Sustainable • TOD projects and development to accomplish green infrastructure goals Development
Provide for • Consider needs of students and student housing near Contra Costa College Students
Locate on • Concentrate development around current rapid bus and future BRT bus stops Transit Routes
Prepare for • EV charging infrastructure in new development the Future
Climate ResiliencyR
Prepare for • Drainage improvements for climate resiliency and extreme weather events Extreme • Address urban heat island effect
Weather • Address storm surge events
Demonstrate • Utilize new TOD projects and catalysts as examples of sustainable infrastructure elements, Sustainable demonstrating implementation and feasibility Infrastructure
Preserve • Maintain and expand open space, trees, stormwater swales, and other permeable spaces as a climate Green Space adaptation and mitigation strategy
Emergency • Contingency plans for climate change-related power supply disruption Preparedness
14 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
3.5 KEY TAKEAWAYS
The Existing Conditions Analysis report provides a set of key takeaways that guides this master plan. These takeaways are the principles used to coordinate transit and development, balance local and longer-distance travel needs, and make the city attractive to visitors, workers, businesses and institutions. Ultimately, TOD can be used as a tool to address issues and needs related to transportation, open space, development, housing, and climate resiliency. It has the potential to draw in funds and increase investment, share maintenance and operations costs between the city and new partners, and provide new housing options that serve locals and newcomers. Refer to the full report for details about each key takeaway.
Transportation Takeaways
Takeaway 1: Balance Local and Regional Travel
Takeaway 2: Identify and Close Gaps in the Active Transportation Network Takeaway 3: Improve access to Higher-Order Transit
Open Space Takeaways
Takeaway 4: Increase the Amount of Parks and Open Space Takeaway 5: Build Strong Connections to Parks and Open Space Takeaway 6: Prioritize New Open Spaces near Redevelopment Areas with High Densities Development and Housing Takeaways
Takeaway 7: Focus on Priority Development Areas
Takeaway 8: Embrace Local, Regional, and Statewide Housing Trends Takeaway 9: Provide a Unified Citywide Policy Direction Climate Resiliency Takeaways
Takeaway 10: Create Sustainability Goals that can be Monitored and Tracked Takeaway 11: Tap into the Evolving Sustainability Market Takeaway 12: Intentionally Incorporate Infrastructure Resiliency in Project Work O
R
D
T
15 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
Public
Engagement
Summary &
Insights
04 SAN PABLO SUSTAINABLE TOD MASTER PLAN
16 • Overall, all four streets covered by the TOD planning effort are used frequently by participants, with participants expressing slightly more use of and desired use of 23rd St. and San Pablo Ave compared to other streets. • The strongest differences between the current and desired use of San Pablo’ s main streets is that participants want more recreation opportunities than are currently offered, and that there is a desire to drive less through these roads in the future. • Participants also wanted more opportunities to own businesses along 23rd Street and San Pablo Avenue. • Most people who take public transportation use 23rd St. and San Pablo Ave and Rumrill Blvd. • Buses are unreliable and should be more frequent.
• In general, many streets in San Pablo are dirty and should be cleaned more often.
Open Space
• There is a strong desire to have more parks and recreation amenities, including along San Pablo Ave and 23rd Street. • Underpasses should be cleaner to promote walkability, especially near schools.
Development
• Many community members expressed a desire for more affordable housing. • Many community members desire more diverse, local, small business food options (and other businesses in general). 4 PUBLIC ENGAGEMENT SUMMARY & INSIGHTS
PUBLIC ENGAGEMENT PROGRAM
In alignment with the project planning phases “Explore, ” “Envision, ” and “Plan” a three-part public and stakeholder engagement program also took place. Through this process, the public and stakeholders were asked about needs,
concerns, and what elements they wanted to see in the plan throughout the plan development.
EXPLORE PHASE
During the “Explore” phase, the project team undertook pop- up events and a survey to gather early inputs.
Pop-Up Events
Three pop-up events were held in November – December
2022. The team asked the San Pablo community how they
currently use the main roads in San Pablo, and how they wished they could use each of the roads, using dot-voting.
The project team also recorded comments from discussions with members of the public during these pop ups.
High-level Themes
Transportation T
O
D
17 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
Survey 1
In order to obtain a better understanding of the community’ s views and opinions of existing transportation in San Pablo, the project team created an online survey that was available to the public from October 19 to December 3, 2023. The survey collected 57 responses from individuals who live or work in San Pablo and its surrounding communities.
Ability to take the bus/train
The majority of respondents rated their ability to take the bus or train as good or excellent.
Ability to walk (complete sidewalks, shade, benches,
crosswalks)
The majority of respondents rated their ability to walk as good or excellent.
Services, shop and restaurant options in San Pablo
The majority of respondents rated services, shops, and
restaurant options as Average or better, and slightly more than half rated them Good or Excellent.
Poor
9%
Average
27%
Good
40%
Excellent
24%
Poor
18%
Very Poor
4%
Average
34%
Good
30%
Excellent
14%
Average
32%
Good
39%
Excellent
13%
Poor
16%
Public services in San Pablo, such as schools
Respondents generally had positive opinions of public services in the city.
Very Poor
2%
Average
29%
Good
46%
Excellent
16%Poor
7%
Park Space
Although respondents generally had Average or above
Average opinions of park space, 18% rated it Poor or Very Poor. This was among the highest categories to have negative opinions, which suggests that access may be unevenly
distributed.
Poor
14%
Very Poor
4%
Average
30%
Good
32%
Excellent
20%
How safe do you feel traveling around San Pablo?
High numbers of survey respondents felt neither safe nor unsafe, unsafe, or very unsafe traveling around San Pablo.
Unsafe
7%
Very Unsafe
2%
Neither unsafe nor safe
32%
Safe
41%
Very Safe
18%
Bus Rapid Transit (BRT) helps buses move faster by
replacing one vehicle lane with a dedicated lane for bus and emergency vehicle use. Are you familiar with the
Bus Rapid Transit concept for San Pablo Avenue?
Although the majority of respondents were familiary with the BRT concept, over a quarter were not or were unsure.
No
23%
Unsure
5%
Yes
71%
Survey Insights - Current Percptions
Given you transportation needs, how frequently would
you use Bus Rapid Transit service on San Pablo Avenue
between Hilltop and Oakland?
Nearly two-thirds of respondents would use a BRT service on San Pablo Avenue weekly or multiple times per week.
Never
13%
Rarely
(once a month)
18%
Less than
once a week
5%
1-2 times
per week
39%
3+ times
per week
25%
18 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
How do you wish you could use the following 4 main streets in San Pablo? In general, respondents would like to keep the roads in San Pablo primarily for driving, though there is interest in improving the bikability and walkability, particularly on Rumrill Boulevard and San Pablo Avenue. The activity most respondents want to do in San Pablo that they currently don’t report highly already participating in is fun and exercise. There is a strong trend of participants who want to live near San Pablo Avenue.
0 5
10 15
20 25
30 Live near it Go to work or
school
Own a
business
Shop or eat Wa lk Bike Take the bus Drive Use it to avoid I-80
Use it f or fun
or exercise
I don't use it
San Pablo Av en ue 23rd Street Rumrill Boulevard San Pablo Dam Road 0 5
10 15
20 25
30 Live near it Go to work or
school
Own a
business
Shop or eat Wa lk Bike Take the bus Drive Use it to avoid I-80
Use it f or fun
or exercise
I don't use it
San Pablo Av en ue 23rd Street Rumrill Boulevard San Pablo Dam Road Survey Insights - Main Streets
How do you currently use the following main streets in San Pablo? The most common use for streets in San Pablo is driving, and the least popular way to get around is taking the bus. In general, 23rd Street is a popular place to work or go to school, shop, eat, walk, bike, and drive. Overall, San Pablo Dam Road and Rumrill Boulevard were the least popular places for working, going to school, shopping, eating, walking, biking, and fun.
Work
24 School
16 Park
22 Medical
Care
18 Restaurants
28 Shopping
15 None
3 Grocery/
Supermarkets
31 I can get to the following within a 15-minute walk, bike, or bus ride from my home [check all that apply]:
The most accessible destinations within 15 minutes of
respondents’ homes are grocery stores/supermarkets,
restaurants, and work/jobs. People generally travel longer distances to school, medical care, and shopping.
19 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
Other than housing cost and size, if you were looking for a new place to live in San Pablo, what would be most important to you? (select up to 3)
Although the most popular housing-related characteristic for respondents is inside appearance/quality, three of the most popular are proximity to schools, shops/services, and work. work/jobs. People generally travel longer distances to school, medical care, and shopping.
0 5 10 15 20 25
Inside ap pearance/quality
Close to good school(s)
Close to shops and services
Close to work
Outside ap pearance
Energy and water efficiency
Close to friends and family
Nearb y park or on-site greenery
On-site amenities (gym, community room, office space, etc.) Close to transit
How well do you think San Pablo is prepared for the following natural disasters or environmental threats? Drought
Poor
11%
Very Poor
5%
Average
40%
Good
31%
Excellent
13%
Survey Insights - Main Streets
Earthquake
Poor
13%
Average
39%
Good
39%
Excellent
9%
Flooding
Poor
17%
Very Poor
2%
Average
39%
Good
22%
Excellent
20%
Heatwave
Poor
17%
Very Poor
2%
Average
35%
Good
35%
Excellent
12%
Wildfire
Poor
12%
Very Poor
2%
Average
45%
Good
31%
Excellent
10%
Air Quality
Poor
23%
Very Poor
6%
Average
23%
Good
33%
Excellent
15%
Drinking Water Quality
Poor
11%
Average
32%
Good
36%
Excellent
21%
Power Outages
Poor
16%
Very Poor
2%
Average
37%
Good
27%
Excellent
18%
Overall, respondents felt confident in San Pablo’ s preparedness for most natural disasters and threads, especially heatwaves, drinking water availability, and earthquakes. However, respondents felt that the city may still be vulnerable or unprepared for air quality events and power outages.
20 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
How would you rate the overall quality of life in San
Pablo?
Greater than three-quarters of respondents rated quality of life in San Pablo as either Good or Excellent.
What is ONE thing that would make San Pablo more livable? The survey received 33 responses for how to make San Pablo more livable. The top themes were to improve cleanliness, safety, and greening in public places and streets. Transit service and facility improvement was also a recurring theme, as was improved convenience for getting around and accessing services, and traffic calming and flow.
Survey Takeaways
• Survey respondents had generally neutral or positive views of many aspects of life in San Pablo, such as the ability to travel by bus/train, ability to walk, public services such as schools and parks. • The areas that most needed improvement according to survey respondents were the ability to bike, access to park space, and safety while traveling.
• Survey respondents wanted to live in closer proximity to shopping/services, schools, and work. This suggests that denser development in San Pablo connected by safe travel options would help people to meet their needs.
• Many of the climate resiliency concerns reported (air quality, power outages) can be addressed through new low-impact development and green infrsatructure investment. • Many of the open-ended comments provided by survey respondents mentioned clean and green public spaces, and resources to support people experiencing homelessness. • Though driving will remain a priority transit mode for most, there is a desire to be able to safely and efficiently move around San Pablo’ s main streets by bike and transit.
Poor
6%
Average
17%
Good
62%
Excellent
15%
Survey Insights - Livability
San Pablo Today
Future
Improvements
Compact
Community
Urban
Resiliency
Public Spaces
and Services
Mobility
21 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
ENVISION PHASE
The “Envision” phase occurred during spring 2022. This was the most intensive engagement period, and it included community charrettes, pop-up events, and listening sessions with stakeholders.
Charrettes
The project team held two community charettes — participatory design exercises. These included sharing information with the public including an overview presentation of the TOD Plan components in progress, and discussion and crowdsourcing of actions to improve transportation, housing, development, open space, and resilience. The design portion had participants lay out their ideal streetscapes along San Pablo’ s main corridors and current street typologies (San Pablo Ave., Market Ave., and Rumrill Boulevard). Additionally, participants were asked to vote on which actions to prioritize. Below are elements and outcomes from the charrette activity that community members wanted to see in San Pablo.
Transportation
• A connected, robust, and safe bike transportation system • A safe pedestrian network, including safer crosswalks and traffic calming measures • Better parking management (e.g. preventing cars from parking in bike lanes and sidewalks) to facilitate biking and walking • Narrower traffic lanes are desirable to allow for wider pedestrian zones. • Buses and bikes could share a lane if it meant prioritizing buses. • Bike lanes could be raised to sidewalk level for greater bike safety. • Prioritizing rapid bus lanes on streets is desirable. • Bike lanes on streets are desirable, with a priority for separated bike lanes.
Open Space
• Prioritize parks as destinations
• Better maintenance of parks and trails to support use of open space • Structures and spaces for children to play
• Measures to address flooding on smaller streets and Old Town • Amenities including café seating, street furniture, and bike racks help make large streets such as San Pablo Avenue more livable and attractive.
Development
• More affordable, mixed-use housing, including on vacant lots T
O
D
22 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
Pop-Up Events
The project team completed three pop-up events during the “Envision” phase of the project. During these, the project team took high level themes below from the charrettes and gauged community priorities through a dot voting exercise, in which participants had three dot stickers to place next to their top priorities. Themes are listed by community priority in order of highest priority to lowest priority, with numbers of votes included for each action.
The project team held two additional pop-ups, at which the project team presented updated “Transportation, ” “Open Space, ” and “Development” draft maps of improvement
opportunities within the Priority Areas, and solicited some feedback on these maps. The team also asked participants what amenities they wanted within a 5 minute walk from a transit stop.
Community Priorities Dot Voting Results
10 20
30 40
50 60
70 mixed-use
housing,
including on
vacant lots
More play
areas for kids
Better mainte-
nance for parks
and trails to
support use of
open space
calming to
reduce
speeds on
main streets
More visibile
crosswalks and
crossings for
pedestrians
Better parking
management to
prevent cars from
parking in bike lanes
and sidewalks
Measures to
address flooding
on smaller
streets and old
town
Better
connections
between
bike (bike
paths, lanes)
Safer bike
infrastructure
(bike lanes,
bike boxes for
turning bikes)
64 64
47 36
27 27
21 15 14
Communitiy Priorities
Dot-Voting Results
Overall, the community pop-ups indicated that the community wants to see more community amenities and uses, and better maintenance of the already-existing ones in San Pablo. This includes affordable housing, play areas, parks and trails. Locating these services in a compact area would improve accessibility to them, as would improving pedestrian safety and connectivity. 23 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
S hopping ,
R et ail
T r e e s , P l an t s
and G r e e ne r y
S m alle r L o cal B u sine ss
P op -up M ar k et s/F lex ible
Us e o f P ublic S pac e
P e de s tri an N et wor k
Bet t e r C onne c t ion w ith S cho ols
B ic y cle C onne c t ion s
Con ve nie nc e S t or e s/C a fe s
Bet t e r C onne c t ion
to R e gion al T r an sit
Be nche s
near B u s
S t op s
G r o c e r y
S t or e s
Listening Sessions
The project team conducted 6 listening sessions with
stakeholder groups from March-May 2023. The team met with groups representing housing organizations, public agencies, bicycle groups, environmental organizations, and high school students. During each listening session, participants were asked questions about the TOD Plan vision and scope; the strengths, needs, challenges, and opportunities for the Plan; and priorities for actions in San Pablo.
Needs for amenities, activities, and improvements are
identified below and in the chart to the right.
T
O
Transportation connectivity
to other areas from San Pablo
is key
• New bike infrastructure should connect to Richmond, El Sobrante • The City should coordinate with transportation agencies to ensure that bus schedules and routes align with needs of San Pablo
• Improve ability to take bikes on public transit , including secure bike parking near transit Green spaces need more bike
and pedestrian connections
Traffic causes safety issues • Traffic on major streets is fast moving, drivers often run lights or don’t stop for pedestrians • There is a need to reduce traffic speeds, even with some pedestrian crossings • There needs to be more safe pedestrian crossings
Listening Session Outcomes
Transportation
Open Space
Creek trails need to be made
safer
• There is currently illicit activity occuring on some creek trails which prevents people from feeling comfortable using them
Lighting needs improvement • Many parts of San Pablo, including creek trails, would feel safer if they were lit Public spaces need better
maintenance
• Many creek-side trails are littered and have unhoused populations • Streets are littered
• Cars often park illegally on the sidewalk and in bike lanes – there needs to be better parking enforcement to improve walkability and bikeability Streets need beautification and
visual enhancements
• Major streets would benefit from green space enhancements and placemaking • Public art and urban character could improve open spaces Development D
Locate public transportation
near public housing and high-
density housing
• Housing should serve low-income populations, often seniors and people with disabilities • There are lots of opportunities for new development to promote alternative transportation use (through provision of transit passes, funds for bus stop improvements, shared parking, and more)
Listening Session Opportunities Identified for
San Pablo’s TOD Areas
24 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
Survey
In July 2023, a survey was launched to gather feedback on the drafted TOD Vision and Priority Area Analysis for San Pablo.
Survey Outcomes
Overall, the top three elements that respondents wanted to see in the TOD Priority Areas were all the same: Streetscape Improvements, Safer Pedestrian and Bike Zones, and More Walkable Destinations. After those, beautification was also indicated as a priority for each district, and a mix of other measures was also expressed across the Priority Areas.
Streetscape Improvements
Safer Pedestrian and Bike Zones
More Walkable Destinations
Beautification
More Trees
Cleaner Streets
A mix of transportation modes
Transit Stop and Service Improvements
More diverse food and retail options
Better Traffic Flow
Safer Cycling Zones
More Housing Near Regional Transit
Finer Grained, Connected Blocks
Safer Pedestrian Areas
23rd District Central District Civic District
Regional
Commercial District
In addition to inputs on the specific priority areas, residents were also asked about the elements of the TOD Vision for San Pablo, which are further outlined in the next section. The following priorities and ideas were identified.
TOD VISION ELEMENT
PRIORITIES & IDEAS
Community
Heart
Neighborhood
Connections
• Open outdoor space (parks, playgrounds, plazas)
• Civic Services (library, community center, school)
• Cafes and Restaurants
• Traffic Calming
• Bike lanes that connect to a greater network
• Pedestrian priority with wide sidewalks and safe crossings Corridors • Smooth traffic flow
• Shops and services close together
• Regular, reliable transit service
25 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
PLAN PHASE
The “Plan” phase occurred in January 2024. This included circulating the draft Sustainable Transit-Oriented Master Plan and Executive Summary to the public and stakeholders for final review.
Stakeholder Open Office Hours
A two hour “Open Office Hours” session, staffed by City of San Pablo planning staff and planning consultant staff, was held for Stakeholders to drop-in and have an interactive question and answer period, as well as to provide direct feedback to the project team. It was attended by community stakeholders.
Overall insights from the plan was that it demonstrates a positive direction for the City of San Pablo. Feedback themes were that San Pablo may have additional opportunities for partnerships with surrounding municipalities and programs that they should consider.
Public Review Period
The draft Sustainable Transit-Oriented Development Master Plan and Executive Summary were posted online for public response in January 2024.
26 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
Envision
Phase
05 SAN PABLO SUSTAINABLE TOD MASTER PLAN
27 5 “ENVISION PHASE”
This phase accomplished two goals of the San Pablo Sustainable TOD Master Plan. It identified TOD Priority Areas, and it set the vision for the future of San Pablo as a transit-oriented community. The TOD Vision & priority Areas Report is the key deliverable of the “Envision” phase of the plan development, and provides a clear picture of the transportation, open space, and development opportunities throughout San Pablo as well as in specific districts, blocks, nodes, and corridors.
PRIORITY AREAS
The Priority Areas were identified based on inputs from San Pablo’ s existing policy direction, engagement with the public and stakeholders, and analysis of the current and future plans and opportunities. Priority Areas were chosen because they are central, serviced by transit, and encompass areas already identified for planning and urban design improvements. They are also contiguous, which can support a strong, interconnected TOD core.
Core TOD Priority Areas
Four Priority Areas were identified and are referred to as the Core Districts, each with their own character and uses. They are concentrated, connected, and closest to San Pablo Avenue—the primary TOD corridor in the city. The districts work together to build a complete transit-oriented community. These Core Districts are:
• 23rd Street District
• Central District
• Civic District
• Regional Commercial District
Outlying Corridors
Three Outlying Corridors are also identified. They are additional key areas with important TOD considerations and opportunities to create a supportive network, but do not have all the elements and functions of the Priority Areas. These Outlying Corridors are:
• San Pablo Ave Corridor North
• Rumrill Boulevard Corridor
• San Pablo Dam Road Corridor
City-Wide
The rest of San Pablo will consider opportunities for transit-oriented development and community amenities as new plans and opportunities unfold. There is no current priority within the outlying areas of the city, but the methodology used in the TOD Priority Area Analysis can be applied to any part of the city as needed. Areas within the rest of the city-wide area are not excluded from improvement projects, and can still be targeted for successful revitalizations.
28 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
0 N
0.25 0.5
Mi
am Rd
Richmond P
k w y
S tan t on A v e
Rd 2 0
E l P or tal Dr
M ar k e t A v e
Rd 2
0 B r o o k side Dr
B r oad
w a y A
v e
11t h S
t
R umr ill B l v d
Rumr
ill B
lvd
23r
d S
t
San P
ablo A
v e
San P ablo D
CIVIC
DISTRICT
R umr
ill B
lv d
San P
ablo A
v e
San P
ablo D
am Rd
r
Ch u ch L
n
PE l or tal Dr0Rd 2
San P
ablo A
v e
2 3r
d S
t
San P
ablo A
v e
WanlassPark
John HerbertDavis Park
Brentz LaneNeighborhoodPark
Salesian
CollegePrepatory
BayviewElementary
LakeElementary
23rd
DISTRICT
Contra CostaCollege
RiversideElementary
CIVIC
DISTRICT
REGIONAL
COMMERCIAL
DISTRICT
CENTRAL
DISTRICT
Downer Elementary School
SAN P
ABL
O D
AM
ROAD CORRIDOR
RUMRILL CORRIDOR
SAN P
ABL
O A
VE
NOR
TH CORRIDOR
KennedyPlaza
RumrillSportsComplex
Core TOD Priority Areas
Outlying Corridors
Priority Area Map
29 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
TOD Vision
The overall vision for the San Pablo Sustainable TOD Master Plan is to establish Priority Areas that have the highest possible potential to support TOD. Each focus area will contain the key components to ensure long term success: a gateway, a corridor, an activity node, a community heart, and neighborhood connections.
TOD Vision Cont… | San Pablo Sustainable TOC MP | 16 Feb 2023 San Pablo has the perfect combination of: a rich history and culture; ideal and manageable size; and access to nearby jobs and resources. sense of place. Transit-Oriented Development can tackle the most complex and challenging mobility concerns while at the same time, providing sustainable and attractive built form that amenities.
01 District Gateway:
A place to Enter (T,O)
02 Corridors:
A place to Go Through (T,R)
03 Activity Nodes:
A place to Live (O,D,H,R)
05 Neighborhood Connections:
A place to Connect (T,O,R)
04 Community Heart:
A place to Gather (O,D)
Priority Area Component Diagram
Gateway
“ A place to enter”
Activity Node
“ A place to live”
Corridor
“ A place to go through”
Community Heart
“ A place to gather”
Neighborhood Connection
“A place to connect”
30 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
COMPONENT
LOOK, FEEL, AND FUNCTION
IMPLEMENTATION MEASURES
• Confluence of multiple corridors or paths
• Meeting or gathering place
• Most connected and convenient
• Destination/attraction
• Wider area connecting where people live to the
rest of the city’ s network
• A residential road that connects to a main street
or major arterial road
• Sense of Place
• Street Connectivity
• Local Resiliency measures
• Public Realm Improvements
• Accessible to all ages and abilities
• Street Connectivity
• Trails, Paths, Greenways
• Safe transitions between different
modes of transit and different
types of transit infrastructure
• Typically an intersection or transition
• Where people arrive from different modes
(transit, driving, walking, cycling)
• Buildings and open space near transit
• Community assets
• Plazas, patios, parks
• Housing
• Places of business, shops and services
• Main streets (or potential future Main Streets)
• Routes for transit, walking, cycling, cars
• Has active frontages such as shops and services
• Includes public space (sidewalks, setbacks)
• Entrances/Arrival Features
• Wayfinding
• Public Art and Placemaking
• Multi-modal Transportation
• Enhanced Transit Stations
• Active Transportation
• Open Space Enhancements
• Mixed Use Development
• Housing
• Local Resiliency Measures
• Sense of Place
• Wayfinding
• Sustainable Transportation
• Public Realm Improvements
Gateway
“ A place to enter”
Corridor
“ A place to go through”
Activity Node
“ A place to live”
Community Heart
“ A place to gather”
Neighborhood Connection
“A place to connect”
31 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
TOD Priority Area Analysis
As a basis for identifying opportunities and strategies to implement sustainable and equitable TOD in San Pablo, the components of the TOD Vision were identified at a fine-grained scale in each of the TOD Priority Areas. This helped to create maps to guide TOD recommendations that are responsive to the unique contexts and conditions of each area, and create a plan that is respectful to the existing character and opportunities in each distinct neighborhood. The maps below show the current existing conditions in each of the TOD Priority Areas, with the TOD components overlaid on top to show where the vision can be brought to life.
CENTRAL DISTRICT
CIVIC DISTRICT
MH
MH
Church Ln
El Portal Dr
Rd 20
Church Ln
San Pablo AveVan Ness St
San Pablo
Community
Centre
Helms Middle
School
Old Maple
Hall
Alvarado
Adobe
Museum
College
Center
Walgreens
23rd St
Rd 20
El Portal Dr
San Pablo Ave
Brookside Dr
Rd 20
San Pablo
Supermarket
San Pablo
Supermarket
Kennedy
Plaza
23rd Street District Analysis
The boundaries of the 23rd Street District include 23rd Street from San Pablo Avenue to Market Street, and the surrounding neighborhood. Though there are opportunities to improve, connect, and expand each TOD component, there is a strong foundation in the existing urban fabric and development pattern of this district. The established street grid network provides good circulation and neighborhood connections
within the district, connecting residential areas to activity nodes, community hearts, and transit services in the Outlying Corridor of San Pablo Avenue to the North.
Central District
The Central District relies mainly on San Pablo Avenue for TOD components, which leaves a disconnect between
the community heart and the commercial corridor. San
Pablo Avenue offers potential for infill redevelopment, but the greatest opportunities are large-scale redevelopment planning efforts to sensitively convert the extensive mobile home neighborhoods to other mixed uses and densities. The residential neighborhood and affordable housing stock should not be lost, but rather better integrated into a more complete community design.
District Gateway
Corridor
Activity Nodes
Community Heart
Neighborhood
Connections
District Gateway
Corridor
Activity Nodes
Community Heart
Neighborhood
Connections
32 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
Civic District
The Civic District is a widespread area with a concentrated core mainly between San Pablo Avenue and Wildcat Creek.
The primary civic centers are located here, including San Pablo City Hall, the San Pablo Library, and the future site of the San Pablo Police Department Headquarters. These are in close proximity to the transit services along San Pablo Avenue and connected with existing pedestrian paths and linkages.
Regional Commercial District
The Regional Commercial District is primarily made up of the Towne Center Shopping Plaza, which is oriented toward motorists. It is a destination and attraction for local residents and people from around the region for retail and service needs. It is closest to Interstate 80, and acts as the gateway for the entire San Pablo TOD core. Per city policy, the Regional Commercial District will be redeveloped as a future “Towne Center” and is envisioned to become a pedestrian-friendly retail and entertainment district.
District Gateway
Corridor
Activity Nodes
Community Heart
Neighborhood
Connections
District Gateway
Corridor
Activity Nodes
Community Heart
Neighborhood
Connections
33 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
TOD
Strategy
06 SAN PABLO SUSTAINABLE TOD MASTER PLAN
34 3 T+O+D RECOMMENDATIONS
3.1 RECOMMENDATIONS FRAMEWORK
To create a suite of effective policy recommendations, the project team considered the project inputs, as well as the opportunities identified in the Priority Area analysis. Two key types of recommendations are described: policy recommendations and physical recommendations.
Policy recommendations are mainly implemented by updating City of San Pablo plans, ordinances, and incentive programs to encourage specific outcomes. These may be tied to general standards, corridor improvements, transit operations, development approvals, or other municipal-policy level actions. They are oriented towards city-wide or priority area-wide geographical scopes. Policy recommendations also include partnerships and agreements that further TOD objectives through co-benefits with public and private stakeholders and authorities.
Physical improvement recommendations are specific and place-based. They recommend City departments, or private landowners, to make proactive, direct improvements to achieve a higher quality public realm along TOD areas. They are primarily directed towards the TOD Priority Areas. Refer to the Streetscape Toolkit document for detailed examples, precedent images, and approaches that demonstrate many of the recommendations outlined in this report.
3.2 EQUITY LENSES
In addition to the policy and physical recommendations, it is critical to approach the plan with an equity lens. Although equity encompasses a wide range of considerations, in this application, the lenses used to evaluate or enhance the policy recommendations are focused on “Housing” and “Climate Resiliency. ” These are two major elements of addressing inequality within the community, and these two lenses are directly tied to future financial resources through the California Housing Consortium Transit-Oriented Development Housing Program and Caltrans Climate Adaptation Planning Grant. Further equity- based policy analysis may be undertaken at a future stage of planning to ensure a just distribution of benefits, broad access to services and resources, and evaluate other equity indicators.
Housing Equity
The California Department of Housing and Community Development’ s Housing Element Building Blocks indicates that housing is critical to achieving a number of community goals including economic development, climate action (by building homes near transit), improved health and safety, and community building. It is clear that not only the provision of housing, but also its location in transit-serviced areas with access to jobs, amenities, and services is key to meeting community needs.
The TOD Vision & Priority Area Analysis outlines considerations for housing:
• Housing costs and accessibility for existing and new community members. • How demographics change over time and populations are served by the amenities in their community. • How and where people live in relation to where they work, shop, play, and eat.
In order to plan for housing equity in the TOD Priority Areas and across the city, decision makers must understand the current conditions, including gathering and analyzing housing data, set appropriate and feasible targets and goals, and measure outcomes. The 2015-2023 Housing Element and future update is the foundational document for this. The San Pablo Sustainable Transit-Oriented Development Master Plan aims to support and reinforce the objectives and principles of the Housing Element. 35 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
Per the Housing Element 2023 Draft, San Pablo’ s Broad Housing Goals include:
• Housing Supply and Choice
• Affordable Housing and Housing Security
• Equal Access to Housing
• Neighborhood Quality
• Energy Conservation and Waste Reduction
• Local Government Capacity
The Sustainable TOD Master Plan can help achieve these goals and implement supporting policies by prioritizing and clustering housing catalyst projects in areas slated for improvements and redevelopment that will be served by transit. The opportunities and policy recommendations highlighted in this report target new housing, with support for programs and policies that include affordable housing options, within TOD Priority Areas, linking transit service and housing at the land use planning stage. The recommendations also highlight opportunities to fast-track new housing stock to promote lower-cost, predictable and secure housing stock in the near-term and create stability in the development market.
Climate Resiliency
Urban resiliency is the capacity for communities to prepare for, endure, and recover from shocks and stresses. Shocks and stresses include primarily environmental and climate occurrences, but economic and social phenomena are also considered.
Shocks are acute, immediate emergencies, such as an earthquake or storm. A stress is a long-term, chronic issue that may include complex and compounding variables including climate change, housing crisis, or urban air quality, for example. Shocks and stresses impact different segments of the community differently, but tend to more heavily burden low income, persons of color, and disenfranchised populations. Equitable TOD can address many overlapping and intersecting resiliency concerns.
The TOD Vision & Priority Area Analysis outlines TOD as Climate Adaptation considerations that are considered for each of the policy recommendations:
• Reducing reliance on carbon emitting transportation modes and moving towards net-zero emissions • Economic resilience against unpredictable fuel costs
• Containing sprawl, reducing air pollution, mitigating urban heat island effect, and overall health and lifestyle quality • Community preparedness and ability to recover from climate shocks and stresses including extreme weather events The Sustainable TOD Master Plan can help to create a climate-resilient community in San Pablo by facilitating low-carbon transportation options, efficient land use, and ecological restoration all within the compact TOD Priority Area. Specifically, the recommendations will support San Pablo’ s Climate Action Plan Strategy TLU 1.1 (Transportation and Land Use Objective). Per the plan, this strategy would encompass 60% of objective carbon reduction by reducing vehicle miles traveled by 25%.
36 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
Update existing plans to support TOD initiatives.
Implement a Complete Streets Policy in TOD Priority Areas.
Enhance and enable the role of developers to make TOD improvements on redevelopment sites.
T-1 Bike Ped Plan Alignment
Ensure that any new and completed facilities identified in this TOD Plan are included in any future versions of the city’ s bike and pedestrian master plan, Bicycle and Pedestrian Corridor Study, and circulation element updates.
Climate Resiliency Lens: Inventorying, tracking, and improving pedestrian and cyclist facilities to encourage mode shift away from carbon emitting transportation modes.
REF #
ACTION OR INITIATIVE
T-2 Parking Assessment
Conduct parking studies and surveys to evaluate our parking minimums and explore ways the City may be able to reduce parking minimums.
Climate Resiliency Lens: De-emphasizing individual car ownership encourages a shift to lower carbon emissions transportation modes.
T-3 5-Y ear Paving Plan
Review the existing 5-year paving plan for streets identified in this TOD Plan, the Bicycle and Pedestrian Master Plan, or other City and regional transportation plans, and ensure that planned bicycle, pedestrian, and transit improvements are included in repaving. Prioritize projects with a bike, pedestrian, and transit focus in the 5-year paving plan.
Climate Resiliency Lens: De-emphasizing individual car ownership encourages a shift to lower carbon emissions transportation modes.
T-4
T-5
Complete Streets Policy
Continue implementing policy C-I-2 of the General Plan 2030 to include “Complete Streets” considerations in the design of all circulation improvement projects, and to remain in conformance with MTC’ s TOC policies. Integrate recommendations from the Streetscape Toolkit to support these efforts.
Require New Development Improvements
Require new development projects to improve adjacent sidewalk and trail facilities when they are developed, and to provide pedestrian and bicycle connections to their site.
RECOMMENDA TIONS – TRANSPORT A TION
Note: Reference # refers to “Transportation Recommendation #” for cross-referencing with the Prioritization Matrix and Implementation Plan in other sections of this report.
37 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
REF #
ACTION OR INITIATIVE
T-6 Incentivize Cyclist Facilities in New Development
Initiate programs to offer incentives for new developments in the TOD Priority Area for provision of secure bike parking, cyclist-friendly entrances and exits, bike repair hubs, showers and locker rooms in new residential and employment developments. Continue to implement cyclist facilities as outlined in the policy recommendations supported by the Bicycle and Pedestrian Master Plan (2017) and explore improving the zoning ordinance to help incentivize cycling facilities.
Climate Resiliency Lens: By increasing convenience of cycling, the City will move towards its goal of decreasing Vehicle Miles T raveled by 3%.
Climate Resiliency Lens: By improving safe access to the BART network, San Pablo residents can be served by regional rail system and rely less on highway commuting, reducing traffic volumes.
Housing Lens: Report out on new development, housing, and population concentrated along transit corridors to support advocacy for transit improvements in San Pablo, serving new residents.
Establish partnerships to coordinate efforts and advance TOD.
T-7
T-8
T-9
T-10
T-11
T-12
San Pablo Dam Road Partnership
Coordinate with El Sobrante and Contra Costa County to improve safe bicycle connections along San Pablo Dam Road east into unincorporated Contra Costa County.
Richmond Transportation Partnership
Partner with the City of Richmond to ensure interjurisdictional bicycle, pedestrian, ridehsare, and transit connections between the two cities, particularly San Pablo residents to the Richmond BART Station.
County Transportation Partnership
Partner with unincorporated Contra Costa County to ensure bicycle, pedestrian, and transit connections between San Pablo and unincorporated Contra Costa County, including the census-designated places of Rollingwood and North Richmond.
Safe Routes to Schools Alignment
Partner with the Contra Costa Health’ s Safe Routes to Schools program to fund and complete safety projects around San Pablo Schools, consistent with the City’ s 2022 Safe Routes to Schools Plan.
Contra Costa College Partnership
Partner with Contra Costa College to implement the Contra Costa College Mobility Hub Master Plan, improving transit, bicycle, and pedestrian access to the campus.
AC Transit + WestCat Partnerships
Partner with the Alameda County Transportation Commission (ACTC), AC Transit, and Contra Costa Transportation Authority (CCTA), and WestCat Transit to ensure that future high-quality rapid bus and Bus Rapid Transit Service extends north through San Pablo.
Climate Resiliency Lens: Reliable, rapid, and high frequency bus service is an effective mechanism in providing cost-stable and low-carbon transportation options for residents. 38 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
Transportation - Physical Opportunities
The key physical recommendations are shown on Figure 1 below, identified as opportunities within the four TOD Priority Areas.
San Pablo Dam Road
Ridge Rd
Willow Rd
Vale Rd
Gateway Ave
Chattleton Ln
Villa Dr
Salesian
College
Prepatory
City Hall
San Pablo
Community
Center
Helms Middle
School
CENTRAL DISTRICT
CIVIC DISTRICT
REGIONAL COMMERCIAL
DISTRICT
MH
MH
MH
Church Ln
23rd St
El Portal Dr
Rd 20
Brookside Dr
Market Ave
San Pablo Dam Road
San Pablo Avenue
San Pablo Avenue
Ave
Market
Dover Ave
University
A
ve
Church Ln
Van Ness St
Mason St
Wildcat Creek
MH
Tribal
Lands
Wildcat Creek
Wildcat Creek Trail
San Pablo Avenue
Figure 1 – T ransportation Opportunities
MH
Legend
Enhanced New Intersection
Micromobility Hub Facility
Enhanced Transit Stop
New Bridge Over Creek
Enhanced Pedestrian Crossing
“Great Street” Streetscape Improvement
New Separated Pedestrian & Bicycle Path
Existing Trail System
Area to be Prioritized for Pedestrian Connectivity
39 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
T-13 Improve Pedestrian Crossings at Intersections
Improve pedestrian crossings at key intersections, as indicated in Figure 1. Improvements include implementing pedestrian crossing safety tactics such as high-visibility designated pedestrian crossings, curb extensions and bulb-outs, ADA curb ramps, and traffic signals.
T-14 Enhance Transit Stops
Work with AC Transit to enhance transit stops at key destinations or interchange locations as indicated on Figure
1. Enhanced transit stops should provide amenities such as shelters, benches, pedestrian scale lighting, waste receptacles, clear signage, and wayfinding. Advanced Traveler Information Systems (ATIS) that provide real-time digital transit signage should be prioritized at enhanced transit stops to allow riders to know bus wait times and offer a more user-friendly experience. Additionally, transit stop enhancements should meet ADA accessibility requirements and align with ADA Accessible Ground Transportation goals and objectives.
T-15 Make 23rd St A Main Street
Implement “Main Street” streetscape improvements on 23rd Street. This includes supporting flexible curb uses such as food truck zones, parklets, patios, and activation for social use into the evening.
Refer to the Streetscape Toolkit “Main Street” Typology for full details about Main Street design tactics.
T-16 Complete the San Pablo Avenue Bridge Replacement Project Redesign key intersections of main roads or gateways as indicated in Figure 1. Enhanced intersection tactics include lighting, pedestrian and cyclist furnishings, wayfinding, safety enhancements including traffic signals or beacons, and ADA curb ramps. Placemaking to create a sense of place is also encouraged, including integration of public art. Specific consideration should be given at San Pablo Ave and Road 20, including Kennedy Plaza.
Consider the students at Helms Middle School in the intersection redesign to support the Safe Routes to School Master Plan. As the City plans to improve Kennedy Plaza as an initiative of the 23rd Street Specific Plan, pedestrian and cyclist access via the intersections across San Pablo Ave and 23rd Street should include bulb-outs to shorten crossings, clearly visible crossing markings that may double as placemaking elements, and delineated protected cyclist zones and signals.
T-17 Provide Micromobility Hubs
Introduce micromobility hubs adjacent to key transit stops, as indicated in Figure 1. Micromobility hub tactics include dedicated space for bikes and e-bikes, scooters and e-scooters, and e-cargo bikes, available for people visiting the casino or shopping in the commercial area.
T-18 Improve and Complete Regional Trail Network
Building on the success of the Wildcat Creek Restoration and Greenway Trail Project from Vale Road to Church Lane, undertake new sections of the existing or proposed trail network as indicated in Figure 2 in order to further the completion of this regional trail network.
T-19 Continue Implementing Existing Plans
Continue implementing the San Pablo Avenue Specific Plan (SP-2). This includes expanded and enhanced sidewalks, transit priority, a landscaped median, and protected active transit lanes.
T-20 Build A Pedestrian/Cyclist Bridge over Wildcat Creek As part of future efforts to expand the Wildcat Creek Trail from Church Lane to 23rd Street, explore the potential/ necessity of building a pedestrian & bicycle bridge to continue the trail from University Avenue to Mason Street south of the creek.
T-21 Create a Fine-Grained Street Network by Breaking Up Large Blocks In the event of redevelopment, break up expanses with connections in the form of a finer-grained street network to connect main streets and destinations.
REF #
ACTION OR INITIATIVE
40 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
RECOMMENDA TIONS – OPEN SPACES
Note: Reference # refers to “Open Spaces Recommendation #” for cross-referencing with the Prioritization Matrix and Implementation Plan in other sections of this report.
REF #
ACTION OR INITIATIVE
Update existing plans to support TOD initiatives.
Enhance and enable the role of developers and land owners to offer new or improved open spaces on and between redevelopment sites.
O-1 Expand Parkland Dedication
Review, update, and expand the City’ s park fee and land dedication requirements, incentivizing or requiring public and private space in new development, and ensuring that new multi-family and non-residential development is contributing to the City’ s open space network. This may be achieved by a future Parks and Recreation Master Plan.
Climate Resiliency Lens: A network of open spaces throughout the city , even small ones, provides flood protection by offering permeable surfaces to absorb water and avoid stormwater runoff.
O-2 Specific Plan Open Space Designations
Review and update the San Pablo Specific Plan and 23rd Street Specific Plan Open Spaces and Parks (potential and existing) designations, integrating updated potential locations and a network of interconnected greenways between them, using the TOD Priority Areas as catalysts and priority sites for park development.
Climate Resiliency Lens: Incorporating planned open spaces allows for intentional, organized hierarchy of neighborhood, linear , and destination parks, and allows the city to set and achieve goals for park access, such as how many residents live within a 5 or 10 minute walk of a park.
O-3 Provide Creek Access
Review any new development adjacent to Wildcat Creek or San Pablo Creek for opportunities to provide public access and connections to existing and future trail systems along the creeks, with creek access incorporated into the site design and provided by the developer as an integrated part of site development.
Climate Resiliency Lens: Access to shaded, riparian trail systems provides a free public space that is cooled in summer , allowing safe ways to experience health benefits of outdoor activity year-round and helping to mitigate urban heat island effect through the city center . 41 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
O-4 Bay Trail Partnerships
Coordinate with and support efforts by MTC to complete Wildcat Creek Trail as a spur of the regional Bay Trail.
Specifically, work with the City of Richmond and unincorporated Contra Costa County and Flood District - as well as adjacent landowners - to close a key gap in Wildcat Creek Trail west of Rumrill Boulevard and across the Amtrak and freight rail line that is north of Market Avenue.
Climate Resiliency Lens: The renaturalization of the creek not only provides a recreational or commuter trail, but will reintroduce ecosystem functions that serve as flood protection during storm events and high creek water level run offs, which will reduce risk for adjacent property owners.
O-5 EBRP Partnership
Work with East Bay Regional Parks and City of Richmond to provide bicycle and pedestrian connections into Wildcat Canyon Regional Park at Alvarado Canyon. Coordinate this effort with MTC plans to extend the Bay Trail/ Wildcat Creek Trail east into East Bay Regional Parks.
Climate Resiliency Lens: Active transportation access to regional parks plays an important role in building cycling skills for children and adults, providing confidence for cycling for other transportation needs in their daily lives. It is also a convenient and low-carbon travel alternative to outdoor recreation areas with limited parking options.
O-6 Trail Maintenance
Coordinate with the Contra Costa Flood Control District to maintain and improve trails along creeks and flood canals.
Climate Resiliency Lens: Creeks are important recreation and natural hazard infrastructure, and play an important role in protecting developed areas from flood hazards. A healthy riparian ecosystem has the capacity to absorb high water levels, and the trails may temporarily be closed to the public during storm events to act as a flood plain, allowing the city to potentially avoid or reduce the need for expensive and uncertain engineered flood mitigation and defense as flood risk increases in the future.
REF #
ACTION OR INITIATIVE
Establish partnerships to coordinate efforts and advance the open space network in TOD areas.
O-7 School Joint Access Agreement
Explore formalizing and extending joint access agreements with West Contra Costa Unified School District, and establishing agreements with Contra Costa College, and other outdoor school facilities for mutual access to City Parks and schools during designated hours.
42 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
REF #
ACTION OR INITIATIVE
Open Spaces - Physical Opportunities
The key spatial recommendations are shown on Figure 2 below, identified as opportunities within the four TOD Priority Areas.
Tribal
Lands
23rd DISTRICT
CIVIC DISTRICT
REGIONAL
COMMERCIAL DISTRICT
SCHOOLS & SPORTS FIELDS /
ESCUELAS Y CAMPOS DEPORTIVOS
EXISTING CREEK /
ARROYO EXISTENTE
ACTIVE FRONTAGE TOWARDS OPEN
SPACE /
FRONTAL ACTIVO HACIA EL ESPACIO
ABIERTO
GREEN LINKAGES /
VÍNCULOS VERDES
URBAN PLAZA /
PLAZA URBANA
STREETSCAPE CREEK ENHANCEMENT
MEJORA DE PAISAJE CALLEJERO
HACIA EL ARROYO
URBAN PARK /
PARQUE URBANO
CREEK DAYLIGHTING /
DRENAJE NATURAL DEL ARROYO
CREEKSIDE NATURAL PARK AND
RESTORATION /
PARQUE NATURAL AL LADO DEL
ARROYO Y RESTAURACIÓN
23rd St
San Pablo Avenue
San Pablo Dam Road
Church Ln
El Portal Dr
Rd 20
Brookside Dr
Market Ave
OPEN SPACE
ESPACIO ABIERTO
Legend
Leyenda
San Pablo Avenue
San Pablo Avenue
Rd 20
23rd St
San Pablo Dam Road
Ridge Rd
Willow Rd
Vale Rd
Gateway Ave
Chattleton Ln
Villa Dr
San Pablo Avenue
Salesian
College
Prepatory
City Hall
Wildcat Creek
St. Paul
School
Wildcat Creek Trail
Figure 2 – Open Space Opportunities
Schools and Sports Fields
Existing Creek
Active Frontage Towards Open Space
Green Linkages
Public Urban Open Space
Creekside Natural Park and Restoration
Creek Daylighting
Legend
43 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
O-8 Utilize Schoolgrounds
Explore opportunities to utilize schoolgrounds and sports fields for a greater variety of active and passive uses by the community throughout the day including children’ s play areas, public walking loop, pedestrian and cyclist amenities, and other activities to provide co-benefits to the surrounding community.
O-9 Activate Open Space Frontages
Activate the frontages and interface between open and urban space along Wild Cat Creek and San Pablo Creek.
This can be achieved by supporting vibrant and active uses facing onto the creek including patios and small pavilions that may be used for indoor/outdoor events, spill-out seating, parklets, roll-back garage doors in commercial spaces. The trail and open space network frontages may include enhanced wayfinding and trail markings, attractive gateway and fencing features, and pedestrian amenities including lighting and seating.
O-10 Designate New Park Space
Building on the work set forth in the San Pablo General Plan, continue to designate and build out new urban park space. At the time of redevelopment of large blocks, include sufficient park space to serve new and existing residents, located adjacent to the future green pedestrian linkage.
O-11 Renaturalize Wildcat Creek and San Pablo Creek
As indicated in Figure 2, undertake riparian restoration projects along Wildcat Creek and San Pablo Creek, building on the work already undertaken as part of the Wildcat Creek Restoration & Greenway Trail Project.
O-12 Build New Urban Open Spaces
Build new public urban open spaces where central lots permit, dispersed in opportune areas adjacent to main steets, with active interface to surrounding buildings. These new urban open spaces should be accessible and visible from the street, and have places to sit, relax, and interact. Amenities should include benches and/or seating with shade trees, plantings and/or public art for visual interest, and flexible space for events and activations.
O-13 Connect Key Destinations and Break up Large Blocks With Green Linkages Introduce green linkages to Wildcat Creek, San Pablo Creek, and surrounding streets. At the time of redevelopment of large sites, including strip malls and shopping centres, introduce green linkages within the street network where they connect destinations and transit stops. Green Linkages are pedestrian and cyclist pathways that are enhanced with landscape areas, trees, stormwater management and bio-retention, transit access, and low-impact, energy- efficient materials and amenities.
Refer to the EPA document “Green Streets” or Caltrans document “Performance Measures for Complete, Green Streets” as guides for green linkages.
O-14 Daylight Underground Segment of Wildcat Creek
Daylight Wildcat Creek between San Pablo Avenue and Contra Costa Ave.
REF #
ACTION OR INITIATIVE
44 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
Update existing plans to support TOD initiatives.
Align with Regional Transit-Oriented Community Efforts.
D-1
D-2
D-3
D-4
D-5
Apply and Adjust Zoning Ordinance
Continue to administer the intensification allowed by zoning along San Pablo Avenue and 23rd Avenue, where high- intensity mixed-use development is allowed including dense multi-family residential. Complete the Rumrill Boulevard Master Plan and begin implementation.
Transit-Oriented Communities Policy for Density and Parking MTC’ s Transit-Oriented Communities policy sets minimum development densities (50-75 du/acre) and parking requirements (0 parking minimum, 1.0/unit parking maximums) in TOD areas. Note that this policy is designed for bus rapid transit (BRT) areas, which does not service San Pablo. In the preparation for future BRT service, and to attract development that would provide ridership to support a BRT line, these requirements should be considered aspirational objectives and applied where feasible, focusing on the four priority areas of this TOD Master Plan.
Housing Element Coordination
Make the Opportunity Sites identified in the San Pablo Housing Element 2023 Update the highest priority catalyst sites within the TOD Priority Areas.
Transit-Oriented Communities Policy for Affordable Housing Work to ensure that the City adopts sufficient policies for affordable housing production, preservation, and protection consistent with the regional Transit-Oriented Communities policy.
Objective Design Standards
Create objective standards for multi-family housing consistent with the state Housing Accountability Act; if necessary utilize existing templates available from MTC and HCD.
REF #
ACTION OR INITIATIVE
RECOMMENDA TIONS – DEVELOPMENT
Note: Reference # refers to “Development Recommendation #” for cross-referencing with the Prioritization Matrix and Implementation Plan in other sections of this report.
Housing Lens: High density mixed-use sites will require a context-specific, responsive program of housing sizes, types, tenures, and levels of affordability , as well as community-oriented retail and services.
