UPENN Workshop Plan - Oakland District 6 by Veronica Rosado

District 6 Equity Plan

2021-2031 A Twenty Year Plan to Advance Equity in Oakland’s District 6 CPLN 600 Planning Workshop | Andrew Dobshinsky | Elizabeth Wang Weitzman School of Design, University of Pennsylvania Isabel Harner, Emilio Martínez Poppe, Veronica Rosado, Weslene Uy, Corey Wills, Jiake Yu

Spring 2021

Page left blank on purpose I. District 6 View from Caballo Hills | Source: Trulia Neighborhood Guide

Acknowledgements Land Acknowledgement The authors of this plan would like to acknowledge that the San Francisco Bay Area is established on the unceded ancestral territory of the Ohlone people, known as Huchiun. And that this land continues to be a gathering place for indigenous peoples past, present and future.

Authors This plan was prepared by Isabel Harner, Emilio Martinez-Poppe, Veronica Rosado Perez, Weslene Uy, Corey Wills, and Jiake Yu.

Contributor Acknowledgements The authors of this plan would like to acknowledge the significant contributions of their instructor, Andrew Dobshinsky, the availability of their teaching assistant, Elizabeth Wang, and the invaluable input graciously given by Mya Whitaker, a District 6 resident who helped to guide the direction of this plan. This plan would not have been possible without their time, skill, and expert opinions.

II. East Oakland Collective Feed the Hood Program | Source: East Oakland Collective

Content

Introduction District 6 Overview Executive Summary + Stakeholder Engagement History of Oakland

5 8 10

1. Existing Conditions Demographics Neighborhood Character Land use/zoning Housing Economy Transportation & Mobility Environment

12 14 18 22 24 30 32 36

2. Issues + Opportunities Overview Environment & Transit Economy & Housing

40 41 42 43

3. Alternatives for District 6 Alternative 1: Rooted District 6 Alternative 2: Connected District 6 Alternative 3: Resilient District 6

4. The Final Plan Vision + Goals Strategies & Implementation Environment Transit Economy Housing Spotlight: A Complete Vision Bancroft Business District

48 50

Conclusion Works cited

85 86

50 58 66 74 82

District Overview The city of Oakland lies between the San Leandro Bay to the west, and a series of regional parks to the east. District 6 is considered to be “Deep East Oakland” as it is close to the southeastern edge of the city boundary. It is bifurcated by Macarthur Freeway and San Leandro Street. The District is largely divided into three geographic and cultural sections: the “hills”, “the flats” which are between MacArthur Freeway and International Boulevard, and the “industrial area” shown at the bottom of Figure IV. The district contains important landmarks such as the Leona Canyon Preserve and Merritt Community College in the hills, and Mills College as well as Eastmont Town Center in the flats. Mills College announced in March 2021 that they would be closing their campus as a traditional scholastic institution in 2024 will become an institute to promote women’s professional development. Situated in the industrial area are Lockwood Gardens, which is the Housing Authority’s largest development, as well as the Oakland Coliseum, a multi-use stadium which lies just outside the District’s boundaries but provides important engagement and job opportunities for residents of District 6.

III. Bay Area Map | Source: 2019 5-Year ACS census dataset

6 Oakland District 6

HILLS

FLATS

INDUSTRIAL AREA

IV. Distric 6 Geographic/Cultural Zones | Source: 2019 5-Year ACS census dataset

Equity Plan 7

Executive Summary Oakland’s Council District 6 faces myriad challenges including the threat of gentrification and displacement; looming threats from natural disasters exacerbated by climate change; a lack of investment in commercial corridors and community spaces; a gap in access to high-quality natural resources; a dearth of affordable housing; a perceived lack of safety of public transportation options; and a lack of well-paying local job opportunities. However, despite these challenges, District 6 has a lot to offer: a tight-knit community with many multigenerational households and long-term residents; an overwhelming majority of District 6 residents live within a 15 minute walk of public green space; a proximity to high-quality jobs in west Oakland and San Francisco; a historic legacy of community activism and mutual aid; as well as newly-constructed complete streets and bicycle lanes. The following plan proposes several strategies over a 20-year timeline to incorporate the District’s strengths in the addressment of its existing challenges: developing complete streets infrastructure; improving access to both public transit and cycling options; expanding transitional housing; establishing a federal credit union; creating a community land trust; implementing a storefront tenant support organization; improving both the quality of, and equitable access to, green space; helping residents navigate the process of phased managed retreat to address the threat of sea level rise; and implementing educational programs around disaster preparedness. These strategies, taken together, present a clear picture of what District 6 could be: a district which will continue to benefit from its strong tradition of advocacy, with diverse residents united around maintaining healthy, safe, and interconnected neighborhoods where they have opportunities to fulfill their potential. In order to implement this vision over the course of the next 20 years, a wide range of stakeholders have been consulted, and their opinions and ideas have been incorporated into any plans moving forward.

Stakeholder Engagement District 6 has experienced a long and unjust history of being redlined, neglected by city officials, and of experiencing vulnerability to both displacement and the threats of natural hazards. In order to combat these historic and present injustices, planners must take care not to unilaterally impose their vision for the district upon existing residents. District 6 is, and should remain, a place rooted in a strong tradition of political advocacy, community engagement, and self-determination. In order to retain its character, current population, and way of life while maximizing the potential benefits of a coordinated planning process, residents and relevant stakeholders were consulted at every step of the planning process. To facilitate this process in a manner which incorporates the opinions of as many diverse and representative voices as possible, the planning team will provide childcare, travel vouchers, and opportunities for virtual engagement, and will distribute in-person planning meetings equally throughout the district. The timeline for such engagement is as follows:

8 Oakland District 6

Month (2022) January

Action • Disseminate surveys to assess stakeholders’/residents’ perceptions of D6 existing conditions and needs • Analyze survey results

February

• Present survey analysis to stakeholders/residents at public community meeting with option for virtual attendance • Engage in in-person stakeholder engagement and workshopping activities to further refine the identification of existing issues and opportunities as well as community priorities and needs

March

• Synthesize results of workshopping exercise • Incorporate results into synthesis of initial plan document

April

• Consolidate stakeholder priorities into a working document • Use those priorities to outline potential action items/strategies for implementation of the plan

May

• Present draft strategies to stakeholders/residents to ascertain the relevance of strategies to District 6 community • Engage in a workshopping exercise for residents to vote on their favorite strategies

June

• Incorporate results of workshopping exercise into the strategies section of the plan

July

• Disseminate a survey, both in person and online, to residents to identify organizations which they feel are uniquely poised to act on the strategies outlined in the stakeholder engagement workshop • Reach out to identified potential partners and implementers to ascertain capability and interest in implementing strategies as outlined in the draft plan

August

• After ascertaining partner/implementer interest and capability, present the following plan components during a community meeting: • Existing conditions • Strategies • Issues and opportunities • Partners and implementers

September

• Incorporate the residents’ feedback and rework the plan as needed

October

• Present final plan to community members, partners, implementers, and city officials

November

• Engage in both in-person and online outreach to disseminate the finished plan to as many residents and stakeholders as possible

December

• Begin plan implementation

Equity Plan 9

V. Ron Dellums Congressional Campaign | Source: Politico Magazine

VI. Congresswoman Barbara Lee protesting nuclear armament | Source: Congresswoman Barbara Lee

VII. BPP Seniors Against a Fearful Environment (SAFE) Program | Source: Oakland Museum of California

10 Oakland District 6

VIII. Black Panther Party Oakland Community School | Source: History, A&E Television Networks

History of Oakland Migrations for Survival and Opportunity

In acknowledging the land that Oakland rests upon, the city must also acknowledge the waves of migration that shaped the built and social environment into what it is today. These include Mexicans who had the US border “cross them,” Chinese migrants who built the reservoir and the dam system of Oakland, and Black Americans who found a way out of the Southern racial terror through employment in Oakland’s factories and shipyards. Today, migrants continue to find refuge in Oakland where city officials refuse to cooperate with I.C.E.

Huchiun

What today is known as the East Bay in the San Francisco Bay Area is established on unceded Lisjan territory. The Lisjan are one of the many Ohlone tribes which belong to this land. The author of this report acknowledges the past, present, and future indigenous inhabitants of Huchiun who continue to struggle for sovereignty and justice.

Devising Modern Community Service

Black Americans during the second great migration brought with them pioneering legacies of self organizing which would go on to influence modern day social service work. The impact of this is most clearly seen in the work of the Black Panther Party. While their presence in Oakland is most commonly associated with their downtown headquarters, their associations in East Oakland can still be felt today. This starts with their move to 99th Avenue which now houses the Roots Community Health Center. After establishing several sites for the iconic breakfast program, the Party also established the Oakland Community School, which is the present site of Men of Valor’s reentry program. The Black Panthers also created specialized transportation systems including one specifically for seniors and people with disabilities as well as a bussing system from Allen Temple to local prisons.

Pioneering Political Campaigns

In the decade following the Black Panthers’ epic organizing efforts, figures such as Barbara Lee and Ron Dellums rose to prominence with the support of a mobilized population. Barbara Lee, California’s 13th (formerly 9th) Congressional District representative, was a community worker with the Black Panthers while she was a student at Mills College who got the Black Student Union involved in their efforts. She would later work with Ron Dellums who preceded her in California’s 9th Congressional District and join his anti-war lobbying. Dellums, the first Black American elected to office in Oakland would go on to co-found PEPFAR, the Congressional Black Caucus, lead an anti-aparthaid movement, and eventually be mayor of his hometown.

Governance Structure

Oakland has a mayor-council form of government with the city council acting as the legislative body. It is comprised of eight council members with one elected at-large. Officials hold a four-year term. Loren Taylor is the Council District 6 representative, elected in 2018 and currently serving his first four year term. He campaigned on improving economic opportunities for residents, bringing in more business to East Oakland, and creating a business incubator in District 6. He also ran on ending the displacement of long time residents through cooperative ownership strategies, rent stabilization, and the sanctioning of key homeless encampments with essential service programs. Mayor Libby Schaff, elected in 2014, created the city’s first Department of Transportation, implemented a universal basic income program for lowincome residents, and recently garnered controversy both for her decision to not enforce deportation raids by ICE and for her decision to ban non-permitted nighttime rallies within the city.

Equity Plan 11

Source: Lyft website

12 Oakland District 6

Existing Conditions DEMOGRAPHICS

NEIGHBORHOOD CHARACTER

LAND USE

HOUSING

ECONOMY

TRANSPORTATION

ENVIRONMENT

Low-income residents and residents of color are concentrated in the flats. Oakland’s Council District 6 is considered to be “Deep East Oakland” as it is close to the South-Eastern edge of the city boundaries. It is bifurcated by Macarthur Freeway and San Leandro Street. Situated X miles from downtown Oakland and Y miles from San Francisco. The district is largely divided into three geographic and cultural sections, shown in [image 2]: the “hills”, “the flats” which are between MacArthur Freeway and International Boulevard, And the “industrial area” shown at the bottom of the map.

Equity Plan 13

1. Existing Conditions

Population and Age Residents of District 6 account for 16% of Oakland’s total population and 4% of Alameda County’s total population. Today, 68,463 people live in District 6, and most of them are concentrating in the southwestern part of the district known as “the flats,” in the area between the MacArthur Freeway and International Boulevard. Residents of District 6 account for 16% of Oakland’s total population and 4% of Alameda County’s total population. This dense, flat area is home to people of color and young people primarily, while the residents north of MacArthur Freeway are mostly white, older adults. In terms of the age group distribution, most young people are concentrated in the Mills College area, which is located at the southwestern intersection of Warren and MacArthur Freeway. The senior population who are aged over 65 are mostly living around Caballo Hills, at the north-eastern corner of District 6.

