RESOLUTION NO. XXXX-23
RESOLUTION OF THE CITY COUNCIL OF THE CITY OF UNION CITY
AUTHORIZING THE CITY MANAGER TO EXECUTE A MEMORANDUM OF
UNDERSTANDING WITH SAN JOAQUIN REGIONAL RAIL COMMISSION (SJRRC)
REGARDING THE PROCESS, ROLES AND RESONSIBILTIES FOR THE UNION CITY INTERMODAL STATION, PHASE 3/INTERCITY RAIL STATION PROJECT, CITY PROJECT NO. 23-14
WHEREAS, Alameda County Transportation Commission (“AlaCTC”) administers funding programs consisting of 2000 Measure B, 2010 Vehicle Registration Fee, 2014 Measure BB Transportation Expenditure Plan (TEP), CMA-TIP, and Transportation Fund for Clean Air Programs for projects and programs that benefit the Alameda County transportation system, and such funding is collectively defined as and shall be referenced herein as the “Alameda CTC Administered Funds”; and
WHEREAS, in the 2014 Measure BB Transportation Expenditure Plan on Page 20, the Union City Intermodal Station ($75 million) project description is as follows: This project funds the development of a new intermodal station in Union City to serve BART, Dumbarton Corridor services, Capitol Corridor, ACE and local and regional bus passengers. The project involves the construction of a two-sided rail station and bus transit facility, accessible to a 30-acre transitoriented development site. Improvements will be made to pedestrian and bicycle access, BART parking, elevators, fare gates and other passenger amenities; and WHEREAS, on March 9, 2021, City Council passed Resolution No. 5721-21, authorizing the commitment of $72.0 million of the $75.0 million of the 2014 Measure BB funding from the Union City Intermodal Station Project to Quarry Lakes Parkway, leaving a balance of $3.0 million in uncommitted funds remaining; and
WHEREAS, the Metropolitan Transportation Commission (MTC) and the San Joaquin Regional Rail Commission (SJRRC)/Altamont Commuter Express (ACE), in partnership with the Alameda CTC, is currently administering the Southern Alameda County Integrated Rail Analysis (SoCo Rail) Study Project under a non-federal grant from the California State Transportation Agency (CalSTA); and
WHEREAS, the Metropolitan Transportation Commission (MTC) presented Phase 1 of the Southern Alameda County Integrated Rail Analysis (SoCo Rail) Study at the July 27, 2021 City Council Meeting, identifying the study area for a future intercity rail station connecting BART, ACE (Altamont Commuter Express), Capitol Corridor and potential Dumbarton Rail service in Southern Alameda County with potential rail stations in Newark, Fremont, and Union City, see EXHIBIT A; and
WHEREAS, the completed Southern Alameda County Integrated Rail Analysis, Phase 1 Report, dated November 4, 2021, recommended the Union City BART Station as the only “railto-rail” hub location for Mid-Term Horizon (approximately 10 years) in order to allow ACE service to the Bay Area, provide an ACE-BART and ACE-Dumbarton Express connection, and to City Council/RSA Agenda 164 Tuesday, December 12, 2023
Resolution XXXX-23
ensure the highest level of connectivity to key travel markets throughout the entire Bay Area (and to proceed to Phase 2); and
WHEREAS, the Metropolitan Transportation Commission (MTC) and the San Joaquin Regional Rail Commission (SJRRC)/Altamont Commuter Express (ACE) presented an update of Phase 2 of the Southern Alameda County Integrated Rail Analysis (SoCo Rail) Study at the May 10, 2022 City Council Meeting on the proposed Layover Facility and Intercity Rail Station design concept on the Oakland Subdivision railroad track next to Union City Station and discussed how the SoCo Rail design team will be coordinating with City staff on the connectivity to BART, East Plaza, and the adjacent Station District Area, see EXHIBIT B; and
WHEREAS, at the same meeting, City staff presented the Union City Intermodal Station Update outlining: 1) the 20-year project history; 2) the $160 million regional transportation investment and status of key Station District area infrastructure projects, including the completion of the Union City Intermodal Station, Phases 1 and 2, along with the proposed BART Pedestrian At-Grade Crossing (AlaCTC Project Funding Agreement No. A13-0058); and, 3) the Quarry Lakes Parkway (AlaCTC Project Funding Agreement No. A22-0053), see EXHIBIT C; and WHEREAS, on May 23, 2023 City Council Meeting, San Joaquin Regional Rail Commission (SJRRC) staff presented on the recommendation and conclusion of the SoCo Rail Study, Phase 2 Report that the Union City Intermodal Station, Phase 3/Intercity Rail Station is the preferred option for a rail-to-rail East Bay Hub with direction connection to the Union City BART Station and that this option will be included in the draft 2023 State Rail Plan, see EXHIBIT D; and
WHEREAS, at the same meeting, the City Council approved Resolution No. 6136-23 authorizing the commitment of $3.0 million from the 2014 Measure BB Transportation Expenditure Plan (TEP) for the Union City Intermodal Station Project to the San Joaquin Regional Rail Commission for the Environmental Clearance/Preliminary Engineering for the Union City Intermodal Station, Phase 3/Intercity Rail Station Project and submitted the certified resolution to Alameda CTC to initiate the funding process; and
WHEREAS, the Final SoCo Rail Study, Phase 2 dated July 20, 2023 has identified: 1) the project purpose and benefits; 2) proposed operating plan; 3) proposed infrastructure improvements such as: rail station design concepts, layover facilities, passenger connections (ACE to BART and transit); and 4) initial cost estimates for project scoping required for proceeding into the environmental phase; and
WHEREAS, on August 4, 2023, Mayor Carol Dutra-Vernaci presented to the SJRRC to provide an overview of the Union City’s Station District and Intermodal Station/East Bay Hub to Board of Directors (elected officials from the cities of Ripon, Tracy, Lodi, Manteca, Stockton and County of San Joaquin with special voting members from the cities of Dublin and Fremont) and discussed the City’s commitment of $3.0 million of Alameda CTC TEP funds to the Union City Intermodal Station, Phase 3/Intercity Rail Station Project, see EXHIBIT E; and WHEREAS, on October 24, 2023, SJRRC and Union City met with Alameda CTC to provide an overview of the SoCo Rail Project, to explain the overlap of construction improvements City Council/RSA Agenda 165 Tuesday, December 12, 2023
Resolution XXXX-23
along the Oakland Subdivision railroad trackway next to BART and the proposed grade separation structure of Quarry Lakes Parkway, Phase 4 (BART and Oakland Subdivision Grade Separations) and the importance to coordinate the rail station, grade separations and roadway projects; and WHEREAS, at the same meeting, SJRRC and Union City discussed each agencies’ project roles and responsibilities and provided a draft Memorandum of Understanding (MOU) to Alameda CTC; and
WHEREAS, on December 1, 2023 SJRRC Commission Meeting approved Resolution No. 23/24-23 approving the Memorandum of Understanding (MOU) with the City of Union City regarding the process, roles and responsibilities for the Union City Intermodal Station, Phase 3/Intercity Rail Station Project and authorizing the Executive Director to execute any and all documents related to the project, see EXHIBIT F; and
NOW, THEREFORE, BE IT RESOLVED that the City Council of the City of Union City hereby authorizes the City Manager to execute a Memorandum of Understanding (MOU) attached as EXHIBIT G, with San Joaquin Regional Rail Commission (SJRRC) regarding the process, roles and responsibilities for the Union City Intermodal Station, Phase 3/Intercity Rail Station Project, City Project No. 23-14; and
BE IT FURTHER RESOLVED that a copy of this resolution and executed MOU will be transmitted to Alameda CTC.