Introducing new, higher-density housing forms along transit corridors will help meet San Pablo’ s target of 800 new homes by 2031, and offer a greater range of affordability for residents.
Housing Lens: T ying housing development density to transit lines builds in long-term transit ridership and promotes T ransportation Demand Management from the initial land use planning stage. New housing on existing transit lines, where BRT can feasibly be upgraded, demonstrates preparedness for future rapid, reliable transit to service residents and support a ridership base.
Housing Lens: The TOD Priority Areas are ideal locations to implement the updated 2023 Housing Element policies, and help to address two of the greatest household cost burdens at the same time – housing and transportation costs.
45 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
REF #
ACTION OR INITIATIVE
D-6
D-7
D-8
Define and Encourage New Connections Through Large Blocks As part of creation of objective design standards or as a revision to requirements in existing zoning districts, encourage new development projects to provide publicly-accessible connections through the site at least every 400- 600 feet along existing street frontages.
Encourage Consolidated Parking Off of Lowest-Level Road Reinforce frontage design standards by encouraging that parking is accessed off of the lowest level road where possible. Encourage use of compact, structured parking where feasible.
Encourage Manufactured Builds
In support of the 2023 Housing Element Update, encourage pre-fabrication, modular homes, or other technical innovations that would allow lower-cost, faster-build construction technologies. Ensure that the use of these technologies does not conflict with code enforcement and inspections, and provide guidelines to developers using these strategies.
Housing Lens: Innovations in manufactured housing allow for expedited, cost-effective, and attractive construction methods that pass affordability on to the end users, and fast-track new housing units.
Enhance and enable the role of developers and landowners to make improvements to development sites and built form.
D-9 Contra Costa College Partnership
In support of Housing Element 2023 Update Policy 1-7, collaborate with Contra Costa College to support and encourage housing on or near campus oriented towards students and/or staff. Consider rezoning around Contra Costa College to allow multiple units in homes including duplexes and suites, rented to the student population or workers at the college.
Establish partnerships to coordinate efforts and advance development in TOD areas.
Housing Lens: Student housing in mixed-use centers near campuses provides a natural walkable community and draws in a younger demographic.
D-10 Property Owner Coordination
Continue to support the work of the Economic Development Corporation to hold regular meetings with major property owners in the TOD priority areas to highlight transit-oriented development potential and partnership opportunities for their sites. Over time, these meetings may evolve into working groups such as a Retail Steering Committee, and gain momentum for a Business Improvement District.
Prioritize development application review and reduce barriers during the redevelopment process for sites within TOD Priority Areas.
D-11 Facilitate Catalyst Projects
Select catalyst projects within the TOD Priority Areas, pulled from the development opportunities highlighted in Figure 3 with a unified landowner, and when a redevelopment application is submitted, prioritize working together with that developer to create a TOD supportive plan.
D-12 Encourage Land Assemblies
Offer density bonuses and priority processing, among other incentives, for developers to consolidate lots and develop large, comprehensive lots in favor of a series of small, disjointed lots, especially along main corridors and transit lines. As outlined in the Housing Element Update Program 1-E, the City may act as a facilitator for lot consolidations, providing information and maps, targeted outreach to landowners of high potential sites, and offering fee reductions for assemblies.
46 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
D-13
D-14
D-15
Tenant Assistance
On redevelopable sites with existing tenants (e.g., mobile home sites), encourage developers to offer a tenant assistance program beyond the minimum Tenant Protections Act, which may include offerings including additional tenant information sessions at early stages, appointment of a tenant assistance coordinator contact, and provision of tenant relocation funds to cover moving expenses.
Inclusionary and Incentive Zoning
Review the City of San Pablo’ s Inclusionary & Incentive Zoning policies, and consider increasing bonuses and affordable requirements in transit corridors and TOD Priority Areas.
Homelessness Working Group
Establish a committee or working group to review the City’ s Low-Income Housing Fund, supplementary grants and state programs, and explore partnerships with Contra Costa Health’ s Health, Housing & Homeless Services on-going programs. Establish a path forward for homelessness prevention and rapid rehousing on publicly owned sites. Reach out to people experiencing homelessness for input on their needs. Consider the relationship between the policies outlined in the Housing Element 2023 Update and the TOD Priority Areas.
Preserve existing and create new affordable housing.
REF #
ACTION OR INITIATIVE
Housing Lens: Strong tenant protection, beyond deed-restricted affordable units, will help avoid gentrification and displacement of lower income households. Particularly in mobile home parks, special programs administered by landowners at the time of redevelopment will provide security , predictability , and stability for renters or leaseholders, ensuring minimal disruption and long-term housing solutions.
Housing: Inclusionary units are an important measure for avoiding gentrification in new development and ensuring long-term mixed-income communities.
Housing: Inclusionary units are an important measure for avoiding gentrification in new development and ensuring long-term mixed-income communities.
47 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
Development - Physical Opportunities
The key physical recommendations are shown on Figure 3 below, identified as opportunities within the four TOD Priority Areas.
San Pablo
Supermarket
College Center
Tribal
Lands
CIVIC DISTRICT
CENTRAL DISTRICT
Church Ln
23rd St
San Pablo Avenue
“SOFT” DETACHED RESIDENTIAL
NEIGHBORHOOD REDENSIFICATION /
REDENSIFICACIÓN “SUAVE” DEL
VECINDARIO
DEVELOPMENT
& HOUSING
DESARROLLO Y VIVIENDAS
ACQUISITION FOR GREENWAY /
ADQUISICIÓN PARA VÍA VERDE
LOWER-DENSITY INFILL /
RELLENO DE BAJA DENSIDAD
MID-DENSITY CONTEXTUAL
REDEVELOPMENT /
URBANIZACIÓN CONTEXTUAL DE
DENSIDAD MEDIA
LARGE-SCALE COMPREHENSIVE
REDEVELOPMENT /
REDESARROLLO INTEGRAL DE GRAN
ESCALA
FACADE REALIGNMENT / FRONTAGE
DENSIFICATION
REALINEACIÓN DE FACHADA / DENSIFI-
CACIÓN DE FRONTALES
BIG STORE REDEVELOPMENT /
RENOVACIÓN DE TIENDAS
GRANDES
TRIBAL TRUST (RESERVATION) LANDS /
TIERRAS DE FIDEICOMISO TRIBALES
(RESERVA)
TRIBAL FEE LANDS /
TIERRAS DE TARIFAS TRIBALES
Rd 20
San Pablo Dam Road
Legend
Leyenda
FOCUS AREA /
AREA DE ENFOQUE
REGIONAL
COMMERCIAL DISTRICT
San Pablo Dam Road
Ridge Rd
Willow Rd
Vale Rd
Gateway Ave
Chattleton Ln
Villa Dr
San Pablo Avenue
Salesian
College
Prepatory
City Hall
San Pablo
Community
Center
Helms Middle
School
23rd DISTRICT
El Portal Dr
Brookside Dr
San Pablo Avenue
San Pablo Avenue
Rd 20
23rd St
Ave
Market
Dover Ave
University
Ave
Church Ln
Van Ness St
Mason St
Wildcat Creek
Figure 3 – Development Physical Opportunities
Legend
Acquisition for Greenway
Frontage Improvements
Lower-Density Contextual Infill
Medium-Density Contextual Areas
Large-Scale Comprehensive Areas
Big Store Areas
48 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
D-16 Revitalize Main Streets and Corridors Through Infill Development Introduce and encourage low-density, small-scale redevelopment and revitalization along Main Streets and corridors through individual site infill.
D-17 Implement Frontage Improvements
Encourage the realignment of Main Streets, particularly at clusters of retail, to provide a more pedestrian-friendly atmosphere. This may include addressing blank walls, deep setbacks, or street-facing surface parking lots and incorporating activations, screening, or flexible frontage zone treatments.
D-18 Towne Center Design Guidelines
Bring buildings closer to the street, with minimal setbacks from pedestrian paths to create main street frontages and develop large parking lots
D-19 Redevelop Large Blocks with Mid-Density Development Redevelop large, impermeable sites as indicated in Figure 3 “Big Store” as comprehensive, mixed use sites with medium to high density.
D-20 Comprehensively Redevelop Shopping Centers
Use Food Max Plaza and San Pablo Towne Center as catalyst projects for high density, mixed use, transit-serviced TOD development at the time that the landowners show interest in redevelopment, working closely with the developer to achieve community goals through the redesign.
REF #
ACTION OR INITIATIVE
49 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
PRIORITIZATION MATRIX
CRITERIA
Each of the policy & physical recommendations listed in the prior section are evaluated along the following criteria to determine the priority level. A number of variables are measured including the cost and available funding sources, responsible party, timeframe, and level of impact.
Cost: Measured in orders of magnitude, the cost and timeframe are directly related. Projects within the tens of thousands, hundreds of thousands, or above are rated in $, $$, and $$$ values correspondingly.
Timeframe: The timeframe considers the length of time it will take to complete a project, not necessarily the short or long-term timeframe horizon for San Pablo’ s future planning. Shorter length projects or immediately actionable pilot projects may be initiated sooner as catalyst projects, on a case-by-case basis, with higher-ranking priority projects with easier implementation scheduled first. Long-term, years-long projects often actions requiring coordination from multiple stakeholders, a phased approach or pilot project study to test a program, or require a significant master planning component with a long-term build out.
Impact Scale: Scale is indicated at the “Local” level (site), “District” (Priority Area, neighborhood, corridor), or “City- Wide. ” Projects that are contained to one site may be easier to implement as early catalyst projects, whereas network and station area scaled projects may require TOD framework and policy support before it is feasible to approach them.
Scalability is also a factor to consider for the scale of impact, as some site-specific measures are replicable in similar conditions across the district or city.
PRIORITY LEVEL
These three criteria produce a Priority Level that rates policies and projects in categories of Quick Start, Planning Horizon, or Big Moves.
Quick Starts are specific, contextual, and responsive to the unique characteristics and conditions in each of the districts. They can include experiments, pilot projects, small grants, activations and events. Their impacts are felt immediately, and can have bigger results than their small budgets and time frames might suggest.
Planning Horizon projects typically follow typical municipal processes – no expedited or extensive special considerations are needed. They include development applications, policy updates, data analysis and reporting, but with iterative innovations and improvements over time to continually implement better projects and programs.
Big Moves work together to establish consistency and continuity throughout the city, and define a “San Pablo” TOD look and feel. They have the highest cost and timeframe needs, and will likely require their own dedicated plan for the site-specific or policy-specific area, whether that’ s a master plan or a new policy program.
BIG MOVES
PLANNING
HORIZON
QUICK
START
<1 year 2-5 years 5+ years
$
$$
$$$
T I M E F R A M E
C O S T
50 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
T-1 Bike Ped Plan Alignment $ <1 Year City-Wide Quick Start T-2 Parking Assessment $ <1 Year City-Wide Quick Start T-3 5-Y ear Paving Plan $$ 2-5 years City-wide Planning Horizon T-4 Complete Streets Policy $$ 2-5 Years City-Wide Planning Horizon T-5 Require New Development Improvements $ 2-5 Years City-Wide Quick Start T-6 Incentivize Cyclist Facilities in New Development $ 2-5 Years City-Wide Quick Start T-7 San Pablo Dam Road Partnership $$ 2-5 Years District Planning Horizon T-8 Richmond Transportation Partnership $$ 2-5 Years District Planning Horizon T-9 County Transportation Partnership $$ 2-5 Years Local Planning Horizon T-10 Safe Routes to Schools Alignment $$ 2-5 Years City-Wide Planning Horizon T-11 Contra Costa College Partnership $$ 1-5 Years Local Planning Horizon T-12 AC Transit + WestCat Partnerships $$ 5+ Years City-Wide Big Move T-13 Improve Pedestrian Crossings at Intersections $$ 1-5 Years Local Quick Start T-14 Enhance Transit Stops $$ 1-5 Years Local Quick Start T-15 Make 23rd a Main Street $$ 1-5 Years District Planning Horizon T-16 Complete the San Pablo Avenue Bridge
Replacement Project $$ 1-5 Years Local Planning Horizon T-17 Provide Micromobility Hubs $$ 1-5 Years Local Planning Horizon T-18 Improve and Complete Regional Trail Network $$ 1-5 Years District Planning Horizon T-19 Continue Implementing Existing Plans $$ 1-5 Years District Planning Horizon T-20 Build Bridges over Wildcat Creek $$$ 1-5 Years Local Big Move T-21 Create a Fine-Grained Street Network by Breaking Up Large Blocks $$$ 5+ Years District Big Move
RECOMMENDATIONS
COST
$
$$
$$$
TIMEFRAME
<1 YEAR
2-5 YEARS
5+ YEARS
IMPACT SCALE
CITY-WIDE
DISTRICT
LOCAL
PRIORITY LEVEL
TransportationT
Policy Recommendations
Physical Recommendations
51 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
O-1 Expand Parkland Dedication $ <1 Year City-Wide Quick Start O-2 Specific Plan Open Space Designations $ <1 Year District Quick Start O-3 Provide Creek Access $ 1-5 Year City-Wide Planning Horizon O-4 Bay Trail Partnership $$ 1-5 Years District Planning Horizon O-5 EBRP Partnerships $$ 1-5 Years District Planning Horizon O-6 Trail Maintenance $$ 1-5 Years City-Wide Planning Horizon O-7 School Joint Access Agreement $ <1 Year City-Wide Quick Start O-8 Utilize Schoolgrounds $ <1 Year City-Wide Quick Start O-9 Activate Open Space Frontages $$ 1-5 Years District Quick Start O-10 Designate New Park Space $ <1 Year Local Quick Start O-11 Renaturalize Wildcat Creek and San Pablo Creek $$ 1-5 Years District Planning Horizon O-12 Build New Urban Open Spaces $$ 1-5 Years Local Planning Horizon O-15 Connect Key Destinations and Break up Large
Blocks With Green Linkages $$$ 5+ Years District Big Move O-16 Daylight Underground Segment of Wildcat Creek $$$ 1-5 Years District Planning Horizon
RECOMMENDATIONS
PRIORITY LEVEL
Open SpaceO
Policy Recommendations
Physical Recommendations
COST
$
$$
$$$
TIMEFRAME
<1 YEAR
2-5 YEARS
5+ YEARS
IMPACT SCALE
CITY-WIDE
DISTRICT
LOCAL
52 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
D-6 Define and Require New Connections Through
Large Blocks $$$ 5+ Years Local Big Move
D-7 Encourage Consolidated Parking Off of
Lowest-Level Road $ <1 Year City-Wide Quick Start
D-8 Encourage Manufactured Builds $ <1 Year City-Wide Quick Start D-9 Contra Costa College Partnership $$ 1-5 Years District Planning Horizon D-10 Property Owner Coordination $$ <1 Years City-Wide Quick Start D-11 Facilitate Catalyst Projects $ <1 Years City-Wide Quick Start D-12 Encourage Land Assemblies $ <1 Years City-Wide Quick Start D-13 Tenant Protection $$ 1-5 Years City-Wide Planning Horizon D-14 Inclusionary & Incentive Zoning $$ 1-5 Years City-Wide Planning Horizon D-15 Homelessness Working Group $$ 1-5 Years City-Wide Planning Horizon D-16 Revitalize Main Streets and Corridors Through
Infill Development. $ 2-5 Years District Quick Start
D-17 Implement Frontage Improvements $$ 2-5 Years District Planning Horizon D-18 Town Center Design Guidelines. $$ 2-5 Years Local Planning Horizon D-19 Redevelop Large Blocks with Mid-Density
Development $$$ 5+ Years Local Big Move
D-20 Comprehensive Redevelopment Shopping Centres $$$ 5+ Years Local Big Move
RECOMMENDATIONS
PRIORITY LEVEL
Physical Recommendations
DevelopmentD
Policy Recommendations
COST
$
$$
$$$
TIMEFRAME
<1 YEAR
2-5 YEARS
5+ YEARS
IMPACT SCALE
CITY-WIDE
DISTRICT
LOCAL
D-1 Apply and Adjust Zoning Ordinance $$ 1-5 Years City-Wide Planning Horizon D-2 TOC Policy for Density and Parking $$ 1-5 years City-Wide Planning Horizon D-3 Housing Element Coordination $ 1-5 Years City-Wide Quick Start D-4 TOC Policy for Affordable Housing $$ 1-5 Years City-Wide Planning Horizon D-5 Objective Design Standards $$ 1-5 Years City-Wide Planning Horizon 53 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
07 Implementation
SAN PABLO SUSTAINABLE TOD MASTER PLAN
54 7 IMPLEMENTATION PLAN
TOD implementation is set in motion by three key drivers:
1. Identifying a funding source
2. Assigning a responsible party
3. Activating a prompt
Responsible Party
This category assigns a city department or partner to lead the initiative.
Funding Source
Projects with grant resources available in the immediate term are prioritized, as grant funding is unreliable as a long-term resource given possible program changes and priority changes at the regional or state level. New grant or loan programs may impact this rating, and should be monitored regularly.
Prompt
The prompt is the activating event that kicks off this policy recommendation. It is often tied to receiving funding, but also can be instigated by a policy review or update, a partner or agency timeline, or a land development application. Some prompts rely on nothing more than a program or project launch, which can be arbitrary or tied to council direction, community priorities, or capacity.
T-1 Bike Ped Plan Alignment Municipal Budget Public Works Plan Update T-2 Parking Assessment Municipal Budget Planning
Division Plan Update
T-3 5-Y ear Paving Plan Municipal Budget Public Works Plan Update T-4 Complete Streets Policy MTC Priority Development Area (PDA) Grants
Community
Development Grant Received
T-5 Require New Development Improvements Value Capture Building Services Development Application
T-6 Incentivize Cyclist Facilities in New
Development Value Capture Building Services Project Launch T-7 San Pablo Dam Road Partnership
MCT Active Transportation
Program Grant, CalTrans
Sustainable Transportation
Planning Grant Program
Planning
Division
Grant Received /
Partner Agency
Direction
T-8 Richmond Transportation Partnership
MCT Active Transportation
Program Grant, CalTrans
Sustainable Transportation
Planning Grant Program
Planning
Division
Grant Received /
Partner Agency
Direction
TransportationT
Policy Recommendations
RECOMMENDATIONS
FUNDING
SOURCE
RESPONSIBLE
PARTY
PROMPT
55 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
T-9 County Transportation Partnership
MCT Active Transportation
Program Grant, CalTrans
Sustainable Transportation
Planning Grant Program
Planning
Division
Grant Received/
Partner Agency
Direction
T-10 Safe Routes to Schools Alignment Caltrans Safe Routes to School Programs
Public Works,
Community
Development
Grant Received
T-11 Contra Costa College Partnership CCC Mobility Hub Plan Community Development
Plan Adopted
November 2023
T-12 AC Transit + WestCat Partnerships
State/Regional Funding –
CalTrans Local Transit Funds/
State Transit Assistance
Community
Development
State/Regional
Agencies Moving
Forward
T-13 Improve Pedestrian Crossings at
Intersections
MTC Active Transportation
Program; MTC Priority
Development Area Planning
Program Grant
Public Works Grant Received/
Funding Cycle
T-14 Enhance Transit Stops FTA Busses and Bus Facilities Grant Program
Community
Planning
Grant Received/
Funding Cycle
T-15 Make 23rd a Main Street CDBG - Section 108 Loan Guarantee Program
Planning
Division
Grant Received/
Funding Cycle
T-16 Complete the San Pablo Avenue Bridge
Replacement Project
CDBG - Section 108 Loan
Guarantee Program Public Works Grant Received/
Funding Cycle
T-17 Provide Micromobility Hubs MTC Regional Mobility Hub Construction Program Public Works Grant Received
T-18 Improve and Complete Regional Trail
Network
CDBG - Section 108 Loan
Guarantee Program; CalTrans
Climate Adaptation Planning
Grant
Community
Services, Public
Works
Program Launch,
Partnership Launch,
Grant Received
T-19 Continue Implementing Existing Plans HUD Choice Neighborhood Grant; US DOT RAISE Grant
Planning
Division Grant Received
T-20 Build A Pedestrian/Cyclist Bridge Over
Wildcat Creek
CDBG - Section 108 Loan
Guarantee Program; CalTrans
Climate Adaptation Planning
Grant
Community
Services, Public
Works
Project Launch
T-21 Create a Fine-Grained Street Network by
Breaking Up Large Blocks
CDBG - Section 108 Loan
Guarantee Program; CalTrans
Climate Adaptation Planning
Grant
Community
Services, Public
Works
District
RECOMMENDATIONS
FUNDING
SOURCE
RESPONSIBLE
PARTY
PROMPT
TransportationT
Policy Recommendations
Physical Recommendations
56 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
O-1 Expand Parkland Dedication Value Capture Planning Division
Development
Applications
O-2 Specific Plan Open Space Designations Municipal Budget Community Planning
Plan Reviews/
Updates
O-3 Provide Creek Access Value Capture/Private
Investment
Planning
Division
Development
Applications
O-4 Bay Trail Partnership
CDBG - Section 108 Loan
Guarantee Program; CalTrans
Climate Adaptation Planning
Grant
Community
Services, Public
Works
Program Launch,
Partnership Launch,
Grant Received
O-5 EBRP Partnerships
CDBG - Section 108 Loan
Guarantee Program; CalTrans
Climate Adaptation Planning
Grant
Community
Services, Public
Works
Program Launch,
Partnership Launch,
Grant Received
O-6 Trail Maintenance
CDBG - Section 108 Loan
Guarantee Program; CalTrans
Climate Adaptation Planning
Grant
Community
Services, Public
Works
Program Launch,
Partnership Launch,
Grant Received
O-7 School Joint Access Agreement Municipal Budget Community Planning Project Launch
RECOMMENDATIONS
FUNDING
SOURCE
RESPONSIBLE
PARTY
PROMPT
Open SpaceO
Policy Recommendations
O-8 Utilize Schoolgrounds Municipal Budget Community
Planning Project Launch
O-9 Activate Open Space Frontages Private Investment Building Services Redevelopment
Application or
Program Launch
O-10 Designate New Park Space Municipal Budget Community Planning Plan Update
O-11 Renaturalize Wildcat Creek and San Pablo
Creek
CDBG - Section 108 Loan
Guarantee Program; CalTrans
Climate Adaptation Planning
Grant
Community
Services, Public
Works
Program Launch,
Partnership Launch,
Grant Received
O-12 Build New Urban Open Spaces CDBG - Section 108 Loan Guarantee Program
Planning
Division Grant Received
O-13 Connect Key Destinations and Break up
Large Blocks With Green Linkages
CalTrans Active Transportation
Program, OPR Adaptation
Planning Grant Program
Planning
& Zoning,
Community
Planning
Grant Received
Physical Recommendations
O-14 Daylight Underground Segment of Wildcat
Creek
CDBG - Section 108 Loan
Guarantee Program; CalTrans
Climate Adaptation Planning
Grant
Community
Services, Public
Works
Program Launch,
Grant Received
57 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
RECOMMENDATIONS
FUNDING
SOURCE
RESPONSIBLE
PARTY
PROMPT
DevelopmentD
Policy Recommendations
D-1 Apply and Adjust Zoning Ordinance Municipal Budget Planning Division
Funding Cycle/Plan
Update
D-2 TOC Policy for Density and Parking
Municipal Budget, MCT Climate
Grant for Parking Management
Planning
Planning
Division
Funding Cycle/Plan
Update
D-3 Housing Element Coordination Municipal Budget Planning Division Plan Update
D-4 TOC Policy for Affordable Housing Municipal Budget Housing Plan Update/Review D-5 Objective Design Standards Municipal Budget Building Services Program Launch D-6 Define and Encourage New Connections
Through Large Blocks
CalTrans Active Transportation
Program, OPR Adaptation
Planning Grant Program
Planning
Division
Rezoning/Master
Plan Process
D-7 Encourage Consolidated Parking Off of
Lowest-Level Road Municipal Budget
Planning &
Zoning, Building
Services
Plan/Policy Update
D-8 Enable Manufactured Builds Municipal Budget
Planning &
Zoning, Building
Services
Plan/Policy Update
D-9 Contra Costa College Partnership
Municipal Budget, CAHCD
State Community Development
Block Grant (CDBG) Program,
CAHCD Local Housing
Trust Fund, CAHCD Infill
Infrastructure Grant Program
Planning &
Zoning, Building
Services
Plan/Policy Update
D-10 Property Owner Coordination Municipal Budget; HUD Choice Neighborhoods Grants Housing Program Launch
D-11 Facilitate Catalyst Projects
USDOT Pilot Program for
TOD Planning funded by CIG
program
Planning
Division
Development
Application
D-12 Encourage Land Assemblies Municipal Budget Planning Division
Plan Update,
Program Launch
D-13 Tenant Protection
Municipal Budget; HUD Choice
Neighborhoods Grants; CAHCD
State Community Development
Block Grant (CDBG) Program
Community
Services,
Housing
Program Launch,
Grant Received
D-14 Inclusionary & Incentive Zoning Municipal Budget Planning Division Plan Update
D-15 Homelessness Working Group
Municipal Budget; CAHCD
State Community Development
Block Grant (CDBG) Program
Community
Services,
Housing
Program Launch
58 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
RECOMMENDATIONS
FUNDING
SOURCE
RESPONSIBLE
PARTY
PROMPT
Physical Recommendations
D-16 Revitalize Main Streets and Corridors Through
Infill Development
CAHCD Infill Infrastructure
Grant Program
Planning
Division Plan Update
D-17 Implement Frontage Improvements CDBG - Section 108 Loan Guarantee Program Building Services Development
Application
D-18 Town Center Design Guidelines Municipal Budget Planning Division Project Launch
D-19 Redevelop Large Blocks with Mid-Density
Development
Private Investment/Land Value
Capture
Planning
Division
Development
Application
D-20 Comprehensively Redevelop Shopping
Centres
USDOT Pilot Program for
TOD Planning funded by CIG
program; Private Investment/
Land Value Capture
Planning
Division
Development
Application
59 CITY OF SAN PABLO SUSTAINABLE TOD MASTER PLAN
Appendices
• A - Existing Conditions Analysis
• B - TOD Vision + Priority Areas Study
• C - Streetscape Toolkit
• D - Policy Recommendations Report
SAN PABLO SUSTAINABLE TOD MASTER PLAN
61 Appendix A -
Existing Conditions
Analysis
Existing
Conditions
Analysis
Sustainable Transit Oriented Development Master Plan
City of San Pablo
Task 1.1/1.2
Contents
2 Project Background
Policy and Literature Review
Spatial and Quantitative Analysis
T + O + D Synthesis
Next Steps 48
44 19
4 301
02 03
04 05
Sustainable Transit Oriented Development Master Plan | City of San Pablo Existing Condition Analysis | Task 1.1 & 1.2
3 Project Background 01
The City of San Pablo is located in west Contra Costa County off Interstate 80, nestled between the cities of Richmond, El Cerrito and Pinole. To support local and statewide goals of decreasing vehicle miles traveled (VMT), supporting housing development, and creating a vibrant and economically-productive community, the City is utilizing a Sustainable Communities Planning Grant from Caltrans to create a Sustainable Transit Oriented Development (TOD) Plan.
TOD is a holistic approach to long-range planning that treats the ways people move, the spaces they move through, and the places they move between as interrelated. This Plan is designed to analyze these aspects of the built environment with a particular focus on housing, climate resiliency/sustainability, and implementation strategies. The analysis and recommendations will be further guided by a robust, consistent community engagement effort throughout the project to ensure that it is led by the people who are San Pablo’s experts: its residents.
1.1 P urpose of this Document
This existing conditions analysis includes a review of quantitative and qualitative data about the City of San Pablo that will guide the technical team throughout the project and inform the community engagement process. The documents and data summarized in this analysis were selected because they are relevant to transportation, open space, development, housing, and climate resiliency, which are the lenses through which the TOD Plan will be developed. The range of information reviewed was also selected to ensure that all parties involved in the project have a high-level understanding of “how we got here” to inform the Task 3 TOD Vision and Task 4 Recommendations & Prioritization activities.
1.2 D ocument Overview
In consultation with City of San Pablo staff, the technical team compiled a list of all policy and planning documents that are relevant to the Sustainable TOD planning process: the City’s General Plan; Housing Element update; plans related to bike, pedestrian, and green infrastructure; and other information about projects currently under development. These plans are reviewed and summarized in Section 2 below, which also includes key recommendations and findings from each document that are relevant to the Sustainable TOD process.
The existing conditions review process also included a thorough review and mapping of geospatial data to inform the planning effort captured in Section 3. Data sources broadly included three main categories: land use (e.g., existing and proposed housing opportunity areas), transportation (e.g., bus routes, ridership data, traffic signal information), and climate (e.g., flood risk information and other metrics of sustainability).
Finally, Section 4 synthesizes this information to inform later stages of the project. It includes “single layer” maps that illustrate relationships and overlap between key information that will further guide the TOD vision, recommendations, and prioritization efforts that will be informed by City of San Pablo staff, key stakeholders, and the community.
Sustainable Transit Oriented Development Master Plan | City of San Pablo Existing Condition Analysis | Task 1.1 & 1.2
4 Policy and Literature Review 02
The types of documents in the policy and literature review fall primarily into two categories: those created by or for the City of San Pablo, and those created by regional agencies or neighboring jurisdictions. The documents are reviewed and organized accordingly in the section that follows. Each document is summarized with key takeaways organized according to relevance to the transportation (T), open space (O), development (D), housing (H), and climate resiliency (R) aspects of the project.
2.1 City of San Pablo Documents
2.1.1 General Plan 2030 (2011) and General Plan Update (In Progress) Adopted in 2011, the City of San Pablo General Plan 2030 is the foundational document for long-range development and planning. It set a vision for the city’s future; established goals and policies to support that vision; and defined how land use, transportation, parks and open space, health, safety, noise, and other factors are interrelated and considered as the built environment changes. Key themes in the plan include:
• Economic Development – including redevelopment of vacant and underutilized sites, and creation of new employment along major transportation corridors.
• Pedestrian and Bicycle-Friendly Community – supporting mixed-use neighborhoods and access to parks, schools, and commercial centers.
• Community Facilities – providing greater benefit to San Pablo’s residents. • Health and Safety – recognizing the links between the built environment (such as access to grocery stores or medical care) and the well-being of residents.
• Parks and Open Space – including the development of new parks and trails to meet community needs.
The General Plan 2030 sets assumptions for population, housing, and job growth densities and allocates them throughout the city. At the time of its preparation, low-density residential development was the single largest existing use (occupying 31% of incorporated land), followed by public/institutional uses (occupying 15% of land).
The major land use impacts outlined by the General Plan 2030 included establishment of mixed-use zoning (primarily along San Pablo Avenue and 23rd Street) and concentrated at two centers. Some additional parcels or groups of parcels clustered around major intersections are eligible for greater density and mixed uses, and five potential locations for new parks were also included.
As of 2023, the City of San Pablo is updating its General Plan to further its goals of expanding housing and job opportunities, addressing housing affordability, and improving quality of life and community services. The first phase of this work is to update the Housing Element of the General Plan, consistent with state requirements for all cities to prepare for the 8-year Regional Housing Needs Allocation (RHNA) cycle. The updated Housing Element will continue to align with the General Plan’s framework of allowed uses but identifies priority housing sites and outlines policies and programs that will be implemented by the City to meet targets for housing development. The Housing Element update process is described in the following section.
All elements of the General Plan 2030 will receive minor updates, with major revisions to the Safety and Environmental Justice Element, in compliance with Senate Bill 1000 (Leyva, 2016).
L AYER KEY TAKEAWAYS
• The General Plan 2030 aims to make San Pablo a pedestrian and bike-friendly community. • There is a deficiency of parks in the city, and new parks and trails are a high priority. • The General Plan 2030 proposed seven more parks that would add an additional 24.4 acres of park space, doubling the existing parkland. One of the seven parks has since been built. • Although public/institutional land (which can often serve as redevelopment opportunities) is the second-largest land use in San Pablo, the majority of it is used by existing school campuses and the St.
Joseph Cemetery & Funeral Center.
• The General Plan 2030 is the primary land use planning framework that identifies the distribution and pattern of allowed land uses throughout the city.
• Primary areas identified by the General Plan 2030 for transit-oriented housing and job growth are San Pablo Avenue, 23rd Street, and Rumrill Boulevard. The Contra Costa College and San Pablo Casino areas are also identified as important employment centers and transit-served destinations for visitors and residents.
T
O
D
Transportation
Open Space
Development
Sustainable Transit Oriented Development Master Plan | City of San Pablo Existing Condition Analysis | Task 1.1 & 1.2
5 2.1.2 2 015-2023 Housing Element and RHNA Update (In Progress) All California cities and counties are required to include a Housing Element in their General Plan to guide goals, objectives, policies, and programs related to housing. The City of San Pablo’s most recent Housing Element covered the period of 2015-2023 and, as of 2023, the City is currently in the process of producing a new Housing Element. These documents are reviewed and approved by the California Department of Housing and Community Development (HCD) and must address the need for development of new housing as determined by the Regional Housing Needs Allocation (RHNA) process.
The 2015-2023 Housing Element identified several key trends related to housing:
• Relatively modest expected growth in population over the next 25 years; • Continuing racial/ethnic community diversity;
• Relatively high numbers of low-income-earning younger adults and an increasing number of seniors; • Significant numbers of families with children and larger households; and • A continuing need for affordable housing, a variety of housing types, and affordable rentals.
To accommodate these needs, the Housing Element also includes a range of strategies, policies, and programs at the local, regional, and state level, as well as an evaluation of potential sites for development of new housing.
In March 2023, the City Council received the City’s annual housing progress report for calendar year 2022, which summarized the progress as follows:
According to the 2021 APR, the City had developed only 99 units out of a total of 449 units expected to be produced by 2023 under the Regional Housing Needs Allocation (RHNA). The 2022 report will increase this number to 164, leaving 285 units remaining to be produced by the end of the eight-year cycle in 2023. Because the City entitled an additional 209 units in 2022 and is currently processing building permits for an additional 119 units that received entitlements in 2021, up to an additional 328 units could be produced in the 2023 report for the last year of the current RHNA cycle, which would exceed the RHNA allocation. Any unmet allocation will be carried over to the next cycle. The City’s RHNA allocation for 2023- 2031 is for an additional 746 units, including 173 at the very low-income level, 100 at the low-income level, 132 at the moderate-income level, and 341 at the above moderate-income level.
While receiving the results of the report and authorizing its submission to HCD, the Council also reaffirmed that expansion of housing options is one of its top priorities.
L AYER KEY TAKEAWAYS
• Locating new housing development as close to high-quality/capacity transit as possible is crucial to meeting sustainability goals.
• Compact housing development will help preserve open space that can benefit all residents of San Pablo.
• Although the City may meet its current RHNA target, removing barriers to housing production will be critical to meeting the much higher number in the 2023-2031 cycle. • The opportunity sites in the draft Housing Element (August 2022 Public Draft) are focused along San Pablo Avenue, 23rd Street, and Rumrill Boulevard, with multiple potential development parcels along the corridors and larger potential development sites at the College Center and San Pablo Towne Center shopping areas.
• The current Housing Element and its in-progress update underscore the need for more housing production, which is a core component of TOD and housing affordability. • N/A
L AYER KEY TAKEAWAYS
• The General Plan 2030 set a foundation for more compact and dense mixed-use development, but few of its goals have been achieved. Redevelopment of existing uses with more dense, mixed-use projects will be crucial to support housing affordability.
• The General Plan 2030 Health Element (Chapter 8) connects public health and individual resiliency with the built environment and long-range planning efforts.
H
R
Housing
Climate Resiliency
H
R
Housing
Climate Resiliency
T
O
D
Transportation
Open Space
Development
Sustainable Transit Oriented Development Master Plan | City of San Pablo Existing Condition Analysis | Task 1.1 & 1.2
6 2.1.3 San Pablo Avenue Specific Plan (2011)
San Pablo Avenue was identified as a regional Priority Development Area (PDA) by the Metropolitan Transportation Commission (MTC) and the Association of Bay Area Governments (ABAG) in 2007. As a result, the San Pablo Avenue Specific Plan was initiated to establish a vision and policies for supporting vibrant, accessible, mixed-use development along a key regional corridor. The plan sought to establish the area as a regional and community destination, encourage high-density development, and provide streetscape improvements that are better coordinated with key activity centers.
The plan established guiding principles to achieve these goals, identified opportunity sites where vacant or underutilized parcels could be redeveloped, and proposed land use mixes for five focus areas:
• Mission Plaza – located on the west side of San Pablo Avenue between Rumrill Boulevard and El Portal Drive/Broadway Avenue • West San Pablo Avenue – located on the west side of San Pablo Avenue between El Portal Drive and Road 20. • Circle S – located on the west side of San Pablo Avenue between Church Lane and Vale Road • Towne Center – located on the east side of San Pablo Avenue between Vale Road, San Pablo Dam Road and Interstate 80 • South San Pablo Avenue – located on both sides of San Pablo Avenue, with the majority of the land located south of San Pablo Dam Road and north of Glenn Avenue
The plan also recommended establishing a transit hub at the northeast corner of San Pablo Avenue and El Portal Drive, pedestrian priority zones around the focus areas, implementation of a Complete Streets approach along San Pablo Avenue, and a network of bicycle lanes providing better connections between the priority zones and other areas in the city. Except for some redevelopment at the Circle S location (that was proposed separately from the plan), most of the development anticipated at activity centers has not occurred. Nonetheless, the Plan’s identification of proposed change and development areas can continue to inform the citywide transit-oriented development strategy, and many of sites identified in the Specific Plan may continue to become more marketable and feasible for TOD in upcoming development cycles.
L AYER KEY TAKEAWAYS
• Most of the goals, policies, and recommendations contained in the San Pablo Avenue Specific Plan remain relevant—in particular, the vision for a vibrant, mixed-use corridor with multimodal transportation options.
• The San Pablo Avenue Specific Plan envisions that future transit-oriented development will include significant improvements to streetscape, public spaces, and pedestrian amenities when development occurs.
• The plan identifies a pedestrian-bicycle path along Wildcat Creek, as part of redevelopment of the former Circle-S site, that includes a number of smaller open spaces (e.g. pocket parks). This improvement project was completed in 2021.
• Recommendations for improvements at focus area locations should be reconsidered as part of the Sustainable TOD Plan process to determine whether they are still feasible and if they will meet the needs of the City of San Pablo and its residents.
• Similar specific plans are underway or already completed for San Pablo Avenue in the Cities of El Cerrito, Albany, and Berkeley, in addition to complete streets projects along the entire San Pablo Avenue corridor being led by the Alameda County Transportation Commission (ACTC) and Contra Costa County Transportation Authority (CCTA). These efforts indicate regional interest in making San Pablo Avenue a more walkable, bikeable corridor with transit-oriented uses, densities, and design. • Market feasibility for market-rate housing, affordable housing, retail and services uses, and employment- focused uses will need to be updated for current conditions in order to understand which development concepts and locations in the San Pablo Avenue Specific Plan are most likely to occur. • N/A
H
R
Housing
Climate Resiliency
T
O
D
Transportation
Open Space
Development
Sustainable Transit Oriented Development Master Plan | City of San Pablo Existing Condition Analysis | Task 1.1 & 1.2
7 2.1.4 Green Infrastructure Plan (2019)
The City of San Pablo is subject to the requirements of the San Francisco Bay Regional Water Quality Control
Board (SFRWQCB) Municipal Regional Stormwater
National Pollutant Discharge Elimination System
(NPDES) Permit (MRP). As part of the second issuance
of the MRP (Order No. R2-2019-0004), the City was
required to prepare a Green Infrastructure Plan to help meet environmental goals of managing stormwater
runoff, promoting infiltration, and reducing pollutants in the San Francisco Bay.
The City’s Green Infrastructure Plan identified
watersheds, flood zones, drainage facilities, existing
and planned green infrastructure projects, and outlines green infrastructure targets and priority projects for
implementation. Priority projects with proposed green
infrastructure facilities to be considered in future
planning efforts include:
• Rumrill Boulevard Complete Streets Project
• Moraga Road park project
• Contra Costa County Fire Protection District
Station
• Plaza San Pablo
• 1411 Rumrill Boulevard
• San Pablo Avenue bridge replacement and
intersection reconfiguration (at Road 20 and 23rd
Street)
• Sutter Avenue Green Street
• Market Avenue drainage and active transportation
improvements
• Giant Road drainage and active transportation
improvements
• Old Town drainage improvements
Green infrastructure goals are particularly important
as the City considers how to redevelop vacant or
underutilized parcels as part of the TOD Sustainable
Plan process.
L AYER KEY TAKEAWAYS
• The plan’s Complete Green Streets Checklist should form the foundation for infrastructure recommendations in the Sustainable TOD Plan.
• The Moraga Road park project is a key open space site for consideration. • Green Infrastructure priority areas should be considered in the Sustainable TOD Plan. • Future TOD projects are opportunities to accomplish green infrastructure goals. • N/A
• Drainage improvement projects are of particular importance to climate resiliency, as extreme weather events are expected to increase in the future.
• Green infrastructure projects need to be incorporated into a larger resiliency strategy.
H
R
Housing
Climate Resiliency
T
O
D
Transportation
Open Space
Development
Sustainable Transit Oriented Development Master Plan | City of San Pablo Existing Condition Analysis | Task 1.1 & 1.2
8 2.1.5 Affordable Housing Strategy (2020)
The City’s Affordable Housing Strategy was designed to document existing housing supply, assess the current and future needs of the population, establish goals for affordable housing, and evaluate potential strategies for meeting those goals. The report’s primary conclusions were that San Pablo’s housing supply has a relatively large percentage of multifamily housing compared to its neighbors; most multifamily properties are small; and that two-thirds of households are renters.
One-third of renters in San Pablo rent a single-family home, and many single-family homes in the city are owned by large publicly- traded companies that have removed them from the homebuyer market. Most housing in San Pablo was built before 1980, and virtually no new housing has been built in the last decade. Crucial to planning for TOD, the strategy also outlines opportunities and constraints for market rate and affordable housing development.
The seven goals outlined in the strategy include:
1. Support new and existing homeowners.
2. Support and protect existing tenants.
3. Improve housing quality and safety.
4. Preserve existing affordable housing.
5. Produce more housing.
6. Prevent and reduce incidence of homelessness.
7. Create new affordable housing funding sources.
Within each goal, the document evaluates 2-5 strategies for achieving the goal and recommends implementation actions.
L AYER KEY TAKEAWAYS
• The strategy does not consider transportation specifically, but locating affordable housing near transit is a standard strategy to support residents and facilitate high-density housing development. • New affordable housing should also include resident amenities, supportive programs and services, and improvements to adjacent public spaces.
• Recommended implementation actions outlined in the Affordable Housing Strategy should be incorporated into the Sustainable TOD Plan.
• TOD can support the goal of producing more housing, which may in turn support existing homeowners and tenants by alleviating supply-side pricing pressures. • Zoning changes—such as those that support “missing middle” housing types or eliminate parking minimums—could further support affordable housing within the context of TOD. • N/A
H
R
Housing
Climate Resiliency
T
O
D
Transportation
Open Space
Development
Sustainable Transit Oriented Development Master Plan | City of San Pablo Existing Condition Analysis | Task 1.1 & 1.2
9 2.1.6 Bicycle and Pedestrian Master Plan (2017)
The planning process included efforts to define a vision and goals for active transportation in the city, identify gaps in the active transportation network, and document areas where walking and bicycling improvements should be prioritized. Common challenges for pedestrians included missing sidewalks, not enough lighting, unsafe crossings, speeding by drivers, and uninviting public spaces.
At the time of the study, the city had just 3.7 miles of Class II bicycle lanes and 0.7 miles of Class I shared-use paths.
Bicycle facilities are generally described as follows:1 1 Definitions sourced from Caltrans District 4 Bike Plan (2018): https://dot.ca.gov/-/media/dot-media/district-4/documents/d4-bike-plan/caltransd4bikeplan_report_lowres-r6.pdf Recommendations in the plan included:
• Identification of a Pedestrian Priority Network to guide improvements, concentrated primarily along the San Pablo Avenue corridor and key activity centers such as Contra Costa College and neighborhood schools. • Addition of nearly 10 miles of bicycle lanes and routes, as well as the study of potential new routes. • Implementation of new programs—e.g., a Safe Routes to School Program—to encourage the public to choose active transportation modes.
The street segments labeled under “Proposed Studies” in the Recommended Bicycle Network map (below) are further discussed in the City’s Bicycle and Pedestrian Corridor Study, described in the following section.
Class I bikeways—also known as bike paths or shared-use paths—are facilities exclusively for bicyclists and pedestrians that are located away from the roadway and with minimal crossings by vehicle traffic. Some configurations provide separate spaces for bicyclists and pedestrians within these Class I facilities.
Class III bikeways, or bike routes, designate a preferred route for bicyclists—typically with “sharrows”—on streets shared with vehicle traffic but without dedicated bikeways. Bike routes are generally not appropriate for roadways with higher vehicle traffic speeds or volumes.
Class II bikeways are bike lanes defined by pavement
striping and signage to delineate a portion of a roadway for bicycle travel. Bike lanes are one-way facilities, typically striped adjacent to motor traffic travelling in the same direction. Class II bike lanes can also be “buffered” with additional striping and spacing between the bike lane and adjacent traffic.
Class IV separated bikeways, often referred to as cycletracks or protected bike lanes, are for the exclusive use of bicycles and are physically separated from vehicle traffic with a vertical feature. The separation may include, but is not limited to, grade separation, flexible posts, inflexible barriers, or on-street parking.
Class I Bikeways
Class III Bikeways
Class II Bikeways
Class IV Bikeways
Sustainable Transit Oriented Development Master Plan | City of San Pablo Existing Condition Analysis | Task 1.1 & 1.2
10 L AYER KEY TAKEAWAYS
• Recommendations that have been implemented from the Bicycle and Pedestrian Master Plan include Class II bicycle lanes on San Pablo Avenue (between College Lane and La Puerta Road), Class II bicycle lanes on Market Avenue/Church Lane (between 23rd Street and San Pablo Avenue), and Class IV bicycle lanes on Rumrill Boulevard (under construction as of 2023). • The Bicycle and Pedestrian Corridor Study, described in the following section, identifies proposed facilities for the streets that the Bicycle and Pedestrian Master Plan identified for study. • The Bicycle and Pedestrian Master Plan included connectivity to parks and open space as a key consideration in its recommendations.
• The Bicycle and Pedestrian Master Plan contains recommendations for short- and long-term bicycle parking requirements at new development, which should be considered in the Sustainable TOD Plan. • Sidewalk maintenance is primarily the responsibility of property owners. The City should consider how sidewalk conditions are monitored and evaluate what can be done to encourage property owners to support a safe walking environment, especially since funding opportunities (e.g., grants) typically only pay for the initial construction of sidewalks and not the long-term maintenance. • Two of the major corridors identified for bicycle facility improvements in the Bicycle and Pedestrian Master Plan may also be a focus of future transit-oriented development (i.e., Class IV along Rumrill Boulevard, and a mixture of Class II and Class IV facilities along San Pablo Avenue). • N/A
• N/A
H
R
Housing
Climate Resiliency
T
O
D
Transportation
Open Space
Development
Sustainable Transit Oriented Development Master Plan | City of San Pablo Existing Condition Analysis | Task 1.1 & 1.2
2.1.7 Bicycle and Pedestrian Corridor Study
(2022)
Developed with funding from a Sustainable Communities Planning Grant from Caltrans, as well as in coordination with the development of the Safe Routes to School Plan, the Bicycle and Pedestrian Corridor Study analyzed approximately six miles of key transportation corridors in the city to improve bicycle and pedestrian facilities. The Corridor Study builds upon the 2017 Bicycle and Pedestrian Master Plan by providing an additional level of detail along eight streets:
• San Pablo Avenue South (between Evans Avenue and the
southern city boundary)
• San Pablo Avenue North (between Road 20 and Rumrill
Boulevard)
• Broadway Avenue (between 11th Street and San Pablo Avenue) • El Portal Drive (between San Pablo Avenue and Church Lane) • Church Lane (intersection with San Pablo Avenue)
• San Pablo Dam Road (between Morrow Drive and Amador
Street)
• Giant Road (between Brookside Drive and Miner Avenue) Two off-street trails that could serve as multi-use pedestrian paths were also studied:
• Wanlass Park/Rheem Creek Trail (through Wanlass Park to 19th Street)
• Hillside/Princeton Plaza Trail (between San Pablo Dam Road and Hillcrest Road)
Analysis of the corridors included extensive community engagement, field surveys, feasibility assessments, conceptual planning, cost estimates, and a temporary demonstration of selected street improvements.
From these corridors, recommendations included:
• Class II buffered bicycle lanes on both segments of San Pablo Avenue
• Class II bicycle lanes at Church Lane
• Class IV separated/protected bicycle lanes on Giant Road, Broadway Avenue, El Portal Drive, Road 20 and San Pablo Dam Road
• Wanlass Park and Hillside Trails
L AYER KEY TAKEAWAYS
• Recent corridor analysis can be incorporated into Sustainable TOD Plan vision and list of potential projects.
• Lessons learned and feedback gained from Corridor Study outreach will inform community outreach for this project.
• Consideration of both on-street and off-street corridor improvements provides a more holistic view of travel that is not focused solely on commute trips.
T
O
Transportation
Open Space
11 Since that time, the following recommendations have been implemented:
• Class II/IV bicycle lanes on El Portal Drive (between church Lane and Fordham Road) • Class I bicycle path along Wildcat Creek (between Church Lane and Vale Road) • Class III bicycle route on Dover Avenue (between Rumrill Boulevard and Church Lane) • Class II bicycle lanes on Church Lane (between San Pablo Avenue and Willow Road)”
Sustainable Transit Oriented Development Master Plan | City of San Pablo Existing Condition Analysis | Task 1.1 & 1.2
L AYER KEY TAKEAWAYS
• Detailed concept designs for specific facility types (i.e., Class II and IV) show how street design is likely to change as part of future bicycle facility projects, creating an opportunity to envision coordinated public space and streetscape improvements implemented through TOD. • N/A
• Bicycle facility design should consider storm drain access for regular maintenance in order to minimize flooding of the bicycle facilities and surrounding area. 12 2.1.8 Safe Routes to School Master Plan
(2022)
Developed with the support of Measure J (sales tax) funding from the Contra Costa Transportation Authority, and in
coordination with the Bicycle and Pedestrian Corridor Study, the City’s Safe Routes to School (SR2S) Master Plan studied the pedestrian and bicyclist conditions surrounding the ten K-12 schools located in San Pablo. The purpose of the plan is to identify ways to make walking and bicycling safer, more comfortable, and more enjoyable for students, families, and school staff. Development of the plan also included a pilot of selected engineering recommendations.
In addition to quantitative analysis of each school’s student demographics, home locations, and collisions in adjacent areas, the plan development process included walk audits at each school with City staff and school representatives (e.g., Principal, Beacon Director, staff from the West Contra Costa County Unified School District).
Frequent recommendations cited in the plan include
sidewalk extensions and crosswalk enhancements,
adjustments to student drop-off/pick-up areas and
circulation patterns, replacement or addition of crosswalk markings, traffic calming treatments, and new or relocated signage. The plan concludes with a range of policy, program, and infrastructure recommendations that can be part
of a long-term SR2S program, focusing on engineering,
encouragement, education, and engagement.