District 6 has a larger share of Black and Hispanic/Latinx people compared to Oakland at large. District 6 has historically been a majority Black area of Oakland as with most of East Oakland. In 2010 the Black population made up over 40% of the total population of the district with the Latino population at nearly 35%. The white population was only 10%. However, in the past decade, changes to the district including the after effects of the 2008 financial crisis and its related predatory lending; the entrance of speculative real estate to serve the growing tech industry in the valley; and the increasing migratory flows from Central America resulting from governmental instability, climate change, and growing drug cartels have created shifts in the racial and ethnic makeup of District 6. In the past decade the large Black population has dropped 6% (nearly 2,500 residents), an effect particularly seen in the census tracts that make up the Maxwell Park neighborhood. These two census tracts alone have made up more than half of that number of displaced residents. At the same time the small white population has grown in size about 2,000 residents, almost half of which have seen a dramatic increase in those same two census tracts.

14 Oakland District 6

MacArthur

Fwy

lvd nal B

o rnati

Inte

Figure 1.1

25% 20%

Under 18

gen

ber ger

0-20% 20-30% 30-40% 40-50%

Young people are concentrated in the flats 64% 67%

18 to 64

Figure 1.2

e Av

Population Under 18 | Source: 2019 5-Year ACS census dataset

DISTRICT 6 vs CITY OF OAKLAND

Over 65

t rof

Fwy

73rd Ave

Race

MacArthur Fwy hur

Art Mac

Warren Fwy

11% 13% Population percent per age group | Source: 2019 5-Year ACS census dataset

This near wholesale turnover of a neighborhood has also seen smaller households replacing larger ones. While Black residents are being displaced across the district the acute gentrification felt in Maxwell park is a sharp indicator of the ongoing displacement pressuring the district from the North West. The Latino population has also seen a tremendous growth over the past decade with that ethnic group growing larger than the Black population and replacing it as the majority group in the District at 40%.

DEMOGRAPHICS

NEIGHBORHOOD CHARACTER

LAND USE

HOUSING

ECONOMY

TRANSPORTATION

ENVIRONMENT

MacArthur Fw y

Warren Fwy

ft cro

e Av 73rd Ave

y ur Fw cAr th

San Leandro

d l Blv ona i t a tern

Figure 1.3

Racial Ethnicity Map | Source: 2019 5-Year ACS census dataset

gen

ber ger

Non-Hispanic Black Hispanic/Latino White Non-Hispanic Asian Equity Plan 15

1. Existing Conditions

Income and Poverty Lower income families are concentrated in the flats, while the hills are home to households with higher incomes. The median household income in District 6 is $60,359 compared to $99,406 in Alameda County and $73,692in Oakland. District 6 has a higher rate of poverty than that of Alameda County. The proportion of families experiencing poverty in District 6 is more than twice the percentage of Alameda County. People under the age of 18 are most affected by this trend, as almost 30% of the population in this age group are considered to be living in poverty.

District 6 has a lower median household income at compared to the Alameda Countyand Oakland at large.

$ 60.4k $ 73.7k $ 99.4k Figure 1.4

District 6

Alameda County

Oakland

Household Median Income | Source: 2019 5-Year ACS census dataset

Education In District 6, 26% of the population over 25 has less than a high school degree.

MacArthur Fwy

MacArthur

Fwy

lvd nal B

o rnati

Inte

Figure 1.5

t rof

Fwy

e Av 73rd Ave

Despite the colleges and many K-12 schools scattered throughout the District, District 6 faces barriers with regards to educational attainment, with District 6 residents having achieved lower than average high school graduation rates when compared with national educational attainment rates. Specifically, many areas with high concentrations of Black, Hispanic, and Latinx residents have higher concentrations of residents with “less than high school degree attainment” than the nation’s average of 10 percent.

16 Oakland District 6

hur

Art Mac

Warren Fwy

gen

ber ger

Educational Attainment | Source: 2019 5-Year ACS census dataset

0-10% (U.S. avg) 10-30% 30-50%

DEMOGRAPHICS

NEIGHBORHOOD CHARACTER

LAND USE

HOUSING

ECONOMY

TRANSPORTATION

ENVIRONMENT

MacArthur Fw y

Warren Fwy

ft cro

e Av 73rd Ave

y ur Fw cAr th

San Leandro

d l Blv ona i t a tern

Figure 1.6

Median Household Income | Source: 2019 5-Year ACS census dataset

gen

ber ger

Median HH Income Rd

<= 30k <= 60k <= 90k <= 120k <= 150k Equity Plan 17

1. Existing Conditions

Neighborhood Character There is a wide range and urban, suburban and industrial landscapes. In the hills, the neighborhoods like Leona Heights and Hillcrest have larger homes with robust green areas.

Caballo Hills

Skyline Hillcrest Estates

Sequoyah Figure 1.7

Figure 1.10

Houses in Caballo Hills | Source: Trulia

Hillcrest roads in the hills | Source: Google Earth

Leona Heights

Figure 1.8

The Leona Heights Park York Trail | Source: Trulia

Eastmont Hills

Figure 1.11

Residences in Sequoyah | Source: Trulia

Mills College

Figure 1.9

Mills College Main Building | Source: Mills College website

18 Oakland District 6

Figure 1.12

Eastmont Hills tree lined streets | Source: Trulia

DEMOGRAPHICS

NEIGHBORHOOD CHARACTER

LAND USE

HOUSING

ECONOMY

TRANSPORTATION

ENVIRONMENT

Moving towards the flats, neighborhoods like Millsmont and Easmont have mostly detached homes with some access to green space. Deeper into the flats there are more two lane roads and low rise commercial buildings such as in Frick and Arroyo Viejo.

Eastmont

Figure 1.13

Streets in Eastmont | Source: Google Earth

Millsmont

Figure 1.14

Millsmont Residences | Source: Trulia

Equity Plan 19

1. Existing Conditions

Neighborhood Character Lastly moving towards the industrial area there are larger developments like Lockwood Gardens and we start to see wider roads and larger public transportation stations with less green space.

Hegenberger

Maxwell Park

Figure 1.16

Lockwood Tevis Figure 1.15

Source: 2019 5-Year ACS census dataset

Maxwell Park Roads | Source: Trulia

Seminary

Figure 1.18

Figure 1.17

Seminary Bancroft Intersection | Source: Google Earth

Coliseum Industrial

Lockwood Tevis Subsidized Housing | Source: Google Earth

Fairfax Business

Figure 1.19

Fairfax Business Multifamily Building | Source: Google Earth

20 Oakland District 6

Figure 1.20

Coliseum Industrial | Source: Wikipedia Commons

DEMOGRAPHICS

NEIGHBORHOOD CHARACTER

LAND USE

HOUSING

ECONOMY

TRANSPORTATION

ENVIRONMENT

Frick

Figure 1.21

Frick Cemetery | Source: Trulia

Arroyo Viejo

Figure 1.22

Arroyo Viejo Park | Source: Google Earth

Bancroft Business - Havenscourt

Figure 1.23

Bancroft Business Commercial Road | Source: Google Earth

Equity Plan 21

1. Existing Conditions

Land Use and Zoning More than 50% of District 6 is residential. Commercial Corridors are a mix. The district is over 50% residential, with a vast range of urban, suburban and industrial landscapes. District 6 is predominantly comprised of low rise buildings and suburban-style residential areas with single-family, detached homes. Houses vary in style and colors but the architecture is predominantly of the classic italianate single level style, queen anne cottage classic, and classic box. In Oakland the houses have been refurbished over time so those architectural styles do not preserve their original format in most cases. Throughout the district, houses share a very diverse and mixed character. Much of this housing stock is built in the pre-war era, meaning that housing is aging and at risk of deterioration and may be in need of upkeep. The commercial corridors in District 6 are mainly allocated in International and Foothill Boulevards. They are a mix of commercial and urban residential buildings. These avenues include normal car lanes as well as public transit and bike designated lanes at some segments.

Figure 1.26

KFC at International Blvd, Source: Google Earth 2021

22 Oakland District 6

Figure 1.24

Easmont Town Center, Source: Google Earth 2021

Figure 1.25

Shopping Center at International Blvd, Source: Google Earth 2021

DEMOGRAPHICS

NEIGHBORHOOD CHARACTER

LAND USE

HOUSING

ECONOMY

TRANSPORTATION

ENVIRONMENT

MacAr thur Fw y Warren Fwy

lvd nal B

io rnat Inte

Figure 1.27

Land Use Map | Source: 2018 Ordinance, City Planning Commission, Oakland

ve ft A

73rd Ave

c Ma

F ur

h Ar t

ro nc

gen

ber ger

Residential Detached Residential Hillside Residential Mixed Housing Residential Mixed Urban Commercial Open Space Industrial Special (Transit Oriented Dev) Coliseum /Estuary Area District Equity Plan 23

1. Existing Conditions

Housing Tenure District 6 is a majority renter community with facing high housing cost burdens and other threats to secure housing. District 6 contains about 12% of Oakland’s total housing units. Most of the units in the District are one unit dwellings built in the early 20th century. The median year built in the District is lower than the city overall, meaning that a large share of the housing stock in District 6 is aging and potentially at risk of deterioration. A higher rate of residential vacancy and concentration of one unit detached dwellings affect housing patterns and density. Renters in District 6 are disproportionately Black and Latinx when compared to the demographic makeup of the District as a whole.

OWENRS vs RENTERS District 6 Renters

WHITE

BLACK

HISPANIC/ LATINX Figure 1.28

Median Home Values 2014 vs 2019 in District 6

District 6 Owners

ASIAN

Housing Tenure | Source: 2019 5-Year ACS census dataset

Median HH Income Change in District 6

$451 k

$693 k

$45.1k

$60.1k

2014

2019

2014

2019

Figure 1.29

Home values and Median Income | Source: 2014 and 2019 5-Year ACS, Social Explorer

Most units are family households

Figure 1.30

Household Data and Housing Age | Source: 2019 5-Year ACS, Social Explorer

24 Oakland District 6

Most units were built between 1939-1950

DEMOGRAPHICS

NEIGHBORHOOD CHARACTER

LAND USE

HOUSING

ECONOMY

TRANSPORTATION

ENVIRONMENT

More than half of the renters in the flats spend over 40-50% of their income on rent.

MacArthur Fw y Warren Fwy

ft cro

e Av

73rd Ave

Mac

r Fwy Ar thu

San Leandro

lvd al B tion

rna Inte

Figure 1.31

Rent Burden Map | Source: 2019 5-Year ACS census dataset

gen

ber ger

Rent Burden Not burdened Moderate High Extreme Equity Plan 25

1. Existing Conditions

Housing Affordability District 6 continues to experience the effects of redlining and ongoing disinvestment. Housing affordability is a growing issue in the District and larger Bay Area. During the New Deal era housing reforms, most of the homes in the flats were deemed as risky investments by the Homeowners Loan Corporation and thus did not have access to the capital needed to participate in the growing middle class homeownership of the time. The communities in the flats continue to suffer from this long standing disinvestment and distrust of housing development. More recently, Black and Latinx residents have been subject to predatory lending practices. Risky, subprime mortgages were primarily targeted at communities of color, many of whom ended up foreclosing on their homes during the 2008 housing crisis. In 2020, the city of Oakland sued Wells Fargo for violating the FHA “by issuing predatory loans to its Black and Latino residents ...[that] caused widespread foreclosures that reduced the City’s property-tax revenues and increased its municipal expenses.” Because homeownership was originally discouraged by design, and then promoted in a predatory manner, residents of color are more likely to be renters while white residents are more likely to be owners. Unfortunately, renting is often unaffordable to many families in the District. Households are considered rent burdened when they spend 30% or more of their household income on housing expenses. Today, more than half of the renters in the flats spend over 40% of their income on rent. Many tracts spend over 50% of their income on rent, considered to be extremely rent burdened.

