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![]() | TCSP-1999 Grant Proposals"Land Use Support for the Mission Street Transit Corridor" |
| Type of Project Request: | TCSP Planning Grant |
| Project Title and Location: | Land Use Support for the Mission Street Transit Corridor San Francisco, CA |
| Organization: | City and County of San Francisco Planning Department |
| Key Contact: | David Alumbaugh, Planner and Urban Designer |
| Address: | 1660 Mission Street San Francisco, CA 94103-2414 |
| Phone: | (415) 558-6601 |
| Fax: | (415) 558-6426 |
| E-Mail: | david_alumbaugh@ci.sf.ca.us |
| Estimated Grant Request: | $177,000 |
Abstract.
The San Francisco Planning Department is applying for a planning grant for transit-oriented development in the Mission Street Transit Corridor. This corridor represents one of the best-served transit corridors in the region. It is characterized by a diverse mix of mostly medium- and low-income residents, many of whom depend on transit, especially for journey-to-work trips. We will prepare a transit-oriented land use plan for the Balboa Park Station at the southern end of the corridor, and use it as a model for how transit-oriented development can increase San Francisco's share of new mixed-use residential and commercial development in areas well-supported by transit, how it can strengthen the link between land use and transit, how it can increase transit use, how it can encourage mixed-use residential and commercial infill sensitive to neighborhoods, how it can refocus the city's neighborhoods towards transit and away from the automobile, and how it can ease some of the burdens placed on private-sector development. This project has the potential to serve as a model for other nodes on this regional transit corridor, for other parts of the region, and for other dense to moderately dense transit-served communities.
| Our intent is to develop a model for transit-oriented urban communities in San Francisco. |
Project Description
The purpose of the planning effort for which the TCSP grant would provide partial funding is to improve the efficiency of the transportation system by strengthening connections between transit and surrounding land use, to improve intermodal transfers, to improve the ambience around transit stations for the community and all users, and to encourage appropriate mixed-use housing and commercial infill around stations and in the surrounding neighborhoods.
By making it easier and more pleasant to use transit; by integrating transit facilities into the surrounding neighborhood; by encouraging more people to live near transit; and by encouraging more shops, neighborhood services, and work places to be built there; transit will enjoy higher ridership and its efficiency will improve. This will encourage the development of a rich mix of uses at densities that strongly support transit while remaining sensitive to community character.
Our intent is to develop a model for transit-oriented urban communities in San Francisco that draws upon and strengthens community character; that has as its backbone strong pedestrian and transit networks; that engenders rich street life; that eases access to jobs, housing, shopping, recreation and other daily needs; that maximizes the use of the transit network; and that has a minimum dependence on the private automobile.
| Environmental clearances and other entitlements will lessen the private-sector burden |
Ultimately, we intend to accompany each transit-oriented community plan with environmental clearances and other entitlements that will lessen the burden of the market to produce appropriate mixed-use residential and commercial projects that clearly fit within the plan. Our purpose is to capitalize on the strength of the market as much as feasible.
| We propose to use the Balbpa Park Station as a model for other transit corridors and transit centers |
We propose to use the Balboa Park Station at the southern end of the Mission Street Transit Corridor as a model that can be applied within other areas of the corridor itself and in other transit corridors and transit centers in the city. Successfully strengthening the link between land use and transit in San Francisco has the potential to reap great benefits for the city and the region, and the Balboa Park Station offers the greatest potential for doing so.
| Of all of the city's transit centers, the Balboa Park Station perhaps best illustrates the range of challenges and opportunities facing the city. |
Of all of the city's transit centers, the Balboa Park Station perhaps best illustrates the range of challenges and opportunities facing the city and the region in their efforts to strengthen the link between land use and transit. The need for strong planning intervention there is perhaps most critical. The deficiencies of this station include transit station entrances that are not where people need them; a surrounding sidewalk and street system that is hostile not only to pedestrians--and especially to the disabled--but also to traffic and to transit; transit terminuses that are scattered and diffused, making intermodal accessibility and transfers difficult and confusing; and traffic patterns that are confused and confusing to pedestrians, drivers, transit drivers, and transit users alike. While the community surrounding the station offers a wealth of uses that attract and generate transit riders and is surrounded by solid, established residential neighborhoods, the immediate station area is an unwelcoming void.
