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NORTH
RICHMOND
SHORELINE
SPECIFIC
PLAN
■
MAY 1992
Prepared for the
CITY OF RICHMOND
CONTRA COSTA COUNTY
STATE COASTAL CONSERVANCY
By
BRADY AND ASSOCIATES
PLANNERS AND LANDSCAPE ARCHITECTS
In association with
CRANE TRANSPORTATION GROUP
ORION ENVIRONMENTAL ASSOCIATES
PHILIP WILLIAMS AND ASSOCIATES
WARD AND ASSOCIATES
WETLANDS RESEARCH ASSOCIATES,INC..
r
North Richmond Shoreline Area Specific Plan
TABLE OF CONTENTS
1. INTRODUCTION 1
A. Backgroune and Plan Purpose 1
B. Planning Process 3
C. Specific Plan Contents 4
D. How to Use This Plan 5
E. Statutory Aut':ority 6
F. Relationship to Other Plans and Regulations 7
2. DESCRIPTION OF PLAN AREA 11
A. Regional Setting 11
B. Local Setting 11
C. General Site --haracteristics 12
D. Jurisdictions 17
3. PLAN GOALS 21
A. General Goal and Objectives 21
B. Land Use 22
C. Natural Resources 23
D. Visual Resources 24
E. Circulation and Public Access 25
F. Capital Improvements and Plan Implementation 26
G. Economic Development 26
4. LAND USE ELEMENT 29
A. Land Use Policies 29
B. Land Use Strategies 36
C. Land Use Designations 41
D. Land Use Designations Summary 51
E. Development Standards 52
5. CIRCULATION ELEMENT 63
I� A. Circulation Policies 63
B. Existing Circulation 64
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NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
TABLE OF CONTENTS
4
C. Roadway Classifications and Standards 64
D. Railroad Operations 72
E. Transit Service 73
F. Bicycle Circulation 73
G. Projected Traffic Volumes 74
H. Transportation Demand Management (TDM) Techniques 75
I. Emergency Vehicle Access 76
J. Street Development Standards 77
K. Roadway Phasing 78
6. DESIGN GUIDELINES 79
A. Introduction 79
B. General Design Guidelines 80
C. Guidelines for Specific Areas
and Design Elements 88
7. IMPLEMENTATION ELEMENT 101
A. Introduction 101
B. Actions Required for Adoption of the
North Richmond Shoreline Specific Plan 101
C. Development Review and Approval Process 106
D. Employment Development Programs 108
E. Richmond Enterprise Zone 111
F. Infrastructure Improvements 112
G. Hazardous Waste Remediation 122
H. Natural Conservation, Shoreline Restoration
and Flood Protection Implementation Actions 123
8. ACKNOWLEDGEMENTS 135
A. North Richmond Shoreline Specific Plan
Citizen Advisory Committee 135
B. North Richmond Shoreline Specific Plan
Technical Advisory Committee 136
C. Contributing Staff 137
D. List of Preparers 137
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MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
TABLE OF CONTENTS
List of Figures
1. Regional Location 2
2. Aerial Photo of Planning Area 13
3. Plan Area Points of Reference 15
4. Jurisdictions 19
5. Shoreline Conditions 33
6. Specific Plan Land Use Map 43
7. Public Access and Recreation 45
8. Circulation Plan 66
9. Streetscape Plan 95
10. Rheem Creek Channel Typical Cross-Section 132
List of Tables
1. Summary of Land Use Allocations 52
2. Development Standards 54
3. Roadway Dimensions 70
4. Year 2005 Project at 100% Buildout 75
5. Streetscape Plan Landscape Tre.,-.�ments 94
6. Applicable Zoning Districts 104
7. Capital Improvement Needs in the Plan Area
and Associated Property Owner Benefits 113
8. Existing Water and Sewer Mains 117
9. Financing Mechanisms for Capital Improvements,
Operations and Maintenance 120
Appendices
A. Alternative B A-1
B. Table 1. Ownership and Parcelization B-1
C. Financing Approaches C-1
}
iii
Chapter 1
INTRODUCTION
A. Background and Purpose
The North Richmond Shoreline is unique in the metropolitan Bay Area, a
1,951 acre area located on San Pablo Bay near two major transportation
routes, Interstate 580 and 80, in the heart of the East Bay's urban-industrial
complex. Access to this area has been limited in the past, and about 60
percent of the area is undeveloped. In the developed areas, industrial uses
predominate, with some commercial nurseries and very little residential use.
Much of the area is representative of historic San Francisco baylands, with
marshlands and uplands along the shore. Portions of the area have been
identified as important habitat for endangered species. .
A number of changes are now occurring or planned in the North Richmond
shoreline area. These include the extension of the Richmond Parkway through
the area, flood control improvements to Wildcat and San Pablo creeks, and the
near term closure of the West Contra Costa Sanitary Landfill. With these
improvements, interest in new development in the area is expected to increase
dramatically. In recognition of the impact new development could have on this
sensitive bay shore environment and its ecological importance to the region,
the area was identified as eligible for funding under the State Coastal
Conservancy's urban waterfront restoration and resource enhancement
programs. The City of Richmond, in cooperation with Contra Costa County
and the State Coastal Conservancy, has sponsored a joint planning effort for
the North Richmond shoreline area. The result of this effort has been to
develop the North Richmond Shoreline Specific Plan.
The overall goal of the North Richmond Shoreline Specific Plan is to recognize
the unique character of the plan area and to guide and regulate development
in the area in a manner that improves its image, benefits community residents,
and accommodates a reasonable level of development within a framework of
conservation and public access to the Bay.
1
VALLEJO
1
So MARTINEZ
4
101
SPECIFIC
PLAN AREA
SAN RICHMOND
RAFAEL
580
LAFAYETTE
24 WALNUT CREEK
BERKELEY
OAKLAND
580
SAN
FRANCISCO 680
HAYWARD
SAN FRANCISCO BAY ,
92
880
SAN MATED
FIGURE 1
Regional Location
NORTH
RICHMOND
SHORELINE
SPECIFIC
PLAN
BRADY AND ASSOCIATES,INC.PLANNERS AND LANDSCAPE ARCHITECTS
MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
INTRODUCTION
The plan area is located in both the City and the County and both have
• jurisdiction over land use decisions. The Specific Plan, once adopted, will be
used by both jurisdictions to guide and regulate development and conservation
activities in the plan area. The primary funding source for the development of
this Specific Plan is the State Coastal Conservancy's Urban Waterfront
Restoration and Resource Enhancement Grant Program. The Conservancy
has been actively involved throughout the planning process, participating in
plan development and providing technical guidance regarding approaches to
resource enhancement.
B. Planning Process
In early 1989, the North Richmond Shoreline Citizen Advisory Committee
(CAC) was established to advise and participate in the planning process, and a
Technical Advisory Committee (TAC), comprised of representatives of
agencies with jurisdiction or interest, was formed to review and provide input
on technical and regulatory matters. Early in the planning process, the
environmental and social conditions present in the plan area were documented
in the Existing Conditions Analysis. Opportunities and constraints to
development, conservation and public access were identified. With the
assistance of the CAC and the TAC, specific goals and objectives for
development and natural resource enhancement were identified. (These goals
_ are included in Chapter 3 of this document.) These goals and objectives
provided the framework for formulation of three land use alternatives which
included land use, circulation, public access and natural resource enhancement
recommendations. The CAC reviewed these alternatives and recommended
that one be further developed as the Specific Plan.
1. Alternative B
Following review of the alternative recommended by the CAC, representatives
of the State Department of Fish and Game and the U. S. Fish and Wildlife
Service requested that they be allowed additional time to conduct field surveys
of the plan area to verify the presence and condition of wetlands and wildlife
habitats within the baylands, and to more precisely evaluate the potential
effects of the recommended alternative on biological resources. A U.S. Fish
and Wildlife Service representative and a State Department of Fish and Game
representative conducted field visits in June 1991, and identified areas as
potentially having wetland characteristics. These areas were larger than those
which had been delineated earlier by the U. S. Army Corps of Engineers, and
which had formed the basis for decisions made in formulation of the initial
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NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
INTRODUCTION
three alternatives. Based on this evaluation, U. S. Fish and Wildlife Service ,
representatives recommended modifications that resulted in a new alternative,
called Alternative B. Because the U.S. Fish and Wildlife's Survey was not
complete and is subject to further verification, the decision was made to
incorporate these preliminary findings into an alternative rather than the
proposed plan. Alternative B was reviewed by the CAC, which decided that
Alternative B should be evaluated in detail in the EIR as the Mitigated Plan
Alternative. Alternative B is described in detail in Appendix A of this
document.
2. Next Steps
This Draft Specific Plan will be reviewed in public hearings by the Planning
Commission and City Council of the City of Richmond, and the Planning
Commission and Board of Supervisors of Contra Costa County. The North
Richmond Shoreline Specific Plan Environmental Impact Report will be
reviewed and certified by the City's Environmental Assessment Panel and
reviewed by the Richmond City Council and Contra Costa County Board of
Supervisors. At the direction of the City Council and Board of Supervisors,
the final Specific Plan, which may include revisions to the Draft Plan, will be
prepared. When the Final EIR is certified by the City of Richmond, the
Specific Plan may be adopted by the City and County, and used by both
jurisdictions to guide development and conservation in the plan area.
Appropriate amendments and revisions to the City and County General Plans r
and General Plan maps must be made before the Specific Plan is adopted.
These changes are described in Chapter 7, Section B of this Draft Plan.
C. Specific Plan Contents
This Specific Plan details land use and circulation policies, standards, and
regulations, capital improvement requirements, and design guidelines to guide
development and conservation in the plan area.
This document also includes a description of the plan area in Chapter 2, and in ,;.
Chapter 3, Plan Goals, which provide a framework for the land use, circulation,
natural resources enhancement and public access policies of the plan.
