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S E P T E M B E R 2 0 1 0 I 13 CHAPTER TWO existing conditions The plan area has many from its location and mix of uses to its strong surrounding neighborhoods and great transit access. The Avenue also has some significant issues and constraints that need to be addressed. Future planning should build upon the area’s existing assets, maximize promising opportunities, and work to counter challenges. This chapter describes San Pablo Avenue’s historical context as well as assets, constraints and potential opportunities. More detailed information can be found in the San Pablo Avenue Specific Plan Existing Conditions Report, located in Volume III Technical Appendices. IN THIS CHAPTER... History of Development Assets Issues and Opportunities ---PAGE BREAK--- v o l u m e I c h a p t e r t w o 14 I S A N P A B L O A V E N U E S P E C I F I C P L A N D R A F T HISTORY OF DEVELOPMENT San Pablo Avenue is one of the oldest roads in the East Bay. It largely follows the Spanish colonial route of Camino de la Contra Costa, which extended north and east along the bay shore from present day Oakland to the Carquinez Strait. It was the main road connecting many of the ranchos in the East Bay and by the mid-1800s was the route of a stage line between Oakland and Martinez. In the early 1900s, El Cerrito experienced growth and change. At the time, the El Cerrito hills were primarily used for cattle grazing and two large quarry operations. Traditional land uses in the flatlands were ranching and dry farming. This period saw the expansion of thriving Japanese nursery operations, and the start of an Italian nursery industry and community. At the time of the 1906 earthquake 15 subdivisions had been laid out in the area, with many located in today’s Plan Area. El Cerrito was connected to the cities of Oakland, Berkeley and Richmond by a streetcar line that ran the length of San Pablo Avenue. In addition, two Santa Fe Railway stations ensured that El Cerrito was well connected to areas further afield. Following the earthquake, El Cerrito did not experience significant growth. By 1915 the street grid had grown far beyond the Plan Area, and extended from San Pablo Avenue west toward the bay and east into the hills (see Figure 2.1). Commercial activity in the Plan Area was focused along the county line, and at San Pablo and Potrero Avenues. The northern part of the Plan Area later came to be known as Stege Junction and was the hub of the Italian community. There were a variety of commercial activities taking place along San Pablo Avenue. The area was known for its saloons and the busy slaughterhouse located on Central Avenue. There are historic reports of horsemen driving cattle down San Pablo Avenue from a corral maintained by the Santa Fe Railway on Fairmount Avenue to the slaughterhouse. In the 1930s the Eastshore Highway (which would later become US 40 and then Interstate 80) was constructed. This highway replaced San Pablo Avenue as the primary north-south route through the area. By mid-century, El Cerrito’s street grid was largely filled out and has changed little since. Over the past two decades, San Pablo Avenue has undergone many improvements. Of particular note was the Caltrans rehabilitation in 2005- 2006. New mixed-use, retail and residential development has sprung up along San Pablo Avenue in nearby Berkeley and Emeryville, signaling revitalization along the corridor. ---PAGE BREAK--- e x i s t i n g c o n d i t i o n s S E P T E M B E R 2 0 1 0 I 15 1899 1915 1942 1959 1980 1993 Figure 2.1 Historic Maps of San Pablo Avenue ---PAGE BREAK--- v o l u m e I c h a p t e r t w o 16 I S A N P A B L O A V E N U E S P E C I F I C P L A N D R A F T ASSETS San Pablo Avenue and the surrounding area offer many unique and strategic assets. Leveraging these positive attributes will help to create a truly vibrant, mixed-use corridor. Well-Established Neighborhoods The plan area is bordered on both sides by strong, well-established neighborhoods that provide a stable and nearby residential population, as well as a market to support retail and commercial uses along the Avenue. To the west of San Pablo Avenue, near El Cerrito City Hall, is the Richmond Annex, a well-organized neighborhood of residents. The east side of the Avenue is characterized by level ground giving way to the hillside residential neighborhoods of El Cerrito. The hillside neighborhoods are primarily single family in nature but transition to a mix of multi-family residential approaching San Pablo Avenue. Some streets off of the Avenue that provide access to the hillside neighborhoods, such as upper Fairmount Avenue and Stockton Avenue, include community uses such as schools, the Library, Senior Center and Veterans Hall, and neighborhood retail uses such as coffee shops, restaurants, mini-marts, and boutique gift shops. Multi-modal Access The plan area is blessed with a wide range of multi-modal transportation options such as BART service, multiple bus lines (including an AC Transit Rapid Bus line), and bicycle routes (see Figure 2.2). BART There are two BART stations within the plan area, both in the City of El Cerrito. The Del Norte and El Cerrito Plaza BART stations primarily serve commuters who work in the major employment centers of San Francisco