Figure 1.32 Oakland Redlining Historical Map | Source: Mapping Inequality, American Panorama Project

These issues combined with unequal access to local employment, creates an urgency for bottom up community development initiatives that enable residents to stay in the District. Opportunities exist for increasing housing supply by better utilizing vacant buildings, which account for around 7% of the total number of available housing units in District 6. Land remains vacant in the District and in Oakland for a number of reasons. Proposition 13, passed in 1978, decreased property taxes and limited increases in property tax assessments that has “helped facilitate this waiting game by lowering the cost of holding valuable land.” This results in widespread real estate speculation and absentee land ownership. The 2008 foreclosure crisis also left many homes vacant, and incentives for development have not been sufficient in turning over vacant properties.

Vacancy Rate

7% District 6

Housing Units

6% Oakland

93% Occupied

7% Vacant

Primarily Privately owned Figure 1.34

Houses in Millsmont | Source: trulia.com

26 Oakland District 6

Figure 1.33

Vacancy Data | Source: 2019 5-Year ACS census dataset

DEMOGRAPHICS

NEIGHBORHOOD CHARACTER

LAND USE

HOUSING

ECONOMY

TRANSPORTATION

ENVIRONMENT

MacArthur Fw y Warren Fwy

ft cro

e Av 73rd Ave

Mac

r Fwy Ar thu

San Leandro

lvd al B tion

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gen

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Vacant Land Figure 1.35

Vacant Land Map | Source: Mapping Inequality, American Panorama Project

Equity Plan 27

1. Existing Conditions

Gentrification and Displacement According to the Housing & Dignity Project, 86% of Oakland’s unhoused residents come from Alameda County, underscoring the role of displacement in the homelessness crisis. Like most of the Bay Area, Oakland has felt the repercussive effects of speculative development coming out of Silicon Valley compounded by the deindustrialization of the area’s ports. While central areas of the city have been hit hardest, disinvestment and speculation have been affecting Deep East Oakland more acutely because of the precarious situation many low income tenants find themselves in. In 2019, a majority of District 6 census tracts report high to extreme rent burden (figure 2) while the unhoused population reached a new high of 9,000 across Oakland. According to the Housing & Dignity Project, 86% of Oakland’s unhoused residents come from Alameda County, underscoring the role of displacement in the homelessness crisis. Oaklands “new homeless are Oakland natives and long-time residents who are struggling to adapt to the City’s changing housing landscape and demographics.” The map below shows where unhoused people typically reside in District 6, concentrated mostly in the flats and industrial areas, and how this overlaps with the historic redlining of the District. A 2018 study by the Urban Displacement Project conducted a tractlevel analysis on the threats of gentrification and displacement in Oakland and the Bay Area (figure 4). While the study identifies multiple classifications for the nuanced stages of gentrification, generally there are three major trends adversely affecting District 6. First, there is encroaching gentrification from the North West. Second, low income households that are susceptible to displacement are concentrated in the East, and third, the hills are becoming increasingly exclusive to high income households. These factors, coupled with an increasing homeless population, underscore the housing emergency that District 6 is a part of. Opportunities exist for emergency housing and expanding better access to more permanent and affordable solutions. Some of these will be elaborated upon in the strategies outlined in the map on the next page.

Homeless Encampments Sparse Dense Figure 1.36

HOLC Map Desirable Declining Hazardous Figure 1.37 Platform

28 Oakland District 6

Homeless Encampents in 2020 | Source: City of Oakland’s Open Data Platform

HOLC overlayed with Homeless Encampents | Source: City of Oakland Open Data

DEMOGRAPHICS

NEIGHBORHOOD CHARACTER

LAND USE

HOUSING

ECONOMY

TRANSPORTATION

ENVIRONMENT

MacArthur Fw y Warren Fwy

e Av t f ro

73rd Ave

r MacA

y ur Fw

St San Leandro

lvd al B n o i rnat Inte

Figure 1.38

Gentrification Risks Map | Source: Urban Displacement Project

gen

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Risk Level Ongoing Displacement Risk of Displacement Risk of Exclusivity Equity Plan 29

1. Existing Conditions

Commercial Activity There are two main commercial corridors in District 6: the Bancroft/ Foothill Avenue Corridor and the International Blvd Corridor. These corridors are a mix of residential and commercial spaces with a 90feet height limit and wide streets. Most employment opportunities are also concentrated along these corridors, while the rest are distributed around Mills College and the industrial area.

Commercial Inventory in 2021

5.0%

Unemployment Rate Figure 1.39

29.7k Employed Residents

Figure 1.40

Commercial Inventory | Source: Google Maps

Top 5 Employment Industries in District 6

6.0% Working Locally

Employment Data | Source: 2019 5-Year ACS census dataset

30 Oakland District 6

Eastmont Town Center | Source: 2019 5-Year ACS census dataset

The overall unemployment rate among the population in the labor force in District 6 is 5.0%, which is 2 percent point higher than Alameda County. The detailed regional unemployment condition is shown in the mapping on the right. The whole district creates 9,962 private employment positions, and contains 29,687 employed people. And among the 29,687 employed residents in District 6, only 6.1% of them are working locally. Meanwhile, it also implies 81.7% of the local employment is filled by outsider workers. The whole district is expecting high volume of in and out mobility during working days.

Workforce

Figure 1.41

Employment Industries | Source: 2019 NAICS Employment Data

DEMOGRAPHICS

Figure 1.42

NEIGHBORHOOD CHARACTER

Commercial Landscape in Disctrict 6 | Source: Google Maps

LAND USE

HOUSING

ECONOMY

TRANSPORTATION

ENVIRONMENT

Equity Plan 31

1. Existing Conditions

Transportation and Mobility Over 70% of District 6 residents drive to San Francisco, downtown Oakland, the Stadium Area and downtown San Leandro for work. District 6 is a bedroom community where only 6% of the residents are working locally. The rest travel outside the district for work, mainly to San Francisco, downtown Oakland, the Stadium Area, and downtown San Leandro. A smaller share of District 6 residents take public transit, walk, or cycle to work than the average Oakland resident, which may be in part due to the concentration of transit services in Downtown and North Oakland. Even so, the share of work trips by car is declining, while public transport trips have been increasing over time.

Public Transit The primary public transit operator is AC Transit, which operates 41 bus routes that pass through District 6. Almost half of these routes are school service routes, which only operate when school is in session. Faced with declining ridership and budget deficits because of COVID, AC Transit is cutting back on services by the Summer of 2021. The map (Fig. 1.5) shows some of these proposed changes. If these changes push through, it will affect AC Transit riders, primarily people of color and belong to low-income households.

Transport Mode to Work Distrcit 6

Commutes Commute times have increased for a larger share of District 6 residents. Most residents take their cars to work although the share of car trips has declined while public transport trips have gone up. Over 70% of District 6 residents drive to their workplace, higher than the average share of Oakland residents.

1.5%

Oakland

3.6%

...but the share of car trips has declined while public transport trips have increased since 2000

Commute times increased since 2000... 30% 26%

< 19min

38% 36%

20-39 min 40-59 min 60+ min Figure 1.43

13% 15% 16% 18%

2000 2019

Commute Data | Source: 2000 Census and 2019 5-Year ACS census dataset

32 Oakland District 6

CAR

78%

73%

PUBLIC TRANSPORT

14%

17%

2000

2019

DEMOGRAPHICS

NEIGHBORHOOD CHARACTER

LAND USE

HOUSING

ECONOMY

TRANSPORTATION

ENVIRONMENT

D6 Residents Working Destinations Figure 1.44

Larger Bay Area Map on Working Destinations | Source: 2019 5-Year ACS census dataset

Equity Plan 33

1. Existing Conditions

Mobility Networks Less than 1% of residents in Disctrict 6 bike to work. Bicycling

Merritt Community College

In terms of bicycling, 1 in 5 Oakland residents cycle for transportation. To get to work, almost 3% of Oakland residents bike but less than 1% of District 6 residents do. Lack of bike lanes in the district vs Downtown and North Oakland. Apart from bus service, the bikeway network in District 6 also lacks inner-district connectivity. There are only three separate bike routes extending to downtown Oakland and San Leandro, respectively.

MacArthur Blvd Commercial Zone

Mills College

Shared Mobility Oakland has made progress in shared mobility and some recent milestones for the city as a whole include the passing of legislation allowing car share in 2015, the launch of the bikeshare program in 2017 and the first e-scooter permits being approved in 2019. However, shared mobility programs are expanding unevenly across the city, and there have not been any bike share stations installed in DIstrict 6.

Transit Equity When it comes to access to public transit, almost half of District 6 bus routes are school service routes, which only operate when school is in session. Faced with a projected budget deficit, the local transit authority is proposing to cut back on services by Summer 202. Changes will affect the AC Transit riders that are majority people of color and low income individuals.

Eastmont Town Center

Coliseum Garden / Greenman Field Flea Market

BART Station

Existing bike lanes Figure 1.45

Existing bikelane infrastructure in 2020 | Source: City of Oakland

41 bus lines operated by AC Transit pass through District 6

In terms of pedestrian and road safety, medium and highly disadvantaged areas are also those that have more high injury networks and corridors.

Figure 1.46

34 Oakland District 6

Bus Routes Data | Source: BART Oakland Bus Authority

DEMOGRAPHICS

NEIGHBORHOOD CHARACTER

LAND USE

HOUSING

ECONOMY

TRANSPORTATION

ENVIRONMENT

Figure 1.47

Bus Routes Network Change | Source: BART Oakland Bus Authority

Bus Routes Proposed changes: Eliminated Modified Reduced Frequency

Equity Plan 35

1. Existing Conditions

Natural Hazards Lack of equitable access to green space in the flats Earthquakes California in general is known for its frequent earthquakes, and District 6 is no exception. In fact, as shown in Figure 4, an active fault line transects the district, presenting a clear environmental risk to residents. In addition to the fault line itself, much of District 6 is vulnerable to liquefaction; a process wherein the earth seemingly takes on the properties of a liquid. This causes severe instability and can lead to the collapse of buildings and infrastructure, as well as to loss of life. Worryingly, over 13% of the district lies within a liquefaction zone. These seismic hazards are inherent to the area, but can be addressed via early warning systems and citizen preparedness education programs.

Landslides Landslides are a common natural disaster in California. The California Geological Survey’s Seismic Hazards Program rates areas at risk of landslides on a scale of 0 - 10, with 0 being no risk and 10 being extremely high risk. In Oakland’s District 6, the majority of land is in the “no risk” category. However, over 40 percent of District 6 is within a higher than average risk zone, indicating the need for measures to address preparedness in the event that a landslide should occur.

Flooding Although flooding events are not very common in District 6, over 11% of the district has a 1 in 5 chance of being flooded each year, as shown in Figure 5. As climate change accelerates and sea levels rise, flooding will become more frequent and severe. District 6 will be no exception, with 11 percent of the district lying within the 0.2 percent annual chance flood hazard zone. While this zone is colloquially called the “500 year floodplain”, the effects of climate change have greatly increased the actual annual chance of such flooding.