The Specific Plan includes the following elements:
• Land Use Element, which sets the land use pattern and standards for
uses allowed in the plan area;
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MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
INTRODUCTION
• Circulation Element which establishes a circulation system necessary to
provide both pedestrian and vehicular access and to accommodate the
demands generated by development under the land use scheme;
• Design Guidelines, which are recommendations for site planning,
building and open space relationships, architecture and landscape design
and public access; and
• Implementation Element, which describes steps needed to implement
the plan, including General Plan and zoning changes, phasing and
apportionment of capital improvements, and action programs for
conservation.
The required environmental impact documentation (EIR) is contained in a
separate document, the North Richmond Shoreline Specific Plan Environmental
Impact Report. The EIR includes recommended mitigation measures for the
Draft Specific Plan, as well as an analysis of plan alternatives, including the
environmentally superior alternative, Alternative B. (Alternative B is also
described in Appendix A of this document.)
The Specific Plan has a companion technical memorandum which details the
existing conditions analyzed in preparation of the Specific Plan. This Existing
Conditions Analysis details the opportunities and constraints for development
and natural resource conservation in the area, and was used during the
planning process as baseline information.
D. How to Use This Plan
When adopted by the City of Richmond and Contra Costa County, the Specific
Plan will provide a public document that defines the amount, type and location
of development that will be permitted in the plan area. The Plan also
establishes development standards, and sets forth design guidelines for that
development. It identifies locations and standards for conservation of natural
resources and public access in the plan area. The Plan recommends specific
actions to implement the plan and financing methods and sources to fund
improvements.
Development proposals in the plan area will be subject to review by the City
and County for consistency with the Specific Plan. The Specific Plan
document will be used by City and County staff to review development
proposals in the plan area, and to advise applicants of the consistency of their
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NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
INTRODUCTION
proposals with the plan. The document is also intended to be used by )
applicants in designing and formulating their development proposals.
Development proposals would also be"reviewed by City and County staff for
potentially significant environmental effects. If a development proposal is
consistent with the Specific Plan, its environmental effects are likely to have
been assessed in the North Richmond Shoreline Specific Plan Environmental
Impact Report, and further assessment may be limited to site-specific impacts of
the project.
Approval of all development permits in the Specific Plan area will be subject
to review under Section 15.04.840 et. seq. of the Revised City of Richmond
Zoning Code, and Section 84-66, P-1: Planned Unit District, of the Contra
Costa County Zoning Code.
Exemptions. Where undue hardships, practical difficulties, or consequences
inconsistent with the general purposes of this Plan result from the literal
interpretation and enforcement of provisions imposed by this Plan, the City or
County, upon receipt of a verified application from the owner of the property
affected, stating fully the grounds of the application and the facts pertaining
thereto, and upon its further investigation, may grant adjustments in
accordance with applicable sections of the Richmond Municipal Code or the -
Contra Costa County Municipal Code under such conditions and safeguards as
it may determine, consistent with the general purposes and intent of this Plan.
Other basic requirements of this Plan shall not be eliminated, but adjustments
thereof may be permitted provided such adjustments are consistent with the
general purpose and intent of this Plan.
E. Statutory Authority
Under California Law (Government Code Section 65459 et. seq.), cities and
counties may use specific plans to develop policies, programs, and regulations
to implement the jurisdiction's adopted General Plan. The specific plan
frequently serves as a bridge between the General Plan and individual
development master plans.
This Specific Plan has been prepared in a manner consistent with the
requirements of State Planning and Zoning Law, Article 8. Specific Plans. As
prescribed by law, the plan includes text and diagrams which specify the
following: _
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MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
INTRODUCTION
1) The distribution, location and extent of the land uses, including open
space, within the area covered by the plan.
2) The proposed distribution, location, extent and intensity of major
components of public and private transportation, sewage, water drainage,
solid waste disposal, energy and other essential facilities proposed to be
located within the area covered by the plan and needed to support the
land uses described in the plan.
3) Standards and criteria by which development will proceed, and standards
for the conservation, development and utilization of natural resources,
where applicable.
4) A program of implementation measures including regulations, programs,
public works projects and financing measures necessary to carry out the
plan.
S) A statement of the relationship of the Specific Plan to the General Plan.
F. Relationship to Other Plans and Regulations
F The plan area is within both the City of Richmond and Contra Costa County,
as shown in Figure 4. Policy documents and ordinances of both these
jurisdictions already exist to guide development in the plan area. State and
regional agencies also exercise jurisdictional authority over development
activities in the plan area. The following City and County plans and policy
documents apply to the plan area:
City of Richmond General Plan
City of Richmond Coastline Plan (a local area plan)
City of Richmond Zoning Ordinance
Contra Costa County General Plan
Contra Costa County Zoning Ordinance
The North Richmond Redevelopment Plan, Contra Costa County
The Shoreline Conservation and Development Strategy, City of Richmond
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NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
INTRODUCTION
1. Relationship to the City of Richmond General Plan
The policies and objectives of the Draft Specific Plan are consistent with the
broad goals of the Richmond General Plan. It would also promote many of
the policies of the Richmond Coastline Plan. The Specific Plan would
specifically implement Goal M of the General Plan, which is:
Assist in balancing the environmental, social and economic values
of the Bay and adjacent areas when formulating plans for future
development in Richmond. Use the area's resources to produce a
kind of growth that will benefit residents of the community within a
framework of conservation,public access to the Bay, and economic
feasibility!
Coastline Plan policies which would be implemented by the Specific Plan
include the following:
1) Discourage scattered development of industry. Accommodate non-water-
related industries in areas that are already committed to industry, but
under-utilized, such as.-
The
s.The area north of North Richmond which is shown as industrial in
the North Richmond San Pablo Bay Plan;....
2) Promote circulation facilities in the Coastline Area that will assist inland
residents in taking advantage of the shoreline. Stress that the design of
these facilities should not block access to the waterfront.
3) Encourage development of a system of hike/bike trails throughout the
Coastline Area as shown on Plate 13, Regional Recreation.
4) Require that all new major waterfront developments provide a reasonable
degree of free permanently guaranteed access to the shoreline, with
adequate links to inland areas.
5) Discourage new development on the marshes or mudflats of the Coastline
Area.
1 Concise Plan, pg. 11. y
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MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
INTRODUCTION
Although the Specific Plan conforms to the policies and objectives of the
Richmond General Plan, the General Plan will have to be amended prior to
adoption of the Specific Plan. These amendments will include changes to the
General Plan, particularly the Land Use Map and maps of the Richmond
Coastline Plan. The specific amendments required are outlined in Chapter 7,
Section B.1 of this Plan.
Although the Specific Plan does not provide for housing within the plan area
by providing jobs for local residents, it is consistent with the City's Housing
Element goals to balance jobs and housing within the local community.
2. Relationship to the Contra Costa County General Plan
The policies and objectives of the Draft Specific Plan are consistent with the
relevant goal of the North Richmond Redevelopment Plan, which implements
the Contra Costa County General Plan. The Specific Plan would "revitalize
and expand industrial and employment related development in the northern
portion of the redevelopment area". The County will process a General Plan
Amendment concurrent with the Specific Plan to ensure consistency.
Please refer to Chapter 7, Section B for actions required for adoption of the
Specific Plan.
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9
Chapter 2
DESCRIPTION OF PLAN AREA
A. Regional Setting
As illustrated in Figure 1, the plan area is located in western Contra Costa
County, along the shoreline of San Pablo Bay. Part of the plan area is within
the City of Richmond and part is in an unincorporated area of Contra Costa
County. It is approximately 12 miles north of Oakland and 19 miles northeast
of San Francisco. The City of San Pablo is located directly east of the plan
area. Regional access to the area is available from Interstate 80 and
Interstate 580. Interstate 80, a major north-south limited-access freeway which
passes about 2.5 miles east of the plan area, links the area to other East Bay
cities and provides connections with major east-west routes such as
Interstate 580, the Oakland Bay Bridge, and State Routes 4 and 24.
Interstate 580, which is located about 3 miles south of the plan area, provides a
connection via the Richmond-San Rafael Bridge to Marin County and
Highway 101.
B. Local Setting
The plan area consists of a crescent-shaped area of shoreline between Point
San Pablo and Point Pinole in the northwestern portion of the City of
Richmond. The plan area of 1,951 acres includes roughly 4 miles of shoreline,
and extends inland from the shoreline about 2,500 feet on average. Figures 2
and 3 show the limits of the plan area and its relationship to the surrounding
environs. Point Pinole Regional Park is north of the plan area and a portion
of it overlaps the northern boundary of the plan area. The Southern Pacific
Railroad tracks form much of the area's eastern boundary. The residential
community of Parchester Village is located just east of the railroad tracks near
the north end of the plan area, and the Hilltop Mall is about 1.5 miles east of
the area. As shown in Figure 2, to the south of Parchester Village, the area
between the plan area and Giant Highway is occupied by industrial
development. San Pablo Creek parallels the southern boundary of the plan
area just south of Parr Boulevard until it turns northward at Garden Tract
Road, bisecting the site, before emptying into San Pablo Bay. The area
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11
NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
DESCRIPTION OF PLAN AREA
immediately south of the plan area, between San Pablo Creek and Wildcat l
Creek, is occupied predominantly by commercial nurseries and assorted
industrial/warehouse type uses. South of Wildcat Creek is the unincorporated
residential community of North Richmond. Wildcat Marsh is located
southwest of the plan area and beyond the marsh is the Chevron USA
Refinery. The Richmond Civic Center is located about 3.5 miles southeast of
the plan area.
Local access to the plan area is currently provided by Parr Boulevard, 3rd
Street, and Sections 2 and 3 of the Richmond Parkway. Parr Boulevard, which
forms the southern boundary of the plan area, provides access to the area from
the City of San Pablo to the east via connections with Road 20, Rumrill
Boulevard, and Giant Highway. The 3rd Street/Filbert Street corridor provides
access from the south via Castro Street and 7th Street. Sections 2 and 3 of the
Richmond Parkway run from Castro Street north, parallel to 3rd/Filbert
Streets.
The right-of-way for the planned Richmond Parkway, which will connect
Interstates 580 and 80, bisects the plan area.