and Oakland. In addition to local residents who commute to work, many BART riders drive or travel by bus from Solano County and the Western Contra Costa County to access the Del Norte BART station and ride onward to their destinations. v o l u m e I c h a p t e r t w o Del Norte BART Station is a major asset located on San Pablo Avenue. ---PAGE BREAK--- e x i s t i n g c o n d i t i o n s S E P T E M B E R 2 0 1 0 I 17 Ohlone Greenway El Cerrito Plaza BART Station El Cerrito del Norte BART Station RICHMOND ST KEY BLVD NORVELL ST SCHMIDT LN NAVELLIER ST SAN JOAQUIN ST S 55TH ST MANILA AVE STOCKTON AVE BLAKE ST SAN MATEO ST PORTOLA DR DONAL AVE BAYVIEW AVE GLADYS AVE LINCOLN AVE POMONA AVE WALDO AVE ALBEMARLE ST SUTTER AVE FRESNO AVE JORDAN A VE SCOTT ST MONTEREY ST S 47TH ST HAGEN BLVD CUTTING BLVD NEVIN AVE CLAYTON AVE HILL ST ALVA AVE KNOTT AVE AVIS DR LAWRENCE ST CARL AVE C E NTRAL A VE VAN FLEET AVE SANTA CRUZ AVE CARQUINEZ AVE HUNTINGTON AVE TAMALPAIS AVE SHASTA ST BERK AVE BUTTE ST SAN JOSE AVE S 52ND ST KEARNEY ST FALL AVE GANGES ST ISABEL ST CYPRESS AVE GATELY AVE PIERCE ST YOSEMITE AVE S 56TH ST MERCED ST S 45TH ST GATTO AVE EL DORADO ST MARIPOSA ST MONO AVE ALAMEDA AVE CREELY AVE HARPER ST J ACUZZI S T S 59TH ST L A GUNI T A S A VE CONLON AVE S 58TH ST SAN BENITO ST HARTNETT AVE BELMONT AVE MENDOCINO ST AVILA ST FERN ST S 50TH ST JEFFERSON AVE OVEREND AVE WILSON AVE MADISON AVE TULARE AVE SNOWDON AVE COLU MBIA AVE M IR A V ISTA D R FALLON AVE CARLSTON ST GLEN MAWR AVE CARLOS AVE RYDIN RD KING DR S 57TH ST LIBERTY ST ELLS ST WESLEY AVE LASSEN ST PI NE HU RST SCHOOL AVE HUDSON ST SANTA CLARA AVE FRAY AVE STATE AVE OSCAR ST TAFT AVE TERRACE DR WALNUT ST ORCHARD AVE JULIAN DR OAK ST RIVERA ST LUDWIG AVE CAMPBELL ST KENILWORTH AVE PLANK AVE SEAVIEW PL WALL AVE KENT DR S 49TH ST EASTSHORE BLVD SAN LUIS ST LEXINGTON AVE SP Y G LASS SCENIC ST PLACER ST PANAMA AVE CEDAR ST DIMM ST CABRILLO ST ALTA PUNTA ST MADERA DR TEHAMA AVE WENK AVE F ST SANTA CLARA ST EUREKA AVE 46TH ST 45TH ST REID CT BISSELL AVE EDITH ST WALDO LN MOUND AVE A R N O CT DOW NEY P L MODOC AVE M A D E RA CIR PLUMAS AVE BEHRENS ST VICTORIA ST YOLO AVE FAIRVIEW AVE GLORIA ST S 46TH ST CASTILLA AVE HOTCHKISS AVE SACRAMENTO AVE CORONADO ST GORDON AVE BURLINGAME AVE JUL I A N C T MANOR CIR STATE CT BELL CT MORRIS AVE P E B B L E BEA C H DR MADERA CT NAPA ST PRATHER AVE PLAZA WY HERSHEY CT MC LAUGHLIN ST TAHOE PL WALL AVE ESCUELA CT WILLOW ST MAIDEN LN HARVARD ST POMONA CT PINEHURST BREWSTER CT SACRAMENTO AVE SANTA CLARA ST MADISON AVE S 47TH ST MARIPOSA ST S 49TH ST VAN FLEET AVE KEARNEY ST LEXINGTON AVE EVERETT ST KEARNEY ST PANAMA AVE S 49TH ST LEXINGTON AVE SAN JOSE AVE MERCED ST SAN LUIS ST PLUMAS AVE EUREKA AVE MODOC AVE HARVARD ST H U N T I N G TO N AVE EUREKA BURLINGAME AVE BAYVIEW AVE S 57TH ST LIBERTY ST HIGHLAND AVE JUNCTION AVE COLUMBIA AVE ELM ST NORVELL ST FRESNO AVE COLUSA AVE S 45TH ST EVERETT ST LIBERTY ST TEHAMA AVE MIRA VISTA DR LIBERTY ST KEARNEY ST S 45TH ST SANTA CLARA AVE SANTA CLARA ST CYPRESS AVE S 56TH ST WALL AVE SAN PABLO AVE SAN PABLO AVE CARLSON BLVD POTRERO AVE POTRERO AVE CENTRAL AVE MOESER LN CUTTING BLVD AR LI NG TON BLVD ASHBURY AVE FAIRMOUNT AVE BART - Richmond Line MACDONALD AVE Hillside Natural Area Mira Vista Country Club & Golf Hillside Natural Area Castro Park Booker T. Anderson, Jr. Park Cerrito Vista Park Canyon Trail Park Eastshore State Park Casa Cerrito Rec Center Point Isabel Regional Shoreline San Francisco Bay C e rrito Cr e ek B ax t er C reek I-580 I-80 Figure 2.2: Bicycle and Transit Routes Project Area Parks Waterbodies BART Station Freeway ! BART Line 0 FEET 1000 2000 N San Francisco Bay Trail Bus Stop Bus Route Existing Bicycle Route Ohlone Greenway Future Richmond Greenway BART Radius: ¼-mile ---PAGE BREAK--- 18 I S A N P A B L O A V E N U E S P E C I F I C P L A N D R A F T Buses The robust bus system along the Avenue is one of the greatest assets for the plan area. Three primary types of bus service exist on the Avenue — regional, local service and transbay. Regional bus service connects commuters from the North Bay, Vallejo, Martinez, and Solano County to the Del Norte BART station. Local buses connect the plan area with destinations in Richmond, El Cerrito, Albany, Berkeley and Oakland. AC Transit also provides Rapid Bus service (Route 72R) along San Pablo Avenue. Route 72R is a limited stop, express bus service that extends from Contra Costa College in the city of San Pablo to downtown Oakland and Jack London Square. This express line has stops within the plan area at Macdonald Avenue, Del Norte BART station, Potrero Avenue, Moeser Lane, and Carlson Boulevard. The transbay bus connects the plan area with San Francisco. Bus stops are located every one to two blocks along most of San Pablo Avenue, and numerous routes serving both local users and commuters. Bus providers include AC Transit, Golden Gate Transit, WestCAT, and Vallejo Transit. Most AC Transit routes follow San Pablo Avenue, and serve both the Del Norte and El Cerrito Plaza BART stations, especially during the peak commute hours. Del Norte BART station is a significant transit hub in the area at which more than 700 buses converge each day. The strong, AC Transit buses provide access to key destinations, such as the El Cerrito Plaza Shopping Center. The 