Planning for the Balboa Park station would be a logical extension of the work recently undertaken by the Mission Economic Development Association and the Mission Housing Development Corporation in partnership with the Metropolitan Transportation Commission, the San Francisco Bay Area Rapid Transit District (BART), and the San Francisco County Transportation Authority to redesign the 16th and 24th Street BART stations.
| Mission Street is one of San Francisco's principal streets. |
Setting
Mission Street historically has been one of San Francisco's principal north-south streets and one of its major commercial thoroughfares. It remains the commercial spine of the Mission District and of the southeastern part of the city. It is the focus of the commercial and residential neighborhoods that flank it.
| The Mission Corridor in San Francisco is one of the region's most well-served transit corridors. |
The Mission Street Transit Corridor is one of the city's most important transit corridors, and one of the region's densest and best-served by transit. The Mission Street Transit Corridor, along with Market Street downtown, is the primary regional transit link between San Francisco, the Peninsula to the south, and the East Bay.
| This corridor represents one of the best-served transit markets in the region. |
This corridor represents one of the best-served transit markets in the region. The Mission Street Transit Corridor is characterized by a diverse mix of mostly medium- and low-income residents. Many depend on transit, especially for journey-to-work trips. While many of these residents clearly take transit by choice, improved access to stations and stops could prevent transit riders from shifting to the private automobile.
| The extension of BART to the airport will directly connect Balboa Park to this significant jobs and activity base. |
The regional BART system runs beneath the corridor, with stations at 16th and Mission streets, 24th and Mission streets, Glen Park, and Balboa Park. South of the city, the BART system runs to Daly City and Colma, and is being extended to the San Francisco International Airport. It may be extended even further down the Peninsula in the future. Nonetheless, the extension of the BART system to the airport will directly connect the Balboa Park Station and its surrounding neighborhoods to this significant jobs and activity base, and will make the station even more the city's southern gateway.
The San Francisco Municipal Railway (MUNI) No. 14 electric trolley line--one of the city's most heavily used transit lines--runs the length of Mission Street. The J-Church, K-Ingleside, and M-Oceanview rail lines (part of the MUNI Metro system) converge on the Balboa Park transit station. The J-Church streetcar serves the southern part of the corridor. Numerous local feeder bus lines link surrounding communities to this transit corridor. The Interstate 280 freeway parallels the corridor south of the Glen Park transit station.
| Like the region, San Francisco faces an acute housing crisis. |
The Planning Department is now engaged in a citywide land use study that has confirmed that, like the San Francisco Bay region as a whole, San Francisco faces an acute housing crisis. The city's land base is fully used, and yet the city and the region desperately need new housing. San Francisco's few large blocks of undeveloped land already are planned for new mixed-use residential and commercial neighborhoods, and the transit services that would support these new neighborhoods--the new Embarcadero Light Rail line and the future Third Street Light Rail line--are now completed or being designed. For a number of reasons, much of our other new housing is not being built in areas well-served by transit.
We have found that, while the city has little if any unused or surplus land, its transit-served areas can be more intensively used, and they can be more closely tied to transit. Transit's roles as a hub and focus of the communities through which it passes could be strengthened.
| San Francisco's transit-served areas can be more intensively used and more closely tied to transit. |
Purpose and Criteria
The following are the stated objectives of the TCSP planning program and the way the project would meet them.
1. Improve the efficiency of the transportation system. This study's explicit aim is to organize community land uses and activities in ways that encourage the appropriate use of land for housing, commercial, and recreational activities, and that match and efficiently support the Balboa Park Station's and the Mission Street Transit Corridor's substantial transit investment.
2. Reduce the impacts of transportation on the environment. Successful residential and commercial neighborhoods focused around transit, with the appropriate mix of housing, shops, services, and places to work, will attract greater numbers of transit riders and reduce the use of the private automobile. Increased transit ridership and less reliance on the automobile will decrease air pollution; reduce noise, accidents, and confusion; create safer, more pedestrian-friendly environments; and promote neighborliness in urban communities.
3. Reduce the need for costly future investments. The Balboa Park Station especially, and the Mission Street Transit Corridor in general, are extraordinarily well-served by both city and regional transit. The appropriate linking of land use to transit here will enable the city and the region to capitalize upon and use to greatest effect the significant transit investment that is already in place.