C. General Site Characteristics
r
The plan area consists of relatively flat shoreline plain with few significant
changes in topography. Site elevations range from sea level along the
shoreline to 16 feet near the railroad tracks.on the east side of the plan area.
The majority of the area has elevations below 10 feet. A continuous band of
mudflats and marshland is located along the shoreline of the plan area. The
largest marsh area, San Pablo Creek Marsh, is located near the middle of the
plan area at the mouth of San Pablo Creek. Parts of two other marsh areas,
Wildcat Marsh and Giant Marsh, are located at the south and north ends of
the site. In addition to the San Pablo Creek which passes through the south
part of the plan area, another smaller stream, Rheem Creek, bisects the
northern half of the area on its way to the Bay.
1. Land Use
Current uses in the plan area include light and heavy industrial uses,
commercial nurseries, agricultural production, recreation and landfill
operations. However, much of the land is not in active use and.is vacant and
unimproved. Development is concentrated primarily in the southern.portion of
the plan area, extending along the north side of Parr Boulevard from Radiant
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MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
DESCRIPTION OF PLAN AREA
Avenue on the east to San Pablo Creek on the west, and north to Freethy
Boulevard/Maas Avenue. At the western end of this developed area is an auto
salvage yard. San Pablo Creek Marsh lies north of the developed area and
extends south between the developed area and San Pablo Creek. The West
Contra Costa Sanitary Landfill, accessed from Parr Boulevard, is located
southwest of the creek. Parr Boulevard crosses San Pablo Creek east of the
landfill.
The area north of Freethy Boulevard/Maas Avenue is primarily undeveloped
open space, although the Richmond Rod and Gun Club and a model airplane
landing strip are also located here. The Rod and Gun Club activities currently
extend out into the Bay on two jetties of historic fill. Rheem Creek traverses
the open space just north of these jetties and south of the model airplane field.
Some houses and other miscellaneous structures are located just below a single
jetty of historic fill extending into the Bay just north of the Rod and Gun Club.
A portion of Giant Marsh, within the Point Pinole Regional Shoreline Park,
overlaps the northern boundary of the plan area.
2. Parcelization and Ownership
The crescent-shaped plan area consists of 101 recorded parcels comprising
` some 1,951 acres. Over half of this land extends into Bay waters and some
parcels have little or no dry land associated with them. The remaining
908 acres are marshlands, wetlands and uplands. There are 35 different owners
in the plan area, with ten landowners controlling roughly 90 percent of the
area.
Owners' names, parcel sizes, and assessor parcel numbers are listed in
Appendix B, Table 1.
D. Jurisdictions
The plan area falls mainly within the city limits of the City of Richmond, with
areas in the south part in unincorporated Contra Costa County. Other
government agencies with jurisdiction in the plan area include:
1. State of California Lands Commission, which owns some properties in
fee and holds public trust easements over some tidal and submerged
lands in the area;
17
NORTH RICHMOND SHORELINE SrECIF1C PLAN MAY 1992
DESCRIPTION OF PLAN AREA
2. The San Francisco Bay Conservation and Development Commission
(BCDC), which regulates development in areas of San Francisco Bay
subject to tidal action (in the plan area, about six feet above mean sea
level); within the 100 feet shoreline band inland from the line of highest
tidal action; and saltpans, managed wetlands, and important waterways;
3. State of California Regional Water Quality Control Board, which
reviews and regulates activities that affect water quality in California;
4. The State of Califon is Department of Fish and Game, which reviews
and approves permi'.s for any streambed alteration, and reviews projects
affecting fish and wildlife habitat;
5. The U.S. Fish and Wildlife Service, which reviews and regulates the
impacts of projects on fish and wildlife habitat;
6. The U.S. Army Corps of Engineers which regulates activities and
development in the navigable waters of the United States, and regulates
filling of any water of the United States; and
7. The East Bay Regior.,-.11 Park District, a limited purpose agency charged
with developing and operating a park system in the East Bay. The plan
area is within district boundaries, and the Point Pinole Regional
Shoreline, part of which overlaps the north boundary of the plan area, is
owned by the District. The District's Master Plan shows some of the
plan area wetlands as a potential Regional Shoreline site.
Other agencies with jurisdiction or interests within the plan area are:
Association of Bay Area Governments
San Francisco Bay Area Air Quality Management District
Metropolitan Transportation Commission
Jurisdictions as applicable are mapped in Figure 4.
18
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Chapter 3
PLAN GOALS
The following list of planning goals id objectives for the North Richmond
Shoreline Area Specific Plan provict•:s a framework for the development of
specific land use, circulation, natural resource protection, capital improvement,
and implementation recommendations presented by this Plan. The list is based
primarily on the findings of the existing conditions and land use suitability
analysis (documented in the companica technical memorandum, Existing
Conditions Analysis, November 1989), and upon the issues and concerns
expressed by plan area landowners, the Technical Advisory Committee (TAC),
North Richmond Shoreline Citizen Advisory Committee (CAC), interested
agencies, and City, County and State Coastal Conservancy staff. The plan
-.,goals and objectives were approved by the CAC.
A. General Goal and Objectives
Goal: Recognize the unique character of the North Richmond
Shoreline Area and guide development of the shoreline area in a
manner that improves its overall image, benefits community residents,
and allows for a reasonable level of development within a framework of
conservation and public access to the Bay.
Objectives:
1. Provide a Specific Plan which facilitates the orderly development and
redevelopment of lands within the plan area in a manner which:
a. Is generally consistent with the land use, circulation, conservation,
recreation, public facilities, safety, noise, economic development, form
and appearance, housing, and seismic safety policies of the City of
Richmond General Plan, and corresponding elements of the Contra
Costa County General Plan;
b. Is consistent with the policies and regulations of other agencies
with jurisdiction over the plan area;
21
NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
PLAN GOALS
C. Reconciles to the extent possible any conflicting interests of 1
landowners, community residents, and responsible agencies and
jurisdictions;
d. Increases the value of the property within the plan area while
preserving important natural resource areas and protecting the rights of
adjacent residents and landowners;
e. Provides open space, parks, and public access to and within
shoreline areas;
E Promotes new business opportunities and provides for expanded
employment opportunities for community residents; and
g. Mitigates significant environmental and community impacts.
B. Land Use
Goal: Provide fuller utilization of the plan area for a range of land
uses, with emphasis given to employment-generating uses, recreational
uses, and preservation of natural resource areas.
Objectives:
1. Encourage the continuation of those existing industrial and commercial
land uses in the plan area which contribute to the achievement of city -
and county land use and economic goals.
2. Upgrade and expand existing industrial uses in the southern portion of
the plan area to maximize the near-term attractiveness of these areas for
continued industrial uses.
3. Protect existing and new land uses by providing adequate buffer zones
that avoid or mitigate conflicts in land use.
4. Develop a set of development standards and design guidelines for the .
plan area which will permit a compatible blending of a variety of land .
use types.
5. Accommodate landowner interests in development of the plan area
inasmuch as they are consistent with the broader social and natural
resource protection goals of the city and county.
6. Provide a plan framework which allows individual landowners to develop
their lands efficiently and independently, but in a manner which is
harmonious with a comprehensive land use plan for the area.
i
22
MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
PLAN GOALS
7. Provide for public access along the shoreline, which includes pedestrian
and bicycle facilities and is consistent with East Bay Regional Park
District and Association of Bay Area Government's alignments both
north and south of the plan area for the Bay Trail, and with plans for a
staging area at Wildcat Creek. The plan will also coordinate with
pedestrian/bicycle provisions included in the design of the Richmond
Parkway and provide convenient links to inland areas.
8. Provide for the future development of the landfill site as recreational
open space once closure plans have been implemented.
9. Restrict land uses involving public exposure to soils, surface waters, or
groundwater to areas determined to be free of contamination by
hazardous or toxic materials.
C. Natural Resources
Goal: Protect and restore natural resources, with an emphasis on
wetland and riparian habitat and adjacent.upland areas.
Objectives:
1. Protect wetlands from encroachment and disturbance by incompatible
uses, including public access, by developing minimum setback standards
from shoreline and development design guidelines.
2. Prevent additional filling of wetland areas and reestablish, where
feasible, wetland areas which have been destroyed or degraded as a
result of filling.
3. Ensure that altered drainage patterns resulting from development of the
plan area do not threaten the health of existing marsh and wetland
areas.
4. Protect marshes from surface water pollutants in runoff from impervious
urban surfaces.
5. Implement measures to protect areas of the shoreline that are currently
badly undercut and eroding due to high wave energy.
6. Ensure that the plan does not compromise the habitat value of the
mudflats, salt marsh, and seasonal wetlands for migratory and resident
birds and for small mammals. The plan will be consistent with
Department of Fish and Game and U.S. Fish and Wildlife Service
guidelines for protecting rare and endangered species known to inhabit
the plan area vicinity.
i
23
NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
PLAN GOALS
7. Remove debris and isolated fill from tidal wetlands.
8. Design restoration to maximize habitat for target species identified in
consultation with State and Federal resource agencies.
D. Visual Resources
Goal: Create an aesthetically pleasing visual character for the North
Richmond shoreline area, and an image which is consistent with the
scenic quality of the shoreline setting.
Objectives:
1. Enhance the visual experience along the proposed Richmond Parkway
by creating an attractive entranceway image for the plan area, including
view corridors through to the Bay and shoreline.
2. Use open space and effective visual buffers between areas vAth
incompatible or unattractive land use activities.
3. Create a coordinated system of signage, landscaping, lighting, and other
design features for reasonable application throughout the play, area in
order to identify, visually enhance, and integrate the plan area.
4. Protect views of San Pablo Bay and its shoreline as a unique, high-
quality resource.
5. Maintain the shoreline as a varied and valuable visual and recreational
resource.
6. Require new development to preserve the unique view opportunities of
the shoreline and make these views available to the public to the
maximum extent feasible.
7. Encourage local industries to improve the appearance of their facilities
and integrate them into an overall plan.
8. Encourage new development to establish a distinctive character through
the external design of buildings and open space, and their relationship to
the terrain and shoreline.
9. Provide varying levels of development regulation and design control
tailored to the range of land uses desired in the plan area.
