East Bay Bus Rapid Transit (BRT)

EAST BAY BUS RAPID TRANSIT Improving Accessibility, Builiding Community, Enhancing Sustainability

An Analysis of AC Transit’s Proposed Bus Rapid Transit (BRT) Project for Downtown Oakland-San Leandro August 13, 2012

R3W Associates © 2012 Principals: Rebecca Lopez, Ryan Hunt, Reginald James, Wenpei Wang.

Cover Photos: Top, An AC Transit passenger on the Line 1R gestures the “Peace Sign” to protesters on International Blvd during an Justice for Oscar Grant/Occupy Oakland demonstration on January 1, 2012.

Bottom, from left, Port of Oakland; Lake Merritt. © 2012 Reginald James

CONTENTS Executive Summary 1 1. Area History ______________________________________________________________ 2 2. Project History ______________________________________________________________ 3 3. What is BRT? ______________________________________________________________ 8 4. Project Finances _____________________________________________________________ 6 5. Project Costs ______________________________________________________________ 7 1. Assessing the Physical Landscape ____________________________________________________ 8 a. San Leandro/East Oakland ____________________________________________________ 9 b. Hegenberger Corridor ______________________________________________________ 10 c. Fruitvale ___________________________________________________________________ 11 d. Downtown Oakland __________________________________________________________ 12-13 e. Koreatown/Northgate, Oakland ___________________________________________________ 16 f. Temescal, Oakland __________________________________________________________ 17 2. Assessing the Social Landscape _______________________________________________________ 18 a. Stakeholders ____________________________________________________________ 21 b. Transit Demand ___________________________________________________________ 22 c. Community Health ___________________________________________________________ 23 d. Crime Reduction ___________________________________________________________ 24 e. Aesthetics ____________________________________________________________ 25 f. Utilities _________________________________________________________________ 26 g. Efficiency ____________________________________________________________ 26 h. Changing Demographics ________________________________________________________ 27 3. Planning Analysis ______________________________________________________________ 28 a. Hegenberger Case Study _____________________________________________________ 29-31 b. Fruitvale Mini-Case Study_____________________________________________________ 32-33 c. Long Term benefits ___________________________________________________________ 34 d. Emissions improvements _________________________________________________________ 30 4. Recommendations ______________________________________________________________ 36-41 a. Overall Suggestions for BRT: __________________________________________________36 b. BRT to Berkeley ____________________________________________________________ 37 c. Parking Reform _____________________________________________________________ 38 d. Jobs! Jobs! Jobs! ______________________________________________________________ 39 e. BRT and bike riders ____________________________________________________________40 f. BRT, TOD and Gentrification ____________________________________________________41 5. Conclusion ____________________________________________________________ 42 Works Cited Student Attribution

Contents

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iii.

R3W Associates List of Figures Figure 1.1 Downtown Oakland-San Leandro Alternative - Figure 1.2: Characteristics of Bus Rapid Transit System Figure 1.3: “Rapid” Logo Branding by AC Transit

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Figure 2.1.Proposed TOD Locations/Simulations of TOD Site Development

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Figure 3.1 Alameda County Transportation Modal Split Figure 3.2: International Blvd and 34th Ave, Before and After BRT (Simulation) Figure 3.2: Comparison of Majority Ethnic Group Census Blocks in East Oakland Figure 3.3: East Oakland Truck Routes over Ethnic-Majority Census Tracts Figure 3.4: Map of Pollutants and Sensitive Areas in Hegenberger Corridor

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Figure 7.1: Investor Owned Foreclosure and Completed Foreclosures in Oakland Figure 7.3: Employment in Berkeley/Oakland/San Leandro MIS Corridor and Vicinity Figure 7.4: Activity Centers in Berkeley/Oakland/San Leandro MIS Corridor

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List of Tables Table 1.1 BRT Cost Alternatives 7 Table 4.1 DOSL Alternative Project Capital Cost (millions)

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List of Maps Map 5.1: Ethnic Composition of Oakland Map 5.2:a. Map of Oakland’s White Majority Census Tracts Map 5.2:b. Map of Oakland’s Asian Majority Census Tracts Map 5.2:c. Map of Oakland’s Latino Majority Census Tracts Map 5.2:d. Map of Oakland’s BlackMajority Census Tracts Map 5.3: 2011 Homicides in City of Oakland

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Mural at Youth Radio, 17th and Broadway.

2010.

East Bay BRT Study

Executive Summary

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he Alameda-Contra Costa Transit District (AC Transit) has proposed a BRT system for the East Bay as a way to improve transit service for a growing population consisting mainly of low-income, transit dependent communities of color. Originally, the plan for the East Bay BRT was to span from San Leandro, through Oakland to Berkeley, but Berkeley was unwilling to adopt the necessary changes and has been dropped from the plan. This document examines the East Bay Bus Rapid Transit plan, the communities the project involves, and its potential impacts. Due to the tremendous scope of the project, we’ve selected key areas of focus to highlights the proposal’s strengths, weaknesses, and opportunities.

We will first cover the history of the area as well as the history of this project, the defining characteristics of a bus rapid transit system, and the way East Bay BRT is being funded. Second, we will describe our experience visiting four areas along the route, as well as the physical characteristics of th communities and their histories.

Third, we’ll explore the social fabric of the communities along the route, area demographics and how they are changing.

Finally we will explore the efficacy of this project and make suggestions for supplemental deployments.

“Clean up all Pollution in East Oakland’ Child at East Oakland Earth Day celebration.

Executive Summary

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R3W Associates

Area History

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he International Blvd- East 14th St Corridor from Downtown Oakland to San Leandro is one of the longest, most congested and densest corridors in the East Bay. (Harris, et al., MIS) The land area was originally inhabited by the Ohlone people. The first European settlers were the Spanish.

In 1820, Luís María Peralta, a soldier in service of the King of Spain, was granted Rancho San Antonio. After the Mexican-American War in 1848, although land ownership and citizenship was promised in the Treaty of Guadalupe Hildalgo, many people were stripped of their land. The Gold Rush and 1852 incorporation of Oakland led to a resettlement in the population of the area. What was once farmland and orchards slowly began to change due to the industrial revolution.

Initially European-American migrants and European immigrants, like the Portuguese, populated East Oakland. Following the White Flight to suburbs and removal of restrictive covenants in Post-World War II, first African Americans, Latinos (primarily Mexicans), and Asians began to populate the corridor within Oakland. Over time, the demographics of San Leandro have also changed to reflect California’s growing ethnic diversity. (“Peralta Family History”, Self) Today, the Flatlands of East Oakland and north San Leandro, specifically the Corridor, is surrounded by mostly communities of color, low-income and transit dependent populations. To reflect the ethnic diversity of the Corridor, in 1996, the Oakland City Council changed its portion from East 14th Street to International Blvd. From its origins near Lake Merritt to its political terminus at the San Leandro city border, the Boulevard traverses through various Asian (including Chinese, Vietnamese, Cambodian, Laotian) , as well as Latino and African American communities.

In 1903, F. M. Smith founded the San Francisco, Oakland & San Jose Railway, also known as the Key System. The streetcar system, designed to enhance the area’s real estate market, started with Transbay lines connected both sides of the Bay. In 1937, Local

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Aztec dancer from begins 2010 “Love Yo Mama” Earth Day event giving tribute to ancestors.

Streetcar Lines were introduced, including Line 1: East 14th Street. The line ran from Oakland to San Leandro.

The streetcar system was one of many throughout the country dismantled by National City Lines, a front company for General Motors and Firestone Tires. The privately-owned Key System went bankrupt in the 1950s before being bailed out by voters and reconstituted as AC Transit in 1958, with operations beginning in 1950.

What was then the Line 1 became the Line 82. (Levy)

East Bay BRT Study

Project History Nearly 50 years after the bankruptcy of the Key System, Oakland identified light rail as a solution to congestion on major corridors. The 1996 General Plan for the City of Oakland identified San Pablo and Telegraph Avenues, and MacArthur, Foothill, and International Boulevards as Regional Transit Streets, prime candidates for improved transportation infrastructure.

In 2002, AC Transit proposed the creation of a BRT system following the results of a two-year Major Investment Study (MIS) focusing on the cities of Berkeley, Oakland, and San Leandro. The study looked at other transit improvement alternatives for the Telegraph-International-East 14th corridor, such as light rail and simple low-cost bus improvements. BRT was the most cost-effective option to expand existing transit service (MIS). A draft Environmental impact Report (DEIR) was completed and circulated for community input in 2007.

At the same time, AC Transit introduced Line 1R, or International Rapid. Line 1R service incorporated BRT features, like bus stops spaced further apart than its companion, Line 1, and transit signal priority, all with the objective of providing more rapid transit service.

After input from residents and stakeholders from the three municipalities and the development of Locally Preferred Alternatives (LPA), the Final EIR (FEIR) was completed and approved by AC Transit in 2012.

In 2012, AC Transit adopted a shorter Downtown Oakland San Leandro (DOSL) alternative serving just two cities instead of three due to community opposition in Berkeley and north Oakland, funding considerations, and other operational issues. (MIS, FEIR, HIA).