PASSED, APPROVED, AND ADOPTED by the City Council of the City of Union City at a regular meeting held on the 12th day of December 2023, by the following vote:
City Council/RSA Agenda 166 Tuesday, December 12, 2023
Photo Credit: Jim Maurer, 2018
Southern Alameda
County Integrated
Rail Study
(SoCo Rail)
Union City City Council
July 27, 2021
City Council/RSA Agenda 167 Tuesday, December 12, 2023 1 Study Context: Local, Regional and State Rail Planning
Regional &
State Rail
Plans
Operator/Agency
Vision & Long-Range
Service Plans
Project Studies, Plans
& Implementation
2022 Update
2 SoCo
Rail
Study
City Council/RSA Agenda 168 Tuesday, December 12, 2023
2018 State Rail Plan
• Provided 2040 Vision for
Passenger Rail
• Focused on:
✓ Integrated Statewide
Network
✓ Coordinated Schedules
✓ Customer Focus
• Included East Bay Rail
Hub in So. Alameda Co
3 3
City Council/RSA Agenda 169 Tuesday, December 12, 2023
Study Area
Considers context of NorCal
Megaregion
4 City Council/RSA Agenda 170 Tuesday, December 12, 2023 Study Area
Nexus of:
BART, ACE, Capitol Corridor, and
potential Dumbarton service in
Southern Alameda County • Opportunity for ACE/BART
connection that does not
currently exist
• Feasibility of Shinn Station
5 City Council/RSA Agenda 171 Tuesday, December 12, 2023 SoCo Rail Study Approach and Timeline
2019
Existing & Future
Conditions,
Initial Planning
2020-2021
Service Planning and
Hub Assessment
2021-22
Detailed Planning and
Initial Project
Development
6 Phase 1 Phase 2
City Council/RSA Agenda 172 Tuesday, December 12, 2023
Existing Markets
To/From Study Area
• Most trips are short (5-7 miles)
• Majority of trips are
completely within the study
area or are north to Central
Alameda County or south to
the South Bay
• Most travel to and from Study
Area is short- to mid-length
trips to South Bay and Central
County
City Council/RSA Agenda 173 Tuesday, December 12, 2023 7 Existing Markets
Through Study Area
• Major flows through Study Area:
⁻ South Bay – Central/
Northern Alameda County
⁻ South Bay –Tri Valley
⁻ Peninsula – North/Central
Alameda County
City Council/RSA Agenda 174 Tuesday, December 12, 2023 8 Future Markets
• Largely follows same patterns
• Most trips are < 5 miles
• South Bay and Central Alameda County account for most trips to, from, and through Study Area
• Eastern Markets have the largest % growth
• Limitations
⁻ Does not fully capture megaregional
travel flows
⁻ Not sensitive enough to changes in land use and transportation patterns City Council/RSA Agenda 175 Tuesday, December 12, 2023 9 • Phase 1 considered 7 potential
locations for a new East Bay rail hub
in the study area
• Objective: identify location(s) that
provide mid-term benefits and are
compatible with and/or help
progress toward long-term vision
concepts for rail operators and the
State Rail Plan
Hub Assessment
10 City Council/RSA Agenda 176 Tuesday, December 12, 2023 11 Shinn Station Evaluation
• No current connection exists where
BART and standard gauge (e.g. ACE)
rail services cross
• Developed and evaluated eight
potential station design options at
Shinn Junction
• Station not recommended in mid-term
due to incompatible land uses and
excessive impacts on BART
• Only makes sense with implementation of
a frequent Dumbarton Rail Service and
much more frequent ACE service
City Council/RSA Agenda 177 Tuesday, December 12, 2023
Service Planning Starts with Long-Term Vision
Long-Term
Service 20+ yrs
Mid-Term
Service 10+ yrs
Near-Term
Service ~5 yrs
• Service planning
goals/parameters
(from operators)
• Long-term (~20 yrs)
service concepts
• Mid-term (~10 yrs)
service goals and
scenarios
• Detailed hub/
terminal analysis
12 City Council/RSA Agenda 178 Tuesday, December 12, 2023 Long-Term Vision Concepts
• Consider range of long-term
concepts to understand
implications of different longterm projects for near-term planning, but defer further
decisions to other venues
• Dumbarton service and Link21
were assumed in the long-term
scenario
13 City Council/RSA Agenda 179 Tuesday, December 12, 2023 • Shared freight (UPRR) corridor on
Centerville and Coast Subdivision through
Alviso Wetlands limits passenger rail
frequency increases
• ACE sees potential to increase service to 6-10 roundtrips/day over Altamont for service to Southern Alameda County in
the mid-term
• Direct ACE service on Dumbarton
Corridor likely infeasible in mid-term due
to constraints at Redwood City and the
Peninsula rail corridor
Mid-Term Service Planning
Analysis Key Findings
14 City Council/RSA Agenda 180 Tuesday, December 12, 2023 Implications for Mid
-Term Rail Service
• Concept 1: Not possible • Capacity constraints • Concept 2: ACE-Cap Corridor connection at Ardenwood • Connects to existing Express Bus service • Dependent on South Bay Connect • Ridership potential tied to Dumbarton service • Concept 3: ACE-BART connection at Union
City• Least impact on system operations • Lowest infrastructure needs • Compatible with long-term service concepts –
all current Dumbarton options serve UC BART
• Ridership potential: north/south on BART and
potential future Dumbarton connection
• Connection to existing multi-modal station
(BART/bus) and TOD (existing and planned)
15 City Council/RSA Agenda 181 Tuesday, December 12, 2023 Next Steps ⁻ Wrapping up Phase 1 Summary Report by end of August ⁻ Phase 2: Detailed Planning, Initial Project Development ⁻ Definition of recommended East Bay Hub for Mid-Term Horizon, including associated infrastructure improvements and identification of feasibility challenges
⁻ High level understanding of potential East Bay Hub(s) for Long-Term Horizon, that includes Dumbarton Rail Service, Link21, and improvements along UPRR Coast Subdivision
between Newark and San Jose (incl. tracks in AlvisoWetlands) ⁻ Ongoing stakeholder outreach
⁻ Outcomes: ⁻ Reports documenting analysis, results and recommendations ⁻ Definition of hub project ready to move forward to next phases of project development
16 City Council/RSA Agenda 182 Tuesday, December 12, 2023 Union City ACE/BART Rail-to-Rail Hub Station
Project Overview and Update
May 10, 2022
City Council/RSA Agenda 183 Tuesday, December 12, 2023
Southern Alameda County Integrated Rail Analysis (SoCo Study) ▪ Phase 1 of SoCo Study Complete
▪ Analysis of Rail-to-Rail Hub Station Options in
Southern Alameda County
▪ Union City BART Selected as Rail-to-Rail Hub
▪ Phase 1 Report on MTC Website
▪ Phase 2 of SoCo Study Underway
▪ Analysis of Layover Facility Options
▪ Site Immediately Adjacent to Station Selected
▪ Detailed Planning Now Underway
▪ Targeted for completion at end of 2022
▪ Next Step in Project Development
▪ Environmental Clearance
Union
City
City Council/RSA Agenda 184 Tuesday, December 12, 2023
ACE/BART Hub Location / Layover Facility Site
City Council/RSA Agenda 185 Tuesday, December 12, 2023
Mid-term Layover Facility Options
Potential Layover Facilities
1. Union City (BART)
2. Union City (US Pipe)
3. Fremont (Shinn Street)
4. Newark Site (Willow Street)
Site Feasibility Analysis Includes
• Project Complexity
• Land Use Compatibility
• Environmental Considerations
• Operational Feasibility
City Council/RSA Agenda 186 Tuesday, December 12, 2023
SoCo Rail Layover Facility Comparison Matrix
Site Complexity Land Use
Compatibility
Environmental
Constraints
Operational
Feasibility
Union City BART 1 3 1 1
Union City – US Pipe 3 2 2 2
Fremont – Shinn St. 2 2 3 3
Newark –Willow St. 5 4 4 5
The Union City BART Site is the most feasible location for the SoCo Rail Layover Facility in the mid-term and is the preferred option for further analysis in the study City Council/RSA Agenda 187 Tuesday, December 12, 2023
2030 Vision for ACE Network
City Council/RSA Agenda 188 Tuesday, December 12, 2023
Altamont Corridor
Extension to
East Bay Hub
(Union City BART)
Valley Link
(North Lathrop to
Dublin/Pleasanton
BART)
VL
VL
VL
VL
VL
VL
VL
Stockton
VL
VL
VL
VL
VL
VL
VL
City Council/RSA Agenda 189 Tuesday, December 12, 2023
Union City ACE/BART Rail Hub Station
City Council/RSA Agenda 190 Tuesday, December 12, 2023
Next Steps
▪ Phase 2 of SoCo Study Underway
▪ Operations planning
▪ Ridership Analysis
▪ Connectivity planning
▪ Equity Analysis
▪ Conceptual engineering
▪ Cost estimating
▪ Implementation/Funding planning
▪ Final Report/PSR
Targeted for completion at end of 2022
▪ Next Step in Project Development
▪ Environmental Clearance
Station site
City Council/RSA Agenda 191 Tuesday, December 12, 2023
Thank you!