L AYER KEY TAKEAWAYS
• Incorporate high-priority projects into the TOD Plan wherever there is overlap. • Identify ways in which TOD can support SR2S improvements that can help students travel to/from school using non-automotive modes.
• Identify where TOD funding sources can also support SR2S treatments to maximize grant competitiveness.
• Access to parks and open space is particularly important for young people. Additionally connectivity between open space and schools should be explored.
• Schools in or adjacent to anticipated TOD focus areas (such as Richmond High School on 23rd Street) may be able to accomplish SR2S goals or projects as part of future TOD. • Parents who drive their children to school incur both a financial cost (in terms of operating a car) and an opportunity cost (in terms of lost wages or other time). Neighborhoods where children can safely walk or bike to school on their own reduce these costs and can indirectly make housing more affordable. • N/A
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Sustainable Transit Oriented Development Master Plan | City of San Pablo Existing Condition Analysis | Task 1.1 & 1.2
13 2.1.9 Contra Costa College Mobility
Hub Master Plan (In Progress)
As a key activity center, major employer, and trip
generator, Contra Costa College plays an important role in the mobility landscape of San Pablo. The City of San Pablo and the College are currently working on a Master Plan to develop a mobility hub at or near the school
with short, medium, and long-term recommendations
to improve transit, bicycle, and pedestrian access.
Community outreach—in particular to students, faculty,
and staff—will play a key role in determining the
recommendations of the Master Plan.
2.1.10 Rumrill Boulevard Complete
Streets Project (In Progress)
Design and permitting for the Rumrill Boulevard
Complete Streets Project finished in 2020. As of 2023,
the project is wrapping up construction, with completion expected by the end of the year. The project is a
thorough reconfiguration of Rumrill Boulevard between
San Pablo Avenue and Costa Avenue, and includes
several key elements:
• Class IV (separated and protected) bicycle lanes
along the entire length of Rumrill Boulevard—from
San Pablo Avenue to Costa Avenue—with new
bicycle racks.
• Safety improvements including rectangular rapid
flashing beacons at crosswalks, improved lighting,
ADA ramps and median islands for crosswalks.
• Enhanced pedestrian features including wider
sidewalks, new trees and plants for street
greening, benches, and trash receptacles with
recycling.
• Improved storm drain infrastructure and bioswales
to improve water quality and reduce flooding.
• Road improvements including asphalt repair, slurry
seal, and new traffic signal systems.
The project aims to improve safety along the corridor,
encourage mode shift to active transportation, support
sustainability goals, and address barriers to safe
travel. This comprehensive street improvement project
leveraged funds from a variety of federal, state, regional, and local sources.
L AYER KEY TAKEAWAYS
• The Alameda-Contra Costa Transit District (AC
Transit) has an extensive network of bus routes
through San Pablo that link in the Contra Costa
College Transit Center.
• The Western Contra Costa Transit Authority
(WestCAT)’s stop in the City of San Pablo (for Route
C3) is located at the campus.
• Recommended mobility hub, bicycle facilities and
pedestrian improvement recommendations should be
incorporated into the TOD Plan.
• N/A
• The Mobility Hub Master Plan will consider many of
the same policies and plans considered in this report,
and communication between the two projects will be
facilitated by City of San Pablo staff.
• Contra Costa College can be a partner in TOD, as a
key activity center in San Pablo.
• Consider if there are any opportunities or needs for
student-oriented housing near Contra Costa College,
and whether the College has any ongoing efforts
related to student housing.
• N/A
• N/A
L AYER KEY TAKEAWAYS
• Expanding on existing projects such as this one,
and connecting gaps in the transportation network,
is a core strategy of TOD. This can be done with
improvements along streets that connect to Rumrill
Boulevard, such as San Pablo Avenue, Broadway
Avenue, and El Portal Drive
• Streetscape and public space improvements currently
under construction include new green infrastructure
facilities, street trees, seating, and other pedestrian- oriented public space amenities.
• As a recent and local project, Rumrill Boulevard’s
improvements can be used during the Sustainable
TOD Master Plan outreach and visioning phases to
illustrate how sustainability can be incorporated into
all three components of TOD.
• N/A
• Sustainable infrastructure elements incorporated into the project serve as an example of climate resiliency in San Pablo.
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Sustainable Transit Oriented Development Master Plan | City of San Pablo Existing Condition Analysis | Task 1.1 & 1.2
14 2.1.11 SCS by Strengthening Public Health Plan (2016) Sustainable Communities Strategies (SCS) are designed to help California meet its climate and air quality goals, as well as advance community goals for public health, accessibility, equity, conservation, the economy, and more. SCS planning was initiated by SB 375, the Sustainable Communities and Climate Protection Act, and are implemented by regional Metropolitan Planning Organizations (MPOs). Within the City of San Pablo, a Priority Development Area centered along San Pablo Avenue guided a plan to identify and assess sites for infill development that supports SCS goals. This effort, called the “SCS by Strengthening Public Health Plan, ” is an implementation strategy within the framework of Plan Bay Area, the Bay Area’s regional Sustainable Community Strategy. The plan built upon the San Pablo Avenue Specific Plan’s recommendations and focused on four sites:
• Mission Plaza
• 23rd Street and San Pablo Avenue
• Church Lane and San Pablo Avenue
• Big Lots/Food Max
The infill development strategy emphasized walkable, human-scale development, mixed uses, and design that matches its local context. It also included conceptual designs and streetscape sections, market feasibility information, cost estimates, and implementation plans. The four sites identified in the plan overlap with other planning efforts in the city, including the Housing Element. Although development at these four locations has not yet materialized, they continue to have TOD potential, and can inform the technical team’s local knowledge of what has been previously proposed in San Pablo.
L AYER KEY TAKEAWAYS
• SCS emphasizes walkable, human-scale development that is compatible with a TOD approach. • Open space is incorporated throughout the designs proposed by the plan. • Analysis of the plan’s implementation strategy will inform the vision and recommendations for development in the Sustainable TOD Plan.
• Four identified sites that were the focus on the plan continue to have TOD potential and should be considered in the Sustainable TOD Plan.
• N/A
• N/A
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Sustainable Transit Oriented Development Master Plan | City of San Pablo Existing Condition Analysis | Task 1.1 & 1.2
15 2.1.12 Climate Action Plan (2012)
The City aims to reduce greenhouse gas emissions by 15% below 2005 levels by 2020, and 30% below 2005 levels by 2035, as recommended by Assembly Bill 32. The City developed its 2012 Climate Action Plan to identify and quantify opportunities for greenhouse gas reductions and detail a course of action to meet its emission reduction targets. In 2005, roughly 60% of all emissions came from transportation, 29% from energy, and 11% from waste. Strategies identified in the CAP include energy, transportation and land use, solid waste, water and wastewater, and municipal measures.
The transportation and land use-focused measures are highly prioritized within the CAP and emphasize the following objectives:
• Increase density of mixed use, infill development along transportation corridors to reduce vehicle miles traveled by 25% • Reduce vehicle miles traveled by 3% by increasing walking and bicycle ridership • Develop car-free outreach and education campaigns specific to San Pablo
L AYER KEY TAKEAWAYS
• Increasing density of mixed-use development along transportation corridors is critical to achieving the city’s emission reduction targets, accounting for nearly half of the targeted CO2 reduction by 2035. • Converting drivers and transit users to active transportation users is another pillar of reducing emissions for the city.
• N/A
• Redevelopment efforts to make use of vacant or underutilized space in addition to updated (i.e., eased) land use restrictions will be needed to achieve density and corresponding emission reductions. • Relatively denser housing is both more affordable and less impactful on the environment. • Maintaining and expanding open space, street trees, stormwater swales, and other green and vegetated spaces is an important climate adaptation strategy to reduce vulnerability to extreme heat events and increase climate resiliency.
L AYER KEY TAKEAWAYS
• Transportation systems can plan proactively to respond to the effects of climate change, including considering rising temperatures and wildfire risk.
• The combined impact of the effects of climate change can impact O&M costs of existing and future transportation infrastructure.
• Open Space can mitigate effects of climate change, such as protecting against storm surges, and lowering the urban heat island effect.
• New development should take into consideration design challenges and recommendations for pavement, drainage, and other infrastructure assets.
• N/A
• Caltrans’ high-level assessment is regionally-focused, but more specific resiliency planning will be needed at the local level in San Pablo.
2.2 Regional Documents
2.2.1 Caltrans Climate Change Vulnerability Assessment Summary Report - District 4 (2018) California roadways and transportation infrastructure are vulnerable to the impacts of climate change. Within the San Francisco Bay Area (Caltrans District 4), the current and future impacts of climate change and other natural hazards are outlined by Caltrans in the summary report. The importance of early action to prevent loss and increase resiliency is emphasized. Temperature, pavement design, precipitation, wildfire, sea level rise, and storm surge are all noted challenges in the district.
San Pablo is likely to be impacted by extended periods of high temperature and extreme heat, with a need for roadside vegetation to withstand high temperatures and for transit facilities to be protected or shaded. The City should also prepare to design and respond to flooding concerns, as precipitation increases could potentially strain existing infrastructure. While San Pablo has low wildfire risk compared to nearby municipalities, smoke and intense drought are significant concerns for long-range planning.
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Sustainable Transit Oriented Development Master Plan | City of San Pablo Existing Condition Analysis | Task 1.1 & 1.2
16 2.2.2 MTC Transit-Oriented Communities Policy (2022) The Metropolitan Transportation Commission (MTC) established a Transit Oriented Development policy in 2005, which defined how the agency would provide funding to local communities to support TOD projects in their jurisdictions. It also organized working groups to support TOD (focused on housing development) and cross-jurisdictional and inter-agency coordination. Minimum housing densities within a half-mile of transit stops eligible for TOD funding were established by mode, ranging from 750 units for ferry stops to 3,850 for BART stops.
As of 2022, MTC replaced their TOD Policy with a Transit Oriented Communities (TOC) Policy that reflects changes to policy, land use, and planning best practices that have developed since 2005. The TOC Policy builds upon the framework set in 2005 by creating density tiers that apply to different modes and allowing for greater nuance to fit local contexts. It is focused on Priority Development Areas and Transit-Rich Areas (defined in the Plan Bay Area 2050 regional plan) that are served by existing or planned fixed-guideway transit including regional rail, commuter rail, light rail, bus rapid transit (BRT), and ferries.
The proposed San Pablo Avenue BRT service (described in the following section) would fall under the policy’s Tier 3 level of transit service, with corresponding average minimum and allowable densities for commercial and residential development. As ABAG and the MTC move forward with implementing the TOC Policy, they are expected to provide planning and technical assistance to local jurisdictions like the City of San Pablo, and future funding allocations would be dependent on compliance with the policy.
L AYER KEY TAKEAWAYS
• The TOC Policy prohibits parking minimums and establishes parking maximums of 1.0 spaces/unit or lower for new residential and 2.5 spaces per 1,000 square feet of new office development. • The policy also allows unbundled parking for residential uses, shared parking between different uses, and bike parking minimums.
• N/A
• Development guidance is advisory but can serve as a baseline for recommendations in the Sustainable TOD Plan.
• The City does not currently have any of the 5 modes of transit identified in the MTC TOC Policy; however, areas near bus stops with “rapid” service along San Pablo Avenue could aim for the BRT standard, especially in locations where future BRT is being considered along San Pablo Avenue. • Consider use of MTC guidance for areas with rapid bus service, or other areas that may have convenient access to Richmond or Del Norte BART or Richmond Ferry, even if they are farther away than ½ mile. • The TOC Policy establishes average minimum densities of 2 FAR or higher and average allowable densities of 4 FAR or higher for new commercial office development. • The TOC Policy establishes average minimum densities of 50 units/net acre and average allowable maximum densities of 75 units/net acre for new residential development, which are consistent with Plan Bay Area 2050.
• The TOC Policy supports affordable housing and anti-displacement by requiring housing production, preservation, and protection policies as outlined in Plan Bay Area 2050. • N/A
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Sustainable Transit Oriented Development Master Plan | City of San Pablo Existing Condition Analysis | Task 1.1 & 1.2
17 2.2.3 San Pablo Avenue Multimodal Corridor Study (In Progress) Identified as one of the busiest transit corridors in the AC Transit service area, San Pablo Avenue is a critical link between Oakland, Berkeley, Albany, El Cerrito, Richmond, and San Pablo. It is also one of the most dangerous streets for cyclists and pedestrians due to high travel speeds by drivers and a lack of protective active transportation infrastructure. As a result, the Alameda County Transportation Commission (ACTC), Contra Costa Transportation Authority (CCTA), the West Contra Costa Transportation Advisory Committee (WCCTAC), and local jurisdictions are engaging in a long-range, multi-phase effort to improve bus travel times along the corridor and improve safety for all users of the street.
The San Pablo Avenue Multimodal Corridor Study originated from the WCCTAC High-Capacity Transit Study completed in 2017. The High-Capacity Transit (HCT) Study was the first to consider a multi-modal approach to transportation improvements along the I-80 corridor, and included a range of alternatives including commuter buses, bus rapid transit (BRT), and rail (e.g., BART). The HCT Study recommended further analysis of potential BRT along San Pablo Avenue for the existing 72-Rapid bus route; this recommendation resulted in the San Pablo Avenue Multimodal Corridor Study that is currently underway.
Phase 1 of the San Pablo Avenue Corridor Study occurred from 2017-2020. Phase 1 completed a high-level study of possible improvements extending from downtown Oakland to Hilltop Mall in Richmond. It included community outreach and an alternatives analysis to consider a range of street reconfigurations. Public engagement efforts yielded strong support for dedicated bus lanes to make bus service faster and more reliable, as well as for safer bike facilities. ACTC and WCCTAC are separately leading the subsequent Phase 2 efforts in order to support more efficient delivery of improvements that are tailored to local contexts.
In Alameda County, ACTC is focused on delivering near-term improvements that include a dedicated bus lane pilot project in Oakland, Emeryville, and south Berkeley, curb bulb-outs at select locations, pedestrian and bicycle safety improvements, and parallel bike infrastructure along the corridor.
In Contra Costa County, WCCTAC is conducting additional technical work—such as conceptual engineering and traffic simulations—in order to identify preferred next steps. For this technical analysis, the San Pablo Avenue corridor is divided into seven segments— reflecting the range of curb-to-curb street widths in different areas of the corridor—with five street configuration alternatives that each prioritize different potential uses of the street. Options under consideration include reallocation of travel lanes or parking from privately-owned vehicles to public uses such as side- or center-running dedicated bus lanes, managed transit lanes, protected bicycle lanes, or wider shared-use paths that encourage pedestrian activity.
L AYER KEY TAKEAWAYS
• Congestion along the I-80 corridor and on the northern portions of San Pablo Avenue is expected to increase as population grows. Many drivers use San Pablo Avenue as a cut-through route and alternative to travel on I-80.
• Both center- and side-running BRT configurations could provide significant travel time savings for bus riders. A combination of both configurations could be used to suit local contexts and needs. • Implementation of quick-build dedicated bus lanes in Alameda County may help familiarize residents of the City of San Pablo with the concept and serve to inform planning efforts in their community. • Providing low-stress bicycle infrastructure on San Pablo Avenue would be very challenging; however, the irregular street grid in San Pablo leaves few opportunities to construct a bicycle route parallel to San Pablo Avenue.
• Future BRT could provide opportunities for targeted streetscape improvements such as benches, lighting, signage, bike and pedestrian crossings, and street plantings. • Many potential BRT stops are already the site of existing rapid bus stops with service from the 72R line and other local routes. Pursuing TOD near these rapid bus stops would be consistent with existing transit as well as potential future BRT.
• N/A
• N/A
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Sustainable Transit Oriented Development Master Plan | City of San Pablo Existing Condition Analysis | Task 1.1 & 1.2
18 2.2.4 Contra Costa County Electric Vehicle Readiness Blueprint The Contra Costa Transportation Authority’s EV Readiness Blueprint was developed to accelerate deployment of electrified transportation at the local and regional levels, and provides an assessment of what steps are needed to achieve that goal. The Blueprint evaluated a range of short-, medium-, and long-term strategies that can be used to reduce emissions through increased adoption of EVs. Local jurisdictions, like the City of San Pablo, can facilitate regional EV use through providing or encouraging the development of charging infrastructure at key activity centers. Charging infrastructure at other strategic destinations may be needed for residents of multi-unit dwellings, transit agencies and fleet operators. Large funding programs can potentially support the City of San Pablo in transitioning to greater EV use, but disadvantaged communities— like San Pablo, with a high proportion of renters and undersized electrical capacity—will need to be further involved in the planning process to ensure that EV programs meet their needs.
L AYER KEY TAKEAWAYS
• Strategies such as installation of EV charging stations, incorporation of EV charging into zoning codes, and public outreach programs can support a transition to low- or zero-emission transportation options. • N/A
• EV charging infrastructure may become a requirement of, or be incentivized in, new development through policy at the local level.
• N/A
• A substantial increase in the use of EVs will cause a corresponding increase in demand for electricity, which will need to be accounted for through improvements to the power grid and contingency plans for climate change-related disruptions to supply.
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Existing Condition Analysis | Task 1.1 & 1.2
19 Spatial and Quantitative Analysis 03
To build upon the policy and literature review in Section 2, the technical team compiled and mapped a range of geospatial data. The following maps are divided into six sections: Transportation, Open Space, Development, Housing, Climate Resiliency, and Equity.
The maps will highlight key issues, needs, and opportunities for TOD in order to inform the analysis and recommendations in later stages of the project.
3.1 K ey Demographic Indicators
With a population of almost 31,000, San Pablo has an
average density of about 11,775 people per square mile.
Density is higher where there are greater numbers of
multifamily residential buildings and townhouses, such
as east of Giant Road, along Market Avenue, and along
the central portion of San Pablo Avenue. The highest
population densities are found south of El Portal Drive and in a small pocket on the eastern border of the city, but these high densities are likely due to two irregularly sized Census Block Groups that have either multifamily
residential buildings or a small number of residences with large household sizes.
Existing Condition Analysis | Task 1.1 & 1.2
20 San Pablo is in a relatively high-
density area of the county. In
comparison, El Cerrito, which
has a slightly smaller population,
has an average density of 6,913
people per square mile, while
Richmond, with almost triple the
population of San Pablo, has an
average density of 2,095 people
per square mile. The average
density of Contra Costa County
as a whole is about 1,428 people
per square mile.
Existing Condition Analysis | Task 1.1 & 1.2
21 The highest percentages of
low-income households in
San Pablo are found along
the central and southeastern
portions of San Pablo Avenue,
along Market Avenue, and north
of Stanton Avenue. The area
south of San Pablo Avenue
and Church Lane, and the area
along the southwestern portion
of Rumrill Boulevard have the
lowest percentage of low-income
households, likely due to the
overall low amount of housing
and residents in these areas.
Existing Condition Analysis | Task 1.1 & 1.2
22 The highest concentrations of
senior residents in San Pablo live
along the southeastern portion of
San Pablo Avenue. These Census
Block Groups include a number
of assisted living facilities such as
the Creekside Healthcare Center,
Casa Adobe, Vale Healthcare
Center, San Pablo Healthcare
Center.
Existing Condition Analysis | Task 1.1 & 1.2
23 San Pablo has a high population
of people under the age of 18,
with most areas of the city having
densities of 20% or more of young
people. Overall, youth make up
about 26.4% of the population in
San Pablo. This is higher than the
neighboring cities of El Cerrito
(17.6%) and Richmond (21.5%), as
well as Contra Costa County as a
whole (22.7%). The northernmost
area of San Pablo; the
neighborhood between Broadway
Avenue, Giant Road, and Road 20;
neighborhoods along the central
portion of San Pablo Avenue; and
both sides of Market Avenue all
have youth population densities
of 30-40%.
Existing Condition Analysis | Task 1.1 & 1.2
24 Western Contra Costa County
is served by four primary transit
operators: AC Transit, WestCAT,
BART, and Amtrak. BART and
Amtrak provide longer-distance
service and regional connectivity
via the Richmond station, located
approximately one mile south
of the San Pablo city boundary.
AC Transit and WestCAT provide
local bus service and are the only
two transit operators serving the
City of San Pablo directly.
3.2 Transportation
Existing Condition Analysis | Task 1.1 & 1.2
25 AC Transit provides twelve
lines of bus service in San
Pablo—operating primarily along
major corridors such as Rumrill
Boulevard, 23rd Street, and San
Pablo Avenue—that connect to
neighboring areas such as the
cities of Richmond, El Cerrito,
Berkeley, and Oakland. AC Transit
also operates “Service to School”
lines along neighborhood streets.
WestCAT’s Route C3 serves one
stop in San Pablo at Contra Costa
College, providing connectivity
to areas to the north such as
Tara Hills, Pinole, and Hercules.
Local bus service provides
connections to regional transit
at the Richmond BART station
(via AC Transit Routes 70, 74, 76),
the Richmond Ferry Terminal
(AC Transit Route 74), and the El
Cerrito Del Norte BART station
(AC Transit Route 72/72R, L).
")
")
")
")")
")
")
")
")
")
Richmond Pkwy
23rd St
Giant Rd
Rd 20
Rum
rill Blvd
Market Ave
Broadway Ave
Rd 20
Brookside Dr
Church Ln
11th St
Stanton Ave
San Pablo Ave
Rumrill Blvd
Rumrill Blvd
Church Ln
San Pablo Ave
San Pablo Ave
San Pablo Dam Rd
San PabloDamRd
El Portal Dr
Rd 20
San Pablo Dam Rd
El Portal Dr
§¨¦80
0 0.25 0.5
Miles¯
Source: City of San Pablo,
AC Transit (Fall 2022)
Legend
") Bus Shelters
^_ WestCat Transit Stop
AC Transit Stop
WestCat Transit Routes
C3
AC Transit Routes
376
607
669
671
672
676
70 71
72/72R
74 76
L
City of San Pablo
San Pablo Sustainable TOD Plan
Transit Network
^
Existing Condition Analysis | Task 1.1 & 1.2
26 Transit service frequency in San
Pablo is the highest along San
Pablo Avenue. Rumrill Boulevard,
Market Avenue, Church Lane,
Broadway Avenue, and Road 20
have service frequencies of 16-30
minutes. San Pablo Dam Road
has infrequent service.
Richmond Pkwy
23rd St
Giant Rd
Rd 20
Rum
rill Blvd
Market Ave
Broadway Ave
Rd 20
Brookside Dr
Church Ln
11th St
Stanton Ave
San Pablo Ave
Rumrill Blvd
Rumrill Blvd
Church Ln
San Pablo Ave
San Pablo Ave
San Pablo Dam Rd
San PabloDamRd
El Portal Dr
Rd 20
San Pablo Dam Rd
El Portal Dr
§¨¦80
0 0.25 0.5
Miles¯
Legend
Service Frequency
10-15 minutes
16-30 minutes
31 minutes or more
Occasional service*
City of San Pablo
Source: City of San Pablo,
AC Transit (Fall 2022)
72R
72 74
72 71
76 70
L
376
74 * Runs only during rush hours, late
at night, or at other occassional times71
376
672
672
672
672
669
671
672
676
70 74
74 76
76 San Pablo Sustainable TOD Plan
Transit Service Frequency
Existing Condition Analysis | Task 1.1 & 1.2
27 AC Transit’s busiest bus stops
are located along San Pablo
Avenue and at Contra Costa
College. Ridership is also highest
at other key activity centers like
commercial retail plazas.
Existing Condition Analysis | Task 1.1 & 1.2
28 San Pablo’s bicycle network is
most developed in the central and
southern portions of the city, with
striped (Class II) bicycle lanes
along Market Avenue, Church
Lane, 23rd Street, and San
Pablo Avenue. Dover Avenue is a
designated bicycle route (Class
III). Two Class I shared-use paths
are located along segments of the
Wildcat Creek Trail. The city’s first
Class IV cycletrack (with bicycle
lanes separated and protected
from adjacent traffic by physical
barriers) is under construction
on Rumrill Boulevard. Proposed
bikeways are illustrated with
dashed lines. City-owned bicycle
racks are located primarily along
San Pablo Avenue and on City-
owned properties.
Existing Condition Analysis | Task 1.1 & 1.2
29 Bicyclist injuries and fatalities
resulting from collisions with
drivers are illustrated in the
map above, covering 2016-2020
(the most recent 5-year period
available from the Statewide
Integrated Traffic Records System
or SWITRS). Most injuries have
occurred along roads with higher
traffic volumes and speeds such
as San Pablo Avenue, 23rd Street,
and Rumrill Boulevard. One cyclist
was killed at the intersection of
Road 20 and Giant Road.
Existing Condition Analysis | Task 1.1 & 1.2
30 San Pablo’s pedestrian network is
mostly complete, with sidewalks
generally available throughout
residential neighborhoods and
along major streets. Gaps shown
on the map are generally located
within large private commercial
developments that contain
large surface parking lots, or
within large gated residential
communities for which sidewalk
data is not available. Giant Road
only has a sidewalk provided
along the eastern side of the
roadway, due to safety concerns
with providing a sidewalk on
the western side of the roadway
next to the Burlington-Northern
Santa Fe (BNSF) railroad.
Neighborhoods to the east of the
highway also tend to have many
sidewalk gaps.
Existing Condition Analysis | Task 1.1 & 1.2
31 Pedestrian injuries and fatalities
resulting from collisions with
drivers are illustrated in the
map above. Injuries tend to
be concentrated along the
streets with the highest traffic
volumes and speeds, but have
also occurred in residential
neighborhoods. Pedestrians were
killed at four locations: at Giant
Road near Lake Street; Rumrill
Boulevard and 17th Street; San
Pablo Avenue and Lovegrove
Street; and Church Lane and
Willow Road.
Existing Condition Analysis | Task 1.1 & 1.2
32 San Pablo’s high-frequency transit
option runs primarily north-south
along San Pablo Avenue, until
it diverts to its terminus at the
Contra Costa College Transit
Center. Multiple low-income,
affordable, and public housing
sites are located along this major
street; therefore, these sites have
high-frequency transit access
to employment, education, and
other key activity centers that
can be accessed south of the city
via regional transit (e.g., at the El
Cerrito Del Norte BART station).
However, low-income residents
and affordable housing sites
located on the western edge of
the city, along Giant Road and
Rumrill Boulevard, do not have
nearby access to high-frequency
service or high-frequency
transit connections to/from San
Pablo Avenue. Parks and open
space are unevenly distributed
throughout the city, although
this distribution will improve
somewhat once the proposed
new park near Contra Costa
College is constructed.
Existing Condition Analysis | Task 1.1 & 1.2
33 San Pablo’s senior residents
generally have access to fixed
route transit near their homes,
but older adults may not be able
to walk as long of distances or
deal as easily with hills and other
terrain as younger residents.
First/last-mile treatments or
improvements at bus stops can
support transit use for seniors
and can supplement the City’s
weekday-only paratransit
program that provides low-cost
trips for San Pablo seniors and
residents with disabilities within
the boundaries of the city. The
City’s paratransit service runs
between the hours of 9 am –
3:45 pm, so improved access to
fixed-route transit could increase
mobility options for seniors in the
late afternoon and evening hours.
Existing Condition Analysis | Task 1.1 & 1.2
34 Bicycle infrastructure
improvements in the central
portion of the city have helped
increase access to schools for
students of Dover Elementary, St.
Paul School, and Richmond High
School. Recent improvements
along El Portal Drive and Church
Lane may facilitate future
access to Helms Middle School.
However, the existing Class II
(unprotected) bicycle lanes or
Class III (“sharrow”) bike routes
may not be sufficient for students
or parents to feel safe traveling
by bicycle. Schools in the
northwestern portion of the city
and Contra Costa College do not
have direct bicycle connections.
As of 2022, all schools lack
direct connections by Class IV
(separated and protected) bicycle
lanes and/or Class I shared-use
paths.
Existing Condition Analysis | Task 1.1 & 1.2
35 Schools in San Pablo are
generally located within walking
distance (¼-mile) of some form
of fixed-route transit. Elementary
students, in particular, are
unlikely to use AC Transit to travel
to school, with some student
ridership to Helms Middle and
Richmond High. San Pablo
schools provide limited, dedicated
bus service for Special Education
students. St. Paul School and
Salesian College Preparatory
(both of which are private
schools), Contra Costa College
and Middle College High School
(located on Contra Costa College
campus) all draw from a wider
area and may have higher transit
ridership, although Salesian
College Preparatory coordinates
student vanpools for non-local
students.
Existing Condition Analysis | Task 1.1 & 1.2
36 Current bicycle infrastructure
exists primarily in the central
portion of the city—connecting to
some of the census block groups
with denser populations of young
people—but infrastructure is
notably absent in the northern,
eastern, and southernmost
portions of the city. Upgrades that
could support greater bicycle use
may include upgrades to existing
routes (such as converting Class
II striped bicycle lanes to Class
IV protected bicycle lanes), or
creating a network of low-stress
bikeways on neighborhood
streets that connect more directly
to local schools.
Existing Condition Analysis | Task 1.1 & 1.2
37 High-frequency transit access
is generally not located within
walking distance for most young
people in San Pablo and does
not connect to schools or key
destinations, outside of San
Pablo Avenue. The existing high-
frequency transit service does
connect to Contra Costa College
and Middle College High School
(located on Contra Costa College
campus), but is most useful for
those living directly south of the
college.
Existing Condition Analysis | Task 1.1 & 1.2
38 There are six public parks
located throughout the city, from
small pocket parks/plazas to
playgrounds to sports facilities.
Additionally, San Pablo Creek and
Wildcat Creek provide important
natural amenities that run through
the heart of the city, with the
Wildcat Creek Trail providing a
high-quality trail to experience
the restored creek in two different
segments. San Pablo is near two
very large natural open spaces,
with the Wildcat Canyon Regional
Park to the east and the Point
Pinole Regional Shoreline Park
to the west. However, the parks
and open space in San Pablo
are lacking in both quantity
and equitable distribution. To
help address this, the General
Plan 2030 proposes seven new
parks—two of which have already
been constructed—that would
nearly double the amount of
existing parkland to 1.3 acres per
1,000 residents, as well as adding
parks to areas of the city that are
currently lacking.
3.3 Open Space
Existing Condition Analysis | Task 1.1 & 1.2
39 Parks and playgrounds are
important amenities for young
people to have exposure to nature
and recreation opportunities, and
the broader health benefits both
provide. Currently, the areas of the
city with the highest percentage
of youth are lacking nearby public
parks.
Existing Condition Analysis | Task 1.1 & 1.2
40 The zoning along San Pablo’s major
corridors and Priority Development Areas
(PDAs)—San Pablo Avenue and 23rd
Street—allows transit-oriented high-
intensity and mixed-use commercial
development. Zoning along Rumrill
Boulevard (San Pablo’s other PDA)
is a mix of commercial, mixed-use
commercial/residential, and industrial
mixed-use zoning; this zoning provides
some opportunities for transit-oriented
development, even if it is more limited than
along the other corridors.
The residential neighborhoods of central
San Pablo—between Rumrill Boulevard
and San Pablo Avenue—are mostly lower
and medium density residential districts
with existing single-family housing on
smaller lots. There are few opportunities
for additional large-scale, multi-unit
transit-oriented development in these
residential neighborhoods. At the same
time, since so many of San Pablo’s
neighborhoods are made up of relatively
small lots, they support a high population
density that can efficiently utilize transit
on nearby corridors. This is true even if
these neighborhoods continue to have
single-family, middle-density, or other
“missing middle” housing types such as
duplex, triplex, and small apartment units.
These neighborhoods can benefit from
better walking and biking connections to
transit and destinations along the major
corridors. Areas with lower density zoning,
the Hillside zoning overlay, and the Air
Quality Health Risk zoning overlay along
I-80 have limited potential for larger-scale
development at transit-oriented intensities.
3.4 Housing Development
Existing Condition Analysis | Task 1.1 & 1.2
41 San Pablo’s regionally-identified Priority
Development Areas (PDAs), where future
transit-oriented development is most likely
to occur, are along its major corridors:
Rumrill Boulevard, 23rd Street, and San
Pablo Avenue. Like many urban corridors,
San Pablo’s major corridors contain a
diverse mix of land uses, reflecting their
historic identity as highways and single-
use commercial streets that are slowly
transitioning into mixed-use urban streets.
The existing low-intensity Commercial
uses on large lots at the intersection of
San Pablo Avenue and San Pablo Dam
Road, as well as at the intersection of San
Pablo Avenue and El Portal Drive, may
provide significant opportunities for future
transit-oriented housing combined with
commercial or employment uses at higher
intensities. The range of other commercial
and low-density residential uses on
smaller lots along the corridors also offer
smaller-scale opportunities for more
intensive transit-oriented development.
Most existing multi-family residential
uses—such as on the east side of San
Pablo Avenue at Church Lane— are
occupied and have a higher “improvement
value” (i.e., the value of the building
on the land) than adjacent single-
story commercial uses. Such multi-
family residential uses with a higher
“improvement-to-land-value ratio”
typically have less financial incentive to
redevelop than financially underutilized
parcels with a low improvement-to-land-
value ratio (e.g., vacant lots and single-
story buildings). As a result, most existing
multi-family residential uses are likely to
continue with their existing use over the
time horizon of this planning effort, and
not redevelop.
Existing Condition Analysis | Task 1.1 & 1.2
42 As described in Section 3.2, San Pablo’s
bicycle network is most developed in the
central and southern portions of the city,
with striped (Class II) bicycle lanes along
Market Avenue, Church Lane, 23rd Street,
and San Pablo Avenue. Routes along and
connecting to the major corridors (i.e., San
Pablo Avenue, 23rd Street, and Rumrill
Boulevard) have the highest potential
to serve high-intensity transit-oriented
destinations, along with important
destinations like Contra Costa College.
Bike connections into adjacent cities
(primarily Richmond and unincorporated
Contra Costa County) will also be
important to support access to regional
transit amenities such as the Richmond
Ferry, Richmond BART, or El Cerrito Del
Norte BART.
Existing Condition Analysis | Task 1.1 & 1.2
43 San Pablo’s greatest flood risks
are found along the San Pablo
and Wildcat Creeks in the central
portion of the city, where a 1%
annual chance of flood hazards
are illustrated in light blue.2
Flooding in these areas may
disrupt operations for businesses
located in the flood zone and
cause adverse impacts on all
types of residential developments
within the flood zone.
3.5 Climate Resiliency
2 Areas with a 1% annual chance of flood have an average depth less than one foot or with drainage areas of less than one square mile, according to FEMA and are FEMA designated flood zones based on the agency’s modelling. While a useful baseline, FEMA maps mainly consider riverine and coastal flooding and do not take into consideration the flood hazard posed by extreme rainfall conditions that are becoming more prevalent across the country.
Sustainable Transit Oriented Development Master Plan | City of San Pablo Existing Condition Analysis | Task 1.1 & 1.2
44 Synthesis 04
4.1 Transportation
Coordinated transportation improvements are a key component of a successful TOD plan, but can be difficult to prioritize in a small city like San Pablo. Recommendations will need to balance the local and longer-distance travel needs of residents, while also making the city more attractive to visitors, workers who live elsewhere, and those who visit a regional draw like Contra Costa College. Recent efforts by the City to address several transportation components (such as bicycle infrastructure and safe routes to schools), combined with the quantitative data above, provide an excellent foundation from which to draw transportation takeaways.
Takeaway #1: Balance Local and Regional Travel
Sustainable TOD must balance two primary kinds of travel: local travel to purchase groceries, access other services, help children get to school, and other trips under three miles; and longer-distance or regional travel that may be necessary to access jobs, specialty health care, higher education, or businesses that are visited infrequently. The increased availability of work from home arrangements because of the COVID-19 pandemic has also emphasized the importance of local travel and changed travel patterns for a portion of the population. The role of this plan therefore is to balance improvements that support local travel within the City of San Pablo’s borders with those that support and are coordinated with the regional transit network.
Takeaway #2: Identify and Close Gaps in the Active Transportation Network The majority of trips in the United States are fewer than three miles in length.3 Safe, comfortable active transportation infrastructure that connects people to the places they need to go is crucial to increasing the mode share of walking and bicycling. The recommendations in previously-completed plans reviewed above will be analyzed in greater detail, and closing key gaps in the active transportation network should be prioritized—particularly for the most vulnerable users of the street.
Takeaway #3: Improve Access to Higher-Order Transit
If San Pablo Avenue is to become a high-capacity Bus Rapid Transit (BRT) corridor, additional improvements will be needed to justify and support implementation of the service. In addition to first/last mile and active transportation improvements, adjustments to connecting lines of service may be needed (e.g., increased service frequency, revisions to locations and frequency of stops, and/or changes to hours of operation). Investment in high-capacity BRT along the San Pablo Avenue corridor by regional agencies would provide the needed transportation access to facilitate dense housing development with reduced parking availability along this corridor. More frequent transit access to nearby BART stations and along other major corridors, including Rumrill Boulevard and 23rd Street should also be explored.
3 https://www.energy.gov/eere/vehicles/articles/fotw-1230-march-21-2022-more-half-all-daily-trips-were-less-three-miles-2021 T
Sustainable Transit Oriented Development Master Plan | City of San Pablo Existing Condition Analysis | Task 1.1 & 1.2
4.2 Parks and Open Space
Parks and Open Space are a vital part of a livable community and serve a variety of functions that benefit the health of both residents and the environment. As San Pablo evolves and redevelopment occurs, especially near transit stations where higher residential densities are expected, park spaces will play an even more crucial role to providing residents with outdoor recreation opportunities and a connection to nature.
Takeaway #4: Increase the Amount of Parks and Open Space City-wide, the amount of park space in San Pablo does not currently meet the needs of the city’s population. The San Pablo General Plan 2030 notes that there is currently 0.7 acres of park space per 1,000 residents, with a goal of providing 3.0 acres of park space per 1,000 residents. San Pablo is largely built out, making the acquisition of additional land for park space very difficult on the scale needed to achieve that goal. The General Plan 2030 provides a list of possible park locations that would nearly double the park space in the City from 0.8 acres to 1.3 acres per 1,000 residents, but is still well short of the goal. Since adoption of the General Plan 2030, the City has constructed two (2) of the proposed park locations and is in a planning phase for two (2) additional park locations.
Additionally, the City requires an open space dedication (i.e., on-site open space or payment of an in-lieu fee) from residential developments that trigger a major subdivision. Additional new neighborhood parks and open spaces should be dispersed throughout the city with the goal of having park space within a five-minute walk from all residences.
Takeaway #5: Build Strong Connections to Parks and Open Space Looking at the larger region, San Pablo sits between two major open space areas, with the Wildcat Canyon Regional Park (2,789 acres) to the east and Point Pinole Regional Park (2,432 acres) to the west. These regional parks are close in proximity to San Pablo but can feel far away due to the necessity of crossing numerous busy streets, highways, and freeways. Increasing trails—such as those along Wildcat and Rheem Creeks, in addition to better sidewalks, bike lanes and transit—can help to better connect residents to these valuable open spaces. These regional connections will also further neighborhood connections to the parks within the city.
Takeaway #6: Prioritize New Open Spaces near Redevelopment Areas with High Densities It is anticipated that a BRT line along San Pablo Ave will present opportunities for transit-oriented development and higher residential densities along this corridor. However, there are large stretches along San Pablo Ave—as well as Rumrill Blvd and 23rd St—that do not have any parks within a short walk. Future redevelopment of these areas will provide an opportunity to incorporate high-quality open spaces into the community. Future parks and open spaces should be closely coordinated with surrounding land uses to specifically provide the proper amenities open space types that will best serve the surrounding community. Additionally, there should be an emphasis on high quality and thoughtful design to ensure that these spaces reach their potential for benefitting the community. 45 3 https://www.energy.gov/eere/vehicles/articles/fotw-1230-march-21-2022-more-half-all-daily-trips-were-less-three-miles-2021 O
Sustainable Transit Oriented Development Master Plan | City of San Pablo Existing Condition Analysis | Task 1.1 & 1.2
4.3 Housing and Development
As the third pillar of TOD, housing and related development will play a crucial role in supporting the creation of a built environment that supports transit use, incorporates open space, and contributes to sustainability goals.
Takeaway #7: Focus on Priority Development Areas
Most of the key land use and planning policy documents for San Pablo—including the General Plan 2030, the Draft Housing Element, the San Pablo Avenue and 23rd Street Specific Plans, the Bicycle Pedestrian Master Plan, the citywide Affordable Housing Plan, Plan Bay Area (the region’s Sustainable Community Strategy), and multi-modal street improvement efforts such as the Rumrill Boulevard Complete Streets Project and the San Pablo Avenue Multimodal Corridor Project—identify overlapping focus areas for development and transportation improvements. Most of these overlapping efforts are focused within three regional Priority Development Areas identified through Plan Bay Area for San Pablo: along San Pablo Avenue, along Rumrill Boulevard, and along 23rd Street. With such strong and consistent policy support, these locations should remain the focus of the City’s TOD efforts, and of this Sustainable TOD Plan effort.
The City is currently in the process of updating its General Plan, which will include a new Corridor Plan for Rumrill Boulevard and revisions to the land use designations and development standards for the 23rd Corridor. This Plan also presents an opportunity to introduce improved policies and implementing strategies for TOD.
There may be some limited opportunities for lower-intensity housing or employment uses along San Pablo Dam Road, but lack of frequent transit, fewer development sites (due to zoning and overlay districts that are not suitable for housing), limit transit-oriented development potential.
Takeaway #8: Embrace Local, Regional and Statewide Housing Trends The City of San Pablo is undertaking the Sustainable TOD Plan at a time of major regional and statewide policy support for increased housing production. A range of state housing laws including the amended Housing Accountability Act, use of state density bonus, and various housing streamlining laws such as SB 35 (streamlined affordable housing) and SB 330 (Housing Crisis Act) have eliminated many local barriers to both market-rate and affordable housing production. The September 2022 passage of AB 2011 and SB 6 means that commercial-only zones where residential use was previously not allowed (such as in the Regional Commercial or Neighborhood Commercial zones) must now allow certain types of residential development, especially when provided at high levels of affordability.
As density increases in responses to these legislative changes, so too will demand for improved transportation infrastructure, parks, and other amenities.
Locally, the City is in the process of adopting an updated Housing Element to accommodate the future Regional Housing Needs Allocation from the state. As one of the most affordable housing markets in the Bay Area, recent years have seen an increase in the interest in developing a range of housing types in San Pablo, including accessory dwelling units, small apartment buildings, mid-rise apartment and mixed-use buildings, along with more specialized housing such as townhomes and permanent supportive housing.
Opportunities for transit-oriented residential development have only increased in recent years and are likely to continue doing so over the course of the TOD Plan’s implementation.
Takeaway #9: Provide a Unified Citywide Policy Direction The San Pablo Sustainable TOD Plan should not start from scratch. Rather, it should build off the many past and current policy and planning documents—including the General Plan 2030, the updated Housing Element, the Bicycle Pedestrian Master Plan, the Safe Routes to School Master Plan, existing specific plans, and the regional Transit-Oriented Communities policy—to create an integrated citywide strategy while filling gaps and refining the implementation strategy for delivering transit-oriented development. Most of these existing policy documents call for a focus of future higher-intensity transit-oriented housing and commercial uses along San Pablo’s major corridors, connected by an expanding bike network and better pedestrian facilities. In addition, current efforts such as the update of the General Plan and the Housing Element provide very current guidance on the specific locations of anticipated multi- family housing development that will help meet the City’s transit-oriented development goals. The San Pablo TOD Plan should aim to provide a unified policy direction for transit-oriented development and implementation citywide. 46 DH
Sustainable Transit Oriented Development Master Plan | City of San Pablo Existing Condition Analysis | Task 1.1 & 1.2
4.4 Climate Resiliency
The City of San Pablo’s current work on sustainable TOD includes numerous plans and projects intended to create a more sustainable community committed to climate resiliency and serving city residents. Sustainability was best captured in the 2011 General Plan and 2016 Sustainable Community Strategies by Strengthening Public Health Plan. In these two documents three pillars of sustainability emerged: economic, environmental, and equity. Within these pillars is a focus on affordable housing, complete streets, and healthy, diverse communities, respectively.
Takeaway #10: Create Sustainability Goals that Can be Monitored and Tracked The City is pursuing efforts to advance sustainability through various planning studies and ongoing initiatives. For instance, the Rumrill Boulevard Complete Street Project addresses green infrastructure improvements and transit connectivity needs, and the Green Infrastructure Plan provided recommendations and a large list of priority projects. These documents are valuable sources for future work and begin to shape a vision for sustainability.
The documents the City has compiled around sustainability provide a useful baseline with identified recommendations, future work, and paths for sustainable project work. At this juncture, additional outreach and communication is needed to explain how this work has been implemented, and what impact it has had in bringing San Pablo closer to its sustainability goals.
There is an opportunity for the City to further develop and define priority sustainability initiatives and goals, and actionable steps to measure progress. Well defined key performance indicators (KPIs) will be critical to the successful implementation of sustainability initiatives and should be identified to support easy tracking and monitoring. For instance, if a goal is to prioritize transit projects over highway projects to improve community health, a KPI could be the air quality index. The City would then determine where additional sensors are needed, how often the data is tracked, through what outlets is it reported, who is responsible for data collection and sensor maintenance, among other considerations. Comprehensive consideration of the KPIs and monitoring metrics, will ultimately make for easy tracking and progress assessment. The current vision could benefit from further discussion to achieve cohesive goals and a better understanding of priority strategies that provide a framework for evaluating and selecting future work as it pertains to TOD. A cohesive vision will also help to build synergies across initiatives and goals enhancing the results and expediting progress.
Takeaway #11: Tap into the Evolving Sustainability Market The sustainability and climate action landscape has evolved since several existing documents and plans were produced. As a result, there are key gaps in knowledge, visioning, and planning that will benefit from further investigation and research into the ways sustainability is fundamentally integrated with transportation and land use. For example, advances in electric vehicle technology (which the County is preparing for) along with advancements in charging infrastructure and curb space management may provide new insights and avenues for the city to explore when planning for TOD.
Additionally, adaptation is becoming a more prominent subject of conversation, with new risk assessment tools and strategies under constant development. Municipalities in the region and around the country are grappling with these very issues. Further assessment of any sustainability gaps, or markets untapped by the city, will make for a more comprehensive and modernized sustainable TOD plan.
Takeaway #12: Intentionally Incorporate Infrastructure Resiliency in Project Work Across the country, projects to address infrastructure resiliency are often completed and assessed independent of ongoing work or are mere add-ons to planned projects. Consequently, silos are often created between resiliency strategies, infrastructure improvements, and planning efforts. The city should expand on existing efforts, like the Green Infrastructure Plan and Rumrill Boulevard Complete Streets project, to bring resiliency into the fold of project planning, being a default consideration for projects and intentionally incorporated into the planning process. Additionally, resilience project strategies should leverage sustainability goals and their corresponding KPIs and support the City’s ability to respond to changing conditions and prioritize improvements across projects and localities.
47 R
Sustainable Transit Oriented Development Master Plan | City of San Pablo Existing Condition Analysis | Task 1.1 & 1.2
48 Next Steps 05
The data analysis and key takeaways identified in this document, in addition to community outreach findings, set the foundation for the City of San Pablo Sustainable TOD Plan and will inform the next steps of the project. In particular, they will be used to help identify a TOD Priority Area, inform potential streetscape designs, and influence the recommended policies, programs, and strategies.
JANUARY 2023
Appendix B -
TOD Vision &
Priority Areas
TOD Vision
& Priority
Areas
Sustainable Transit Oriented Development Master Plan
City of San Pablo
AUGUST 17, 2023
Task 3.1
Contents
3 Introduction
TOD Primer
TOD Priority Areas
Defining TOD Priority Areas
23rd Street District 13
6 5
4 301
02 03
04 05
Central District
Civic District
06 07
Regional Commercial District
Next Steps
08 09 33
28 23
18 Part 1: Approach
Part 2: Priority Area Analysis
PART 1:
APPROACH
Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
5 1. Introduction 01
1.1 Background
With a population of about 32,000 people in three square miles, the City of San Pablo is a dense Bay Area community in Contra Costa County. It is connected within the network of west coast cities via Interstate 80, Amtrak passenger train, and AC Transit and Westcat buses. As the city has grown, it developed from a Spanish colonial settlement to a Bay Area suburb, attracting working class families with family homes and easy access to jobs, schools, services, shopping, and amenities. Today, as the diverse population grows, the city has laid out future plans to guide a thriving, sustainable community for years to come. The San Pablo Sustainable Transit Oriented Development (TOD) Master Plan is being developed in context of the planning work already undertaken or ongoing in the city, including the General Plan and several Specific Plans.
The San Pablo General Plan 2030
The city’s long-range plan, adopted by Council in 2011 by Resolution 2011-045, provides the future vision and establishes guidelines to achieve the city’s goals. The overall transportation vision established in the plan is to improve land use and transportation through policies that:
• Encourage transit ridership,
• Promote mixed use development along transit corridors, and • Encourage walkability and bikeability with an interconnected network.
Measures to achieve these policies include designing “Complete Streets, ” and coordinating with transit providers to maintain service with convenient connection to areas of high activity.
Climate Action Plan
San Pablo’s 2012 Climate Action Plan outlines targets, actions, and monitoring measures to achieve the AB 32 greenhouse gas reduction mandates while establishing a healthy and prosperous community. Per the plan, transportation related emissions account for the majority of San Pablo’s greenhouse gas baseline. Transportation and Land Use action items outlined in the Climate Action Plan are intended to improve air quality, public health, encourage use of public transportation, create a strong economic base, reduce oil dependency and traffic, and promote a greater sense of community. Objectives include:
• Increase density of mixed-use, infill development along transportation corridors to reduce vehicle miles traveled by 25% • Reduce Vehicle Miles Traveled by 3% by increasing walking and bicycle ridership Transit Oriented Development is the first strategy to achieve these objectives, specifically:
• Increase residential and commercial density and diversity along major transit corridors and encourage TOD along major bus routes to attract new employers and better serve the daily needs of residents and employees.
San Pablo Avenue Specific Plan
In 2011, the San Pablo Avenue Specific Plan was adopted by Council in Resolution 2011-104. It is intended to be consistent with the General Plan, and was created to guide this important thoroughfare as a primary connection route and character area within the city.
The avenue has been the subject of intentional design, planning, and streetscape as it continues its transformation from an auto- dominated corridor to an attractive, mixed use, transit and pedestrian priority area. It is a regional FOCUS Priority Development Area, part of a program that is based on smart growth principles. This area is an early example of transit oriented development planning in San Pablo.
Sustainable Transit Oriented Development (TOD) Master Plan In 2021, San Pablo was awarded a Sustainable Transportation Planning Grant from Caltrans to develop the Sustainable Transit Oriented Development Master Plan. The intention was to support greenhouse gas reduction goals by creating a strategy and policies to guide future TOD in the city.
The Sustainable TOD Master Plan is an opportunity to holistically look at the factors that influence how people get to and get around San Pablo. Analysis will encompass housing, transportation, and community assets. Informed by community consultation and inputs, the master plan is intended to develop TOD priority areas, a community-supported TOD vision, and recommended policies and strategies.