72R is AC Transit’s rapid bus line that runs along San Pablo Avenue. v o l u m e I c h a p t e r t w o ---PAGE BREAK--- e x i s t i n g c o n d i t i o n s S E P T E M B E R 2 0 1 0 I 19 interconnected and coordinated bus system within the plan area is a significant amenity for residents and commuters, and suggests additional opportunities to capitalize on the area’s transit- oriented development potential. Bicycles The main designated bicycle route in the area is the Ohlone Greenway, which, for most of the plan area, runs parallel to the Avenue beneath the BART tracks. The Ohlone Greenway runs from Berkeley to Richmond, and more than half of its total length is within El Cerrito. The greenway is predominantly configured with an approximately eight feet wide multi-use path with minimal landscaping on either side. While there are closely spaced street crossings and noise from BART, the greenway offers a safe and pleasant route for cyclists and pedestrians. While north-south access for bicyclists and pedestrians is convenient, east-west connections to and from Richmond are difficult due to the barriers of San Pablo Avenue and Interstates 80 and 580. Potrero Avenue is the only east-west arterial that is designated as a bicycle route (Class III). However, this route does not have striped lanes (Class II). Bike connections between Ohlone Greenway and Bay Trail through the plan area are also lacking. The Ohlone Greenway is the major north-south bicycle and pedestrian trail that runs parallel to San Pablo Avenue under the BART tracks. Bicycle parking is provided at the Del Norte BART Station. ---PAGE BREAK--- v o l u m e I c h a p t e r t w o 20 I S A N P A B L O A V E N U E S P E C I F I C P L A N D R A F T Diverse Mix of Uses A wide variety of uses exist on the Avenue from small-scale retail to office and multi-family residential. The land use character of the Avenue is partially shaped by auto-oriented commercial uses developed between the 1950s and 1980s. Strip malls with parking fronting the street are mixed with auto-related businesses, restaurants, and small retailers. The Del Norte and El Cerrito Plaza BART stations also play a significant role in shaping land use character along the corridor with large amounts of parking at key activity nodes. Single and multi-family residential uses begin just off of San Pablo Avenue along many of the streets that run perpendicular and parallel to the Avenue. In recent years, there has been an increase in the construction of mixed-use development that incorporates retail, office, and residential uses in the plan area. Figure 2.3 and Table 2.1 show the allocation and distribution of existing land use in the plan area. Table 2.1 Existing Land Use Existing Land Use El Cerrito (Acres) Richmond (Acres) Total (Acres) Percent Residential Single Family Residential 9.8 1.2 11.0 5% Multi-Family Residential 19.6 4.1 25.0 12% Mixed Use 5.2 0 3.8 2% Commercial Auto-Related Business 9.6 8.6 18.3 8% Motel 1.3 1.7 3.0 1% Office 10.8 3.2 14.1 7% Retail-Oriented Business 85.3 16.8 102.1 47% Industrial 1.5 1.2 2.7 1% Vacant and Parking Vacant 3.2 3.7 6.9 3% Parking 10.6 .6 11.2 5% Public, Quasi-Public, Institutional 12.2 0.7 12.9 6% Parks, Recreation, Open Space 4.9 1.5 6.4 3% Total (Acres) 174.0 43.3 217 Percentage 80.1% 19.9% 100% Source: City of El Cerrito and Richmond GIS files. ---PAGE BREAK--- S E P T E M B E R 2 0 1 0 I 21 e x i s t i n g c o n d i t i o n s Ohlone Greenway RICHMOND ST KEY BLVD NORVELL ST SCHMIDT LN NAVELLIER ST SAN JOAQUIN ST S 55TH ST MANILA AVE STOCKTON AVE BLAKE ST SAN MATEO ST PORTOLA DR DONAL AVE BAYVIEW AVE GLADYS AVE LINCOLN AVE POMONA AVE WALDO AVE ALBEMARLE ST SUTTER AVE FRESNO AVE JORDAN A VE SCOTT ST MONTEREY ST S 47TH ST HAGEN BLVD CUTTING BLVD NEVIN AVE CLAYTON AVE HILL ST ALVA AVE KNOTT AVE AVIS DR LAWRENCE ST CARL AVE C E NTRAL A VE VAN FLEET AVE SANTA CRUZ AVE CARQUINEZ AVE HUNTINGTON AVE TAMALPAIS AVE SHASTA ST BERK AVE BUTTE ST SAN JOSE AVE S 52ND ST KEARNEY ST FALL AVE GANGES ST ISABEL ST CYPRESS AVE GATELY AVE PIERCE ST YOSEMITE AVE S 56TH ST MERCED ST S 45TH ST GATTO AVE EL DORADO ST MARIPOSA ST MONO AVE ALAMEDA AVE CREELY AVE HARPER ST J ACUZZI S T S 59TH ST L A GUNI T A S A VE CONLON AVE S 58TH ST SAN BENITO ST HARTNETT AVE BELMONT AVE MENDOCINO ST AVILA ST FERN ST S 50TH ST JEFFERSON AVE OVEREND AVE WILSON AVE MADISON AVE TULARE AVE SNOWDON AVE COLU MBIA AVE M IR A V ISTA D R FALLON AVE CARLSTON ST GLEN MAWR AVE CARLOS AVE RYDIN RD KING DR S 57TH ST LIBERTY ST ELLS ST WESLEY AVE LASSEN ST PI NE HU RST SCHOOL AVE HUDSON ST SANTA CLARA AVE FRAY AVE STATE AVE OSCAR ST TAFT AVE TERRACE DR WALNUT ST ORCHARD AVE JULIAN DR OAK ST RIVERA ST LUDWIG AVE CAMPBELL ST KENILWORTH AVE PLANK AVE SEAVIEW PL WALL AVE KENT DR S 49TH ST EASTSHORE BLVD SAN LUIS ST LEXINGTON AVE SP Y G LASS SCENIC ST PLACER ST PANAMA AVE CEDAR ST DIMM ST CABRILLO ST ALTA PUNTA ST MADERA DR TEHAMA AVE WENK AVE F ST SANTA CLARA ST EUREKA AVE 46TH ST 45TH ST REID CT BISSELL AVE EDITH ST WALDO LN MOUND AVE A R N O CT DOW NEY P L MODOC AVE M A D E RA CIR PLUMAS AVE BEHRENS ST VICTORIA ST YOLO AVE FAIRVIEW AVE GLORIA ST S 46TH ST CASTILLA AVE HOTCHKISS AVE SACRAMENTO AVE CORONADO ST GORDON AVE BURLINGAME AVE JUL I A N C T MANOR CIR STATE CT BELL CT MORRIS AVE P E B B L E BEA C H DR MADERA CT NAPA ST PRATHER