Dan Leavitt
Manager of Regional Initiatives
San Joaquin Regional Rail Commission
[email protected]
City Council/RSA Agenda 192 Tuesday, December 12, 2023
UNION CITY INTERMODAL
STATION UPDATE
PRESENTATION
Marilou Ayupan, Public Works Director ITEM 3.d
May 10, 2022
City Council/RSA Agenda 193 Tuesday, December 12, 2023
2 INTERMODAL STATION UPDATE
PROJECT HISTORY-July 2021 City Council
2001-2005 MTC Resolution 3434 (TOD Policy and Investment) 2002 – BART Station Comprehensive Station Plan & Intermodal Station 2004 - Intermodal Station & Transit Facility Plan (Passenger Rail) 2006 - Union City Passenger Rail Project EIR (ACE, DB Rail, CCJPA) Mid 2000’s - 11th Street & BART Station, Phase 1A (Transit & Parking) Mid 2010’s - BART Station (Phase 1B/Phase 2) & East Plaza 2021 - Southern Alameda Integrated Rail Study (Station Options) 2022 – ACE-BART Rail-to-Rail Station (Union City BART Station) 2021 – BART Station, Phase 2A (East Entrance)
2022 - BART PED At-Grade Crossing (Complete East Entrance) 2026 - Quarry Lakes Parkway, Ph 1 & 2
2030 - Quarry Lakes Parkway, Ph 3 & 4 (Grade Separations) 2030 – PASSENGER RAIL (ACE) SERVICE
City Council/RSA Agenda 194 Tuesday, December 12, 2023
3 INTERMODAL STATION UPDATE
Over 20 Years Planning
$160 Million Investment
(Local, Regional, State &
Federal Grant Funds)
Project Partners
MTC, BART, AC Transit, UC
Transit, ACE, VTA, Capitol
Corridor, ACCMA-ACTIA-ACTC,
Fremont and Hayward
City Council/RSA Agenda 195 Tuesday, December 12, 2023
4 INTERMODAL STATION, BART PHASE 2A
COMPLETED IN 2022
City Council/RSA Agenda 196 Tuesday, December 12, 2023
5 INTERMODAL STATION UPDATEACE-BART RAIL TO RAIL CONNECTION 5 Minute Walk: ACE to BART & ACE to TRANSIT
City Council/RSA Agenda 197 Tuesday, December 12, 2023
6 INTERMODAL STATION UPDATE
BART PED AT-GRADE CROSSING
CONSTRUCTION IN 2022, OPEN IN 2022/2023
(Union Pacific Railroad approval process about 8+ years) City Council/RSA Agenda 198 Tuesday, December 12, 2023
7 QUARRY LAKES PARKWAY, PHASES 3-4 & ACE STATION
City Council/RSA Agenda 199 Tuesday, December 12, 2023
8 ACE STATION & QUARRY LAKES PARKWAY
COORDINATON
COORDINATE, COLLABORATE & COST
SAVINGS
▪ ACE & Union City- Expedite Union Pacific
(UP) Railroad Permits
▪ Work within Oakland Sub/UP Right of Way
▪ Requires Temporary Railroad Track Shoofly
(Detour)
▪ Potential Reuse of Shoofly Rail for future
ACE Station and Layover Facility
▪ Potential Installation of Com. Conduit (PTC)
▪ Use Excess QLP Dirt for UP R/W Grading
City Council/RSA Agenda 200 Tuesday, December 12, 2023
9 INTERMODAL STATION UPDATE
Continue Planning and Investment...
MOVING FORWARD- NEXT STEPS
✓ Continue ACE Coordination (Fremont, Newark, BART, AC
Transit and UC Transit) on Union City-ACE Station
(Environmental) & QLP, Phases 3 & 4 (Design)
✓ Complete BART Entrance with Ped At-Grade Crossing
✓ Prepare RFP for Quarry Lakes Parkway, Phase 3 & 4
(Grade Separations) for Design Consultant
✓ Evaluate integrating QLP, Grade Separations with ACE
Station Track Improvements (potential cost savings)
QUESTIONS….
City Council/RSA Agenda 201 Tuesday, December 12, 2023
In partnership with:
Item 7a. Phase 2 Report Update
May 23,2023
City Council Meeting
City Council/RSA Agenda 202 Tuesday, December 12, 2023
Agency Sponsor, Partners, and Key Stakeholders
Study Sponsor
Technical Development Partner /
Project Management Team
Funding Partner / Project
Management Team
Project Management Team
Project Management Team
Project Partner
Key Stakeholder
Key Stakeholder
Key Stakeholder
Key Stakeholder
City Council/RSA Agenda 203 Tuesday, December 12, 2023
3 • Phase 1 Report • Completed Fall 2021 • Union City BART Station identified as location for rail-to-rail connection
• Phase 2 Report • Draft Completed in April 2023 and reviewed by key stakeholders
• Includes: • Operating Plan • Ridership • Station / Layover Facility Design • Equity • Multi-modal Connectivity • Long-Term Considerations • Implementation Plan Project Status
City Council/RSA Agenda 204 Tuesday, December 12, 2023
Study Goals Established in Phase 1
✓ Enhance regional connectivity and increase equitable
access
✓ Enhance service reliability and safety
✓ Promote sustainability and resiliency
✓ Serve surrounding communities and shape growth
✓ Develop feasible infrastructure improvements
City Council/RSA Agenda 205 Tuesday, December 12, 2023
5 A plan that came
together …
• Union City Intermodal Station: • Phase 1 created an enhanced bus terminal to improve multimodal
access
• Phase 2 expanded the east side of
the BART Station to better integrate
the station with surrounding transit-
oriented development
• Phase 3 will link intercity rail directly
with BART and bus services and
integrate rail in Southern Alameda
County with the larger statewide
intercity rail network
City Council/RSA Agenda 206 Tuesday, December 12, 2023
6 • Union City BART Station proposed as the
“rail-to-rail” East Bay Hub as per the Draft
2023 State Rail Plan
• Three round trips per day in the Mid-Term
Horizon (2030-2033):
• Intercity rail service between Chico and Union
City and between Merced and Union City
• Timed connections with HSR in Merced • Connections to BART and multiple bus services at Union City
• Draft 2023 State Rail Plan has hourly service to
Union City via Altamont Corridor in the long-
term
Recommended Project:
Union City Intermodal Station Phase 3
City Council/RSA Agenda 207 Tuesday, December 12, 2023
7 Proposed Mid-Term Service Operating Plan
City Council/RSA Agenda 208 Tuesday, December 12, 2023
Proposed Infrastructure Improvements
• Intercity Rail Platform
• 745-foot-long platform located between
the UP Oakland Subdivision to the west
Union City property to the east
• Layover Facility Location
• Two layover tracks located in Waste
Consolidation Area (WCA) site southeast
of the Union City BART station
LEAVE THIS IN (FINE FOR SHOWING COMPONENTS);
City Council/RSA Agenda 209 Tuesday, December 12, 2023
Proposed Platform and Layover Facility Design
9 At-Grade Crossing
Extension of
Duncan Way /
Loop Rd
Proposed 745’
Long Platform
Sidewalk Connection
Waste Consolidation Area Site
Layover Tracks
Station Track
Proposed Bridge
City Council/RSA Agenda 210 Tuesday, December 12, 2023
Intercity Rail Station Platform and Access
City Council/RSA Agenda 211 Tuesday, December 12, 2023 10 Connectivity
to BART
City Council/RSA Agenda 212 Tuesday, December 12, 2023 11 Multimodal Connectivity: Bus
Multimodal Improvements:
Already Planned
❖ Transit priority improvements
• Dumbarton Corridor
Improvement Project
• Dumbarton Forward
• Decoto Road Complete Streets
Project
• I-880/Decoto Road Interchange
Modernization Project
❖ New median bus station at
Ardenwood Park-and-Ride (State
Route 84 Intermodal Facility)
Multimodal Improvements:
Additional Opportunities
❖ Additional bus stop consolidation
❖ Quarry Lakes Parkway (potential to
leverage new roadway to optimize
City Council/RSA Agenda 213 Tuesday, December 12, 2023 bus services) Multimodal Connectivity: Bus
Multimodal Improvements – Additional Opportunities
❖ Potential New Dumbarton Express Route (Union City Intermodal Station–Redwood City) ❖ Potential Dumbarton Express “Super Express”
❖ Potential New AC Transit (Union City Intermodal Station–Newark–Warm Springs BART) City Council/RSA Agenda 214 Tuesday, December 12, 2023
Multimodal Connectivity: Bicycle and Pedestrian
• Bicyclists:
• Continued build-out of bikeway
network according to City bike plan
• Space available near intercity rail
platform for bike parking and secure
lockers
• Pedestrians:
• Future at-grade crossing will link
BART station, intercity rail platform,
and east station plaza
• Quarry Lakes Parkway (initial
phases)
• On-street bike lanes
• Off-street parallel shared-use bicycle
and pedestrian recreational path
City Council/RSA Agenda 215 Tuesday, December 12, 2023
Multimodal Connectivity: Automobile Access and Parking
• Automobile Access
• Space identified in the planned extension of Duncan Way/Loop Road (on east side of Union City Intermodal Station) for the following:
• Automobile pick-up/drop-off
• Taxi/TNC loading
• Parking Considerations
• Parking demand expected to be relatively low due to BART/other transit connections to ACE trains. Also, intercity rail service is oriented more to pickup/drop-off, whereas commuter service has more focus on park and ride lots. • Possible parking arrangements will be explored in the next phase work.