In 2002, AC Transit proposed the creation of a BRT system following the results of a two-year Major Investment Study (MIS) focusing on the cities of Berkeley, Oakland, and San Leandro. The study looked at other transit improvement alternatives for the Telegraph-International-East 14th corridor, such as light rail and simple low-cost bus improvements. BRT was the most cost-effective option to expand existing transit service (MIS). A draft Environmental impact Report (DEIR) was

Project History

FIGURE 1.1 Downtown Oakland-San Leandro Alternative Map of International Blvd-E. 14th Corridor, depicting median transitway, side-running transitway and mixed flow.

Source: AC Transit Final Environmental Impact Report (2012)

completed and circulated for community input in 2007.

At the same time, AC Transit introduced Line 1R, or International Rapid. Line 1R service incorporated BRT features, like bus stops spaced further apart than its companion, Line 1, and transit signal priority, all with the objective of providing more rapid transit service.

After input from residents and stakeholders from the three municipalities and the development of Locally Preferred Alternatives (LPA), the Final EIR (FEIR) was completed and approved by AC Transit in 2012.

In 2012, AC Transit adopted a shorter Downtown Oakland San Leandro (DOSL) alternative serving just two cities instead of three due to community opposition in Berkeley and north Oakland, funding considerations, and other operational issues. (MIS, FEIR, HIA).

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R3W Associates

What is BRT?

B

us Rapid Transit has key characteristics distinguishing BRT from normal bus service (see Figure ## below). The characteristics that differentiate a BRT system and a traditional bus system are subtle but important.

BRT systems around the world generally have higher

quality shelters or stations than busses do. Sometimes these stations have off board payment systems or use electronic passes to speed up boarding times. They also typically have a low floor to make boarding much easier for people with bicycles, wheelchairs or less mobility. Modern BRT busses are very fuel efficient and either use alternative fuels or hybrid technology.

Beyond physical changes to the vehicle, there are

Figure 1.2: Characteristics of Bus Rapid Transit System Animation depicting key characteristics of Bus Rapid Transit Systems, including: running ways (or, dedicated lanes), stations, vehicles, improved service, fare collection, branding, and Intelligent Transportation Systems (ITS).

Source: GAO Bus Rapid Transit Research

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East Bay BRT Study many infrastructural changes to the system that lead to increased efficiency. Dedicated lanes with median boarding and traffic light preference allow the bus to board quickly without having to merge and travel along it’s route with increased speed. Median boarding also relieves the sideway of some congestion allowing for more pedestrians to use that space. It also eliminates potential conflicts between busses and cars or cyclists. Some systems have busses that are able to board passengers on both sides of the bus which allow for the bus to move into a more traditional style of service easily. All of these features allow for the route to accommodate more busses, decreasing wait times and further improving the level of service.

Another common feature is branding, or marketing of the service. The readily identifiable logo or color scheme is used to promote the unique service.

BRT was first introduced in Curitiba, Brazil in 1974

by Mayor Jaime Lerner. The main trunk of the system runs through high density residential neighborhoods and the central business district. Other lower capacity routes run throughout the city and connect back to the main trunk. In the early 90’s, the city introduced their famous passenger boarding tube platforms that included off board payment and level boarding with the busses. All together the system now has almost 50 miles of dedicated lanes and busses that run 24 hours a day. (Golub, 4) The success of BRT in Curitiba lead to it being replicated in many other cities around the world. Its cost effectiveness, flexibility, and efficiency are very attractive features that planners keep in mind when public transportation needs to be improved.

Characteristics of Bus Rapid Transit

· Running ways Dedicated lanes for BRT vehicles to operate in help decrease travel time, increase predictability, and increase a sense of permanence. · Stations Stations or shelters provide additional rider amenities and differentiate BRT from standard bus service. May include: weatherproofing, safety improvements, public art, and landscaping. · Vehicles Stylized vehicles run with alterative fuels or hybrid technology. BRT vehicles are often designed to carry more riders and improve boarding with multiple boarding doors and low floor buses. · Improved service BRT systems provide more frequent service that is faster and more reliable than standard bus service. · Fare Collection Pre-paid or electronic passes increase both convenience and speed of fare collection, thus decreasing boarding times and saving travel time. · Branding Branding distinguishes standard bus service by marketing BRT as separate service, consistent branding of stations and vehicles. · Intelligent Transportation Systems (ITS) Improves service reliability by providing traffic signal priority for BRT vehicles at intersections, extending green lights, as well as “Nextbus” GPS tracking for vehicle arrival times.

Source: GAO analysis of bus rapid transit research

Figure 1.3: Logo for AC Transit’s “Rapid” Service Source: AC Transit

What is BRT?

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R3W Associates

Project Finances

The East Bay BRT Project has a many agencies, grants, measures, taxes, tolls, and fares that have allocated funds for their plan. This section will be an overview of the financial breakdown that was provided by AC Transit’s Final Environmental Impact Statement.

To begin, there are important terms and key players that are funding this project, and without them, the project would have a really hard time surviving.

Most importantly, there is the Federal Transit Administration (FTA) Section 5309 Small Starts Program that provides financial support towards locally planned, implemented, and operated transit capital investments by the Federal government.

This resource is vital for the survival of the project because Alameda County cannot afford to fund the project on its own.

The following are some of the financial sources from the Small Starts Project. Before going any further, note that each source has allocated a certain amount of money for different areas of East. Bay BRT and whatever is left over will be allocated towards the BRT project. First, Regional Measure 2 source, which is San Francisco Bay Area Bridge tolls were raised by 1 dollar in 2004 and about 43.4 million dollars out of 65 million dollars are committed to the East Bay BRT Project. Second, Alameda County Measure B: Half-cent sales tax for transit projects approved

by Alameda County in 1986, then re approved in 2002. Â Measure B committed to providing 5.5 million dollars out of 20.23 million dollars. Third, there Alameda CTC STIP Funds, which are $40 million in State Transportation Improvement Program (STIP) funds committed to the project.

All AC Transit vehicles must be ADA accessible. This passenger exited the Rapid bus at BayFair BART Station in San Leandro.

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East Bay BRT Study

Project Costs

At this point, the BRT project can go one of four directions: This project will have an overall cost from 310 million dollars to 400 million dollars depending on which alternative is chosen. Initial projections were made for both the Locally Preferred Alternative (LPA) and the Downtown Oakland-San Leandro (DOSL) options.

In order for BRT to get the funding that they need, they have to show certain financial commitments by providing a reasonable plan, evidence that the incremental operations and maintenance (O&M) costs of Table 1.1 BRT Cost Alternatives project is less than five percent of ACThis table shows the Capital Costs for the various BRT alternative routes.

Source: Parson’s Corporation, AC Transit Transits O&M costs, and showing good financial standing in the past Some risks in financing the East Bay BRT project 3 years through financial statements. O&M costs are is most importantly, that the remaining funding for estimated to be about 1.5 percent of AC Transit’s total the project still needs to be found and secured, it is O&M costs, so it is less than 5 percent; great news for approximately 250 million dollars to 340 million BRT. dollars. Another risk is that “much of the assumed nonThe amount for O&M costs is estimated to be 354.6 federal funding for the East Bay BRT Project would be million dollars by 2015.The federal funding allocated derived from sales taxes and bridge tolls. The revenue for O&M comes from the FTA Section 5307; they set from these sources is highly dependent on economic aside 38.4 million dollars. Additionally, the FTA Section conditions and could fall short of expectations”.

5316, Job access and Reverse Commute gave a portion Another risk is the possibility of delay in construction of funds as well, since AC Transit serves low-income schedule, which will increase capital costs for the populations. The state funding allocated for O&M project. Lastly, if the fare assumptions change, then it comes from The Transit Development Act (TDA) and will impact passenger revenues as well as operating and State Transit Assistance (STA); specifically AC Transit capital plans. received 56.5 million. The final category of sources for The most important question to focus on is, did BRT O&M is local funding, it includes: AB 1107, Parcel get the funding from the FTA that they were counting Taxes, property taxes, Measure B, Measure C/J, Rm-2, on? In order to get the project finances they need, they and other operating revenues. must score an overall “medium” from the possibilities of high, medium-high, medium, medium-low, or low.

This project scored an overall “High”, which means the project met all the requirements and will be given the money to make this plan a reality.

Executive Summary

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R3W Associates

San Leandro Strip Mall This retail complex is typical of San Leandro’s car-orientation. Parking is off-street and in front of stores. There is a small pedestrian strip between the parking lot and street that discourages walking. Likely, it was an afterthought.

Assessing the Physical Landscape

On Saturday, July 7th, 2012, our team conducted a site visit to get a better idea of route. We boarded the 1R in San Leandro and rode through Oakland stopping in key neighborhoods to make our assessment. Since the 1R does not run past the Uptown Transit Center, we then boarded the 1 to continue our journey.

At the time of our site visit, Berkeley had been dropped from the plan and AC Transit was in the process of determining where the BRT line would terminate. We’ve included our assessments of two neighborhoods in Oakland, KONO and Temescal, that are no longer included in the final BRT route because we feel the issues that they encountered are important in understanding the breadth of the project.

Downtown San Leandro Sidewalk This sidewalk in downtown San Leandro illustrates the lack of walkability of the city’s core. Trees, trashcans, and plants dominate the majority of the sidewalk. The city is very auto-oriented.