AVE PLAZA WY HERSHEY CT MC LAUGHLIN ST TAHOE PL WALL AVE ESCUELA CT WILLOW ST MAIDEN LN HARVARD ST POMONA CT PINEHURST BREWSTER CT SACRAMENTO AVE SANTA CLARA ST MADISON AVE S 47TH ST MARIPOSA ST S 49TH ST VAN FLEET AVE KEARNEY ST LEXINGTON AVE EVERETT ST KEARNEY ST PANAMA AVE S 49TH ST LEXINGTON AVE SAN JOSE AVE MERCED ST SAN LUIS ST PLUMAS AVE EUREKA AVE MODOC AVE HARVARD ST H U N T I N G TO N AVE EUREKA BURLINGAME AVE BAYVIEW AVE S 57TH ST LIBERTY ST HIGHLAND AVE JUNCTION AVE COLUMBIA AVE ELM ST NORVELL ST FRESNO AVE COLUSA AVE S 45TH ST EVERETT ST LIBERTY ST TEHAMA AVE MIRA VISTA DR LIBERTY ST KEARNEY ST S 45TH ST SANTA CLARA AVE SANTA CLARA ST CYPRESS AVE S 56TH ST WALL AVE SAN PABLO AVE SAN PABLO AVE CARLSON BLVD POTRERO AVE POTRERO AVE CENTRAL AVE MOESER LN CUTTING BLVD AR LI NG TON BLVD ASHBURY AVE FAIRMOUNT AVE BART - Richmond Line MACDONALD AVE Hillside Natural Area Mira Vista Country Club & Golf Hillside Natural Area Castro Park Booker T. Anderson, Jr. Park Cerrito Vista Park Canyon Trail Park Point Isabel Regional Shoreline Eastshore State Park Casa Cerrito Rec Center El Cerrito Plaza BART Station El Cerrito del Norte BART Station El Cerrito City Hall El Cerrito Plaza Del Norte Place Former Albertson's Site The Village at Town Center A L B A N Y E L C E R R I T O R I C H M O N D San Francisco Bay C e rrito Cr e ek B ax t er C reek I-580 I-80 Figure 2.3: Existing Land Use 0 FEET 1000 2000 N Multi-Family Residential Auto-Related Business Mixed-Use Public, Quasi-Public, and Institutional Retail-Oriented Business Vacant Parks, Recreation, and Open Space Office Light Industrial Motel/Hotel Parking Single-Family Residential ---PAGE BREAK--- v o l u m e I c h a p t e r t w o 22 I S A N P A B L O A V E N U E S P E C I F I C P L A N D R A F T Community Amenities San Pablo Avenue has many community amenities along its length or in close proximity. The greatest concentration of civic amenities is focused around the new El Cerrito City Hall and existing public safety buildings (see Figure 2.4). Along with the recently developed Village at Town Center mixed- use complex and El Cerrito’s new streetscape improvements, this area has created momentum for continued reinvestment along San Pablo Avenue. The two BART stations are significant amenities in the plan area, providing local and regional transportation connections. Maximizing the transit-oriented development potential around the stations can activate the corridor, and encourage alternative modes of transportation. Additionally, many neighborhood-serving retailers, restaurants, and entertainment uses along San Pablo Avenue serve the community, with clusters of activity located around Stockton Avenue, and Fairmont Elementary School, El Cerrito Plaza, the Cerrito Theater, and the BART stations. The north end of the plan area has fewer community amenities except for the Safeway, Del Norte BART station and Baxter Creek Park. Recent and Ongoing Planning Efforts Recent projects in the plan area include the new El Cerrito City Hall, renovated Cerrito Theater, and the implementation of the first phases of the San Pablo Avenue Streetscape Improvement Project, which includes improvements along medians and sidewalks, such as new street trees, landscaping, and signage. Planned projects include redevelopment of the Tradeway Site near El Cerrito City Hall, and the Mayfair and Target blocks near the Del Norte BART station, a residential project at El Cerrito Plaza, site improvements to the Ohlone Greenway, and the last phase of the San Pablo Avenue Streetscape Improvement Project, which should be completed by 2010. In addition, El Cerrito is developing a Seismic Hazards Identification Program to provide opportunities for retrofitting existing buildings and incentivizing new development to replace older buildings. The newly completed El Cerrito City Hall is a civic amenity that contributes to San Pablo Avenue. ---PAGE BREAK--- e x i s t i n g c o n d i t i o n s S E P T E M B E R 2 0 1 0 I 23 Ohlone Greenway RICHMOND ST KEY BLVD NORVELL ST SCHMIDT LN NAVELLIER ST SAN JOAQUIN ST S 55TH ST MANILA AVE STOCKTON AVE BLAKE ST SAN MATEO ST PORTOLA DR DONAL AVE BAYVIEW AVE GLADYS AVE LINCOLN AVE POMONA AVE WALDO AVE ALBEMARLE ST SUTTER AVE FRESNO AVE JORDAN A VE SCOTT ST MONTEREY ST S 47TH ST HAGEN BLVD CUTTING BLVD NEVIN AVE CLAYTON AVE HILL ST ALVA AVE KNOTT AVE AVIS DR LAWRENCE ST CARL AVE C E NTRAL A VE VAN FLEET AVE SANTA CRUZ AVE CARQUINEZ AVE HUNTINGTON AVE TAMALPAIS AVE SHASTA ST BERK AVE BUTTE ST SAN JOSE AVE S 52ND ST KEARNEY ST FALL AVE GANGES ST ISABEL ST CYPRESS AVE GATELY AVE PIERCE ST YOSEMITE AVE S 56TH ST MERCED ST S 45TH ST GATTO AVE EL DORADO ST MARIPOSA ST MONO AVE ALAMEDA AVE CREELY AVE HARPER ST J ACUZZI S T S 59TH ST L A GUNI T A S A VE CONLON AVE S 58TH ST SAN BENITO ST HARTNETT AVE BELMONT AVE MENDOCINO ST AVILA ST FERN ST S 50TH ST JEFFERSON AVE OVEREND AVE WILSON AVE MADISON AVE TULARE AVE SNOWDON AVE COLU MBIA AVE M IR A V ISTA D R FALLON AVE CARLSTON ST GLEN MAWR AVE CARLOS AVE RYDIN RD KING DR S 57TH ST LIBERTY ST ELLS ST WESLEY AVE LASSEN ST PI NE HU RST SCHOOL AVE HUDSON ST SANTA CLARA AVE FRAY AVE STATE AVE OSCAR ST TAFT AVE TERRACE DR WALNUT ST ORCHARD AVE JULIAN DR OAK ST RIVERA ST LUDWIG AVE CAMPBELL ST KENILWORTH AVE PLANK AVE SEAVIEW PL WALL AVE KENT DR S 49TH ST EASTSHORE