City Council/RSA Agenda 216 Tuesday, December 12, 2023
Complements
Valley Link Project
Valley Link ACE Intercity Rail
Service between
Dublin/Pleasanton BART
Station and North Lathrop
Service between Union City
and Chico / Merced
Connections to the TriValley and areas such as
Oakland and San Francisco
Connections to the Tri-City
area and markets in the
South Bay via BART and
the Peninsula via Transbay
bus services
Medium-distance service
with high frequencies to
match BART service
Less frequent intercity
service with longerdistance connections
throughout the Northern
California Megaregion
VL
VL
VL
VL
VL
VL
VL
Valley Link
(North Lathrop to
Dublin/Pleasanton BART)
ACE Extension
(to Union City
Intermodal Station)
City Council/RSA Agenda 217 Tuesday, December 12, 2023
17 Benefits of the Proposed Project
❖ Consistent with 2018 CSRP’s vision for an East Bay Hub ➢ Locating the hub at Union City BART fulfills Union City’s vision for an Intermodal Station
➢ Proposed intercity rail service supports Union City’s plans for transitoriented development at the Union City Intermodal Station ❖ Consistent with the Draft 2023 CSRP’s focus on Equity in Rail ❖ 7-day-a-week, off-peak service responds to the needs of noncommuters who are often transit-dependent throughout the Northern California Megaregion
City Council/RSA Agenda 218 Tuesday, December 12, 2023
18 Benefits of the Proposed Project
❖ Supports regional goals to improve air quality and reduce greenhouse gas emissions
➢ Preliminary forecasts of 1.86 million riders for the 3 round trip trains ➢ Results in a reduction in overall vehicle miles traveled (VMT) of 87.95 million ❖ Improves multimodal access in the Northern California Megaregion ➢ Access to Bay Area destinations through BART at Union City ➢ Timed connections with HSR in Merced
➢ Opportunities for improved other multimodal connectivity at Union City and throughout the service routes
City Council/RSA Agenda 219 Tuesday, December 12, 2023
Project Development Timeline
19 City Council/RSA Agenda 220 Tuesday, December 12, 2023 Next Steps
• Finalize SoCo Rail Phase 2 Report and Publish on
MTC Website
• Secure funding for next phase of project
development: Environmental Clearance/Preliminary
Engineering
20 City Council/RSA Agenda 221 Tuesday, December 12, 2023 Thank you!
City Council/RSA Agenda 222 Tuesday, December 12, 2023 21 1 Union City’s Station District
and Intermodal Station / East Bay Hub
San Joaquin Regional Rail Commission – August 4, 2023
City Council/RSA Agenda 223 Tuesday, December 12, 2023
2 Southern Alameda County Integrated Rail Study – Phase 2 Report City Council/RSA Agenda 224 Tuesday, December 12, 2023
3 Union City’s Station District:
Then and Now
1970
1970
2002 2019
Union City Bart Station
City Council/RSA Agenda 225 Tuesday, December 12, 2023
4 Station District
Build Out:
Housing
Jobs
Transit
Community
City Council/RSA Agenda 226 Tuesday, December 12, 2023
5 Station District – Transit Oriented Development &
Infrastructure
❖ Pedestrian Link
to Station East
❖ East Entrance
to BART
❖ Passenger Rail
Connection at
BART
❖ Quarry
Lakes Parkway
– Local Streets
and Trails
to Parks
City Council/RSA Agenda 227 Tuesday, December 12, 2023
6 Quarry Lakes Parkway
Multimodal Corridor – Class I & IV Bike and Ped Connections and Transit Supports Priority Development Area
City Council/RSA Agenda 228 Tuesday, December 12, 2023
7 Union City
Intermodal Station
Over 20 Years Planning
$160 Million Investment
(Local, Regional, State &
Federal Grant Funds)
Project Partners
BART, MTC, AC Transit,
UC Transit, ACE, VTA,
Capitol Corridor, ACCMA-
ACTIA-Alameda CTC,
Fremont
City Council/RSA Agenda 229 Tuesday, December 12, 2023
8 Union City Intermodal Station – Bus Transit
City Council/RSA Agenda 230 Tuesday, December 12, 2023
9 Union City Intermodal
Station – Intercity
Rail to BART
• Five-minute walk from ACE to BART to Transit
• Intercity rail – complements commuter rail
• Direct connection between BART/Bay Area, Central Valley, and High-Speed Rail in Merced
City Council/RSA Agenda 231 Tuesday, December 12, 2023
10 Union City Intermodal Station – Regional Impact
City Council/RSA Agenda 232 Tuesday, December 12, 2023
11 Thank You!
City Council/RSA Agenda 233 Tuesday, December 12, 2023
23 4 Hernandez, Craig, Nuño, Zuber
4 Mei, Villapudua, Warmsley, Young
City Council/RSA Agenda 234 Tuesday, December 12, 2023
SAN JOAQUIN REGIONAL RAIL COMMISSION
Meeting of December 1, 2023
STAFF REPORT
Item 5 ACTION
Approve a Resolution of the Board of Commissioners of the San Joaquin Regional Rail Commission Approving a Memorandum of Understanding (MOU) with the City of Union City Regarding the Process, Roles, and Responsibilities for Union City Intermodal Station Phase 3/Intercity Rail Station and Authorizing the Executive Director to Execute Any and All Documents Related to the Project
Background:
The Southern Alameda County Integrated Rail Analysis (SoCo Rail Study) was led by the Metropolitan Transportation Commission (MTC). MTC partnered with the California State Transportation Agency (CalSTA), Caltrans, Alameda County Transportation Commission (ACTC), Capital Corridor Joint Powers Authority (CCJPA), and the Rail Commission to conduct this $5 million planning effort.
The SoCo Rail Study was built on the foundation of the 2018 California State Rail Plan (CSRP), which established a 2040 statewide vision for an integrated statewide passenger rail and express bus network. The 2018 CSRP also identified rail hub stations, including an “East Bay” hub located in Southern Alameda County, which sits at the nexus of megaregional rail services and Bay Area rail and bus services. Additionally, the 2018 CSRP called for implementation of rail planning for the East Bay so that recommendations can be integrated with the 2023 CSRP. The SoCo Rail Study concluded that the “East Bay” hub would be a rail-to-rail connection between Bay Area Rapid Transit (BART) and ACE at the Union City BART Station, and this project has been included as a mid-term project in the Draft 2023 CSRP. This extension of ACE service to Union City has been promoted by the City of Union City for many years and is known as the “Union City Intermodal Station Phase 3 Project.”
Findings from the Phase 2 Report were presented at the July 7, 2023 San Joaquin Regional Rail Commission (Rail Commission) Board Meeting. Please see the “Union City Intermodal Station Phase 3 Project” fact sheet that highlights key findings from the SoCo Phase 2 Study. A link to the SoCo Study final reports is provided on the SJRRC website: https://www.sjrrc.com/soco-railstudy/ The Rail Commission is working with the City of Union City to secure $3.5 million needed for the environmental review phase of this project and the Rail Commission will be the lead agency for this work (California Environmental Quality Act (CEQA) lead agency). At their May 23, 2023 City Council Meeting, the City of Union City approved $3 million from Measure BB Transportation Expenditure Plan (TEP) for this purpose. Further approval by Alameda County Transportation Commission (ACTC) is required for the Rail Commission to have access to this $3 million in funding. Mayor Carol Dutra-Vernaci (MTC and Alameda CTC Commission Member) of the City of Union City presented at the August 4, 2023 Rail Commission Meeting, strongly stating the City of Union City’s $3.0 commitment to Intermodal Station, Phase 3/Intercity Rail Station. Both the Rail Commission and the San Joaquin Joint Powers Authority (SJJPA) have taken action to contribute $250,000 in State Rail Assistance (SRA) as matching funding for the Union City Intermodal Station Phase 3 environmental clearance/preliminary engineering. The Rail City Council/RSA Agenda 235 Tuesday, December 12, 2023
Commission is the lead CEQA agency since this is an ACE extension. SJJPA is a partner agency since the proposed new service would be intercity service.