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Photo: Ryan Hunt

East Bay BRT Study

San Leandro/East Oakland

W

hen looking at the designs of homes in many parts of East Oakland and San Leandro, often, it is hard to make a distinction of being in one city or the other. Over time, each city has made changes to their streets to make distinctions. For example, the main, contiguous thoroughfare running from downtown Oakland, through San Leandro, to the southern Alameda County city of Hayward was East 14th, a State Route (#185).

In 1996, the City of ‘(San Leandro) Oakland voted to change was a streetcar the name of its portion of suburb that East 14th to International Blvd, reflecting the diverse underwent groups that live along the expansive road. San Leandro, an East Bay suburb of Oakland building in the and San Francisco, has post-war East a population of 84,950 Bay.’ people .

Originally inhabited by the First American Ohlone people. Under Spanish colonial rule, two “ranchos” were granted to Jose Estudillo and Don Peralta in the 1800s. Portions of those ranchos became the basis for the town of San Leandro. It was a streetcar suburb that underwent expansive building in the post-war East Bay, and due to restrictive housing covenants, the city barred nearly all non-whites (Bay Area Census, Robert O, “American Babylon.”).

Entering San Leandro from the north (Oakland), one is greeted by a large “San Leandro” public statue in the median. The gradual increase of trees as you travel south lets you know you are in a “Garden City.” East 14th seems to be a line demarking industrial uses to the west (right side, towards the Bay), and residential homes (left side, towards San Leandro Hills). The city’s off street parking and low density creates a carcentric feel. The Boulevard is dominated by automobile related businesses: auto care, detailing, sales, repair.

Past the city’s business district core at Estudillo, a mix of apartments begins to appear on the street. The sidewalks, after thinning near downtown, widen, allowing for more walking. Still, in San Leandro, car is king.

Assessing the Physical Landscape

SAN LEANDRO BART STATION is one of two regional rail stations serving the central Alameda County suburb of San Leandro.

This intermodal transit hub will be the end of the BRT line.

Initially, AC Transit wanted BRT to expand to Bay Fair BART, but concerns about a dedicated bus lane extending that far, and its impact on traffic, led San Leandro officials to recommend an extension to San Leandro BART only. The ride between BART stations, on the bus, takes between 5 to 13 minutes currently. Most bus stops do not have shelters, a few have benches, but most only have poles that indicate the bus line serving the stop. The lack of furniture seems connected with the city’s car culture.

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Liquor Store Bus Stop This bus stop at the corner of Seminary and International Blvd is heavily utilized but poorly serves the community. On hot days, like that of the photo, passengers awaiting the bus seek shelter in the shade of the adjacent Liquor Store–underneath a “No Loitering” sign.

The Seminary area, known as “Sem City,” is also a turf with a lot of violent crime.

Hegenberger Corridor

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ntering East Oakland from San Leandro, there are no massive symbols that would indicate you’ve switched cities.

The first structures; however, have major significance. First, Durant Square, sits on the east-side of International Blvd. The site has been a mixed-use area, combining residences with the long-established retail. A recent facelift makes the structure more akin to Emeryville than the older structures that dominate the street.

Next, a huge church atop a parking structure dominates the road. The former car dealership symbolizes much of the past 40 years of East Oakland: a large church with predominantly black congregants serving the neighborhood, and a large parking lot serving those who have since moved from where the church started,

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often into the suburbs that were once restrictive.

The streets lack a median or island until 98th Ave. At that point, a tree-lined median towers over the road.

Bus shelters begin to appear, where there were only poles and fire hydrants substituting as furniture.

Empty storefronts and liquor stores sit nearby mercados (markets), showing the growing presence of the city’s Latino population in “Deep” East Oakland.

Facilities of arguably Oakland’s most powerful Black church, Allen Temple, appear between about 20 blocks. After passing the large East Oakland Youth Development Center (EOYDC), a large youth facility with murals on its walls, and the Walgreens across the street on 81st, the street appears wider due to the lack of trees.

The street, now past a small curvature, looks longer as it extends straight towards a downtown Oakland only visible on clear days.

East Bay BRT Study

Fruitvale

This transit oriented development was developed to honor the community, create better access to the Fruitvale BART station, and revitalize the Fruitvale central business district.

Passing down International Blvd, the north side of the boulevard maintains it dense neighborhoods, while the southern sides mix of industrial and residential development continues.

The southern side contains many automotive and construction warehouses with some commercial and retail buildings along International.

Once past High St., activity levels start to pick up and the Latino presence in the area becomes clear. There are many restaurants, markets, and party supply stores along the street. City wide, Fruitvale ranks second to the Rockridge neighborhood when it comes to sales of comparison goods. (Existing Retail Sector Performance 128) Comparison goods are goods where people prefer to shop around for the best price and include goods such as antiques, jewelry, appliances and cars.

In the center of the Fruitvale district is the Fruitvale Transit Village. This transit oriented development was developed to honor the community, create better access to the Fruitvale BART station, and revitalize the Fruitvale central business district. The plan for this development includes a large amount of retail, restaurant, commercial, and residential space and connects BART with the current 1, 1R, and many other bus lines.

When the plan for the transit village was introduced, there was considerable opposition from the community. The Unity Council partnered with the City of Oakland and BART and offered an alternative plan to BART for the development that better serves the area. This plan has won numerous awards and is used as a case study by the US Federal Department Photo: BART.gov of Transportation Federal Highway Administration. Fruitvale Transit Village Top, the 1R bus collects passengers at the 34th Ave Paseo. Above, (FDOTFHA)

Assessing the Physical Landscape

the Fruitvale Village, a Transit-Oriented Development, created with community leadership and effort.

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R3W Associates

Downtown Oakland

R

iding through the Downtown Oakland section of the proposed route felt like almost entering a different city. The half-vacant state of the buildings downtown is haunting, but the businesses that remain and the new businesses that are popping up, show the resiliency of Oakland.

As the 1R leaves East Oakland and starts to round the lake, you begin to see some of the more significant civic buildings of Oakland, including Henry J. Kaiser Auditorium, the Superior Court House, and the Oakland Museum of California. Also notable in the area are Laney Community College, the Main Branch of the Oakland Public Library, the Fox and Paramount Theaters, and two University of California administrative buildings.

With this many different attractions downtown the ridership is very diverse. According to BRT’s Draft EIS/R in 2012, Downtown Oakland provides more than 65,000 jobs and has very high employment density.

The stops along this section are all well maintained with both benches and shelters provided. The 1R bus did not feel overly crowded even though the route normally handles as many as 25,000 riders per day. As you enter the downtown area on the bus, the contrast of the lake and the almost monolithic Henry J. Kaiser

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Photo: Ryan Hunt 12th Street & Broadway Rapid service ends at this intersection on weekends. 12th Street is the transfer point for other buslines from downtown Oakland, BART, or a destination as a hub for downtown Oakland.

East Bay BRT Study

Photo: Ryan Hunt

and Court House buildings is striking. The closer you get to Broadway, you begin to see more buildings and storefronts that are vacant, abandoned or in various states of disrepair.

A building known as the Key System Building, the headquarters for what eventually became AC Transit, has been vacant since being damaged in the 1989 Loma Prieta earthquake. City Center is home to the Clorox headquarters, the 12th Street BART Station, and a number of other businesses which results in a large number of people moving through these areas during the day. The downtown streets are wide and most are lined with parking.

Some bicycle traffic travels along the two designated bicycle routes, Franklin going out of the downtown area and Webster entering downtown but it is not uncommon to see cyclists on Broadway.

As the route passes the 19th St. BART Station, it stops at the Uptown Transit Center on Thomas L. Berkley Way, between Broadway and Telegraph. This is a major intermodal transit stop for nine AC Transit routes and is adjacent to the 19th St. BART Station. In the uptown area are a large number of newly built apartments and condos, many restaurants, bars, cafes, two large concert venues, Kaiser Plaza and the majority of Oakland’s medical marijuana facilities. This area

Assessing the Physical Landscape

Uptown Transit Center Top, Panorama photo of the Uptown Transit Center, between Telegraph Ave and Broadway on 20th Street (Thomas L. Berkeley Way) in Downtown Oakland. The Intermodal center is situated near 19th Street BART, and connects to neighborhood and Transbay AC Transit bus lines.

Above,R3W members looking at a wayfinding map at the Uptown Transit Center. Such maps are typical of enhanced BRT stations.

has seen a lot of growth in the past years and is likely to see much more activity in the future. While there are still some vacant storefronts in the area, many of Oakland’s most popular restaurants are within a few blocks of the Transit Center.

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AFTER

Before After

BEFORE

TOD site at International & 55th Ave. Formerlyan auto plant. Currently a furniture store and barber college.

TOD site at 22nd & International Blvd. Site has school, Mexican restaurant, and other small businesses. Notice potential “loss� of Food Truck.

AFTER

TOD site @ International & 81st Ave. Currently has fast food restaurant. Only part of International with Truck Route.

BEFORE

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B

East Bay BRT Study Figure 2.1.Proposed TOD Locations and Corresponding Simulations of TOD Site Development

A

Assessing the Physical Landscape

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R3W Associates

Koreatown/Northgate, Oakland

K

oreatown resides immediately adjacent to Downtown Oakland so it was not hard for us to walk to Koreatown once we found out next 1 bus wasn’t due for another 40 minutes. There was a noticeable lack of trees in the neighborhood and very few bus shelters.