1.2 Purpose of this Document
This TOD Vision & Priority Area document is a component of the San Pablo Sustainable Transit Oriented Development Master Plan.
It identifies priority districts, blocks, nodes, and corridors and their context-specific transportation, open space, and development opportunities. It builds on the Existing Conditions Analysis report, incorporating character and neighborhood context into criteria for selecting appropriate TOD strategies for each area.
The end result aims to ensure connectivity between community assets along main corridors, backed by plans and policies that incentivize and guide new development in a way that celebrates and strengthens San Pablo’s unique places.
Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
6 022. TOD Primer
2.1 What is Transit Oriented Development?
T RANSIT
• Multiple transportation modes
• Mobility amenities
• High quality rider experience
O RIENTED
• Space between buildings
• Public open spaces, plazas, parks
• Street network
D EVELOPMENT
• Where activities occur
• Mix of uses
• Dense, compact built form
The San Pablo General Plan defines Transit Oriented Development (TOD) as “a development or planning concept typified by the location of residential and commercial districts around a transit station or corridor with high quality service, good walkability, parking management and other design features that facilitate transit use and maximize overall accessibility. ” This definition is a baseline used in the San Pablo Sustainable TOD Master Plan, and is expanded upon in the analysis and strategy presented in the plan. For the purpose of this plan, TOD is broken down and analyzed into its three main components: Transit (mobility and transportation modes), Orientation (the human-scaled experience in public open spaces and navigating the street network), and Development (buildings and places). An intentional balance of these three elements through the integration of transportation and land use planning in the pursuit of livable communities that are compact, dense, mixed-use, walkable, engaging and resilient.
The Benefits of Transit Oriented Approach to Planning
Transit Oriented Developments integrate transportation and land use planning through their posi tioning, or orientation, along complete streets which leads to active and equita ble long-term community development and benefits. TODs include land use planning policies and community programs that maximize access to transit as the key organizing principle. This is supported by provision of a robust public realm, including implementation of complete streets and urban placemaking principles. TODs promote equity and sustainable living by offering a mix of activities close to transit to support house holds at all income levels. A combination of a variety of development densities, parking policies, urban design elements, and accessibility strategies create a district that supports transit ridership and reduce auto dependency.
TOD is not a process set in stone. Many jurisdictions are moving beyond the term TOD—which in name references a development—to broaden the range of opportunity to the community at large. The impact and benefits of integrated transit and land use planning have the potential to reach beyond the transit corridor or station area. A new term, Transit Oriented Communities (TOC), goes beyond the traditional TOD model. Instead of typically being associated with single buildings or developments, TOC focuses on shaping vibrant com munities around transit in search of synergies to produce a combined effect greater than the sum of their separate effects.
2.2 TOD Approaches
In recent years, communities experiencing growth and change to transportation and land use planning have considered TOD to be an important building block. Two major concerns, equity and climate, both pose long-term stresses and acute crisis in communities. Growth and investment, particularly in TOD areas, have the potential to worsen or improve the conditions and impacts of housing and climate impacts on cities, depending on policy interventions, practical solutions, and community priorities. The varied and nuanced considerations and outcomes of equity and climate adaptation will be specifically considered in the San Pablo TOD Master Plan strategies and implementation.
TOD as Equity Considerations:
• Housing costs and accessibility for existing
and new community members
• How demographics change over time and are
served by the amenities in their community
• How and where people live in relation to
where they work, shop, play, and eat
TOD as Climate Adaptation Considerations:
• Reducing reliance on carbon emitting
transportation modes and moving toward
net-zero emissions
• Economic resilience against unpredictable
fuel costs
• Containing sprawl, reducing air pollution,
mitigating urban heat island effect, and
overall health and lifestyle quality
• Community preparedness and ability to
recover from climate shocks and stresses
including extreme weather events
Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
7 3. TOD Vision for San Pablo
San Pablo has the ideal combination of a rich history and culture, manageable size, and access to nearby jobs and resources.
To build on the established foundation and thrive as a Transit Oriented community, it is necessary for San Pablo to refine and redefine a sense of place. A contextually appropriate TOD plan can address the most complex and challenging mobility concerns while at the same time establishing sustainable and attractive built form that will instill the sense of place with a robust and dynamic civic identity, character, and amenities.
The overall vision for the San Pablo Sustainable TOD Master Plan is to establish Priority Areas that have the highest possible potential to support TOD. Each focus area will contain the key components to ensure long term success. These components are:
COMPONENT TYPE OF
PLACE IMPLEMENTATION MEASURES
District Gateway A Place To Enter
• Entrance/Arrival Features
• Wayfinding
• Public art and Placemaking
• Multi-modal Transportation
• Enhanced Transit Stations
Corridor A Place to Go
Through
• Sense of Place
• Wayfinding
• Sustainable Transportation
• Public Realm Improvements
Activity Node A Place to Live
• Active Transportation
• Open Space Enhancements
• Mixed Use Development
• Housing
• Local Resiliency Measures
Community Heart A Place to
Gather
• Sense of Place
• Mixed Use Development
• Destinations and Amenities
• Open Space Enhancements
Neighborhood
Connections
A Place to
Connect
• Open Space Enhancements
• Street Connectivity
• Local Resiliency Measures
TOD Vision Cont… | San Pablo Sustainable TOC MP | 16 Feb 2023 San Pablo has the perfect combination of: a rich history and culture; ideal and manageable size; and access to nearby jobs and resources. sense of place. Transit-Oriented Development can tackle the most complex and challenging mobility concerns while at the same time, providing sustainable and attractive built form that amenities.
01 District Gateway:
A place to Enter (T,O)
02 Corridors:
A place to Go Through (T,R)
03 Activity Nodes:
A place to Live (O,D,H,R)
05 Neighborhood Connections:
A place to Connect (T,O,R)
04 Community Heart:
A place to Gather (O,D)
2.1 San Pablo’s Context
Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
8 4. Defining TOD Priority Areas
4.1 Priority Area Selection
The Priority Areas are identified based on inputs from San Pablo’s existing policy direction, engagement with the public and stakeholders, and analysis of the current and future plans and opportunities. Core Priority Areas were chosen because they are central, serviced by transit, and encompass areas already identified for planning and urban design improvements. They are also contiguous, which can support a strong, interconnected TOD core. 0 N
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WanlassPark
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Salesian
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CIVIC
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SAN P
ABL
O D
AM
ROAD CORRIDOR
RUMRILL CORRIDOR
SAN P
ABL
O A
VE
NOR
TH CORRIDOR
KennedyPlaza
RumrillSportsComplex
Core Districts
Four Priority Areas are identified and are
referred to as the Core Districts, each with
their own character and uses. They are
concentrated, connected, and closest to San
Pablo Avenue—the primary TOD corridor in
the city. The districts work together to build a
complete transit oriented community. These
are:
• 23rd Street District
• Central District
• Civic District
• Regional Commercial District
Outlying Corridors
Three Outlying Corridors are also identified.
They are additional key areas with important
TOD considerations and opportunities to
create a supportive network, but do not have
all the elements and functions of the core
Priority Areas. These Outlying Corridors are:
• San Pablo Ave Corridor North
• Rumrill Boulevard Corridor
• San Pablo Dam Road Corridor
City-Wide
The rest of San Pablo will consider
opportunities for transit oriented
development and community amenities as
new plans and directions unfold. There is
no current priority within the outlying areas
of the city, but the methodology presented
in this document can be applied to any
part of the city as needed. Areas within the
rest of the city-wide area are not excluded
from improvement projects, and can still be
targeted for successful revitalizations.
Core Districts
Outlying Corridors
Priority Area Map
Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
9 4.2 Methodology
To analyze San Pablo’s diverse and nuanced Priority Areas, a systemic approach was applied in order to identify TOD components, character, opportunities, and strategies. This builds a TOD vision that is responsive to the unique contexts and conditions across San Pablo, and creates a plan that is respectful to the established character and opportunities in each distinct neighborhood. Four steps were applied to analyze each of the Priority Area districts.
1. Identify Priority Area components
2. Categorize the conditions and characters of the areas, and their capacity for change
3. Assess opportunities for Transportation, Open Space, and Development
4. Choose strategies that respond to the context, opportunities, and challenges for each area
Analysis Step 1:
Identify Priority Areas Components
Define the Priority Areas based on the San Pablo TOD component framework. • District Gateway
» Typically an intersection or transition
» Where people arrive from different modes
(transit, driving, walking, cycling)
• Corridor
» Main streets (or potential future Main Streets)
» Routes for transit, walking, cycling, cars
» Has active frontages such as shops and services
» Includes public space (sidewalks, setbacks)
• Activity Node
» Buildings and open space near transit
» Community assets
» Plazas, patios, parks
» Housing
» Places of business, shops and services
• Community Heart
» Confluence of multiple corridors or paths
» Meeting or gathering place
» Most connected and convenient
» Destination/attraction
• Neighborhood Connections
» Wider area connecting where people live
to the rest of the city’s network
TOD Vision Cont… | San Pablo Sustainable TOC MP | 16 Feb 2023 San Pablo has the perfect combination of: a rich history and culture; ideal and manageable size; and access to nearby jobs and resources. sense of place. Transit-Oriented Development can tackle the most complex and challenging mobility concerns while at the same time, providing sustainable and attractive built form that amenities.
01 District Gateway:
A place to Enter (T,O)
02 Corridors:
A place to Go Through (T,R)
03 Activity Nodes:
A place to Live (O,D,H,R)
05 Neighborhood Connections:
A place to Connect (T,O,R)
04 Community Heart:
A place to Gather (O,D)
Priority Area Component Diagram
Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
10 Analysis Step 2:
Categorize by the Ability to Implement TOD
This step sets expectations about the potential changes to urban form, land uses, and density. Scale, proximity, and context are considered at this stage. Categories include:
• Redevelopment
» Areas open to large-scale comprehensive redevelopment » Highest capacity for change and introducing new
typologies, uses, and higher densities
» Larger blocks may be broken down by adding new
connections
» Greatest opportunity to establish a new fine-grained
circulation network
• Infill
» Established areas within the urban fabric that are
adaptable to redevelopment and infill
» Includes underutilized sites with high opportunities for TOD
» Influenced by the surrounding built form precedent
Analysis Step 3:
Assess Opportunities for TOD
Based on the drivers, character, and context, identify gaps in each of the TOD areas, which highlight opportunities for improvements and redesign. Opportunities include:
• Transportation/Transit
» Identify different travel modes (transit, walking, cycling, cars, ride share) and the completeness of the networks
» Identify infrastructure and amenities (lanes, parking spots, pick-up/drop-off, bus stops, transit stations) and areas with amenity gaps
» Are there challenges to safety, comfort, accessibility, and mobility based on different transportation modes people use to get around?
• Open Spaces
» Identify areas of public domain (plazas, patios, parks, sidewalks)
» What fills the transition or open spaces between
buildings?
» Is there a mix of public and private property where people can gather?
» Is there access to nature and green space?
• Gentle Transition
» Transition zones (areas surrounding central TOD
opportunity sites and nodes)
» Create a logical, transitional decrease in heights, densities, and activity intensity as land uses change from lively Main Streets to zones such as residential neighborhoods or
industrial lands
• Stable Neighborhood
» Minimal change areas that are expected to stay the same for the long-term
» Minor changes that evolve and adapt the neighborhood to suit the needs of residents may be implemented so long
as they retain established neighborhood character and
respect the prevailing pattern of urban forms.
• Development/Buildings
» What buildings exist?
» What activities are they used for?
» How does the built form interact with or activate the surrounding spaces?
» Are the buildings destinations for trips?
Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
11 TransitT
D Development
Open SpaceO
Walk. Improvements that ensure
that walking to and from transit stops
and stations is convenient, safe and
comfortable.
Shared Mobility. Enhancements
to facilities/amenities that favor shared
mobility options such as carshare parking,
end-of-trip bicycle amenities, drop-offs,
etc.
Intersections. Improvements include
upgrades to increase safety and comfort
or reduce crossing delay, such as signals
with transit priority, raised crosswalks,
medians, etc.
Roads. Improvements to neighborhood
streets that are well traveled and/or have
high traffic speeds in order to manage or
calm traffic, balancing the needs of motorized
and non-motorized travel.
Public Plazas. New public open
spaces located at activity nodes, the
community heart, and transit stations.
Public Parks. Existing and new
public green spaces designed for public
use and enjoyment throughout the
community and accessible by transit and
active transportation.
Green Spaces. Similar to public parks
but with an emphasis on nature preservation
functions more than public use.
Other Open Spaces. Major TOD
redevelopment sites including public, semi-
public, and semi-private open spaces, such
as pocket parks, plazas, courtyards, mews
and community gardens.
School Sites. Sports fields and
playgrounds contribute to the open space
network in their community.
Contaminated Land. Specific
locations with soil contamination should be
kept free of public use until appropriate soil
remediation measures are undertaken.
Local Corridor Mixed-Use Infill.
Existing local corridors of varied scale and mix
of uses that have capacity to fill in with new
community-serving businesses and services.
Local Scale Mixed-Use Infill.
Primarily single-family, small-lot residential
areas not expected to substantially change in
the near or long term, but may be infilled with
similar, small-scale development.
TOD Contextual Mixed-Use Infill.
Areas near transit stops and stations planned for
context-sensitive incremental redevelopment.
TOD-Adjacent Transitional Infill.
Primarily small lot residential areas near transit
corridors that may redevelop and provide a
transition from local scale residential to TOD
related infill or redevelopment areas.
Long Term Redevelopment.
These are areas that will not be
redeveloped over the next decades as TOD
given the projected market demand.
TOD Major Mixed-Use
Redevelopment. Areas with larger-scale
buildings and a broader mix of uses with an
underlying large-lot pattern, usually separated
from established residential neighbourhoods.
Transit. Improvements that increase
frequencies of existing routes or, potentially,
development of new feeder routes to serve
Priority Areas, Outlying Corridors, and other
important areas.
Bike. Improving ‘bikeability’ within
station areas by linking major local
destinations and connecting to the
wider bike network.
TOD Opportunities Examples
Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
12 Analysis Step 4:
Choose Strategies and Tools to Implement
The final step in the TOD Analysis methodology is to choose strategies that respond to the context, opportunities, and challenges for each Priority Area. Strategies, tools, and intended outcomes can vary widely from block to block. However, a set of typical strategies and outcomes is common among most transit oriented communities, which tend to use the following methods to create an environment that attracts successful TOD.
STRATEGY INTENDED OUTCOME
Density A concentration of activities, intensity of uses, and population density in a compact area.
Mix of Uses People can work, live, shop, and play year-round, within their community.
Mobility Choice A variety of options that serve people’s needs and abilities to move around.
Placemaking A high quality public realm that is safe, comfortable, attractive, and interesting.
Sustainability A district that is efficient with minimal use of non-renewable resources, which enables low-impact lifestyles.
Community Health Opportunities for movement and outdoor enjoyment promote healthy choices.
Community Space Places to meet, gather, and engage in civic life promote a sense of community.
Equity Mixed housing types and affordability make TOD benefits inclusive across social and economic groups.
The implementation of these strategies is typically done through policy and programs such as design guidelines, developer incentives, and other creative tools. The deployment of these strategies and tools for the San Pablo TOD Priority Areas will be further outlined in the next tasks and final TOD Master Plan. The Streetscape Toolkit will provide more information about how to choose the right strategies, and how to effectively implement TOD measures to ensure a successful transit oriented community for years to come.
PART 2:
PRIORITY
AREA
ANALYSIS
Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
14 5. 23rd Street District Analysis
5.1 Existing TOD Components
The 23rd Street District includes
23rd Street from San Pablo
Avenue to Market Street, and
the surrounding neighborhood.
It currently contains examples of
each component of the San Pablo
TOD Vision within the district.
Though there are opportunities
to improve, connect, and expand
each component, there is a strong
foundation in the existing urban
fabric and development pattern in
this district. The established street
grid network provides circulation
within the district, connecting
residential areas to destinations,
gathering places, and transit
services.
TOD COMPONENT 23rd STREET DISTRICT EXISTING CONDITION
District
Gateway
The intersection of San Pablo Ave onto 23rd Street is the main gateway from the north area of San Pablo, including Contra Costa College. The gateway from Richmond is located at the intersection of Market Ave and 23rd Street.
Corridor The transit corridors are 23rd Street and Market Ave, both of which are bus transit routes and planned bike routes.
Activity
Nodes
A strong activity node runs along 23rd Street and part of Market Ave, which reinforces and creates synergy with the “Commercial Mixed Use” designation in the 23rd Street Specific Plan. This district is characterized by cuisine with many local restaurants and cultural food destinations including Latino grocery stores.
There are also places of worship and schools within the district that are central and connected.
Community
Heart
The heart can be narrowed down to the area of 23rd Street and San Pablo Avenue, near Kennedy Plaza and Wildcat Creek Trail, and the start of the food corridor.
Neighborhood
Connections
The 23rd Street District is the most neighborhood-focused area of all the TOD Priority Areas. It has a grid network of streets that are mostly connected to the corridors, 23rd Street and Market Ave. Some streets lack connectivity to each other or to destinations, but for the most part there is a circulation network between where people live and transit services. The neighborhood street network connects existing public assets including John Herbert Davis Park and Dover Elementary School Grounds. 23rd Street District TOD Components
Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
15 5.2 Capacity and Conditions to Implement TOD
Development Potential
In general, development potential in the 23rd Street District is located along commercial streets (23rd Street and Market Avenue).
Site-specific infill that is consistent with the district character and completes the urban fabric along the corridors is expected, and will improve the walkability and convenience of the district. The commercial businesses are dominated by food services, and 23rd Street is a culturally significant landscape for Latin American retail. Shop displays are characterized by ornamental architecture, colorful details, and rows of palm trees. The infill development along these corridors should respect the 23rd Street Specific Plan Design Standards & Guidelines, and complement the existing businesses and ethnic food district.
Off the main corridors, a gentle transition to the stable neighborhood is expected, though the neighborhood itself should not be considered static or unchanging. Sensitive new density and activities implemented incrementally will promote a vibrant transit oriented community with neighborhood-serving businesses throughout the interconnected district. Redevelopment or frontage enhancements will create active edges and invigorate the area within a short walk of transit service.
Existing Policy Direction
Per the 23rd Street Specific Plan, policy direction for the area is:
• Introduce new uses that activate the corridor (cafes, retail, restaurants, grocery) • Promote a consistent streetwall along 23rd Street with minimal setback • Implement and enhance existing architectural character and design • Redevelop 23rd Street through higher density (2-4 story) infill with ground-level retail • Widen sidewalks and introduce plazas at key locations • Promote low-impact, efficient, green development and urban design standards • Improve safety and comfort for pedestrians through traffic calming, crossing improvements, pedestrian amenities such as street furniture
• Improve circulation by introducing mid-block connections, pedestrian alleys and paths, and connecting residential areas to commercial corridors
The San Pablo Sustainable TOD Master Plan should build on the momentum and direction of the existing 23rd Street Specific Plan, and integrate TOD principles and vision that align with the studies and work already begun for this area. The goals, policies, and urban design guidelines in the 23rd Street Specific Plan are a strong foundation for transit oriented development, and will help to achieve the objectives of this master plan.
Miner Ave
Legend
Low Density Residential
Medium Density Residential
High Density Residential
Residential Mixed-Use
Neighborhood Commercial
Regional Commercial
Commercial Mixed-Use
Mixed-Use Center*
Industrial Mixed-Use
Public/Institutional
Parks/Recreation
Air Quality Health Risk Overlay Zone
Potential Park Location
City Hall**
* See San Pablo Avenue Specific Plan and Resolution 2018-025 Major Roads
Minor Roads
San Pablo City Limit
0 0.25 0.50.125 Miles
SOURCE: Contra Costa County, 2018; City of San Pablo, 2018 ** Future site plan for historic identity purposes
SAN PABLOCITY OF
General Plan Map
23rd St
20th St
Pine Ave
Chelsey Ave
11th St
11th St
21st St
Market Ave
Market Ave
19th St
19th St
Vale Rd
San Pablo Ave
San Pablo Ave
Willow Rd
Emeric Ave
Stanton Ave
14th St
Amador St
Sutter Ave
Church Ln
Luna Ln
Church Ln
San Pablo Dam Rd
Brookside Dr
Dover Ave
12th St
Rumrill Blvd
Rumrill Rd
13th St
Broadway Ave
18th St
17th St
Rivers St
15th St
Sanford Ave
Bush Ave
Lake St
John Ave
Stanton Ave
22nd St
California Ave
Sanford Ave
El Portal Dr
Palmer Ave
Tyler St
N Arlington Blvd
Marin Ave
Espanola Dr
Wilcox Ave
Manor Dr
Alpine Rd
Powell St
Alfreda Blvd
Road 20
Abella Circle
Kelley Ave
Van Ness St
Mason St
Kirk Ln
Stone St
Folsom Ave
Mission Ave
Glenn Ave
Del Camino Dr
Trenton Blvd
Westgate Circle
Morrow Dr
16th St
Manchester Ave
Pullman St
Clare St
MacArthu Ave Merritt Ave
Castro Rd
Post Ave
Colin St
Ventura Ave
Ohare Ave
Joel Ct
Mission Bell Dr
Mission Bell Dr
Gerald Ave
Montoya Ave
Lovegrove St
Regella Ct
Laurie Ln
Padua St
Pablo Vista Ave
Mesa Buena Ave
Moraga St
Casino Ave
Acapulco Dr
Douglas St
Regina Ave
Wyman St
Marelia St
Contra Costa Ave
Valencia Way
Victoria Ct
Madrone Way
Shasta Ave Shasta Ave
Miner Ave
Wanlass Ave
Stonington Ave
Connecticut Ave
Barbara Ln
Randy Ln
Alan Ct
Frieda Ct
Baker St
Dodson St
Vale Rd
Sheffield Ct
Murra Ct
Muir St
Brookhaven Ct
20th St
Road 20
Road 20
22nd St
19th St
23rd St
14th St
18th St
17th St
Ridge Rd
22nd St
18th St
18th St
17th St Merritt Ave
Post Ave
Sutter Ave
Villa Dr
Brookside Ave
21st St
Riverside Ave
Bush Ave
Glenn Ave
Rumrill Blvd
16th St
Lake St
Humboldt Ave
19th St
21st St
15th St
19th St
Yuba Ave
15th St
16th St
17th St
Rumrill Blvd
Fillmore St
20th St
San Pablo Ave
San Pablo Ave
Stanton Ave
Manzanilla Dr Crucero Ave
El Portal Dr
San Pablo Dam Rd.
Dover Ave
G
atew a y A v e
Chattleton Ln
80 San Pablo General Plan Map
23rd Street District Focus
5-
city of san pablo
23rd street specific plan
land use
Brookside Drive
23rd Street
Dover Avenue
Market Avenue
Bush Avenue
Pine Avenue
23rd Street
San Pablo Creek
Wildcat Creek
Commercial
Mixed-Use
Open Space
Specific Plan Area
FIGURE 5-1
LAND USE DESIGNATIONS
CITY OF SAN PABLO
23RD STREET SPECIFIC PLAN
NORTH
0 200 400 Feet
Figure 5-1 Land Use Designations
23rd Street Specific Plan Figure 5-1
Land Use Designation
23rd Street District Focus
Miner Ave
Legend
Low Density Residential
Medium Density Residential
High Density Residential
Residential Mixed-Use
Neighborhood Commercial
Regional Commercial
Commercial Mixed-Use
Mixed-Use Center*
Industrial Mixed-Use
Public/Institutional
Parks/Recreation
Air Quality Health Risk Overlay Zone
Potential Park Location
City Hall**
* See San Pablo Avenue Specific Plan and Resolution 2018-025 Major Roads
Minor Roads
San Pablo City Limit
0 0.25 0.50.125 Miles
SOURCE: Contra Costa County, 2018; City of San Pablo, 2018 ** Future site plan for historic identity purposes
SAN PABLOCITY OF
General Plan Map
23rd St
20th St
Pine Ave
Chelsey Ave
11th St
11th St
21st St
Market Ave
Market Ave
19th St
19th St
Vale Rd
San Pablo Ave
San Pablo Ave
Willow Rd
Emeric Ave
Stanton Ave
14th St
Amador St
Sutter Ave
Church Ln
Luna Ln
Church Ln
San Pablo Dam Rd
Brookside Dr
Dover Ave
12th St
Rumrill Blvd
Rumrill Rd
13th St
Broadway Ave
18th St
17th St
Rivers St
15th St
Sanford Ave
Bush Ave
Lake St
John Ave
Stanton Ave
22nd St
California Ave
Sanford Ave
El Portal Dr
Palmer Ave
Tyler St
N Arlington Blvd
Marin Ave
Espanola Dr
Wilcox Ave
Manor Dr
Alpine Rd
Powell St
Alfreda Blvd
Road 20
Abella Circle
Kelley Ave
Van Ness St
Mason St
Kirk Ln
Stone St
Folsom Ave
Mission Ave
Glenn Ave
Del Camino Dr
Trenton Blvd
Westgate Circle
Morrow Dr
16th St
Manchester Ave
Pullman St
Clare St
MacArthu Ave Merritt Ave
Castro Rd
Post Ave
Colin St
Ventura Ave
Ohare Ave
Joel Ct
Mission Bell Dr
Mission Bell Dr
Gerald Ave
Montoya Ave
Lovegrove St
Regella Ct
Laurie Ln
Padua St
Pablo Vista Ave
Mesa Buena Ave
Moraga St
Casino Ave
Acapulco Dr
Douglas St
Regina Ave
Wyman St
Marelia St
Contra Costa Ave
Valencia Way
Victoria Ct
Madrone Way
Shasta Ave Shasta Ave
Miner Ave
Wanlass Ave
Stonington Ave
Connecticut Ave
Barbara Ln
Randy Ln
Alan Ct
Frieda Ct
Baker St
Dodson St
Vale Rd
Sheffield Ct
Murra Ct
Muir St
Brookhaven Ct
20th St
Road 20
Road 20
22nd St
19th St
23rd St
14th St
18th St
17th St
Ridge Rd
22nd St
18th St
18th St
17th St Merritt Ave
Post Ave
Sutter Ave
Villa Dr
Brookside Ave
21st St
Riverside Ave
Bush Ave
Glenn Ave
Rumrill Blvd
16th St
Lake St
Humboldt Ave
19th St
21st St
15th St
19th St
Yuba Ave
15th St
16th St
17th St
Rumrill Blvd
Fillmore St
20th St
San Pablo Ave
San Pablo Ave
Stanton Ave
Manzanilla Dr Crucero Ave
El Portal Dr
San Pablo Dam Rd.
Dover Ave
G
atew a y A v e
Chattleton Ln
80 5-
city of san pablo
23rd street specific plan
land use
Brookside Drive
23rd Street
Dover Avenue
Market Avenue
Bush Avenue
Pine Avenue
23rd Street
San Pablo Creek
Wildcat Creek
Commercial
Mixed-Use
Open Space
Specific Plan Area
FIGURE 5-1
LAND USE DESIGNATIONS
CITY OF SAN PABLO
23RD STREET SPECIFIC PLAN
NORTH
0 200 400 Feet
Figure 5-1 Land Use Designations
Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
16 5.3 Assess Opportunities for TOD
TRANSIT OPPORTUNITIES - 23rd ST DISTRICT
23rd Streetscape Improvement Opportunity
• There is opportunity for pedestrian enhancements, crossing redesigns, and activation along 23rd Street, especially near transit stops. This synergizes with the “Planned Improvement” area along the west area of 23rd Street in the 23rd Street Specific Plan.
Wildcat Creek Trail Opportunity
• There is opportunity to additionally connect Wildcat Creek Trail and San Pablo Creek with the neighborhood street network and public spaces, integrating these natural areas better to the surrounding neighborhood and network with new pedestrian access and increased porosity.
• A new bridge connecting Mason Street across Wildcat Creek is an opportunity to improve circulation for drivers, cyclists, and pedestrians in the neighborhood and improve connection to the creek’s natural area.
Traffic Calming Opportunity
• There is potential to create more pedestrian-friendly environments along 23rd Street, Market Ave from 23rd Street to Church Lane, and Van Ness Street from Market Ave to Wildcat Creek through traffic-calming measures.
CENTRAL DISTRICT
CIVIC DISTRICT
EXCHANGE DISTRICT
MH
MH
MH
Church Ln
tS dr32
San Pablo
Avenue
El Portal Dr
Rd 20
Brookside Dr
Market
Ave
San Pablo Dam Road
MICROMOBILITY HUB FACILITY /
CENTRO DE MICROMOVILIDAD
ENHANCED TRANSIT STOP /
PARADA DE TRANSPORTE MEJORADA
NEW BRIDGE OVER CREEK /
PUENTE NUEVO SOBRE ARROYO
ENHANCED PEDESTRIAN CROSSING /
PASO DE PEATONES MEJORADO
“GREAT STREET” STREESCAPE
IMPROVEMENT /
MEJORA DE PAISAJE CALLEJERO
“CALLES EXCELENTES”
NEW PEDESTRIAN & BICYCLE PATH
(SEPARATED) /
NUEVO CARRIL PEATONAL Y PARA
BICICLETA (SEPARADOS)
TRAFFIC CALMED EXISTING STREET /
CALLE EXISTENTE CON TRÁFICO
CALMADO
ENHANCED NEW INTERSECTION /
NUEVA INTERSECCIÓN MEJORADA
MH
NEW STREET (INTERCONNECTED
STREET NETWORK) /
CALLE NUEVA (RED DE CALLES
INTERCONECTADAS)
TRANSIT
TRANSPORTE
Legend
Leyenda
23rd DISTRICT
MH
tS dr32
Brookside Dr
Market
Ave
Market
Dover Ave
University
Ave
Church Ln
23rd Street
Van Ness St
Mason St
Wildcat Creek
CENTRAL DISTRICT
CIVIC DISTRICT
EXCHANGE DISTRICT
MH
MH
MH
Church Ln
tS dr32
San Pablo
Avenue
El Portal Dr
Rd 20
Brookside Dr
Market
Ave
San Pablo Dam Road
MICROMOBILITY HUB FACILITY /
CENTRO DE MICROMOVILIDAD
ENHANCED TRANSIT STOP /
PARADA DE TRANSPORTE MEJORADA
NEW BRIDGE OVER CREEK /
PUENTE NUEVO SOBRE ARROYO
ENHANCED PEDESTRIAN CROSSING /
PASO DE PEATONES MEJORADO
“GREAT STREET” STREESCAPE
IMPROVEMENT /
MEJORA DE PAISAJE CALLEJERO
“CALLES EXCELENTES”
NEW PEDESTRIAN & BICYCLE PATH
(SEPARATED) /
NUEVO CARRIL PEATONAL Y PARA
BICICLETA (SEPARADOS)
TRAFFIC CALMED EXISTING STREET /
CALLE EXISTENTE CON TRÁFICO
CALMADO
ENHANCED NEW INTERSECTION /
NUEVA INTERSECCIÓN MEJORADA
MH
NEW STREET (INTERCONNECTED
STREET NETWORK) /
CALLE NUEVA (RED DE CALLES
INTERCONECTADAS)
TRANSIT
TRANSPORTE
Legend
Leyenda
23rd DISTRICT
MH
tS dr32
Brookside Dr
Market
Ave
Market
Dover Ave
University
Ave
Church Ln
23rd Street
Van Ness St
Mason St
Wildcat Creek
CENTRAL DISTRICT
CIVIC DISTRICT
EXCHANGE DISTRICT
MH
MH
MH
Church Ln
tS dr32
San Pablo
Avenue
El Portal Dr
Rd 20
Brookside Dr
Market
Ave
San Pablo Dam Road
MICROMOBILITY HUB FACILITY /
CENTRO DE MICROMOVILIDAD
ENHANCED TRANSIT STOP /
PARADA DE TRANSPORTE MEJORADA
NEW BRIDGE OVER CREEK /
PUENTE NUEVO SOBRE ARROYO
ENHANCED PEDESTRIAN CROSSING /
PASO DE PEATONES MEJORADO
“GREAT STREET” STREESCAPE
IMPROVEMENT /
MEJORA DE PAISAJE CALLEJERO
“CALLES EXCELENTES”
NEW PEDESTRIAN & BICYCLE PATH
(SEPARATED) /
NUEVO CARRIL PEATONAL Y PARA
BICICLETA (SEPARADOS)
TRAFFIC CALMED EXISTING STREET /
CALLE EXISTENTE CON TRÁFICO
CALMADO
ENHANCED NEW INTERSECTION /
NUEVA INTERSECCIÓN MEJORADA
MH
NEW STREET (INTERCONNECTED
STREET NETWORK) /
CALLE NUEVA (RED DE CALLES
INTERCONECTADAS)
TRANSIT
TRANSPORTE
Legend
Leyenda
23rd DISTRICT
MH
tS dr32
Brookside Dr
Market
Ave
Market
Dover Ave
University
Ave
Church Ln
23rd Street
Van Ness St
Mason St
Wildcat Creek
23rd Street District Transit Opportunities
Legend of Transit Opportunities
Enhanced New Intersection
New Bridge over Creek
Enhanced Pedestrian Crossing
“Great Street” Streetscape
Improvement
New Pedestrian & Bicycle Path
(Separated)
Traffic Calmed Existing Street
17 Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
OPEN SPACE OPPORTUNITIES - 23rd ST DISTRICT
Urban Plaza Opportunity
• A new, centrally located plaza at the intersection of 23rd Street and Dover Ave would provide an opportunity for placemaking along the street, and provide an active open space in the district core. 23rd St Streetscape Opportunity
• There is an opportunity to provide more public gathering places along 23rd Street to promote places to gather around food related activities, including plazas, patios, and picnic areas. • The streetscape along 23rd Street is an opportunity to provide linear improvements, strengthening the corridor as a great street and taking advantage of the space between buildings to provide usable public places.
Wildcat Creek Opportunities
• Built form and open space frontages onto Wildcat Creek on either side of 23rd Street have a prime opportunity to enhance access to nature by orienting development and public spaces toward the creek and integrating nature at this intersection. • There is also an opportunity for an extension of the current trail from Davis Park to connect further east along a linear path along the creek, lined with riparian trees and species. • The streetscape on the south edge of University Avenue has the opportunity for enhancement and revitalization to integrate Wildcat Creek by removing physical barriers and providing pedestrian-friendly landscape such as a linear park or trail link.
CENTRAL DISTRICT
CIVIC DISTRICT
EXCHANGE DISTRICT
SCHOOLS & SPORTS FIELDS /
ESCUELAS Y CAMPOS DEPORTIVOS
EXISTING CREEK /
ARROYO EXISTENTE
ACTIVE FRONTAGE TOWARDS OPEN
SPACE /
FRONTAL ACTIVO HACIA EL ESPACIO
ABIERTO
GREEN LINKAGES /
VÍNCULOS VERDES
URBAN PLAZA /
PLAZA URBANA
STREETSCAPE CREEK ENHANCEMENT
MEJORA DE PAISAJE CALLEJERO
HACIA EL ARROYO
URBAN PARK /
PARQUE URBANO
CREEK DAYLIGHTING /
DRENAJE NATURAL DEL ARROYO
CREEKSIDE NATURAL PARK AND
RESTORATION /
PARQUE NATURAL AL LADO DEL
ARROYO Y RESTAURACIÓN
23rd St
San Pablo
Avenue
San Pablo Dam Road
Church Ln
El Portal Dr
Rd 20
Brookside Dr
Market
Ave
OPEN SPACE
ESPACIO ABIERTO
Legend
Leyenda
23rd DISTRICT
23rd St
Brookside Dr
Ave
Market
Dover Ave
University
Ave
Church Ln
Van Ness St
Mason St
Wildcat Creek
CENTRAL DISTRICT
CIVIC DISTRICT
EXCHANGE DISTRICT
SCHOOLS & SPORTS FIELDS /
ESCUELAS Y CAMPOS DEPORTIVOS
EXISTING CREEK /
ARROYO EXISTENTE
ACTIVE FRONTAGE TOWARDS OPEN
SPACE /
FRONTAL ACTIVO HACIA EL ESPACIO
ABIERTO
GREEN LINKAGES /
VÍNCULOS VERDES
URBAN PLAZA /
PLAZA URBANA
STREETSCAPE CREEK ENHANCEMENT
MEJORA DE PAISAJE CALLEJERO
HACIA EL ARROYO
URBAN PARK /
PARQUE URBANO
CREEK DAYLIGHTING /
DRENAJE NATURAL DEL ARROYO
CREEKSIDE NATURAL PARK AND
RESTORATION /
PARQUE NATURAL AL LADO DEL
ARROYO Y RESTAURACIÓN
23rd St
San Pablo
Avenue
San Pablo Dam Road
Church Ln
El Portal Dr
Rd 20
Brookside Dr
Market
Ave
OPEN SPACE
ESPACIO ABIERTO
Legend
Leyenda
23rd DISTRICT
23rd St
Brookside Dr
Ave
Market
Dover Ave
University
Ave
Church Ln
Van Ness St
Mason St
Wildcat Creek
CENTRAL DISTRICT
CIVIC DISTRICT
EXCHANGE DISTRICT
SCHOOLS & SPORTS FIELDS /
ESCUELAS Y CAMPOS DEPORTIVOS
EXISTING CREEK /
ARROYO EXISTENTE
ACTIVE FRONTAGE TOWARDS OPEN
SPACE /
FRONTAL ACTIVO HACIA EL ESPACIO
ABIERTO
GREEN LINKAGES /
VÍNCULOS VERDES
URBAN PLAZA /
PLAZA URBANA
STREETSCAPE CREEK ENHANCEMENT
MEJORA DE PAISAJE CALLEJERO
HACIA EL ARROYO
URBAN PARK /
PARQUE URBANO
CREEK DAYLIGHTING /
DRENAJE NATURAL DEL ARROYO
CREEKSIDE NATURAL PARK AND
RESTORATION /
PARQUE NATURAL AL LADO DEL
ARROYO Y RESTAURACIÓN
23rd St
San Pablo
Avenue
San Pablo Dam Road
Church Ln
El Portal Dr
Rd 20
Brookside Dr
Market
Ave
OPEN SPACE
ESPACIO ABIERTO
Legend
Leyenda
23rd DISTRICT
23rd St
Brookside Dr
Ave
Market
Dover Ave
University
Ave
Church Ln
Van Ness St
Mason St
Wildcat Creek
CENTRAL DISTRICT
CIVIC DISTRICT
EXCHANGE DISTRICT
SCHOOLS & SPORTS FIELDS /
ESCUELAS Y CAMPOS DEPORTIVOS
EXISTING CREEK /
ARROYO EXISTENTE
ACTIVE FRONTAGE TOWARDS OPEN
SPACE /
FRONTAL ACTIVO HACIA EL ESPACIO
ABIERTO
GREEN LINKAGES /
VÍNCULOS VERDES
URBAN PLAZA /
PLAZA URBANA
STREETSCAPE CREEK ENHANCEMENT
MEJORA DE PAISAJE CALLEJERO
HACIA EL ARROYO
URBAN PARK /
PARQUE URBANO
CREEK DAYLIGHTING /
DRENAJE NATURAL DEL ARROYO
CREEKSIDE NATURAL PARK AND
RESTORATION /
PARQUE NATURAL AL LADO DEL
ARROYO Y RESTAURACIÓN
23rd St
San Pablo
Avenue
San Pablo Dam Road
Church Ln
El Portal Dr
Rd 20
Brookside Dr
Market
Ave
OPEN SPACE
ESPACIO ABIERTO
Legend
Leyenda
23rd DISTRICT
23rd St
Brookside Dr
Ave
Market
Dover Ave
University
Ave
Church Ln
Van Ness St
Mason St
Wildcat Creek
23rd Street District Open Space Opportunities
5.3 Assess Opportunities for TOD (continued)
Legend of Open Space
Opportunities
Schools & Sports Fields
Existing Creek
Active Frontage Towards Open
Space
Urban Plaza
Streetscape Creek Enhancement
Creekside Natural Park and
Restoration
18 Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
DEVELOPMENT OPPORTUNITIES - 23rd STREET DISTRICT
Big Box Redevelopment Opportunity
• The northern-most block of 23rd Street is an opportunity for a medium-scale contextual development on a single-use big box store block. This is also an opportunity to transition to the more retail-focused Central District to the north. 23rd Street and Market Ave Infill Opportunities
• Narrow lots fronting 23rd Street and Market Avenue that are currently underdeveloped or vacant are an opportunity to animate 23rd Street, and fill gaps in the urban fabric with context-appropriate, retail-activated infill development.
Soft Neighborhood Redensification
• The established residential neighborhood around 23rd Street is primarily single-use and low density. By allowing gentle density that supports the urban character while introducing neighborhood-serving amenities, transit-supportive regeneration can activate the blocks in a contextually appropriate way.
Market Avenue Façade Opportunity
• Development, redevelopment, or regeneration of existing frontages along Market Ave have the opportunity to be realigned in order to revitalize Market Avenue’s streetscape. Façade updates with redesigned frontage zones can provide a more pedestrian-friendly atmosphere and extend the 23rd Street activity along Market Ave.
CENTRAL DISTRICT
CIVIC DISTRICT
EXCHANGE DISTRICT
Church Ln
23rd St
San Pablo Avenue
“SOFT” DETACHED RESIDENTIAL
NEIGHBORHOOD REDENSIFICATION /
REDENSIFICACIÓN “SUAVE” DEL
VECINDARIO
DEVELOPMENT
& HOUSING
DESARROLLO Y VIVIENDAS
ACQUISITION FOR GREENWAY /
ADQUISICIÓN PARA VÍA VERDE
LOWER-DENSITY INFILL /
RELLENO DE BAJA DENSIDAD
MID-DENSITY CONTEXTUAL
REDEVELOPMENT /
URBANIZACIÓN CONTEXTUAL DE
DENSIDAD MEDIA
LARGE-SCALE COMPREHENSIVE
REDEVELOPMENT /
REDESARROLLO INTEGRAL DE GRAN
ESCALA
FACADE REALIGNMENT / FRONTAGE
DENSIFICATION
REALINEACIÓN DE FACHADA / DENSIFI-
CACIÓN DE FRONTALES
BIG STORE REDEVELOPMENT /
RENOVACIÓN DE TIENDAS
GRANDES
TRIBAL TRUST (RESERVATION) LANDS /
TIERRAS DE FIDEICOMISO TRIBALES
(RESERVA)
TRIBAL FEE LANDS /
TIERRAS DE TARIFAS TRIBALES
El Portal Dr
Rd 20
Brookside Dr
Market Ave
San Pablo Dam Road
Legend
Leyenda
FOCUS AREA /
AREA DE ENFOQUE
Ave
Market
Dover Ave
University
Ave
Church Ln
Van Ness St
Mason St
Wildcat Creek
CENTRAL DISTRICT
CIVIC DISTRICT
EXCHANGE DISTRICT
Church Ln
23rd St
San Pablo Avenue
“SOFT” DETACHED RESIDENTIAL
NEIGHBORHOOD REDENSIFICATION /
REDENSIFICACIÓN “SUAVE” DEL
VECINDARIO
DEVELOPMENT
& HOUSING
DESARROLLO Y VIVIENDAS
ACQUISITION FOR GREENWAY /
ADQUISICIÓN PARA VÍA VERDE
LOWER-DENSITY INFILL /
RELLENO DE BAJA DENSIDAD
MID-DENSITY CONTEXTUAL
REDEVELOPMENT /
URBANIZACIÓN CONTEXTUAL DE
DENSIDAD MEDIA
LARGE-SCALE COMPREHENSIVE
REDEVELOPMENT /
REDESARROLLO INTEGRAL DE GRAN
ESCALA
FACADE REALIGNMENT / FRONTAGE
DENSIFICATION
REALINEACIÓN DE FACHADA / DENSIFI-
CACIÓN DE FRONTALES
BIG STORE REDEVELOPMENT /
RENOVACIÓN DE TIENDAS
GRANDES
TRIBAL TRUST (RESERVATION) LANDS /
TIERRAS DE FIDEICOMISO TRIBALES
(RESERVA)
TRIBAL FEE LANDS /
TIERRAS DE TARIFAS TRIBALES
El Portal Dr
Rd 20
Brookside Dr
Market Ave
San Pablo Dam Road
Legend
Leyenda
FOCUS AREA /
AREA DE ENFOQUE
Ave
Market
Dover Ave
University
Ave
Church Ln
Van Ness St
Mason St
Wildcat Creek
23rd Street District Development Opportunities
CENTRAL DISTRICT
CIVIC DISTRICT
EXCHANGE DISTRICT
Church Ln
23rd St
San Pablo Avenue
“SOFT” DETACHED RESIDENTIAL
NEIGHBORHOOD REDENSIFICATION /
REDENSIFICACIÓN “SUAVE” DEL
VECINDARIO
DEVELOPMENT
& HOUSING
DESARROLLO Y VIVIENDAS
ACQUISITION FOR GREENWAY /
ADQUISICIÓN PARA VÍA VERDE
LOWER-DENSITY INFILL /
RELLENO DE BAJA DENSIDAD
MID-DENSITY CONTEXTUAL
REDEVELOPMENT /
URBANIZACIÓN CONTEXTUAL DE
DENSIDAD MEDIA
LARGE-SCALE COMPREHENSIVE
REDEVELOPMENT /
REDESARROLLO INTEGRAL DE GRAN
ESCALA
FACADE REALIGNMENT / FRONTAGE
DENSIFICATION
REALINEACIÓN DE FACHADA / DENSIFI-
CACIÓN DE FRONTALES
BIG STORE REDEVELOPMENT /
RENOVACIÓN DE TIENDAS
GRANDES
TRIBAL TRUST (RESERVATION) LANDS /
TIERRAS DE FIDEICOMISO TRIBALES
(RESERVA)
TRIBAL FEE LANDS /
TIERRAS DE TARIFAS TRIBALES
El Portal Dr
Rd 20
Brookside Dr
Market Ave
San Pablo Dam Road
Legend
Leyenda
FOCUS AREA /
AREA DE ENFOQUE
Ave
Market
Dover Ave
University
Ave
Church Ln
Van Ness St
Mason St
Wildcat Creek
5.3 Assess Opportunities for TOD (continued)
Legend of Development
Opportunities
Focus Area
“Soft” Detached Residential
Neighborhood Redensification
Acquisition for Greenway
Façade Realignment/Frontage
Densification
Lower-Density Infill
Big Store Redevelopment
Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
19 6. Central District
6.1 TOD Components
The Central District relies
mainly on San Pablo Avenue
for TOD components, which
leaves a disconnect between
the community activities
and the commercial corridor.
The northern portion along
Road 20 is largely separated
from the southern portion
along San Pablo Avenue and
Church Lane, with San Pablo
Creek acting as a barrier
between the two zones with
no through-connections.
San Pablo Avenue offers
development potential for
infill redevelopment, but the
greatest opportunities are
large-scale redevelopment
planning efforts to sensitively
convert the extensive mobile
home neighborhoods to other
mixed uses and densities.
The residential neighborhood
and accessible housing
stock should not be lost, but
rather better integrated into a
complete community design.
CENTRAL DISTRICT
CIVIC DISTRICT
MH
MH
Church Ln
El Portal Dr
Rd 20
Church Ln
San Pablo AveVan Ness St
San Pablo
Community
Centre
Helms Middle
School
Old Maple
Hall
Alvarado
Adobe
Museum
College
Center
Walgreens
23rd St
Rd 20
El Portal Dr
San Pablo Ave
Brookside Dr
Rd 20
San Pablo
Supermarket
San Pablo
Supermarket
Kennedy
Plaza
Central District TOD Components
TOD COMPONENT 23rd STREET DISTRICT EXISTING CONDITION
District
Gateway
There are two key gateways to this district. The intersection of El Portal Drive and San Pablo Ave is the main gateway between the Central District and the Contra Costa College campus. The intersection of Church Lane and El Portal Drive is a gateway for people arriving from I-80.
Corridor
San Pablo Avenue runs through the district and connects to the surrounding community on either end.
Church Lane, El Portal Drive and Road 20 serve as transit routes but lack shared, definable qualities. Road 20 plays a vital corridor role as it connects San Pablo Avenue to the heart of the district, the San Pablo Community Center and Helms Middle School.
Activity
Nodes
The district boundary includes the High Density Residential/Mixed Use Center outlined in the San Pablo Avenue Specific Plan in order to capture synergies with the TOD Master Plan. This includes both sides of San Pablo Avenue, with a Pedestrian Priority Zone around the intersection of Church Lane and San Pablo Ave, and from Road 20 to El Portal Drive. The San Pablo Supermarket at College Centre is also an activity node and commercial hub.
Community
Heart
The heart of the district is the San Pablo Community Center and Helms Middle School. This important gathering place includes indoor and outdoor activities and a place for community events. The center features sports fields, a cafe, classes and programming for all ages and abilities.
Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
20 6.2 Capacity and Conditions to Implement TOD
Development Potential
The Central District has varied precedents and neighborhood character. San Pablo Creek acts as a buffer between large-scale institutional built form and micro-scale mobile and mini homes. Frontages vary widely along San Pablo Avenue, Church Lane, El Portal Drive and Road 20, with typically a large setback between buildings and the road, and buildings oriented away from the street towards private courtyards. The townhouse complex at Campo Verde Crescent offers an urban streetscape rhythm with low-rise residences lining San Pablo Avenue. The commercial corridor between Road 20 and El Portal on San Pablo Avenue offers a mix of zero-lot line, narrow shop fronts on the west side and a shopping center on the east side set back from the road, buffered with landscaped surface parking.
The large mobile home lots and shopping center offer opportunities for master planned development on currently single-use sites.
Consideration to the current residents of the mobile home park and their central location in the city is vital for equitable TOD. This may be an opportunity for community-based planning and long-term legacy planning with current residents to mitigate displacement and ensure benefits are shared.
Land use at the San Pablo Community Center, Helms Middle School, and Hatlen Center for the Blind are highly unlikely to change, though incremental improvements and urban interventions may be used to contribute to the corridor character along Road 20.
Existing Policy Direction
The San Pablo Ave Specific Plan includes a portion of the Central District. Policy direction for this area includes:
• Transit
» Continued transit route along San Pablo Ave, El Portal Drive, and Church Lane. » Pedestrian Priority Zones are designated along San Pablo Ave near Church Lane and between Road 20 and El Portal Drive. » A transit hub is proposed for the intersection of El Portal Drive and San Pablo Ave which would serve Contra Costa College. • Open Space
» Small potential new park near the intersection of San Pablo Ave and Road 20, and two other potential new parks west of San Pablo Ave near College Center Shops.