Sea Level Rise If sea levels continue to rise due to climate change, over 6% of District 6 will be permanently inundated by the waters of the San Leandro Bay by 2100, as shown in Figure 5. This presents a clear need to relocate vulnerable communities and implement measures to absorb storm surges, runoff, and rainfall to mitigate the effects of sea level rise on flooding in the district.

36 Oakland District 6

• Landslides • Drought • Landslides • Drought • Earthquake fault line • Flooding • Drought • Liquefaction • Flooding • Sea Level Rise • Tsunamis Figure 1.48 Natural hazards Exposure | Source: CalEnviroScreen 3.0. California Office of Environmental Health Hazard Assessment

Tsunamis While not common, tsunamis do pose a risk to coastal areas of California due to the seismic activity inherent to the region. District 6 of Oakland would experience partial inundation in the event of a tsunami, but that inundation would be largely limited to industrial areas, as shown in Figure 6. However, although the inundation levels will most likely not reach residential areas, the flooding caused by a tsunami is predicted to inundate local roads and state highways, which would make travel difficult and even dangerous.

Extreme Heat The California Heat Assessment tool is used to identify communities which have a high level of vulnerability to extreme heat events. The tool highlights the minimum temperature most often associated with significant public health impacts. The lower the threshold, the more likely community members are to be harmed by heat events. As shown in Figure 8, the flats of District 6 are clearly at a higher risk of heat-related illnesses and fatalities at a lower temperature threshold than their counterparts In the hills.

DEMOGRAPHICS

NEIGHBORHOOD CHARACTER

LAND USE

Wildfires Due to drought and rising temperatures caused by climate change, fire season in California is increasing in intensity and duration. District 6 is largely protected from the immediate risk of wildfire damage thanks to the physical barrier of the eastern hills, but District 6 residents could still face harm from smoke and exposure to particulate matter in the event of a wildfire.

Drought California is an extremely drought-prone state. As shown in Figure 7, the entirety of District 6 experiences drought conditions every year, with most years’ drought conditions falling into a category that the National Drought Mitigation Center deems severe. These drought conditions can increase the risk of wildfires and can exacerbate heat events.

Environmental Hazard Vulnerability Score 0% (lowest scores) 100% (highest scores)

Figure 1.50 Hazards Vulnerability Score heatmap | Source: CalEnviroScreen 3.0. California Office of Environmental Health Hazard Assessment

HOUSING

ECONOMY

TRANSPORTATION

ENVIRONMENT

Widespread but unevenly distributed exposure to environmental hazards Exposure to Hazards The California Office of Environmental Health Hazard Assessment has created the CalEnviroScreen 3.0 tool, which is used to determine a community’s vulnerability to environmental hazards on a scale of 1 100, with 1 being little to no risk and 100 being extremely high risk. As shown in Figure xx, District 6 encapsulates the entire spectrum of risk, with the white, wealthy areas of the hills being at little to no risk and the low-lying areas occupied largely by low-income communities of color bearing some of the highest environmental hazard vulnerability levels in the state.

Tree Canopy Cover 75% Cover 0% Cover Green Space

Figure 1.49 Tree Canopy Cover Map | Source: CalEnviroScreen 3.0. California Office of Environmental Health Hazard Assessment

Equity Plan 37

1. Existing Conditions

Environmental Equity All of District 6 lies within a 15 minute walk to green spaces

1. Leona Canyon Regional Open Space Preserve

Access to Green Space While nearly all of District 6 lies within a 15 minute walk to green spaces, the quality of those green spaces should be taken into account. For instance, residents of the hills have access to large, verdant parks, while residents of the flats only have access to small, fragmented public green spaces with high levels of impervious surface cover. Some of the public green spaces in the flats are actually cemeteries, which are not suitable for recreation and therefore lack many of the major benefits of public green space. Additionally, the shade provided by tree canopies can help reduce ambient temperatures and associated health hazards. But the flats only have tree canopy coverage ranging from 3 to 12 percentcompared to 30% for the hills.

Figure 1.52

2. Concordia Park

Figure 1.53

3. Arroyo Viejo Park

Figure 1.51

Arroyo Viejo Park | Source: Google Maps

38 Oakland District 6

Leona Canyon Trail | Source: Trulia

Concordia Park | Source: Google Earth

4. Maxwell Park

Figure 1.54

Maxwell Park | Source: Google Earth

DEMOGRAPHICS

NEIGHBORHOOD CHARACTER

LAND USE

HOUSING

ECONOMY

TRANSPORTATION

ENVIRONMENT

Green space Figure 1.55

Proximity to Green Spaces Buffer Map | Source: City of Oakland Open Data Platform, buffer generated in ArcGIS

Proximity to green space within 15 mins: More than 15 mins Equity Plan 39

Source: Berkleyside

Issues + Opportunities ENVIRONMENT

TRANSPORTATION

ECONOMY

HOUSING

Considerations for addressing inequitable distribution of resources and access District 6 faces numerous challenges around inequitable distribution of resources and access to housing, transit, and environmental amenities. Many residents in the flats face significant threats to their housing security, health, and employment. However, there are clear opportunities to utilize vacant land for housing and commercial purposes, improve transit connectivity to connect residents with improved resources, and start planning now for climate change in order to create a resilient community. With a strong network of local organizations to support these efforts, the District can enact bold improvements to fulfill the community vision.

Equity Plan 41

2. Issues and Opportunities

Environment

Transportation

Oakland’s District 6 faces myriad environmental challenges including looming threats from natural disasters exacerbated by climate change, an inequitable distribution of environmental hazards and co-benefits within the District, and a gap in access to high-quality natural resources. District 6 is vulnerable to a variety of environmental hazards, including sea level rise, drought, extreme heat, earthquakes, tsunamis, landslides, and flooding. These vulnerabilities are increasing in intensity and frequency due to climate change. These unequal distributions are dispersed along socioeconomic lines; with whiter, wealthier communities having higher access to environmental resources and their co-benefits and a lower risk of threat from environmental hazard than low-income residents and communities of color.

The lack of local employment opportunities and insufficient access to public transport makes residents over-reliant on cars for daily commuting, causing overcrowded parking and traffic congestion in District 6. Additionally, public transit options are not safe, are unaffordable, and are often not accessible to low-income residents. Moreover, even the many transit improvements in the district do not cater to the residents’ needs. For example, the shared bike program in Oakland, called Bay Wheels, stops its service area in the Fruitvale neighborhood and has no stations in District 6.

While 97 percent of District 6 lies within 0.25 miles of green space, which is considered to be a reasonable walking distance, much of that access lies within the whiter, wealthier neighborhood of the hills, as shown in Figure xx. This indicates that low-income communities of color have poor access to such environmental amenities. There is an opportunity to improve the existing green spaces so that residents within walking distance can access high-quality and thriving environmental amenities. This presents a clear need for the enhancement of existing public green spaces and the creation of new ones, as well as for the provision of disaster preparedness and recovery measures throughout the flats in order to provide a measure of environmental equity.

Fig. 2.1 Arroyo Viejo Recreation Center | Source: CA Living New Deal

42 Oakland District 6

However, certain programs have shown positive results and can be expanded within the District. The slow streets program launched in April 2020 aims to support resident access to essential services, including groceries and food distribution sites. In February 2021, the California Transport Commission recommended the East Oakland Neighborhood Bike Routes for Active Transportation Funds. Expanding and building on these programs presents an excellent opportunity to redesign the streetscape, provide more public transit access, and improve road safety in the future.

Fig. 2.2 Slow street program | Source: City of Oakland Slow Street

Economy

Housing

The economic vitality of the District falls short compared to other commercial centers in the Bay Area. The District faces socio-economic barriers and a lack a diversity of commercial and essential services within a short drive or a walkable distance. Residents in District 6 drive to San Leandro or outside their neighborhoods to access essential goods, which results in fewer resources circulating within the local economy. Currently, land zoned for commercial purposes in the District is underutilized and lacks connectivity to the surrounding neighborhoods. Neighborhood-driven economic revitalization in District 6 could attract strong anchors for long-term commercial development that target several physical and social barriers that the community faces.

With the increasing cost of homeownership and rising rents, low income homeowners are particularly susceptible to displacement from their communities. The number of unhoused people in Oakland has increased over 26 percent from 2015 to 2017, and that rate of increase has been exacerbated by the COVID-19 pandemic.

Although many issues and challenges exist in District 6, there is potential for non-invasive economic and commercial development. Both Bancroft and Foothill Avenue and International Boulevard Corridors have an existing public transport framework, wide sidewalks, and vacant lots for future improvement and revitalization. The Eastmont Center and its surroundings, in particular, can be redeveloped to serve the residents’ needs and attract anchor institutions as a commercial and community hub.

Fig. 2.3 Diverse commercial and retail activities | Source: Better Block

Vacant land is plentiful in the district, which poses a significant risk to community and public health. Speculative real estate practices that fail to develop vacant land also put pressure on the housing market when increased supply is needed most. However, the availability of vacant land, if pursued efficiently and prioritized for affordable housing, presents a significant opportunity to combat the forces of gentrification and displacement. North of Eastmont Town Center are clusters of vacant land that are ripe for development. The presence of an existing network of strong non-profit housing producers and service providers poses another unique opportunity to build on successful models in the area and increase their capacity. For example, the Community Cabin program in Oakland has shown success in finding permanent housing for unsheltered people, and these services could be expanded into District 6. Additionally, Oakland CLT has focused many of their efforts in the District and with increased capacity and support could continue to increase the number of longterm affordable units.

Fig. 2.4 Oakland CLT | Source: Oakland Community Land Trust

Equity Plan 43

Source: San Francisco Chronicle

Alternatives ROOTED

CONNECTED

RESILIENT

ROOTED

CONNECTED

RESILIENT

With the three alternatives, we aim to address the distinct pressing needs in District 6 as well as the unique opportunities in the area through big ideas and strategies. Geographically, the focus is primarily on the Flats and the industrial area but this is a means to arrive at a more comprehensive district level plan. Rooted District 6 will facilitate cooperative ownership and build out services for unhoused residents. Connected District 6 promotes economic development and tactical urbanism as tools to connect residents with higher quality public spaces. Resilient District 6 proposes physical and policy changes to prepare against environmental hazards. Each alternative will consider different ways to utilize high numbers of vacant properties and will propose different methodologies for workforce empowerment while pr while providing different pathways to meet our five goals and achieve our vision for the district.

Sources: East Bay Express, City of Oakland, San Francisco Chronicle

Equity Plan 45

3. Alternatives

ROOTED Provide protections against gentrification, improve access to high-quality affordable housing, and expand on existing programs/resources to better serve current residents The first alternative proposes the creation of a community land trust opportunity areas and sale incentives for landowners across areas affected by displacement. Opportunity areas were selected based on availability of land that could be transferred to the Oakland Community Land Trust (CLT). The partnership would help Oakland CLT double their original goal and accelerate their progress by transferring previously vacant land with support from the city. The support for families transitioning out of homelessness is also sought, coupled with prevention programs to help residents remain in place. The aim is to transfer CLT properties to management by The Oakland Community Project which already manages major facilities in the district providing beds for unhoused individuals facing emergencies or in transition. Lastly, this alternative seeks to create a cooperative economic ecology by incubating local and community owned businesses and providing professional development programs out of the Eastmont commercial center.

Figure 3.1 Rooted District 6

CONNECTED Reanimating open commercial streets as socio-economic connectors and gathering spots for the community to share, play, and consume local goods

District 6 is both a bedroom community and a food desert where residents have little engagement with commercial zones. This alternative focuses on 3 strategies to address these concerns. The first is to turn vacant lots into open spaces for local residents to shop for goods and enjoy arts and cultural events. These sites would include mixed commercial amenities and consider more diverse and affordable businesses. The second strategy focuses on building connector roads through streetscape improvements and complete streets adaptations expanding the Slow Streets program. The third strategy centers on building capacity for equitable and inclusive economic development through neighborhood driven programs and coalitions. This alternative could build upon existing efforts from organizations like the Black Cultural Zone, a community economic development corporation that joins together neighboring organizations in East Oakland.