Although there are other the ethnic groups in the community, Koreatown was a name attached to the district because of the large number of Korean businesses drawn in by one developer. There are tensions in the neighborhood surrounding the push for the Koreatown designation because the name doesn’t reflect the true diversity of the neighborhood. The result of this is the compound abbreviation of the neighborhood, KONO, or Koreatown-Northgate (Richards 5/6/2009).

There are no known opposition toward BRT project from this neighborhood. It seems KONO is currently more focused on it’s own development. BRT could bring more people to visit this area.

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Above Above, This intersection in Koreatown/Northgate was intially primed for BRT; however, after opposition from Berkeley merchants and residents, AC Transit voted to focus on an alternative that did not include this stretch of Telegraph Ave. Some Oaklanders still hope to get bike lanes along Telegraph.

Opposite page: Top, in the Temescal neighborhood near 51st and Telegraph, these two Line 1 buses are “bunching.”

Both buses are now competing for passengers and, in this instance, are making a challenging situation for the pedestrian seeking to cross the street.

Right, this bus stop features a bus pole and small bench. It’s location near a freeway underpass is very unattractive and, without amenities like Nextbus.com, a schedule, or map, it seems to encourage people to skip that bus stop.

Photos: Reginald James

East Bay BRT Study

Temescal, Oakland

B

y the time we arrived at Temescal, the general demography of the bus has changed from when we took the bus in San Leandro.

Not only was there more students with diverse ethnic backgrounds, but there were also more seniors, handicapped people and people carrying several bags of groceries.

This segment of Telegraph was also more inviting than Koreatown. The walk was pleasant thanks to the storefronts and the large tree canopies that shade the sidewalk, which also seemed wider than other parts Telegraph. The bus stops stood out more because of the benches and overhangs.

Before the founding of College of California in 1873, Temescal was a peaceful small district in oakland. The landscape of Temescal has forever changed since the railway connected College of California (UC Berkeley) to downtown Oakland through Temescal. Since then, the evolution of Temescal depended on the evolution of the transportation system. When railroad was introduced, Temescal has suddenly transformed from a quiet neighborhood into one of the busiest commercial streets in the area. Economic success, however, did not provide healthy environmental impact to the residents.

The rail turned Telegraph Ave into a run down and the polluted street. After the railroad, Temescal moved on to a steam dummy trolley and eventually diesel powered buses took over the street in early 20th century.

BRT project in Temescal encountered strong opposition from the business community. The shop owners are concerned over the loss of parking space along the street to make extra space for BRT. The elimination of 70% of parking space is a drastic measure to them and business owners feel that without parking in front of their store they will lose business. Despite their support in high density, smart growth, the business owners dislike the idea of BRT taking their customers away. (Gammon) The areas that comprise the route all have distinct concerns that the BRT may or may not address. Some districts are excited with the plan while other districts are fearful of the harm BRT might bring. However, the area it will serve is projected to grow in the next 20 years and a high capacity service is much needed.

Assessing the Physical Landscape

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Assessing the Social Landscape

T

he social landscape along the BRT corridor can not be described as uniform. Even without the city of Berkeley, Oakland’s Corridor includes the Downtown Oakland central business district, Chinatown; San Antonio, an ethnically diverse community with a large Southeast Asian population; Fruitvale, a largely Latino community; Elmhurst, a district that was largely African American until recently; and Downtown San Leandro. Each community is unique and has their own view on BRT, both positive and negative.

The difference demographics, such as students, working men and women and seniors also have different views of BRT. The “Stakeholders” section highlights how different groups will benefit from BRT. In this section we will also examine the change that BRT will bring to the composition of the road, including the breakdown of how many people are transit-dependent and how many people rely on the use of their own car.

Finally, does BRT positively affect the health and safety of the community?

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Music from the East Two children playing traditional Chinese music at the Chinatown Street Festival in 2011. Oakland’s Chinatown now encompasses Asians from countries such as Vietnam, Cambodian, and beyond.

‘Oakland residents are in general less educated than those in the county. One in four were born in foreign countries.’

Oakland Health Profile, 2004

East Bay BRT Study

Stakeholders

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he International Blvd Corridor encompass a vast area with various, distinct stakeholders, including: government, nonprofits, businesses, and the community members, or residents.

Community

The residents, including the parents, students, and seniors, have the most at stake with this project. Â They may gain the most from the benefits and/or suffer the most due to unintended consequences. Bus riders will benefit from more reliable, faster, and comfortable bus service along the corridor. Amenities such as improved passengers waiting facilities, provide riders shelter from the elements while waiting for buses, and improved lighting for safety.

Non-profits

A variety of nonprofit organizations service the communities along International Blvd. The Inter-Tribal Friendship House and the Native American Health Center serves the Native American community. The Lao Family Development serves the Laotian community while the Unity Council serves the Latino community.

There are also various youth serving organizations along the corridor. The East Side Arts Alliance serves the San Antonio District; the Eastlake YMCA is located near High Street; Seminary Ave is adjacent to Rainbow Recreation Center; the Hegenberger area is served by both the East Oakland Youth Development Center (EOYDC) and a branch of the Boys and Girls Club of Oakland; Youth Uprising is also within a mile from parts of the Corridor. There are two libraries along the corridor, the Martin Luther King Jr. Branch near Lockwood and the new 81st Avenue Branch.

The BRT will service 109 public and private schools, 97 in the Oakland Unified School District and 12 in the San Leandro Unified School District. Â Additionally, there are a number of other higher educational facilities accessible from the route including Laney College, Merritt College, Samuel Merritt College, and a three of adult education centers. The end of the line will serve as a transfer point for people to continue on to Berkeley City College and UC Berkeley. The regularity and efficiency of the BRT will surely provide a way for students of all ages to take public transportation to and from school. Â

Stakeholders

Access to Higher Education Above, a Local AC Transit bus passes Laney College, a community college located near Chinatown in Oakland.

Below, the 100 Year Old Doe Library and the Sather Tower at the University of California, Berkeley.

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The Oakland Tribune Building was built in 1923.

The Tribune, a daily newspaper, was owned by the powerful Knowland family. Congressman Joseph Knowland and, later, his son, William, along with powerful “downtown” interests controlled Oakland for nearly half a century.

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Providing a reliable and predictable means of transportation can alleviate a lot of stress for students and their families. The additional mobility given to young people is something they might not have otherwise.

Following the older Locally Preferred Alternative (LPA) plan, there were 26 hospitals and medical facilities along the route. These facilities include: Alta Bates Summit Medical Center, Alta Bates Campus, Summit Campus, and Herrick Campus, Children’s Hospital in Oakland, and San Leandro Hospital. The City of Berkeley’s withdrawal from the project will make access to these hospitals less convenient; however, they will still be accessible by using the connecting local lines.

Faith-Based Organizations There are 330 different houses of worship of many different denominations along the DOSL corridor. These institutions are central parts of the community and are important to the success of the project. Many of these

East Bay BRT Study organizations also wield significant political power and can be either strong allies or fierce opponents to the project depending on if their needs are met.

Because of the nature of this project, there is coordination between a large number of Federal, State and Regional agencies as well as consultation with neighborhood groups, merchant groups, and other private groups.

Business

Big business has long abandoned East Oakland, above I-880. Eastmont Mall has few stores and is primarily populated by City and County services. The Fruitvale District does numerous small businesses.

BRT to Berkeley?

Further into deep East Oakland, there is not a strong merchant organization. It is unclear if the Black Wall Initially, AC Transit proposed bringing Bus Rapid Street Business District is still active in Oakland.

Transit from San Leandro to Berkeley; however, after Government opposition from some merchants and residents, the The largest government stakeholders are the cities of agency decided to run BRT along the InternationalOakland and San Leandro, and AC Transit. Additionally, East 14th Corridor in Oakland and San Leandro only. a large part of the corridor is under the jurisdiction of Caltrans as a State Route (SR-185). Being as the DOSL corridor covers multiple jurisdictions, multiple police, traffic enforcement, fire and emergency services will cover the area.

Alameda County Sheriff’s Office, the Cities of Even though my sister smoked crack cocaine Oakland and San Leandro Police Departments, and the She was nine months pregnant, ain’t nothing California Highway Patrol will provide police and traffic changed enforcement services. The Oakland Fire Department $600 million on a football team and Alameda County Fire Protection District will And her baby dies just like a Dope Fiend provide emergency and fire protection services. Along The story I tell is so incomplete the corridor, there are four police stations and seven fire Five kids in the house and no food to eat stations in Oakland and two police stations and three Don’t look at me and don’t ask me why fire stations in San Leandro.

Mama’s next door getting high Since 2007, the Technical Advisory Committee Even though she’s got five mouths to feed (TAC) has been meeting to provide technical insight She’s rather spend her money on a H-I-T and guidance for the project. Additionally the Policy I always tell the truth about things like this Steering Committee (PSC) has been meeting to I wonder if the Mayor overlooked that list create policy measures to be included in the Final Instead of adding to the task force send some help Environmental Impact Statement/Report and its Waiting on him I’d better help myself drafts. Both of these committees are comprised of Housing Authority and the O.P.D. members from AC Transit, City of Berkeley, City All these guns just to handle me, in the… of Oakland, City of San Leandro, Caltrans, and the –“The Ghetto” Alameda County Transportation Commission.