» Large potential new park near Van Ness, adjacent to Wildcat Creek. » “Public Realm Focus: San Pablo Avenue Central” improvement area along San Pablo Ave. » Signature Landscape & Streetscape Improvements/Pedestrian Priority Zone in the south edge of the Central District. • Development
» High Density Residential development along San Pablo Ave from Van Ness to Lovegrove St, and near El Portal Drive. » A combination of Commercial Mixed Use and Residential Mixed Use to integrate a mix of residential and commercial uses. » Medium Density Residential designated along Road 20, next to the Neighborhood Commercial shopping site. 0 500 1000
FEET
2505 acres
1 acre
Figure 2.3-1
Specific Plan
Land Use Diagram
Low Density Residential
Medium Density Residential
High Density Residential
Mixed Use Center North
Mixed Use Center South
Mixed Use City Hall Center
Commercial Mixed Use
Residential Mixed Use
Neighborhood Commercial
Regional Commercial
Entertainment Overlay District
Public/Institutional
Parks/Recreation
Potential Parks
Activity Center
City Hall*
Trail/Open Space Connection
Creek (dashed where underground)
San Pablo City Limits
San Pablo Avenue Specific Plan Area
SOURCE: City of San Pablo, 2010; Dyett & Bhatia, 2010.
* Future site plan for historic identity purposes
W
ildc
a t C reek
R h e e m C r eek
Sa n P a b l o C r eekDavis
Park
Wanlass
Park
College
Center
Shops
BROADWAY
AVE
RUMRILL
BLVD
BROOKSIDE
DR
ROAD 20
SAN PABLO AVE
23RD
ST
MARKET
AVE
SAN PABLO AVE
SAN PABLO DAM RD
SAN PABLO AVE
CHURCH
LN
St. Joseph
Cemetery
80 EL PORTAL DR
ELPORTAL DR
VALE
RD
0 500 1000
FEET
2505 acres
1 acre
Figure 2.3-1
Specific Plan
Land Use Diagram
Low Density Residential
Medium Density Residential
High Density Residential
Mixed Use Center North
Mixed Use Center South
Mixed Use City Hall Center
Commercial Mixed Use
Residential Mixed Use
Neighborhood Commercial
Regional Commercial
Entertainment Overlay District
Public/Institutional
Parks/Recreation
Potential Parks
Activity Center
City Hall*
Trail/Open Space Connection
Creek (dashed where underground)
San Pablo City Limits
San Pablo Avenue Specific Plan Area
SOURCE: City of San Pablo, 2010; Dyett & Bhatia, 2010.
* Future site plan for historic identity purposes
W
ildc
a t C reek
R h e e m C r eek
Sa n P a b l o C r eekDavis
Park
Wanlass
Park
College
Center
Shops
BROADWAY
AVE
RUMRILL
BLVD
BROOKSIDE
DR
ROAD 20
SAN PABLO AVE
23RD
ST
MARKET
AVE
SAN PABLO AVE
SAN PABLO DAM RD
SAN PABLO AVE
CHURCH
LN
St. Joseph
Cemetery
80 EL PORTAL DR
ELPORTAL DR
VALE
RD
San Pablo Avenue Specific Plan Figure 2.3-1 Land Use Diagram Regional Commercial District Focus
0 500 1000
FEET
2505 acres
1 acre
Figure 2.3-1
Specific Plan
Land Use Diagram
Low Density Residential
Medium Density Residential
High Density Residential
Mixed Use Center North
Mixed Use Center South
Mixed Use City Hall Center
Commercial Mixed Use
Residential Mixed Use
Neighborhood Commercial
Regional Commercial
Entertainment Overlay District
Public/Institutional
Parks/Recreation
Potential Parks
Activity Center
City Hall*
Trail/Open Space Connection
Creek (dashed where underground)
San Pablo City Limits
San Pablo Avenue Specific Plan Area
SOURCE: City of San Pablo, 2010; Dyett & Bhatia, 2010.
* Future site plan for historic identity purposes
W
ildc
a t C reek
R h e e m C r eek
Sa n P a b l o C r eekDavis
Park
Wanlass
Park
College
Center
Shops
BROADWAY
AVE
RUMRILL
BLVD
BROOKSIDE
DR
ROAD 20
SAN PABLO AVE
23RD
ST
MARKET
AVE
SAN PABLO AVE
SAN PABLO DAM RD
SAN PABLO AVE
CHURCH
LN
St. Joseph
Cemetery
80 EL PORTAL DR
ELPORTAL DR
VALE
RD
0 500 1000
FEET
2505 acres
1 acre
Figure 2.3-1
Specific Plan
Land Use Diagram
Low Density Residential
Medium Density Residential
High Density Residential
Mixed Use Center North
Mixed Use Center South
Mixed Use City Hall Center
Commercial Mixed Use
Residential Mixed Use
Neighborhood Commercial
Regional Commercial
Entertainment Overlay District
Public/Institutional
Parks/Recreation
Potential Parks
Activity Center
City Hall*
Trail/Open Space Connection
Creek (dashed where underground)
San Pablo City Limits
San Pablo Avenue Specific Plan Area
SOURCE: City of San Pablo, 2010; Dyett & Bhatia, 2010.
* Future site plan for historic identity purposes
W
ildc
a t C reek
R h e e m C r eek
Sa n P a b l o C r eekDavis
Park
Wanlass
Park
College
Center
Shops
BROADWAY
AVE
RUMRILL
BLVD
BROOKSIDE
DR
ROAD 20
SAN PABLO AVE
23RD
ST
MARKET
AVE
SAN PABLO AVE
SAN PABLO DAM RD
SAN PABLO AVE
CHURCH
LN
St. Joseph
Cemetery
80 EL PORTAL DR
ELPORTAL DR
VALE
RD
0 500 1000
FEET
2505 acres
1 acre
Figure 2.3-1
Specific Plan
Land Use Diagram
Low Density Residential
Medium Density Residential
High Density Residential
Mixed Use Center North
Mixed Use Center South
Mixed Use City Hall Center
Commercial Mixed Use
Residential Mixed Use
Neighborhood Commercial
Regional Commercial
Entertainment Overlay District
Public/Institutional
Parks/Recreation
Potential Parks
Activity Center
City Hall*
Trail/Open Space Connection
Creek (dashed where underground)
San Pablo City Limits
San Pablo Avenue Specific Plan Area
SOURCE: City of San Pablo, 2010; Dyett & Bhatia, 2010.
* Future site plan for historic identity purposes
W
ildc
a t C reek
R h e e m C r eek
Sa n P a b l o C r eekDavis
Park
Wanlass
Park
College
Center
Shops
BROADWAY
AVE
RUMRILL
BLVD
BROOKSIDE
DR
ROAD 20
SAN PABLO AVE
23RD
ST
MARKET
AVE
SAN PABLO AVE
SAN PABLO DAM RD
SAN PABLO AVE
CHURCH
LN
St. Joseph
Cemetery
80 EL PORTAL DR
ELPORTAL DR
VALE
RD
Wi l dc a t Cr e e k
R h e e m C r eek
Sa n P a b l o C reek
Con t r a
Cost a
College
Wanlass
Par k
Potential
Transit
Hub
Cit y
Hall
Lytton
Casin o
Doctors
Medical
Center
Pedestrian
Bridge
San
Pablo
Library
Helms
Middle School
Senior
Adult
Center
El Por t al
Soccer
Field
Davis
Par k Kennedy
Plaza
Wildcat
Creek
Trail
Dover
Elementary
School
Bayview
Elementary
School
Brentz
Lane
Par k
To
Hilltop
Mall
0 500 1000
FEET
2505 acres
1 acre
Figure 3-4:
Pedestrian Walkability
and Major Destinations
Bicycle Lane Access to
San P ablo Avenue*
Transit Route
Pedestrian Priority Zone
Activity C enter
High Density Residential/
Residential Mixed Use/
Mixed Use Center
Existing Park
Pot en t ial Par k
School
San Pablo City Limits
San Pablo Avenue Specific Plan Area
* Bicycle lanes are proposed or existing
along the full length of San P ablo Avenue
SOURCE: Dyett & Bhatia, 2010.
BROADW AY AVE
RUMRI LL BLVD
BROOKSI DE DR
ROAD 2 0
SAN PABLO AVE
2 3 RD ST
MARKET AVE
SAN PABLO AVE
SAN PABLO DAM RD
SAN
PABLO AVE
CHURCH LN
80 EL PORTAL DR
EL PORTAL D R
3-10
Figure 3-4: Pedestrian Walkability
and Major Destinations
0 500 1000
FEET
2505 acres
1 acre
Figure 2.3-1
Specific Plan
Land Use Diagram
Low Density Residential
Medium Density Residential
High Density Residential
Mixed Use Center North
Mixed Use Center South
Mixed Use City Hall Center
Commercial Mixed Use
Residential Mixed Use
Neighborhood Commercial
Regional Commercial
Entertainment Overlay District
Public/Institutional
Parks/Recreation
Potential Parks
Activity Center
City Hall*
Trail/Open Space Connection
Creek (dashed where underground)
San Pablo City Limits
San Pablo Avenue Specific Plan Area
SOURCE: City of San Pablo, 2010; Dyett & Bhatia, 2010.
* Future site plan for historic identity purposes
W
ildc
a t C reek
R h e e m C r eek
Sa n P a b l o C r eekDavis
Park
Wanlass
Park
College
Center
Shops
BROADWAY
AVE
RUMRILL
BLVD
BROOKSIDE
DR
ROAD 20
SAN PABLO AVE
23RD
ST
MARKET
AVE
SAN PABLO AVE
SAN PABLO DAM RD
SAN PABLO AVE
CHURCH
LN
St. Joseph
Cemetery
80 EL PORTAL DR
ELPORTAL DR
VALE
RD
Wi l dc a t Cr e e k
R h e e m C r eek
Sa n P a b l o C reek
Con t r a
Cost a
College
Wanlass
Par k
Potential
Transit
Hub
Cit y
Hall
Lytton
Casin o
Doctors
Medical
Center
Pedestrian
Bridge
San
Pablo
Library
Helms
Middle School
Senior
Adult
Center
El Por t al
Soccer
Field
Davis
Par k Kennedy
Plaza
Wildcat
Creek
Trail
Dover
Elementary
School
Bayview
Elementary
School
Brentz
Lane
Par k
To
Hilltop
Mall
0 500 1000
FEET
2505 acres
1 acre
Figure 3-4:
Pedestrian Walkability
and Major Destinations
Bicycle Lane Access to
San P ablo Avenue*
Transit Route
Pedestrian Priority Zone
Activity C enter
High Density Residential/
Residential Mixed Use/
Mixed Use Center
Existing Park
Pot en t ial Par k
School
San Pablo City Limits
San Pablo Avenue Specific Plan Area
* Bicycle lanes are proposed or existing
along the full length of San P ablo Avenue
SOURCE: Dyett & Bhatia, 2010.
BROADW AY AVE
RUMRI LL BLVD
BROOKSI DE DR
ROAD 2 0
SAN PABLO AVE
2 3 RD ST
MARKET AVE
SAN PABLO AVE
SAN PABLO DAM RD
SAN
PABLO AVE
CHURCH LN
80 EL PORTAL DR
EL PORTAL D R
3-10
Figure 3-4: Pedestrian Walkability
and Major Destinations
Wi l dc a t Cr e e k
R h e e m C r eek
Sa n P a b l o C reek
Con t r a
Cost a
College
Wanlass
Par k
Potential
Transit
Hub
Cit y
Hall
Lytton
Casin o
Doctors
Medical
Center
Pedestrian
Bridge
San
Pablo
Library
Helms
Middle School
Senior
Adult
Center
El Por t al
Soccer
Field
Davis
Par k Kennedy
Plaza
Wildcat
Creek
Trail
Dover
Elementary
School
Bayview
Elementary
School
Brentz
Lane
Par k
To
Hilltop
Mall
0 500 1000
FEET
2505 acres
1 acre
Figure 3-4:
Pedestrian Walkability
and Major Destinations
Bicycle Lane Access to
San P ablo Avenue*
Transit Route
Pedestrian Priority Zone
Activity C enter
High Density Residential/
Residential Mixed Use/
Mixed Use Center
Existing Park
Pot en t ial Par k
School
San Pablo City Limits
San Pablo Avenue Specific Plan Area
* Bicycle lanes are proposed or existing
along the full length of San P ablo Avenue
SOURCE: Dyett & Bhatia, 2010.
BROADW AY AVE
RUMRI LL BLVD
BROOKSI DE DR
ROAD 2 0
SAN PABLO AVE
2 3 RD ST
MARKET AVE
SAN PABLO AVE
SAN PABLO DAM RD
SAN
PABLO AVE
CHURCH LN
80 EL PORTAL DR
EL PORTAL D R
3-10
Figure 3-4: Pedestrian Walkability
and Major Destinations
San Pablo Avenue Specific Plan Figure 3-4
Pedestrian Walkability and Major Destinations
Regional Commercial District Focus
21 Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
6.3 Assess Opportunities for TOD
TRANSIT OPPORTUNITIES - CENTRAL DISTRICT
San Pablo Avenue Opportunities
• Enhance the public transit experience along San Pablo Avenue by providing amenities, streetscape improvements, and crossing upgrades at intersecting streets, particularly at destinations including retail, schools, and community centers. • Micromobility hubs at key confluences are an opportunity to support multi-modal mobility and offer better options for first and last mile connectivity between homes, workplaces, and transit where cycling, scootering, or other micromobility options will enable convenient transit access for more people.
Neighborhood Connectivity Opportunities
• Provide new paths for motorists, cyclists, and pedestrians that continue and connect established street patterns. • Create new pathways between Church Lane, San Pablo Avenue, and Road 20. • Incorporate pedestrian and cyclist-friendly new neighborhood streets through the College Center Shopping Plaza site.
San Pablo Creek Trail Opportunities
• The San Pablo Community Center and amenities are oriented towards Road 20, with no interface or connectivity to San Pablo Creek. By opening up the creek as a natural community asset with trails and crossings, the Community Center and Helms Middle School may be better integrated into San Pablo Avenue and create a finer grained network through the district. • New bridges over San Pablo Creek at the confluence of new street network connections will enable residents and visitors along San Pablo Avenue to easily access community amenities along Road 20, and create a connection to the riparian area.
Enhanced Transit Stop Facilities Opportunity
• At key locations including retail hubs, provide enhanced transit amenities that make accessing buses convenient and pleasant.
Enhanced Intersections
• Key intersections of main roads or gateways into the district can be enhanced for wayfinding, amenities, and to create a distinct San Pablo identity and character.
23rd DISTRICT
EXCHANGE DISTRICT
MH
MH
MH
Church Ln
tS dr32
San Pablo
Avenue
El Portal Dr
Rd 20
Brookside Dr
Market
Ave
San Pablo Dam Road
MICROMOBILITY HUB FACILITY /
CENTRO DE MICROMOVILIDAD
ENHANCED TRANSIT STOP /
PARADA DE TRANSPORTE MEJORADA
NEW BRIDGE OVER CREEK /
PUENTE NUEVO SOBRE ARROYO
ENHANCED PEDESTRIAN CROSSING /
PASO DE PEATONES MEJORADO
“GREAT STREET” STREESCAPE
IMPROVEMENT /
MEJORA DE PAISAJE CALLEJERO
“CALLES EXCELENTES”
NEW PEDESTRIAN & BICYCLE PATH
(SEPARATED) /
NUEVO CARRIL PEATONAL Y PARA
BICICLETA (SEPARADOS)
TRAFFIC CALMED EXISTING STREET /
CALLE EXISTENTE CON TRÁFICO
CALMADO
ENHANCED NEW INTERSECTION /
NUEVA INTERSECCIÓN MEJORADA
MH
NEW STREET (INTERCONNECTED
STREET NETWORK) /
CALLE NUEVA (RED DE CALLES
INTERCONECTADAS)
TRANSIT
TRANSPORTE
Legend
Leyenda
MH
MH
Church Ln
Rd 20
San Pablo Ave
El Portal Dr
MH
San Pablo Ave
MH
CENTRAL DISTRICT
CIVIC DISTRICT
EXCHANGE DISTRICT
MH
MH
MH
Church Ln
tS dr32
San Pablo
Avenue
El Portal Dr
Rd 20
Brookside Dr
Market
Ave
San Pablo Dam Road
MICROMOBILITY HUB FACILITY /
CENTRO DE MICROMOVILIDAD
ENHANCED TRANSIT STOP /
PARADA DE TRANSPORTE MEJORADA
NEW BRIDGE OVER CREEK /
PUENTE NUEVO SOBRE ARROYO
ENHANCED PEDESTRIAN CROSSING /
PASO DE PEATONES MEJORADO
“GREAT STREET” STREESCAPE
IMPROVEMENT /
MEJORA DE PAISAJE CALLEJERO
“CALLES EXCELENTES”
NEW PEDESTRIAN & BICYCLE PATH
(SEPARATED) /
NUEVO CARRIL PEATONAL Y PARA
BICICLETA (SEPARADOS)
TRAFFIC CALMED EXISTING STREET /
CALLE EXISTENTE CON TRÁFICO
CALMADO
ENHANCED NEW INTERSECTION /
NUEVA INTERSECCIÓN MEJORADA
MH
NEW STREET (INTERCONNECTED
STREET NETWORK) /
CALLE NUEVA (RED DE CALLES
INTERCONECTADAS)
TRANSIT
TRANSPORTE
Legend
Leyenda
23rd DISTRICT
MH
tS dr32
Brookside Dr
Market
Ave
Market
Dover Ave
University
Ave
Church Ln
23rd Street
Van Ness St
Mason St
Wildcat Creek
CENTRAL DISTRICT
CIVIC DISTRICT
EXCHANGE DISTRICT
MH
MH
MH
Church Ln
tS dr32
San Pablo
Avenue
El Portal Dr
Rd 20
Brookside Dr
Market
Ave
San Pablo Dam Road
MICROMOBILITY HUB FACILITY /
CENTRO DE MICROMOVILIDAD
ENHANCED TRANSIT STOP /
PARADA DE TRANSPORTE MEJORADA
NEW BRIDGE OVER CREEK /
PUENTE NUEVO SOBRE ARROYO
ENHANCED PEDESTRIAN CROSSING /
PASO DE PEATONES MEJORADO
“GREAT STREET” STREESCAPE
IMPROVEMENT /
MEJORA DE PAISAJE CALLEJERO
“CALLES EXCELENTES”
NEW PEDESTRIAN & BICYCLE PATH
(SEPARATED) /
NUEVO CARRIL PEATONAL Y PARA
BICICLETA (SEPARADOS)
TRAFFIC CALMED EXISTING STREET /
CALLE EXISTENTE CON TRÁFICO
CALMADO
ENHANCED NEW INTERSECTION /
NUEVA INTERSECCIÓN MEJORADA
MH
NEW STREET (INTERCONNECTED
STREET NETWORK) /
CALLE NUEVA (RED DE CALLES
INTERCONECTADAS)
TRANSIT
TRANSPORTE
Legend
Leyenda
23rd DISTRICT
MH
tS dr32
Brookside Dr
Market
Ave
Market
Dover Ave
University
Ave
Church Ln
23rd Street
Van Ness St
Mason St
Wildcat Creek
Central District Transit Opportunities
Legend of Transit
Opportunities
Enhanced New Intersection
Micromobility Hub
Enhanced Transit Stop
New Bridge Over Creek
Enhanced Pedestrian Crossing
“Great Street” Streetscape
Improvement
New Pedestrian & Bicycle
Path (Separated)
Traffic Calmed Existing Street
New Street (Interconnected
Street Network)
22 Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
OPEN SPACE OPPORTUNITIES - CENTRAL DISTRICT
San Pablo Creek Opportunities
• San Pablo Creek and Wildcat Creek are opportunities for continuous, linear open spaces that provide access to nature. • Improvements and access to San Pablo Creek can especially enhance the public open space along the south edge of the Community Center and Helms Middle School grounds, providing much-needed connection to the San Pablo Ave corridor across the creek and introducing space for a wider range of outdoor activities and gatherings.
Urban Park Opportunities
• The Central District is an ideal location for new urban parks to serve the surrounding TOD Districts and residents. • Medium and small-scale parks along San Pablo Avenue integrated with surrounding mixed use and retail areas would provide central outdoor recreation and gathering areas in high-traffic pedestrian areas. • A central park at the heart of the redevelopment of the College Center shopping plaza would offer an outdoor amenity to the new mix of users including residents, workers, and visitors.
Plazas and Streetscape Opportunities
• Hardscaped open space including setbacks and surface parking are opportunities for activity nodes along the TOD corridor.
Active Frontage Opportunities
• Active building edges with natural overlook and pedestrian-serving frontage zones facing San Pablo Creek, Wildcat Creek, parks and plazas will improve safety and attract people into public spaces off of the main San Pablo Avenue corridor.
Green Linkages
• Landscaped pedestrian and cyclist paths connecting open spaces will be important to establishing the open space character and creating safe and comfortable circulation for people between destinations in the Central District. There is an opportunity to offer access between main transit-serviced streets and nearby parks, plazas, and the creek area on Green Linkages. These are paths that are scenic, pleasant, traffic-calmed or free of vehicles, shaded by trees, planted with native species, and rich in pedestrian and cyclist amenities, creating an extension of the green open spaces that they form a network between. 23rd DISTRICT
CIVIC DISTRICT
EXCHANGE DISTRICT
SCHOOLS & SPORTS FIELDS /
ESCUELAS Y CAMPOS DEPORTIVOS
EXISTING CREEK /
ARROYO EXISTENTE
ACTIVE FRONTAGE TOWARDS OPEN
SPACE /
FRONTAL ACTIVO HACIA EL ESPACIO
ABIERTO
GREEN LINKAGES /
VÍNCULOS VERDES
URBAN PLAZA /
PLAZA URBANA
STREETSCAPE CREEK ENHANCEMENT
MEJORA DE PAISAJE CALLEJERO
HACIA EL ARROYO
URBAN PARK /
PARQUE URBANO
CREEK DAYLIGHTING /
DRENAJE NATURAL DEL ARROYO
CREEKSIDE NATURAL PARK AND
RESTORATION /
PARQUE NATURAL AL LADO DEL
ARROYO Y RESTAURACIÓN
23rd St
San Pablo Avenue
San Pablo Dam Road
Church Ln
El Portal Dr
Rd 20
Brookside Dr
Market Ave
OPEN SPACE
ESPACIO ABIERTO
Legend
Leyenda
San Pablo Avenue
San Pablo Avenue
Rd 20
23rd St
6.3 Assess Opportunities for TOD (continued)
Central District Open Space Opportunities
Legend of Open Space
Opportunities
Schools & Sports Fields
Existing Creek
Active Frontage Towards
Open Space
Green Linkages
Urban Plaza
Streetscape Creek
Enhancement
Urban Park
Creekside Natural Park
and Restoration
Creek Daylighting
23 Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
DEVELOPMENT OPPORTUNITIES - CENTRAL DISTRICT
Neighborhood Infill Opportunity
• Between 23rd Street and Van Ness, along Standard Ave, infill at a small-scale urban provides an opportunity for gentle densification of single family housing in an area that is central, transit-oriented, and rich in amenities and services a short walk away along nearby San Pablo Avenue and 23rd Street.
Lower Density Infill Opportunity
• Along 23rd Street, lower-density infill may complete the urban fabric and support transit oriented uses while integrating into the existing neighborhood and without significantly changing the district’s character.
Façade Improvement Opportunities
• Along San Pablo Avenue, where redevelopment is unlikely in the foreseeable future, there are opportunities to upgrade building frontages to improve the built form character, or add streetscape elements to create a better pedestrian experience. • Along Road 20, the Community Center and Hatlen Center for the Blind have opportunities to improve their frontages to establish strong public institution and community-oriented character.
Large Site Redevelopment Opportunity
• The College Center site and surrounding surface parking and commercial area are a high-capacity, underutilized, centrally located potential site for a large comprehensive redevelopment, potentially serving the Contra Costa College community across El Portal Drive, or generally adding a mixed use, compact hub near the future mobility node.
Mid-Density Contextual Development
• The Central District has a great opportunity for many underutilized commercial sites along San Pablo Avenue which would be suitable for contextual mid-density mixed use redevelopment either as piecemeal sites or, as appropriate, together in mid-scale masterplans.
CIVIC DISTRICT
EXCHANGE DISTRICT
Church Ln
23rd St
San Pablo Avenue
“SOFT” DETACHED RESIDENTIAL
NEIGHBORHOOD REDENSIFICATION /
REDENSIFICACIÓN “SUAVE” DEL
VECINDARIO
DEVELOPMENT
& HOUSING
DESARROLLO Y VIVIENDAS
ACQUISITION FOR GREENWAY /
ADQUISICIÓN PARA VÍA VERDE
LOWER-DENSITY INFILL /
RELLENO DE BAJA DENSIDAD
MID-DENSITY CONTEXTUAL
REDEVELOPMENT /
URBANIZACIÓN CONTEXTUAL DE
DENSIDAD MEDIA
LARGE-SCALE COMPREHENSIVE
REDEVELOPMENT /
REDESARROLLO INTEGRAL DE GRAN
ESCALA
FACADE REALIGNMENT / FRONTAGE
DENSIFICATION
REALINEACIÓN DE FACHADA / DENSIFI-
CACIÓN DE FRONTALES
BIG STORE REDEVELOPMENT /
RENOVACIÓN DE TIENDAS
GRANDES
TRIBAL TRUST (RESERVATION) LANDS /
TIERRAS DE FIDEICOMISO TRIBALES
(RESERVA)
TRIBAL FEE LANDS /
TIERRAS DE TARIFAS TRIBALES
Rd 20
Brookside Dr
Market Ave
San Pablo Dam Road
Legend
Leyenda
FOCUS AREA /
AREA DE ENFOQUE
El Portal Dr
Brookside Dr
San Pablo Avenue
San Pablo Avenue
Rd 20
23rd St
Ave
Market
Dover Ave
University
Ave
Church Ln
Van Ness St
Mason St
Wildcat Creek
Central District Development Opportunities
6.3 Assess Opportunities for TOD (continued)
Legend of Development
Opportunities
Focus Area
“Soft” Single Family
Neighborhood
Redensification
Acquisition for Greenway
Façade Realignment/
Frontage Densification
Lower-Density Infill
Mid-Density Contextual
Redevelopment
Large-Scale
Comprehensive
Redevelopment
Big Store
Redevelopment
Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
24 7. Civic District
7.1 TOD Components
The Civic District is a
widespread area with a
concentrated core mainly
between San Pablo Avenue
and Wildcat Creek. The
primary civic centers are
located here including San
Pablo City Hall and San
Pablo Library, and the future
site of the San Pablo Police
Department detachment.
These are located in close
proximity to the transit services
along San Pablo Avenue
and connected with existing
pedestrian paths and linkages.
The district also serves as an
employment center, with a mix
of healthcare related offices
and work sites.
Civic District TOD Components
TOD COMPONENT 23rd STREET DISTRICT EXISTING CONDITION
District
Gateway
The east and west gateways of the Civic District connect directly to surrounding TOD Districts in San Pablo. At the north edge, the intersection of Church Lane and El Portal Drive is a gateway for people arriving from I-80. The south gateway is where Church Lane turns to Market Ave.
Corridor The corridors consist of San Pablo Avenue and Church Lane, both of which are bus routes.
Activity
Nodes
The activity node is founded on the civic complex that includes City Hall, West County Health Center, and San Pablo Library. This area also includes ground-level retail such as Walgreens. The future San Pablo Police Department will expand the activity node into an even larger contiguous zone of civic activities.
Community
Heart
The Civic District community heart is where San Pablo Ave, Church Lane, and Wildcat Creek meet. This is where the San Pablo Library is located, which currently functions as the main public space in the district.
Neighborhood
Connections
A series of dead-end neighborhood streets and cul-de-sacs connect mixed residential areas to the San Pablo Ave and Church Lane corridors, but do not connect the neighborhood blocks to one another.
Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
7.2 Capacity and Conditions to Implement TOD
Development Potential
The Civic District contains multiple medium to large scale blocks that are underutilized and ready for redevelopment, right along San Pablo Avenue. The recently-completed City Hall building introduces a new development and streetscape condition for the area, demonstrating a high standard of public realm environment. Redevelopment in this district can help to complete the urban fabric, following the characteristics set in the new City Hall block.
Other areas throughout the district may have capacity for incremental soft neighborhood densification that introduces appropriate mix of uses into single-use areas near transit.
Existing Policy Direction
The San Pablo Avenue Specific Plan (SP-2) includes a portion of the Central District. Policy direction for this area that support the principles and vision of the TOD Master Plan include:
• Transit
» San Pablo Ave and Vale Ave are existing transit routes with continued service. • Open Space
» A community park and plaza are designated within the Civic District’s Circle S site. » A multi-use greenway trail has already been completed along Wildcat Creek, with adjacent new public places provided along the way.
• Development
» The Civic District encompasses the “Circle S” area identified in the SP-2. » This is a major redevelopment site owned by the City, with an opportunity to integrate a mixed use residential and commercial node in the heart of the corridor with integrated park and open space. 25 0 500 1000
FEET
2505 acres
1 acre
Figure 2.3-1
Specific Plan
Land Use Diagram
Low Density Residential
Medium Density Residential
High Density Residential
Mixed Use Center North
Mixed Use Center South
Mixed Use City Hall Center
Commercial Mixed Use
Residential Mixed Use
Neighborhood Commercial
Regional Commercial
Entertainment Overlay District
Public/Institutional
Parks/Recreation
Potential Parks
Activity Center
City Hall*
Trail/Open Space Connection
Creek (dashed where underground)
San Pablo City Limits
San Pablo Avenue Specific Plan Area
SOURCE: City of San Pablo, 2010; Dyett & Bhatia, 2010.
* Future site plan for historic identity purposes
W
ildc
a t C reek
R h e e m C r eek
Sa n P a b l o C r eekDavis
Park
Wanlass
Park
College
Center
Shops
BROADWAY
AVE
RUMRILL
BLVD
BROOKSIDE
DR
ROAD 20
SAN PABLO AVE
23RD
ST
MARKET
AVE
SAN PABLO AVE
SAN PABLO DAM RD
SAN PABLO AVE
CHURCH
LN
St. Joseph
Cemetery
80 EL PORTAL DR
ELPORTAL DR
VALE
RD
0 500 1000
FEET
2505 acres
1 acre
Figure 2.3-1
Specific Plan
Land Use Diagram
Low Density Residential
Medium Density Residential
High Density Residential
Mixed Use Center North
Mixed Use Center South
Mixed Use City Hall Center
Commercial Mixed Use
Residential Mixed Use
Neighborhood Commercial
Regional Commercial
Entertainment Overlay District
Public/Institutional
Parks/Recreation
Potential Parks
Activity Center
City Hall*
Trail/Open Space Connection
Creek (dashed where underground)
San Pablo City Limits
San Pablo Avenue Specific Plan Area
SOURCE: City of San Pablo, 2010; Dyett & Bhatia, 2010.
* Future site plan for historic identity purposes
W
ildc
a t C reek
R h e e m C r eek
Sa n P a b l o C r eekDavis
Park
Wanlass
Park
College
Center
Shops
BROADWAY
AVE
RUMRILL
BLVD
BROOKSIDE
DR
ROAD 20
SAN PABLO AVE
23RD
ST
MARKET
AVE
SAN PABLO AVE
SAN PABLO DAM RD
SAN PABLO AVE
CHURCH
LN
St. Joseph
Cemetery
80 EL PORTAL DR
ELPORTAL DR
VALE
RD
San Pablo Avenue Specific Plan Figure 2.3-1 Land Use Diagram Civic District Focus
San Pablo Avenue Specific Plan Figure 3-4
Pedestrian Walkability and Major Destinations
Civic District Focus
0 500 1000
FEET
2505 acres
1 acre
Figure 2.3-1
Specific Plan
Land Use Diagram
Low Density Residential
Medium Density Residential
High Density Residential
Mixed Use Center North
Mixed Use Center South
Mixed Use City Hall Center
Commercial Mixed Use
Residential Mixed Use
Neighborhood Commercial
Regional Commercial
Entertainment Overlay District
Public/Institutional
Parks/Recreation
Potential Parks
Activity Center
City Hall*
Trail/Open Space Connection
Creek (dashed where underground)
San Pablo City Limits
San Pablo Avenue Specific Plan Area
SOURCE: City of San Pablo, 2010; Dyett & Bhatia, 2010.
* Future site plan for historic identity purposes
W
ildc
a t C reek
R h e e m C r eek
Sa n P a b l o C r eekDavis
Park
Wanlass
Park
College
Center
Shops
BROADWAY
AVE
RUMRILL
BLVD
BROOKSIDE
DR
ROAD 20
SAN PABLO AVE
23RD
ST
MARKET
AVE
SAN PABLO AVE
SAN PABLO DAM RD
SAN PABLO AVE
CHURCH
LN
St. Joseph
Cemetery
80 EL PORTAL DR
ELPORTAL DR
VALE
RD
0 500 1000
FEET
2505 acres
1 acre
Figure 2.3-1
Specific Plan
Land Use Diagram
Low Density Residential
Medium Density Residential
High Density Residential
Mixed Use Center North
Mixed Use Center South
Mixed Use City Hall Center
Commercial Mixed Use
Residential Mixed Use
Neighborhood Commercial
Regional Commercial
Entertainment Overlay District
Public/Institutional
Parks/Recreation
Potential Parks
Activity Center
City Hall*
Trail/Open Space Connection
Creek (dashed where underground)
San Pablo City Limits
San Pablo Avenue Specific Plan Area
SOURCE: City of San Pablo, 2010; Dyett & Bhatia, 2010.
* Future site plan for historic identity purposes
W
ildc
a t C reek
R h e e m C r eek
Sa n P a b l o C r eekDavis
Park
Wanlass
Park
College
Center
Shops
BROADWAY
AVE
RUMRILL
BLVD
BROOKSIDE
DR
ROAD 20
SAN PABLO AVE
23RD
ST
MARKET
AVE
SAN PABLO AVE
SAN PABLO DAM RD
SAN PABLO AVE
CHURCH
LN
St. Joseph
Cemetery
80 EL PORTAL DR
ELPORTAL DR
VALE
RD
0 500 1000
FEET
2505 acres
1 acre
Figure 2.3-1
Specific Plan
Land Use Diagram
Low Density Residential
Medium Density Residential
High Density Residential
Mixed Use Center North
Mixed Use Center South
Mixed Use City Hall Center
Commercial Mixed Use
Residential Mixed Use
Neighborhood Commercial
Regional Commercial
Entertainment Overlay District
Public/Institutional
Parks/Recreation
Potential Parks
Activity Center
City Hall*
Trail/Open Space Connection
Creek (dashed where underground)
San Pablo City Limits
San Pablo Avenue Specific Plan Area
SOURCE: City of San Pablo, 2010; Dyett & Bhatia, 2010.
* Future site plan for historic identity purposes
W
ildc
a t C reek
R h e e m C r eek
Sa n P a b l o C r eekDavis
Park
Wanlass
Park
College
Center
Shops
BROADWAY
AVE
RUMRILL
BLVD
BROOKSIDE
DR
ROAD 20
SAN PABLO AVE
23RD
ST
MARKET
AVE
SAN PABLO AVE
SAN PABLO DAM RD
SAN PABLO AVE
CHURCH
LN
St. Joseph
Cemetery
80 EL PORTAL DR
ELPORTAL DR
VALE
RD
0 500 1000
FEET
2505 acres
1 acre
Figure 2.3-1
Specific Plan
Land Use Diagram
Low Density Residential
Medium Density Residential
High Density Residential
Mixed Use Center North
Mixed Use Center South
Mixed Use City Hall Center
Commercial Mixed Use
Residential Mixed Use
Neighborhood Commercial
Regional Commercial
Entertainment Overlay District
Public/Institutional
Parks/Recreation
Potential Parks
Activity Center
City Hall*
Trail/Open Space Connection
Creek (dashed where underground)
San Pablo City Limits
San Pablo Avenue Specific Plan Area
SOURCE: City of San Pablo, 2010; Dyett & Bhatia, 2010.
* Future site plan for historic identity purposes
W
ildc
a t C reek
R h e e m C r eek
Sa n P a b l o C r eekDavis
Park
Wanlass
Park
College
Center
Shops
BROADWAY
AVE
RUMRILL
BLVD
BROOKSIDE
DR
ROAD 20
SAN PABLO AVE
23RD
ST
MARKET
AVE
SAN PABLO AVE
SAN PABLO DAM RD
SAN PABLO AVE
CHURCH
LN
St. Joseph
Cemetery
80 EL PORTAL DR
ELPORTAL DR
VALE
RD
0 500 1000
FEET
2505 acres
1 acre
Figure 2.3-1
Specific Plan
Land Use Diagram
Low Density Residential
Medium Density Residential
High Density Residential
Mixed Use Center North
Mixed Use Center South
Mixed Use City Hall Center
Commercial Mixed Use
Residential Mixed Use
Neighborhood Commercial
Regional Commercial
Entertainment Overlay District
Public/Institutional
Parks/Recreation
Potential Parks
Activity Center
City Hall*
Trail/Open Space Connection
Creek (dashed where underground)
San Pablo City Limits
San Pablo Avenue Specific Plan Area
SOURCE: City of San Pablo, 2010; Dyett & Bhatia, 2010.
* Future site plan for historic identity purposes
W
ildc
a t C reek
R h e e m C r eek
Sa n P a b l o C r eekDavis
Park
Wanlass
Park
College
Center
Shops
BROADWAY
AVE
RUMRILL
BLVD
BROOKSIDE
DR
ROAD 20
SAN PABLO AVE
23RD
ST
MARKET
AVE
SAN PABLO AVE
SAN PABLO DAM RD
SAN PABLO AVE
CHURCH
LN
St. Joseph
Cemetery
80 EL PORTAL DR
ELPORTAL DR
VALE
RD
Wi l dc a t Cr e e k
R h e e m C r eek
Sa n P a b l o C reek
Con t r a
Cost a
College
Wanlass
Par k
Potential
Transit
Hub
Cit y
Hall
Lytton
Casin o
Doctors
Medical
Center
Pedestrian
Bridge
San
Pablo
Library
Helms
Middle School
Senior
Adult
Center
El Por t al
Soccer
Field
Davis
Par k Kennedy
Plaza
Wildcat
Creek
Trail
Dover
Elementary
School
Bayview
Elementary
School
Brentz
Lane
Par k
To
Hilltop
Mall
0 500 1000
FEET
2505 acres
1 acre
Figure 3-4:
Pedestrian Walkability
and Major Destinations
Bicycle Lane Access to
San P ablo Avenue*
Transit Route
Pedestrian Priority Zone
Activity C enter
High Density Residential/
Residential Mixed Use/
Mixed Use Center
Existing Park
Pot en t ial Par k
School
San Pablo City Limits
San Pablo Avenue Specific Plan Area
* Bicycle lanes are proposed or existing
along the full length of San P ablo Avenue
SOURCE: Dyett & Bhatia, 2010.
BROADW AY AVE
RUMRI LL BLVD
BROOKSI DE DR
ROAD 2 0
SAN PABLO AVE
2 3 RD ST
MARKET AVE
SAN PABLO AVE
SAN PABLO DAM RD
SAN
PABLO AVE
CHURCH LN
80 EL PORTAL DR
EL PORTAL D R
3-10
Figure 3-4: Pedestrian Walkability
and Major Destinations
Wi l dc a t Cr e e k
R h e e m C r eek
Sa n P a b l o C reek
Con t r a
Cost a
College
Wanlass
Par k
Potential
Transit
Hub
Cit y
Hall
Lytton
Casin o
Doctors
Medical
Center
Pedestrian
Bridge
San
Pablo
Library
Helms
Middle School
Senior
Adult
Center
El Por t al
Soccer
Field
Davis
Par k Kennedy
Plaza
Wildcat
Creek
Trail
Dover
Elementary
School
Bayview
Elementary
School
Brentz
Lane
Par k
To
Hilltop
Mall
0 500 1000
FEET
2505 acres
1 acre
Figure 3-4:
Pedestrian Walkability
and Major Destinations
Bicycle Lane Access to
San P ablo Avenue*
Transit Route
Pedestrian Priority Zone
Activity C enter
High Density Residential/
Residential Mixed Use/
Mixed Use Center
Existing Park
Pot en t ial Par k
School
San Pablo City Limits
San Pablo Avenue Specific Plan Area
* Bicycle lanes are proposed or existing
along the full length of San P ablo Avenue
SOURCE: Dyett & Bhatia, 2010.
BROADW AY AVE
RUMRI LL BLVD
BROOKSI DE DR
ROAD 2 0
SAN PABLO AVE
2 3 RD ST
MARKET AVE
SAN PABLO AVE
SAN PABLO DAM RD
SAN
PABLO AVE
CHURCH LN
80 EL PORTAL DR
EL PORTAL D R
3-10
Figure 3-4: Pedestrian Walkability
and Major Destinations
26 Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
7.3 Assess Opportunities for TOD
TRANSIT OPPORTUNITIES - CIVIC DISTRICT
Strengthen San Pablo Avenue Opportunities
• The zone surrounding City Hall and San Pablo Library are “Pedestrian Priority Zone” in the San Pablo Avenue Specific Plan.
Build on this direction and create Great Street with transit amenities, safe crossings, and activated frontages.
North-South Opportunity
• There is a lack of north-south connections in the Civic District. Destinations in the south area of the district, such as Wildcat Creek and Salesian College are not connected to the neighbors in the north area, opening an opportunity to connect these areas to San Pablo Avenue via a new greenway and a new bridge across the Wildcat Creek riparian zone. • Gateway Avenue can be improved as a green linkage for pedestrians and cyclists.
Connect Isolated Zones Opportunity
• Dead-ends and disconnected residential cul-de-sacs create islands within the district with no connectivity to San Pablo Avenue or the Civic District heart. There is an opportunity to connect these with through-streets for pedestrians, cyclists, and motorists, and offer continuous circulation through neighborhoods off of the main arterials and corridors.
Creek Bridge Opportunity
• A new bridge crossing would connect the Salesian College school grounds to Wildcat Creek and the City Hall area, improving usability of the open space and extending the north-south connection in this district. 23rd DISTRICT
CENTRAL DISTRICT
EXCHANGE DISTRICT
MH
MH
MH
Church Ln
tS dr32
San Pablo
Avenue
El Portal Dr
Rd 20
Brookside Dr
Market
Ave
San Pablo Dam Road
MICROMOBILITY HUB FACILITY /
CENTRO DE MICROMOVILIDAD
ENHANCED TRANSIT STOP /
PARADA DE TRANSPORTE MEJORADA
NEW BRIDGE OVER CREEK /
PUENTE NUEVO SOBRE ARROYO
ENHANCED PEDESTRIAN CROSSING /
PASO DE PEATONES MEJORADO
“GREAT STREET” STREESCAPE
IMPROVEMENT /
MEJORA DE PAISAJE CALLEJERO
“CALLES EXCELENTES”
NEW PEDESTRIAN & BICYCLE PATH
(SEPARATED) /
NUEVO CARRIL PEATONAL Y PARA
BICICLETA (SEPARADOS)
TRAFFIC CALMED EXISTING STREET /
CALLE EXISTENTE CON TRÁFICO
CALMADO
ENHANCED NEW INTERSECTION /
NUEVA INTERSECCIÓN MEJORADA
MH
NEW STREET (INTERCONNECTED
STREET NETWORK) /
CALLE NUEVA (RED DE CALLES
INTERCONECTADAS)
TRANSIT
TRANSPORTE
Legend
Leyenda
CIVIC DISTRICT
MH
MH
Church Ln
San Pablo
Avenue
Willow Rd
GatewayAve
Chattleton Ln
CENTRAL DISTRICT
CIVIC DISTRICT
EXCHANGE DISTRICT
MH
MH
MH
Church Ln
tS dr32
San Pablo
Avenue
El Portal Dr
Rd 20
Brookside Dr
Market
Ave
San Pablo Dam Road
MICROMOBILITY HUB FACILITY /
CENTRO DE MICROMOVILIDAD
ENHANCED TRANSIT STOP /
PARADA DE TRANSPORTE MEJORADA
NEW BRIDGE OVER CREEK /
PUENTE NUEVO SOBRE ARROYO
ENHANCED PEDESTRIAN CROSSING /
PASO DE PEATONES MEJORADO
“GREAT STREET” STREESCAPE
IMPROVEMENT /
MEJORA DE PAISAJE CALLEJERO
“CALLES EXCELENTES”
NEW PEDESTRIAN & BICYCLE PATH
(SEPARATED) /
NUEVO CARRIL PEATONAL Y PARA
BICICLETA (SEPARADOS)
TRAFFIC CALMED EXISTING STREET /
CALLE EXISTENTE CON TRÁFICO
CALMADO
ENHANCED NEW INTERSECTION /
NUEVA INTERSECCIÓN MEJORADA
MH
NEW STREET (INTERCONNECTED
STREET NETWORK) /
CALLE NUEVA (RED DE CALLES
INTERCONECTADAS)
TRANSIT
TRANSPORTE
Legend
Leyenda
23rd DISTRICT
MH
tS dr32
Brookside Dr
Market
Ave
Market
Dover Ave
University
Ave
Church Ln
23rd Street
Van Ness St
Mason St
Wildcat Creek
CENTRAL DISTRICT
CIVIC DISTRICT
EXCHANGE DISTRICT
MH
MH
MH
Church Ln
tS dr32
San Pablo
Avenue
El Portal Dr
Rd 20
Brookside Dr
Market
Ave
San Pablo Dam Road
MICROMOBILITY HUB FACILITY /
CENTRO DE MICROMOVILIDAD
ENHANCED TRANSIT STOP /
PARADA DE TRANSPORTE MEJORADA
NEW BRIDGE OVER CREEK /
PUENTE NUEVO SOBRE ARROYO
ENHANCED PEDESTRIAN CROSSING /
PASO DE PEATONES MEJORADO
“GREAT STREET” STREESCAPE
IMPROVEMENT /
MEJORA DE PAISAJE CALLEJERO
“CALLES EXCELENTES”
NEW PEDESTRIAN & BICYCLE PATH
(SEPARATED) /
NUEVO CARRIL PEATONAL Y PARA
BICICLETA (SEPARADOS)
TRAFFIC CALMED EXISTING STREET /
CALLE EXISTENTE CON TRÁFICO
CALMADO
ENHANCED NEW INTERSECTION /
NUEVA INTERSECCIÓN MEJORADA
MH
NEW STREET (INTERCONNECTED
STREET NETWORK) /
CALLE NUEVA (RED DE CALLES
INTERCONECTADAS)
TRANSIT
TRANSPORTE
Legend
Leyenda
23rd DISTRICT
MH
tS dr32
Brookside Dr
Market
Ave
Market
Dover Ave
University
Ave
Church Ln
23rd Street
Van Ness St
Mason St
Wildcat Creek
Civic District Transit Opportunities
Legend of Transit
Opportunities
Enhanced New Intersection
Enhanced Transit Stop
New Bridge Over Creek
Enhanced Pedestrian
Crossing
“Great Street” Streetscape
Improvement
New Pedestrian & Bicycle
Path (Separated)
Traffic Calmed Existing
Street
New Street (Interconnected
Street Network)
27 Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
OPEN SPACE OPPORTUNITIES - CIVIC DISTRICT
Wildcat Creek Urban Park Opportunity
• In alignment with the San Pablo Avenue Specific Plan, an opportunity for a new urban park between City Hall and Wildcat Creek will provide a nature-focused outdoor gathering space oriented toward the creek within walking distance of the main corridor and employment areas.
Urban Plaza Opportunity
• A new urban plaza in the Civic District will be an opportunity for a public outdoor living room in the Pedestrian Priority Zone outlined in the San Pablo Avenue Specific Plan. Active frontages on the new plaza will enliven the district and contribute to a streetscape with places for people. If a new plaza is not feasible, frontage activation along civic buildings should be especially considered in the Civic District to ensure an inviting atmosphere with places for people.
Green Linkages Opportunities
• A series of green linkages will create continuous pedestrian and cyclist friendly circulation networks that make this district convenient to access by active transportation.
School Ground & Sports Field
• There is an opportunity to improve the community access to the Salesian College school grounds by connecting to greenways.
7.3 Assess Opportunities for TOD (continued)
GatewayAve
Willow Rd
Church Ln
Civic District Open Space Opportunities
Legend of Open Space
Opportunities
Schools & Sports Fields
Existing Creek
Active Frontage Towards
Open Space
Green Linkages
Urban Plaza
Creek Enhancement
Urban Park
Creekside Natural Park
and Restoration
Creek Daylighting
28 Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
DEVELOPMENT OPPORTUNITIES - CIVIC DISTRICT
Frontage Improvement Opportunities
• In areas where redevelopment is unlikely, use the opportunity to provide frontage improvements to activate San Pablo Avenue.
This is particularly key in areas with public uses such as the San Pablo Library, the entrance to the City Hall block, and along key busy retail areas.
Medium-Scale Contextual Redevelopment Opportunities
• In underutilized sites nearby the City Hall and Salesian College institutional uses, there is an opportunity to add a mix of mid- density, mixed use developments that support the surrounding civic and employment uses with new residents and workers. • Individual parcels along San Pablo Ave that seek to redevelop over the coming years are opportunities for low and medium density contextual development, and will help to complete the urban fabric on the corridor.
Soft Single-Family Neighborhood Densification Opportunities • The residential neighborhood in the north of the Civic District has an opportunity to introduce new forms of housing and gentle mix of sensitive uses near transit and services along San Pablo Avenue. As this neighborhood evolves over time, more diverse housing types and architectural styles may be introduced to serve the needs of the population as it grows and changes. • The mobile home block at Church Lane and Willow Road has the opportunity to redevelop as a single family neighborhood with gentle density components, or even potentially a mid-density contextual redevelopment.
Civic District Development Opportunities
GatewayAve
Willow Rd
Church Ln
7.3 Assess Opportunities for TOD (continued)
Legend of Development
Opportunities
Focus Area
“Soft” Single Family
Neighborhood
Redensification
Acquisition for Greenway
Façade Realignment/
Frontage Densification
Lower-Density Infill
Mid-Density Contextual
Redevelopment
29 Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
8. Regional Commercial District
8.1 TOD Components
Regional Commercial District TOD Components
The Regional Commercial
District is the large, big-box
shopping district oriented
toward motorists. It is a
destination and attraction for
local residents and people
from around the region for
retail and service needs. It is
closest to Interstate 80, and
acts as the gateway for the
entire San Pablo TOD core.
Per city policy, the Regional
Commercial District will be
the site of the future “Towne
Center” and is envisioned to
become a pedestrian-friendly
retail and entertainment
district.
TOD COMPONENT 23rd STREET DISTRICT EXISTING CONDITION
District
Gateway
The gateway at San Pablo Dam Road connects the city to I-80, and functions as a highly visible gateway into the Regional Commercial District. The gateway at San Pablo Avenue and Kirk Lane is the southernmost gateway, and the interface between the TOD Priority Areas and the rest of the city. The gateway at San Pablo Ave and Vale Road connects the Civic and Regional Commercial Districts.
Corridor
The main corridor is the continuation of the San Pablo Ave corridor. Additionally, San Pablo Dam Avenue is an important corridor that connects to I-80.
Activity
Nodes
The activities in the Regional Commercial District are shopping and entertainment at the San Pablo Lytton Casino. The main activities are located between San Pablo Avenue and San Pablo Dam Road. The casino is set back from the road with a wide entryway, so the activity that does occur there does not activate the public urban realm.
Community
Heart
There is a general lack of non-commercial community spaces and gathering places in the Regional Commercial District. This provides a significant opportunity to define the heart in the TOD Master Plan.