To help secure the $3 million in funding from ACTC for the environmental review phase, Rail Commission staff and Union City staff concluded that it was important to develop and enter into a formal Memorandum of Understanding (MOU) that defines the process, roles, and responsibilities for the Union City Station Phase 3/Intercity Rail Station.
Please see the attached final MOU for Board approval. If approved, the MOU will be signed by the Rail Commission Chair and sent to the City of Union City for their approval and signature. It is expected that the City of Union City will approve the MOU at their December 12, 2023 City Council meeting.
A draft of the MOU has been provided to ACTC. Once it is approved by both the Rail Commission and the City of Union City, the final MOU will also be submitted to ACTC. Based on discussions with ACTC, it is expected that the approval for the $3 million from Measure BB TEP funding will be requested at an ACTC Board Meeting in early 2024.
Union City Intermodal Station Phase 3 Project
Fiscal Impact:
There is no fiscal impact from approving the MOU. Any commitment to coordinate with partnerships will be brought before the board if over the Executive Director’s threshold.
Recommendation:
Approve a Resolution of the Board of Commissioners of the San Joaquin Regional Rail Commission Approving a Memorandum of Understanding (MOU) with the City of Union City Regarding the Process, Roles, and Responsibilities for Union City Intermodal Station Phase 3/Intercity Rail Station and Authorizing the Executive Director to Execute Any and All Documents Related to the Project.
City Council/RSA Agenda 236 Tuesday, December 12, 2023
Intermodal Station, Phase 3/Intercity Rail Station MOU Page 1 of 6
MEMORANDUM OF UNDERSTANDING
BY AND BETWEEN THE
CITY OF UNION CITY AND
SAN JOAQUIN REGIONAL RAIL COMMISSION
REGARDING THE PROCESS, ROLES AND
RESPONSIBILITIES
FOR UNION CITY INTERMODAL STATION, PHASE 3/INTERCITY RAIL STATION This Memorandum of Understanding (MOU) is entered into by and between the San Joaquin Regional Rail Commission, a California joint powers agency (SJRRC), and the City of Union City, a California municipal corporation (Union City), (collectively Participants) to facilitate cooperation and coordination in planning, design, and funding of the Union City Intermodal Station, Phase 3/Intercity Rail Station.
PERTINENT ENTITIES
The City of Union City (referred to in this MOU as Union City): a city in Alameda County with all the powers and duties of a general law city. In addition, Union City operates a local transit service, Union City Transit (UC Transit).
San Joaquin Regional Rail Commission (referred to in this MOU as SJRRC): the agency responsible for the governance, operation, and maintenance of the ACE® (Altamont Corridor Express) passenger rail service and the expansion of service as part of the Valley Rail Program. SJRRC is the managing agency of the San Joaquin Joint Powers Authority (SJJPA) which is the administrating agency of the State-supported San Joaquin intercity rail passenger service (SJ Services).
GENERAL BACKGROUND
In 2001 Union City prepared the Union City Intermodal Station and Transit Facility Plan (Intermodal Station Plan) in partnership with Bay Area Rapid Transit (BART), AC Transit, Santa Clara Valley Transit Authority (VTA), Union City Transit (UC Transit), Capitol Corridor Joint Powers Authority (CCJPA), SJRRC, Caltrain, Alameda County Transportation Improvement Authority (ACTIA), San Mateo County Transportation Authority (SMCTA), and local residents and business representatives. The Intermodal Station Plan was adopted and incorporated into the Union City General Plan. The greater development area around the BART Station became known as the Station District area. The Intermodal Station Plan identified transit-oriented development (TOD) opportunities surrounding the Intermodal Station and an opportunity to modernize the existing 1970s Union City BART Station (“BART Station”) with the vision of making the BART Station a two-sided station with direct pedestrian access to an underutilized 100- acre site to the east of the BART Station, the former PG&E Pipe Storage Yard and the defunct Pacific State Steel Corporation (PSSC) site.
In 2002, BART prepared and adopted the Union City BART Station Comprehensive Station Plan (BART CSP) that included a direct BART-rail connection, creating a Southern Alameda County regional rail hub surrounded by TOD. The BART CSP incorporated the vision of the Intermodal Station Plan to create a free “pedestrian pass-through” without entering a paid area to enable transit riders and Station District residents’ easy access to buses, BART trains, the future passenger rail station, Station District housing and commercial areas. Union City also prepared and adopted specific plans to guide development in the Station District area, including the most recent Station District Specific Plan, Resolution No. 6026-22.
City Council/RSA Agenda 237 Tuesday, December 12, 2023
Intermodal Station, Phase 3/Intercity Rail Station MOU Page 2 of 6 The Union City Intermodal Station, Phase 1, included reconfiguring the 14-acre Union City BART Station site to create a new 16-bay bus facility at the front entrance of the station serving AC Transit, Dumbarton Express and UC Transit; providing multiple points of access for pedestrians, bicycles, and buses to the BART Station with a new roadway to Decoto Road named Station Way; reconfiguring the BART parking lot to allow future conversion to transit-oriented housing and a jobs center with commercial uses; and improving passenger circulation on the BART southbound platform through the relocation of elevators, widening passenger platforms, installing additional escalators and stairs, and creating a new transit drivers’ facility (break area and restrooms) within the BART Station.
The Union City Intermodal Station, Phase 2 and Phase 2A, included BART Station building improvements on the northbound side of the station including relocating elevators, installing additional stairs and escalators, widening, and lengthening the station passenger platform, and re-organizing the fare-gates to accommodate a free “pedestrian pass-through” inside the station and allow for the new east entrance into the BART station.
Union City’s Redevelopment Agency investments, along with federal, state, and local funds facilitated the Union City Intermodal Station improvements and led the planning and design effort with BART oversight and approvals. BART advertised, awarded, and administered the construction contracts for all project phases including preparing As-Builts and project Close-Out.
In 2014, Union City began the design of a pedestrian at-grade crossing over the Union Pacific Railroad tracks (Oakland Subdivision) to complete the free pedestrian pass-through and the east entrance into the BART Station. In 2017, the California Public Utilities Commission (CPUC) approved a new BART pedestrian at-grade crossing and the related closure of an existing public at-grade crossing at “I” Street.
The at-grade crossing project will enable residents and transit patrons to access a future passenger rail station from the BART Station. Union City is working with Union Pacific Railroad and the CPUC to finalize project plans and secure the required permits for construction and maintenance of the pedestrian at-grade crossing.
RECITALS
A. Whereas, the Environmental Impact Report (EIR) for the East West Connector (EWC), a transportation corridor from I-880 in Fremont to Mission Boulevard (Route 238) in Union City was approved in 2009 by Alameda County Transportation Agency (ACTA) and this corridor provides critical secondary access for all modes (pedestrians, bikes, transit, tech shuttles, and vehicles) to and from the Union City BART Station and supports future high-density development in the Station District area; and
B. Whereas, in 2018 the cities of Fremont and Union City became Project Sponsors for the EWC and Fremont renamed their segment Decoto Complete Streets, and Union City renamed their segment Quarry Lakes Parkway because it will provide a new gateway to East Bay Regional Park’s Quarry Lakes Regional Park; and
C. Whereas, the Phases 1-5 of Quarry Lakes Parkway consist of a new landscaped multimodal transportation corridor with a buffered Class II bicycle facility and a separated Class I multi-use path between Paseo Padre Parkway in Fremont to Mission Boulevard in Union City. The new local roadway, parallel to Decoto Road, will provide critical secondary access for public safety, City Council/RSA Agenda 238 Tuesday, December 12, 2023
Intermodal Station, Phase 3/Intercity Rail Station MOU Page 3 of 6 pedestrian, bike, vehicle, transit, employer shuttles, and vehicles to the Intermodal Station area.