Too Short, Oakland rapper

‘The Ghetto’

Stakeholders

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R3W Associates

Transit Demand

Understanding the area’s transportation habits will help the project planners with identifying the need for the project and how beneficial it will be to the population it will serve. According to Bay Area Census, the total population in Alameda County has grown to 1.5 million as of 2010 and about 11% of the population takes public transportation. The 2000 census indicates the majority of the population, 80.2%, relies on car while 10.6% relied on public transportation,1.2% uses bicycle and 3.2% of population chose to walk. However, the use of car between 2006-2010 has decreased by 3.3%, the use of public transportation increased 1.7%, the use of bicycle and walking increased by less than 1%. (www. bayareacensus.ca.gov/) The 2000 Census also indicates that San Leandro has a 10.2% public transportation ridership, while in Oakland the rate is 17.4%. To further break down the data, three out of four people who lives in Oakland and work in San Leandro, drive alone, while 13.3% carpool, 4% rely on the bus , 5% rely on BART, 4% uses bicycle, and .7% walk. For people who live and work in Oakland, 54% drive alone, 13% carpool, 10.3% take the bus, 1.8% uses Bart. 1.3% of population bike and 6.7% walk to work. Oakland has higher percentage of public transportation users than rest of the county.

According to the AC Transit website, the projected corridor daily ridership in 2016 will reach 36,000 per day from the current 25,000. It also indicates BRT travel time will be 25% faster during the day and 28% during the rush hour compared to the speed of current 1R.(AC Transit)

Figure 3.1 Alameda County Transportation Modal Split Source: Alameda CTC

An AC Transit passenger exits using the wheelchair ramp on Broadway.

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East Bay BRT Study

Community Health

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he comprehensive BRT plan is forthcoming from AC Transit but with other sources of data, we can predict how BRT will impact the social landscape of the affected area with improvements in efficiency, safety, and the visual landscape.

The affected area is largely a low income, that is also comprised of a large number youth and seniors. The high amount of seniors that live along the corridor are more likely to rely on public transportation due to lack of mobility. Young people also rely on public transportation to and from school. (HIA 31) A Health Impact Assessment for the area found that health in the affected area was lower than in the rest of the county. The assessment came to this conclusion by looking at the instances of hospitalization where the main reason for hospitalization was listed as: obesity related, diabetes related, asthma related, and unintentionally injured related to traffic incidents or crime. (HIA 36)

Community Health

‘Salud, Primero! No Importa el Dinero!’

Hundreds march during the second ‘Love Yo Mama’ Environmental Earth Day celebration in East Oakland. Families called for the healthier food options in the community and reduced pollution in the neighborhood.

“Salud, Primero,” is Spanish for “Health, first! “ and “Nor Importa de Dinero, means, Money is not Important.”

Benefits from BRT could help address some of these health related issue. Increased walking could be beneficial for people who suffer from obesity and diabetes. Lowering air pollution in the area will help all the residents of the area and especially residents who suffer from asthma or other lung related diseases. And by decreasing traffic along International Blvd., traffic accidents may also be reduced. (HIA 36) With some of the highest infant mortality rates in the State, BRT can lead Oakland towards being a healthier, more sustainable, and environmentally just city.

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In 2011, nine people were killed along International Blvd, including a threeyear-old. The cause of death: gunshots. Often called the “Killing Fields,” the majority of the city’s hundred-plus annual homicides happen in East Oakland, with nearly half within a half mile of the International Blvd Corridor.

Source: Urban Strategies Council

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R.I.P. Carlos One year ago, a three-year-old child, Carlos Nava, was killed on International Blvd in broad daylight walking back from a store with his mother. The makeshift memorial above is one of many to have lined International Blvd over the years.

Crime Reduction

A

ccording to the Health Impact Assessment,BRT can help reduce the crime rate around the corridor . Some of the safety issues arise from the traveling to and from the bus stops and the time spent waiting for the arrival of the bus the increase in ridership directly link to “eyes on the street” (HIA ES 3.4).

The design of the platforms also function as a structural strategy of preventing the crime. placing the platform on the median increases visibility of the passengers to the rest of the street, thereby preventing criminals from targeting the riders waiting on the platform. the investment in installing more light, security cameras, hiring ticket inspector also adds additional security.

East Bay BRT Study Figure 3.2: Before & After International Blvd at 99th Avenue.

Simulated improvements with new BRT Station, includding boarding platformed, pedestrian and streetscape improvements.

BRT Station moved to 101st Avenue to accommodate Senior Citizen facility.

Source: FMG Architects,

AC Transit

Aesthetics

I

n terms of assessing the visual aesthetics of the corridors along the BRT lane, the aim is to enhance the attractiveness of the streetscape and create an appealing atmosphere for pedestrians and small business owners.

To do so, a few strategies are employed in certain regions that include: the addition of the curbside bulb-outs, raised paved or planted medians. As the pictures above show, the improvements of the existing street happen primarily at the medians. Â This strategy inevitably narrows the road and visually increases the sense of presence of the pedestrian path. Â The big change here is the raised platform in the center. Â

Aesthetics

The platform will become a moderately dominant street features in this area alone with the planters that adds greenery to the streets.

Currently the majority of the population uses private vehicles as the main method of transportation. This conventional mode of transportation may change, due to different stakeholders that support BRT for different reasons and the impacts on different communities and different expectations on what BRT can bring to them. The community can expect reliable and safe transportation, schools can look forward to the punctual arrival of students and the students can have greater autonomy. Churches can expect an easier commute for parishioners that include the elderly and other people with limited mobility.

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R3W Associates

Utilities

T

here are safety issues visible to everyone that need to be improved. However there are also hidden safety hazards that also need to be addressed.

When the proposed platform is above the underground utility lines, there will be the engineering of rerouting the lines, not only to ensure the functionality of the utilities, but also to guarantee the safety of the riders on platform.

According to Final Environmental Impact Statement, § 4.5.1, the utilities are designated as either high risk (high pressure natural gas lines, high voltage electrical, petroleum, oxygen, chlorine, toxic or flammable gases) or low risk (low pressure natural gas lines, lower voltage shielded electrical).

The utilities in East Bay BRT corridor include underground electrical, gas, water, sanitary sewer, recycled water, TV/cable, fiber optics and telephone. Above ground, there are street lights, electrical, telephone, and TV/cable lines and almost all of the utility lines have to be moved away from the proposed bus platforms. As the result, 62 utility lines along the corridor are must be relocated, two need removal, and 22 require adjustment for surface utilities. (FEIR/S § 4.5.1)

Demonstrators march up International Blvd from 1st Ave International Blvd stretches from 1st Avenue near Lake Merritt to the San Leandro border.

Efficiency

I

mplementing dedicated lanes on a relatively narrow corridor will inevitably remove a lane available for cars. Streets like International Blvd. between High St. and 27th St. are especially narrow, consisting of only two lanes.

Even though there are no plans of installing the designated lane for that region, the street may see heavy congestion. In some places, the plan proposed to eliminate street parking to widen the street.

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East Bay BRT Study population.

Another report by the Urban Strategies Council found rom examining the 2000 and 2010 Census that Alameda County lost 9%, or just over 17,000 African data, the makeup of East Oakland is changing. Americans, and the population was proportionately In 2011, SF Gate published an article stating offset with an increase in the populations of Latinos and that Oakland had lost 25% of its African American Asians. (State of Bay Area Blacks 4)

Changing Demographics

F

Figure 3.3: Comparison of Majority Ethnic Group Census Blocks in East Oakland; 2000 and 2010.

The Latino population of East Oakland is increasing; the African American propulation of oakland is decreasing.

Source: U.S. Census; Mapping America,NYTimes.com

Demographics

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R3W Associates

Planning Analysis

F

rom our findings in the first two sections, we see that each community has their own unique needs. Although there are general benefits to be had across the region, each community will benefit differently from the project and will also face different

challenges because of its implementation.

In this section, we will first look at the long term benefits of the project, and then it will focus on the benefit/conflict issues of BRT within different districts.

Due to the limit of this paper, we will compare two districts: Hegenberger and Fruitvale.

LEGEND WHITE ASIAN LATINO BLACK Figure 3.4: East Oakland Truck Routes over Ethnic-Majority Census Tracts This graphic overlays major diesel truck routes over census tracts in east oakland with majority ethnic group populations. By block, green represents white majority, orange represents latino, blue represents african american, and red represents asian. Pink blocks are multi-racial. the two major north-south interstates, which run east-west through Oakland’s flatlands are I-880 and I-580. Large trucks are not allowed on red routes, while allowed on Purple colored routes.

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East Bay BRT Study

Hegenberger Corridor

T

he Hegenberger Corridor, also called the Coliseum Area, is located in “Deep” East Oakland. Just north of the Nimitz Freeway (I-880) and the old Union Pacific Railroad tracks, between Hegenberger Road, and 98th Ave, and south of International Blvd, the area has dozens of polluting industrial sites.

The area was primarily home to working class European-American families until after the Second

World War, when new developments like the Brookfield Village enabled African Americans move out of overcrowded West Oakland, the only area they could live at the time.

In response to oppression from the “power structure”–a multi-generational urban regime led by the Oakland Tribune owning Knowland family that included two State and Congressional representatives– African Americans organized the Black Panther Party for Self-Defense. Although headquartered in West and North Oakland, the party was active in East Oakland.