Development standards for Office/Industrial Flex and Light Industrial
areas should emphasize rigorous design restrictions to enhance market
attractiveness. Development standards for General Industrial areas
24
MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
PLAN GOALS
should emphasize special treatments along road frontages and site
boundaries contiguous to other, more nuisance-vulnerable uses.
E. Circulation and Public Access
Goal: Provide safe and convenient multi-modal access to and within
the North Richmond Shoreline area.
Objectives:
1. Accommodate industrial and other land uses permitted in the plan area
with an integrated transportation system incorporating vehicular, rail,
pedestrian, and bicycle facilities. .
2. Establish a plan area roadway system of primary and secondary routes to
adequately serve traffic demands as they develop. Include sufficient
ultimate improvement capacity to accommodate the maximum level of
buildout and intensity permitted by the plan.
3. Route interior plan area roadways to maximize access in and out of all
designated development areas, avoid fragmentation of lands into
inadequately sized or shaped parcels, and minimize disruption of natural
values. Avoid lengthy cul-de-sacs in order to disperse traffic impacts as
much as possible, and provide alternative access as feasible to offset
traffic congestion problems during periods of construction and/or
emergency closures.
4. Prioritize and sequence plan area road improvements to respond to the
circulation needs of existing and near-term development, and minimize
costs assigned to longer term development areas.
5. Bring existing roads which are retained in the circulation plan up to full
City or County standards and dedicate to the City or County.
6. Wherever possible, separate heavy truck traffic from normal vehicular
traffic in order to:
a. Reduce obstruction of normal traffic;
b. Reduce truck/automobile safety conflicts;
C. Increase road capacities; and
d. Reduce noise and visual impacts associated with heavy truck
movements.
7. Provide special bicycle lanes along major plan area driving routes.
l
25
NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
PLAN GOALS
8. Provide for future service by fixed route public transit,van pools, and
other communal transportation in the plan area land use and
transportation scheme.
9. Provide adequate and safe pedestrian access to future transit stop
locations and between principal activity areas, including recreational
trails.
10. Provide aesthetic and safety improvements to Parr Boulevard to create a
safe and pleasant entry to the plan area from the east.
his
i
F. Capital Improvements and Plan Implementation
Goal: Provide an infrastructure system fully capable of
accommodating projected land uses and a realistic program for
implementation of capital improvements.
Objectives:
1. Condition land use modifications and development approvals in the plan
area upon developer provision of roads, sewage collection, water supply,
storm drainage, and other capital improvement requirements.
2. Provide a system of road, sewage collection, water supply, and storm
drainage facilities in the plan area. The system should be designed for _
construction in components or sequences to meet the immediate needs
of separate, near-term development actions, and ultimately be able to
combine with other similar components to form an integrated overall
capital improvements network that will be able to meet the service
demands of the area at buildout.
3. Wherever practical, locate road, water, sewer, drainage, electrical, and
gas utilities in common utility corridors.
4. Require funding of individual building site infrastructure improvements
entirely by each benefitting developer.
5. Require each benefitting landowner to contribute a fair share towards .
the cost of common area improvement requirements established in this
plan.
G. Economic Development
Goal: Link the benefits of project development with neighborhood and .
community needs.
i
26
MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
PLAN GOALS
Objectives:
1. Promote new business opportunities that will increase the opportunity
for Richmond residents, particularly the unemployed and
underemployed, to capture new and retained jobs.
2. Achieve the participation of Richmond residents in entrepreneurial and
small business opportunities generated by the Specific Plan area
development.
3. Enhance the Richmond area employment base by reducing the out-
migration of Richmond's work force through providing professional-level
employment opportunities, and creating employment opportunities for
blue-collar workers.
4. Serve the short- and long-term economic interests of the City and
County by facilitating economic development where appropriate and
avoiding adverse fiscal impacts.
1
27
Chapter 4
LAND USE ELEMENT
This chapter describes four components intended to achieve the goals and
objectives set forth in Chapter 3. They are:
1. Land Use Policies, which establish the proposed approach to changing
and guiding land use in the plan area;
2. Land Use Strategies, which provide specific direction for implementing
the land use policies;
3. Land Use Desi nations, proposed to implement the land use policies.
These are mapped in Figure 6, the Specific Plan Land Use Map, and Figure 7,
Public Access and Recreation.
4. Development Standards, which establish requirements that would have
to be met by all development and conservation activities.
Design guidelines, which are intended to achieve a high level of design and
visual quality for all development and conservation in the area, are described in
Chapter 6.
A. Land Use Policies
The North Richmond shoreline is both a natural resource and a cultural asset
for the entire Bay region. Almost inaccessible, much of the plan area has
remained intact as historic baylands, even though it is adjacent to highly
developed urban areas. Views from the North Richmond shoreline to the San
Francisco skyline, Golden Gate Bridge, Mount Tamalpais, and the Marin
County shoreline remain much as they were 50 years ago. There is a strong
sense here of being "on the Bay," in contact with that spectacular body of
water which has determined the form of the metropolitan area which surrounds
it. With completion of the planned Richmond Parkway, the area will be visible
to many and easily accessible for development activity.
29
NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
LAND USE ELEMENT
There are now two distinct land uses that dominate the plan area: heavy . ..�
industrial and commercial uses, concentrated in the southern part, and the
natural environment of shoreline marsh, transitional uplands, and freshwater
marsh. These urban and natural areas are not clearly delineated or separated,
and debris and junk often mark the transition from the one area to another.
The natural scenic qualities of the area have been compromised by industrial
uses which have developed with little regard for aesthetics or building and
grounds maintenance. Much of the shoreline is hidden or inaccessible. There
are substantial amounts of vacant or underutilized land in the area, which
represent development opportunities.
There are more than 30 businesses in the area, and although these businesses
are generally not labor intensive, they represent a stable source of
employment. Centrally located, with substantial amounts of vacant industrially
zoned land, the area is considered to be an important potential source of
employment for the North Richmond community.
This Specific Plan responds to these constraints and opportunities in the Plan
area with three major land use policies, whcih will guide change over the
twenty-year planning period. These land use policies are based on existing
conditions in the area (as described in the Existing Conditions Analysis), as well
as direction from the North Richmond Shoreline Citizen Advisory Committee
(CAC) and Technical Advisory Committee (TAC), and the goals and objectives
contained in Chapter 3.
The planned Richmond Parkway is critical to realization of these policies. It
increases visibility and access to the area, and its alignment will physically
separate the heavy industrial area from the natural resource and less
intensively developed areas. Two distinct opportunities result:
• The Richmond Parkway will make it possible to reinforce the existing
industrial base south of the Parkway to maintain the reservoir of jobs
available to the local job-force.
• New office-research-industrial land uses consistent with resource
protection and an improved image for the plan area can be encouraged
north of the Parkway.
The three land use policies are described below.
Policy 1. Encourage Development Which Will Provide Increased Job
Opportunities, Primarily for Residents in the Surrounding Area..
30
MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
LAND USE ELEMENT
About 30 percent of the plan area is now occupied by industrial uses which
generally require substantial amounts of land and generate low employment
per acre. They include such uses as warehouse and distribution facilities,
equipment yards, commercial nurseries, and waste collection companies.
Existing employment in the plan area is low, estimated at 573 employees.
Unemployment in the City of Richmond is a chronic problem, historically
higher than in the County as a whole. In January, 1991, City unemployment
was estimated at 6.6 percent, compared to County unemployment estimated at
3.8 percent for the same period.
Located in the larger North Richmond community, the plan area could draw
from a labor pool that currently has high rates of unemployment. A market
has been identified in the metropolitan Bay Area for industrial and office uses
that have a wide variety of square footage and spatial configuration needs.
The market areas of these users would be: 1) expanding office, research and
development, and light industrial firms from Marin County, where leasing costs
are increasing; 2) out-migrating users from Berkeley, Oakland and Emeryville
as older industrial buildings there are converted to more intensive uses and
rents increase; 3) office/industrial users from central and southern Alameda
County, San Leandro and Hayward, where little land is available for new
development and expansion; and 4) general industrial uses in South Richmond.
Examples of potential users from these areas include cabinet manufacturers,
distributors, sheet metal fabricators, auto supply, landscaping firms, smaller
service industries, and research and development firms.1
The North Richmond Shoreline area can meet this market demand by
providing accessible, relatively inexpensive, developable land in close proximity
to major transportation networks, labor pools, and affordable housing. The
Specific Plan intends to promote a mix of new industrial and office
development through flexible land use designations and standards that can
accommodate the diverse needs of this market. By stabilizing and upgrading
the existing heavy industrial base, encouraging new light industrial uses, and
providing for higher end office, research and development uses, the Specific
Plan area will increase jobs available to the local unemployed and
underemployed. Because many of the new jobs will require retraining of blue-
collar workers, the Plan is also intended to provide new opportunities for local
residents to train for more specialized jobs with higher skill levels. Overall, the
mix of heavy and light industrial uses and office/research and development will
result in higher employment generation than heavy industry alone, which tends
1 Draft Memorandum, North Richmond Shoreline Specific Plan Economic Development
Objectives, March 20, 1991. Ward and Associates.
31
NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
LAND USE ELEMENT
not to be labor-intensive in this area. With this mix of industry and office uses,
job generation for the plan area could be up to 25 times greater than existing
plan area employment levels.
Policy 2. Protect and Enhance the Natural Resources of the Area.
In the Specific Plan area, natural resource areas with existing or potential high
value consist of tidal wetlands, seasonal wetlands, mudflats, riparian habitat and
grassed uplands. Each of these habitats supports a variety of wildlife species.
Of primary concern in the plan area are two endangered species. These are
the California clapper rail and the salt marsh harvest mouse, both of which are
dependent on tidal salt marsh habitat and associated uplands. (Please see
Existing Conditions Analysis for more detailed information on wildlife and
vegetation resources.)