BLVD SAN LUIS ST LEXINGTON AVE SP Y G LASS SCENIC ST PLACER ST PANAMA AVE CEDAR ST DIMM ST CABRILLO ST ALTA PUNTA ST MADERA DR TEHAMA AVE WENK AVE F ST SANTA CLARA ST EUREKA AVE 46TH ST 45TH ST REID CT BISSELL AVE EDITH ST WALDO LN MOUND AVE A R N O CT DOW NEY P L MODOC AVE M A D E RA CIR PLUMAS AVE BEHRENS ST VICTORIA ST YOLO AVE FAIRVIEW AVE GLORIA ST S 46TH ST CASTILLA AVE HOTCHKISS AVE SACRAMENTO AVE CORONADO ST GORDON AVE BURLINGAME AVE JUL I A N C T MANOR CIR STATE CT BELL CT MORRIS AVE P E B B L E BEA C H DR MADERA CT NAPA ST PRATHER AVE PLAZA WY HERSHEY CT MC LAUGHLIN ST TAHOE PL WALL AVE ESCUELA CT WILLOW ST MAIDEN LN HARVARD ST POMONA CT PINEHURST BREWSTER CT SACRAMENTO AVE SANTA CLARA ST MADISON AVE S 47TH ST MARIPOSA ST S 49TH ST VAN FLEET AVE KEARNEY ST LEXINGTON AVE EVERETT ST KEARNEY ST PANAMA AVE S 49TH ST LEXINGTON AVE SAN JOSE AVE MERCED ST SAN LUIS ST PLUMAS AVE EUREKA AVE MODOC AVE HARVARD ST H U N T I N G TO N AVE EUREKA BURLINGAME AVE BAYVIEW AVE S 57TH ST LIBERTY ST HIGHLAND AVE JUNCTION AVE COLUMBIA AVE ELM ST NORVELL ST FRESNO AVE COLUSA AVE S 45TH ST EVERETT ST LIBERTY ST TEHAMA AVE MIRA VISTA DR LIBERTY ST KEARNEY ST S 45TH ST SANTA CLARA AVE SANTA CLARA ST CYPRESS AVE S 56TH ST WALL AVE SAN PABLO AVE SAN PABLO AVE CARLSON BLVD POTRERO AVE POTRERO AVE CENTRAL AVE MOESER LN CUTTING BLVD AR LI NG TON BLVD ASHBURY AVE FAIRMOUNT AVE BART - Richmond Line MACDONALD AVE El Cerrito City Hall El Cerrito Fire and Police Station St. John’s Senior Center St. John’s Community Center Post Office St. John the Baptist School Safeway El Cerrito Community Center El Cerrito Natural Grocery Co. Annex Senior Center El Cerrito BART Station Lucky Farmer’s Market Post Office East Pacific Mall Ranch 99 Orientation Center for the Blind Fairmont Elementary School Open House Senior Center Veteran’s Hall and Library Japan Town El Cerrito Del Norte BART Station Safeway Windrush School Portola Middle School Alvarado Adult School Stege Elementary School Kennedy High and Kappa Continuation School Castro Elementary School Harding Elementary School Trader Joe’s San Francisco Bay C e rrito Cr ee k B ax t er C reek I-580 I-80 Figure 2.4: Community Amenities Project Area Parks Ohlone Greenway Future Richmond Greenway BART Alignment San Francisco Bay Trail Waterbodies Freeway ! BART Station 0 FEET 1000 2000 N Building Footprints School Civic/Cultural Amenity Supermarket Activity Node: ¼-mile ---PAGE BREAK--- v o l u m e I c h a p t e r t w o 24 I S A N P A B L O A V E N U E S P E C I F I C P L A N D R A F T ISSUES AND OPPORTUNITIES From strengthening pedestrian connections to maximizing the transit station synergy, San Pablo Avenue faces a number of challenges and potential opportunities. Identifying and addressing these issues are key to ensuring an implementable plan and a successful revitalization effort. Maximizing Development Opportunities Parking lots and vacant parcels oftentimes represent opportunities for new development to catalyze revitalization of an area. The plan area contains many such opportunity sites (see Figure 2.5). In particular, the large parking lots at both BART stations represent special opportunities for transit-oriented development. Throughout the Avenue, mismatched street grids, different block configurations, and limited median breaks and left turn opportunities pose challenges to unified planning and economic development. South of Moeser Lane, vacant and underutilized parcels are predominantly smaller in scale than to the north. The small lot sizes, difficult parcel configurations, multiple ownerships, and presence of existing development on adjacent parcels present constraints to large scale redevelopment. Incentivizing parcel consolidation is a key challenge facing the Avenue. The middle of the corridor has a few large parking lots associated with older shopping centers, strip development, and auto-oriented uses such as repair shops. The Avenue’s north end has the greatest concentration of large opportunity sites with large vacant parcels and parking lots, such as the former Albertson’s site, the Del Norte BART station parking lots, and the former Target site. Vacant parcels provide opportunities for higher-intensity development that will enhance the activity of San Pablo Avenue. The Del Norte BART Station parking lots are opportunity sites for transit-oriented development that can boost BART and bus ridership. ---PAGE BREAK--- e x i s t i n g c o n d i t i o n s S E P T E M B E R 2 0 1 0 I 25 Ohlone Greenway RICHMOND ST KEY BLVD NORVELL ST SCHMIDT LN NAVELLIER ST SAN JOAQUIN ST S 55TH ST MANILA AVE STOCKTON AVE BLAKE ST SAN MATEO ST PORTOLA DR DONAL AVE BAYVIEW AVE GLADYS AVE LINCOLN AVE POMONA AVE WALDO AVE ALBEMARLE ST SUTTER AVE FRESNO AVE JORDAN A VE SCOTT ST MONTEREY ST S 47TH ST HAGEN BLVD CUTTING BLVD NEVIN AVE CLAYTON AVE HILL ST ALVA AVE KNOTT AVE AVIS DR LAWRENCE ST CARL AVE C E NTRAL A VE VAN FLEET AVE SANTA CRUZ AVE CARQUINEZ AVE HUNTINGTON AVE TAMALPAIS AVE SHASTA ST BERK AVE BUTTE ST SAN JOSE AVE S 52ND ST KEARNEY ST FALL AVE GANGES ST ISABEL ST CYPRESS AVE GATELY AVE PIERCE ST YOSEMITE AVE S 56TH ST MERCED ST S 45TH ST GATTO AVE EL DORADO ST MARIPOSA ST MONO AVE ALAMEDA AVE CREELY AVE HARPER ST J ACUZZI S T S 59TH ST L A GUNI T A S A VE CONLON AVE S 58TH ST SAN BENITO ST HARTNETT AVE BELMONT AVE