46 Oakland District 6

Figure 3.2 Connected District 6

RESILIENT

Creating a community that is able to mitigate, adapt to, and recover from environmental threats through physical interventions, policies, and educational programs

The first approach of this alternative is the equitable movement of vulnerable populations out of floodplains and projected sea level rise inundation zones. To accomplish this, the city government should acquire at-risk properties through fair-pay buyout programs and convert them to open green spaces. A second approach is the decarbonization of public transportation through electrifying the bus fleet, expanding bike lane routes and implementing complete streets, reducing carbon emissions to improve air quality, and encouraging outdoor activities. Another major program is widespread building retrofits including mandating earthquake-safe building practices for new or substantially improved buildings. Another facet of this alternative is to implement community greening programs, such as improving the quality of parks and public spaces. The alternative also aims to build resilience through education about disaster preparedness reaching residents through K-12 schools and adult education. Finally, this alternative will serve to boost the local economy by providing high-quality green jobs.

Figure 3.3 Resilient District 6

How well do these alternatives meet the goals? The Rooted alternative addressed the goals around affordable housing and supports the vision for a vibrant local economy and environmental health. The Connected alternative responds primarily to the goals on local economic vitality and enhancing access to multi-modal mobility and partially addresses efforts on community cohesion and awareness of resources. The Resilient alternative addresses the goals around transportation and environmental health and supports self determination and economic empowerment.

ROOTED GOAL 1

Build and maintain quality, affordable housing options which preserve neighborhood character and community cohesion.

GOAL 2

Enhance access to safe and affordable public and multi-modal transportation opportunities.

GOAL 3

Create a vibrant local economy that serves residents’ needs and provides high quality job opportunities.

GOAL 4

Improve the quality of existing environmental amenities while minimizing the effects of natural hazards on vulnerable populations.

CONNECTED

RESILIENT

Meets all goals Meets some goals Does not meet goals

Equity Plan 47

Source: CalMatters

The Final Plan VISION & GOALS

STRATEGIES & IMPLEMENTATIONS

SPOTLIGHT

Vision, goals, and strategies to achieve an equitable District 6 To address the historic and current-day inequities present in District 6, the plan proposes several strategies spanning the economy, transit infrastructure, housing availability, and physical environment of the District. These strategies have been designed, and will be implemented in collaboration with, District 6 residents in order to achieve a community-led vision of what the District could look like in twenty years, goals for how best to achieve this vision, and strategies for all residents to achieve success and wellbeing within the District.

Equity Plan 49

4. The Final Plan

Vision

Oakland’s District 6 continues to benefit from its strong tradition of advocacy and self-determination, with diverse residents united around maintaining healthy, safe, and interconnected neighborhoods where they have opportunities to fulfill their potential.

Source: Acta Non Verba, Eric Powell Website, City of Oakland, Oakland CLT

50 Oakland District 6

VISION & GOALS

STRATEGIES & IMPLEMENTATIONS

SPOTLIGHT

Goals Goal 1

Environmental Resilience: Improve the quality of existing environmental amenities while minimizing the effects of natural hazards on vulnerable populations.

Goal 2

Transit and Mobility: Promote equity by increasing fair access to opportunities, housing, and environmental resources.

Goal 3

Local Economy: Create a vibrant local economy that serves residents’ needs and provides high quality job opportunities.

Goal 4

Housing and Affordability: Build and maintain quality, affordable housing options which preserve neighborhood character and community cohesion.

City Implementation Leaders Lead Implementer -- Planning and Building Department •

Office of the City Administrator

•

Economic & Workforce Development

•

Office of Mayor Libby Schaaf

•

Department of Transportation

•

Office of Resilience

•

Department of Finance

•

Department of Race and Equity

•

Housing & Community Development

•

Public Works Department

•

Parks, Recreation, and Youth Equity Plan 51

4. The Final Plan

Environmental Resilience Overview District 6 is vulnerable to a variety of environmental hazards unequally distributed in the district along socioeconomic lines. While tree canopy cover follows this pattern as well, a unique opportunity exists in the fact that all residents live within a 15 minute walk to green space. However, the quality of these green spaces differs greatly across the district, therefore this must be addressed in order to provide an increased measure of environmental equity within District 6. Both city-level and district-level action will be necessary. Regarding green space, the following strategies will improve the quality of publicly accessible green space within the district by addressing park safety through physical feature improvement and programming. Regarding sea level rise preparedness, the plan will create and implement disaster preparedness education courses for all age levels of District 6 residents and phased policy changes to ensure vulnerable residents are prepared for natural disasters.

Source: Acta Non Verba

52 Oakland District 6

STRATEGIES & IMPLEMENTATIONS

VISION & GOALS

Equitable Access to Green Space

Year 0

SPOTLIGHT

Year 10

Year 20

Projected Cost

Improvements to Parks

$$$$

Construction of New Parks

$$$$

Improve Park Safety

$$$$

Enact a green jobs program

$$$$

Prepare for Sea Level Rise K-12 + adult education

$$$$

Grant coordinator

$$$$

Development moratorium

$$$$

Ongoing Action

Acquire existing properties

$$$$

Demolish existing structures

$$$$

Restoration of Floodplains

$$$$

100,000 - 500,000

$$$$

500,000 - 1,000,000

$$$$

1,000,000 - 2,000,000

$$$$

2,000,000 + Equity Plan 53

4. The Final Plan

Environmental Resilience Equitable Access to Green Space A unique opportunity exists in District 6 in the fact that all residents throughout the district live within a 15 minute walk to green space, as shown in the center map. However, the quality of these green spaces differs greatly across the district, with parks such as the Leona Canyon Reserve in the hills being extremely high quality, and parks in the flats such as Maxwell Park, Arroyo Viejo Park, and Concordia Park generally being of lower quality. To address this disparity, the plan proposes an increase in the quantity of public parks by acquiring vacant lands for new parks in the floodplain acquisition zone and creating a new park on 73rd and Hillside parking space (Eastmont Town Center) which will connect to an adjacent proposed plaza. The plan also will provide increased maintenance of, and programming within, the following existing parks: 1.

Maxwell Park

Arroyo Viejo Park

Concordia Park

Fig. 4.1 Leona Canyon Regional Open Space Preserve | Source: VisitOakland

Fig. 4.2 Concordia Park | Source: Google Earth

The improved programming and maintenance of these existing parks will encompass the following initiatives: 1.

Provide programs to help homeless individuals move out of parks and into shelters and housing

Remove trash and debris from city parks

Install public restrooms with changing stations in those parks which lack such amenities

Keep restrooms at parks and recreational centers clean by attending to them more than once a day

Protect local water quality by cleaning stormwater management systems and park creeks

Enact a green jobs program for building and maintaining parks and other green spaces

Create “Friends Of” groups to create community cohesion around park spaces

Create “Park Ambassadors” program

Use Crime Prevention Through Environmental Design principles to improve park safety by removing outside fencing, add lighting, adding outdoor furniture, and trees

54 Oakland District 6

Fig. 4.3 Maxwell Park | Source: Google Earth

Fig. 4.4 Arroyo Park | Source: Google Earth

Implementers: Parks, Recreation, and Youth; Economic and Workforce Development Partners: Trees of Oakland; CALFIRE’s Urban and Community Forestry Program

VISION & GOALS

STRATEGIES & IMPLEMENTATIONS

SPOTLIGHT

Improve existing parks within walking distance for residents

MacArthur Fw y

Warren Fwy

ft cro

lvd nal B

e Av

73rd Ave

y ur Fw cAr th

Green Space

atio tern

Fig. 4.5 Green space map

Equity Plan 55

4. The Final Plan

Environmental Resilience Natural Disaster Preparedness In addition to improving green spaces, it is extremely important to address the effects of climate change and associated natural hazards on vulnerable district residents, with one of the most pressing being sea level rise. Sea level rise is especially concerning due to the fact that sea levels are predicted to increase by up to 9 feet by the end of the century, and up to 3 feet within the next 50 years. In total, 6 percent of the district will be underwater by the end of the century. Historically, disaster preparedness programs have left low-income communities and communities of color to fend for themselves, making clear a need to equip vulnerable populations with the tools they need to move themselves and their families out of harm’s way while still being able to remain within the district 6 community. In order to accomplish this aim, the following actions should be taken.

Fig. 4.6 Flood plain acquisition for managed retreat | Source: EZMoments

First, create a local government position for a grant coordinator to help low-income residents navigate the FEMA buyout process to address the fact that the FEMA buyout process is costly and difficult to navigate. Next, a moratorium on development within projected sea level rise inundation zones and existing floodplains should be implemented in a phased manner, beginning with current floodplains, then 3-ft sea level rise zones, then 6-ft sea level rise zones. After the moratorium on development has been implemented, managed retreat will be necessary in order to ensure that at-risk residents are equipped with the tools to safely and equitably move out of harm’s way. With this in mind, local officials will lobby the state government for the creation of a buyout program which offers at-risk residents a fair market price for their homes, provides renters with relocation assistance funding, and returns the acquired properties to their natural state as floodplains which can absorb storm surges and provide a measure of protection for coastal residents within the district. These restored floodplains can also act as public parks, thereby improving residents’ access to green space. To build and maintain these floodplains, a green jobs program similar to the PowerCorps PHL program in Philadelphia will be implemented in order to provide residents with high-quality jobs which both benefit the community and provide environmental resilience. One last step to ensure equitable awareness of climate change and its threats to vulnerable communities within the district will be to implement a K-12 and adult education program around disaster preparedness in partnership with local schools and community centers.

56 Oakland District 6

Fig. 4.7 Green jobs program for floodplain management | Source: Mountain Xpress

Fig. 4.8 Disaster preparedness education | Source: Texas Disaster Education Network

Implementers: Oakland Flood Commission Partners: Federal Emergency Management Agency

VISION & GOALS

STRATEGIES & IMPLEMENTATIONS

SPOTLIGHT

Manage retreat to equitably move residents out of harm’s way

MacArthur Fw y

Warren Fwy

ft cro

lvd nal B

atio tern

e Av

73rd Ave

y ur Fw cAr th

Green Space Sea Level Rise 3 ft within 50 years 6 ft within 100 years 9 ft in 100 years

Fig. 4.9 Sea level rise map

Equity Plan 57

4. The Final Plan

Transit and Mobility Overview District 6 residents face a lack of affordable and accessible active and public transit options, as well as a streetscape which is often difficult and unsafe to navigate. Over 70% of district 6 residents drive to work, making the district a bedroom community overcrowded with cars due to the large number of multi-member households. Of the residents who do rely on public transit to commute, many categorize it as unsafe, unaffordable and inadequate for low income groups. Additionally, close to half of bus routes in the district are used exclusively as school transportation further reducing the options for commuters. This plan increases resident’s access to opportunities, housing, and environmental resources by making transit and mobility safer, more accessible, and more efficient. These aims will be achieved through an optimized bus stop system and phased bike share network united by safety ambassadors and a wide range of payment options.