4. Ensure efficient access to jobs, services and centers of trade. The study's explicit aim is to improve the efficiency of the transportation system by strengthening the connections between transit and the surrounding community. It also aims to improve intermodal transfers, to improve the ambience around transit stations for the community and all users, and to encourage mixed-use housing and commercial infill around the stations and their immediate neighborhoods. Achieving these aims will allow transit to enjoy higher ridership and will improve its efficiency.
| Environmental clearances and entitlements would be expected to encourage private-sector development. |
5. Examine development patterns and identify strategies to encourage private-sector development patterns which achieve the goals of the TCSP. It is the Department's intention that the plan explore the proper relationship between San Francisco's transit infrastructure and its existing and planned land use patterns, using the Balboa Park Station as a model. We anticipate that the plan would recommend public planning actions, public/private partnerships for preservation and infill, neighborhood initiatives, and incentives for private-sector actions, all meeting the plan's broad goals and objectives. In addition, it is the Department's intention to accompany each transit-oriented community use plan with environmental clearances and other entitlements that would lessen the burden of the market to produce appropriate mixed-use residential and commercial projects in transit-oriented urban communities. This would be expected to encourage private-sector development.
| There is strong interest and support among many of the neighborhoods along the corridor to strengthen the connections between transit and the community. |
Partners and Coordination
Transit-oriented development would bring significant benefits to the Balboa Park Station area, the Mission Street Transit Corridor, the city, and the region. There is strong interest and support among many of the neighborhoods along the corridor, and especially around the Balboa Park Station, to strengthen the connections between transit facilities and the surrounding communities.
| The success of this project depends upon a community-based public planning process. |
Our planning approach will rely on the involvement, participation, and ownership of the various communities to the planning process and to the solutions it brings forth. The success of this project depends upon a successful community-based, public planning process.
The Balboa Park Station is surrounded by the Outer Mission, Ocean View, West of Twin Peaks, Crocker-Amazon, and Excelsior neighborhoods. We have begun initial coordination with the neighborhood and community groups surrounding this station, including the Outer Mission Residents Association and the Ocean Avenue, Merced Heights, Ingleside Neighborhood Association (OMI), as well as with the Mission Housing Development Corporation, a non-profit housing development organization that works throughout the corridor. However, no formal partnership has yet been established with these or other organizations to date. We would expect to define a community-based planning process and to form partnerships with neighborhood groups as the first step of the project.
| We anticipate public planning actions, public/private partnerships, neighborhood initiatives, and private-sector incentives. |
In addition, the Department has begun initial coordination with the San Francisco County Transportation Authority, MUNI, BART, and the city's elected officials regarding the Balboa Park Station area. We expect to meet soon with representatives of the City College of San Francisco, which is an important destination and large user of land in the area. We have been working with the University of California at Berkeley to bring their planning and urban design expertise to the transit-oriented design issues surrounding the station, as well, and to start the initial public dialogue about what the vision of the station might be.
There are a number of neighborhoods within the Mission Street Transit Corridor. In addition to the four listed above, these include the Glen Park, Bernal Heights, Noe Valley, and Mission (sometimes referred to as the Inner Mission) neighborhoods. The Mission Economic Development Association has done considerable related work in the Inner Mission that would likely be a valuable base upon which to build a community use plan in that portion of the corridor. We would expect to form partnerships with groups representing these neighborhoods at the time any planning efforts move beyond the Balboa Park Station area to other areas of the corridor. As with the Balboa Park neighborhoods, we would expect to form partnerships with representative neighborhood groups as the first step of any planning process.
Work Program
As stated earlier, the planning effort for which the requested TCSP grant will provide partial funding is intended to encourage the appropriate use of land for housing, commercial, and recreational activities in the Balboa Park Station area. Over time, we plan to extend this planning model to other transit centers in the Mission Street Transit Corridor, and to other transit centers and transit corridors throughout the city. The intent is to prepare plans for transit-oriented urban communities that draw upon and strengthen community character; that have as their backbone strong pedestrian and transit networks; that engender rich street life; that ease access to jobs, housing, shopping, recreation and other daily needs; that maximize the use of the transit network; and that have a minimum dependence on the private automobile.
| This planning effort is a key component of a broader effort the Planning Department is undertaking to strengthen the city's use of land. |
It is our intention that the plan explore the proper relationship between San Francisco's transit infrastructure and its existing and planned land use patterns. We anticipate that it would recommend public improvements, public/private partnerships for preservation and infill, neighborhood initiatives, and incentives for private-sector actions, all meeting the plan's broad goals and objectives. Ultimately, it is the Planning Department's intention to accompany each transit-oriented community plan with environmental clearances and other entitlements that would lessen the burden of the market to produce appropriate mixed-use residential and commercial projects in transit-oriented urban communities. This planning effort is a key component of a broader effort the Planning Department is undertaking to strengthen the city's use of land.