MENDOCINO ST AVILA ST FERN ST S 50TH ST JEFFERSON AVE OVEREND AVE WILSON AVE MADISON AVE TULARE AVE SNOWDON AVE COLU MBIA AVE M IR A V ISTA D R FALLON AVE CARLSTON ST GLEN MAWR AVE CARLOS AVE RYDIN RD KING S 57TH ST LIBERTY ST ELLS ST WESLEY AVE LASSEN ST PI NE HU RST SCHOOL AVE HUDSON ST SANTA CLARA AVE FRAY AVE STATE AVE OSCAR ST TAFT AVE TERRACE DR WALNUT ST ORCHARD AVE JULIAN DR OAK ST RIVERA ST LUDWIG AVE CAMPBELL ST KENILWORTH AVE PLANK AVE SEAVIEW PL WALL AVE KENT DR S 49TH ST EASTSHORE BLVD SAN LUIS ST LEXINGTON AVE SP Y G LASS SCENIC ST PLACER ST PANAMA AVE CEDAR ST DIMM ST CABRILLO ST ALTA PUNTA ST MADERA DR TEHAMA AVE WENK AVE F ST SANTA CLARA ST EUREKA AVE 46TH ST 45TH ST REID CT BISSELL AVE EDITH ST WALDO LN MOUND AVE A R N O CT DOW NEY P L MODOC AVE M A D E RA CIR PLUMAS AVE BEHREN VICTORIA ST YOLO AVE FAIRVIEW AVE GLORIA ST S 46TH ST CASTILLA AVE HOTCHKISS AVE SACRAMENTO AVE CORONADO ST GORDON AVE BURLINGAME AVE JUL I A N C T MANOR CIR STATE CT BELL CT MORRIS AVE P E B B L E BEA C H DR MADERA CT NAPA ST PRATHER AVE PLAZA WY HERSHEY CT MC LAUGHLIN ST TAHOE PL WALL AVE ESCUELA CT WILLOW ST MAIDEN LN HARVARD ST POMONA CT PINEHURST BREWSTER CT SACRAMENTO AVE SANTA CLARA ST MADISON AVE S 47TH ST MARIPOSA ST S 49TH ST VAN FLEET AVE KEARNEY ST LEXINGTON AVE EVERETT ST KEARNEY ST PANAMA AVE S 49TH ST LEXINGTON AVE SAN JOSE AVE MERCED ST SAN LUIS ST PLUMAS AVE EUREKA AVE MODOC AVE HARVARD ST H U N T I N G TO N AVE EUREK BURLINGAME AVE BAYVIEW AVE S 57TH ST LIBERTY ST HIGHLAND AVE JUNCTION AVE COLUMBIA AVE ELM ST NORVELL ST FRESNO AVE COLUSA AVE S 45TH ST EVERETT ST LIBERTY ST TEHAMA AVE MIRA VISTA DR LIBERTY ST KEARNEY ST S 45TH ST SANTA CLARA AVE SANTA CLARA ST CYPRESS AVE S 56TH ST WALL AVE SAN PABLO AVE SAN PABLO AVE CARLSON BLVD POTRERO AVE POTRERO AVE CENTRAL AVE MOESER LN CUTTING BLVD AR LI NG TON BLVD ASHBURY AVE FAIRMOUNT AVE BART - Richmond Line MACDONALD AVE Hillside Natural Area Mira Vista Country Club & Golf Hillside Natural Area Castro Park Booker T. Anderson, Jr. Park Cerrito Vista Park Canyon Trail Park Point Isabel Regional Shoreline Eastshore State Park Casa Cerrito Rec Center San Francisco Bay C e rrito Cr e ek B ax t er C reek I-580 I-80 Figure 2.5: Parking Lots and Vacant Parcels Project Area Parks Ohlone Greenway Future Richmond Greenway BART Alignment Waterbodies Parking Lots Vacant Parcels Freeway ! BART Station 0 FEET 1000 2000 N BART Radius: ¼-mile ---PAGE BREAK--- v o l u m e I c h a p t e r t w o 26 I S A N P A B L O A V E N U E S P E C I F I C P L A N D R A F T Responding to Demand for New Development The market analysis from the San Pablo Avenue Specific Plan Existing Conditions Report suggested a number of findings that can guide the type and location of new development along the Avenue (see Volume III Technical Appendices for additional details). Compared to the cities of El Cerrito and Richmond as a whole, residents of the plan area are typically younger and reside in smaller households. The market base for local- serving commercial activity along San Pablo Avenue in the plan area draws from all El Cerrito residents and from residents of nearby Richmond neighborhoods, such as the Richmond Annex. Based on a retail analysis performed by the City of El Cerrito, the market base trade area for retail extends an additional one to two miles beyond the City limits, based on a seven-minute customer drive time. Despite the current economic downtown, demand for new housing is expected to continue in the plan area. New development should concentrate on continuing to build higher-density housing units at price points affordable for households with moderate incomes. Rental market data also indicates positive demand for rental housing in El Cerrito. Demand for retail space is fairly strong at key locations. Planning for new retail development should seek to create a vibrant mix of commercial typologies along San Pablo Avenue. New mixed- use development should be planned judiciously at key nodes, and phased over time so as not to depress the overall market along San Pablo Avenue. New residential uses should be targeted between the retail nodes to build demand and support new commercial uses. Additional new office uses within the plan area will likely be in the form of small professional offices within mixed-use development. The mixed-use project, The Village at Town Center, contributes to area’s housing supply with new higher-intensity housing units above ground floor commercial. ---PAGE BREAK--- e x i s t i n g c o n d i t i o n s S E P T E M B E R 2 0 1 0 I 27 Unifying the Pedestrian Environment Poor edge conditions dominate the San Pablo Avenue pedestrian environment and have detrimental effects on levels of pedestrian activity (see Figure 2.6). These include blank walls and building facades, parking lots and drive-throughs, and tall fences and vacant lots. Not all buildings present a negative façade to the street; many of the smaller retail stores and restaurants have elements of good facades such as large windows, architectural details, and an interesting use of building materials. A few older auto repair uses also exhibit relatively positive edges with brick or stucco building facades with little to no setbacks and narrow curb-cuts and vehicle entries. Large surface parking lots and vacant lots characterize