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INDIA BASIN SHORELINE PARK: A BAY AREA MODEL FOR EQUITY DEVELOPMENT PLANNING
India Basin Shoreline Park:
A Bay Area Model for Equity Development Planning
Photos courtesy of San Francisco Recreation & Park Association
By Authors: Nina S. Roberts, Ph.D., San Francisco State University; Audree Jones-Taylor, Simply Re-Creating; Kim Moore-Bailey, Justice Outside; & Omar Davis, San Francisco Recreation & Park Association A sense of place connection to local parks is a cross-cultural reality; for instance, one’s heritage can be an integral part of people’s relationships to public lands and recreation activities. However, as we see a growing trend discussing equity and park access, establishing equity plans across the nation is on the rise.
Large scale development projects, including parks, are often celebrated when they come to fruition. Additionally, “there is a frustrating truth in the world of community development: new large-scale development, no matter how much it is designed to support the existing neighborhood, often displaces or alienates some longtime residents.” (Forbes, 2019). Knowing this truth, there has been a rise in the urgency to try and prevent such shifts. Equitable development is an approach for meeting the needs of underserved communities through policies and programs that reduce disparities while fostering places that are healthy and vibrant (Environmental Protection Agency, 2021).
There are great efforts to support large scale development and mitigate the displacement of the very communities these opportunities are built to serve. Community leaders are creating equitable development plans as a mechanism to address this inequity, especially when it comes to developing parks and urban green spaces.
In this article we share background information of the India Basin Shoreline Park, a 10-acre restoration project in the Bayview Hunters Point community of San Francisco and the Equitable Development Plan (EDP) as a case example. For generations the community has related to this place, and through the EDP process, it has been able to participate in the planning process and feel confident that they will be a part of the community when the park is fully developed. In general, as noted by Ibes (2015) “cities across the United States are rediscovering the potential of urban parks–including plazas, pocket parks, greenways, nature preserves, and other outdoor public open spaces–to advance socially and environmentally sustainable cities.” On the other hand, equity development plans are on the rise less because of the lack of cultural representation in some parks (e.g., contingent on access, comfort, geography), rather more because of the displacement associated with new park development. Consequently, the disproportionate impact this displacement has on communities of color, in particular, is disheartening.
Accordingly, San Francisco ranked #6 in the Trust for Public Lands (TPL) 2021 national ParkScore. Their analysis is based on access, investment, acreage, amenities, and equity; for SF the reality, however, is that “residents in neighborhoods of color have access to 36% less park space per person than the city median and 56% less than those in white neighborhoods” (Trust for Public Lands, ParkScore, 2021). Additionally, the TPL report also indicates “residents in low-income neighborhoods have access to 41% less park space per person than the city median and 55% less than those in high-income neighborhoods.” Hence, there’s more work to be done!
Overview and brief history of Bayview Hunters Point & India Basin
The Bayview Hunters Point (BVHP) neighborhood of San Francisco has a vibrant and unique history. From the indigenous Ohlone thriving along the shores of this area for thousands of years, to 19th century industrial history of building docks and working in the naval shipyard, this zone has since witnessed a growing business district as well. The property carries historical significance for its contributions to the SF Bay Scow building and repairing industry from the early 1870s to the mid-1930s. For the next four decades, ship-building thrived at India Basin with the onset of WWII and operations at the Hunters Point Navy Base. But the industry also left a legacy of environmental pollution in the soil and shoreline sediments. Dilapidated buildings were left to rot, and residents were cut off from accessing the Bay waters. As multiple racial and ethnic groups began settling in BVHP tensions arose and additional challenges related to neglect, the impact of drug-use, effects of crime, and isolation from essential political decisions, created a series of stressors over the past several decades. (See Bayview Historical Society, Preservation of Place).
Following the closure of the Hunters Point Naval Shipyard in the 1970s and the ensuing decades of dis-investment, attention to Bayview-Hunters Point has increased, following the major investments along the eastern Bayfront edge of San Francisco (e.g., Mission Bay, Dogpatch). Improvements in public infrastructure in the form of light rail public transit, as well as new housing developments have arisen in the last two decades. Thousands of new housing units are slated to be built in the coming decade, and with this influx of new residents and businesses comes the threat of displacement.
In 2019 the SF Mayor, London Breed announced a $25 million donation from the Pritzker Family Fund to support this India Basin Park Restora-
tion Project. As noted in a city-wide press release, this gift is the “single largest private donation in history to a San Francisco park and will kick start the remediation, community engagement, design and construction phases of the project, which will renovate three city-owned sites to create a unified waterfront park space in San Francisco’s southeastern neighborhood” (City & County of San Francisco, Office of the Mayor, 2019).