Two young women from East Oakland’s Youth Uprising organization ‘chill out’ at ACORNWoodland Elementary School in the Hegenberger Corridor. Behind the ladies is the former Sunshine Biscuits factory, one of over 200 toxic sites in the Corridor.

Despite the past segregation, the area became predominantly African American by the 1970s. This trend of suburban migration by whites and middle class blacks was coupled with the loss of blue-collared manufacturing jobs, like the General Motors plant (now Eastmont Mall) and Ford factory. (OHP) In this post-Vietnam era, new industries rose to replace the loss of jobs: the drug trade. In the 1980s, the Oakland drug trade was ran exclusively by drug kingpin Felix Mitchell–the inspiration for the film, New Jack

Hegenberger Corridor

City. Operating out of the Coliseum Gardens, a public housing complex that was originally whites-only, Mitchell controlled an expansive drug enterprise through violent rule. After years of running a multi-million dollar operation, he was imprisoned and later killed while incarcerated in 1986. His funeral embarrassed officials with a horse-drawn parade through the city attended by thousands who remembered him for his Thanksgiving food giveaways and basketball league, opposed to the lives his product destroyed.

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Following the funeral, a group of local ministers led a “March for Righteousness” to take back the streets of Oakland. Soon after, his take down was a part of the Weed and Seed program, a collaboration between local and state government, and the federal Department of Justice. The program aims to “weed out” drug and violent offenders, and “seed,” or build on goals set by community members at public meetings. This federal program was defunded in 2011. Because of the high levels of crime and the increasing cost of living in Oakland, the area’s African American population has been in decline since the 1980s.

This history illustrates the transient nature of the community. It also shows the community has struggled to maintain a solid identity, and sought out assistance from the informal sector because of the history of disinvestment.

Today, the corridor is a predominantly low-income, African American and Latino. Community of 11,000 people (CBE survey). The area is home to a high percentage of families with children, and high rates of asthma. The community has numerous homes, as well as schools, senior centers and recreation centers, in close proximity to heavily used corridors. Surrounded

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by diesel truck routes, the only stretch of International Blvd that allows large trucks is within this area. In Oakland, heavy duty trucks are prohibited on Interstate 580 and can only use the freeways in the flatlands: 80 and 880. Thus, as illustrated in Figure [insert #], predominantly, low-income communities of color in the flatlands are more vulnerable to pollution.

A 2007 community mapping study conducted by East Oakland residents, led by Communities for a Better Environment (CBE), identified over 200 sources of pollution, including a large foundry, Foreign Trade Zone, and other “magnet sources” that bring diesel trucks to the area. Additionally, CBE identified over four dozen “sensitive receptors”, including schools and recreation centers. Combined with the high rates of homicides that occur in this area, the toxic environment’s cumulative health impacts resulting from environmental racism.

A major community asset in this corridor is Allen Temple Baptist Church. In addition to serving one of the largest congregations in Oakland, the nearly 100-yearold church operates a school, HIV/AIDS ministry, and four senior citizen residential complexes along the Corridor. In the past four years, the church’s Ministry of Prophetic Justice has been involved in an Environmental

East Bay BRT Study

‘Ama a tu Mama’ (Love Yo Mama).

Opposite page, over 100 East Oakland residents march during 2010 Love Yo Mama Earth Day event, including students from Acorn Woodland Elementary School.

Above, Darren, 10, poses with a ‘Green is Good for the Hood!’ sign during parade.

The Hegenberger Corridor lacks trees and open space, many residents say.

Hegenberger Corridor

‘Figure 3.4: Map of Pollutants and Sensitive Areas in Hegenberger Corridor Environmental justice advocates and Corridor residents have identified over 200 pollutant sites in the Corridor, many adjacent to the over 45 ‘sensitive’ areas, including schools, daycare, and senior facilities.

Source: Communities for a Better Environment

Justice campaign. CBE organized, “Love Yo Mama” in 2009 and 2010, an Earth Day celebration focused on environmental justice, but no longer holds the event.

Other youth-serving stakeholders on the corridor include East Oakland Youth Development Center and the Boys and Girls Club of Oakland. Youth Uprising is a mile away from the corridor on MacArthur Blvd near the area’s local high school, Castlemont.

When BRT was first proposed for the corridor, the lack of identity and community capacity may have prevented major mobilization against the proposal.

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Sophina Mesa, widow of Oscar Grant, III, and her mother, march through Fruitvale in November 2010.

Fruitvale District

F

ruitvale was named for the vast orchards and gardens that once spread through the district.

The development of the area was spawned by the 1906 Earthquake.

In the 1920’s the area grew quickly from the streetcar that ran down E. 14th Street. The corner of Fruitvale Ave. and E 14th was almost as bustle as Downtown Oakland in the 20s. The intersection had 4 banks, many department stores and other shops nearby. The Latino population maintained a presence since the early settlement and benefitted from the growth of the area.

(Latino History Project) East Oakland’s growth during WWII increased the area population dramatically as people moved in to take advantage of the many manufacturing jobs that were available. After the war ended, the manufacturing jobs began to close down. The population of the area declined as the whites started moving out to the

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suburbs. As whites began to move out and displaced African Americans from West Oakland moved to East Oakland, Mexican immigrants also began to move into the area. Because of the large Spanish speaking population, many Fruitvale churches began to conduct their services in Spanish. As the wealthy customers continued to move out, the department stores and other shops began to close. In the 50s, Fruitvale lost about 10,000 jobs. (Unity Council 10-13) In the mid-60s, the Latino community began to organize and the Unity Council was founded. The Unity Council started by providing employment and education services to the community and in the 70’s became a CDC and began to provide other social services such as housing and community development. Also in the 60s, BART began construction on the Fruitvale Station promising that the station would help to revitalize the neighborhood. Unfortunately they did not live up to their promise. (Unity Council 25-29)

East Bay BRT Study

In the 80s and 90s, the Latino population grew dramatically and the 2000 Census showed a 15% increase in the Latino population between 1990 and 2000. Even though the area was poverty stricken, the community cohesion proved to be a great benefit and nearly half of the growth in Oakland between 1980 and 1990 was in Fruitvale. (Unity Council 48-53 The Unity Council has been instrumental in the tying this community together and ensuring the needs of the district are being met. The Unity Council worked with BART in the development of Fruitvale Village and has since been honored with many awards for it’s design.

Given the history of these two neighborhoods and their current trajectories, going forward, planners need to be mindful of the challenges these neighborhoods have faced. Careful consideration is needed because of the lack of community cohesion in the Hegenberger Corridor.

Fruitvale has a stronger neighborhood identity.

Many families that have immigrated to the States and settled in the Fruitvale District have done so because other immigrants from the same cities and towns in Mexico had done the same. Like other transnational suburbs, they keep ties with extended family and send remittances, or “migradollars.” Over time, these kinship networks have grown to strengthen community-based organizations like La Clinica de la Raza. the Spanish Speaking Citizens Council, and the Unity Council.

Far from monolithic; however, the common language of Spanish enables what could be considered a subculture to establish a unique mini-Metropolis, with its own downtown and indigenous leadership.

Fruitvale District

Figure ##: Simulation of International Blvd & 34th Ave, before and after the installation of BRT.

The installation of Bus-Only, or Dedicated Lanes, will prevent buses from “bunching,” or being stuck in congestions.”

Source: FMG Architects, AC Transit

Thus, when a proposed Gang Injunction by the City Attorney targeted youth from the community, organizations like Homies Empowerment and others were able to mobilize and ally with other organizations like the American Civil Liberties Union (ACLU) and other coalitions to fight the injunctions (Arnold).

The Unity Council has a long history of Community Development with a lot of resources at its disposal for planning and research. It is well positioned to offer guidance when developing for their community. On the other hand, community coordination for the Hegenberger Corridor is largely from faith-based organization which, while their concerns are vaild and must be considered, may not reflect the community as a whole.

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Long Term benefits

E

conomically, the BRT will sustain the growth of the cities in different levels. Increased pedestrian circulation brings increased flow of economy to the community, which further brings more opportunities for TOD projects to encourage the growth. BRT provides access to more jobs to more people.

If BRT can remove the burden of car ownership or at least lessen the dependence on cars, people’s quality of life can increase.

Less traffic also reduces the stress generated from driving through congested areas. Not only that, faster commuting time implies more efficient time spent working and for personal life.

Here the economic benefit and social benefit are intertwined. The social benefits then would include increased human connection, and encourage the community identity and the unique community experience that provides the sense of place.

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Figure ##: International Blvd & 34th Ave is a popular destination

Without BRT and Bus Only Lanes, International Blvd is projected to grow even more congested.

Right, Aztec dancers close out the ‘Love Yo Mama’ Earth Day celebration.

With 40 percent of all Greenhouse Gas Emissions in California due to transporrtation, COakland needs to encourage other modes of transit besides the automobile.

East Bay BRT Study

“

‘Our ancestors are in this earth. We all have a stake in its protection and its pollution.

We must protect the earth like it is a family member.’

”

Rev. Daniel Buford, director of Allen Temple Baptist Church’s Prophetic Justice Ministry

Emissions improvements

The environmental benefits of this project include a reduction in CO2 emissions. While this reduction alone is marginal CO2 emissions are predicted to drop 25% because of increased car efficiency in the coming years. It also comes with a high level of bus service and drastically reduced vehicle miles traveled.