Shoreline conditions in the plan area, shown in Figure 5, include areas
protected by riprap, areas with steep or undercut banks and areas which
appear to be aggrading (expanding). Several rock jetties, built prior to the
effective date of San Francisco Bay Conservation and Development
Commission (BCDC) regulations, project into the Bay and have allowed new
marsh to form where they protect the shoreline from wave energy.
San Pablo Creek and Rheem Creek both traverse the plan area and empty into
the Bay. San Pablo Creek, at the southern boundary of the plan area, crosses
through the extensive San Pablo Creek Marsh. Rheem Creek, in the northern
portion of the plan area, is a flood control channel and has been redirected
from its historic channel.
The wetlands contained within the plan area have been disturbed by diking,
filling, dumping, sedimentation due to upstream disturbances, and polluted
urban storm water runoff. Known wetlands are shown in Figure 5. Areas
which have been degraded and have lost habitat value include a remnant of
Wildcat Marsh within the sanitary landfill, which has been isolated by levees
from tidal action; areas of San Pablo Creek Marsh near the auto salvage yard,
which have been filled, or disturbed by extensive sedimentation due to erosion
in the watershed of San Pablo Creek; the shoreline north of the Richmond
Rod and Gun Club disturbed by erosion and presence of jetties; channelized
Rheem Creek; Giant marsh which has been filled, and is subject to erosion;
and seasonal wetlands south of Rheem Creek, which have been partially filled.
I
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MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
LAND USE ELEMENT
The outboard edge of some of the tidal marsh is being eroded by wave action.
While this is a natural process, it is beneficial to retard the erosion, where
feasible, in order to offset the extensive historic destruction of wetland habitat
around the Bay.
Natural resource enhancement combines actions and programs designed to
reverse the degradation of the natural environment and protect it from the
impacts of urbanization. In general, natural resource enhancement objectives
of the Specific Plan focus on preserving and protecting existing habitat areas,
restoring diked or filled marshlands or other wetlands, improving the water
circulation system of the Bay, controlling sedimentation, reducing erosion,
improving water quality and minimizing disturbance from human and domestic
animal activities.
Protection and enhancement of natural resources will also benefit the human
community, including the surrounding residents, area employees, and future
visitors to the area. Resource protection is especially important to the
neighborhoods adjacent to the plan area, as it will increase opportunities for
recreation and shoreline access, and generally upgrade the appearance of the
plan area.
In the Bay Area, natural resource enhancement often must be accomplished
within the context of an urban environment. The enhancement objectives of
this Specific Plan are: 1) to ensure that development is sited and constructed
to minimize its impacts on adjacent sensitive shoreline, wetlands and habitat
areas, 2) to ensure compatibility of uses, by clearly delineating sensitive areas,
identifying appropriate land uses, and by preventing or minimizing impacts to
habitat through development standards, and 3) to recommend measures for
restoring and improving wildlife habitat. The land use element of this Specific
Plan establishes use categories and development standards designed to protect
natural resource areas and allow enhancement.
Policy 3. Increase Opportunities for Public Access to the Bay Shoreline.
The right of public access to shorelines has been legally recognized in
California as a public benefit that should be available to and serve all residents.
The California Constitution guarantees the right of public access to all coastal
tidelands.2 In the Bay Area, public access to the Bay shoreline is protected
under the McAteer-Petris Act through the San Francisco Bay Conservation
and Development Commission (BCDC). Under this act, the maximum feasible
2 California Coastal Plan, 1975, pg. 152.
i
35
NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
LAND USE ELEMENT
public access to and along the shoreline must be provided and guaranteed over -
time. Exceptions may be made "where public access is clearly inconsistent with
the project because of public safety considerations or significant use
conflicts."3
The shoreline of San Pablo Bay offers a unique environment for public access
and recreation. As part of the larger San Francisco Bay, it provides open
space, views of the Bay Area, natural landscapes, and visual relief from
urbanized areas. In North Richmond public access to the bay shore is severely
restricted by physical barriers such as fences and gates; absence of roads and
paths, and unattractive or hazardous land uses (junk yards and heavy industrial
uses). The Southern Pacific Railroad tracks and embankment act as a barrier
to pedestrian access from Parchester Village and residential areas to the east.
Tidal marsh and mudflats predominate along the shoreline, making direct
access to the shore difficult in much of the plan area.
There is a recorded trail easement along the Pacific Gas and Electric
Company's power transmission corridor across the tidal marsh at the end of
Freethy Boulevard and along the southern edge of the Richmond Rod and
Gun Club, and informal paths cross the raised railroad embankment in the
vicinity of Parchester Village; however, the plan area lacks a clear public access
system and is not currently linked with regional trail systems or destinations =
such as Point Pinole Regional Park.
Public access affords opportunities for educating the public about rare and
endangered species and their habitat needs, promoting community-based
cleanup programs, and encouraging conscientious shoreline development on
the part of the business community. However, public access facilities must be
integrated with development and natural resource areas to ensure
compatibility.
B. Land Use Strategies
Five land use strategies provide specific direction for implementing the land
use policies. The strategies, described below, are translated into'land use
designations shown in Figure 6.
3 San Francisco Bay Plan,January 1969, as amended July 1988, pg. 29.
1
36
MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
LAND USE ELEMENT
Strategy 1. Maintain and Upgrade Established Industrial Areas South of the
Planned Richmond Parkway
Established industrial uses occupy about 30 percent of the plan area. These
uses are located primarily south and west of the planned Richmond Parkway,
and include uses such as commercial nurseries, construction yards, warehouse
and distribution facilities, and waste collection companies. Incompatible with
sensitive land uses, such as natural conservation areas and public access, these
uses would remain, separated from the rest of the area by the Richmond
Parkway. These areas will be designated as Light.and Heavy Industrial
districts. When existing uses are changed, or facilities expanded or remodeled,
upgrading would be required through the design review and/or use permit
process. The area would be screened from the rest of the plan area by
Parkway landscaping. The primary intent in these districts would be to
reinforce the existing industrial base south of the Parkway to maintain the
reservoir of jobs available to the local job-force.
Strategy 2. Encourage New Office/Industrial Uses in the Area North of the
Richmond Parkway
In the area north of the planned Parkway alignment, much of the land is now
vacant; the Rod and Gun Club and the model airplane field serve as
recreational uses. A few less intensive industrial uses, such as warehousing and
light fabrication, are now mixed with vacant lands. This area is seen as an
opportunity for high quality, planned office, light industrial and research and
development, which would upgrade the image of the area and be an important
source of new employment for the area. This area would serve an identified
market demand for flexible, versatile office and light industrial space with a
wide variation in spatial requirements. The area will be designated as
Office/Industrial Flex district.
Strategy 3. Phase Out Incompatible Uses in Transitional Areas
There are three uses in the plan area which are incompatible with the overall
goals and objectives of the plan and with the land use strategy to protect and
enhance the natural resources of the area, and to increase opportunities for
public access to the Bay shoreline. These uses, located west and north of the
planned Parkway, include the West Contra Costa Sanitary Landfill Site, the
auto salvage yard at Parr Boulevard, and the Richmond Rod and Gun Club
site on the shoreline.
37
NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
LAND USE ELEMENT
• West Contra Costa Sanitary Landfill Site. Landfill operations are
slated to be closed in the early stages of the planning period. The
Class I hazardous waste portion of the facility will require monitoring
over the next 30 to 50 years prior to any other uses being allowed on
that portion of the site. It is anticipated that the Class II municipal
waste portion of the site will be closing in 1994. The closure plan
includes public access, a revegetated buffer area on the northern
shoreline of the site and a recycling center located on the southern
portion of the site as an interim use. The recycling center would be
operated as part of the Integrated Resource Recovery Center, to be
located at Third and Center Streets, currently under review by the
County.
In compliance with the Contra Costa County General Plan, and the City
of Richmond General Plan which recommends conversion of the landfill
to a recreation site and designates this site as an area of regional
significance, the Specific Plan would designate the Class II portion of
this site Parks and Open Space as the long-term future use of the site.
This designation would allow continued use of the site for recycling
purposes. The near term recreational activities contemplated for this
site include a shoreline roadway/bicycle trail, pedestrian pier and related
facilities on the northern shore.
• The Richmond Rod and Gun Club would continue as an incompatible
use as it currently exists with no expansion beyond existing boundaries.
Should the Club discontinue operation, use would change to Natural
Conservation designation on the westernmost part of the site, and Parks
and Open Space designation on the inland part of the site. Open space
area park use at this site could serve a variety of passive recreational
activities, including a self-guided interpretive center. Active recreation
uses are not anticipated in this area, due to the site's proximity to
sensitive habitats.
• The Automobile Salvage Yard would continue as an incompatible use
until it ceased to operate. It would then be replaced by light industrial
uses, similar to those in the areas north of the planned Parkway. This
site is designated as a Special Study site, due to its location adjacent.to
the Bay and San Pablo Marsh, and the constraint to development posed .
by hazardous materials found in this area. The Parkway,.shoreline
marsh and San Pablo Creek to the south isolate this site from adjoining
land uses and provide an opportunity to create a unique character over
the long term. Its proximity to the marshes provides an extraordinary L
natural setting with excellent views, and it is highly visible from the
38
MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
LAND USE ELEMENT
adjoining Parkway. This site should be developed as an integrated unit
to take advantage of its special setting.
Strategy 4. Protect and Enhance Areas with High Natural Resource Value
The combination of extensive, relatively undeveloped shoreline, low-lying
topography and two creeks which cross the plan area provide-the opportunity
to preserve and enhance the natural hydrologic systems and associated wetland
habitats in conjunction with development. While some existing development
has impacted the baylands and marshlands, significant portions of the.plan area
are relatively undisturbed. These areas are generally located where little or no
development has occurred, west and north of the planned Parkway and
adjacent to the shoreline. They include portions of Giant Marsh adjacent to
Point Pinole Regional Park, San Pablo Creek Marsh, and Wildcat Marsh south
of the landfill; delineated wetlands; upland habitat; Rheem Creek; and a
riparian corridor adjacent to the Southern Pacific Railroad tracks. These areas
would be protected from development, and only uses compatible with-natural
resource protection, such as limited, carefully designed public access, would be
allowed within the areas. The areas will be designated as Natural Conservation
and Public Access Corridor.