The roadway right-of-way corridor has been preserved for the Quarry Lakes Parkway project; and D. Whereas, in cooperation with SJRRC, the Metropolitan Transportation Commission (MTC) has completed the Southern Alameda County Integrated Rail Analysis (SoCo Rail) Study Phase 2 Report that identified the Union City Intermodal Station as the preferred location to construct a Southern Alameda County Regional Rail hub to provide passenger rail service from the Bay Area to the Central Valley, consistent with the policies of the California State Rail Plan; and E. Whereas, the Participants desire to memorialize in this non-binding MOU their shared understanding for the roles and responsibilities of SJRRC and Union City in completing the environmental review processes for the Union City Intermodal Station, Phase 3/Intercity Rail Station; and
F. Whereas, Union City Intermodal Station, Phase 3/Intercity Rail Station will include constructing a new Altamont Corridor Express (ACE®) passenger rail station on the Oakland Subdivision and the layover rail facility within a portion of the 16-acre Waste Consolidation Area (WCA), on the east side of the Union City BART Station. The Intercity Rail Station will serve the Central Valley passenger rail service to the Bay Area, which is planned from Chico, Stockton, and Merced (Valley Rail Program) with later connections to high-speed rail (CHSR); and G. Whereas, the voters of Alameda County approved Measure BB in 2014, which enacted a 30-year sales tax to provide funding for transportation projects, and included a Transportation Expenditure Plan (TEP) that identified $75.0 million for TEP 22: Union City Intermodal Station; and H. Whereas, the City Council of Union City has identified Quarry Lakes Parkway as a high priority project in the approved 2019 City of Union City Strategic Plan for improving local circulation, providing secondary access for public safety and critical infrastructure for the build-out of the Station District Area; and
I. Whereas, in March 2021, the City Council of Union City adopted a resolution committing $72 million of the $75 million of TEP 22 funds: Union City Intermodal Station to Quarry Lakes Parkway; and J. Whereas, in May 2023 the City Council of Union City adopted Resolution No. 6136-23, Resolution of the City Council of the City of Union City Authorizing the Commitment of $3.0 Million from the 2014 Measure BB Transportation Expenditure Plan (TEP) Funds for the Union City Intermodal Station Project to SJRRC for the Environmental Clearance/Preliminary Engineering of the Union City Intermodal Station, Phase 3 (Intercity Rail) Project; and K. Whereas, Union City and SJRRC are seeking authorization from the Alameda County Transportation Commission (Alameda CTC) to grant and release $3 million of TEP-22 funds SJRRC in order to complete preliminary engineering and prepare a California Environmental Quality Act (CEQA) Environmental Impact Report (EIR) and a National Environmental Protection Act (NEPA) Environmental Assessment (EA) for the Union City Intermodal Station, Phase 3/Intercity Rail Station Project with SJRRC as the rail provider; and
L. Whereas, SJRRC and SJJPA have each authorized $250,000 from State Rail Assistance funding ($500,000 total) towards completing a CEQA EIR and a NEPA EA for the Union City Intermodal Station, Phase 3/Intercity Rail Station; and
City Council/RSA Agenda 239 Tuesday, December 12, 2023
Intermodal Station, Phase 3/Intercity Rail Station MOU Page 4 of 6 M. Whereas, the Participants agree that this MOU is the next step toward the ultimate design and construction of Union City Intermodal Station, Phase 3/Intercity Rail Station only and new MOUs will be negotiated for future phases; and
N. Whereas, the Participants desire to memorialize in this non-binding MOU their shared intent to negotiate agreements (Agreements) establishing the roles and responsibilities for the Participants regarding the implementation of the Union City Intermodal Station, Phase 3/Intercity Rail Station as it develops and expect that this process will be collaborative, transparent, and iterative; and O. Whereas, the Participants agree to work together toward entering into the necessary Agreements to achieve common agreed-upon goals concerning Union City Intermodal Station, Phase 3/Intercity Rail Station.
NOW, THEREFORE, THE PARTICIPANTS SHARE THE FOLLOWING UNDERSTANDING OF THE TERMS TO BE INCLUDED IN THE NEGOTIATED AGREEMENTS:
1. Responsibilities and Provisions for the City of Union City:
a) Union City is the Project Sponsor for Quarry Lakes Parkway, Phase 1-4 in Union City, and will lead the design and construction phases.
b) Union City will be a project partner for the Union City Intermodal Station, Phase 3/Intercity Rail Station.
c) Union City will be a participating agency throughout the environmental review and approval process for Union City Intermodal Station, Phase 3/Intercity Rail Station. d) Union City will negotiate in good faith with the SJRRC regarding the terms and conditions of the City transferring ownership and/or control of certain property, the exact location of which has not yet been determined, to be used for ACE® rail service at the Union City Intermodal Station, Phase 3/Intercity Rail Station, subject to approval by the City Council.
2. Responsibilities and Provisions for SJRRC:
a) The SJRRC will be the Project Sponsor and Lead Agency in preparing and certifying the CEQA EIR and coordinating with the appropriate federal agency for certifying the NEPA EA for the Union City Intermodal Station, Phase 3/Intercity Rail Station project. b) For funding purposes, the SJRRC will be the Sponsoring Agency in the design and construction of the Union City Intermodal Station, Phase 3/Intercity Rail Station project. c) The CEQA/EIR and NEPA/EA will include an analysis of both the partial and complete removal of the 16-acre Waste Consolidation Area (WCA), owned by the City of Union City, which is composed of 440,000 cubic yards of slag and other materials stockpiled after the remediation of the former Pacific States Steel site located within the Station District area.
City Council/RSA Agenda 240 Tuesday, December 12, 2023
Intermodal Station, Phase 3/Intercity Rail Station MOU Page 5 of 6
3. Both Participants:
a) Union City and SJRRC will jointly seek the approval of the ACTC to release $3 million in TEP-22 funds to SJRRC in order to complete preliminary engineering and prepare the CEQA) EIR and NEPA EA for the Union City Intermodal Station, Phase 3/Intercity Rail Station with SJRRC as the rail provider.
b) Union City and SJRRC will jointly seek funding needed for the design and construction of the Union City Intermodal Station, Phase 3/Intercity Rail Station. c) After certification of the environmental documents, Union City and SJRRC expect to further partner to define responsibilities of the respective agencies relating to the implementation of Union City Intermodal Station, Phase 3/Intercity Rail Station and on design, permitting, and construction of grade separation structures over Quarry Lakes Parkway, Phase 4 for both BART and the Union Pacific Railroad (Oakland Subdivision).
4. OFFICIAL COMMUNICATIONS
The respective contact points for communication and information exchange, as well as any notices required to be submitted under this MOU are:
• Stacey Mortensen, Executive Director, SJRRC
• Dan Leavitt, Manager of Regional Initiatives, SJRRC
• Autumn Gowan, Procurement and Contracts Manager, SJRRC • Joan Malloy, City Manager, City of Union City
• Jennifer Phan, Deputy City Manager, City of Union City • Marilou Ayupan, Public Works Director, City of Union City
5. NON-BINDING MOU
a. This MOU is a non-binding, voluntary initiative, and it does not create any legally binding rights, limitations, or obligations upon Participants. This MOU does not purport to include all provisions relative to the structure or terms of the proposed transaction or definitive documents. Rather, Participants agree to memorialize binding commitments in future agreements as they are negotiated. Each party shall bear its own costs related to this effort unless otherwise agreed to in writing.
b. Should Participants reach an impasse in the collaborative effort anticipated by this MOU, the contact points (identified above) will make an expeditious and good faith effort at working together to resolve the impasse. Should that effort be unsuccessful, the Participants agree to elevate the outstanding issues to their respective governing body who will then make an expeditious and good faith effort at working together to resolve the impasse. c. This MOU is not intended to amend or impact in any way other existing written agreements or MOUs that Participants may have entered pertaining to SJRRC, SJJPA, ACE® Service, SJ Services, the Valley Rail Program, or any Union City projects, in general.
City Council/RSA Agenda 241 Tuesday, December 12, 2023
Intermodal Station, Phase 3/Intercity Rail Station MOU Page 6 of 6 d. This MOU is effective from the date of its last signature and shall remain in effect until another MOU or agreement is executed between the Participants, or one Participant withdraws from the MOU, whichever is earlier.
e. Either Participant may, at any time, withdraw from this MOU by providing thirty (30)-day written notice to the other Participant.
f. This MOU may be executed in two or more counterparts, each of which shall be deemed an original, but all of which taken together shall constitute one and the same instrument.
Facsimile, pdf., or electronic/computer-image signatures will be treated as originals.
IN WITNESS WHEREOF, and in acknowledgement that the Parties hereto have read and understand each and every provision hereof, the parties have authorized the signers of this MOU to sign on their behalf.
San Joaquin Regional Rail Commission
By: _________________________________
Its: _________________________________
Date: ________________________________
City of Union City
By: _________________________________
Its: _________________________________
Date: ________________________________
Approved as to Form and Procedure
By: _________________________________
Its: _________________________________
Date: ________________________________
City Council/RSA Agenda 242 Tuesday, December 12, 2023
Agenda Item
DATE: 12/12/2023
TO: HONORABLE MAYOR AND CITY COUNCIL
FROM: CARMELA CAMPBELL, ECONOMIC AND COMMUNITY
DEVELOPMENT DIRECTOR
SUBJECT: ECONOMIC DEVELOPMENT UPDATE
See attached staff report.