Source: Lyft

58 Oakland District 6

STRATEGIES & IMPLEMENTATIONS

VISION & GOALS

Bus Stops

Year 0

SPOTLIGHT

Year 10

Year 20

Projected Cost

Changing bus stops

$$$$

Improving bus shelters & signage

$$$$

Bike Network Expansion Connecting Nodes

$$$$

Connecting Neighborhood

$$$$

Access

$$$$

All-in-one Transit Pass Transit Ambassadors

$$$$

Ongoing Action

Streetscape Improvements Median bus stops

$$$$

Buffered bike lanes

$$$$

Wide sidewalks

$$$$ $$$$

100,000 - 500,000

$$$$

500,000 - 1,000,000

$$$$

1,000,000 - 2,000,000

$$$$

2,000,000 + Equity Plan 59

4. The Final Plan

Transit and Mobility Optimize Bus Stop Spacing & Improve Bus Stop The perception of a lack of safety can deter residents from using buses. Most bus stops are just poles and do not have amenities such as street lights, benches, and route schedules. Several stops are also poorly maintained. Upgrading and redesigning bus stops facilities and amenities can enhance passenger experience and safety. Three different bus stop designs are proposed. The first is an upgraded bus pole with solar-powered lights and better signage. The improved signage will communicate better information to passengers and help them navigate the system. The other two are bus shelter variants. In addition to improved signages, the bus shelters should have clear safety glass for natural surveillance and visibility. These bus stops will also feature green roofs to reduce ambient heat and capture rainwater. Bus stops along International Boulevard and Eastmont Transit Center will have a map of the routes, benches, and bus stop names, as well as green roofs and bike racks.

Solar-powered light

#1010560

Stop ID

box Information

Fig. 4.10 Bus pole design

Green roof

Arrival info

73RD & iNTERNATIONAL

When bus stops are spaced too closely together, it slows down the ride, makes buses less likely to stay on schedule, and leaves fewer resources to upgrade and maintain each stop. For local routes, AC Transit recommends a stop spacing of 800 to 1300 ft. Bus stops which do not meet spacing standards or are not transfer points should be removed, such as the stop along Bromley and Seminary Avenue. The curbside stops along International Boulevard, which have been replaced by median bus stops serving the East Bay Bus Rapid Transit Line, should already be removed. Far-side stops or locating stops after the intersection are generally the preferable choice for service since they reduce conflicts between right-turning vehicles and the buses, among other benefits. There is an opportunity to relocate the bus stop along 68th Ave and Foothill Blvd to the far side. To balance the bus stop spacing so they are neither too near nor far from each other, two bus stops along 73rd avenue could also be relocated.

Route Number/Destination

73 Eastmont Transit Center 5 min

Route map and schedule

Glass

Station label

Bench

Fig. 4.11 Bus shelter A design

Solar panel

Label

Green roof

Lights

Bike rack

Implementers: The Department of Transportation Partners: AC Transit; TransForm

60 Oakland District 6

Arrival info

Route map and schedule

Fig. 4.12 Bus shelter B design

STRATEGIES & IMPLEMENTATIONS

VISION & GOALS

SPOTLIGHT

Create efficient, safe, and inviting bus stops

Fig. 4.13 Bus service improvement proposal map

Equity Plan 61

4. The Final Plan

Transit and Mobility Expand Bike Lanes While the revitalization of the local economy brings District 6 residents much better access to local resources and employment opportunities, short-distance travel will finally become a new commuting trend. This highlights the importance of planning the bike lane network and promoting a shared bike program. We recommend dividing the bike transport development into two phases: As illustrated in the map, the 1st stage of the development aims to Increase connectivity among points of interest in D6 and insert shared bike stations next to them. These bike routes will be renovated or built into “buffered bike lanes,” which have a 2-feet tree stripe to separate bikers from the driving lanes. (Fig. 4.14) With the completion of phase one, residents in “the flats” will need to walk around 10-15 minutes to their nearby bike stations. The total length of the bike routes in phase 1 is around 97,000 feet, and the construction cost is estimated at about $877,000. The phase 2 development is to further improve the network density by adding more bike lanes in neighborhood areas. (Fig. 4.15) These phase 2 bike lanes are designed as “neighborhood bike lanes.” Unlike “buffered bike lanes,” they do not have a greenery stripe. Instead, they use side parking spaces as a buffer zone to protect bikers from cars. With the completion of phase two, residents in “the flats” will need to walk only around 5-10 min to their nearby bike stations, as shown in the map. The total length of the bike routes in phase 2 is around 75,000 feet, and the construction cost is estimated at $113,000.

Fig. 4.14 Plant buffered bike lane (before and after) | Source: Google earth, Halifax Cycling

Apart from infrastructure development, some policy-based programs are also recommended to increase the inclusivity of the shared bike service: 1.

Organize ride classes for beginners, featured group ride, or race competitions

Provide digital skill education on how to use the facilities

Hold community engagement sessions to get feedback from the community 4. Include other payment methods like tokens, cash, transport at the bike stations

Implementers: The Department of Transportation Partners: Lyft (Bay Wheels); TransForm

62 Oakland District 6

Fig. 4.15 Side parking bike lane (before and after) | Source: Google Earth, Kansas City Star

STRATEGIES & IMPLEMENTATIONS

VISION & GOALS

SPOTLIGHT

Ensure residents can access and safely use bike share

Skyline High School

Merritt Community College

MacArthur Fw y

Warren Fwy

< To Downtown

Eastmont Town Center MacArthur Blvd Commercial Zone

Mills College 73rd Ave

y ur Fw

r th MacA

ft cro

n Ba

Maxwell Park

Flea Market

To San Leadro >

d CC v l B nal atio n r e Coliseum Garden / Int Greenman Field BART Station

lvd nal B

atio tern

Arroyo Park

5 min walk 10 min walk Phase 1 stations Phase 2 stations

Fig. 4.16 Bike network proposal map

Equity Plan 63

4. The Final Plan

Transit and Mobility Improve Streetscape A safe and walkable streetscape is crucial to the revitalization and vibrancy of the local economy along commercial corridors. The aim is to extend the interior commercial activities to the outdoor space by implementing road diets and infrastructure improvement along the commercial corridors. In order to achieve that, the following strategies are recommended to transform the current vehicle-oriented streetscape to a more pedestrian-friendly space. By converting driving lanes and side parking space to pedestrian pavements, the sidewalks that serve not only for walking but also for retail activity, recreational programs, and leisure purposes. The commercial stores are thereby able to increase their exposure and engagement to the passers-by through the shared outdoor space along the corridor street. As illustrated in the Figure 4.17, the current 80-ft wide Bancroft Ave has the potential to increase its sidewalk width from 10 feet to 16 feet with a 9-ft buffered zone. The widened sidewalk can then serve multiple uses other than pedestrian walking. For example, the 6-feet extra space can become an area for outdoor dining or retail activities. It can also be used to install street furniture like public benches, transport stations or be reserved for street performances. As outdoor activities on the street increase, street safety becomes paramount. The purpose of the 9-ft buffered zone is to separate pedestrians from high-speed cars in order to ensure pedestrians’ safety. This buffered area can stay as a side parking space or transform into buffered bike lanes based on residents’ travel habits and demands.

Fig. 4.17 80-ft streetscape intervention

Implementers: The Department of Transportation Partners: AC Transit; TransForm Fig. 4.18 100-ft streetscape intervention

64 Oakland District 6

VISION & GOALS

STRATEGIES & IMPLEMENTATIONS

SPOTLIGHT

Transit and Mobility Improve Safety and Access To facilitate a safer and more comfortable experience for those riding AC Transit, the plan proposes a scheme modeled after BART’s ambassador program, which was specifically to redress over-policing on transit systems and address the violence in the system. Ambassadors are non-sworn staff, and could include exgang members and other community members. They will receive de-escalation, conflict resolution, violence prevention and anti-bias training. Lateefah Simon, who is involved in local justice financing in Oakland and who sits on the Board of Directors for BART spearheaded the ambassador initiative. To increase access, the clipper transit card, a contactless smart card used in the Bay Area, should be expanded into an all-in-one public transport pass to include the bike share system. Low-income residents will be provided with special clipper cards offering fare discounts. Encouraging contactless fare payments would reduce boarding times, improve service, and increase reliability. For the bike share system, the current payment methods should be expanded to include cash payments, providing more options for residents.

Fig. 4.19 BART Ambassador Program | Source: BART Subsidies provide discounted trip costs

Card accepted at FCU banking locations

Implementers: The Department of Transportation Partners: AC Transit; Lyft; Alameda Sheriff’s Office Fig. 4.20 All-in-one public transport card

Equity Plan 65

4. The Final Plan

Local Economy Overview The commercial activity of District 6 is primarily concentrated along three major roadway corridors, however, the current offerings are not meeting resident’s needs. Foothill-Bancroft, MacArthur Boulevard, and International Boulevard, as seen on the map below (figure xx), each contain a mix of specialty groceries, clinics, supply stores, restaurants, liquor stores, auto repair shops, and other services. Notably, a larger supermarket or retail store is absent in the district causing residents to travel to San Leandro to meet those needs. Other challenges include the uninviting conditions at the current businesses: restaurants have no outdoor seating areas, retail is sparse, and there are no entertainment hubs for people to shop, play, or gather safely. In general, these corridors are not seen as destinations for any social and economic activity. This plan will shift these zones into the destinations through pilot and testing phases where user experience areis evaluated for the development of long-term commercial revitalization actions.

Source: City of Oakland

66 Oakland District 6

STRATEGIES & IMPLEMENTATIONS

VISION & GOALS

Empowered local banking EOC financial training

Year 0

SPOTLIGHT

Year 10

Year 20

Projected Cost

$$$$

Ongoing Action

$$$$

Establish Credit Union Corridor Management Corridor Manager Designation

$$$$

Ongoing Action

Business Inventory Assessment

$$$$

Business Recruit Agenda

$$$$

Corridor Management Storefront Improvement survey

$$$$

Acquire Vacant Retail Space

$$$$

CIP + LISC Grant Applications

$$$$

Storefront Renovation

$$$$

Wayfinding Installation

$$$$ $$$$

100,000 - 500,000

$$$$

500,000 - 1,000,000

$$$$

1,000,000 - 2,000,000

$$$$

2,000,000 + Equity Plan 67

4. The Final Plan

Local Economy Empower Local Banking As described in the Existing Conditions and Issues and Opportunities sections, there is a history of predatory lending in East Oakland that has disempowered low income communities of color. Today there is still a lack of agencies that empower residents through fair lending practices and financial empowerment through educational programs (figure xx). In a 2019 memorandum Councilmember Loren Taylor outlined the need to stimulate entrepreneurship and the importance of residents being prepared for true financial independence through accessible training on small business development. The City’s Department of Economic & Workforce Development along with District 6 Councilmember Loren Taylor should provide grants and technical assistance to help the community apply for the creation of a federal credit union with the National Credit Union Administration. This effort should be pursued in partnership with Inclusiv (the National Federation of Community Development Credit Unions) in order to secure CDFI certification and access further funds to ensure long term stabilization. Because of the large Latinx population in District 6, Inclusiv’s Juntos Avanzamos (“Together We Advance”) designation could assist in employing bilingual and culturally competent staff, and permit the acceptance of alternative forms of ID.

A federal credit union puts its members first because they are collectively owned by their members unlike public banks which are owned and operated by governments. While corporate banks lend out regardless of an individual’s abilities to pay them back, credit unions will ensure that their members are protected throughout the entire process. Additionally, federal credit unions weathered the financial recession better than big banks because they were not leveraging to buy back mortgage debt in other states or countries. A federal credit union in District 6 could help residents ensure that their money is invested back into their neighborhoods rather than into the pockets of speculative investors. One such reinvestment could be into the proposed strategies to be implemented with OakCLT described below.