Neighborhood
Connections
There are no neighborhood connections in this area, rather a series of parking lots and car-oriented private driveways connecting big-box stores between San Pablo Avenue and I-80.
30 Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
8.2 Capacity and Conditions to Implement TOD
Development Potential
The Regional Commercial District has the greatest capacity for comprehensive redevelopment within the TOD Priority Areas, which is supported by its Towne Center designation in the San Pablo Avenue Specific Plan. Large, inefficient, car-oriented malls with wide setbacks and surface parking create an urban condition that is challenging to navigate for pedestrians, cyclists, and transit users.
There is significant room to re-establish an urban character that is vibrant, dense, and walkable and that connects destinations for people using all modes of travel. There are also undeveloped and vacant lots within the Regional Commercial District, which may contribute to the new neighborhood character to be developed.
It is noted that a large portion of the Regional Commercial District is located on Tribal Trust and Tribal Fee lands. The city has no jurisdiction in these lands. The capacity of the surrounding lands is considered, and the interface with tribal lands will be designed on a site-by-site, contextually appropriate basis.
Existing Policy Direction
The San Pablo Avenue Specific Plan (SP-2) includes a portion of the Regional Commercial District. Policy direction for this area that support the TOD Master Plan include:
• Open Space
» San Pablo is designated as a “Signature Landscape & Streetscape Improvement” corridor throughout the Regional Commercial District.
» Pedestrian/Public Realm Focus: San Pablo Avenue South. • Development
» The Regional Commercial District encompasses the “Towne Center” area identified in the SP-2. » This site is designated for a redesign including a gateway to San Pablo, new street grid, and destination Entertainment District with character design and retail activated public realm spaces. Large block retail is expected with minimal setbacks, integrated outdoor public realm including plazas, and a wrapped parking structure. » The Regional Commercial District also encompasses the “South San Pablo Avenue” area. » The Regional Commercial District is the only Priority Area that focuses on Regional Commercial land uses, with shopping, nightlife, and entertainment attractions rather than neighborhood-serving retail and services. » The Regional Commercial District encompasses two “Focus Areas” per the SP-2. » An “Activity Center” is designated near the San Pablo Lytton Casino. 0 500 1000
FEET
2505 acres
1 acre
Figure 2.3-1
Specific Plan
Land Use Diagram
Low Density Residential
Medium Density Residential
High Density Residential
Mixed Use Center North
Mixed Use Center South
Mixed Use City Hall Center
Commercial Mixed Use
Residential Mixed Use
Neighborhood Commercial
Regional Commercial
Entertainment Overlay District
Public/Institutional
Parks/Recreation
Potential Parks
Activity Center
City Hall*
Trail/Open Space Connection
Creek (dashed where underground)
San Pablo City Limits
San Pablo Avenue Specific Plan Area
SOURCE: City of San Pablo, 2010; Dyett & Bhatia, 2010.
* Future site plan for historic identity purposes
W
ildc
a t C reek
R h e e m C r eek
Sa n P a b l o C r eekDavis
Park
Wanlass
Park
College
Center
Shops
BROADWAY
AVE
RUMRILL
BLVD
BROOKSIDE
DR
ROAD 20
SAN PABLO AVE
23RD
ST
MARKET
AVE
SAN PABLO AVE
SAN PABLO DAM RD
SAN PABLO AVE
CHURCH
LN
St. Joseph
Cemetery
80 EL PORTAL DR
ELPORTAL DR
VALE
RD
0 500 1000
FEET
2505 acres
1 acre
Figure 2.3-1
Specific Plan
Land Use Diagram
Low Density Residential
Medium Density Residential
High Density Residential
Mixed Use Center North
Mixed Use Center South
Mixed Use City Hall Center
Commercial Mixed Use
Residential Mixed Use
Neighborhood Commercial
Regional Commercial
Entertainment Overlay District
Public/Institutional
Parks/Recreation
Potential Parks
Activity Center
City Hall*
Trail/Open Space Connection
Creek (dashed where underground)
San Pablo City Limits
San Pablo Avenue Specific Plan Area
SOURCE: City of San Pablo, 2010; Dyett & Bhatia, 2010.
* Future site plan for historic identity purposes
W
ildc
a t C reek
R h e e m C r eek
Sa n P a b l o C r eekDavis
Park
Wanlass
Park
College
Center
Shops
BROADWAY
AVE
RUMRILL
BLVD
BROOKSIDE
DR
ROAD 20
SAN PABLO AVE
23RD
ST
MARKET
AVE
SAN PABLO AVE
SAN PABLO DAM RD
SAN PABLO AVE
CHURCH
LN
St. Joseph
Cemetery
80 EL PORTAL DR
ELPORTAL DR
VALE
RD
San Pablo Avenue Specific Plan Figure 2.3-1 Land Use Diagram Regional Commercial District Focus
0 500 1000
FEET
2505 acres
1 acre
Figure 2.3-1
Specific Plan
Land Use Diagram
Low Density Residential
Medium Density Residential
High Density Residential
Mixed Use Center North
Mixed Use Center South
Mixed Use City Hall Center
Commercial Mixed Use
Residential Mixed Use
Neighborhood Commercial
Regional Commercial
Entertainment Overlay District
Public/Institutional
Parks/Recreation
Potential Parks
Activity Center
City Hall*
Trail/Open Space Connection
Creek (dashed where underground)
San Pablo City Limits
San Pablo Avenue Specific Plan Area
SOURCE: City of San Pablo, 2010; Dyett & Bhatia, 2010.
* Future site plan for historic identity purposes
W
ildc
a t C reek
R h e e m C r eek
Sa n P a b l o C r eekDavis
Park
Wanlass
Park
College
Center
Shops
BROADWAY
AVE
RUMRILL
BLVD
BROOKSIDE
DR
ROAD 20
SAN PABLO AVE
23RD
ST
MARKET
AVE
SAN PABLO AVE
SAN PABLO DAM RD
SAN PABLO AVE
CHURCH
LN
St. Joseph
Cemetery
80 EL PORTAL DR
ELPORTAL DR
VALE
RD
0 500 1000
FEET
2505 acres
1 acre
Figure 2.3-1
Specific Plan
Land Use Diagram
Low Density Residential
Medium Density Residential
High Density Residential
Mixed Use Center North
Mixed Use Center South
Mixed Use City Hall Center
Commercial Mixed Use
Residential Mixed Use
Neighborhood Commercial
Regional Commercial
Entertainment Overlay District
Public/Institutional
Parks/Recreation
Potential Parks
Activity Center
City Hall*
Trail/Open Space Connection
Creek (dashed where underground)
San Pablo City Limits
San Pablo Avenue Specific Plan Area
SOURCE: City of San Pablo, 2010; Dyett & Bhatia, 2010.
* Future site plan for historic identity purposes
W
ildc
a t C reek
R h e e m C r eek
Sa n P a b l o C r eekDavis
Park
Wanlass
Park
College
Center
Shops
BROADWAY
AVE
RUMRILL
BLVD
BROOKSIDE
DR
ROAD 20
SAN PABLO AVE
23RD
ST
MARKET
AVE
SAN PABLO AVE
SAN PABLO DAM RD
SAN PABLO AVE
CHURCH
LN
St. Joseph
Cemetery
80 EL PORTAL DR
ELPORTAL DR
VALE
RD
0 500 1000
FEET
2505 acres
1 acre
Figure 2.3-1
Specific Plan
Land Use Diagram
Low Density Residential
Medium Density Residential
High Density Residential
Mixed Use Center North
Mixed Use Center South
Mixed Use City Hall Center
Commercial Mixed Use
Residential Mixed Use
Neighborhood Commercial
Regional Commercial
Entertainment Overlay District
Public/Institutional
Parks/Recreation
Potential Parks
Activity Center
City Hall*
Trail/Open Space Connection
Creek (dashed where underground)
San Pablo City Limits
San Pablo Avenue Specific Plan Area
SOURCE: City of San Pablo, 2010; Dyett & Bhatia, 2010.
* Future site plan for historic identity purposes
W
ildc
a t C reek
R h e e m C r eek
Sa n P a b l o C r eekDavis
Park
Wanlass
Park
College
Center
Shops
BROADWAY
AVE
RUMRILL
BLVD
BROOKSIDE
DR
ROAD 20
SAN PABLO AVE
23RD
ST
MARKET
AVE
SAN PABLO AVE
SAN PABLO DAM RD
SAN PABLO AVE
CHURCH
LN
St. Joseph
Cemetery
80 EL PORTAL DR
ELPORTAL DR
VALE
RD
0 500 1000
FEET
2505 acres
1 acre
Figure 2.3-1
Specific Plan
Land Use Diagram
Low Density Residential
Medium Density Residential
High Density Residential
Mixed Use Center North
Mixed Use Center South
Mixed Use City Hall Center
Commercial Mixed Use
Residential Mixed Use
Neighborhood Commercial
Regional Commercial
Entertainment Overlay District
Public/Institutional
Parks/Recreation
Potential Parks
Activity Center
City Hall*
Trail/Open Space Connection
Creek (dashed where underground)
San Pablo City Limits
San Pablo Avenue Specific Plan Area
SOURCE: City of San Pablo, 2010; Dyett & Bhatia, 2010.
* Future site plan for historic identity purposes
W
ildc
a t C reek
R h e e m C r eek
Sa n P a b l o C r eekDavis
Park
Wanlass
Park
College
Center
Shops
BROADWAY
AVE
RUMRILL
BLVD
BROOKSIDE
DR
ROAD 20
SAN PABLO AVE
23RD
ST
MARKET
AVE
SAN PABLO AVE
SAN PABLO DAM RD
SAN PABLO AVE
CHURCH
LN
St. Joseph
Cemetery
80 EL PORTAL DR
ELPORTAL DR
VALE
RD
San Pablo Avenue Specific Plan Figure 3-4
Pedestrian Walkability and Major Destinations
Civic District Focus
Wi l dc a t Cr e e k
R h e e m C r eek
Sa n P a b l o C reek
Con t r a
Cost a
College
Wanlass
Par k
Potential
Transit
Hub
Cit y
Hall
Lytton
Casin o
Doctors
Medical
Center
Pedestrian
Bridge
San
Pablo
Library
Helms
Middle School
Senior
Adult
Center
El Por t al
Soccer
Field
Davis
Par k Kennedy
Plaza
Wildcat
Creek
Trail
Dover
Elementary
School
Bayview
Elementary
School
Brentz
Lane
Par k
To
Hilltop
Mall
0 500 1000
FEET
2505 acres
1 acre
Figure 3-4:
Pedestrian Walkability
and Major Destinations
Bicycle Lane Access to
San P ablo Avenue*
Transit Route
Pedestrian Priority Zone
Activity C enter
High Density Residential/
Residential Mixed Use/
Mixed Use Center
Existing Park
Pot en t ial Par k
School
San Pablo City Limits
San Pablo Avenue Specific Plan Area
* Bicycle lanes are proposed or existing
along the full length of San P ablo Avenue
SOURCE: Dyett & Bhatia, 2010.
BROADW AY AVE
RUMRI LL BLVD
BROOKSI DE DR
ROAD 2 0
SAN PABLO AVE
2 3 RD ST
MARKET AVE
SAN PABLO AVE
SAN PABLO DAM RD
SAN
PABLO AVE
CHURCH LN
80 EL PORTAL DR
EL PORTAL D R
3-10
Figure 3-4: Pedestrian Walkability
and Major Destinations
Wi l dc a t Cr e e k
R h e e m C r eek
Sa n P a b l o C reek
Con t r a
Cost a
College
Wanlass
Par k
Potential
Transit
Hub
Cit y
Hall
Lytton
Casin o
Doctors
Medical
Center
Pedestrian
Bridge
San
Pablo
Library
Helms
Middle School
Senior
Adult
Center
El Por t al
Soccer
Field
Davis
Par k Kennedy
Plaza
Wildcat
Creek
Trail
Dover
Elementary
School
Bayview
Elementary
School
Brentz
Lane
Par k
To
Hilltop
Mall
0 500 1000
FEET
2505 acres
1 acre
Figure 3-4:
Pedestrian Walkability
and Major Destinations
Bicycle Lane Access to
San P ablo Avenue*
Transit Route
Pedestrian Priority Zone
Activity C enter
High Density Residential/
Residential Mixed Use/
Mixed Use Center
Existing Park
Pot en t ial Par k
School
San Pablo City Limits
San Pablo Avenue Specific Plan Area
* Bicycle lanes are proposed or existing
along the full length of San P ablo Avenue
SOURCE: Dyett & Bhatia, 2010.
BROADW AY AVE
RUMRI LL BLVD
BROOKSI DE DR
ROAD 2 0
SAN PABLO AVE
2 3 RD ST
MARKET AVE
SAN PABLO AVE
SAN PABLO DAM RD
SAN
PABLO AVE
CHURCH LN
80 EL PORTAL DR
EL PORTAL D R
3-10
Figure 3-4: Pedestrian Walkability
and Major Destinations
31 Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
8.3 Assess Opportunities for TOD
TRANSIT OPPORTUNITIES - REGIONAL COMMERCIAL DISTRICT
Streetscape Improvement Opportunities
• San Pablo Avenue and San Pablo Dam Road have opportunities to improve the experience for pedestrians by revitalizing the streetscape, particularly as redevelopment brings new frontages, destinations, and land uses to the district. • Opportunity to improve safety and comfort at crossings and transit stops, particularly by adding a series of enhanced pedestrian crossing near the mixed use commercial and entertainment activities expected to experience higher volumes of pedestrian movement.
Interconnecting Blocks Opportunities
• When new uses, including residential or employment, are introduced in the Regional Commercial District, a finer grain block pattern should be established to provide pathways for people moving between destinations and major roads. • Designated pedestrian and cyclist lanes should be introduced between San Pablo Dam Road and San Pablo Avenue.
Transit Amenity Improvement Opportunities
• Enhanced transit stops with seating, shade, and amenities to improve the transit experience should be located around the shopping and entertainment district—one at the north end and one at the south end. • A micromobility hub on the north end of the San Pablo Avenue corridor at the start of the Towne Center is an opportunity to improve the arrival and exit experience of people arriving by transit.
Wildcat Creek Greenway Opportunity
• Opportunity to create a linear east-west connection along Wildcat Creek, providing access to nature and a continuous pedestrian walkway that connects retail and entertainment uses to the adjacent Civic District. This is strengthened by the planned bike route along Wildcat Creek outlined in the General Plan.
Pedestrian and Bike Path Connection Opportunities
• Linkages between significant pedestrian and bike routes (San Pablo Avenue, Wildcat Creek greenway) and neighborhood street networks are an opportunity to provide a safe, connected circulation network that links destinations to where people live. 23rd DISTRICT
CENTRAL DISTRICT
CIVIC DISTRICT
MH
MH
MH
Church Ln
tS dr32
San Pablo
Avenue
El Portal Dr
Rd 20
Brookside Dr
Market
Ave
San Pablo Dam Road
MICROMOBILITY HUB FACILITY /
CENTRO DE MICROMOVILIDAD
ENHANCED TRANSIT STOP /
PARADA DE TRANSPORTE MEJORADA
NEW BRIDGE OVER CREEK /
PUENTE NUEVO SOBRE ARROYO
ENHANCED PEDESTRIAN CROSSING /
PASO DE PEATONES MEJORADO
“GREAT STREET” STREESCAPE
IMPROVEMENT /
MEJORA DE PAISAJE CALLEJERO
“CALLES EXCELENTES”
NEW PEDESTRIAN & BICYCLE PATH
(SEPARATED) /
NUEVO CARRIL PEATONAL Y PARA
BICICLETA (SEPARADOS)
TRAFFIC CALMED EXISTING STREET /
CALLE EXISTENTE CON TRÁFICO
CALMADO
ENHANCED NEW INTERSECTION /
NUEVA INTERSECCIÓN MEJORADA
MH
NEW STREET (INTERCONNECTED
STREET NETWORK) /
CALLE NUEVA (RED DE CALLES
INTERCONECTADAS)
TRANSIT
TRANSPORTE
Legend
Leyenda
EXCHANGE DISTRICT
MH
San Pablo
Avenue
San Pablo Ave
Vale Rd
San Pablo Dam Rd
Kirk Ln
Tribal
Lands
CENTRAL DISTRICT
CIVIC DISTRICT
EXCHANGE DISTRICT
MH
MH
MH
Church Ln
tS dr32
San Pablo
Avenue
El Portal Dr
Rd 20
Brookside Dr
Market
Ave
San Pablo Dam Road
MICROMOBILITY HUB FACILITY /
CENTRO DE MICROMOVILIDAD
ENHANCED TRANSIT STOP /
PARADA DE TRANSPORTE MEJORADA
NEW BRIDGE OVER CREEK /
PUENTE NUEVO SOBRE ARROYO
ENHANCED PEDESTRIAN CROSSING /
PASO DE PEATONES MEJORADO
“GREAT STREET” STREESCAPE
IMPROVEMENT /
MEJORA DE PAISAJE CALLEJERO
“CALLES EXCELENTES”
NEW PEDESTRIAN & BICYCLE PATH
(SEPARATED) /
NUEVO CARRIL PEATONAL Y PARA
BICICLETA (SEPARADOS)
TRAFFIC CALMED EXISTING STREET /
CALLE EXISTENTE CON TRÁFICO
CALMADO
ENHANCED NEW INTERSECTION /
NUEVA INTERSECCIÓN MEJORADA
MH
NEW STREET (INTERCONNECTED
STREET NETWORK) /
CALLE NUEVA (RED DE CALLES
INTERCONECTADAS)
TRANSIT
TRANSPORTE
Legend
Leyenda
23rd DISTRICT
MH
tS dr32
Brookside Dr
Market
Ave
Market
Dover Ave
University
Ave
Church Ln
23rd Street
Van Ness St
Mason St
Wildcat Creek
CENTRAL DISTRICT
CIVIC DISTRICT
EXCHANGE DISTRICT
MH
MH
MH
Church Ln
tS dr32
San Pablo
Avenue
El Portal Dr
Rd 20
Brookside Dr
Market
Ave
San Pablo Dam Road
MICROMOBILITY HUB FACILITY /
CENTRO DE MICROMOVILIDAD
ENHANCED TRANSIT STOP /
PARADA DE TRANSPORTE MEJORADA
NEW BRIDGE OVER CREEK /
PUENTE NUEVO SOBRE ARROYO
ENHANCED PEDESTRIAN CROSSING /
PASO DE PEATONES MEJORADO
“GREAT STREET” STREESCAPE
IMPROVEMENT /
MEJORA DE PAISAJE CALLEJERO
“CALLES EXCELENTES”
NEW PEDESTRIAN & BICYCLE PATH
(SEPARATED) /
NUEVO CARRIL PEATONAL Y PARA
BICICLETA (SEPARADOS)
TRAFFIC CALMED EXISTING STREET /
CALLE EXISTENTE CON TRÁFICO
CALMADO
ENHANCED NEW INTERSECTION /
NUEVA INTERSECCIÓN MEJORADA
MH
NEW STREET (INTERCONNECTED
STREET NETWORK) /
CALLE NUEVA (RED DE CALLES
INTERCONECTADAS)
TRANSIT
TRANSPORTE
Legend
Leyenda
23rd DISTRICT
MH
tS dr32
Brookside Dr
Market
Ave
Market
Dover Ave
University
Ave
Church Ln
23rd Street
Van Ness St
Mason St
Wildcat Creek
Regional Commercial District Transit Opportunities
Legend of Transit
Opportunities
Enhanced New Intersection
Micromobility Hub Facility
Enhanced Transit Stop
New Bridge Over Creek
Enhanced Pedestrian
Crossing
“Great Street”
Streetscape Improvement
New Pedestrian & Bicycle
Path (Separated)
Traffic Calmed Existing
Street
New Street
(Interconnected Street
Network)
32 Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
32 OPEN SPACE OPPORTUNITIES - REGIONAL COMMERCIAL DISTRICT
New Park Opportunities
• There are currently no public parks or open spaces within the Regional Commercial District. By introducing new urban parks with activated edges at the center of potential new development sites and adjacent to greenways, the open space component of TOD will be supported and facilitated for developers by the city, and attract new users.
Creek Daylighting Opportunity
• A significant ecological restoration project at Wildcat Creek at the Fallas Paredes big box mall site will provide a large open space and contribute to the reconnection of the Wildcat Creek linear pathway.
Urban Plaza Opportunity
• A new large urban plaza at the center of the Regional Commercial District and at the intersection of San Pablo Dam Road and San Pablo Avenue will provide a central gathering space and anchor the pedestrian realm.
Green Linkages
• As the street network is broken down into blocks, prioritizing green linkages with treed pathways and cycling lanes will ensure long term resiliency and promote a vibrant Towne Center.
SCHOOLS & SPORTS FIELDS /
ESCUELAS Y CAMPOS DEPORTIVOS
EXISTING CREEK /
ARROYO EXISTENTE
ACTIVE FRONTAGE TOWARDS OPEN
SPACE /
FRONTAL ACTIVO HACIA EL ESPACIO
ABIERTO
GREEN LINKAGES /
VÍNCULOS VERDES
URBAN PLAZA /
PLAZA URBANA
STREETSCAPE CREEK ENHANCEMENT
MEJORA DE PAISAJE CALLEJERO
HACIA EL ARROYO
URBAN PARK /
PARQUE URBANO
CREEK DAYLIGHTING /
DRENAJE NATURAL DEL ARROYO
CREEKSIDE NATURAL PARK AND
RESTORATION /
PARQUE NATURAL AL LADO DEL
ARROYO Y RESTAURACIÓN
23rd St
San Pablo Avenue
San Pablo Dam Road
Church Ln
El Portal Dr
Rd 20
Brookside Dr
Market Ave
OPEN SPACE
ESPACIO ABIERTO
Legend
Leyenda
Wildcat Creek
Tribal
Lands
San Pablo Ave
San Pablo Dam Rd
8.3 Assess Opportunities for TOD (continued)
Regional Commercial District Open Space Opportunities
Legend of Open Space
Opportunities
Schools & Sports Fields
Existing Creek
Active Frontage Towards
Open Space
Green Linkages
Urban Plaza
Streetscape Creek
Enhancement
Urban Park
Creekside Natural Park
and Restoration
Creek Daylighting
33 Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
DEVELOPMENT OPPORTUNITIES - REGIONAL COMMERCIAL DISTRICT
Large-Scale Comprehensive Development
• The Regional Commercial District offers the largest scale of comprehensive development of any of the TOD Priority Areas.
Large lots with single uses and extensive surface parking lots provide opportunities for master plan level planning exercises. • The extensive frontage along San Pablo Dam Road and San Pablo Avenue in the large scale comprehensive redevelopment sites provides an opportunity to create a cohesive streetscape and welcoming gateway for visitors arriving from I-80.
Church Ln
23rd St
San Pablo Avenue
“SOFT” DETACHED RESIDENTIAL
NEIGHBORHOOD REDENSIFICATION /
REDENSIFICACIÓN “SUAVE” DEL
VECINDARIO
DEVELOPMENT
& HOUSING
DESARROLLO Y VIVIENDAS
ACQUISITION FOR GREENWAY /
ADQUISICIÓN PARA VÍA VERDE
LOWER-DENSITY INFILL /
RELLENO DE BAJA DENSIDAD
MID-DENSITY CONTEXTUAL
REDEVELOPMENT /
URBANIZACIÓN CONTEXTUAL DE
DENSIDAD MEDIA
LARGE-SCALE COMPREHENSIVE
REDEVELOPMENT /
REDESARROLLO INTEGRAL DE GRAN
ESCALA
FACADE REALIGNMENT / FRONTAGE
DENSIFICATION
REALINEACIÓN DE FACHADA / DENSIFI-
CACIÓN DE FRONTALES
BIG STORE REDEVELOPMENT /
RENOVACIÓN DE TIENDAS
GRANDES
TRIBAL TRUST (RESERVATION) LANDS /
TIERRAS DE FIDEICOMISO TRIBALES
(RESERVA)
TRIBAL FEE LANDS /
TIERRAS DE TARIFAS TRIBALES
El Portal Dr
Rd 20
Brookside Dr
Market Ave
San Pablo Dam Road
Legend
Leyenda
FOCUS AREA /
AREA DE ENFOQUE
Ave
Market
Dover Ave
University
Ave
Church Ln
Van Ness St
Mason St
Wildcat Creek
Tribal
Lands
San Pablo Ave
San Pablo Dam Rd
Regional Commercial District Development Opportunities
8.3 Assess Opportunities for TOD (continued)
Legend of Development
Opportunities
Focus Area
“Soft” Single Family
Neighborhood Redensification
Acquisition for Greenway
Façade Realignment/
Frontage Densification
Lower-Density Infill
Mid-Density Contextual
Redevelopment
Large-Scale Comprehensive
Redevelopment
Big Store Redevelopment
Tribal Trust (Reservation)
Lands
Tribal Fee Lands
Sustainable Transit Oriented Development Master Plan | City of San Pablo TOD Vision & Priority Areas | Task 3.1
34 9. Next Steps
The next phase of the San Pablo Sustainable TOD Master Plan will include recommendations for strategic physical and policy interventions in line with existing city plans and directions that will facilitate the TOD Districts.
Physical Interventions
• Built form improvements
• Streetscape upgrades
Policy Interventions
• Affordable housing inclusions
• Development incentives
Implementation Plan
A full Sustainable TOD Master Plan with prioritized actions.
Appendix C -
Streetscape Toolkit
Streetscape
Toolkit
City of San Pablo, CA
Sustainable TOD Master Plan
September 12, 2023
Contents
SECTION 1 - INTRODUCTION
Purpose of this Toolkit 6
Connection to Vision 8
Elements of the Streetscape T oolkit 10
SECTION 2 - STREETSCAPE COMPONENTS
How to Use the Streetscape Components 12
K e y D e fi n i t i o n s 1 3
Built Form 20
Transit Supportive Uses 20
Height and Setbacks 20
Visual Interest 21
Sustainable Design 21
Allocation Of Street Space 22
Frontage Zone 22
Clearway Zone 22
Furnishing/Planting Zone 23
Travelway 24
Median 25
Intersection 26
Streetscaping 27
Street Trees & Planting 27
Public Art 28
Signage & Wayfinding 29
Monuments & Gateways 29
S i t e F u r n i s h i n g s 3 0
Public Open Space 31
Transit Stops & Amenities 32
Utility Coordination 32
Public Realm Mobility 33
Pedestrian Infrastructure 33
Cycling Infrastructure 34
Passenger Pick-Up & Drop-Off 35
Commercial Loading Area 35
On-Street Parking 36
Off-Street Parking 36
Transit Infrastructure 37
SECTION 3 - STREET TYPOLOGIES
Street T ypologies Overview 41
Major Multi-Modal Great Street 42
Main Street 46
Complete Neighborhood Street 50
Separated Pedestrian/Bike Pathway 54
SECTION 4 - PUTTING IT ALL TOGETHER
San Pablo Sustainable TOD Streetscape Toolkit6 |
STREETSCAPE TOOLKIT | TASK 3.2
Section 1
Introduction
• San Pablo General Plan
• 23rd Street Specific Plan
• San Pablo Avenue Specific Plan
• Bicycle and Pedestrian Master Plan
• Master Landscaping Plan
• San Pablo Zoning Code
Purpose of this Toolkit
This toolkit will help designers and decision-makers consider the streetscape as a whole, and to create a sense of place that balances the competing needs of users in a complex, multi-modal environment.
Strategies will need to be flexibly deployed to contend with widely varying conditions throughout the city. The ultimate aim is to improve the user experience by supporting intuitive, safe, clear and comfortable ways to get around in an engaging environment.
Readers should also reference the following documents for additional information and relevant policies:
The purpose of this Streetscape T oolkit is to:
• Serve as a key source of direction for San Pablo when undertaking planning and design efforts aimed at transit-oriented development and improving first and last mile connections to transit.
• Clearly articulate the different street typologies throughout San Pablo for ease of implementation at a future date.
Challenges
There are challenges and considerations associated with improving streetscapes.
• In many situations, especially along higher traveled corridors, right- of-way (ROW) is limited and already overburdened. Providing more robust multi-modal facilities could potentially put strain on existing travel modes. For example, providing protected bike lanes on a heavily used transit access route may affect vehicular throughput and bus operations in some situations.
• Coordination can be a challenge; where many custodians of the public realm exist, competing interests and policies can lead to conflicting priorities or missed opportunities for coordination and co-benefits. • Funding is limited; there are numerous competing demands on public funds throughout the city.
• There is always a range of site-specific physical challenges faced when designing a street. For example, utilities may be costly or unpractical to relocate, adjacent landowners may have competing interests, the right of way may be too narrow to fit the desired amenities.
San Pablo Sustainable TOD Streetscape Toolkit8 |
STREETSCAPE TOOLKIT | TASK 3.2
San Pablo Sustainable TOD Streetscape Toolkit | 9
STREETSCAPE TOOLKIT | TASK 3.2
Connection to
Sustainable TOD Master
Plan Vision
San Pablo has the ideal combination of a rich
history and culture, manageable size, and
access to nearby jobs and resources.
T o build on the established foundation and thrive as a Transit Oriented community, it is necessary for San Pablo to refine and redefine a sense of place. A contextually appropriate Transit-Oriented Development (TOD) plan can address the most complex and challenging mobility concerns while at the same time establishing sustainable and attractive built form that will instill the sense of place with a robust and dynamic civic identity, character, and amenities.
The overall Vision Framework for Sustainable TOD in San Pablo is to create and provide:
• Gateways A place to Enter
• Corridors A place to Go Through
• Activity Nodes A place to Live
• Community Hearts A place to Gather
• Neighborhood Connections A place to Connect
In addition to transit, placemaking, and development,
Sustainable TOD in San Pablo means focusing on bicycle
and pedestrian facilities, housing, and climate resilience. This Streetscape T oolkit brings together and illustrates built form and streetscape interventions appropriate for supporting and encouraging sustainable TOD in San Pablo.
The measures in the Streetscape T oolkit are intended to be implemented first within the four TOD Priority Areas and adjacent three outlying corridors, shown on the map on
the next page. However, these tools are applicable broadly across the city and can be used to apply a TOD lens to any streetscape as needed.
San Pablo Sustainable TOD Streetscape Toolkit10 |
STREETSCAPE TOOLKIT | TASK 3.2
0 N
0.25 0.5
Mi
am Rd
Rd 20
Market Ave
Rd 2
0 Brookside Dr
Rumrill Blvd
Rumr
ill B
lvd
23r
d S
t
San P
ablo A
ve
San Pablo D
CIVIC
DISTRICT
Rumr
ill B
lvd
San P
ablo A
ve
San P
ablo D
am Rd
r
Chuch L
n
PEl ortal Dr0Rd 2
San P
ablo A
ve
23r
d S
t
San P
ablo A
ve
23rd
DISTRICT
Contra CostaCollege
CIVIC
DISTRICT
REGIONAL
COMMERCIAL
DISTRICT
CENTRAL
DISTRICT
SAN P
ABL
O D
AM
ROAD CORRIDOR
RUMRILL CORRIDOR
SAN P
ABL
O A
VE
NOR
TH CORRIDOR
RICHMOND
S a n
Pablo
TO BERKELEY
(20 MIN.)
TO NAPA
(45 MIN.)
ROLLINGWOOD
TOD Priority Areas
Outlying Corridors
San Pablo TOD Priority Areas Map
TOD Priority Areas and Outlying Corridors
San Pablo Sustainable TOD Streetscape Toolkit | 11
STREETSCAPE TOOLKIT | TASK 3.2
Elements of the Streetscape Toolkit
The Streetscape T oolkit is a mix-and-match document that is intended to be applied to specific areas and corridors in a way that respects the existing context and better serve the surrounding community.
This is achieved by providing a set of predetermined Streetscape Components, which are urban interventions and design elements that can be applied as needed to the relevant Street Typology. This ensures that any area of San Pablo can use the Streetscape T oolkit, and if future transit corridors are built or priority areas shift, the city has the tools they need to plan a thoughtful, responsive, and context-specific TOD streetscape or station area with a high-quality environment.
Streetscape Components Street Typologies+
Streetscape Components are detailed in
Section 2 of the Streetscape T oolkit.
They are organized into four categories:
Street T ypologies are detailed in Section 3
of the Streetscape T oolkit.
In San Pablo, there are generally four types:
Built Form
Allocation of Street
Space
Streetscaping
Public Realm Mobility
Major Multi-Modal Great Street
Main Street
Complete Neighborhood Street
Separated Bike / Pedestrian Pathway
San Pablo Sustainable TOD Streetscape Toolkit12 |
STREETSCAPE TOOLKIT | TASK 3.2
Section 2
Streetscape
Components
How to Use The Streetscape Components
This document defines a series of implementable streetscape-specific design and programmatic interventions, which will work to apply the principles established in the San Pablo Sustainable TOD Vision. It will allow designers and decision-makers to select, combine and apply specific strategies as needed across San Pablo. Not every part of the city or exact street or corridor is illustrated in this document, but a flexible and adaptable ‘kit of parts’ approach shows how the combination of different strategies can be used to achieve site-specific goals, and this document can serve as a guide even as the city grows and changes.
Component - A description and image
representation of the individual pieces of a
streetscape. These are then the components
used in the Street Typology section to create
diagrams of full future potential streetscapes.
Category - Labels each component with one of
the four categories: Built Form, Allocation of Street
Space, Streetscaping, and Public Realm Mobility.
Goals - Describes what the component should
aim to do and who it is intended to serve.
Guidelines - Provides definition and direction for each component. Guidelines presented focus on those aspects
of the design and planning that are particularly supportive of transit-oriented development (TOD) rather than describing the full extent of good design standards or common best practices.
Applicability - Identifies the relevant street typology to which the component is intended to be applied or is compatible with (Major Multimodal Great Street, Main Street, Complete Neighborhood Street, Separated Multi-use Pathway).
Issues Addressed - Shows in which ways the
component responds to critical barriers and/or supports sustainable TOD, Housing, and Resilience ( TOD+H+R).
San Pablo Sustainable TOD Streetscape Toolkit14 |
STREETSCAPE TOOLKIT | TASK 3.2
Key Definitions
Definition of Street – Building Face to Building Face
Streets supportive of TOD ideally have buildings
located at or near the edge of the right-of-way
to frame the street and create a human-scaled,
comfortable environment supportive of walking
and biking. Acknowledging that this is not
always possible or desired, and for the purpose
of providing a definition of the street for these
guidelines, we assert the assumption that the
building face is located at the edge of the right-of-
way and the street is from building face to building
face.
There are of course desirable exceptions to this
assumption that equally support transit-oriented
development, such as open space abutting the
right-of-way. Publicly accessible open space
between buildings and the sidewalk often activates
the street, offering a place for the community to
recreate or gather. These spaces often benefit
the community, provided they are not a barrier to
access.
Streetscape Zones:
The Sidewalk
The area between the building face and the
curb is usually simply referred to as the sidewalk.
However, the sidewalk can be further broken
down into zones to better facilitate activation and
accessibility. For the San Pablo Streetscape T oolkit,
three (3) sidewalk zones have been identified
• The Frontage Zone,
• The Clearway Zone, and
• The Furnishing/Planting Zone.
These zones help illustrate how the pedestrian
space can be made more intuitive and better
support transit-oriented development.
Building Face to Building Face
The Sidewalk
San Pablo Sustainable TOD Streetscape Toolkit | 15
STREETSCAPE TOOLKIT | TASK 3.2
Frontage Zone
Clearway Zone
Furnishing/Planting Zone
Sidewalk Zones
FRONTAGE ZONE
The frontage zone is the area between the building
face and clearway zone. This area includes the
street wall, shopfronts, and entrances. Activation
and high-quality design within the frontage zone are
critical to the success of a street. The built form and complementing streetscape should be attractive,
comfortable, and accessible for pedestrians,
and supportive of the neighborhood character.
This area may feature signage for businesses,
wayfinding, merchandise displays, outdoor café
seating, overhanging awnings, furnishings, or other
streetscape enhancements where space allows to
provide the best experience for pedestrians.
CLE ARWAY ZONE
The clearway zone is the area between the frontage
zone and furnishing/planting zone. It is the pedestrian through-way and must be free of obstructions both
overhead and at the ground plane. The clearway
material is usually concrete or other non-slip material, which provides intuitive wayfinding and barrier-free
accessibility. It is often desirable for the adjacent
zones to be a contrasting material to ensure clear
delineation of this accessible route.
FURNISHING/PLANTING ZONE
The furnishing/planting zone is the area between the
clearway zone and curb zone. A high level of design
is required to respond to a variety of competing uses
and activities in this zone.
Depending on the width of the street, furnishings
including benches and café patio extensions may be
situated in the furnishing/planting zone when it offers more room than a narrow frontage zone. Furnishing
zones provide a safe space for pedestrians to linger
and experience the street life. They can be made to
feel safe and attractive with upgraded paving materials, shade from trees, and a buffer from traffic lanes.
Furnishings alternate with plantings within the same linear space. Planting is provided at regular intervals in this zone for shade, noise absorption, heat island mitigation, and neighborhood aesthetics. A combination of trees and low-level plants are typically either located in in-ground planting beds or in raised planting beds, often designed to double as seating and/or public art that establishes place identity along the street.
San Pablo Sustainable TOD Streetscape Toolkit16 |
STREETSCAPE TOOLKIT | TASK 3.2
Curb Zone/Curb Lane
Travelway
Median
Curb Zone/Curb Lane
The curb zone abuts the travelway, and it may
overlap the furnishing/planting zone. It includes
the area between the curb and travelway, where
curbside activities such as parklets, street parking,
delivery, loading, and passenger drop-off occur.
The width of this zone varies depending on
intended use. Transit stops typically occur between
the clearway and curb. However, on high priority
transit corridors it may be desirable to install a bus
bulb, in which case the transit stop would share the
space between the curb and travelway.
Travelway
The travelway is the area of the street that
accommodates passenger vehicles, transit
vehicles, commercial vehicles, bicycles, scooters,
and any other non-pedestrian modes. This toolkit
will focus on bike lanes, transit lanes, and vehicular
lanes, which includes personal and commercial
vehicle movement.
Median
Medians are often desirable on streets with wide
rights-of-way, as they act to narrow the street to a
more pedestrian-scaled width and potentially offer
a refuge along wide pedestrian crossings. Medians
may also be used to separate direction of vehicular
lanes, or to separate modes of transportation.
Medians vary in width depending on their purpose
but are ideally an adequate width to allow for street
trees to be planted in order to further define the
streetscape. Medians are sometimes categorized
as a part of the travelway in other documents.
San Pablo Sustainable TOD Streetscape Toolkit | 17
STREETSCAPE TOOLKIT | TASK 3.2
Intersections
Intersections are where all modes of travel come
together and paths cross. They require careful
consideration to prioritize intuitive, safe and
convenient movement for all modes. Pedestrian and
cycling crossings, as well as travel lanes, must be
clearly marked and provide intuitive direction in order to facilitate safe movement and smooth circulation
flow. Intersections are naturally confluences; places
where people interact and converge. They are key
points or junctions along people’s journeys through
their community, and provide direct access to
destinations.
Intersections
San Pablo Sustainable TOD Streetscape Toolkit18 |
STREETSCAPE TOOLKIT | TASK 3.2
PAGE LEFT INTENTIONALLY BLANK
San Pablo Sustainable TOD Streetscape Toolkit | 19
STREETSCAPE TOOLKIT | TASK 3.2
Streetscape
Components
The following components directly relate to the
development of sustainable streets supportive
of transit-oriented development. This is not an
exhaustive list of what makes for a great public
realm, and more components may be added on
to this list in the future. The components have
been chosen to respond to San Pablo’s current
challenges, and how to progress towards creating
engaging streetscapes that are safer and better
maintained, more intuitive and efficient, while
supporting transit-oriented development.
The components focus on four categories of
improvements as part of a complete street:
• Built Form
• Allocation of Street Space
• Streetscaping
• Public Realm / Mobility
“A good city is like a good
party – people stay longer
than really necessary because
they are enjoying themselves.”
Jan Gehl, Urban Designer & Author
Goals
• T o promote higher density, mixed-use development
along transportation corridors so they can support
transit use.
• T o incentivize people to use multi-modal transportation and reduce car dependency.
• T o support economic development along transportation corridors.
Guidelines
• Provide mixed-use development near transit that makes more efficient use of the transportation system as it
reduces the number of trips required to reach services
and amenities.
• Develop adequate higher densities to increase transit ridership. Higher densities may also create enough
market demand for retail and other services.
• Encourage infill development in existing low-density
areas to add density while respecting the existing urban fabric.
• Redevelop vacant and underutilized sites, which may
support more employment generating uses that are
accessible by transit and other modes of transportation.
Transit Supportive Uses
Goals
• T o design buildings that support a range of
transportation choices and use land more efficiently.
• T o enhance the public realm, creating a sense of place. • T o achieve growth while maintaining neighborhood
character and creating development that is appropriate
for the context.
Guidelines
• Promote development that maximizes height potential
for structures fronting the street but transition in scale between buildings and established neighborhoods.
• Place buildings and primary entrances to be easily
accessible from the street.
• Orient buildings towards the street to define the street by forming a street wall, which provides a consistent,
vibrant edge to the pedestrian environment.
• Place building entrances close to adjacent bus and rail stops to facilitate wayfinding and access to transit.
• Design buildings with human-scale architectural
elements to mitigate the negative effects of buildings
that may be taller or more massive than their context.
• Considering sun and shade angles, as well as stepped
back building portions to create a friendlier pedestrian environment.
Height and Setbacks
Built Form
Applicable to:
• Multi-modal Great Street
• Main Street
• Neighborhood Street
• Multi-use Pathway
Supports:
TOD+R+H
Applicable to:
• Multi-modal Great Street
• Main Street
• Neighborhood Street
• Multi-use Pathway
Supports:
TOD+R+H
San Pablo Sustainable TOD Streetscape Toolkit22 |
STREETSCAPE TOOLKIT | TASK 3.2
Goals
• T o increase a sense of place and enhance community
character.
• T o encourage pedestrian activity by providing safe,
attractive, and lively streets.
Guidelines
• Allow for a mixture of retail, office and residential uses on the ground floor. Uses should complement
one another and contribute to an active pedestrian
environment.
• Establish design standards that encourage good
quality architectural design that conveys a sense
of place and relates to the street and pedestrian
environment. Some building element examples
include awnings, façade modulation, and human-scale
architectural details.
• Establish ground-floor transparency requirements
along shopping streets. Placing windows and
entrances along building facades can invite and
animate the public realm.
• On residential streets, encourage balconies and
terraces to enhance a building’s relationship to the
public realm, strengthen a sense of place, and provide
visual interest.
Street Level Visual Interest
Applicable to:
• Multi-modal Great Street
• Main Street
• Neighborhood Street
• Multi-use Pathway
Supports:
TOD+R+H
Goals
• T o achieve a better quality of life through a healthy and sustainable environment.
• T o achieve greenhouse gas reduction goals and
targets with energy efficient buildings that minimize the use of resources.
• T o improve water quality in creeks, lakes, and oceans by managing stormwater runoff.
Guidelines
• Encourage energy use reduction through passive
design strategies related to building site, form, and
organization. Examples include optimizing daylight,
natural ventilation, and making effective use of shade
cooling, among other green building techniques.
• Prioritize energy load reduction by utilizing systems that integrate climate and building use. Systems should be sized to meet optimized energy loads.
• Use environmentally sustainable materials that are
either local and/or recycled. Use of innovative materials can increase efficiency and sustainability.
• Employ low-impact development strategies (LID) to
minimize stormwater runoff. Some examples are green
roofs, permeable pavers, and runoff filtration systems.
Sustainable Design
Applicable to:
• Multi-modal Great Street
• Main Street
• Neighborhood Street
• Multi-use Pathway
Supports:
TOD+R+H
Built Form
San Pablo Sustainable TOD Streetscape Toolkit | 23
STREETSCAPE TOOLKIT | TASK 3.2
Allocation of Street Space
Goals
• T o provide an area between the building face and
clearway to allow for activation and keep the clearway
free of obstructions.
• T o create space for ground floor street-facing
businesses to create displays supportive of outdoor
dining, local retail, and other interactive, attractive pedestrian friendly activities.
Guidelines
• Place café seating, planters, or other furnishing
supportive of local business in the frontage zone.
• Allow for overhanging elements such as signage or
awnings that animate the building frontage and provide
wayfinding cues without cluttering the ground.
• Use plantings to dress blank façade walls or support
sustainability goals, provided they do not impede
access either to the building or the clearway.
• The frontage zone should be a minimum of 18”, 24”
preferred. It may be less where the built form is set
back from the right-of-way or there is relatively low foot traffic, as long as it meets minimum ADA accessibility
requirements.
• Promote a walking surface that is made of accessible, high-quality material that enhances the street and is in keeping with the neighborhood character.
Frontage Zone
Goals
• T o encourage more people to walk for recreation or
travel by providing clear, accessible, unobstructed
continuous pathways.
Guidelines
• Construct walking surface from any walkable surface
material compliant with ADA standards.
• Overhanging elements such as awnings, signage,
lighting or tree canopy may occupy this zone as long as there is a clear distance of at least 80” under them and they conform to local zoning.
• Follow ADA standards as a minimum for clearway
width. The clearway width should be increased to at
least 6’ on neighborhood streets and at least 8’ on
streets where commercial activity occurs.
Clearway Zone
Applicable to:
• Multi-modal Great Street
• Main Street
• Neighborhood Street
• Multi-use Pathway
Supports:
TOD+R+H
Applicable to:
• Multi-modal Great Street
• Main Street
• Neighborhood Street
• Multi-use Pathway
Supports:
TOD+R+H
San Pablo Sustainable TOD Streetscape Toolkit24 |
STREETSCAPE TOOLKIT | TASK 3.2
Goals
• T o provide a buffer between the clearway and the curb to encourage opportunities for street activation and
curb activities.
• T o allocate space for furnishings and plantings to
ensure the clearway remains clear for safe pedestrian
movement while supporting sidewalk and curbside
activities. Safe pedestrian spaces and activation
support local businesses and access to transit.
Guidelines
• Consolidate street furnishings and amenities in this
zone. Examples of furnishings include streetlights,
benches, bike racks, trash receptacles, newspaper
boxes, traffic and parking poles, utility equipment, and fire hydrants.
• Provide street trees and low-level plantings suitable to this zone. Trees should be spaced to provide shade and
visual rhythm on the street.
• Ensure sufficient room below tree canopies or
overhead plants. Plantings must not overhang the
clearway unless there is a minimum 80” clear space
between the clearway and the overhanging tree.
Furnishings - Planting Zone
Applicable to:
• Multi-modal Great Street
• Main Street
• Neighborhood Street
• Multi-use Pathway
Supports:
TOD+R+H
• Vary the width of this zone based on the scale and speed of the street. The minimum width should be 4’. Larger
zones allow for significant street improvement, especially at transit stops and in front of commercial businesses. • Alternate furnishing zones and planting zones along the corridor to both provide rhythmic spacing of the trees as well as provide opportunity for outdoor seating areas,
passenger unloading areas, and bike/scooter parking.
• Provide a minimum 3’ walkable path that connects the curb to the clearway at roughly 20’ intervals where the street has a continuous planting zone between the clearway and curb. For example, this might occur on a neighborhood
street walkable path.
Allocation of Street Space
San Pablo Sustainable TOD Streetscape Toolkit | 25
STREETSCAPE TOOLKIT | TASK 3.2
Allocation of Street Space
Goals
• T o maintain or achieve safe traffic operations for the intended vehicles operating within the travelway while
also supporting traffic calming and placemaking
through pedestrian scale streetscaping.
• T o support smooth, efficient transit that residents and visitors can rely on.
• T o provide travelways that support multi-modal
transportation, providing alternatives to single-
occupancy vehicle travel.
Guidelines
• Plan travelway lane widths to be sufficient to allow safe operation of the vehicles for which the travelway is
intended but small enough to support traffic calming
and placemaking. 10’ for standard lanes and 11’ for
transit lanes is typical for urban areas. Additional lane width may be required for turning of larger vehicles and should be considered on a case-by-case basis.
• Separate bike lanes from other vehicular traffic where feasible to attract the highest number of users. Bikes
and buses may share a lane where buses have been
given a priority lane. Bikes may share a lane with vehicles on neighborhood streets. Bike lanes are preferred on
collectors and arterials.
Travelway
Applicable to:
• Multi-modal Great Street
• Main Street
• Neighborhood Street
• Multi-use Pathway
Supports:
TOD+R+H
• Provide clear traffic markings for bicycles and clear delineation at bus stops for bikes and motor vehicles.
• Provide adequate lighting on corridors for the safety of all modes of transportation, both active and vehicular.
San Pablo Sustainable TOD Streetscape Toolkit26 |
STREETSCAPE TOOLKIT | TASK 3.2
Goals
• T o improve the pedestrian experience by reducing the scale of the street and providing pedestrian refuge at
intersections while encouraging traffic calming.
• T o support the local character by providing space
within the right-of-way for greenery, public art,
monuments and/or signage.
Guidelines
• When using trees, provide trees in the median in such a way that allows the tree canopy to connect over
wider roadways, cooling the environment. Medians
may offer an opportunity for additional street trees
or an alternative where street trees are difficult to
accommodate along sidewalks.
• Support a sense of place along the streetscape by
using medians for community branded signage,
banners and pageantry, and/or wayfinding.
• Consider medians as a location for utilities, especially when it may decrease conflicts in the furniture zone
and improve the pedestrian experience.
• Use medians as a way to separate directions of travel or modes of travel such as a cycle track from vehicular traffic or a bus priority lane from standard travel lanes.
Median
Applicable to:
• Multi-modal Great Street
• Main Street
• Neighborhood Street
• Multi-use Pathway
Supports:
TOD+R+H
• Implement medians selectively and based on appropriate studies, as they may encourage faster speeds when used
to separate directions of travel, resulting in decreased pedestrian safety and comfort.
• Medians should be a minimum of 3’ to support low
planting, a minimum of 5’ wide to support trees. Medians are often the width of a travel lane, replacing or breaking up center turn lanes.
Allocation of Street Space
San Pablo Sustainable TOD Streetscape Toolkit | 27
STREETSCAPE TOOLKIT | TASK 3.2
Allocation of Street Space
Goals
• T o create intersections that are safe and intuitive for all modes of transportation.
• T o create a sense of place and make intersections
comfortable for pedestrians.
Guidelines
• Provide high-visibility crossings for pedestrians at
intersections.
• Ensure adequate crossing time and provide pedestrian
refuge for long crossings. Use curb extensions to
shorten crossings where feasible. Avoid the use of
“pork-chop islands,” these are beneficial for vehicles but not for pedestrians.
• Consider mid-block bulb-outs combined with a
pedestrian crossing that may be desirable on main
streets or other high pedestrian urban area. Mid-block
crossings encourage pedestrian activity and slow
traffic, but careful consideration for safety is required when implementing uncontrolled crossings. Traffic
signals or flashing beacons, either overhead or at the
curb, assist with pedestrian visibility.