STRATEGIC PLAN ALIGNMENT
BACKGROUND
DISCUSSION
FISCAL IMPACT
RECOMMENDATION
Prepared by:
Gloria Ortega, Economic Development Manager
Submitted by:
Carmela Campbell, Economic and Development Manager
City Council/RSA Agenda 243 Tuesday, December 12, 2023
ATTACHMENTS:
Description Type
Staff Report - Economic Development Update Resolution
Attachment I - Industrial Map Attachment
City Council/RSA Agenda 244 Tuesday, December 12, 2023
Agenda Item
DATE: DECEMBER 12, 2023
TO: HONORABLE MAYOR AND CITY COUNCIL
FROM: CARMELA CAMPBELL, ECONOMIC AND COMMUNITY AND DEVELOPMENT
DIRECTOR
SUBJECT: ECONOMIC DEVELOPMENT UPDATE
EXECUTIVE SUMMARY
This report provides an update on economic development within the City including recent real estate transactions and new businesses, noteworthy accomplishments by the Economic Development Division guided by the City’s Strategic Plan and Economic Development Strategic Plan, and what is anticipated for 2024.
STRATEGIC PLAN ALIGNMENT
This report highlights economic development achievements and activities, which support several Strategic Plan goals and strategies.
BACKGROUND
On January 27, 2015, the City Council adopted the first Economic Development Strategic Plan (ED Strategic Plan). The Plan was updated in 2019 and is planned to be updated in 2024. In 2019, the City Council also adopted a city-wide strategic plan, which was updated in 2021 and most recently in September 2023.
The vision for the ED Strategic Plan is to “decrease the City of Union City’s revenue gap by increasing revenues from sales and property taxes; increase the number of high-paying jobs for citizens and others who support our economic vitality; support the improved utilization of vacant commercial/industrial and underutilized parcels, and warehouse buildings to more efficient uses; and increase the visibility of Union City as a strategic location for innovative businesses and investors.” The ED Strategic Plan focuses on three pillars of economic development: business attraction, business retention, and marketing and promotion.
The main goals of the Economic Development Strategic Plan are as follows:
Goal 1 - Develop a marketing campaign to promote Union City as “location of choice” for businesses and investors to grow the City’s economic base and spur new reinvestment in the commercial/industrial sector.
City Council/RSA Agenda 245 Tuesday, December 12, 2023
Economic Development Update
December 12, 2023
Goal 2 A -To attract businesses that diversify the local economy, provide high-paying jobs for Union City residents, and increase City revenue. (GP Goal ED-2) Goal 2 B - To grow retail sales by attracting tenants that offer goods and services not offered in the city – reduce retail leakage.
Goal 3 A - To support Union City’s commercial/industrial sector businesses to ensure they remain in Union City and remain a vital part of the City’s economic base. Goal 3 B - To support Union City’s Retail sector and small businesses to ensure they remain a vital part of the City’s economic base.
Several of the ED Strategic Plan goals focus on the City’s “industrial” sector; specifically, manufacturing, warehouse and distribution, construction, food production, sales and services, and research and development uses. Business attraction requires strong partnerships with brokers working in the marketplace, flexible zoning and development standards that support renovation of existing industrial stock and new developments challenged by limited land availability. Businesses located in the City’s Industrial areas generate jobs, business-to-business sale tax and use taxes. The City’s diverse industrial business sectors are important to the City’s economic health.
As we report successes, challenges, and opportunities, it is important to note that even the best of plans and strategies did not anticipate the disruption caused by the onset of the pandemic. Beginning in January 2020, news of the COVID-19 outbreak was making the airways and by April 2020 the Alameda County Health Department began issuing State of Emergency orders requiring isolation and business shut-downs.
Economic Development staff pivoted and focused on keeping businesses informed of the latest information from the CDC, the State of California, and the Alameda County Health Department as well as grant opportunities. ECD staff, including the Economic Development Division, also worked to implement programs to support Union City businesses including a Temporary Outdoor Dining Program and a Small Business Assistance Grant Program. These efforts were a major focus for the Economic Development Division during the pandemic.
DISCUSSION
Union City remains an attractive location for businesses with its skilled labor pool, and proximity to the Port of Oakland, the Foreign Trade Zone, interstate highways, and three international airports. Union City’s Industrial areas include: the Central Business Park, Alvarado Business Park, and the Lincoln Alvarado Business Park. See Attachment 1: Industrial Sector Map and Zoning Districts for the locations of these areas.
Economic Development Accomplishments
The Economic and Community Development Department accomplished several projects to support the City’s Strategic Plan and the ED Strategic Plan, which are described below. Evaluation of Business License Taxes to Increase Revenues and Mitigate Cost of Less Productive Warehouse Uses
City Council/RSA Agenda 246 Tuesday, December 12, 2023
Economic Development Update
December 12, 2023
The City’s Strategic Plan and ED Strategic Plan includes strategies to support the transformation of warehouse buildings to building types that accommodate more productive uses. The City Council affirmed their desire to have staff focus on this effort by including a strategy in the City’s Strategic Plan to analyze the feasibility of transforming warehouses to attract high-value industrial and commercial uses.
As part of the implementation of this strategy, staff was directed to evaluate potential increases to the City's business license tax for warehouse uses. In 2021, the City commissioned HdL Companies ("HdL") to prepare a study to evaluate the City’s business license tax structure. Based on HdL’s feedback, the study was expanded to evaluate business license taxes for all types of businesses with the goals of expanding revenue and simplifying the City’s business classification system. The study entitled “Business Tax Analysis and Ordinance Review” (“Study”) was presented to the Council, the Ad-Hoc Subcommittee, and EDAT and is available at
https://unioncity.novusagenda.com/agendapublic/CoverSheet.aspx?ItemID=3251&MeetingID=1549.
City staff is currently working with HdL to validate the financial projections of the previous Study and refine the analysis to determine the best business license tax structure to increase General Fund revenues while meeting other City economic development goals such as business recruitment/retention and support of small businesses. It is anticipated this will be brought to EDAT and City Council in the first quarter of 2024.
Zoning Ordinance Updates to Support Business Attraction /Retention In July 2023, the City Council approved updates to the City’s Industrial Zoning Districts to support business attraction and retention. See below for a detailed overview of these updates.
Modernizing and Simplifying Industrial Zoning Regulations The City Council approved updates to use regulations for the City’s Industrial Zoning Districts. The updates combined similar uses, removed antiquated use qualifications, and consolidated uses for all Industrial Zoning Districts into a single table for ease of review. New uses were also added to provide for a more varied industrial mix and to reflect current trends including: breweries, distilleries, and wineries with on-site tasing rooms and accessory food uses; indoor farming and cultivation; and maker spaces.
Supporting the Development and Construction of Industrial Buildings To provide for additional flexibility and to reflect current market demand, height standards were increased, and setbacks were decreased. This also makes better use of the City’s limited areas zoned for industrial uses. Within the MS Zoning District setbacks were reduced from 65 feet to 25 feet to allow adequate setback area while providing additional area on-site for development. Maximum building heights were also increased from 40 to 55 feet in height.
City Council/RSA Agenda 247 Tuesday, December 12, 2023
Economic Development Update
December 12, 2023
Ensuring Industrial Buildings Are Well Designed and Can Accommodate a Variety of Uses Design criteria and performance standards were added to ensure future industrial developments are well-designed and can accommodate a variety of flex-industrial uses including office and research and development. The standards encourage attractive architectural developments, create a stronger sense of place and a more positive image for the industrial districts, which assists with business attraction and retention.
Streamlining the Planning Process
The City Council also approved an update to the City’s Site Development Review (SDR) process to make the Planning Commission the decision maker instead of the City Council. SDR is required for development of any new or substantial redevelopment of a building and/or site. This change streamlined project reviews, aligns the City’s process with those in neighboring jurisdictions, and provides an appeal process for the public and City Council should they want to call a project up. This update was consistent with a prior Strategic Plan City Council priority to streamline the planning process to support business retention and expansion.