Strategy 5. Develop a Public Access System in the Plan Area,.with the Dual
Function of Providing Maximum Feasible Public Access to the
Bay, and Providing a Buffer for Natural Resource Areas.
The Specific Plan public access system would include pedestrian, bicycle, and
vehicular access, and occur in a variety of milieus, along the upland buffer,
across marshland to viewing areas and at the water's edge. More intensive
public access would be provided where there would be minimal impact to
sensitive habitat, such as at the landfill where there is an abrupt transition to
the water and resultant wave energy prohibits marsh conditions. To protect
sensitive habitat for endangered species, public access would be minimized in
the marsh, wetlands, and riparian areas.
The public access system would provide public viewing areas into and through
the marsh, continuous public access along non-sensitive shoreline areas, access
trails to observation points at the bay shore, connection to the Parchester
Village residential area to the east, and regional linkage to Point Pinole
immediately north of the plan area.
39
NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
LAND USE ELEMENT
A corridor for public access would be a designated use in specific locations _
along the shoreline and Rheem Creek in the plan area. The corridor would be
located and designed to buffer sensitive habitats and natural resources from
more intensive uses, such as urban development and active recreation. In
some areas, the corridor would be restricted to pedestrian access and
emergency/service vehicle use, and elements related to public access, such as
informational signage and seating. This corridor would connect with the Bay
Trail, and passive and active recreation areas. It would be located on the
inland edge of the shoreline and along Rheem Creek, within the BCDC 100
foot shorel'ae band.
The public access and recreation system described below is shown in Figure 7.
a. Bay Trail. Local, regional and state agencies are planning a continuous
trail that would link the entire Bay Area and provide access to the bayshore.
The Bay Trail will provide regional trail access to the plan area. Currently it is
proposed to be included in the Richmond Parkway right-of-way and would be
constructed as part of the Parkway. This will provide through-trail access
across the Southern Pacific Railroad tracks and connection to adjacent
residential areas, to the Wildcat Creek Trail to the south, and to the Point
Pinole Reg;.,,nal Shoreline to the north.
The Bay Trail would have two access points into the plan area: one at San
Pablo Creek and Parr Boulevard, and the other at the Parkway as it curves
northeast near existing Freethy Boulevard. The Bay Trail would be a paved
multi-use trail.
b. City of Richmond Bicycle Path. A bicycle path along Third Street is
included in the City of Richmond Bicycle Plan. This bikeway connects to the
Wildcat Creek staging area; in the plan area, it is proposed to connect across
San Pablo Creek to Goodrick Avenue and continue north on Goodrick
Avenue to the Bay Trail along the Parkway. The Specific Plan would extend
this trail north of the Parkway to a proposed staging area at B Street
(realigned Freethy Boulevard) and Goodrick Avenue,just south of the
Richmond Rod and Gun Club.
C. Rheem Creek Pedestrian Trail. The Rheem Creek pedestrian trail
would provide local access from Parchester Village and other residential areas
to the east, and would connect with the Bay Trail. This trail would pass under'
or over the railroad tracks along the Rheem Creek channel. This trail would
be located on the north side of Rheem Creek within the area designated as
Public Access Corridor. It would be constructed as part of a flood
1
40
MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
LAND USE ELEMENT
improvement plan for the creek which would accommodate a pedestrian
pathway in conjunction with a low flow channel, floodplain terrace, and
riparian habitat zones. The flood control improvements would be required in
conjunction with new development on adjacent Office/Industrial Flex
designated properties. These properties would be removed from the floodplain
as a result of the improvements. The trail combined with the riparian channel
would provide local public access to the area, a corridor for wildlife, and a
visual and open space amenity for the Office/Industrial Flex District as well as
the public.
d. Shoreline Access. Shoreline access would occur in three settings within
the plan area:
Immediately adjacent to the water along the northern shore of the West
Contra Costa Sanitary Landfill, with a pedestrian pier constructed at this
site's northwest corner.
- From the planned Richmond Parkway to the Richmond Rod and Gun
Club, generally following the existing public trail easement along the
Pacific Gas and Electric Company transmission line corridor.
- From the Richmond Rod and Gun Club to the jetty observation point.
1
C. Land Use Designations
The Specific Plan defines eight land use designations for the plan area.
Figure 6, the Specific Plan Land Use Map, delineates the location and extent
of the land use designations in the pian area. The purpose of the designations
and the uses allowed within each designation are described below. Figure 7,
Public Access and Recreation, shows the location of public access and
recreation provisions. Development standards, which establish minimum
requirements for development activities, are contained in Section D of this
chapter. Performance standards common to all land use designations are also
contained in Section D of this chapter.
1. Light Industrial
a. Purpose. The Light Industrial land use designation is intended to
accommodate existing industrial land uses while allowing new cleaner industrial
uses with limited impact on the surrounding area to locate on vacant lands and
to replace older uses as they are abandoned. Upgrading the perimeter areas of
existing uses is encouraged. New development will be controlled through
development standards and design guidelines to ensure compatibility between
41
NORTH RICHMOND SHORELlY t SPECIFIC PLAN MAY 1992
LAND USE ELEMENT
the allowed uses and the adjacent natural conservation areas. The appearance _
of each site, building or industrial operation within this designation should be
attractive, and the district as a whole should have the appearance of a cohesive
development.
b. Allowable Uses. Light Industrial uses are characterized by warehouse-
like space which may have accessory office space intended to serve the
industrial use, including administration, record keeping, drafting and research
and development offices. The types of uses allowed in this district include light
manufacturing and asser:bly plants, commercial nurseries, engineering,
management and spe& trade contractor's offices and related services, and
distribution centers. These uses could be housed in either single or multi-
occupant structures. All uses allowed in the Office/Industrial Flex district
(described below) are permitted in the Light Industrial district. Within the
County, development permits for these and other uses in the Light Industrial
District will be subject to review under Section 84-66, P-1; Planned Unit
District, of the Contra Costa County Zoning Code. Within the City, other
industrial uses are allowed as a conditional use, as provided for under Section
15.04.320.040, Conditional Uses of the Revised City of Richmond Zoning
Code. Heavy Industrial uses which include nuisance impacts from operations,
such as glare, heavy truc!: traffic, noise, smoke, dust or fumes, are permitted
only with conditions est •blished for the use which prevent or mitigate such
nuisances or their effects, with particular attention given to potential impacts
on the adjacent marsh habitat, as provided for in Section 15.04.840 et. seq. of
the Revised City of Richmond Zoning Code.
C. Special Study Area Designation. The special study area designation in
the Light Industrial development district is intended to ensure that
development in this area minimizes its impact on the adjacent San Pablo Creek
Marsh while capitalizing on the locational advantage offered both by the marsh
and the Parkway. Special attention should be given to how development
relates to the adjoining marsh and how the marsh is protected from further
degradation caused by runoff associated with urban activities and hazardous
materials. This site offers an excellent opportunity to set the visual and
physical character for the Specific Plan area as a whole.
2. Heavy Industrial
a. Purpose. The Heavy Industrial designation is intended to accommodate
existing heavy industrial uses while upgrading their physical and visual
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MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
LAND USE ELEMENT
appearance. This designation is important for meeting the market demands
and employment needs of the community. The designation provides for those
operations which.require relatively low land costs, good accessibility and less
stringent development standards than required in the Light Industrial district.
Heavy industrial and limited commercial uses that may not be compatible with
other land uses are allowed. The designation concentrates such activities in
the area south and east of the Parkway to minimize potential conflicts with
adjacent, less intensive land uses. With the Parkway on the west and north,
Parr Boulevard on the south and Heavy Industrial zoned land in the County on
the east and south, the area designated Heavy Industrial is contained within
distinct boundaries which effectively separate it from other less intensive use
areas. While the quality of on-site improvements in this area commonly is
lower than that anticipated for the Light Industrial district, perimeter screening
of sites and open storage areas are required to ensure a visual character in
keeping with the overall image of the plan area. Heavy Industrial uses are
likely to have the greatest range of environmental impacts, especially on
wetland areas; therefore, the Heavy Industrial uses have been located away
from the shoreline and riparian corridors.
b. Allowable Uses. Heavy Industrial uses include warehouse/industrial and
heavy manufacturing, with little or no accessory office space. Industrial
activities in this category include but are not limited to manufacturing, printing
and publishing, contractors' storage yards, warehouses, machine shops, and
commercial nurseries. All permitted uses in the City of Richmond M-3: Heavy
Industrial District and in the County's Heavy Industrial district are allowed,
subject to the standards set forth in this Specific Plan. Conditional uses
permitted are the same as those permitted in the City's M-3 district and the
County's Heavy Industrial district.
3. 0Mce/Industrial Flex
a. Purpose. The intent of this designation is to provide for the exclusive
development of modern, non-nuisance industrial space, office, and warehouse
facilities. The principal development and employment-generating uses allowed
in this development district are characterized by research, product development
and related activities (including prototype manufacturing); small business
incubator space; office; and support retail intended to serve the immediate
area. This use category includes off-price warehouse retail, small professional
services, entrepreneurial businesses, high technology firms, sales and service
companies, support retail, and general office. It accommodates the creation of
campus-like environments for corporate headquarters, research and
t
47
NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
LAND USE ELEMENT
development facilities and office or warehouse uses in high quality single or
multi-occupant buildings.
b. Allowable Uses. Uses allowed under the Office/Industrial Flex
designation include but are not limited to non-nuisance light manufacturing,
incubator-research facilities, testing, repairing, packaging, publishing and
printing, offices, administrative activities, research and development facilities,
membership-type retail warehouse sales facilities, distributing facilities utilizing
light delivery trucks, and corporate headquarters. In addition, certain
complementary uses such as finance, retail and service businesses; and offices
(including service stations, restaurants and child care facilities) F:vhich are
intended to directly serve the needs generated by the uses allc wed within the
district or the needs of residents in the surrounding area are rllowed under a
conditional use permit.