Credit union membership

Remaining interest funds are reinvested into membership: Free financial literacy training + workshops Investing in affordable OakCLT developments

Fig. 4.21 Federal Credit Union operations

68 Oakland District 6

Members deposits are pooled

Members borrow from pooled deposits

Members recieve interest on savings

Interest payments are pooled

Members pay interest on loan

VISION & GOALS

STRATEGIES & IMPLEMENTATIONS

SPOTLIGHT

Local Economy Corridor Management To ensure that the overall objectives of the neighborhood oriented socio-economic development are being met in the short and longterm, a commercial corridor revitalization manager will be designated by the City of Oakland. This person (or steering committee) would monitor the proposed development and implementation plans, the business and commercial inventory assessments, and become the mediator between public and private stakeholders involved in the process. The corridor manager must assess that all the commercial and economic development programs from the following list are in sync with each other. •

Physical and storefront improvement

•

Business & Retail Inventory

•

Wayfinding Design & Implementation

•

Slow Street program

•

Transportation fleet availability for connecting residents to commercial destinations

•

Capital Investments and Economic workforce development grants

The corridor manager manager will advocate for resident needs by attracting essential businesses to the District and maintaining momentum of commercial and economic revitalization projects, ensuring that there is continuity between the community’s interests and the long-term change happening in the commercial zones in District 6.

Fig. 4.22 Physical and storefront improvement | Source: Better Block

Fig. 4.23 International Fresh produce market at Fruitvale | Source: The Oaklandside

Implementers: Economic and Workforce Development Partners: East Oakland Collective, Inclusiv, LISC, Block by Block

Fig. 4.24 Slow street program | Source: Oakland Slow Street

Equity Plan 69

4. The Final Plan

Local Economy Physical Improvement to Commercial & Retail Space The existing retail areas and commercial corridors in District 6 feature a variety of buildings that are vacant, open lots and abandoned structures that require physical storefront improvement. In partnership with the designated commercial corridor manager, the OakCLT and the Facade and Tenant Improvement Program, incentives would be given to small local and BICOP businesses for: •

Storefront renovation collaborative projects with East Oakland artists

•

Retail buyout or business relocation assistance

•

Rent assistance

•

Business assessment, marketing & rebranding services if needed

Beyond the physical improvement of stores and retail spaces, the plan recommends the implementation of a wayfinding plan to help direct people to improved commercial hubs. Through partnerships with LISC, the Capital Improvement Program and the City of Oakland Department of Planning & Building, a wayfinding design and implementation plan could support these highlighted destinations while also raising awareness of the District’s cultural history, commercial vitality, and vibrant lifestyle among residents and visitors. The wayfinding implementation would also be an opportunity to direct people to other important amenities in the neighborhood such as parks, transit hubs, plazas, and educational centers. Currently there are two surplus land parcels in District 6, one at 73rd Avenue and Foothill Boulevard and another at 73rd Avenue and International Boulevard. Both of these parcels should be developed as public plazas. These public spaces would be rented out at affordable rates to vendors and other event producers to generate consistent revenue for the CLT to continue developing and maintaining affordable housing.

Fig. 4.25 Public realm improvements to International and 73rd

Fig. 4.26 Streetscape and facade improvements to International and 73rd

Figure 4.28 shows the areas potentially considered for wayfinding installation and key commercial destinations. Each destination would include a diverse array of commercial services linked with public transportation, shared bike access, and a public gathering space. Several examples have been considered for the design of the wayfinding system, all within the low-tech realm, which would be a good investment at first to test how the users respond to it. Fig. 4.27 Wayfinding signage proposal

70 Oakland District 6

VISION & GOALS

STRATEGIES & IMPLEMENTATIONS

SPOTLIGHT

Connect residents to vibrant and distinct commercial nodes

Fig. 4.28 Commercial and retail space improvement proposal map | Callout source: Google Earth

Equity Plan 71

4. The Final Plan

Local Economy Community-led Business Needs Assessment Based on the business inventory assessment, several gaps were identified. Figures xx show the gap in essential services and anchors like outdoor dining places, local retail, groceries, and other cultural amenities. To fill this gap, the plan recommends strategies to establish these places by seizing the opportunity to work with existing coops and initiatives in the process and provide them with incentives and financial aid to thrive in the designated commercial destinations. The commercial inventory would be distributed across the several selected sites categorized in themes. As briefly mentioned in the previous section, the commercial hubs are meant to be linked to public transportation, affordable housing, bike share stations and public gathering spaces. Although the plan envisions that certain hubs would highlight outdoor dining or work, while others would focus more on retail, health services, or cultural events. Figure xx shows the potential organization of the main hubs and the variety of services they could provide.

•

Community led public health and pop-up activities

•

Pop-up clinics for free vaccination (Covid, HPV, etc)

•

A seed bank (in coordination with the AKOMA market or any other related initiative)

•

Federal Assistance walk in center for the elderly

•

Buy, Sell, Trade thrift markets

Arts & cultural activities: Museums, art workshop spaces for kids, teens and young adults, fashion workshop

The objective of continuing the work on business assessments is to be able to have a comprehensive and community-oriented approach to filling up the commercial and economic gaps in District 6. The Commercial Corridor Manager, in collaboration with key representatives from the East Oakland Organizations (EOCON) would work on a yearly assessment of businesses and commercial activity and growth. This is meant to serve as a guideline for the Corridor Manager to direct future businesses networks and recruiting agendas. Moreover, this inventory should influence grant and funding allocation as needed. As affordability is a major concern for District 6 residents, the business revitalization strategies aim to prioritize local economic growth and aid in wealth generation. Accordingly, the plan recommends designating no more than 50 percent of retail space to big box and chain stores and the remaining space to cooperatives, grassroots, and other sustainable businesses. A further list of the business inventory ideas considered can be found below in Figure 4.29. Fig 4.29 Gap in local amenities

•

Sustainable food: Mariposa Food Co-op, Greensgrow Community store, dining in place restaurants and coffee coops, farm to table restaurants

•

Entertainment: ie. theaters, karaoke bars, sports lounges, game rooms, beer gardens

•

Tech & emerging industries: coworking spaces, computer labs, fabrication labs or shops, incubators.

72 Oakland District 6

Implementers: Economic and Workforce Development Partners: LISC, Block by Block

VISION & GOALS

STRATEGIES & IMPLEMENTATIONS

SPOTLIGHT

Local Economy Youth & Emerging Businesses Cultural Initiative Educational and innovative job training programs are currently limited in District 6. Mills College, the long lasting and biggest educational institution in the area is closing it’s doors as a four-year university, potentially putting a major burden on the educational options and economic development in the District. Therefore, this strategy recommends educational and training programs as part of the economic and commercial revitalization strategy. In collaboration with the OakCLT, the Commercial Corridor Manager, and local coalitions, creating a small business incubator would attract younger populations to the commercial areas of the District and connect them with educational opportunities in emerging and essential industries. This incubator would be located in a commercial destination central to this plan and based on recommendations from local residents through a community engagement process.

Fig. 4.30 Education and training program | Source: EONI plan

Following the overarching vision of the plan, this strategy seeks to strengthen the reality that future generations will need to be able to access essential services and amenities within reasonable distances. Therefore, it is important to prepare people for a lifestyle where home, work, food, goods and entertainment are within a 15 to 20-minute safe walk radius. This vision not only supports the community economically but raises awareness around more sustainable lifestyles in our cities for years to come.

Fig. 4.31 Alena Museum space activation program | Source: Black Cultural Zone

Implementers: Economic and Workforce Development Partners: OakCLT, Commercial Corridor Manager Equity Plan 73

4. The Final Plan

Housing and Affordability Overview District 6 is predominantly residential and hosts a majority of detached single-family households. Historically, the district has been hit hard by BIPOC homeownership being discouraged by design and then promoted in a predatory manner; the entrance of speculative development fueled by Silicon Valley; and the deindustrialization of the city’s ports—it’s largest employment sector. Renting is often unaffordable to many families in the district and has affected the growth of multi-generational households due to financial immobility and large displacements of primarily Black residents. As housing prices increase rapidly, wages remain stagnant, and the COVID-19 pandemic continues to impact job opportunities, District 6 must take action to increase the number of permanently affordable housing units that are not subject to market forces. Additionally, unhoused population’s needs must be addressed while planning for long term solutions. The following strategies focus on housing security and affordability, addressing the pressing needs that exist now while simultaneously fostering long term housing solutions.

Source: Oakland CLT

74 Oakland District 6

STRATEGIES & IMPLEMENTATIONS

VISION & GOALS

CLT Partnership Homeowner buy-in program

Year 0

SPOTLIGHT

Year 20 Projected Cost

Year 10

$$$$

Ongoing Action

Vacant land Tax program set up

$$$$

CLT purchases private vacant land

$$$$

Emergency Housing

$$$$

Build & network comm. cabins Transitional Housing

$$$$

Transfer Mills College properties Tenant Support Tenant Support Org. surveying

$$$$

Community Planning Programming

$$$$

Community Planning Academy

$$$$

100,000 - 500,000

$$$$

500,000 - 1,000,000

$$$$

1,000,000 - 2,000,000

$$$$

2,000,000 + Equity Plan 75

4. The Final Plan

Housing and Affordability OakCLT Partnership Community Land Trusts are a proven model for building and maintaining long term affordable units that allow residents to become homeowners and gain equity all while ensuring affordability for future generations of homeowners.

the OakCLT by setting aside funds such as the Bond Measure KK and the Preservation of Affordable Housing Fund to increase capacity for affordable housing development. The following mechanisms can be used to increase the land available for CLT ownership.

The Oakland Community Land Trust was established in 2009 with the mission of creating stability and affordability in neighborhoods hit hard by the foreclosure crisis. The City should continue to support

Private Property Transfers

Tax-Defaulted Properties

Members deposits Surplus Land Surplus Land are pooled

D6 Vacant land is taxed

Oakland CLT Members own their buildings Membership owns land collectively

Federal Credit Union investments

Land Tax paid to Sogorea Te’ Land Trust Fig. 4.32 Oakland CLT acquisition model

76 Oakland District 6

VISION & GOALS

STRATEGIES & IMPLEMENTATIONS

Private and Vacant Land: A majority of vacant land in District 6 is privately owned and scattered across the flats. The city should strategically pursue parcels that can be assembled to develop affordable housing or transferred to OakCLT. Additionally, OakCLT can pursue problem properties that might be difficult to sell to a traditional investor. In the Bay Area, NAI NorCal found that a CLT was the right purchaser for a multi-family property that housed mixed-income families but had some code violations. The city could provide technical assistance to support OakCLT to better identify these unique opportunities. Additionally, OakCLT could also reach out to local homeowner-occupied properties that are at risk of foreclosure and subsequent displacement to buy the property using an equitable resale formula and allow the family to remain in the residence under a new long-term affordable lease.

Tax Defaulted Property: In 2017, Hello Housing, in partnership with state and local government entities, acquired 26 tax-defaulted residential properties in Oakland. This successful partnership and acquisition model could be duplicated with OakCLT and other providers that are seeking to build long-term affordable housing. Pursuing 25 defaulted homes every 5 years would result in new, permanently affordable housing for least 100 families over the course of this plan.

Surplus Land: When a development lot has “extra” land that cannot accommodate an intended use and cannot be sold off separately it gets designated as surplus land. California’s Assembly Bill 1486 requires that the city’s surplus land be reallocated to affordable housing developers. In District 6, surplus land should be transferred to OakCLT.

Increase the Vacant Land Tax: To increase the capacity of OakCLT to more aggressively pursue these land acquisition strategies, the City should increase its vacancy tax and funnel the increased funds generated in the district to OakCLT to purchase vacant land and develop affordable units.