Intersection
Applicable to:
• Multi-modal Great Street
• Main Street
• Neighborhood Street
• Multi-use Pathway
• Provide clearly delineated cross-rides for cyclists at intersections to provide clarity for pedestrians, riders, and drivers. Providing bike specific infrastructure
including designated crossings, bike boxes, protected
intersections, and bike signals help promote a safe
environment for cyclists.
• Consider transit bulb-outs that may be desired on
high volume transit routes such as San Pablo Avenue.
Transit bulb-outs increase the pedestrian space in the
right-of-way and signal a priority for pedestrians and
transit riders.
• Provide ADA curb ramps at all intersections. Directional curb ramps are preferred.
Supports:
TOD+R+H
San Pablo Sustainable TOD Streetscape Toolkit28 |
STREETSCAPE TOOLKIT | TASK 3.2
Streetscaping
Goals
• T o provide environmental benefits, such as shading/
cooling, stormwater management, and improved air
quality.
• T o enhance the public realm, improve the pedestrian
environment and support a consistent community
character.
• T o create a visual buffer between pedestrian and
vehicular traffic.
Guidelines
• Place trees in the furnishing zone and space them
regularly to delineate streets and contribute to a sense of place.
• Place trees with consideration to both pedestrian and vehicular lighting to maintain safety and comfort within the streetscape.
• Maintain at least 80” vertical clearance between
the path of travel and tree branches and ensure
lower plantings do not block sight lines for drivers at intersections.
• Provide a consistent plant palette to support
neighborhood identity while incorporating diversity for resilience and to support local ecology.
Street Trees & Plantings
Applicable to:
• Multi-modal Great Street
• Main Street
• Neighborhood Street
• Multi-use Pathway
Supports:
TOD+R+H
• Utilize bioswales to treat stormwater runoff and to
reduce stormwater flow velocity. Bioswales work
best in linear areas such as in medians, landscape
buffers, and the furnishing zone in city blocks with
few interruptions. The design of bioswales should
consider soil construction and planting to ensure the
proper water filtration and treatment.
• Use parking lane planters as a solution when there
is a desire to add greenery but there is limited space
within the right-of-way. Parking lane planters are
sidewalk extensions with landscape features located
within the parking lane.
• Space parking lane planters at regular intervals to
break up long expanses of parking. They should not
extend beyond the width of the parking space and
should have at least 25 square feet of soil surface.
• Incorporate a maintenance budget and plan into
all projects to ensure trees and plantings are
maintained.
San Pablo Sustainable TOD Streetscape Toolkit | 29
STREETSCAPE TOOLKIT | TASK 3.2
Goals
• T o activate and enhance the public space and
streetscape with visual interest.
• T o express the unique local character and community
identity of San Pablo.
• T o, as needed, act as a screen or wrap along blank or otherwise undesirable required infrastructure.
Guidelines
• Accent key landmarks and focal points with
high volumes of pedestrian traffic, particularly at
intersections or plazas, with iconic art that reflect the significance of that place.
• Prioritize local artists to support San Pablo’s arts & culture and reinforce the community identity through art. • Utilize large blank walls as canvasses for murals, in coordination with the building’s owner or leaseholder.
• Require public art contribution on-site for new
development within TOD Priority Areas.
• Consider public art a pedestrian amenity, accessible to all people, including those using mobility aids. Ensure it is located along pedestrian paths, with some art
features present in pedestrian-only areas to reward
exploration.
Public Art
Applicable to:
• Multi-modal Great Street
• Main Street
• Neighborhood Street
• Multi-use Pathway
Supports:
TOD+R+H
• Use public art promote a pleasant and attractive
environment for people and businesses, and frame a
positive image of San Pablo.
• Consider a range or public art types from building
materials and murals to tactile sculptural installations, to take advantage of the full range of opportunities
available through any development or civic project..
• Ensure that public art processes and installation
follows the regulations set out in the Art in Public Places Ordinance.
Streetscaping
San Pablo Sustainable TOD Streetscape Toolkit30 |
STREETSCAPE TOOLKIT | TASK 3.2
Goals
• T o provide information and orientation for travelers about directions and destinations for that area.
• T o usher commuters to transit stations and stops, and provide relevant trip information.
Guidelines
• Ensure that wayfinding and informational elements
include directional signage, orientation maps, markers, and embedded environmental cues.
• Place signage and wayfinding information at predictable regular intervals, decision points, and transit stops in easy to find, accessible locations.
• Provide maps with situational markers (“You Are Here”), key destinations, place names, and circulation network, with direction and distances in easily understandable
units such as approximate walking times.
• Wayfinding elements should be easy to spot from a
distance, even if the detailed information on them must be read and understood up close.
• T o promote accessibility and understanding, wayfinding should utilize multiple methods of communication
including visual maps and diagrams, text in large font, and where possible, illuminated or aural technology to
provide visual aids or substitutes.
Signage - Wayfinding
Applicable to:
• Multi-modal Great Street
• Main Street
• Neighborhood Street
• Multi-use Pathway
Supports:
TOD+R+H
Applicable to:
• Multi-modal Great Street
• Main Street
• Neighborhood Street
• Multi-use Pathway
Supports:
TOD+R+H
Goals
• T o define the edges of and entry points to distinct places and neighborhoods within San Pablo.
• T o welcome visitors and guests to San Pablo.
• T o establish a vision and image of the specific district.
Guidelines
• Gateways may be represented by literal gateway
features such as arches or ornamental gates, or may be
figurative landscape features such as art or a plaza.
• Gateways should emphasize transitions between land
uses or building typologies, such as a change from a
commercial street to a residential street.
• Gateway scale should reflect the surrounding built form or landscape features, and be obvious and noticeable
to people passing by via motor vehicle, transit, or
pedestrians.
Monuments & Gateways
Streetscaping
San Pablo Sustainable TOD Streetscape Toolkit | 31
STREETSCAPE TOOLKIT | TASK 3.2
Goals
• T o improve pedestrian comfort, enjoyment, and
accessibility.
• T o encourage pedestrians to stay and linger in the public realm.
• T o reinforce the character and identity of the district or streetscape.
Guidelines
• Include street furnishings such as benches and seating, bike racks, community kiosks, news stands, public
restrooms, and waste receptacles.
• Cluster street furnishings and pedestrian amenities near transit stops.
• Locate street furnishings in weather-protected areas
such as under awnings, shade structures, or tree
canopies that provide shade and cooling.
• The street furnishing zone width will vary. Consider
available width when determining the type of furnishing to provide. Wider widths, greater than 5’ are suitable for outdoor patios, where narrower widths are suitable for
benches, trash receptacles, bike racks and other similar furnishings.
Site Furnishings
Applicable to:
• Multi-modal Great Street
• Main Street
• Neighborhood Street
• Multi-use Pathway
Supports:
TOD+R+H
• Buffer furnishings from the travelway lanes by a
setback, plantings or other physical barrier.
• Ensure all site furnishings are accessible per ADA
guidelines and regulations.
• Choose site furnishings for quality, durability,
sustainable materials, and enhancement of street
character and beautification.
• Use street furnishings as an opportunity for design
expressions, playful pops of color, or integration of
functional public art.
Streetscaping
San Pablo Sustainable TOD Streetscape Toolkit32 |
STREETSCAPE TOOLKIT | TASK 3.2
Goals
• Enhance and connect existing open spaces.
• Provide publicly accessible open spaces on private
property.
• Provide plazas and open spaces that enhance the public realm and provide a space for community gathering.
Guidelines
• Connect parks, plazas, and other public spaces to
pedestrian networks, shared paths, and other open
spaces physically or visually to form a local and regional green space network.
• Make pocket parks and other small public spaces that
occur between buildings visible and accessible from the street.
• Locate public open spaces close to pedestrian
pathways and encourage people to linger by providing
places to sit, relax, and interact with others.
• Provide a variety of amenities such as benches, low
walls, trees, bike racks, landscaping and surfaces of
different materials and textures.
Public Open Space
Applicable to:
• Multi-modal Great Street
• Main Street
• Neighborhood Street
• Multi-use Pathway
Supports:
TOD+R+H
• Provide linear parks to connect natural features and to serve as corridors for active transportation. Linear open spaces may include excess land adjacent to transit and
roadway rights-of-way, under elevated structures, and/
or natural geographic features, such as space around
streams and rivers.
• Consider the local climate when designing open spaces.
During the winter, provide access to sunlight and minimize wind exposure. During the summer, provide access to
summer breezes and provide protection from the sun.
Streetscaping
San Pablo Sustainable TOD Streetscape Toolkit | 33
STREETSCAPE TOOLKIT | TASK 3.2
Goals
• T o enrich transit users’ waiting experience.
• T o provide safe and accessible transit stops for people of all abilities.
• T o enhance transit use by providing signage,
wayfinding, and branding.
Guidelines
• Provide waiting area amenities, such as shelters,
seating, waste receptacles, lighting, and public art
where feasible.
• Provide universally designed waiting areas that include an accessible path of travel and proper ADA clearances.
Seating choices with backs and arms should be
considered for seniors or people with physical
disabilities.
• Introduce bus bulb-outs or transit boarding islands at locations where there is not enough space available to
accommodate a transit stop within the sidewalk. Bulb-
outs should be placed at locations where they will not
hinder traffic. Bus bulb-outs facilitate traffic flow and increase passenger safety.
• Provide advanced traveler information systems (A TIS) to provide real-time transit signage to allow riders to use the system more efficiently.
Transit Stops & Amenities
Applicable to:
• Multi-modal Great Street
• Main Street
• Neighborhood Street
• Multi-use Pathway
Supports:
TOD+R+H
Streetscaping
Goals
• T o embed essential infrastructure and utilities
seamlessly into the streetscape.
• T o reduce conflicts between utility maintenance and
street users.
Guidelines
• Integrate at-grade utility boxes into the furnishing zone or frontage zone, consolidated together and away from
the clearway zone.
• Wrap utility boxes with decorative art to playfully
integrate the infrastructure. All safety warnings and
labels should be prioritized over wrap finishes.
• Consolidate traffic signals and controller cabinets with street furniture or utility poles, as is most convenient for operations and maintenance.
• Consolidate street lighting within the furnishing/curb zone. Placement and design of lighting should be
considered to contribute to the character of the street. • Consolidate or align street light poles with
telecommunications, power, and other utility poles
where possible to minimize clutter.
• Consolidate and organize power poles within the curb
zone for easy maintenance and operation access.
Utility Coordination
Applicable to:
• Multi-modal Great Street
• Main Street
• Neighborhood Street
• Multi-use Pathway
Supports:
TOD+R+H
San Pablo Sustainable TOD Streetscape Toolkit34 |
STREETSCAPE TOOLKIT | TASK 3.2
Goals
• T o provide a continuous, fine-grained pedestrian
network that maximizes pedestrian connections
through a system of sidewalks, walkways, paseos, and
street crossings.
• T o enhance pedestrian safety and comfort by providing amenities and protection from vehicular traffic.
• T o design pedestrian infrastructure for people of
varying speeds, ages and abilities.
Guidelines
• Provide continuous sidewalks along all streets to
increase reliability in the pedestrian network. Sidewalks must be ADA compliant and should eliminate pedestrian
barriers such as poles, sidewalk gaps, fire hydrants, etc. • Support a comfortable pedestrian environment with
wide pedestrian sidewalks, pedestrian-scale lighting,
shade, planters, and benches.
• Divide long blocks by creating paseos or interior streets.
Walkable blocks are usually no more than 400 feet in
length.
• Design mid-block connections with special paving,
pedestrian-oriented lighting, furnishings, shade, and
landscaping, so they are inviting to pedestrians of
varying ages and abilities.
Pedestrian Infrastructure
Applicable to:
• Multi-modal Great Street
• Main Street
• Neighborhood Street
• Multi-use Pathway
Supports:
TOD+R+H
• Provide convenient and safe pedestrian crossings by
enhancing their visual presence. Strategies that increase visibility include painting high-visibility crosswalk
markings, using special paving materials, providing
advance warning signage, and providing pedestrian-
activated beacons and flashing lights.
• Add curb extensions and/or raised crossings in areas
with high pedestrian volumes to contribute to greater
pedestrian visibility and comfort.
• Provide mid-block crossings in mixed-use areas and other areas with high pedestrian traffic. Mid-block crossings spaced every 300 feet or so create more direct walking
routes and slow vehicle speeds.
Public Realm Mobility
San Pablo Sustainable TOD Streetscape Toolkit | 35
STREETSCAPE TOOLKIT | TASK 3.2
Goals
• T o develop a safe and continuous bicycle network that provides access to major destinations, transit stops, and the surrounding neighborhood.
• T o provide cycling infrastructure that is safe and
convenient.
• T o encourage bicycle trips by providing high quality protected bicycle amenities that are comfortable for a
range of cycling abilities from novice to expert.
Guidelines
• Plan bicycle lanes to run curbside, parallel to vehicular traffic. Bike lanes should be at least 5 feet wide.
• Define bike lanes with pavement markings and signage.
T o enhance visibility and safety, it is recommended to use brightly colored paint or paving and to add a buffer.
Buffers should be at least one foot wide.
• Offer cyclists protection and attract diverse new
cyclists by providing cycle tracks—bicycle lanes that
are separated from vehicular traffic. They are best used on streets that have heavy traffic, multiple lanes, and existing or potential high bicycle ridership. Separated bikeway design may include elements such as elevating
lanes, using on-street parking, or adding curbs, bollards, planters, or other similar separators.
Cycling Infrastructure
Applicable to:
• Multi-modal Great Street
• Main Street
• Neighborhood Street
• Multi-use Pathway
Supports:
TOD+R+H
• Plan a shared bus/bike lane solution for when there is not enough space in the right-of-way to provide separate
facilities.
• Provide appropriate signalization and pavement markings in all bike lanes.
• Ensure shared bus/bike lanes meet transit needs and
bicycling needs in a dedicated space removed from traffic or pedestrian walkways.
• Provide protected intersections to minimize conflict
between bicyclists and vehicles.
• Use signage and striping to indicate upcoming right-
turning lanes. A bike slot to the left of right-turning traffic can also provide a safe space for bicyclists to be while allowing traffic flow.
• Provide bike boxes at the head of traffic for a safe place for bicyclists to stop during red lights.
• Provide crossrides, which are clearly marked spaces that bicyclists can use to ride safely through an intersection. • Separated bikeway design may include elements such as elevating lanes, using on-street parking as a separator, or adding curbs, bollards, planters, or other similar physical separators.
Public Realm Mobility
San Pablo Sustainable TOD Streetscape Toolkit36 |
STREETSCAPE TOOLKIT | TASK 3.2
Goals
• T o provide drop-off/pick-up areas that are accessible, safe, and convenient.
• T o maintain traffic flow by providing designated spaces away from moving vehicles.
Guidelines
• Designate a pick-up/drop-off area within the parking
lane for shared rides. Provide signage and identify the space with paint.
• Locate pick-up/drop-off curb spaces in a highly visible and convenient location, preferably close to building
entrances and near major transit stops.
• Provide ADA accessible loading spaces near accessible routes and building entrances. Spaces should provide
ample vehicle pull-up space and should not overlap
vehicular ways.
Passenger Pick-Up and
Drop-Off Areas
Applicable to:
• Multi-modal Great Street
• Main Street
• Neighborhood Street
• Multi-use Pathway
Supports:
TOD+R+H
Public Realm Mobility
Goals
• T o ensure a smooth flow of traffic and minimize
disruptions to other road users.
• T o allow convenient access for deliveries, which can help support local commerce and economic activities.
Guidelines
• Add signage with specific loading times to on-street
parking to designate a space for deliveries. This
way delivery drivers can have a space to make their
deliveries while still providing public parking outside delivery hours.
• Enhance safety and convenience by locating
commercial loading spaces away from bicycle and
transit corridors. This will avoid conflicts between
delivery drivers and bicyclists and transit users and will minimize obstructions to their movements.
Commercial Loading Areas
Applicable to:
• Multi-modal Great Street
• Main Street
• Neighborhood Street
• Multi-use Pathway
Supports:
TOD+R+H
San Pablo Sustainable TOD Streetscape Toolkit | 37
STREETSCAPE TOOLKIT | TASK 3.2
Goals
• T o provide convenient parking that activates the street with short-term trips and high turnover.
• T o increase pedestrian safety by providing a buffer
between pedestrians and vehicular traffic.
Guidelines
• Consider the pros and cons of different types of parking.
Perpendicular or angled parking are convenient to
park but require more careful driving when trying to
leave because the driver is backing into traffic with little visibility. They allow more cars to be parked per block and avoid conflicts between opening doors and cyclists. • Parallel parking is harder to maneuver when entering
the parking space, but it is easier to exit. A standard parking space is 8 feet wide by 22 feet long, making it ideal for streets with limited right-of-way. They should be located 30 to 100 feet from any intersection.
• Manage on-street parking at locations with high parking demand by placing duration limits on the maximum
length of parking time.
• Avoid long term (4+ hours) parking on street except for on Neighborhood Streets.
• Install electric vehicle charging stations and locate parking spaces for electric vehicles near entrances to
encourage lower carbon travel options.
On-Street Parking
Applicable to:
• Multi-modal Great Street
• Main Street
• Neighborhood Street
• Multi-use Pathway
Supports:
TOD+R+H
Public Realm Mobility
Goals
• T o enhance pedestrian-friendly environments by
minimizing the impact of parking.
Guidelines
• Consider structured parking that serves a group of
buildings, which can reduce the overall number of
parking spaces provided in a particular area. Shared
parking works best when provided for developments of
similar use and/or when demand for parking occurs at
different times between the uses.
• Utilize “Park Once” districts that centralize public
parking and encourage drivers to park in one place and
make stops to different destinations on foot rather than driving. Parking facilities can be funded by requiring
developers to pay in-lieu fees rather than providing their own on-site parking.
• Priority parking maintains the best use of a parking
facility by providing designated spaces to groups, such as people with disabilities, clean air vehicles, carpooling, and employee/customer parking areas.
• Install electric vehicle charging stations to encourage lower carbon travel options.
Off-Street Parking
Applicable to:
• Multi-modal Great Street
• Main Street
• Neighborhood Street
• Multi-use Pathway
Supports:
TOD+R+H
San Pablo Sustainable TOD Streetscape Toolkit38 |
STREETSCAPE TOOLKIT | TASK 3.2
Goals
• T o provide a continuous network of public transit that offers access to major destinations.
• T o make public transportation comfortable and
convenient so that it is easily accessible to everyone, especially those who are low-income, seniors, or
disabled.
• T o reduce greenhouse gas emissions by reducing
vehicle miles traveled.
Guidelines
• Provide priority bus lanes in heavily congested areas to increase efficiency and reliability.
• Integrate Park and Rides into the community near transit stations. Park and Rides are transportation facilities
that provide a convenient option for commuters to park
their vehicles and transfer to public transit modes, such as buses or trains. Consider the needs of pedestrians
and bicyclists at Park and Rides, particularly to
accommodate people who arrive at stations via active
transportation.
Transit Infrastructure
Applicable to:
• Multi-modal Great Street
• Main Street
• Neighborhood Street
• Multi-use Pathway
Supports:
TOD+R+H
Public Realm Mobility
• At transit stops, provide amenities such as shelters, benches, pedestrian scale lighting, waste receptacles,
clear signage, and wayfinding. Additionally, provide
accessibility features such as accessible paths of travel and tactile paving to further enhance the comfort and
safety of passengers.
• Provide a transit signal priority (TPS) system to give priority to public transit vehicles by allowing them to signal traffic controllers, enabling adjustments to signal timing to
navigate intersections more efficiently.
San Pablo Sustainable TOD Streetscape Toolkit | 39
STREETSCAPE TOOLKIT | TASK 3.2
Section 3
Street Typologies
Major Multi-Modal Great Street - Vanderbilt Ave, New York City Main Street - Washington St, Hoboken Complete Neighborhood Street Separated Bike/Pedestrian Pathway Street Typologies: Overview
Streets serve multiple purposes for the community. They both move people and are places in themselves. The intent of the Street T ypologies section is to provide context and examples of how the individual Streetscape Components in the preceding section can be combined and applied in various ways along the corridor – while flexibly responding to the varying adjacent conditions and needs.
This section identifies four common street typologies found within the City of San Pablo and provides recommendations and strategies for the application of the Streetscape Components. The intent is to show that the components themselves, when combined and applied appropriately, add up to more than the sum of their parts. This ‘kit of parts’ approach allows for flexibility to apply or prioritize appropriate components to various parts of the street along the corridor. While some elements need to be contiguous throughout the corridor to be successful, bike lanes for example, a one-size-fits-all approach would miss opportunities to respond specifically to different corridors, as well as the changing context surrounding them.
Precedent T ypologies
San Pablo Sustainable TOD Streetscape Toolkit42 |
STREETSCAPE TOOLKIT | TASK 3.2
Major Multi-Modal Great Street
Main Street
Complete Neighborhood Street
Separated Bike / Pedestrian Pathway
Four Main San Pablo Street T ypologies - Current Condition Example: San Pablo Ave
90’ ROW (Typ.)
Example: 23rd St
80’ ROW (Typ.)
Example: Market St / Church Ln
64’ ROW (Typ.)
Example: Wildcat Creek Trail
20-25’ ROW (Typ.)
parking lot
(outside of ROW)
sidewalk
parking lot
(outside of ROW)
sidewalk
sidewalk sidewalk
sidewalk sidewalkcurbside parking curbside parking
curbside parking curbside parkingbike lanebike lane
multi-
modal path
The overall right-of-ways (ROW) shown below are for illustration purposes only and intended to reflect typical widths and adjacent development conditions present along the corridor. The actual ROW size and context varies and should be taken into consideration before applying any of the recommended interventions.
San Pablo Sustainable TOD Streetscape Toolkit | 43
STREETSCAPE TOOLKIT | TASK 3.2
Allocation for Vehicles
Allocation for People
Multi-Modal Great Street:
San Pablo Ave
The More Travel Modes the Merrier
A truly great streets provides access to multiple modes of travel that are safe, attractive and convenient no matter the choice.
90’ ROW (Typ.)
90’ ROW (Typ.)
Existing
Configuration
Future
Potential
Expand &
Enhance
Sidewalk
A
Prioritize
Transit
B
Separate /
Protect Active
Transit Users
D
Landscape
Median
w/ Safe
Crossings
C
San Pablo Sustainable TOD Streetscape Toolkit44 |
STREETSCAPE TOOLKIT | TASK 3.2
A B
Expand & Enhance Sidewalk
Sidewalks should to be designed with both size
and quality in mind in order to encourage and
accommodate walkability. Even for those who arrive
by car, designing for a ‘Park Once’ district makes
it easy and attractive to walk to/between multiple
destinations without the need to take multiple car
trips.
Prioritize Transit
T ransit works best when it is frequent and consistent.
Reducing conflicts and competition from private
vehicles can increase bus speed and reliability, thus
improving transit ridership. Data from NACTO shows
that bus lanes can accommodate 10,000 to 25,000
people per/hr – compared to 600 to 1,600 people
per/hr in private vehicles.
Landscape Median w/ Safe Crossings
Larger medians with integrated mid-block crossings
and pedestrian refuges can promote safety by
allowing users to cross only one direction of traffic
at a time. An integrated and holistic street design
should be considered in order to increase safety of
more pedestrian activity occurring along the corridor
at major activity nodes.
Separate / Protect Active Transit Users
Providing bike lanes along busy corridors may not
be enough to encourage use given the perception
of safety when riding next to high speed traffic. A
protected cycle-track reduces the risk of collisions
and increases the comfort and safety for the rider.
Providing a two-way route may reduce the need to
eliminate curb cuts on both sides of the corridor.
C D
Components of a Multi-Modal Street
Multi-modal streets re-balance the mode split away from primarily serving private automobiles – creating more efficient cities and reducing greenhouse gas emissions in the process. Shifting space towards a variety of users opens up new opportunities for commerce, public open and civic space, and ultimately creates a better quality of life for workers, visitors, and residents within the city.
San Pablo Sustainable TOD Streetscape Toolkit | 45
STREETSCAPE TOOLKIT | TASK 3.2
Plan View: Existing Configuration
Plan View: Future Potential
Median
& Center
Turn Lanes
16’ 12’
Vehicle
Travel
Lane
10’
Existing
Sidewalk
5’
Bike
Lane
12’
Vehicle
Travel
Lane
12’
Vehicle
Travel
Lane
12’
Vehicle
Travel
Lane
10’
Existing
Sidewalk
5’
Bike
Lane
Vehicle
Travel
Lane
11’
Bus-Only
Lane
12’
Planted
Median &
Center Turn
Lanes
13’ 11’
Vehicle
Travel
Lane
10’
Expanded
Sidewalk
10’
Enhanced
Existing
Sidewalk
Bus-Only
Lane
12’
Protected
On-Street
Cycle
Track
11’ 10’
Expanded
Sidewalk
10’
Enhanced
Existing
Sidewalk
Mixed-Use
Building
Frontage
Mixed-Use
Building
Frontage
Multi-Modal Great Street: San Pable Ave
90’ ROW (Typ.)
90’ ROW (Typ.)
B B
P
B
Travel Lane / Direction
Parking Lane
Bike Lane
Public Transit
Flexible Curb
T
F
T BT
San Pablo Sustainable TOD Streetscape Toolkit46 |
STREETSCAPE TOOLKIT | TASK 3.2
90’ ROW (Typ.)
Section View: Existing Configuration
Section View: Future Potential
Vehicle
Travel
Lane
11’
Bus-Only
Lane
12’
Planted
Median &
Center Turn
Lanes
13’ 11’
Vehicle
Travel
Lane
10’
Expanded
Sidewalk
10’
Enhanced
Existing
Sidewalk
Bus-Only
Lane
12’
Protected
On-Street
Cycle
Track
11’ 10’
Expanded
Sidewalk
10’
Enhanced
Existing
Sidewalk
Median
& Center
Turn Lanes
16’ 12’
Vehicle
Travel
Lane
10’
Existing
Sidewalk
5’
Bike
Lane
12’
Vehicle
Travel
Lane
12’
Vehicle
Travel
Lane
12’
Vehicle
Travel
Lane
10’
Existing
Sidewalk
5’
Bike
Lane
Mixed-Use
Building
Frontage
Mixed-Use
Building
Frontage
90’ ROW (Typ.)
B B
T BT
San Pablo Sustainable TOD Streetscape Toolkit | 47
STREETSCAPE TOOLKIT | TASK 3.2
Main Street:
23rd Street
Reviving an American Classic
Sometimes referred to as the ‘front porches’ of cities, the Main Street typology embraces community centred, human-scaled design. It offers inviting and dynamic public spaces, and is rich in amenities including cafe patios with seating, spaces to gather, and public art that reflects local history and culture.
Main Streets are safe and easy to navigate for people of all ages and abilities. 80’ ROW (Typ.)
80’ ROW (Typ.)
Existing
Configuration
Future
Potential
Infill Gaps /
Underutilized Parcels
(2-3 Floors)
A
Upgrade Transit
Infrastructure &
Experience
B
Support Flexible
Curb Uses
C
Relocate Bike Lane
Adjacent to Curb
D
San Pablo Sustainable TOD Streetscape Toolkit48 |
STREETSCAPE TOOLKIT | TASK 3.2
A BInfill Gaps / Underutilized
Parcels (2-3 Floors)
Main Streets work best when the have a well defined
‘street wall’ of smaller-scale mixed-use buildings
that sit side-by-side uninterrupted, thus creating a
contiguous pedestrian experience throughout.
Upgrade Transit Infrastructure
& Experience
Using the parking or flex lane as needed for bus
stops and their supportive infrastructure reinforces
transits importance and its vital role in serving
residents and visitors along the Main Street corridor.
Support Flexible Curb Uses
While on-street parking is helpful for maintaining
vibrant commercial hubs, swapping some stalls
for flexible uses that respond to and extend their
adjacent land use, can create more spaces for
community gathering, generate more visual interest,
and boost economic activity in the long run.
Relocate Bike Lane Adjacent to Curb
‘Floating’ on-street parking lanes away from the
sidewalk provides an opening for cycling lanes to
run between parked cars and curb. This provides a
safer experience for cyclists while also improving the
permeability and access between street and shops.
C D
Components of a T ypical Main Street
The success of most Main Streets has been demonstrated by the length of time they’ve existed and the number of times they’ve been replicated in different cities all over the world. They are often the heart of a neighborhood because they are well-connected to cherished local destinations, and host a mix of opportunities to shop, dine, and socialize all in one place.
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STREETSCAPE TOOLKIT | TASK 3.2
Plan View: Existing Configuration
Plan View: Future Potential
Mixed-Use
Building
Frontage
Mixed-Use
Building
Frontage
12’
Travel
Lane
12’
Travel
Lane
12’
Expanded
& Enhanced
Sidewalk
8’
Parking
/ Flex
Lane
8’
Buffered
Bike
Lane
8’
Parking
/ Flex
Lane
8’
Buffered
Bike
Lane
12’
Expanded
& Enhanced
Sidewalk
Main Street: 23rd Street
9’
Existing
Sidewalk
8’
Parking
Lane
5’
Bike
Lane
12’
Travel
Lane
12’
Center
Turn Lanes
12’
Travel
Lane
9’
Existing
Sidewalk
8’
Parking
Lane
5’
Bike
Lane
80’ ROW (Typ.)
80’ ROW (Typ.)
P BB P
P
BB
P
T F
P
B
Travel Lane / Direction
Parking Lane
Bike Lane
Public Transit
Flexible Curb
T
F
San Pablo Sustainable TOD Streetscape Toolkit50 |
STREETSCAPE TOOLKIT | TASK 3.2
Section View: Existing Configuration
Section View: Future Potential
Mixed-Use
Building
Frontage
Mixed-Use
Building
Frontage
80’ ROW (Typ.)
80’ ROW (Typ.)
9’
Existing
Sidewalk
8’
Parking
Lane
5’
Bike
Lane
12’
Travel
Lane
12’
Center
Turn
Lanes
12’
Travel
Lane
9’
Existing
Sidewalk
8’
Parking
Lane
5’
Bike
Lane
12’
Travel
Lane
12’
Travel
Lane
12’
Expanded
& Enhanced
Sidewalk
8’
Parking
/ Flex
Lane
8’
Buffered
Bike
Lane
8’
Parking
/ Flex
Lane
8’
Buffered
Bike
Lane
12’
Expanded
& Enhanced
Sidewalk
80’ ROW (Typ.)
F F
P BB P
San Pablo Sustainable TOD Streetscape Toolkit | 51
STREETSCAPE TOOLKIT | TASK 3.2
Complete Neighborhood Street:
Market & Church
Establishing Safe Access for All Users
Creating a ‘Complete Street’ is not a final product designated for one kind of street. Rather, it is an approach to planning and design that ensures safe access for all users no matter their mode, age, or ability.
Existing
Configuration
Future
Potential
64’ ROW (Typ.)
64’ ROW (Typ.)
Add Pedestrian-
Scaled Planting,
Lighting &
Furnishings
C
Enhance
Cycling
Infrastructure
D
Improve Transit
Visibility &
Accessinbility
B
Relocate Bike Lane
Adjacent to Curb
A
San Pablo Sustainable TOD Streetscape Toolkit52 |
STREETSCAPE TOOLKIT | TASK 3.2
B Improve Transit Visibility & Accessibility
Seating, lighting, signage, and shelter are all
essential elements of transit stops. Prominent bus
facilities not only increase comfort and visibility, but reinforce a broader message to the community that
riding public transit is not a second-class mode of
traversing the city.
Add Pedestrian-Scaled Planting,
Lighting & Furnishings
The sidewalk, small as it may be in size relative to the right-of-way, plays an important role in establishing
neighborhood character by encouraging walking
while also acting as a transition from public street to private residential properties within the communities
they pass through.
Enhance Cycling Infrastructure
Bike lanes, while currently present, could benefit
from increased signage, route designation to/
from key destinations, and bike share stations (if
applicable) to open up the possibility and encourage
more participation and use from the community
regardless of income or experience.
C D
Components of a Complete Street
With an emphasis on safety, accessibility and visibility, this new approach to neighborhood street design can be more effective in managing speed than setting speed limits. With the addition of more frequent pedestrian crossings, more prominent bike lane striping, additional wayfinding and landscape treatment, the message that all modes are encouraged and treated equally will be received by the community.
A Relocate Bike Lane Adjacent to Curb
‘Floating’ on-street parking lanes away from the
sidewalk provides an opening for cycling lanes to
run between parked cars and curb - providing a
safer experience for cyclists while also improving the
permeability and access between street and homes.
San Pablo Sustainable TOD Streetscape Toolkit | 53
STREETSCAPE TOOLKIT | TASK 3.2
8’
Existing
Sidewalk
8’
Parking
Lane
5’
Bike
Lane
12’
Travel
Lane
12’
Travel
Lane
8’
Parking
Lane
5’
Bike
Lane
8’
Existing
Sidewalk
Complete Neighborhood Street: Market Ave & Church Ln
Plan View: Existing Configuration
Plan View: Future Potential
64’ ROW (Typ.)
64’ ROW (Typ.)
Residential
Building
Frontage
Residential
Building
Frontage
Residential
Building
Frontage
Residential
Building
Frontage
8’
Sidewalk
w/
Planting
8’
Parking
Lane /
Bulb
Out
5’
Bike
Lane
12’
Travel
Lane
12’
Travel
Lane
8’
Parking
Lane /
Bulb
Out
5’
Bike
Lane
8’
Sidewalk
w/
Planting
PP B B
P
P
TB B
P
B
Travel Lane / Direction
Parking Lane
Bike Lane
Public Transit
Flexible Curb
T
F
San Pablo Sustainable TOD Streetscape Toolkit54 |
STREETSCAPE TOOLKIT | TASK 3.2
PP B B
Section View: Existing Configuration
Section View: Future Potential
Residential
Building
Frontage
Residential
Building
Frontage
64’ ROW (Typ.)
64’ ROW (Typ.)
Residential
Building
Frontage
Residential
Building
Frontage
8’
Existing
Sidewalk
8’
Parking
Lane
5’
Bike
Lane
12’
Travel
Lane
12’
Travel
Lane
8’
Parking
Lane
5’
Bike
Lane
8’
Existing
Sidewalk
9’
Sidewalk
w/
Planting
8’
Parking
Lane /
Bulb
Out
5’
Bike
Lane
12’
Travel
Lane
12’
Travel
Lane
8’
Parking
Lane /
Bulb
Out
5’
Bike
Lane
9’
Sidewalk
w/
Planting
P
P
TB B
San Pablo Sustainable TOD Streetscape Toolkit | 55
STREETSCAPE TOOLKIT | TASK 3.2
Separated Bike / Ped Pathway:
Wildcat Creek Trail
Connecting Destinations with Nature
The Wildcat Creek Trail is well located in the center of the city. The end goal is to connect it fully so it functions as a major east-west connector linking San Pablo Dam Rd to 23rd St, Church and San Pablo Ave. Enhancing and extending this Bike/Pedestrian- only pathway is a key strategy for increasing non-motorized travel between destinations.
Future
Potential
20-25’ ROW (Typ.)
10’
20-25’ ROW (Typ.)
10’
Planted
Buffer
for Creek
Overflow &
Retention
A
Large Trees
for Shading
Path
B
Furnishings &
Lighting at Key
Nodes
D
Enhanced
Paving &
Striping
C
Plan
View
Section
View
10’
Paved
Path
20-25’ ROW (Typ.)
Varies
Bio-Swale
Creek
Buffer
6’ Min.
Furnishing
Node
3’
Permeable
Shoulder
(Both Sides)
10’
Paved
Path
20-25’ ROW (Typ.)
Varies
Bio-Swale
Creek
Buffer
6’ Min.
Furnishing
Node
3’
Permeable
Shoulder
(Both Sides)
Existing
Configuration
San Pablo Sustainable TOD Streetscape Toolkit56 |
STREETSCAPE TOOLKIT | TASK 3.2
A BPlanted Buffer for Creek
Overflow & Retention
Continue existing creek restoration efforts with
emphasis on dual-purpose of managing stormwater
and creating ecological amenity for path users and
wildlife alike.
Large Trees for Path
Consider adding large deciduous shade trees that
provide cooling effects for both path users and
neighboring houses. Species could be selected for
fall or spring color to establish or reinforce a sense of identity along the trail.
Enhanced Paving & Striping
Adding markings along high-trafficked sections can
help reduce bike/pedestrian conflicts and upgrade
the overall user experience.
Furnishings & Lighting at Key Nodes
The addition of lighting, and bike and pedestrian
furnishings at highly visible nodes: ie. trail heads and intersection points, provide the ability to stop and
gather, reinforcing the notion that the trail, like the street, functions for mobility and is a place in itself.
C D
Components of a Separated Bike / Pedestrian Pathway
A completely separated walking and biking path creates connections between major multi-modal corridors and neighborhoods while simultaneously providing for recreational uses. While the Wildcat Trail exists currently, efforts should be made to both enhance the existing trail from a mobility and sustainability perspective, while at the same time, expand the pathway to increase access and connect more destinations.
San Pablo Sustainable TOD Streetscape Toolkit | 57
STREETSCAPE TOOLKIT | TASK 3.2
Section 4
Putting It All Together
Applying the Streetscape Toolkit
This diagram provides a picture of what a TOD-supportive streetscape can look like by applying components to the street typology. By using responsive measures that take into account the context including surrounding land uses, street hierarchy, transit service, and open spaces, the right mix of components can activate the street while ensuring that it remains an efficient, safe, and effective route for all mobility modes.
BEFORE
AFTER
LOCATION: SAN PABLO AVENUE & CHURCH LANE, AT THE SAN PABLO CONTRA COSTA LIBRARY BRANCH 1 3
2 4
5 6
7 9
10 12
13 14
15 San Pablo Sustainable TOD Streetscape Toolkit60 |
STREETSCAPE TOOLKIT | TASK 3.2
Streetscape Components Used
Built Form Components
T ransit-Supportive Uses promote higher density along transportation corridor 2 Height and Setback supports neighborhood character
Street level visual interest established with ground-level transparency Allocation of Street Space
Frontage Zone provides space for activities
5 Clearway Zone is an unobstructed continuous pathway
Planting Zone consolidates a row of trees and provides a buffer to the street T ravelway supports separation of modes with different speeds Median breaks up the street width
Streetscaping
Street trees enhance the public realm and character
10 Street furniture improves the pedestrian experience Planting Zone consolidates a row of trees and provides a buffer to the street Pedestrian-scale infrastructure provides lighting in streetscape
Public Realm Mobility
Pedestrian infrastructure provides a fine-grained network with safe crossings Cycling infrastructure on Great Streets provides separated cycle tracks T ransit infrastructure features bike lanes to increase efficiency and reliability 1 3
4 6
7 8
9 11
12 13
14 15
San Pablo Sustainable TOD Streetscape Toolkit | 61
STREETSCAPE TOOLKIT | TASK 3.2
Appendix D -
Policy
Recommendations
Report
TOD RECOMMENDATIONS REPORT
JANUARY 2024
SAN PABLO
SUSTAINABLE
TOD
MASTER PLAN
Table of Contents
INTRODUCTION
TOD Primer
TOD Strategies
TOD Vision
Purpose of the Policy Recommendations
Input Sources
WHAT WE HEARD FROM THE COMMUNITY
General TOD Inputs
TOD Priority Area Inputs
Key Takeaways
T+O+D RECOMMENDATIONS
Recommendations Framework
Equity Lenses
Recommendations - Transportation
Recommendations – Open Space
Recommendations – Development
PRIORITIZATION MATRIX
Criteria
Priority Level
IMPLEMENTATION PLAN
03 03
03 04
04 05
06 06
08 10
11 11
11 13
17 21
26 26
26 30
01 02
03 04
05 SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 3 1 INTRODUCTION
This Policy Report fulfills the requirements for Task 4 of the San Pablo Sustainable Transit-Oriented Development Master Plan. It builds on studies and inputs that have already been completed, and recommends solutions to set San Pablo up for a successful TOD program.
This report contains three main sections:
• T+O+D Recommendations
• Prioritization Matrix
• Implementation Plan
1.2 TOD PRIMER
The San Pablo General Plan defines Transit Oriented Development (TOD) as “a development or planning concept typified by the location of residential and commercial districts around a transit station or corridor with high quality service, good walkability, parking management and other design features that facilitate transit use and maximize overall accessibility. ” This definition is a baseline used in the San Pablo Sustainable TOD Master Plan, and is expanded upon in the analysis and strategy presented in the plan. For the purpose of this plan, TOD is broken down and analyzed into its three main components:
• Transportation (mobility and transportation modes)
• Open Spaces (streets, plazas, parks),
• Development (buildings, land uses and places).
TOD requires intentional balance of these three elements through the integration of transportation and land use planning in the pursuit of livable communities that are compact, dense, mixed-use, walkable, engaging and resilient.
Benefits of Transit Oriented Development Planning
Transit Oriented Development plans integrate transportation and land use planning along complete streets, which leads to active and equitable long-term community development and benefits. TOD plans include land use planning policies and community programs that maximize access to transit as the key principle. This is supported by a robust public realm, including implementation of complete streets and urban placemaking principles. TOD plans promote equity and resiliency by offering a mix of activities close to transit to support households at all income levels. A combination of a variety of development densities, parking policies, urban design elements, and accessibility strategies create districts that support transit ridership and reduce auto dependency.
TOD is not a process set in stone. Many jurisdictions are moving beyond the fixed term “TOD”—which focuses on development— to broaden the range of opportunities to the community at large. The impact and benefits of integrated transit and land use planning have the potential to reach beyond the transit corridor or station area. A new term, Transit Oriented Communities (TOC), goes beyond the traditional TOD model. Instead of typically being associated with single buildings or developments, TOC focuses on shaping vibrant communities around transit in search of synergies to produce a combined effect greater than the sum of their separate effects. San Pablo’ s approach to TOD, which incorporates a Housing lens and Climate Resiliency lens, is aligned with this progression of the term, and uses these considerations to ensure that equity is built in so that the whole community benefits from TOD.
T
O
D
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 4 1.3 TOD STRATEGIES
As outlined in the Task 3.1 TOD Vision & Priority Areas report, there are a variety of strategies that can be implemented to achieve a high-quality, successful TOD environment. These are general best-practice planning and policy measures to choose from to achieve a specific intended outcome. Selection of strategies must be responsive to the context, opportunities, and challenges of each area. Appropriate strategies may vary from block to block, and implementation depends on detailed context analysis and understanding. The accompanying Streetscape Toolkit document provides a framework for how to choose the right strategies, and how to effectively implement TOD measure to ensure a successful transit oriented community that builds on San Pablo’ s strengths. The Task 3.1 TOD Vision & Priority Areas report provides a detailed map analysis, which is also referenced in this document, and is used as a basis for strategy selection and recommendation.
STRATEGY
Density A concentration of activity, intensity of uses, and population in compact areas.
People can work, live, shop, and play year-round within their community.
A variety of options that serve people’ s needs and abilities to move around.
A high quality public realm that is safe, comfortable, attractive, and interesting.
A district that is efficient, with minimal use of non-renewable resources, and enables low climate impact lifestyles.
Opportunities for movement and outdoor enjoyment that promote active living.
Places to meet, gather, and engage in civic life promote a sense of community.
TOD benefits, especially housing, are inclusive across diverse social and economic groups.
Mix of Uses
Mobility Choice
Placemaking
Sustainability
Community Health
Community Space
Equity
INTENDED OUTCOME
1.4 TOD VISION
The recommendations and implementation in this plan serve to support San Pablo’ s TOD Vision. This vision looks at the city as a whole, as well as Priority Areas and corridors, and envisions:
• Gateways Places to enter
• Activity Zone Places to go to
• Corridors Places to go through
• Neighborhood Connections Places to connect
• Community Heart Places to gather
1.5 PURPOSE OF THE POLICY RECOMMENDATIONS
In San Pablo, the Sustainable Transit Oriented Development Master Plan aims to benefit residents, visitors, and businesses by capturing these benefits in a set of TOD Priority Areas. This Policy Recommendation report aims to provide clear steps to achieve the vision set out in the TOD Master Plan through policies, programs, and physical recommendations that can be undertaken by city departments, implemented by landowners and developers, or in partnership with other levels of government and organizations in San Pablo. The recommendations in this report work holistically together to reinforce the TOD Vision for San Pablo, and to achieve the objectives of the Caltrans Sustainable Communities Planning Grant and TOD Priority in the City’ s General Plan 2030.
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 5 1.6 INPUT SOURCES
The policy considerations that have informed this report include analytical planning and design studies of the TOD Priority Areas established earlier in the planning process, insights from stakeholders and the public, and the policy and planning framework that shapes San Pablo and the surrounding region.
• Context of San Pablo
• Caltrans reports including the Caltrans Climate Change District 4 Vulnerability Assessment • San Pablo site visit and analysis by Arcadis TOD Studio team director Oliver Hartleben • Analytical mapping exercises of San Pablo’ s transportation, open spaces, and development • Guidance and working sessions with San Pablo city staff • Existing Policy Framework in San Pablo, regionally, and at the state level • The San Pablo General Plan 2030 and 2015-2023 Housing Element (with reference to the 2023-2031 update) • Existing Specific Plans (San Pablo Avenue, 23rd Street) and Corridor Studies • City initiatives and programs including the Wildcat Creek Restoration & Greenway Trail Project, and the Contra Costa College Mobility Hub Plan
• Metropolitan Transit Consortium (MCT) policies related to transit and TOD • California Department of Housing and Community Development (HCD) oversight, including the Regional Housing Needs Allocation process
*The policies referenced are summarized in the Task 1.1 and 1.2, Existing Conditions Analysis report • Public and Stakeholder Input
• Community Charrettes
• Targeted Stakeholder Meetings
• Surveys
• Community tabling and pop-up events
*The inputs received from members of the public and stakeholders are summarized in are summarized in Section 2 “What We Heard From The Community . ”
• TOD Best Practices
• Mapping potential future TOD opportunities
• Proposing new and innovative programs and plans in San Pablo *Refer to report 3.1 TOD Vision & Priority Areas Analysis
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 6 2 WHAT WE HEARD FROM THE COMMUNITY
The first round of public and stakeholder engagement for the San Pablo Sustainable TOD Master Plan reached out to both the broader community as well as targeted groups. The motivation of the public engagement was to find out priorities, concerns, and aspirations for the future of San Pablo as a transit-oriented community.
2.1 GENERAL TOD INPUTS
General direction and feedback from the in-person sessions and online surveys are detailed in the following table and organized based on their relationship to either Transportation, Open Spaces, or Development.
Transportation Feedback
GOAL
COMMENTS AND IDEAS FROM THE PUBLIC/STAKEHOLDERS
Calm traffic • Reduce speed limits on main streets.
Improve pedestrian
safety • Provide more visible, safe crosswalks and crossings for pedestrians.
Manage parking
• Prevent cars from parking in bike lanes and sidewalks. • Better enforce parking violations, especially illegally parked vehicles blocking pedestrian and bike routes, to improve walkability and bikeability.
Improve bike
infrastructure
• Create an improved cycling network including bike paths, lanes, and direct bike lane access between main destinations.
• Improve bike infrastructure safety including separated bike lanes and bike boxes for cyclists making turns.
Make transit service
accessible
• Locate public transit to serve low-income populations, seniors, and people with disabilities. • Locate public transit near affordable housing and high-density housing.
Use growth to fund
transit improvements
• Use opportunities for new development to promote alternative transportation use through provision of transit passes, bus stop improvements, shared parking, and more.
T
Connect
transportation
network to
destinations
• Work to align transportation networks in San Pablo with those of surrounding communities, including alignment of bike infrastructure.
• Coordinate with transportation agencies to ensure bus schedules and routes align with the needs of San Pablo.
• Provide more bike and pedestrian connections to parks and recreation destinations.
Enable multi-modal
trips
• Improve the ability to take bikes on public transit.
• Provide secure bike parking near transit.
Activate streetscape
• Undertake streetscape improvements along major streets. • Ideas include adding greenery/green space, beautification, place-making, public art.
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 7 Open Spaces Feedback
Development Feedback
GOAL
GOAL
COMMENTS AND IDEAS FROM THE PUBLIC/STAKEHOLDERS
COMMENTS AND IDEAS FROM THE PUBLIC/STAKEHOLDERS
Make space to play • Provide more play areas for young children in the city.
Maintain public
spaces
• Better maintain parks and trails to support use of open space. • Manage unhoused populations residing in creek-side areas.
Clean up open spaces
• Undertake a clean-up of waste and prevent dumping in creek-side trails. • Clean up streets and provide waste bins to prevent litter.
Improve safety
• Make creek trails safer and more comfortable for people, including preventing crime or dangerous activities.
• Light public spaces to improve safety, including creek-side trails.
Address flooding • Implement measures to address flooding on smaller streets and in the Old Town neighborhood.
Provide affordable
housing • Use vacant lots to build housing.
Mix of uses • Provide affordable housing in mixed-use sites.
Co-locate housing and
transit • Locate public transportation near public housing and high-density housing.
O
D
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 8 2.2 TOD PRIORITY AREA INPUTS
Once analysis of the TOD priority areas had been completed, an online survey and tabling event asked residents more specific questions about each of the four districts. It should be noted that the highest priorities for all four districts are the following:
• Streetscape improvements
• Safer pedestrian and bike zones
• More walkable destinations
Other feedback and priorities that emerged from this second round of outreach include:
During the “Envision” phase, four TOD Priority Areas were established in San Pablo: the 23rd Street District, the Central District, the Civic District, and the Regional Commercial District. Locals were shown these districts and asked to provide their top priorities for establishing these Priority Areas as compact, complete districts that reflect the TOD vision.
TOD DISTRICT
PRIORITIES & IDEAS FROM THE PUBLIC
23rd Street District
• Beautification
• Many more trees
• Cleanliness improvements on streets
• A mix of transportation modes
• Transit stop and shelter improvements
• Placemaking that reflects the identity of the community • More diverse food and retail options
• Wider driving lanes
Central District
• More appealing public realm
• More spacious driving lanes
• More housing near express transit to urban centers (e.g., Oakland, San Francisco) • A more connected and fine-grained block network that counteracts isolation created by large, gated communities
Civic District
• Beautification and attractive streets
• Safer bike zones that lessen traffic and improve appearance and legibility of streets • Convenient parking for cars
• Pedestrian crossing and intersection safety improvements • Improved bus service
Regional Commercial
District
• More appealing and beautiful streets and blocks, this is described as “the ugliest part of town” currently
• Many more trees
• Bike zones that lessen traffic
• Cleanliness improvements on streets
• A greater mix and concentration of uses in a walkable area • Avoid large parking lots and one-stop destinations
• Reduce the number and volume of parking lots
• Pedestrian friendliness
• Destinations along Wildcat Creek that attract people
• Rehoming of homeless encampments in Wildcat Creek
• More pleasant bus stops
• Add businesses closer to the street
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 9 In addition to inputs on the specific TOD Priority Areas, residents were also asked about the elements of the TOD Vision for San Pablo. The following priorities and ideas were identified, which reflect several of the elements in the TOD Vision for San Pablo.