4. Special Facilities
a. Purpose and Objectives. This designation applies to one site in the plan
area, north of Rheem Creek and adjacent to the shoreline. The intent of this
designation is to provide for small-scale office, educational and conference
facilities designed and sited to complement the marsh/upland sett-;ng around
the site and to minimize the impact of urban development on the natural
environment. Uses in this category would be expected to serve as a model for
the design of urban uses adjacent to historic marsh habitat.
b. Allowable Uses. Uses allowed with a Conditional Use Permit under the
Special Facilities designation include offices, corporate headquarters; research
and educational facilities; seminar and conference facilities; and public, non-
profit and quasi-public offices or headquarters.
5. Natural Conservation
a. Purpose. The primary purpose of this land use designation is to protect
and enhance the habitat value of mudflats, marshes, wetlands, riparian
corridors and adjacent upland areas which provide critical habitat for sensitive
species. The ability of the resource enhancement programs proposed by this
Plan to successfully maintain the ecological integrity of the plan area is directly
linked to clearly delineating environmentally sensitive areas while providing for
complementary development in upland areas. This is achieved by establishing
the Natural Conservation land use designation in the plan area. The Natural
Conservation designation generally extends bayward from the six-foot elevation, �-
defined as the shoreline for the purposes of this plan, and also includes
48
MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
LAND USE ELEMENT
_ delineated wetlands and riparian areas. It is adjacent to the Public Access
` Corridor, which extends in most areas 100 feet inland of the six-foot contour.
Wildlife habitat is consolidated within the Natural Conservation area so that
large habitat areas are preserved rather than small, isolated pockets which can
be easily degraded and lost as a result of development. Within the Natural
Conservation designation, existing marsh and other wetlands are protected
from development and enlarged. Substantial areas of upland, important as
refuge to marsh-dependent wildlife, are also preserved. Marsh and wetland
restoration and habitat enhancement within the Natural Conservation area will
occur through both natural processes and specific restoration actions outlined
in Chapter 7, Implementation.
The following areas are included within the Natural Conservation land use
designation indicated on Figure 6.
• A remnant of Wildcat Marsh, part of the landfill site, that has been cut
off from tidal action
• San Pablo Creek Marsh
• The shoreline north of San Pablo Marsh connecting to Giant Marsh and
Point Pinole at the northern boundary of the plan area
• Seasonal fresh water wetlands and riparian corridors along Rheem
Creek and the Southern Pacific Railroad tracks.
b. Allowable Uses. Open space which may include authorized restoration
and enhancement activities within the area is allowed. In the Rheem Creek
natural conservation area, flood control improvements are allowed if they are
designed in a manner that is environmentally sensitive and implemented in
conjunction with wildlife habitat enhancement and compatible public access
improvements.
6. Public Access Corridor
a. Purpose. This corridor is located on the inland edge of the shoreline,
which is defined as the six-foot elevation. The corridor is adjacent to wetlands,
marshland, riparian areas, and the shoreline. This corridor is intended to
maximize public access to the shoreline in a manner and location consistent
with natural resource protection. To this end, in areas near sensitive wildlife
habitat, public access improvements will occupy only the inland half of the
corridor, with the outboard half protected as a buffer between wildlife and
human uses.
i
49
NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
LAND USE ELEMENT
b. Allowable Uses. Uses in this corridor are limited to public access
provisions and trails as indicated on the Specific Plan Public Access and
Recreation Map (Figure 7). Elements related solely to the use of the corridor
for public access and as a buffer for wildlife habitat, such as informational
signage, seating areas, observation points, fencing, parking and restrooms are
permitted. No other urban uses are permitted within the public access
corridor. In two locations, shown in Figure 7, trails are restricted to pedestrian
access, except for maintenance and emergency vehicles authorized to perform
maintenance or service functions on the trail. New structures and
impermeable paving are not permitted in these two areas.
7. Parks and Open Space
a. Purpose. The Parks and Open Space designation is intended to increase
the opportunities for public recreation in the shoreline environment. This land
use category provides usable public open space within the plan area, for
passive and active recreational and educational activities. Interpretive centers
and picnic areas are appropriate amenities for this land use category. Parks
and open space areas are located near the shoreline, and are connected to the
Public Access Corridor.
4 '
This designation applies to two sites with existing uses: the West Contra Costa -
Sanitary Landfill Site and part of the Richmond Rod and Gun Club site. The
closure plan for the West Contra Costa Sanitary Landfill site and the Contra
Costa County General Plan designate the site as Open Space. In the short
term, however, an interim use may be approved. The proposed interim use, a
recycling center, would eventually be terminated, and the site used for parks
and open space. However, the projected life of the interim recycling facility is
indefinite and would depend upon availability of an alternate site or lack of
demand.
The Richmond Rod and Gun Club will continue in its existing use until it
ceases operation, at which time the eastern inland part of it would change to
park and open space use. (The western part, which consists of two rock jetties
and connecting shoreline, would become Natural Conservation area.)
b. Allowable Uses. These areas include parks, open space and areas
identified as having visual or other natural resource significance that should be
protected through the development review process and retained for public use
for either passive or active recreation, and for access to the shoreline for
public enjoyment. Uses include but are not limited to parks, vista points,
pedestrian and bicycle trail corridors, fishing, golf courses, playing fields,
1
50
MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
LAND USE ELEMENT
recreational buildings, interpretive centers, outdoor amphitheaters, and
undeveloped open space.
8. Class I Waste Disposal Site
This 28 acre site, located within the West Contra Costa Sanitary Landfill site,
was used for disposing of toxic wastes. This facility is in the process of closing,
with final closure expected in 1994. The closure plan calls for the area to
remain as open space. However, because of toxicity issues, the area must
remain fenced and be monitored for a period of 30 to 50 years prior to public
use being allowed. This area is designated by the Specific Plan as a Class I
site, since there is no possible near term use of the area. The fencing and
closure of this facility shall be designed to complement interim public trail
access to the remainder of the landfill site and the future use of the larger
landfill site for public recreational activities.
a. Purpose. The Class I Waste Disposal Site designation should apply only
to the 28 acre Class I facility of the West Contra Costa Sanitary Landfill. It is
intended to acknowledge the long-term closure of the site.
b. Uses. No public or private use other than use as a closed'Class I
hazardous waste disposal site shall occur.
D. Land Use Designations Summary
The plan area includes both land area and submerged area. Of the total
acreage of 1,951 acres, only 908 acres are not submerged. The land use
designations apply to these 908 acres. Of the 908 acres, about 32 percent
(288 acres) are marshlands or wetlands, within the U.S. Army Corps of
Engineers jurisdiction. Acres within each of the eight designations are shown
in Table 1. Land designated for employment-generating uses in the Light
Industrial, Heavy Industrial, Office/Industrial Flex, and Special Facilities
categories total 319 acres or 35 percent of the 908 acres and 51 percent of the
"dry" land. Land designated for natural conservation, parks and open space
and public access total about 561 acres or about 62 percent of the 908 acres,
including the 288 acres of marshlands and wetlands. The remaining three
percent is accounted for by the 28-acre Class I waste disposal site.
51
NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
LAND USE ELEMENT
Table 1
SUMMARY OF LAND USE ALLOCATIONS
Land Area Percent
Land Use Designations (acres) of Total
Heavy Industrial 147 16%
light Industrial 34 4%
Office/Industrial Flex 134 15%
Special Facilities 4 .4%
Parks, Open Space and Public Accessb 152 17%
Natural Conservation 409 45%
Class I Waste Disposal 28 3%
TOTAL 908a 100%b
a Of the 908 acres, about 288 or 32 percent are marshlands or wetlands,within the U.S.Army
Corps of Engineers'jurisdiction.
b Includes landfill site.
E. Development Standards
1. Performance Standards
a. Health and Safety. All uses shall be planned, developed, conducted and
operated in such a manner that noise, smoke, dust, odors and waste of any
kind are confined and/or purified on-site so as to control pollution of air, soil
or water to meet the standards or requirements of the applicable reviewing
agency and in a manner to eliminate any detrimental effect on the public
health, safety and welfare; conserve the adjacent environment; and be in
harmony with the objectives of the Specific Plan.
b. Nuisance. All activities and uses in the plan area shall meet the
standards of operation as set forth under Section 15.04.840 of the City of
Richmond Draft Zoning Code (or the closest applicable section upon
approval). Uses which emit dust, smoke, fumes, noise, brilliant light, or are
otherwise offensive to the senses or whose operation interferes with
development or enjoyment of other property in the vicinity may be established
in the Heavy Industrial district only after determining specific conditions for
52
MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
LAND USE ELEMENT
the use to prevent the creation or maintenance of a nuisance beyond the
• boundaries of the Heavy Industrial district. It is generally anticipated that the
plan area, with the exception of the Heavy Industrial district, will be restricted_
to non-nuisance uses.
All uses shall comply with the regulations of the Bay Area Air Quality
Management District, the Regional Water Quality Control Board, the San
Francisco Bay Conservation and Development Commission, the State and
County health departments, and any other regulatory agencies which exist or
may be established to ensure environmental quality in the San Francisco Bay
Region. Any conflicts resulting from these development standards and those
of another agency shall be resolved to the mutual satisfaction of the agencies.
2. Development Standards
This section describes standards for development in the plan area. Table 2,
Development Standards, sets forth minimum requirements for lot area,
coverage, floor area ratios, height, setbacks and parking, except as allowed
through the City and County development and design review process, planned
area process or as otherwise authorized by the Specific Plan. These standards
are intended to create a harmonious, high quality development character within
each district, to allow existing uses to continue while eliciting appearance
upgrades, and to encourage flexibility in building and site design. The design
guidelines presented in Chapter 6 of this plan should be used to augment these
development standards in guiding new development and expansions or
alterations to existing development.