Pursue Additional Investment from FCU: The Federal Credit Union located in District 6 could provide gap financing and additional investment for affordable housing developments. HOPE Credit Union is a model that has financed

SPOTLIGHT

the development of affordable housing with a particular expertise in providing financing for smaller Low Income Housing Tax Credit developments, providing more than $42 million in permanent financing and leveraged more than $200 million. 6.

Pay Into Shuumi Land Tax: To support the rematriation efforts by indigenous communities in East Oakland, OakCLT properties developed in District 6 should pay the Shuumi Land Tax. This is a voluntary annual contribution made to support the critical reparative work of the Sogorea Te’ Land Trust to empower self determination in current and future generations of Indigenous people in the Bay Area.

Implementers: Department of Housing and Community Development Partners: East Oakland Community Project Equity Plan 77

4. The Final Plan

Housing and Affordability OakCLT Partnership Two sites have been identified for emergency transitional housing. With the closing of Mills College and its conversion into a professional development institute, there is an opportunity to utilize the upcoming surplus of student housing. The existing Community Cabin program should be expanded to the industrial area of the District to provide emergency housing where encampments are dense. Transitional Housing on Mills Campus There are 3 campus apartments and 5 dormitory buildings on Mills campus that could be converted to transitional housing either by donation to a non-profit or using federal tax credits. As Mills college becomes an institute for women, providing transitional housing for women and families would align with their mission and allow residents to connect with their programming. Converted units could serve families as part of the Oakland Community Project’s Families in Transition program. A current project of OCP, Matilda Cleveland is a 14-unit congregate residential facility for homeless single parents and their children. The OCP staff operates a full array of 24-hour services on-site for the families including life skills training, case management, enrichment activities for youth and after school projects for children, and connection to community resources. Expanded Community Cabin Program Currently, four other Community Cabin sites are operating in the city, and have shown promising results in linking unhoused people to permanent housing, jobs, and healthcare. As of June 2019, the four Community Cabin sites have served 350 people. 67% of all exits to-date are positive, meaning “program participants ended their unsheltered status by moving into permanent housing, shelter placement, or reunification with friends and family.” Transitional housing requires an effective network of service providers. To increase the capacity of existing providers and add others to the network that would support these emergency housing measures, it is recommended that the city provide technical assistance to organizations to apply for Bezos Day 1 Families Fund and pursue large corporate donors similar to those that have supported community cabins in the past, like headquartered companies Glad and Clorox. Convertible Lease Program Finally, the transition to more permanent housing solutions should be made as smoothly as possible. The Oakland Housing Authority should consider offering convertible leases where tenants can reside in a scattered site unit as a program participant. The lease would begin in OHA’s name while the participant is in a program or case-management

78 Oakland District 6

and eventually transferred into the name of the resident. This strategy has shown success in Vancouver and has enabled participants to maintain their housing and avoid the disruption of being required to move at the end of a program.

Fig. 4.33 Mills colleges dormitory buildings | Source: Inside Mills College

Fig. 4.34 Community Cabin design proposal | Source: Shelter Force

Implementers: Department of Housing and Community Development Partners: East Oakland Community Project, Mills College

VISION & GOALS

STRATEGIES & IMPLEMENTATIONS

SPOTLIGHT

Strategically pursue vacant land that is ripe for affordable development

Vacant lands Multi-unit sites Emergency housing Transitional housing Fig. 4.35 Affordable housing proposal map

Equity Plan 79

4. The Final Plan

Housing and Affordability Storefront Tenant Support Organization District 6 does not have a dedicated organization that provides tenant counseling and housing preservation advocacy. The City’s Department of Housing and Community Development should facilitate the acquisition of a storefront in Eastmont Town Center specifically for this use and fund operations in partnership with East Oakland Collective, Oakland Community Land Trust, The Alliance of Californians for Community Empowerment, Oakland Tenants Union, and Black Culture Zone. This storefront could provide multilingual counseling to tenants who are newly experiencing displacement pressures as gentrification worsens. Additionally, this storefront could provide a direct line to OakCLT—providing information and facilitating private sales and transfers and even monitor predatory landlords. Community Planning Academy The storefront could also operate as a headquarters for a citizen planning team that focuses on getting residents involved in existing city-wide and local housing efforts as well as the other aspects of the District 6 Plan. They would be trained by the organizers stewarding the storefront space and would lead three main plan implementation areas: 1) Participatory action surveying; 2) Facilitating public and private process reviews; and 3) Organizing plan “fests” (once every 5 years) that launch campaigns, showcase achievements, open and close the plan cycle. Citizen planners would be employed in a parttime or consulting capacity and their salaries should be covered by the city departments mentioned above. After the plan is complete, the citizen planning team would continue to hold partners and city officials accountable to the district’s vision and goals as described in the plan and as they change over time in accordance with the changing and growing population. Increasing resident knowledge of the planning process for the next generation of residents will further aid in continuing the legacy of the district. This ongoing education could be funded by the city through the Community Development Block Grant program or other local grant funding geared toward increasing community capacity. Additional operating costs could be achieved through Surdna and the fests could be funded through Akonadi Foundation’s So Love Can Win Fund. Implementers: Department of Housing and Community Development Partners: ACCE Action; East Oakland Collective

80 Oakland District 6

Fig. 4.36 Tenant support to keep residents rooted in the community | Source: ACCE Instagram

Fig. 4.37 Civic engagement central to community planning model | Source: Black Housing Union, KQED

VISION & GOALS

STRATEGIES & IMPLEMENTATIONS

SPOTLIGHT

Increase support for tenants and avenues for civic engagement

Vacant lands Tenant support org.

Fig. 4.38 Affordable housing proposal map

Equity Plan 81

4. The Final Plan

A Complete Vision for Bancroft Business District The strategies discussed this far span the four goals of environment, transit, economy, and housing, but they start to converge together around specific locations within the District. One such location is the Bancroft Business district, a major area of opportunity in the flats. Within the Bancroft Business District is Eastmont Town Center which hosts numerous public agencies and services making it a site with excellent potential for development that better serves residents’ needs as a commercial and community hub. Taking the proposed strategies together creates a new vision for the space. •

Expanded green space and the creation of a plaza would allow for community events and civic engagement while also providing multiple environmental benefits

•

The transit hub north of Eastmont Center would be improved with clear wayfinding and better ticketing kiosks and integrated with the development of complete streets.

•

Commercial revitalization around the town center would include improved storefronts and enhanced amenities that bring people together to eat, shop, and play.

•

Affordable housing development on the strategic sites would ensure that longtime District 6 residents benefit from these amenities going forward.

Fig. 4.39 Eastmont Town Center eastside entrance (before and after) | Source: Google Earth

These interventions not only address physical improvements to the area but propose programs and policies that ensure residents can access said improvements. The proposed Eastmont Town Center redevelopment is a prime example of how to combine all elements of the plan to create a cohesive community hub that serves all residents. Entrance rendering (Fig. 4.39) Converting a former parking lot to a public plaza creates a welcoming entrance to the tenant support organization and federal credit union. Plaza rendering (Fig. 4.40) A underutilized city surplus lot can become a hub for community and connection, with a more permanent space for existing programming like the AKOMA market.

Fig. 4.40 Eastmont Plaza (before and after) | Source: Google Earth

82 Oakland District 6

VISION & GOALS

STRATEGIES & IMPLEMENTATIONS

SPOTLIGHT

Create a cohesive community hub around Eastmont Town Center

Fig. 4.41 Bancroft Business District plan map

Equity Plan 83

Source: East Oakland Collective

Conclusion

The District 6 Equity Plan ensures that the District will continue to benefit from its strong tradition of advocacy and self-determination, with diverse residents united around maintaining healthy, safe, and interconnected neighborhoods where they have opportunities to fulfill their potential. The targeted strategies laid forth in this plan support a District where residents have equal access to housing, transit, economic amenities, jobs, and environmental resources. Actions to prepare for sea level rise and educate residents on climate change create a resilient District, with more accessible parks and green spaces that benefit community public health. Community-led commercial revitalization seeks to produce vibrant public spaces that serve the needs specific to District 6 residents. Improvements to transit and mobility networks see that residents in the District can connect to each other and to improved amenities safely. Increasing the supply of affordable housing and providing improved housing services keeps longtime residents rooted in the community to continue it’s legacy. In tandem, the strategies work to create safe and thriving neighborhoods that are connected to each other by commercial corridors, high-quality parks, and safe mobility networks. The enhancement of community engagement tools and resources, along with strategic partnerships with successful community groups that have roots in the District, sees that the plan will be carried forward into the future by the next generations of District 6 residents.

Equity Plan 85

References

Bibliography •

Alameda county flood frequency. (n.d.). NOAA. Retrieved from https://coast.noaa.gov/slrdata/

City of Oakland Department of Transportation (2019, July). “2019 Oakland Bike Plan.” Retrieved from https:// cao-94612.s3.amazonaws.com/documents/LBOakland_ FinalDraft_20190807_web.pdf

•

Broadway Valdez District Specific Plan. “Public Realm Concept”. City of Oakland. WRT. Solomon ETC. 2009 https:// www.oaklandca.gov/topics/broadway-valdez-district-specificplan

City of Oakland Department of Transportation (2017). “2017 Pedestrian Plan Update.” Retrieved from https://cao-94612. s3.amazonaws.com/documents/Ped-Plan-2017-rev-sep2018compressed.pdf

•

Radke et al. (2018). Assessing extreme weather - related vulnerability and identifying resilience options for California’s interdependent transportation fuel sector. California’s Fourth Climate Change Assessment, California Energy Commission. Publication Number: CCCA4-CEC-2018-012. Retrieved from https://cal-adapt.org/data/download/

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•

C-CAP data 2010. (2020). NOAA. Retrieved fromhttps:// coast.noaa.gov/htdata/raster1/landcover/bulkdownload/30m_ lc/conus_2016_ccap_landcover_20200311.tif

Coarse filter vegetation. (2019, November). Conservation Lands Network 2.0. Retrieved from https://www. bayarealands.org/maps-data/

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C-CAP data 2016. (2020). NOAA. Retrieved from https:// coast.noaa.gov/htdata/raster1/landcover/bulkdownload/30m_ lc/conus_2016_ccap_landcover_20200311.tif

Conservation suitability. (2019, November). Conservation Lands Network 2.0. Retrieved from https://www. bayarealands.org/maps-data/

•

Drought monitor change layer. (2021). United States Drought Monitor. Retrieved from https://droughtmonitor.unl.edu/Data/ Metadata.aspx#gml

•

East Oakland Community Project. “Matilda Cleveland.” https://www.eocp.net/matilda-cleveland/

•

AC Transit Multimodal Corridor Guidelines. (2018, April). Retrieved from https://www.actransit.org/website/uploads/ AC_Transit_Multimodal-Corridor_Guidelines_Final.pdf

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Hausrath Economics Group. “Market Assessment of Retailing the Broadway Corridor in Downtown Oakland.” (2013)

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Mae Hanzlik. “Redesigning Slow Streets To reflect community & culture in East Oakland” (2020) Smart Growth America. https://smartgrowthamerica.org/redesigning-slowstreets-to-reflect-community-culture-in-east-oakland/

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Equity Plan 87

District 6 Equity Plan 2021-2031 A Twenty Year Plan to Advance Equity in Oakland’s District 6

UPENN Workshop Plan - Oakland District 6

Articles inside

History of Oakland

3. Alternatives for District 6

Spotlight: A Complete Vision Bancroft Business District

Environment & Transit

Conclusion

Overview