A key goal of the India Basin park renovation and remediation is “to serve as a cultural anchor for equitable and inclusive economic growth – development that provides opportunities for all residents, regardless of income and demography.” Throughout the intensive community-led process, it has become clear that the renovation project has the potential to do more than restore dilapidated parks. It can be a model of equitable park renovation and expansion that benefits existing neighborhoods long excluded from San Francisco’s economic progress.
On June 17, 2021 agency partners helping cultivate this project attended the 900 Innes Groundbreaking to kick off Phase 1 (i.e., remediation) of the India Basin Shoreline Park Project. This $139 million project will create inspiring and amenity-rich waterfront parklands that build community capacity, reflect the diverse culture of the Bayview neighborhood and create a resilient, healthy and adaptive shoreline for the community. As part of this ambitious plan to restore a decaying shoreline along the San Francisco Bay, the first remediation phase of the India Basin Park project will address decades of pollution and environmental degradation in an area tarnished by heavy industrial use.
The scope of the project includes removal of debris and dilapidated structures, targeted excavation and removal of impacted soil and sediment, installation of a water barrier to protect the bay and optimize work, placement of new soil to support future park design, and abatement of hazardous building materials from the Shipwright’s Cottage. Attendees at the Groundbreaking event were joined by San Francisco Mayor London Breed, Senator Scott Weiner, SF Recreation & Parks Dept. General Manager Phil Ginsburg, Board of Supervisors’ President Shamann Walton, and others, as we put shovels to the Earth and turned the dirt on the first phase of this transformative park project.
Environmental justice & neighborhood social dynamics
In the parks world, environmental justice (EJ) concepts and principles, for instance, have grown to be a crucial factor of decision-making regarding mitigation, setting new priorities, recognizing health impacts, contributing to community building and more. EJ interlaces the environment (e.g., natural or built) and social dynamics. For some people and varied social groups, “the environment is an intrinsic part of living a ‘good life’ of prosperity, health and wellbeing, while for others the environment is a source of threat and risk, and access to resources such as energy, water, and greenspace is limited or curtailed” (Walker, 2012, p. 1). The Bayview Hunters Point (BVHP) neighborhood of San Francisco falls within this description along with hundreds of other cities across California, and the nation.
Prior to, and even long after, the neighborhood’s wartime peak and the subsequent closure of the Hunters Point Naval Shipyard, the BVHP community has struggled with the legacy of systemic, environmental racism. BVHP disproportionately bears a higher level of environmental and health burden than other neighborhoods. Historically, polluting industries were concentrated here and left a legacy of contaminated sites and physical blight. To the south of India Basin is the decommissioned Hunters Point Naval Shipyard that was placed on the National Priorities List as a “Superfund” site. To the East of the Parks is a decommissioned Pacific Gas and Electric facility that has also been responsible for contaminating the land and SF Bay waters (Dinzeo, 2021).
Interagency partners and the nature of collaboration
Using best practices of collaboration is vital among parks and recreation professionals, community organizations, local businesses, and more. Research has shown extraordinary benefits to managers and program directors when cooperation in reaching mutual goals is achieved. As noted by Byrnes and Hansberry (2007), agencies that collaborate must invest in both fiscal and
human resources to ensure the partnership will be successful. Furthermore, listening intently to community leaders and residents is crucial in sustaining the relationships involved. For instance, organization partners must continue to build trust with residents of any given community (e.g., “I was born and raised in the Bayview and fully understand the history...”). While that may seem obvious, these factors often create conflict and challenges with making the best decisions for stakeholders involved (e.g., interpreting a situation or problem being addressed can differ). The Equitable Development Plan (EDP), an integral component of beautifying this space, speaks to component parts and beyond.
For this project, there are five institutional partners: San Francisco Recreation & Parks Department (SFRPD), SF Parks Alliance (SFPA), Trust for Public Lands (TPL), the A. Philip Randolph Institute (APRI), and San Francisco State University (SF State). Residents of all ages and business owners within the Bayview-Hunters Point community are also an integral partner in this effort.
Building relationships are critical to successful programming and projects and local residents are essential to ensuring their needs are met. This is followed by community-based organizations, and the surrounding businesses. The partnerships that have been developed for this project are amazing; however, in order for this project to meet the expectations of the community, the philanthropic community and corporate America must also be invited to the table. The partnerships as noted above are impressive, in part, because of the evolution of open communication, flexibility, mutual benefit, and data is becoming an integral component of what’s agreed upon to help measure what matters. Although traditionally, Recreation and Parks Departments have stayed clear from corporate America due to fear of perceived privatization. However, over time, more agencies have realized the value of partnering with corporations and allowing community based investments to manifest themselves through parks.