Although initially the BRT installation may initially increase the traffic congestion due to the competition

for the use of the road, with sufficient incentives to encourage the current car users to switch to public transportation, the problem can be significantly reduced. Less congestion can lead to safer streets with less noise and cleaner air. The combined effect of installing BRT and the ultimate reduction of traffic can encourage multi-modal public transportation. increase the aesthetics of the street and reduce the noise level.

(AC Transit, FEIR/S)

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Recommendations for Improvement:

We have a few suggestions on way to improve the BRT further. Â Our suggestions are towards the scope and scale of the project as well as suggestions on ways to

BRT to Berkeley

Berkeley opted out of the proposed BRT system; however, after it proves successful in Oakland and San Leandro, Berkeley will want in. Unfortunately, the cost will be higher than before, but hopefully additional federal monies will be available.

Parking Reform

In order to get motorists out of their vehicles, parking has to be made less attractive.

Increasing parking rates, and Transit-Oriented Developments without minimum parking requirements are a good start.

BRT for Bicyclists

Adding increased capacity on BRT vehicles for bicyclists will make the system more bicycler-friendly.

Jobs for Residents!

BRT is just one of many opportunities to reduce the unemployment rates of Oakland and San Leandro. BRT can be a catalyst for investment in the people of Oakland, not just the physical infrastructure.

Avoid Displacement and Gentrification

Transportation investments often lead to increased land values, and induced growth can lead to displacement and gentrification. The City, as well as community- and faith-based organizations, and families and individuals, must prepare.

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AC Transit has a lot of room for improvement.

East Bay BRT Study

BRT to Berkeley

Top, Telegraph Ave and Bancroft Way could be served by Bus Rapid Transit (BRT), but the issue would have to be revisited.

The Pill Hill Area, near Koreatown/ Northgate will not be served by BRT due to opposition in North Oakland and Berkeley. Hopefully, these residents and businesses will gain improved transportation services in the future.

Recommendations

Despite the opposition of the City of Berkeley, the long term BRT project extend from Cty of San Leandro to City of Berkeley is still desired. The beneficiaries include off campus students living around bay area, staff and faculty living in Oakland or further, and the people who live and work in Berkeley. BRT would improve access to UC Berkeley and Downtown Berkeley and free up more parking across town.

Our first suggestion is to put the Berkeley part of the route back on the table. The opposition from Temescal can be negotiated with strategies such as allowing preferential advertisement on bus or bus stops with extremely affordable price, create off street parking lots in the corner of street to attract customers. In such case, more analysis will needed to evaluate the new ideal parking lot to replace street parking space.

An alternative to Telegraph would be to change the route to San Pablo and end at Berkeley Amtrak. Currently BRT will replace the 1R line along International and there is a Rapid service that follows the 72 route.

Congestion on San Pablo Avenue is at similar levels to International and there is already a turn-around at Berkeley Amtrak. Â Obviously people who work or go to school in Downtown Berkeley would have to transfer to a feed bus to reach their final destination but this addition would serve the needs of West Oakland and Emeryville residents and pass by many new high density residential developments on San Pablo.

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Parking Reform

T

he availability of free or cheap parking in Berkeley is still enticing people to drive around town. And the congestion in Berkeley is a growing problem. Just as anyone who’s ever driven down College Avenue in the afternoon.

It can be hard to encourage people to use public transportation when street parking is plentiful and cheap.

One way is to increase the parking rate. UC Berkeley is not a parking friendly place because of the high parking rate and the limited parking space. Again, discouraging street parking could become a sensitive matter as it has happened in Temescal. Despite the advantage to encourage the community to take public transportation, the shops, businesses feel that they rely on the parking spaces will lose the business and would not be justly compensated by the development.

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Telebgraph Ave and Bancroft Way in Berkeley.

We recommend reforming parking in Berkeley by following the lead of Donald Shoup and cities like Old Pasadena and Redwood City. By raising the price of parking to reflect the market value, and using the increased meter revenue to improve conditions for pedestrians Berkeley might be able to appease the merchants who think they need bountiful street parking.

Berkeley has started to reform parking in the Downtown area. Berkeley transportation planners have been slowly raising the price of street parking to reach an 85% occupancy level. So far they haven’t gotten to a price high enough to ensure this.

East Bay BRT Study

BRT and bike riders

H

ow would BRT benefit bikers that use public transportation?

Taking the bus is problematic for bike riders. There is not enough room for cyclist to bring their bike on board and only space for two bikes on the rack at the front of the bus. If the spaces on the rack are full, cyclist have to wait for the next bus.  The racks don’t provide very much security either.

The designers of the the bus that will run on BRT need to recognize this problem and design the bus in the way that it can accommodate more of them. By adding increased capacity for bikes, planners can encourage more people from switch from using their car to biking, walking and riding public transportation.

Recommendations

Bicyclists from Red, Bike & Green during the annual Peace Ride in July 2011. How will BRT benefit bicyclists in East Oakland?

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Jobs! Jobs! Jobs!

I

n the final pitch to the City of Oakland to approve the DOSL Plan, AC Transit promoted BRT as “an investment in Oakland” with the potential of upwards of 400 construction jobs and 300 ancillary jobs. When pressed by Councilwoman Desley Brooks (East Oakland); however, it was revealed that due to federal funding being used for this project, local hiring could not be mandated. AC Transit, however, pledged to “request” companies contracted for construction hire locally. With Oakland’s official unemployment rate at 13.7 percent–while national unemployment for black works is 16.2 percent (Kroll) this pledge is insufficient for Oakland’s need to employ youth and the formerly incarcerated.

Despite strings connecting to federal, through effective community partnerships, this project can lead to more jobs. In the past, the City of Oakland has worked with YEP, Youth Employment Partnerships, to employ youth to do graffiti abatement work. A similar partnership can be arranged for both abatement and maintenance of bus shelters and facilities. If youth from within the communities are employed, it may increase their stake in the community and project. If funding is lacking, it may be possible for merchants along the corridor in different districts to establish a Business Improvement District (BID) similar to downtown Oakland and Rockridge.

Since the 1980s, AC Transit has faced challenges

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AC Transit Operators, members of the Amalgamated Transit Union (ATU) Local 192 participate in a rally to support legislation authorizing transit funding. Transit jobs page a living wage.

with the behavior of some younger passengers. A gang known as the “AC Mob” used to terrorize passengers in the 80s and 90s. As recent as 2010, AC Transit was looking for ways to control the behavior of youth riders on the system. The agency hires undercover “bus monitors” who serve in an “observe and report” function; however, a unique opportunity will be available with the new off-board fare collection system.

Ticket inspectors will be hired, and the first people hired should be ex-offenders. With “realignment” of the California prison system, even more people will be returning to Oakland from the state’s correctional facilities. Working together with Oakland’s Measure Y outreach workers, employing ex-offenders we will reduce recidivism and violence. Workers would enroll in the College of Alameda’s Violence Prevention program as a part of their reentry. Youth and ex-offenders would be targeted for employment since these populations are frequently the victims or perpetrators of violence crime.

East Bay BRT Study

Above the East Side Cu;ltural Center, opened by the East Side Arts Alliance in 2006, are a dozen affordable housing units.

Longtime residents of the area are able to remain in their community due to such affordable housing projects. The groups that coalesced around BRT must organize for affordable housing along the Corridor also.

BRT, TOD and Gentrification

W

ith increased accessibility comes the potential for growth inducement. This affords planners with an opportunity to increase transit oriented development (TOD) along the BRT route.

Oakland has had success with TODs at the Fruitvale and 19th St. BART stations. This success is not only with increasing density near transit, but with ensuring environmental justice.

When BART planners showed their initial plans for the Fruitvale Station redevelopment, there was tremendous resistance from the surrounding community.

Recommendations

This resistance was turned into an opportunity by the Unity Council setting a precedent for future TODs in Oakland. The Unity Council’s vision for the Fruitvale Village integrated with the neighborhood and should be the model for any TODs developed along the BRT route.

But with adding density and new development comes the risk of gentrification. This risk can be mitigated with affordable housing requirements in new developments. But rather than focusing on new development, city planners can create performance based zoning that can encourage organic transit oriented development by fostering smaller scale development that maintains a community connection.

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R3W Associates

Conclusion

T

he impact on the social landscape of the BRT route can be observed through the cited reports regarding the issues of health, crime, and simply the physical layout of the corridors, with the latter obvious to the users.

Although the BRT proposal does not eliminate all the existing problems, it certainly functions as an catalyst to alleviate some of the issues. Health problems of the communities that are caused by lack of opportunity to exercise is given an informal exercise routine. The walk from home to bus stop does not only benefit the rider physically but socially due to the idea of “eyes on street” which contribute to the reduction of crime as opposed to the use of surveillance camera.

The improvement of aesthetics brings not only the health benefit by encouraging more people to walk in a pleasant atmosphere, but also attracts business, which can be directly responsible for the economical success of the region.

In conclusion, the addition of BRT to the corridor is not just an additional method of transportation, especially when the funding of BRT entails not only the creation of center lane BRT station but also involves the environmental improvement of the corridor.