TOD VISION ELEMENT
PRIORITIES & IDEAS FROM THE PUBLIC
Community
Heart: A Place
to Gather
1. Open outdoor space (parks, playgrounds, plazas)
2. Civic Services (library, community center, school)
3. Cafes and Restaurants
Other ideas included soccer fields, and maintenance measures to keep open spaces accessible to all people.
Neighborhood
Connections:
A Place to
Connect
1. Traffic Calming
2. Bike lanes that connect to a greater network
3. Pedestrian priority with wide sidewalks and safe crossings Other ideas included soccer fields, safer street crossings, shade trees instead of built shade structures, smooth traffic flow, closer bus stops on local routes that serve the community, and improved travel routes between destinations within the city.
Corridors:
A place to go
through
1. Smooth traffic flow
2. Shops and services close together
3. Regular, reliable transit service
Other ideas included street cleaning to improve biking experience, walking warning lights for safer pedestrian crossings, bus stop improvements, better bus service, and traffic calming measures.
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 10 2.3 KEY TAKEAWAYS
The overall themes and takeaways of the early rounds of inputs from the public and stakeholders in general reflect the TOD strategies outlined in Section 3.1. Respondents’ inputs aligned with the strategies with the following key takeaways.
STRATEGY
INTENDED OUTCOME
Density • More concentration of activities in a compact, walkable area Mix of Uses
• More indoor and outdoor activities in San Pablo
• Locating a variety of uses near transit
• More variety in retail options
Mobility Choice
• More transportation options including better local and regional bus service • Better flow for vehicles in areas with traffic volumes • Better transit amenities to improve comfort for transit users Placemaking
• Safer streets for pedestrians
• Beautification and aesthetic improvements on main streets Sustainability • A walkable community with less car dependency Community
Health • Better, safer, more inclusive access to creek trails Community
Space • More places for play and recreation, including for children Equity
• Affordable, high-density housing near transit and amenities • Consideration of seniors and low-income groups
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 11 3 T+O+D RECOMMENDATIONS
3.1 RECOMMENDATIONS FRAMEWORK
To create a suite of effective policy recommendations, the project team considered the project inputs, as well as the opportunities identified in the Priority Area analysis. Two key types of recommendations are described: policy recommendations and physical recommendations.
Policy recommendations are mainly implemented by updating City of San Pablo plans, ordinances, and incentive programs to encourage specific outcomes. These may be tied to general standards, corridor improvements, transit operations, development approvals, or other municipal-policy level actions. They are oriented towards city-wide or priority area-wide geographical scopes. Policy recommendations also include partnerships and agreements that further TOD objectives through co-benefits with public and private stakeholders and authorities.
Physical improvement recommendations are specific and place-based. They recommend City departments, or private landowners, to make proactive, direct improvements to achieve a higher quality public realm along TOD areas. They are primarily directed towards the TOD Priority Areas. Refer to the Streetscape Toolkit document for detailed examples, precedent images, and approaches that demonstrate many of the recommendations outlined in this report.
3.2 EQUITY LENSES
In addition to the policy and physical recommendations, it is critical to approach the plan with an equity lens. Although equity encompasses a wide range of considerations, in this application, the lenses used to evaluate or enhance the policy recommendations are focused on “Housing” and “Climate Resiliency. ” These are two major elements of addressing inequality within the community, and these two lenses are directly tied to future financial resources through the California Housing Consortium Transit-Oriented Development Housing Program and Caltrans Climate Adaptation Planning Grant. Further equity- based policy analysis may be undertaken at a future stage of planning to ensure a just distribution of benefits, broad access to services and resources, and evaluate other equity indicators.
Housing Equity
The California Department of Housing and Community Development’ s Housing Element Building Blocks indicates that housing is critical to achieving a number of community goals including economic development, climate action (by building homes near transit), improved health and safety, and community building. It is clear that not only the provision of housing, but also its location in transit-serviced areas with access to jobs, amenities, and services is key to meeting community needs.
The TOD Vision & Priority Area Analysis outlines considerations for housing:
• Housing costs and accessibility for existing and new community members. • How demographics change over time and populations are served by the amenities in their community. • How and where people live in relation to where they work, shop, play, and eat.
In order to plan for housing equity in the TOD Priority Areas and across the city, decision makers must understand the current conditions, including gathering and analyzing housing data, set appropriate and feasible targets and goals, and measure outcomes. The 2015-2023 Housing Element and future update is the foundational document for this. The San Pablo Sustainable Transit-Oriented Development Master Plan aims to support and reinforce the objectives and principles of the Housing Element.
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 12 Per the Housing Element 2023 Draft, San Pablo’ s Broad Housing Goals include:
• Housing Supply and Choice
• Affordable Housing and Housing Security
• Equal Access to Housing
• Neighborhood Quality
• Energy Conservation and Waste Reduction
• Local Government Capacity
The Sustainable TOD Master Plan can help achieve these goals and implement supporting policies by prioritizing and clustering housing catalyst projects in areas slated for improvements and redevelopment that will be served by transit. The opportunities and policy recommendations highlighted in this report target new housing, with support for programs and policies that include affordable housing options, within TOD Priority Areas, linking transit service and housing at the land use planning stage. The recommendations also highlight opportunities to fast-track new housing stock to promote lower-cost, predictable and secure housing stock in the near-term and create stability in the development market.
Climate Resiliency
Urban resiliency is the capacity for communities to prepare for, endure, and recover from shocks and stresses. Shocks and stresses include primarily environmental and climate occurrences, but economic and social phenomena are also considered.
Shocks are acute, immediate emergencies, such as an earthquake or storm. A stress is a long-term, chronic issue that may include complex and compounding variables including climate change, housing crisis, or urban air quality, for example. Shocks and stresses impact different segments of the community differently, but tend to more heavily burden low income, persons of color, and disenfranchised populations. Equitable TOD can address many overlapping and intersecting resiliency concerns.
The TOD Vision & Priority Area Analysis outlines TOD as Climate Adaptation considerations that are considered for each of the policy recommendations:
• Reducing reliance on carbon emitting transportation modes and moving towards net-zero emissions • Economic resilience against unpredictable fuel costs
• Containing sprawl, reducing air pollution, mitigating urban heat island effect, and overall health and lifestyle quality • Community preparedness and ability to recover from climate shocks and stresses including extreme weather events The Sustainable TOD Master Plan can help to create a climate-resilient community in San Pablo by facilitating low-carbon transportation options, efficient land use, and ecological restoration all within the compact TOD Priority Area. Specifically, the recommendations will support San Pablo’ s Climate Action Plan Strategy TLU 1.1 (Transportation and Land Use Objective). Per the plan, this strategy would encompass 60% of objective carbon reduction by reducing vehicle miles traveled by 25%.
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 13 Update existing plans to support TOD initiatives.
Implement a Complete Streets Policy in TOD Priority Areas.
Enhance and enable the role of developers to make TOD improvements on redevelopment sites.
T-1 Bike Ped Plan Alignment
Ensure that any new and completed facilities identified in this TOD Plan are included in any future versions of the city’ s bike and pedestrian master plan, Bicycle and Pedestrian Corridor Study, and circulation element updates.
Climate Resiliency Lens: Inventorying, tracking, and improving pedestrian and cyclist facilities to encourage mode shift away from carbon emitting transportation modes.
REF #
ACTION OR INITIATIVE
T-2 Parking Assessment
Conduct parking studies and surveys to evaluate our parking minimums and explore ways the City may be able to reduce parking minimums.
Climate Resiliency Lens: De-emphasizing individual car ownership encourages a shift to lower carbon emissions transportation modes.
T-3 5-Y ear Paving Plan
Review the existing 5-year paving plan for streets identified in this TOD Plan, the Bicycle and Pedestrian Master Plan, or other City and regional transportation plans, and ensure that planned bicycle, pedestrian, and transit improvements are included in repaving. Prioritize projects with a bike, pedestrian, and transit focus in the 5-year paving plan.
Climate Resiliency Lens: De-emphasizing individual car ownership encourages a shift to lower carbon emissions transportation modes.
T-4
T-5
Complete Streets Policy
Continue implementing policy C-I-2 of the General Plan 2030 to include “Complete Streets” considerations in the design of all circulation improvement projects, and to remain in conformance with MTC’ s TOC policies. Integrate recommendations from the Streetscape Toolkit to support these efforts.
Require New Development Improvements
Require new development projects to improve adjacent sidewalk and trail facilities when they are developed, and to provide pedestrian and bicycle connections to their site.
RECOMMENDATIONS – TRANSPORTATION
Note: Reference # refers to “Transportation Recommendation #” for cross-referencing with the Prioritization Matrix and Implementation Plan in other sections of this report.
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 14 REF #
ACTION OR INITIATIVE
T-6 Incentivize Cyclist Facilities in New Development
Initiate programs to offer incentives for new developments in the TOD Priority Area for provision of secure bike parking, cyclist-friendly entrances and exits, bike repair hubs, showers and locker rooms in new residential and employment developments. Continue to implement cyclist facilities as outlined in the policy recommendations supported by the Bicycle and Pedestrian Master Plan (2017) and explore improving the zoning ordinance to help incentivize cycling facilities.
Climate Resiliency Lens: By increasing convenience of cycling, the City will move towards its goal of decreasing Vehicle Miles T raveled by 3%.
Climate Resiliency Lens: By improving safe access to the BART network, San Pablo residents can be served by regional rail system and rely less on highway commuting, reducing traffic volumes.
Housing Lens: Report out on new development, housing, and population concentrated along transit corridors to support advocacy for transit improvements in San Pablo, serving new residents.
Establish partnerships to coordinate efforts and advance TOD.
T-7
T-8
T-9
T-10
T-11
T-12
San Pablo Dam Road Partnership
Coordinate with El Sobrante and Contra Costa County to improve safe bicycle connections along San Pablo Dam Road east into unincorporated Contra Costa County.
Richmond Transportation Partnership
Partner with the City of Richmond to ensure interjurisdictional bicycle, pedestrian, ridehsare, and transit connections between the two cities, particularly San Pablo residents to the Richmond BART Station.
County Transportation Partnership
Partner with unincorporated Contra Costa County to ensure bicycle, pedestrian, and transit connections between San Pablo and unincorporated Contra Costa County, including the census-designated places of Rollingwood and North Richmond.
Safe Routes to Schools Alignment
Partner with the Contra Costa Health’ s Safe Routes to Schools program to fund and complete safety projects around San Pablo Schools, consistent with the City’ s 2022 Safe Routes to Schools Plan.
Contra Costa College Partnership
Partner with Contra Costa College to implement the Contra Costa College Mobility Hub Master Plan, improving transit, bicycle, and pedestrian access to the campus.
AC Transit + WestCat Partnerships
Partner with the Alameda County Transportation Commission (ACTC), AC Transit, and Contra Costa Transportation Authority (CCTA), and WestCat Transit to ensure that future high-quality rapid bus and Bus Rapid Transit Service extends north through San Pablo.
Climate Resiliency Lens: Reliable, rapid, and high frequency bus service is an effective mechanism in providing cost-stable and low-carbon transportation options for residents.
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 15 Transportation - Physical Opportunities
The key physical recommendations are shown on Figure 1 below, identified as opportunities within the four TOD Priority Areas.
San Pablo Dam Road
Ridge Rd
Willow Rd
Vale Rd
Gateway Ave
Chattleton Ln
Villa Dr
Salesian
College
Prepatory
City Hall
San Pablo
Community
Center
Helms Middle
School
CENTRAL DISTRICT
CIVIC DISTRICT
REGIONAL COMMERCIAL
DISTRICT
MH
MH
MH
Church Ln
23rd St
El Portal Dr
Rd 20
Brookside Dr
Market Ave
San Pablo Dam Road
San Pablo Avenue
San Pablo Avenue
Ave
Market
Dover Ave
University
A
ve
Church Ln
Van Ness St
Mason St
Wildcat Creek
MH
Tribal
Lands
Wildcat Creek
Wildcat Creek Trail
San Pablo Avenue
Figure 1 – T ransportation Opportunities
MH
Legend
Enhanced New Intersection
Micromobility Hub Facility
Enhanced Transit Stop
New Bridge Over Creek
Enhanced Pedestrian Crossing
“Great Street” Streetscape Improvement
New Separated Pedestrian & Bicycle Path
Existing Trail System
Area to be Prioritized for Pedestrian Connectivity
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 16 T-13 Improve Pedestrian Crossings at Intersections
Improve pedestrian crossings at key intersections, as indicated in Figure 1. Improvements include implementing pedestrian crossing safety tactics such as high-visibility designated pedestrian crossings, curb extensions and bulb-outs, ADA curb ramps, and traffic signals.
T-14 Enhance Transit Stops
Work with AC Transit to enhance transit stops at key destinations or interchange locations as indicated on Figure
1. Enhanced transit stops should provide amenities such as shelters, benches, pedestrian scale lighting, waste receptacles, clear signage, and wayfinding. Advanced Traveler Information Systems (ATIS) that provide real-time digital transit signage should be prioritized at enhanced transit stops to allow riders to know bus wait times and offer a more user-friendly experience. Additionally, transit stop enhancements should meet ADA accessibility requirements and align with ADA Accessible Ground Transportation goals and objectives.
T-15 Make 23rd St A Main Street
Implement “Main Street” streetscape improvements on 23rd Street. This includes supporting flexible curb uses such as food truck zones, parklets, patios, and activation for social use into the evening.
Refer to the Streetscape Toolkit “Main Street” Typology for full details about Main Street design tactics.
T-16 Complete the San Pablo Avenue Bridge Replacement Project Redesign key intersections of main roads or gateways as indicated in Figure 1. Enhanced intersection tactics include lighting, pedestrian and cyclist furnishings, wayfinding, safety enhancements including traffic signals or beacons, and ADA curb ramps. Placemaking to create a sense of place is also encouraged, including integration of public art. Specific consideration should be given at San Pablo Ave and Road 20, including Kennedy Plaza.
Consider the students at Helms Middle School in the intersection redesign to support the Safe Routes to School Master Plan. As the City plans to improve Kennedy Plaza as an initiative of the 23rd Street Specific Plan, pedestrian and cyclist access via the intersections across San Pablo Ave and 23rd Street should include bulb-outs to shorten crossings, clearly visible crossing markings that may double as placemaking elements, and delineated protected cyclist zones and signals.
T-17 Provide Micromobility Hubs
Introduce micromobility hubs adjacent to key transit stops, as indicated in Figure 1. Micromobility hub tactics include dedicated space for bikes and e-bikes, scooters and e-scooters, and e-cargo bikes, available for people visiting the casino or shopping in the commercial area.
T-18 Improve and Complete Regional Trail Network
Building on the success of the Wildcat Creek Restoration and Greenway Trail Project from Vale Road to Church Lane, undertake new sections of the existing or proposed trail network as indicated in Figure 2 in order to further the completion of this regional trail network.
T-19 Continue Implementing Existing Plans
Continue implementing the San Pablo Avenue Specific Plan (SP-2). This includes expanded and enhanced sidewalks, transit priority, a landscaped median, and protected active transit lanes.
T-20 Build A Pedestrian/Cyclist Bridge over Wildcat Creek As part of future efforts to expand the Wildcat Creek Trail from Church Lane to 23rd Street, explore the potential/ necessity of building a pedestrian & bicycle bridge to continue the trail from University Avenue to Mason Street south of the creek.
T-21 Create a Fine-Grained Street Network by Breaking Up Large Blocks In the event of redevelopment, break up expanses with connections in the form of a finer-grained street network to connect main streets and destinations.
REF #
ACTION OR INITIATIVE
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 17 RECOMMENDATIONS – OPEN SPACES
Note: Reference # refers to “Open Spaces Recommendation #” for cross-referencing with the Prioritization Matrix and Implementation Plan in other sections of this report.
REF #
ACTION OR INITIATIVE
Update existing plans to support TOD initiatives.
Enhance and enable the role of developers and land owners to offer new or improved open spaces on and between redevelopment sites.
O-1 Expand Parkland Dedication
Review, update, and expand the City’ s park fee and land dedication requirements, incentivizing or requiring public and private space in new development, and ensuring that new multi-family and non-residential development is contributing to the City’ s open space network. This may be achieved by a future Parks and Recreation Master Plan.
Climate Resiliency Lens: A network of open spaces throughout the city , even small ones, provides flood protection by offering permeable surfaces to absorb water and avoid stormwater runoff.
O-2 Specific Plan Open Space Designations
Review and update the San Pablo Specific Plan and 23rd Street Specific Plan Open Spaces and Parks (potential and existing) designations, integrating updated potential locations and a network of interconnected greenways between them, using the TOD Priority Areas as catalysts and priority sites for park development.
Climate Resiliency Lens: Incorporating planned open spaces allows for intentional, organized hierarchy of neighborhood, linear , and destination parks, and allows the city to set and achieve goals for park access, such as how many residents live within a 5 or 10 minute walk of a park.
O-3 Provide Creek Access
Review any new development adjacent to Wildcat Creek or San Pablo Creek for opportunities to provide public access and connections to existing and future trail systems along the creeks, with creek access incorporated into the site design and provided by the developer as an integrated part of site development.
Climate Resiliency Lens: Access to shaded, riparian trail systems provides a free public space that is cooled in summer , allowing safe ways to experience health benefits of outdoor activity year-round and helping to mitigate urban heat island effect through the city center .
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 18 O-4 Bay Trail Partnerships
Coordinate with and support efforts by MTC to complete Wildcat Creek Trail as a spur of the regional Bay Trail.
Specifically, work with the City of Richmond and unincorporated Contra Costa County and Flood District - as well as adjacent landowners - to close a key gap in Wildcat Creek Trail west of Rumrill Boulevard and across the Amtrak and freight rail line that is north of Market Avenue.
Climate Resiliency Lens: The renaturalization of the creek not only provides a recreational or commuter trail, but will reintroduce ecosystem functions that serve as flood protection during storm events and high creek water level run offs, which will reduce risk for adjacent property owners.
O-5 EBRP Partnership
Work with East Bay Regional Parks and City of Richmond to provide bicycle and pedestrian connections into Wildcat Canyon Regional Park at Alvarado Canyon. Coordinate this effort with MTC plans to extend the Bay Trail/ Wildcat Creek Trail east into East Bay Regional Parks.
Climate Resiliency Lens: Active transportation access to regional parks plays an important role in building cycling skills for children and adults, providing confidence for cycling for other transportation needs in their daily lives. It is also a convenient and low-carbon travel alternative to outdoor recreation areas with limited parking options.
O-6 Trail Maintenance
Coordinate with the Contra Costa Flood Control District to maintain and improve trails along creeks and flood canals.
Climate Resiliency Lens: Creeks are important recreation and natural hazard infrastructure, and play an important role in protecting developed areas from flood hazards. A healthy riparian ecosystem has the capacity to absorb high water levels, and the trails may temporarily be closed to the public during storm events to act as a flood plain, allowing the city to potentially avoid or reduce the need for expensive and uncertain engineered flood mitigation and defense as flood risk increases in the future.
REF #
ACTION OR INITIATIVE
Establish partnerships to coordinate efforts and advance the open space network in TOD areas.
O-7 School Joint Access Agreement
Explore formalizing and extending joint access agreements with West Contra Costa Unified School District, and establishing agreements with Contra Costa College, and other outdoor school facilities for mutual access to City Parks and schools during designated hours.
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 19 REF #
ACTION OR INITIATIVE
Open Spaces - Physical Opportunities
The key spatial recommendations are shown on Figure 2 below, identified as opportunities within the four TOD Priority Areas.
Tribal
Lands
23rd DISTRICT
CIVIC DISTRICT
REGIONAL
COMMERCIAL DISTRICT
SCHOOLS & SPORTS FIELDS /
ESCUELAS Y CAMPOS DEPORTIVOS
EXISTING CREEK /
ARROYO EXISTENTE
ACTIVE FRONTAGE TOWARDS OPEN
SPACE /
FRONTAL ACTIVO HACIA EL ESPACIO
ABIERTO
GREEN LINKAGES /
VÍNCULOS VERDES
URBAN PLAZA /
PLAZA URBANA
STREETSCAPE CREEK ENHANCEMENT
MEJORA DE PAISAJE CALLEJERO
HACIA EL ARROYO
URBAN PARK /
PARQUE URBANO
CREEK DAYLIGHTING /
DRENAJE NATURAL DEL ARROYO
CREEKSIDE NATURAL PARK AND
RESTORATION /
PARQUE NATURAL AL LADO DEL
ARROYO Y RESTAURACIÓN
23rd St
San Pablo Avenue
San Pablo Dam Road
Church Ln
El Portal Dr
Rd 20
Brookside Dr
Market Ave
OPEN SPACE
ESPACIO ABIERTO
Legend
Leyenda
San Pablo Avenue
San Pablo Avenue
Rd 20
23rd St
San Pablo Dam Road
Ridge Rd
Willow Rd
Vale Rd
Gateway Ave
Chattleton Ln
Villa Dr
San Pablo Avenue
Salesian
College
Prepatory
City Hall
Wildcat Creek
St. Paul
School
Wildcat Creek Trail
Figure 2 – Open Space Opportunities
Schools and Sports Fields
Existing Creek
Active Frontage Towards Open Space
Green Linkages
Public Urban Open Space
Creekside Natural Park and Restoration
Creek Daylighting
Legend
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 20 O-8 Utilize Schoolgrounds
Explore opportunities to utilize schoolgrounds and sports fields for a greater variety of active and passive uses by the community throughout the day including children’ s play areas, public walking loop, pedestrian and cyclist amenities, and other activities to provide co-benefits to the surrounding community.
O-9 Activate Open Space Frontages
Activate the frontages and interface between open and urban space along Wild Cat Creek and San Pablo Creek.
This can be achieved by supporting vibrant and active uses facing onto the creek including patios and small pavilions that may be used for indoor/outdoor events, spill-out seating, parklets, roll-back garage doors in commercial spaces. The trail and open space network frontages may include enhanced wayfinding and trail markings, attractive gateway and fencing features, and pedestrian amenities including lighting and seating.
O-10 Designate New Park Space
Building on the work set forth in the San Pablo General Plan, continue to designate and build out new urban park space. At the time of redevelopment of large blocks, include sufficient park space to serve new and existing residents, located adjacent to the future green pedestrian linkage.
O-11 Renaturalize Wildcat Creek and San Pablo Creek
As indicated in Figure 2, undertake riparian restoration projects along Wildcat Creek and San Pablo Creek, building on the work already undertaken as part of the Wildcat Creek Restoration & Greenway Trail Project.
O-12 Build New Urban Open Spaces
Build new public urban open spaces where central lots permit, dispersed in opportune areas adjacent to main steets, with active interface to surrounding buildings. These new urban open spaces should be accessible and visible from the street, and have places to sit, relax, and interact. Amenities should include benches and/or seating with shade trees, plantings and/or public art for visual interest, and flexible space for events and activations.
O-13 Connect Key Destinations and Break up Large Blocks With Green Linkages Introduce green linkages to Wildcat Creek, San Pablo Creek, and surrounding streets. At the time of redevelopment of large sites, including strip malls and shopping centres, introduce green linkages within the street network where they connect destinations and transit stops. Green Linkages are pedestrian and cyclist pathways that are enhanced with landscape areas, trees, stormwater management and bio-retention, transit access, and low-impact, energy- efficient materials and amenities.
Refer to the EPA document “Green Streets” or Caltrans document “Performance Measures for Complete, Green Streets” as guides for green linkages.
O-14 Daylight Underground Segment of Wildcat Creek
Daylight Wildcat Creek between San Pablo Avenue and Contra Costa Ave.
REF #
ACTION OR INITIATIVE
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 21 Update existing plans to support TOD initiatives.
Align with Regional Transit-Oriented Community Efforts.
D-1
D-2
D-3
D-4
D-5
Apply and Adjust Zoning Ordinance
Continue to administer the intensification allowed by zoning along San Pablo Avenue and 23rd Avenue, where high- intensity mixed-use development is allowed including dense multi-family residential. Complete the Rumrill Boulevard Master Plan and begin implementation.
Transit-Oriented Communities Policy for Density and Parking MTC’ s Transit-Oriented Communities policy sets minimum development densities (50-75 du/acre) and parking requirements (0 parking minimum, 1.0/unit parking maximums) in TOD areas. Note that this policy is designed for bus rapid transit (BRT) areas, which does not service San Pablo. In the preparation for future BRT service, and to attract development that would provide ridership to support a BRT line, these requirements should be considered aspirational objectives and applied where feasible, focusing on the four priority areas of this TOD Master Plan.
Housing Element Coordination
Make the Opportunity Sites identified in the San Pablo Housing Element 2023 Update the highest priority catalyst sites within the TOD Priority Areas.
Transit-Oriented Communities Policy for Affordable Housing Work to ensure that the City adopts sufficient policies for affordable housing production, preservation, and protection consistent with the regional Transit-Oriented Communities policy.
Objective Design Standards
Create objective standards for multi-family housing consistent with the state Housing Accountability Act; if necessary utilize existing templates available from MTC and HCD.
REF #
ACTION OR INITIATIVE
RECOMMENDATIONS – DEVELOPMENT
Note: Reference # refers to “Development Recommendation #” for cross-referencing with the Prioritization Matrix and Implementation Plan in other sections of this report.
Housing Lens: High density mixed-use sites will require a context-specific, responsive program of housing sizes, types, tenures, and levels of affordability , as well as community-oriented retail and services.
Introducing new, higher-density housing forms along transit corridors will help meet San Pablo’ s target of 800 new homes by 2031, and offer a greater range of affordability for residents.
Housing Lens: T ying housing development density to transit lines builds in long-term transit ridership and promotes T ransportation Demand Management from the initial land use planning stage. New housing on existing transit lines, where BRT can feasibly be upgraded, demonstrates preparedness for future rapid, reliable transit to service residents and support a ridership base.
Housing Lens: The TOD Priority Areas are ideal locations to implement the updated 2023 Housing Element policies, and help to address two of the greatest household cost burdens at the same time – housing and transportation costs.
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 22 REF #
ACTION OR INITIATIVE
D-6
D-7
D-8
Define and Encourage New Connections Through Large Blocks As part of creation of objective design standards or as a revision to requirements in existing zoning districts, encourage new development projects to provide publicly-accessible connections through the site at least every 400- 600 feet along existing street frontages.
Encourage Consolidated Parking Off of Lowest-Level Road Reinforce frontage design standards by encouraging that parking is accessed off of the lowest level road where possible. Encourage use of compact, structured parking where feasible.
Encourage Manufactured Builds
In support of the 2023 Housing Element Update, encourage pre-fabrication, modular homes, or other technical innovations that would allow lower-cost, faster-build construction technologies. Ensure that the use of these technologies does not conflict with code enforcement and inspections, and provide guidelines to developers using these strategies.
Housing Lens: Innovations in manufactured housing allow for expedited, cost-effective, and attractive construction methods that pass affordability on to the end users, and fast-track new housing units.
Enhance and enable the role of developers and landowners to make improvements to development sites and built form.
D-9 Contra Costa College Partnership
In support of Housing Element 2023 Update Policy 1-7, collaborate with Contra Costa College to support and encourage housing on or near campus oriented towards students and/or staff. Consider rezoning around Contra Costa College to allow multiple units in homes including duplexes and suites, rented to the student population or workers at the college.
Establish partnerships to coordinate efforts and advance development in TOD areas.
Housing Lens: Student housing in mixed-use centers near campuses provides a natural walkable community and draws in a younger demographic.
D-10 Property Owner Coordination
Continue to support the work of the Economic Development Corporation to hold regular meetings with major property owners in the TOD priority areas to highlight transit-oriented development potential and partnership opportunities for their sites. Over time, these meetings may evolve into working groups such as a Retail Steering Committee, and gain momentum for a Business Improvement District.
Prioritize development application review and reduce barriers during the redevelopment process for sites within TOD Priority Areas.
D-11 Facilitate Catalyst Projects
Select catalyst projects within the TOD Priority Areas, pulled from the development opportunities highlighted in Figure 3 with a unified landowner, and when a redevelopment application is submitted, prioritize working together with that developer to create a TOD supportive plan.
D-12 Encourage Land Assemblies
Offer density bonuses and priority processing, among other incentives, for developers to consolidate lots and develop large, comprehensive lots in favor of a series of small, disjointed lots, especially along main corridors and transit lines. As outlined in the Housing Element Update Program 1-E, the City may act as a facilitator for lot consolidations, providing information and maps, targeted outreach to landowners of high potential sites, and offering fee reductions for assemblies.
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 23 D-13
D-14
D-15
Tenant Protection
On redevelopable sites with existing tenants (e.g., mobile home sites), encourage developers to offer a tenant assistance program beyond the minimum Tenant Protections Act, which may include offerings including additional tenant information sessions at early stages, appointment of a tenant assistance coordinator contact, and provision of tenant relocation funds to cover moving expenses.
Inclusionary and Incentive Zoning
Review the City of San Pablo’ s Inclusionary & Incentive Zoning policies, and consider increasing bonuses and affordable requirements in transit corridors and TOD Priority Areas.
Homelessness Working Group
Establish a committee or working group to review the City’ s Low-Income Housing Fund, supplementary grants and state programs, and explore partnerships with Contra Costa Health’ s Health, Housing & Homeless Services on-going programs. Establish a path forward for homelessness prevention and rapid rehousing on publicly owned sites. Reach out to people experiencing homelessness for input on their needs. Consider the relationship between the policies outlined in the Housing Element 2023 Update and the TOD Priority Areas.
Preserve existing and create new affordable housing.
REF #
ACTION OR INITIATIVE
Housing Lens: Strong tenant protection, beyond deed-restricted affordable units, will help avoid gentrification and displacement of lower income households. Particularly in mobile home parks, special programs administered by landowners at the time of redevelopment will provide security , predictability , and stability for renters or leaseholders, ensuring minimal disruption and long-term housing solutions.
Housing: Inclusionary units are an important measure for avoiding gentrification in new development and ensuring long-term mixed-income communities.
Housing: Inclusionary units are an important measure for avoiding gentrification in new development and ensuring long-term mixed-income communities.
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 24 Development - Physical Opportunities
The key physical recommendations are shown on Figure 3 below, identified as opportunities within the four TOD Priority Areas.
San Pablo
Supermarket
College Center
Tribal
Lands
CIVIC DISTRICT
CENTRAL DISTRICT
Church Ln
23rd St
San Pablo Avenue
“SOFT” DETACHED RESIDENTIAL
NEIGHBORHOOD REDENSIFICATION /
REDENSIFICACIÓN “SUAVE” DEL
VECINDARIO
DEVELOPMENT
& HOUSING
DESARROLLO Y VIVIENDAS
ACQUISITION FOR GREENWAY /
ADQUISICIÓN PARA VÍA VERDE
LOWER-DENSITY INFILL /
RELLENO DE BAJA DENSIDAD
MID-DENSITY CONTEXTUAL
REDEVELOPMENT /
URBANIZACIÓN CONTEXTUAL DE
DENSIDAD MEDIA
LARGE-SCALE COMPREHENSIVE
REDEVELOPMENT /
REDESARROLLO INTEGRAL DE GRAN
ESCALA
FACADE REALIGNMENT / FRONTAGE
DENSIFICATION
REALINEACIÓN DE FACHADA / DENSIFI-
CACIÓN DE FRONTALES
BIG STORE REDEVELOPMENT /
RENOVACIÓN DE TIENDAS
GRANDES
TRIBAL TRUST (RESERVATION) LANDS /
TIERRAS DE FIDEICOMISO TRIBALES
(RESERVA)
TRIBAL FEE LANDS /
TIERRAS DE TARIFAS TRIBALES
Rd 20
San Pablo Dam Road
Legend
Leyenda
FOCUS AREA /
AREA DE ENFOQUE
REGIONAL
COMMERCIAL DISTRICT
San Pablo Dam Road
Ridge Rd
Willow Rd
Vale Rd
Gateway Ave
Chattleton Ln
Villa Dr
San Pablo Avenue
Salesian
College
Prepatory
City Hall
San Pablo
Community
Center
Helms Middle
School
23rd DISTRICT
El Portal Dr
Brookside Dr
San Pablo Avenue
San Pablo Avenue
Rd 20
23rd St
Ave
Market
Dover Ave
University
Ave
Church Ln
Van Ness St
Mason St
Wildcat Creek
Figure 3 – Development Physical Opportunities
Legend
Acquisition for Greenway
Frontage Improvements
Lower-Density Contextual Infill
Medium-Density Contextual Areas
Large-Scale Comprehensive Areas
Big Store Areas
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 25 D-16 Revitalize Main Streets and Corridors Through Infill Development Introduce and encourage low-density, small-scale redevelopment and revitalization along Main Streets and corridors through individual site infill.
D-17 Implement Frontage Improvements
Encourage the realignment of Main Streets, particularly at clusters of retail, to provide a more pedestrian-friendly atmosphere. This may include addressing blank walls, deep setbacks, or street-facing surface parking lots and incorporating activations, screening, or flexible frontage zone treatments.
D-18 Towne Center Design Guidelines
Bring buildings closer to the street, with minimal setbacks from pedestrian paths to create main street frontages and develop large parking lots
D-19 Redevelop Large Blocks with Mid-Density Development Redevelop large, impermeable sites as indicated in Figure 3 “Big Store” as comprehensive, mixed use sites with medium to high density.
D-20 Comprehensively Redevelop Shopping Centers
Use Food Max Plaza and San Pablo Towne Center as catalyst projects for high density, mixed use, transit-serviced TOD development at the time that the landowners show interest in redevelopment, working closely with the developer to achieve community goals through the redesign.
REF #
ACTION OR INITIATIVE
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 26 PRIORITIZATION MATRIX
CRITERIA
Each of the policy & physical recommendations listed in the prior section are evaluated along the following criteria to determine the priority level. A number of variables are measured including the cost and available funding sources, responsible party, timeframe, and level of impact.
Cost: Measured in orders of magnitude, the cost and timeframe are directly related. Projects within the tens of thousands, hundreds of thousands, or above are rated in $, $$, and $$$ values correspondingly.
Timeframe: The timeframe considers the length of time it will take to complete a project, not necessarily the short or long-term timeframe horizon for San Pablo’ s future planning. Shorter length projects or immediately actionable pilot projects may be initiated sooner as catalyst projects, on a case-by-case basis, with higher-ranking priority projects with easier implementation scheduled first. Long-term, years-long projects often actions requiring coordination from multiple stakeholders, a phased approach or pilot project study to test a program, or require a significant master planning component with a long-term build out.
Impact Scale: Scale is indicated at the “Local” level (site), “District” (Priority Area, neighborhood, corridor), or “City- Wide. ” Projects that are contained to one site may be easier to implement as early catalyst projects, whereas network and station area scaled projects may require TOD framework and policy support before it is feasible to approach them.
Scalability is also a factor to consider for the scale of impact, as some site-specific measures are replicable in similar conditions across the district or city.
PRIORITY LEVEL
These three criteria produce a Priority Level that rates policies and projects in categories of Quick Start, Planning Horizon, or Big Moves.
Quick Starts are specific, contextual, and responsive to the unique characteristics and conditions in each of the districts. They can include experiments, pilot projects, small grants, activations and events. Their impacts are felt immediately, and can have bigger results than their small budgets and time frames might suggest.
Planning Horizon projects typically follow typical municipal processes – no expedited or extensive special considerations are needed. They include development applications, policy updates, data analysis and reporting, but with iterative innovations and improvements over time to continually implement better projects and programs.
Big Moves work together to establish consistency and continuity throughout the city, and define a “San Pablo” TOD look and feel. They have the highest cost and timeframe needs, and will likely require their own dedicated plan for the site-specific or policy-specific area, whether that’ s a master plan or a new policy program.
BIG MOVES
PLANNING
HORIZON
QUICK
START
<1 year 2-5 years 5+ years
$
$$
$$$
T I M E F R A M E
C O S T
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 27 T-1 Bike Ped Plan Alignment $ <1 Year City-Wide Quick Start T-2 Parking Assessment $ <1 Year City-Wide Quick Start T-3 5-Y ear Paving Plan $$ 2-5 years City-wide Planning Horizon T-4 Complete Streets Policy $$ 2-5 Years City-Wide Planning Horizon T-5 Require New Development Improvements $ 2-5 Years City-Wide Quick Start T-6 Incentivize Cyclist Facilities in New Development $ 2-5 Years City-Wide Quick Start T-7 San Pablo Dam Road Partnership $$ 2-5 Years District Planning Horizon T-8 Richmond Transportation Partnership $$ 2-5 Years District Planning Horizon T-9 County Transportation Partnership $$ 2-5 Years Local Planning Horizon T-10 Safe Routes to Schools Alignment $$ 2-5 Years City-Wide Planning Horizon T-11 Contra Costa College Partnership $$ 1-5 Years Local Planning Horizon T-12 AC Transit + WestCat Partnerships $$ 5+ Years City-Wide Big Move T-13 Improve Pedestrian Crossings at Intersections $$ 1-5 Years Local Quick Start T-14 Enhance Transit Stops $$ 1-5 Years Local Quick Start T-15 Make 23rd a Main Street $$ 1-5 Years District Planning Horizon T-16 Complete the San Pablo Avenue Bridge
Replacement Project $$ 1-5 Years Local Planning Horizon T-17 Provide Micromobility Hubs $$ 1-5 Years Local Planning Horizon T-18 Improve and Complete Regional Trail Network $$ 1-5 Years District Planning Horizon T-19 Continue Implementing Existing Plans $$ 1-5 Years District Planning Horizon T-20 Build Bridges over Wildcat Creek $$$ 1-5 Years Local Big Move T-21 Create a Fine-Grained Street Network by Breaking Up Large Blocks $$$ 5+ Years District Big Move
RECOMMENDATIONS
COST
$
$$
$$$
TIMEFRAME
<1 YEAR
2-5 YEARS
5+ YEARS
IMPACT SCALE
CITY-WIDE
DISTRICT
LOCAL
PRIORITY LEVEL
TransportationT
Policy Recommendations
Physical Recommendations
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 28 O-1 Expand Parkland Dedication $ <1 Year City-Wide Quick Start O-2 Specific Plan Open Space Designations $ <1 Year District Quick Start O-3 Provide Creek Access $ 1-5 Year City-Wide Planning Horizon O-4 Bay Trail Partnership $$ 1-5 Years District Planning Horizon O-5 EBRP Partnerships $$ 1-5 Years District Planning Horizon O-6 Trail Maintenance $$ 1-5 Years City-Wide Planning Horizon O-7 School Joint Access Agreement $ <1 Year City-Wide Quick Start O-8 Utilize Schoolgrounds $ <1 Year City-Wide Quick Start O-9 Activate Open Space Frontages $$ 1-5 Years District Quick Start O-10 Designate New Park Space $ <1 Year Local Quick Start O-11 Renaturalize Wildcat Creek and San Pablo Creek $$ 1-5 Years District Planning Horizon O-12 Build New Urban Open Spaces $$ 1-5 Years Local Planning Horizon O-15 Connect Key Destinations and Break up Large
Blocks With Green Linkages $$$ 5+ Years District Big Move O-16 Daylight Underground Segment of Wildcat Creek $$$ 1-5 Years District Planning Horizon
RECOMMENDATIONS
PRIORITY LEVEL
Open SpaceO
Policy Recommendations
Physical Recommendations
COST
$
$$
$$$
TIMEFRAME
<1 YEAR
2-5 YEARS
5+ YEARS
IMPACT SCALE
CITY-WIDE
DISTRICT
LOCAL
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 29 D-6 Define and Require New Connections Through
Large Blocks $$$ 5+ Years Local Big Move
D-7 Encourage Consolidated Parking Off of
Lowest-Level Road $ <1 Year City-Wide Quick Start
D-8 Encourage Manufactured Builds $ <1 Year City-Wide Quick Start D-9 Contra Costa College Partnership $$ 1-5 Years District Planning Horizon D-10 Property Owner Coordination $$ <1 Years City-Wide Quick Start D-11 Facilitate Catalyst Projects $ <1 Years City-Wide Quick Start D-12 Encourage Land Assemblies $ <1 Years City-Wide Quick Start D-13 Tenant Protection $$ 1-5 Years City-Wide Planning Horizon D-14 Inclusionary & Incentive Zoning $$ 1-5 Years City-Wide Planning Horizon D-15 Homelessness Working Group $$ 1-5 Years City-Wide Planning Horizon D-16 Revitalize Main Streets and Corridors Through
Infill Development. $ 2-5 Years District Quick Start
D-17 Implement Frontage Improvements $$ 2-5 Years District Planning Horizon D-18 Town Center Design Guidelines. $$ 2-5 Years Local Planning Horizon D-19 Redevelop Large Blocks with Mid-Density
Development $$$ 5+ Years Local Big Move
D-20 Comprehensive Redevelopment Shopping Centres $$$ 5+ Years Local Big Move
RECOMMENDATIONS
PRIORITY LEVEL
Physical Recommendations
DevelopmentD
Policy Recommendations
COST
$
$$
$$$
TIMEFRAME
<1 YEAR
2-5 YEARS
5+ YEARS
IMPACT SCALE
CITY-WIDE
DISTRICT
LOCAL
D-1 Apply and Adjust Zoning Ordinance $$ 1-5 Years City-Wide Planning Horizon D-2 TOC Policy for Density and Parking $$ 1-5 years City-Wide Planning Horizon D-3 Housing Element Coordination $ 1-5 Years City-Wide Quick Start D-4 TOC Policy for Affordable Housing $$ 1-5 Years City-Wide Planning Horizon D-5 Objective Design Standards $$ 1-5 Years City-Wide Planning Horizon
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 30 IMPLEMENTATION PLAN
TOD implementation is set in motion by three key drivers:
4. Identifying a funding source
5. Assigning a responsible party
6. Activating a prompt
Responsible Party
This category assigns a city department or partner to lead the initiative.
Funding Source
Projects with grant resources available in the immediate term are prioritized, as grant funding is unreliable as a long-term resource given possible program changes and priority changes at the regional or state level. New grant or loan programs may impact this rating, and should be monitored regularly.
Prompt
The prompt is the activating event that kicks off this policy recommendation. It is often tied to receiving funding, but also can be instigated by a policy review or update, a partner or agency timeline, or a land development application. Some prompts rely on nothing more than a program or project launch, which can be arbitrary or tied to council direction, community priorities, or capacity.
T-1 Bike Ped Plan Alignment Municipal Budget Public Works Plan Update T-2 Parking Assessment Municipal Budget Planning
Division Plan Update
T-3 5-Y ear Paving Plan Municipal Budget Public Works Plan Update T-4 Complete Streets Policy MTC Priority Development Area (PDA) Grants
Community
Development Grant Received
T-5 Require New Development Improvements Value Capture Building Services Development Application
T-6 Incentivize Cyclist Facilities in New
Development Value Capture Building Services Project Launch T-7 San Pablo Dam Road Partnership
MCT Active Transportation
Program Grant, CalTrans
Sustainable Transportation
Planning Grant Program
Planning
Division
Grant Received /
Partner Agency
Direction
T-8 Richmond Transportation Partnership
MCT Active Transportation
Program Grant, CalTrans
Sustainable Transportation
Planning Grant Program
Planning
Division
Grant Received /
Partner Agency
Direction
TransportationT
Policy Recommendations
RECOMMENDATIONS
FUNDING
SOURCE
RESPONSIBLE
PARTY
PROMPT
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 31 T-9 County Transportation Partnership
MCT Active Transportation
Program Grant, CalTrans
Sustainable Transportation
Planning Grant Program
Planning
Division
Grant Received/
Partner Agency
Direction
T-10 Safe Routes to Schools Alignment Caltrans Safe Routes to School Programs
Public Works,
Community
Development
Grant Received
T-11 Contra Costa College Partnership CCC Mobility Hub Plan Community Development
Plan Adopted
November 2023
T-12 AC Transit + WestCat Partnerships
State/Regional Funding –
CalTrans Local Transit Funds/
State Transit Assistance
Community
Development
State/Regional
Agencies Moving
Forward
T-13 Improve Pedestrian Crossings at
Intersections
MTC Active Transportation
Program; MTC Priority
Development Area Planning
Program Grant
Public Works Grant Received/
Funding Cycle
T-14 Enhance Transit Stops FTA Busses and Bus Facilities Grant Program
Community
Planning
Grant Received/
Funding Cycle
T-15 Make 23rd a Main Street CDBG - Section 108 Loan Guarantee Program
Planning
Division
Grant Received/
Funding Cycle
T-16 Complete the San Pablo Avenue Bridge
Replacement Project
CDBG - Section 108 Loan
Guarantee Program Public Works Grant Received/
Funding Cycle
T-17 Provide Micromobility Hubs MTC Regional Mobility Hub Construction Program Public Works Grant Received
T-18 Improve and Complete Regional Trail
Network
CDBG - Section 108 Loan
Guarantee Program; CalTrans
Climate Adaptation Planning
Grant
Community
Services, Public
Works
Program Launch,
Partnership Launch,
Grant Received
T-19 Continue Implementing Existing Plans HUD Choice Neighborhood Grant; US DOT RAISE Grant
Planning
Division Grant Received
T-20 Build A Pedestrian/Cyclist Bridge Over
Wildcat Creek
CDBG - Section 108 Loan
Guarantee Program; CalTrans
Climate Adaptation Planning
Grant
Community
Services, Public
Works
Project Launch
T-21 Create a Fine-Grained Street Network by
Breaking Up Large Blocks
CDBG - Section 108 Loan
Guarantee Program; CalTrans
Climate Adaptation Planning
Grant
Community
Services, Public
Works
District
RECOMMENDATIONS
FUNDING
SOURCE
RESPONSIBLE
PARTY
PROMPT
TransportationT
Policy Recommendations
Physical Recommendations
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 32 O-1 Expand Parkland Dedication Value Capture Planning Division
Development
Applications
O-2 Specific Plan Open Space Designations Municipal Budget Community Planning
Plan Reviews/
Updates
O-3 Provide Creek Access Value Capture/Private
Investment
Planning
Division
Development
Applications
O-4 Bay Trail Partnership
CDBG - Section 108 Loan
Guarantee Program; CalTrans
Climate Adaptation Planning
Grant
Community
Services, Public
Works
Program Launch,
Partnership Launch,
Grant Received
O-5 EBRP Partnerships
CDBG - Section 108 Loan
Guarantee Program; CalTrans
Climate Adaptation Planning
Grant
Community
Services, Public
Works
Program Launch,
Partnership Launch,
Grant Received
O-6 Trail Maintenance
CDBG - Section 108 Loan
Guarantee Program; CalTrans
Climate Adaptation Planning
Grant
Community
Services, Public
Works
Program Launch,
Partnership Launch,
Grant Received
O-7 School Joint Access Agreement Municipal Budget Community Planning Project Launch
RECOMMENDATIONS
FUNDING
SOURCE
RESPONSIBLE
PARTY
PROMPT
Open SpaceO
Policy Recommendations
O-8 Utilize Schoolgrounds Municipal Budget Community
Planning Project Launch
O-9 Activate Open Space Frontages Private Investment Building Services Redevelopment
Application or
Program Launch
O-10 Designate New Park Space Municipal Budget Community Planning Plan Update
O-11 Renaturalize Wildcat Creek and San Pablo
Creek
CDBG - Section 108 Loan
Guarantee Program; CalTrans
Climate Adaptation Planning
Grant
Community
Services, Public
Works
Program Launch,
Partnership Launch,
Grant Received
O-12 Build New Urban Open Spaces CDBG - Section 108 Loan Guarantee Program
Planning
Division Grant Received
O-13 Connect Key Destinations and Break up
Large Blocks With Green Linkages
CalTrans Active Transportation
Program, OPR Adaptation
Planning Grant Program
Planning
& Zoning,
Community
Planning
Grant Received
Physical Recommendations
O-14 Daylight Underground Segment of Wildcat
Creek
CDBG - Section 108 Loan
Guarantee Program; CalTrans
Climate Adaptation Planning
Grant
Community
Services, Public
Works
Program Launch,
Grant Received
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 33 RECOMMENDATIONS
FUNDING
SOURCE
RESPONSIBLE
PARTY
PROMPT
DevelopmentD
Policy Recommendations
D-1 Apply and Adjust Zoning Ordinance Municipal Budget Planning Division
Funding Cycle/Plan
Update
D-2 TOC Policy for Density and Parking
Municipal Budget, MCT Climate
Grant for Parking Management
Planning
Planning
Division
Funding Cycle/Plan
Update
D-3 Housing Element Coordination Municipal Budget Planning Division Plan Update
D-4 TOC Policy for Affordable Housing Municipal Budget Housing Plan Update/Review D-5 Objective Design Standards Municipal Budget Building Services Program Launch D-6 Define and Encourage New Connections
Through Large Blocks
CalTrans Active Transportation
Program, OPR Adaptation
Planning Grant Program
Planning
Division
Rezoning/Master
Plan Process
D-7 Encourage Consolidated Parking Off of
Lowest-Level Road Municipal Budget
Planning &
Zoning, Building
Services
Plan/Policy Update
D-8 Enable Manufactured Builds Municipal Budget
Planning &
Zoning, Building
Services
Plan/Policy Update
D-9 Contra Costa College Partnership
Municipal Budget, CAHCD
State Community Development
Block Grant (CDBG) Program,
CAHCD Local Housing
Trust Fund, CAHCD Infill
Infrastructure Grant Program
Planning &
Zoning, Building
Services
Plan/Policy Update
D-10 Property Owner Coordination Municipal Budget; HUD Choice Neighborhoods Grants Housing Program Launch
D-11 Facilitate Catalyst Projects
USDOT Pilot Program for
TOD Planning funded by CIG
program
Planning
Division
Development
Application
D-12 Encourage Land Assemblies Municipal Budget Planning Division
Plan Update,
Program Launch
D-13 Tenant Protection
Municipal Budget; HUD Choice
Neighborhoods Grants; CAHCD
State Community Development
Block Grant (CDBG) Program
Community
Services,
Housing
Program Launch,
Grant Received
D-14 Inclusionary & Incentive Zoning Municipal Budget Planning Division Plan Update
D-15 Homelessness Working Group
Municipal Budget; CAHCD
State Community Development
Block Grant (CDBG) Program
Community
Services,
Housing
Program Launch
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 34 RECOMMENDATIONS
FUNDING
SOURCE
RESPONSIBLE
PARTY
PROMPT
Physical Recommendations
D-16 Revitalize Main Streets and Corridors Through
Infill Development
CAHCD Infill Infrastructure
Grant Program
Planning
Division Plan Update
D-17 Implement Frontage Improvements CDBG - Section 108 Loan Guarantee Program Building Services Development
Application
D-18 Town Center Design Guidelines Municipal Budget Planning Division Project Launch
D-19 Redevelop Large Blocks with Mid-Density
Development
Private Investment/Land Value
Capture
Planning
Division
Development
Application
D-20 Comprehensively Redevelop Shopping
Centres
USDOT Pilot Program for
TOD Planning funded by CIG
program; Private Investment/
Land Value Capture
Planning
Division
Development
Application
SAN PABLO SUSTAINABLE TOD MASTER PLAN - TOD RECOMMENDATIONS REPORT 35 SEPTEMBER 2023
SAN PABLO SUSTAINABLE TOD MASTER PLAN
36