The State of California has done well, for example, in incorporating their Proud Partners initiative. They have developed this program to allow corporations and businesses to reach out to more than the 70 million people that visit the state parks each year. An example of a SF Recreation & Park Departments corporate partnership is with the SF Giants and their community fund to renovate the baseball field at Gilman Park in Bayview. Subsequently, the Junior Giants program partners with local communities to support quality baseball/softball programs at no cost to the young people and families.
Leveraging the opportunities with the philanthropic community and foundations, San Francisco has an abundance of philanthropic institutions and individuals who understand the value of public space and the long term benefits that come to a city when its park infrastructure is distributed equitably. The Indian Basin project has the opportunity to change behaviors, environments and health and living conditions for the Bayview Hunters Point community.
However, like all things there is a strategy in gaining the attention and support of the community. Here are a few tips to consider when building your relationship: 1. Know and understand your purpose and mission- your primary goal and strategy should be to secure sus-
tained, multi-year financial commitments or large contributions toward your project. 2. Deepen relationships with community based organizations, and foundations through integrated programming, volunteerism and advocacy. 3. Leverage network access resources (e.g., corporate partners, athletes, and influencers) directly or through third party consultants to create organic storytelling opportunities. 4. Align community and agency value propositions with key funders. 5. Be intentional in regards to focus areas (e.g., health and wellness, education/after-school programming). 6. Provide space that showcases the value of its support and financial commitment (e.g., donor walls, naming rights, and or classy looped in digital advertisement). 7. Use of social media and other forms of media as essential for success.
Furthermore, as with any partnership formal agreements are essential, and with whom you partner, is crucial regarding the alignment of values and purpose.
Creation of an Equitable Development Plan
Institutionalizing an “equity development plan” for parks and recreation facilities is becoming a national phe-
nomenon. Several models exist and are being tapped into for ideas, action and implementation strategies and solutions. Examples include Washington, DC 11th Street Bridge, Minneapolis Equity Action Plan, and the Strong Prosperous and Resilient Communities Challenge in Atlanta, Chicago, Memphis, and Los Angeles. The latter cities are emphasizing how best to influence the equitable development of parks and other public open spaces to “ensure planners, environmental groups, city officials, and developers are considering housing, community preservation, economic opportunities, culture, ownership, and racial equity as part of a holistic strategy” (Forbes, 2019).
The Bayview-Hunters Point neighborhood is the heart of San Francisco’s Black community. City agencies and park advocates must understand and plan for the impacts this park renovation and expansion project could have on the neighborhood, either positive or negative; otherwise agencies involved risk repeating the historic inequities that led to the exploitation, displacement and disinvestment of the Black community in the past.
By working in partnership with the community, the India Basin project provides an important opportunity to fairly address social, economic and environmental justice issues in this historically vulnerable neighborhood. The project emphasizes resiliency to sea level rise and habitat and wetland restoration, as well as honoring its historic ship-building context and uses. This vital park development project also helps close a vital gap across the San Francisco Bay Trail. It will enable safe and healthy waterfront access and will provide community driven recreation and cultural programming. The park will offer amenities, environmental education, and economic opportunities for the approximately 5,000 residents that live within a 10-minute walk of this park and the 35,000 residents that live within one mile of the park.
Around the country, park development projects like this one, and many like-minded spaces, are witnessing the tremendous positive impacts that signature civic spaces can have on residents’ well-being by building social capital amongst park-poor communities. However, park advocates are also learning from, and analyzing, the unintended consequences some of these investments can have, and such changes can lead to economic, cultural and physical displacement.
Community engagement at its finest
In order for an Equity Development Plan to truly work, the community’s voice needs to be centered in the plan. In preparation for this plan, throughout 2019 and 2020, before the COVID-19 pandemic and during, more than a dozen specific equitable development planning meetings were held. Guided by A. Philip Randolph Institute (APRI), a diverse array of formats were utilized for gathering and disseminating information including lectures, discussions, panels, focus groups, surveys and field trips. Some meetings featured City leaders while others featured community leaders, neighbors and peers. Meals were provided and meeting dates and times varied to accommodate a range of participants. Community leaders/ guest speakers were compensated for their expertise, investment of time and thought partnership. Ultimately, the residents and business owners collectively decided upon six focus areas which evolved into core components of the EDP. Set forth by the community, for the community, the six areas the India Basin Shoreline Park will focus on includes: 1. Arts, Culture & Identity; 2. Workforce & Business Development; 3. Transportation, Access & Connectivity; 4. Healthy Communities & Ecology; 5. Youth Opportunities; and
6. Housing Security.
These focus areas form the basis for management, decision making, capital investment and programming for the park.