the pedestrian edge in the north, many of which are lined with chain link fences, boarded up and vacant buildings, and vandalized structures. The poor quality of the edge in San Pablo Avenue’s north end contributes to the perception that this area is unsafe. The middle section of the plan area is also characterized by pedestrian-unfriendly edges, including blank walls, significant landscaping buffers, and parking lot setbacks between buildings and sidewalks. In general, the area south of El Cerrito City Hall has development built in a strip commercial style with large parking fields along the street and buildings set back from the street. Yet it is also characterized by some pedestrian-friendly edges due to the more consistent built form. Many buildings in this segment, while only one or two stories, are built to the street edge providing a strong street wall and a more activated pedestrian environment. Many building entries are located off of the sidewalks rather than off of parking lots. While the building form may provide a better sense of street enclosure, the facades of the buildings frequently fail to provide an interesting edge to the pedestrian environment. Many of the banks and small office buildings provide blank walls or shuttered windows along the sidewalks. Blank concrete walls detract from the pedestrian realm. ---PAGE BREAK--- v o l u m e I c h a p t e r t w o 28 I S A N P A B L O A V E N U E S P E C I F I C P L A N D R A F T Gaps in the built form still occur in the southern end, such as with gas stations, auto repair shops, and car dealerships. The range of scales within San Pablo Avenue’s built environment brings a distinct character of variation to the street experience. However, while a range of building scale allows for an interesting pedestrian experience, it can also result in discontinuity and fragmentation. The continuity of the building edge varies along the corridor. Building edges are most consistent in the southern end, inconsistent in the middle, and least consistent in the north. Inconsistent building edges can be attributed to large parking lots, unbuilt parcels and deep setbacks. As a result, although it is wide in places, the sidewalk functions as a narrow pedestrian refuge between the fast-moving traffic and the auto-oriented parking lots and driveways along significant of the Avenue. In terms of scale, smaller developments are prevalent in the southern end of San Pablo Avenue, and can be categorized into three types: commercial buildings with minimal setbacks; small buildings surrounded by drive-ways and parking lots; and older single family homes. Medium-scale development typically sits closer to the street with minimal setbacks and small parking lots in the front or side of the building. Inconsistent sidewalk amenities often make for a stark pedestrian environment. Fences and vacant lots create an inconsistent and inhospitable edge for San Pablo Avenue. ---PAGE BREAK--- e x i s t i n g c o n d i t i o n s S E P T E M B E R 2 0 1 0 I 29 Ohlone Greenway RICHMOND ST KEY BLVD NORVELL ST SCHMIDT LN NAVELLIER ST SAN JOAQUIN ST S 55TH ST MANILA AVE STOCKTON AVE BLAKE ST SAN MATEO ST PORTOLA DR DONAL AVE BAYVIEW AVE GLADYS AVE LINCOLN AVE POMONA AVE WALDO AVE ALBEMARLE ST SUTTER AVE FRESNO AVE JORDAN A VE SCOTT ST MONTEREY ST S 47TH ST HAGEN BLVD CUTTING BLVD NEVIN AVE CLAYTON AVE HILL ST ALVA AVE KNOTT AVE AVIS DR LAWRENCE ST CARL AVE C E NTRAL A VE VAN FLEET AVE SANTA CRUZ AVE CARQUINEZ AVE HUNTINGTON AVE TAMALPAIS AVE SHASTA ST BERK AVE BUTTE ST SAN JOSE AVE S 52ND ST KEARNEY ST FALL AVE GANGES ST ISABEL ST CYPRESS AVE GATELY AVE PIERCE ST YOSEMITE AVE S 56TH ST MERCED ST S 45TH ST GATTO AVE EL DORADO ST MARIPOSA ST MONO AVE ALAMEDA AVE CREELY AVE HARPER ST J ACUZZI S T S 59TH ST L A GUNI T A S A VE CONLON AVE S 58TH ST SAN BENITO ST HARTNETT AVE BELMONT AVE MENDOCINO ST AVILA ST FERN ST S 50TH ST JEFFERSON AVE OVEREND AVE WILSON AVE MADISON AVE TULARE AVE SNOWDON AVE COLU MBIA AVE M IR A V ISTA D R FALLON AVE CARLSTON ST GLEN MAWR AVE CARLOS AVE RYDIN RD KING DR S 57TH ST LIBERTY ST ELLS ST WESLEY AVE LASSEN ST PI NE HU RST SCHOOL AVE HUDSON ST SANTA CLARA AVE FRAY AVE STATE AVE OSCAR ST TAFT AVE TERRACE DR WALNUT ST ORCHARD AVE JULIAN DR OAK ST RIVERA ST LUDWIG AVE CAMPBELL ST KENILWORTH AVE PLANK AVE SEAVIEW PL WALL AVE KENT DR S 49TH ST EASTSHORE BLVD SAN LUIS ST LEXINGTON AVE SP Y G LASS SCENIC ST PLACER ST PANAMA AVE CEDAR ST DIMM ST CABRILLO ST ALTA PUNTA ST MADERA DR TEHAMA AVE WENK AVE F ST SANTA CLARA ST EUREKA AVE 46TH ST 45TH ST REID CT BISSELL AVE EDITH ST WALDO LN MOUND AVE A R N O CT DOW NEY P L MODOC AVE M A D E RA CIR PLUMAS AVE BEHRENS ST VICTORIA ST YOLO AVE FAIRVIEW AVE GLORIA ST S 46TH ST CASTILLA AVE HOTCHKISS AVE SACRAMENTO AVE CORONADO ST GORDON AVE BURLINGAME AVE JUL I A N C T MANOR CIR STATE CT BELL CT MORRIS AVE P E B B L E BEA C H DR MADERA CT NAPA ST PRATHER AVE PLAZA WY HERSHEY CT MC LAUGHLIN ST TAHOE PL WALL AVE ESCUELA CT WILLOW ST MAIDEN LN HARVARD ST POMONA CT PINEHURST BREWSTER CT SACRAMENTO AVE SANTA CLARA ST MADISON AVE S 47TH ST MARIPOSA ST S 49TH ST VAN FLEET AVE KEARNEY ST LEXINGTON AVE EVERETT ST KEARNEY ST PANAMA AVE S 49TH ST LEXINGTON AVE SAN JOSE AVE MERCED ST SAN LUIS ST PLUMAS AVE EUREKA AVE MODOC AVE HARVARD ST H U N T I N G TO N AVE EUREKA BURLINGAME