Growing and Maintaining Partnerships with Union City Businesses and Broker Community In 2022, the “Working Together to Identify, Collaborate, Address, Initiative” (“Initiative”) was launched to ensure our industrial community is a place where businesses want to stay, feel safe and prosper. Two Industrial Roundtables were convened in 2022 and 2023, in response to truck parking for extended periods of time, abandoned vehicles, homeless encampments, illegal dumping, vehicle break-ins and more. The focus of the Initiative is to reinforce the importance of public/private partnership to work together to address challenging conditions. The success of the collaboration is based on the understanding of what cities can do in the public realm and what steps businesses and property owners can take to ensure the security and safety of their businesses and employees. While there are often no quick fixes to challenging situations, the Initiative ensures that our businesses know that the City is a partner at the table working with them.
Brokers partnerships are an important asset to attracting and retaining businesses. They are on the front line of business attraction and are often the first to know business expansion needs. In May 2023, a Broker’s event was held to provide an overview of proposed zoning updates. Brokers from the top area brokerages, representing owners and tenants in Union City, were present.
Economic Development Analysis
In June 2022, the City Manager’s Office retained Management Partners, a consulting firm, to evaluate the City’s economic development opportunities and challenges. See below for some of the major takeaways from the report.
Major new business and retail opportunities are limited by the lack of available land. Infill or redevelopment by the private sector may occur, but it will be over the long term.
City Council/RSA Agenda 248 Tuesday, December 12, 2023
Economic Development Update
December 12, 2023
Low vacancy rates in both the industrial and retail sectors are positive economic indicators, but as a result there is little room for expansion of major sales tax generators in the near term. An investment in an in-depth analysis of the business and retail sectors would assist City policymakers and staff in determining where to allocate scarce resources over the next five years in support of specific economic development objectives. This includes staff time, infrastructure investment and land use policies.
An updated Economic Development Strategic Plan would provide an opportunity for policymakers to achieve consensus about priorities and policies.
Management Partners also found that Union City is the only agency among all peers that has just one fulltime staff member focused on economic development. Each of the peer agencies has at least two full-time economic development staff. Based on Management Partners’ findings, the City Council approved the addition of an Economic Development Coordinator position to be filled early next year.
Despite having low levels of staffing supporting economic development efforts and challenging market conditions, the report revealed significant success in meeting the City’s economic development goals and in many cases exceeded expectations. The accomplishments reported are not attributed to any one person or department, but rather the clear focus on goals defined in both the City’s Strategic Plan and, ED Strategic Plan, market conditions, public private partnerships, and the collective efforts of all City staff.
Significant New and Expanded Businesses
Union City manufacturing sector is on the move and the City has seen expansion and growth in contract manufacturing, medical devices, semiconductors, and life science research and development. Investors are also seeing opportunities for investment and redevelopment in underutilized buildings and parcels.
New Businesses
August 2022 - Tenaya Therapeutics relocated to the newer Central Pacific business park from South San Francisco. Tenaya Therapeutics brings to Union City an impressive team of cardiovascular scientists from diverse disciplines, including genetics, rare disease, and gene therapy research, putting them on the cutting edge of scientific innovations.
February 2023 - Foxsemicon Integrated Technology Incorporation (FITI) opened its first precision machining facility in the 7th Street Industrial area. They manufacturer precision components/modules/systems for semiconductor, medical and automation equipment industries. March 2023 - BillionToOne expanded its laboratories to Union City Labs (formerly Crossroads Technology Park). The company provides prenatal risk screening to California residents.
Business Expansion
City Council/RSA Agenda 249 Tuesday, December 12, 2023
Economic Development Update
December 12, 2023
June 2023 - Mizuho OSI continues to expand its manufacturing footprint with increased demand for their specialty surgical beds. A pioneer in the field, they dominate the market.
Union City’s Industrial Sector Transformation- Property Sales and Acquisitions In the period between 2021 to 2023, 34 industrial sales have occurred and include the following industrial types: manufacturing, warehousing, flex, and industrial space.
Significant Real Estate Acquisitions
3200-3280 Whipple Road - Tarlton Properties, Inc. acquired Crossroads Technology Park and rebranded it to “Union City Labs”, with a focus of offering laboratory space to life science firms. 33589 Central Avenue - Tarlton Properties, Inc. acquired a building from a tropical fruit wholesaler and are renovating the 61,707 square foot building into an office complex for life science uses. 30300 Union City Boulevard - Woodstock Development (former owner of Crossroads Technology Park) purchased 12.63 acres located across from Tara Court. The development includes construction of five (5) new flex industrial buildings totaling approximately 297,000 square feet, designed to accommodate office / research / life science / and manufacturing. Western Avenue - United Mechanical and Metal Fabricators, Inc. (UMEC) is a women and minority owned manufacturing business who supports the transportation, semiconductor, solar, clean-tech, medical device, and biotech industries. She currently owns a facility on Lewis Street and acquired a oneacre parcel on Western Avenue with expansion plans to develop a 23,000 sq. ft. building. This is a great example of a local business committed to growing their business in Union City. Central Bay Business Park. Over the past two years, Fortinet, a leader in cybersecurity, purchased five (5) parcels adding to their current location on Atlantic Street. They are currently working on site development plans to connect the parcels and redevelop the locations. As concepts are developed, staff will report back to EDAT and the City Council.
Union Landing Update
The ED Strategic Plan recognizes Union Landing as a regional destination and significant sales tax generator for the City. Many of the City’s top 25 sales tax generators are located at Union Landing. Union Landing properties are part of a Property Business Improvement District (PBID), which collects assessments to cover the cost of three (3) dedicated police officers and marketing activities including maintenance of a website for the center and infrastructure projects (which are described below in more detail). The PBID is governed by the Union Landing Property Owner’s Association (ULPOA) and a fivemember Board of Directors. The PBID also covers costs for administrative support including funds for staff City Council/RSA Agenda 250 Tuesday, December 12, 2023
Economic Development Update
December 12, 2023
support. The Economic Development Manager provides administrative support to the PBID and ULPOA.
Some notable updates include:
Opening of Columbia Employee Store – The Columbia Employee Store opened last month and introduces an exciting new retail concept to Union Landing, which is a no-cost membership store offering deep discounts on Columbia’s brand family (e.g., Mountain Handwear, Sorel, prAna, and Columbia).
Low Vacancy at Union Landing – Despite losing some long-term big box tenants over the last several years due to the decline of brick and mortar and the pandemic, Union Landing has managed to fill these vacancies with popular stores such as Ross, Burlington, and Video Only. Union Landing has also seen an influx of new restaurant uses including Dave’s Hot Chicken, Menyo Shono, and The Habit Burger.
The shopping center’s low vacancy rate is a testament to its popularity and market draw. Public/Private Partnership to Maintain the Center as a Retail Destination – The City partnered with the ULPOA on renovation of three (3) gateway areas along Dyer Street to reflect the shopping center’s new branding and to enhance the entrances to the center. This spring the City will be partnering with the ULPOA on a project to improve the City-owned medians along Union Landing Boulevard near Alvarado-Niles Road.
The ULPOA Directors are very committed to developing strategies to improve the City-owned pylons to reflect the center’s updated brand. While many view the pylons as just freeway signage, tenants value the freeway visibility and sign requests for pylon visibility is in great demand. The ULPOA formed a subcommittee to consider options for renovating the pylon signs.
Planning for the Future, Goals and Strategies to Maintain a Healthy Economy In 2024, staff will begin work on an update to the ED Strategic Plan, taking into consideration the following:
Business Attraction – Identify opportunities for growth despite low vacancy rates in the industrial sector (currently 1.4% for all property types) and ensure our retail centers remain strong. Business Retention – Develop strategies to engage businesses to understand their needs/concerns opportunities; support businesses that generate jobs and business-to-business revenues; address environment concerns that threaten the safety of employees and property; address workforce recruitment strategies.
Marketing and Promotions - Evaluate strategies that are the most impactful in attracting and retaining businesses and growing the City’s economy.
The update to the ED Strategic Plan will also take into consideration current market conditions including the City’s business clusters and how best to positively impact the City’s various economic “drivers.” Below is a highlight of those economic drivers that impact City revenues.
City Council/RSA Agenda 251 Tuesday, December 12, 2023
Economic Development Update
December 12, 2023
Staff will be engaging EDAT and the City Council at key milestones during the update process to solicit feedback.
FISCAL IMPACT
There is no fiscal impact to the General Fund from receiving this report.
RECOMMENDATION
Staff recommends that the City Council receive this report and ask any clarifying questions.
Attachment 1: Map of City’s Industrial Areas
Prepared by
Gloria Ortega, Economic Development Manager
Submitted by
Gloria Ortega, Economic Development Manager
City Council/RSA Agenda 252 Tuesday, December 12, 2023
Industrial Hub
Attachment: I
City Council/RSA Agenda 253 Tuesday, December 12, 2023