The India Basin Park plan began with an exceptionally inclusive planning process that has established a foundation that is rich with the creativity and culture of the Bayview Hunters Point community on the park’s design. This project differs perhaps from previous park development efforts in that the organizers have prioritized an equitable development planning ethos into the design and implementation plans from the beginning of the project’s planning - well before construction even began. Including the wide range of community voices in the process not only established the key focus areas that defined the equitable development plan for the park, this inclusive process will also serve as a continued check and balance during implementation to ensure that those who started out living in this community end up reaping the benefits long after the park has come to fruition.
Next steps towards strategy implementation
The agency partners have been embarking on a robust fundraising effort; a key aim is to create a formal vehicle through which the leadership committee can pursue implementation of the EDP. With support from public agencies by leveraging resources, as well as philanthropic and private-sector funding, existing park programs can be expanded and the creation of new ones is inevitable. Project partners also meet with a variety of city agencies, community-based organizations, nonprofit organizations and other community groups to identify other partnership opportunities, outline potential roles and develop strategies for implementation.
Conclusion
In response to the initial donation from the Priztker Fund, SF Recreation and Parks General Manager, Phil Ginsberg noted: “Public access and community connection are at the heart of this plan and at the heart of this gift. Funding this project means creating livable communities with green space and incredible recreational options. It means residents of public housing will be connected with the coastline. It means neighbors can gather for picnics or learn to canoe or kayak while children take lessons in boat building.” The India Basin Equitable Development Plan includes community knowledge and experiences, scholarly reviews of literature to support decision making, and more; this Plan can inform sustainable and just urban park policy, planning, and management.
The SF EDP will help guide racial equity work occurring in the BVHP neighborhood. This Plan reflects what interagency staff have heard from community members, local businesses, and nonprofit organizations through existing relationships and projects, and captures ongoing work from the past
RESTORATION & NEW PARK DESIGN • ACTIVE & PASSIVE PARKS • HABITAT RESTORATIONS URBAN TRAILS • NATURE PARKS • COMMUNITY CENTERS • DEMONSTRATION GARDENS
SINCE 1991
Excellence & Service by Design
From humble beginnings, to award winning designs, for thirty years our goal remains– provide excellence in design with world class customer service. When it comes to park and recreation design, we owe our success to the agencies who have trusted us to guide their generational projects. Thank You.
seven years. This Plan also includes measures and metrics for evaluation and indicators of success for each strategy. Furthermore, it outlines key steps to ensure planning for personnel to be equipped with the requisite training, knowledge and tools to integrate racial equity into India Basin Shoreline Park and SFRPD as a whole. The EDP— posted summer 2021 for general public review and feedback—supports ongoing transformational change among agencies involved to ensure a continued high level of service to the ever-evolving BVHP community.
More municipal parks and recreation directors should be challenged to foster a culture that values and advances racial equity across their city. This should occur through quality recreation and park facilities and programs, create a workforce that reflects the diversity of their community and, as always, provide outstanding programs and services that are responsive and focused on community needs.
References
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Mayor London Breed Announces $25
Million Donation to Help Realize
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Retrieved June 6, 2021 from https:// bit.ly/3w0fCHx Dinzeo, M. (15 2021 January). PG&E to rehab San Francisco harbor due to century-old pollution. Pasadena,
CA: Courthouse News Service.
Available: https://bit.ly/3w2EOwe Equitable Development and Environmental Justice (2021). United States
Environmental Protection Agency,
Washington, DC. Retrieved June 28, 2021, from https://bit.ly/3hrC0nd Forbes, S. (28 August 2019). Principles for parks and equitable development.
Natural Resources Defense Council,
Expert Blog series. Available: https:// on.nrdc.org/3vWi9CJ Ibes, D.C. (2015). A multi-dimensional classification and equity analysis of an urban park system: A novel methodology and case study application.
Landscape and Urban Planning, 137, 122-137. India Basin Shoreline Park (n.d.). A world class park in the heart of the
Bayview. San Francisco Recreation & Parks Department. https://ibwaterfrontparks.com/ Trust for Public Lands (2021). 2021
ParkScore Index: Top 12 U.S. cities.
San Francisco: TPL Walker, G. (2011). Environmental justice: Concepts, evidence and politics (1st Ed.). New
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