The result is that BRT will initiate a series of organic urban changes, where the originally poor area can gain opportunity to become wealthier and unhealthy suddenly are given an opportunity to change. The urban morphology that will unfold with BRT will not be purely positive. While one community benefits from BRT other community may end up with more problems.

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‘Love Yo Mama’ Environmental Justice Earth Day (2010)

Works Cited

Abate, Tom. “Crosstown Bus Service Last Glitch For BRT - San Leandro, CA Patch.” San Leandro Patch. N.p., 10 July 2012.

Web. 13 July 2012. <http://sanleandro.patch.com/articles/ crosstown-bus-service-last-glitch-for-brt>.

AC Transit East Bay BRT Project DEIS/DEIR. Rep. Oakland: AC Transit, 2012. Print.

Alameda County Public Health Department. The Health of Alameda County Cities and Places: A Report for the Hospital Council of Northern and Central California, 2010. Oakland, California. July 2010.

Alameda County Public Health Department. “Oakland Health Profile.” Alameda County Public Health Department. 2004.

Web. 10 Aug. 2012.

Alameda County Public Health Department. “Fruitvale: Community Information Book.”Alameda County Public Health Department. N.p., 2001. Web. 13 Aug. 2012. <http://www. acphd.org/media/53462/fruitvale.pdf>.

Alameda Contra Costa Transit District, & U.S. Department of Transportation/Federal Transit Administration. (2012, January).

“AC Transit East Bay Bus Rapid Transit Project – Final Environmental Impact Statement/Final Environment Impact Report”. <http://www.actransit.org/final-environmental-impactstatementfinal-environmental-impact-report-feisfeir/> Accessed July 26, 2012 Alameda Contra Costa Transit District. AC transit Berkeley/ Oakland/San Leandro Corridor MIS: Summary Report. 9 September 2002.

Arnold, Eric K., “Oakland Gang Injunctions: Gentrification or Public Safety?” Race, Poverty & the Environment. 2012 Bates, Tom, Linda Maio, and Laurie Capitelli. “Bus Rapid Transit Final Environmental Impact Study/Report Build Alternatives.” Letter to Members of Berkeley City Council. 29 Apr. 2010 MS. Berkeley, California.

California Department of Transportation, Development Procedures Manual <www.dot.ca.gov/hq/oppd/pdpm/apdx_ word/apdx-ll.doc>, Accessed July 26, 2012 Conley Consulting Group. City of Oakland. Rep. N.p., n.d. Web. <http://www2.oaklandnet.com/oakca1/groups/ceda/documents/ report/oak022133.pdf>.

Donald Shoup, “The High Cost of Free Parking,” Journal of Planning Education and Research, Vol. 17, No. 1, Fall 1997 “Fruitvale: Community Handbook 2001.” Alameda County Health Service Agency, 2001. Web. <http://www.acphd.org/ media/53462/fruitvale.pdf>.

Gammon, Robert. “East Bay Express.” East Bay Express.

N.p., 28 Apr. 2010. Web. 13 July 2012. <http://www. eastbayexpress.com/ebx/will-bus-rapid-transit-ruin-temescal/ Content?oid=1712083>.

Golub, Aaron, “Brazil’s Buses: Simply Successful.” Access, No. 24. Spring 2004 Harris, Celia, Purciell-Hill, and Kimmy Puccetti, “A Health Impact Assessment of the East Bay Bus Rapid Transit (BRT) Project. Human Impact Partners, UC Berkeley Schools of Public Health and City & Regional Planning. 12 July 2012. < http://www.humanimpact.org/doc-lib/finish/8-land-use-andtransportation-hias/177-east-bay-brt-hia->

East Bay BRT Study “Healthy Communities by Design : Content:.” Healthy Communities by Design : Content:. N.p., 2007. Web. 13 Aug. 2012. <www.healthycommunitiesbydesign.org/Content/10046/ Hegenberger_Corridor_Project.html>.

Human Impact Partners, “A Health Impact Assessment of the East Bay Bus Rapid Transit (BRT) Project” July 12.2012, http://www.humanimpact.org/doc-lib/finish/8-land-use-andtransportation-hias/177-east-bay-brt-hiaKuruvila, Matthai. “25% Drop in African American Population in Oakland.” SF Gate. N.p., 11 Mar. 2011. Web. 11 Aug. 2012. <http://www.sfgate.com/bayarea/article/25-drop-in-AfricanAmerican-population-in-Oakland-2471925.php>.

“Latino History Project.” Latino History Project. N.p., n.d.

Web. 13 Aug. 2012. <http://museumca.org/LHP/nar_intro. htm>.

Levinson HS, Zimmerman S, Clinger J, et al., Bus Rapid Transit: Volume 2: Implementation guidelines. 2003.

Levy, Daniel, “Key System.” Oberail. Accessed July 26, 2012. http://www.oberail.org/map.php?id=34 Orozco, Gabrial. “A Brief History of a Pioneering Community Development and Service Organization.” The Unity Council. N.p., Aug. 2008. Web. 13 Aug. 2012. <http:// www.unitycouncil.org/wp-content/uploads/2012/02/ historyUnityCouncil1.pdf>.

“Peralta Family History: History of the Peralta Family and the Rancho San Antonio.” Accessed July 26, 2012. http://www.peraltahacienda.org/pages/main. php?pageid=69&pagecategory=3 Ramos, Joel, Community Planner with TransformCA. Interview Richards, Kathleen. “East Bay Express” East Bay Express. N.p., 6 May 2009. Web. 13 July 2012. ,http://www.eastbayexpress. com/gyrobase/oaklands-koreatown-isnt-your-typical-ethnicenclave/Content?oid=1369628&showFullText=true. > Self, Robert O., “American Babylon.” Princeton University Press. 2003.

Taylor, J. Douglas Allen. “East Bay Express.” East Bay Express. N.p., 2 Feb. 2011. Web. 13 July 2012. <http:// www.eastbayexpress.com/ebx/whats-left-of-brt/ Content?oid=2414177>.

Transportation Research Board, (TCRP Report 90-Volume II.) Washington, DC. Accessed July 26, 2012, <www.nbrti.org/ docs/pdf/tcrp_rpt_90v2.pdf> Urban Strategies Council. “State of Bay Area Blacks: A Look at Black Population Trends in the Bay Area, Part I.” Urban Strategies Council. N.p., 17 Sept. 2010. Web. 11 Aug. 2012. <http://www.urbanstrategies.org>.

US Department of Justice, Operation Weed and Seed Web. 11 Aug. 2012. <http://www.justice.gov/usao/md/CommunityPrograms/Weed%20and%20Seed/index.html>.

US Department of Transportation Federal Highway Administration. Rep. N.p., n.d. Web. 11 Aug. 2012. <http:// www.fhwa.dot.gov/environment/environmental_justice/case_ studies/fruitvale.pdf>.

USA. U.S. Census Bureau. Census 2000 SF1, SF3, DP1DP4, CTPP, Census 2010 DP-1. N.p.: n.p., n.d. Www. baryareacensus.ca.gov. MTC-ABAG. Web. 13 July 2012. http://www.bayareacensus.ca.gov/cities/SanLeandro.htm

R3W Associates

Ryan, Rebecca, Wenpei & Reginald

Student Attribution

Ryan Hunt - Editing, Downtown Oakland, Fruitvale Case Study, Stakeholders, Community Health, Planning Analysis, What is BRT?, Photographs, Research, Site Visit Reginald James - Editing, Layout, Area History, Hegenberger Case Study, East Oakland, San Leandro Section, Photographs, Planning Analysis, Research, Site Visit (All Photos by unless otherwise noted) Rebecca Lopez - Site Visit, Research, Financial Analysis Wenpei Wang - Â Koreatown/KONO section, Crime Reduction, Aesthetics, Utilities, Transit Demand, Planning Analysis, Conclusion, Research, Site Visit.

R3W Associates. 2012

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East Bay BRT Study

Figure 5.1 Foreclosure Maps: Investor Owned and Completed Foreclosures in City of Oakland since 2007 Source: Urban Strategies Council

Foreclosure Maps

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R3W Associates

Maps

Map 5.1: Ethnic Composition of Oakland White persons (Green) African American (Blue) Latino (Orange) Asian (Pink) (Dot = 100 persons) Source: U.S. Census; NYTimes.com Mapping America (2010)

Opposite Page Map 5.2. Ethnicity Concentration Map of Oakland White persons (green) African American (blue) Latino (orange) Asian (Pink) Source: U.S. Census; NYTimes.com Mapping America (2010)

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East Bay BRT Study

Maps

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R3W Associates

Table 5.1 DOSL Alternative Project Capital Cost (millions)

Map 5.3 - 2011 Oakland Homicides (East Oakland)

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Source: Oakland Police, Inside Bay Area

Figure 5.3: Employment in Berkeley/Oakland/ San Leandro MIS Corridor and Vicinity 2020

East Bay BRT Study

Figure 5.4: Activity Centers and Destinations in Berkeley Oakland San Leandro MIS Corridor

Back-Cover Photos: Top, Aztec dancers and youth join hands at Love Yo’ Mama Earth Day Celebration (2012) Right, sign at Occupy Oakland encampment, October 10, 2011.

–Photos: Reginald James Bottom-Left: Tilt-shift image of Line 1R bus at Fruivale Plaza, Oakland.

–Ryan Hunt

Maps, Figures

Source: AC Transit MIS (2002)

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