AVE BAYVIEW AVE S 57TH ST LIBERTY ST HIGHLAND AVE JUNCTION AVE COLUMBIA AVE ELM ST NORVELL ST FRESNO AVE COLUSA AVE S 45TH ST EVERETT ST LIBERTY ST TEHAMA AVE MIRA VISTA DR LIBERTY ST KEARNEY ST S 45TH ST SANTA CLARA AVE SANTA CLARA ST CYPRESS AVE S 56TH ST WALL AVE SAN PABLO AVE SAN PABLO AVE CARLSON BLVD POTRERO AVE POTRERO AVE CENTRAL AVE MOESER LN CUTTING BLVD AR LI NG TON BLVD ASHBURY AVE FAIRMOUNT AVE BART - Richmond Line MACDONALD AVE Hillside Natural Area Mira Vista Country Club & Golf Hillside Natural Area Castro Park Booker T. Anderson, Jr. Park Cerrito Vista Park Canyon Trail Park Point Isabel Regional Shoreline Eastshore State Park Casa Cerrito Rec Center San Francisco Bay C e rrito Cr e ek B ax t er C reek I-580 I-80 Figure 2.6: Pedestrian-Unfriendly Edges Project Area Parks BART Alignment Ohlone Greenway Future Richmond Greenway Pedestrian Unfriendly Edge Waterbodies Freeway ! BART Station 0 FEET 1000 2000 N Building Footprints El Cerrito Plaza BART Station El Cerrito del Norte BART Station ---PAGE BREAK--- v o l u m e I c h a p t e r t w o 30 I S A N P A B L O A V E N U E S P E C I F I C P L A N D R A F T Strip centers of this medium scale - such as Jayvee Center, some liquor stores, and the older civic buildings - can be found throughout the corridor but are concentrated in the southern and middle portions. Newer development is often large in scale and separated from the street with significant parking lots; this configuration is typical of “big box” stores and shopping plazas such as El Cerrito Plaza, Home Depot, the former Target site, and both Safeway sites. The coarse grain of large-scale developments is most apparent in the middle and northern sections of the plan area around the Del Norte BART station. The figure ground diagram (Figure 2.7) illustrates the scale of development and the continuity, or lack of continuity, of the building edge. Blank walls and narrow sidewalks create the impression of an unsheltered pedestrian environment. Building frontages disrupted by driveways and parking lots create an inconsistent pedestrian edge and detract from a sense of place. ---PAGE BREAK--- e x i s t i n g c o n d i t i o n s S E P T E M B E R 2 0 1 0 I 31 e x i s t i n g c o n d i t i o n s Figure 2.7: Building Figure Ground Project Area Building Footprint 0 FEET 1000 2000 N The intersection of San Pablo and Macdonald avenues is a major vehicular crossroads characterized by high vehicular volume, large parking lots, narrow sidewalks, and a lack of building entrances. Buildings surrounded by parking lots create isolated islands of retail. Sidewalks wedged between the roadway on one side and auto-sales surface parking lots on the other create an unfriendly environment for pedestrians. Smaller-scale and finer-grain developments are prevalent in the southern portions of the Avenue. El Cerrito Plaza El Cerrito Plaza BART Station Del Norte BART Station Figure 2.7: Building Figure Ground Project Area Building Footprint 0 FEET 1000 2000 N ---PAGE BREAK--- v o l u m e I c h a p t e r t w o 32 I S A N P A B L O A V E N U E S P E C I F I C P L A N D R A F T Improving Connectivity San Pablo Avenue represents a significant barrier between neighborhoods on the east and west due to the width of the right-of-way, which varies between 100 and 120 feet. The majority of the Avenue’s length is configured with two parking lanes, four travel lanes (two in either direction) and a median and sidewalks that vary in width depending on the right-of-way. The Avenue carries a significant amount of traffic each day. It is heaviest around the El Cerrito Plaza BART station at Central Avenue and the Del Norte BART station between Eastshore and Cutting boulevards. The plan area is also characterized by a variety of street grid patterns that intersect along San Pablo Avenue and create unaligned streets and irregularly sized and shaped blocks (see Figure 2.8). The incongruence produced by this mismatched pattern significantly impacts pedestrian access as well as development feasibility or efficiency. These irregular blocks and intersections, however, present opportunities for unique buildings and open spaces. Many significant intersections such as at Cutting Boulevard and Eastshore Boulevard, do not include four-way crosswalks, forcing pedestrians to take circuitous and routes to cross San Pablo Avenue. In response, pedestrians often jaywalk to cross San Pablo Avenue, placing themselves and others in danger. In addition, many of the existing crosswalks are not clearly indicated, which can further impact pedestrian safety. Some intersections on San Pablo Avenue do not have a full set of crosswalks, limiting safety and connectivity across the Avenue. Long distances between crosswalks encourage pedestrians to jaywalk across San Pablo Avenue. ---PAGE BREAK--- e x i s t i n g c o n d i t i o n s S E P T E M B E R 2 0 1 0 I 33 Figure 2.8: Street Grid Pattern Project Area Blocks 0 FEET 1000 2000 N Waterbodies Street Grid Pattern ---PAGE BREAK--- THE JOY AND PAIN OF URBAN EXISTENCE, THE COMFORT OR HARDSHIP OF IT, ITS EFFICIENCY OR FAILURE ARE INFLUENCED BY THE WISDOM OR THE THOUGHTLESS NESS WITH WHICH STREETS ARE PLATTED. - Charles Mulford Robinson The Width and Arrangement of Streets. A study in Town Planning. (The Engineering News Publishing Company, 1911).