The following is a full work program for a complete planning effort for the Balboa Park Station. We would expect that a similar scope of work would be appropriate as the model is extended to the rest of the Mission Street Transit Corridor and to other transit corridors and transit centers in the city. The funding identified for this project does not currently cover the work needed to complete Task 11, the environmental clearances and other entitlements for the project; Task 12, the public hearings and adoption process; nor Task 13, the preparation of the final report. Funding for these work tasks will need to be covered in the Department's future budgets, which is consistent with our proposed schedule, or by other grant funds. Nonetheless, the TCSP funding identified will result in definable, useful planning products that can serve as a transit-oriented planning model for San Francisco. See also the proposed budget, which follows.
Task 1: Project Initiation. Refine scope of work and budget. Assemble technical advisory team of agency representatives. Assemble planning advisory team of Department personnel and other relevant participants. Solicit and select project consultants.
Task 2: Community-Based, Public Planning Process. Work with specialists to develop and conduct a community-based, public planning process that ensures the involvement, participation, and ownership of the various communities surrounding the Balboa Park Station to the planning process and to the solutions it proposes.
Task 3: Designate Transit-Oriented Community Use Plan Area. Designate and delineate transit-oriented community plan area based upon comfortable walking distances to the station tied to distance, topography, boundaries, edges and other factors; existing land uses; major destinations; and other important features of the surrounding area.
Task 4: Project Goals and Objectives. Work with neighborhood groups through the community-based, public planning process to prepare a set of goals and objectives for the station area. Build upon the goals and objectives of other planning work done or being done, where appropriate. Goals and objectives will serve as the foundation for the planning work at the station, and will be the basis of the project evaluation measures.
Task 5: Inventory and Analysis. Conduct the following inventory and analysis sub-tasks:
Transit Profiles. Characterize transit use within the corridor and station, based upon existing transit use and capacity information.
Community Character Analysis. Document the design character and patterns of development around the station. Build upon similar analyses done or being done, where appropriate.
Community Profiles. Document the characteristics of the resident population of the station, using the most recently available information. Build upon similar analyses done or being done, where appropriate.
Land Use Analysis. Document and inventory current land uses around the station, using the recent land use information developed by the Department for its concurrent Citywide Land Use Study. Compare with and build upon other land use analyses done or being done, where appropriate.
Urban Design Analysis. Document urban design issues around the station area and develop urban design framework.
Soft-Site Analysis. Analyze and document how much infill housing and mixed-use development can be accommodated in the vicinity of the station. Compare and build upon similar soft-site analyses done or being done, where appropriate.
Planning Controls Analysis. Analyze and document current planning controls for their effect on appropriate infill development and for how they encourage or discourage such development. Work with others with experience applying these controls to gain and capitalize upon their insight, as appropriate.
Opportunities and Constraints Analysis. Analyze and document the physical opportunities and constraints for transit, pedestrians, bicycles, traffic, land use, and other relevant issues around the station. Compare and build upon similar opportunities and constraints analyses done or being done, where appropriate.
Circulation. Analyze and document pedestrian, transit, bicycle, and traffic systems around the station.
Task 6: Development Prototypes. Develop a set of appropriate development prototypes drawn upon examples of the city's successful and desirable neighborhoods, as well as upon recent examples of successful, sensitive development.
Task 7: Transit-Oriented Community Use Plan. Prepare a transit-oriented community use plan that addresses and synthesizes the issues identified in the work tasks above.
Task 8: Implementation Program. In coordination with and by mutual agreement with all agencies and implementing bodies with jurisdiction in the station area, prepare an implementation program that documents how the transit-oriented community use plan will be implemented, and that clearly sets out the roles, responsibilities, actions, costs and time lines of each agency for implementing the plan.
Task 9: Planning Controls. Prepare public policies and programs, and new planning policies where appropriate, to achieve the goals of the project. These planning tools might include one or more of the following: changes in zoning, establishment of development bonuses for new housing, establishment of pedestrian zones to improve and enhance streets and connections to transit, traffic calming, reduction of parking requirements for new development, establishment of maximum permitted parking levels (parking caps), incentives for car-share programs or other ways of separating the provision of housing from the provision of parking, requiring housing as a component of new development, establishment of minimum allowable development levels, requiring ground-floor retail, establishment of sun access requirements, and the like.
Task 10: Draft Plan Report. Prepare draft plan report that describes and illustrates all elements of the transit-oriented use plan and that documents the planning process. The draft plan report also will describe the project evaluation component of the plan and the near-term results of the process, the products, and outcomes of the project, if there are short-term outcomes.
Task 11: Environmental Review and Entitlements. [Not currently funded. See proposed budget.] Complete program-level environmental documents that address the proposals of the community use plan. Where appropriate, solicit position papers from public bodies that define actions each would expect to take for projects that clearly meet the goals and objectives of the use plan.
Task 12: Commission and Board Approvals. [Not currently funded. See proposed budget.] Once environmental review is complete, seek Commission and Board approvals for the plans and their implementing elements.
Task 13: Final Plan Report. [Not currently funded. See proposed budget.] Prepare final plan report that describes and illustrates all elements of the transit-oriented use plan and that documents the planning process. The final plan report also will describe the project evaluation component of the plan and the near-term results and outcomes, but may also begin to describe some of the longer-term results and outcomes of the project.
Task 14: Project Evaluation Plan. Working within the community planning process and based upon the goals and objectives developed for the project, prepare a set of measures for evaluating the project's performance. The components of the project evaluation plan are described more thoroughly elsewhere in this proposal.
Participate in up to two grant workshops convened by the Federal Highway Administration.
| We expect to complete the TCSP-funded tasks within one year. |
Schedule and Milestones
We expect that the project can be completed in approximately two years. We expect to complete the TCSP-funded tasks within one year of receiving TCSP funding. We expect to complete the final land use and planning control recommendations, along with approvals and entitlements, approximately 2 years after initial funding.
| Without the TCSP grant funds, it is unlikely that we will be able to complete a plan for the Balboa Park Station. |
Budget and Resources
The San Francisco Planning Department, in conjunction with the San Francisco County Transportation Authority, MUNI, BART, the Mayor's Office of Housing, the Department of Traffic and Parking, the Department of Public Works, and other applicable agencies, has considerable expertise, experience, and resources to make available to this project. We have land use planners, urban designers, transportation and transit planners, community planning groups, and neighborhood resources focused on this endeavor and motivated to address important jobs and housing issues that face San Francisco and the region.
| We will match this funding with the $300.000 we are spending on the supporting land use study through June 1999, with $100,000 we have budgeted through June 2000, and with other grant requests. |
The Planning Department is requesting a $177,000 TCSP planning grant to help it fund the planning work needed to link land use and transit in the Balboa Park Station. To match these funds, the Planning Department has committed approximately $300,000 through June 1999 on a Citywide Land Use Study that includes tasks that directly support the work to be undertaken at the Balboa Park Station. The Department has included $100,0000 in its FY 1999-00 budget, which it will use to support this work program. In addition, the Department recently applied for a $50,000 TLC planning grant to fund a plan for near-term physical improvements to the Balboa Park Station. We will continue to apply for other grant funding as it becomes available for planning or for implementation, and we will continue to include funding for this and other corridor planning projects in subsequent Department budgets.
The following is our proposed budget for the $327,000 the Department has identified for this project:
*Includes $2,000 in traveling expenses related to participation in up to two grant workshops convened by the Federal Highway Administration.
Work Task Estimated Cost
Task 1: Project Initiation $2,000
Task 2: Community-Based Public Planning Process $100,000
Task 3: Designate Transit-Oriented Community Use Plan Area $2,000
Task 4: Project Goals and Objectives $2,000
Task 5: Inventory and Analysis $75,000
Task 6: Development Prototypes $25,000
Task 7: Transit-Oriented Community Use Plan $75,000
Task 8: Implementation Program $5,000
Task 9: Planning Controls $10,000
Task 10: Draft Plan Report $10,000
Task 11: Environmental Review and Entitlements Not funded.
Task 12: Commission and Board Approvals Not funded.
Task 13: Final Plan Report Not funded.
Task 14: Project Evaluation (grant-funded elements) $15,000*
Contingency $6,000
Total $327,000
| Our project evaluation plan will measure and evaluate the successes and failures of the planning process, the plan, and its intended outcomes. |
Project Evaluation Plan
As part of the project, we will develop a project evaluation plan that uses project goals and objectives to measure and evaluate the successes and failures of the planning process, the plan, and its intended outcomes. This evaluation plan will include a monitoring plan that sets out the roles and responsibilities of all public agencies having a role in helping to carry out the plan's recommendations, that sets out an agreed-upon set of measures against which to evaluate the plan's and each agency's success or failure; and that establishes the evaluation methods, data sources, milestones, and budgets for each agency.
We would evaluate the success or failure of the project on the following measures, which would be based primarily on the plan's stated goals and objectives developed and agreed upon as part of the community-based planning process and in discussions among agencies during the course of the project.
Planning process measures of success. We would expect the following:
Planning product measures of success. We would expect the following successes for the planning product:
Project outcome measures of success. We would expect the following successful project outcomes:
Data sources and evaluation methods:
We expect that our measurements would include some or all of the following:
We will produce an initial evaluation report as a section of the draft and final plan reports prepared for the project overall.
Letters of Support
The following are letters of support for this grant proposal.
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