3. Supplemental Development Standards
Review for consistency with the following standards shall occur through the
City's Public Development Review Board (PDRB), or through the County's
equivalent design review process.
a. Height of Structures. Height of buildings and structures shall be
reviewed for compatibility with the shoreline, paths, parks, dedicated open
space, and marshland. Allowed building height may be reduced if it is found
that the building or structure would adversely impact the air, light or visual
quality of these areas, or may obstruct views from other buildings.
i
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NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
LAND USE ELEMENT
Table 2
DEVELOPMENT STANDARDS
Office/ Special
Light Heavy Industrial Facilities
Development Requirement Industrial Industrial Flex Districtd
Minimum Lot Area 1/2 acre 1 acre 1R acre 1 acre
Minimum Lot Width(feet) 125 100 125 N/A
Maximum Building Height°(feet) b35 75 35b 35
Floor Area Ratio(FAR)° .40 .40 .40 35
.. .:.. .... . ... . :..:....:
BuildingSetback t)::.::
. . (fee :.::.
Front Yard 15' 15' 0 varies
Side Yard 10' 0' 0 varies
Street Side Yard 15' 15' 0 varies
Rear Yard 0' 0' 0 varies
Building Setback from Natural 20' N/A 0 varies
Conservation District
Setback from Parkway 50' 50' 50' N/A
Parking Area Setbacks.(feet)
Front Yard 10 10 15 15
Side/Rear Yard 5 5 5 15
Minimum Landscaped Area 10% 10% 15% 15%
Loading Per code Per code Per code N/A
Parkingc Paiking Space:Requirements.
of
1-and Use::: :::..
........:
Light Industrial Assembly and 3 spaces per 1,000 s.f.up to 1,200 s.f.
Manufacturing 2 spaces per 1,000 s.f.above 1,201 s.f.
Warehouses 1.2 spaces per 1,000 s.f.
Office Uses 3 spaces per 1,000 s.f.
a Lower height may be required to avoid air,light or visual quality impacts;see Chapter 4,Section
b E.3a of the Specific Plan.
Height exception up to 45 feet for structures necessary to the operation of the use.
c Parking requirements are the same as those in the City of Richmond Draft Zoning Ordinance,
Section 15.04.830.060.
d Standards in this district may be varied through design review or planned area development review.
e With additional study and mitigation for cumulative traffic impacts,the floor area ratio(FAR)may
be increased to.65 with the approval of the City or County Planning Commission.
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MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
LAND USE ELEMENT
Exceptions to the height limitation in the Heavy Industrial and Light Industrial
" districts may be granted by the City or County, if it is found that the exception
would not interfere with views and that the use to which the exception would
be granted is necessary to foster other local or regional goals, such as
employment generation.
b. Side Yards. Subject to the approval of the City or County, contiguous
parcels under the same ownership may have no side yard setback (zero-lot
line), provided that the minimum setback otherwise required for side yards is
maintained for the remaining side yards. Contiguous parcels under separate
ownership may have zero lot-line development provided a joint agreement
between the property owners is submitted in conjunction with a development
plan for both parcels.
C. Outdoor Screening of Mechanical Equipment.
(1) Ground-mounted Equipment. All ground-mounted equipment,
including pad-mounted transformers, telephone switch boxes, and gas meters
shall be screened from the view of public rights-of-way and from the view of
adjacent properties. Whenever possible, appurtenances for utility services shall
be installed at the rear of the structures to which service is provided.
(2) Wall-mounted Equipment. Wall-mounted equipment, including
various meters, shall be screened by landscaping, masonry wall with
landscaping, or wall-mounted screening devices such as cabinets or partitions
which are architecturally compatible with the structure.
(3) Roof-mounted Equipment. All roof-mounted equipment
including but not limited to fans, vents and cooling towers shall be screened in
a manner which is architecturally integrated with the structure so as not to be
visible from the immediate ground level, the ground level of adjacent
properties, and the proposed Parkway. Overall screening height shall be the
height of the highest element of roof-mounted equipment. Roof-mounted
equipment and visual screens shall be painted or otherwise treated in such a
manner as to match the color of the roof. Roof color should be compatible
with the building color. Roof-mounted equipment shall not exceed 20 percent
of roof area.
(4) Storage Tanks and Process Equipment. Storage tanks and
process equipment shall not be allowed in front yards. Such tanks and
equipment must be located where they will be the least visible to the public
and must be screened from view. No storage tanks or process equipment shall
55
NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
LAND USE ELEMENT
be located between any street and the respective building setback line. All
screen walls should be of similar material to the building and painted to match.
d. Parking, Loading, Outdoor Storage, and Refuse Area Requirements.
All uses shall provide adequate space for parking, loading, outdoor storage and
refuse areas on-site. All such spaces shall be screened or landscaped.
(1) Location. On-street parking shall not be permitted on any public
streets. Off-street parking shall be provided for as set forth in Table 2. No
loading space, dumpster storage or refuse area shall be placed so as to face any
public street or adjacent to the Natural Conservation district or Public Access
Corridor.
(2) Screening and Landscaping of Parking Areas. Street level views
of all automobile and truck parking areas from public streets shall be screened
within the required setback. Such screening shall include, but is not limited to,
low hedges, berms, shrub masses, screen walls or fences of an appropriate
height to provide visual screening of the lower portion of passenger cars and
trucks.
(3) Screening and Landscaping of Loading and Outdoor Storage
Areas. Freight docks, loading areas, truck berths, and heavy vehicle and
equipment storage areas shall be screened from all public rights-of-way and
abutting uses, except when the abutting use is determined to be similar in _
nature. Such screening shall include, but is not limited to, landscaping and
architectural features, such as walls compatible with the building.
(4) Screening of Refuse Areas. Dumpsters shall be screened from
the view of public rights-of-way and from the view of adjacent properties.
Such screening shall be compatible with the surrounding buildings and
environment.
e. Landscaping. All landscaping shall meet the provisions of the City of
Richmond's Urban Forest Management Master Plan and Landscape Design
and Development Guidelines. Landscape materials and irrigation systems shall
comply with the requirements of Section 82-26, Water Conservation
Landscaping in New Developments, of the Contra Costa County Zoning
Ordinance. Landscape plans shall be prepared by a licensed landscape
architect experienced with landscaping in similar shoreline environments and/or
marsh habitats. All plant materials shall be drought tolerant, native or well-
adapted to local conditions.
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MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
LAND USE ELEMENT
(1) Office/Industrial Flex District. In the Office/Industrial Flex
district, a landscape master plan shall be developed for each development to
ensure a continuity of landscape treatments and to establish a uniform identity
for the district. Such master plans shall establish recommended lists of plant
materials, placement of street trees, location of walkways, guidelines for
grading and drainage, treatments for screening, and fence treatments.
Individual master plans should be consistent with the Streetscape Plan shown
in Figure 9.
(2) Front and Side Yards. Front yards and side yards abutting a
street shall be landscaped and maintained. Street trees shall be planted and
maintained along street frontage within the City or County right-of-way. The
City or County right-of-way, between the curb line and property line abutting
the front or side yard, shall be incorporated into the landscape plan, and
treated and maintained as a unit. The owner, lessee or occupant shall be
responsible for maintaining this area.
(3) Special Yard Requirements. Landscaping in areas adjacent to the
Natural Conservation district and Public Access Corridor shall be restricted to
native, non-invasive plant materials, selected in consultation with the State
Department of Fish and Game, that will provide a transition from the built
environment to the natural habitat area. In some areas fencing and/or signage
may be required to ensure that public access is restricted. Such areas should
be identified during the design development process in conjunction with the
Department of Fish and Game.
(4) Interior Landscaping of Parking Areas. Except in the Heavy
Industrial District, all parking areas shall provide interior landscaping for shade
and visual enhancement. Parking lots shall be landscaped at a minimum ratio
of one (1) tree per four (4) parking spaces for double-loaded stalls, and one
(1) tree per six (6) spaces for single-loaded stalls.
(5) General Landscape Requirements.
(a) All unused portions of a parcel shall be maintained fire control
and clear of debris.
(6) All landscaped areas shall have an automatic irrigation system to
ensure that plantings are adequately watered, in accordance with water-saving
irrigation techniques.
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NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
LAND USE ELEMENT
(c) Approved landscaping shall be installed prior to issuance of an
occupancy permit.
E Signs. All development shall be subject to Section 15.06 et. seq. of the
City of Richmond Municipal Code. Particular attention shall be given to the
compatibility of proposed signs with surrounding development and to
unobstructed views to the Bay. Roof top signs and billboards shall not be
permitted in the plan area.
g. Utility Lines. All utility lines shall be placed underground.
h. Maintenance. Each person, company or corporation utilizing a lot
should at all times maintain such lot in good order. This includes repair and
maintenance of all structures, fences, signs, walks, driveways, lawns,
landscaping, painting, etc. as may be necessary to preserve a high quality as
established by these development standards.
4. Parks and Open Space Development Standards
All buildings, structures and maintenance yards associated with parks and open
space uses shall be reviewed by the City or County review boards prior to
construction. All such buildings must comply with the development standards
set forth for the Special Facilities district. Exceptions to these standards may
be granted by the City or County review boards provided that such exceptions
shall not encroach into or degrade adjacent habitat areas or marshlands.
West Contra Costa Sanitary Landfill Site. Prior to the development of the
landfill site as a park, all applicable federal, State and local regulations and
standards must be met relative to the conversion of the landfill to this use and
the best available technology shall be applied to ensure the protection of the
public health and safety. Full public use of the landfill site is a long-term
objective that can be achieved only when public safety in using the site can be
assured. Long-term open space/park uses include recreation facilities open to
the public, such as golf courses, playing fields and outdoor amphitheaters. In
areas adjacent to the Natural Conservation district, these uses should be
compatible with protection of natural resources.
58
MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
LAND USE ELEMENT
5. Public Access Corridor
i .
a. General Requirements
(1) The Public Access Corridor shall be maintained as an
unobstructed corridor to provide public access, to buffer Natural Conservation
areas, to facilitate movement of wildlife, and to provide a visual and open
space amenity for the public and for employees of the Specific Plan area.
(2) The Public Access Corridor is generally located on the inland
edge of the shoreline, which is defined as the six-foot elevation.
(3) Unless otherwise specified, the dimension of the Public Access
Corridor is 100 feet wide, conforming with the BCDC 100 foot shoreline band
requirement.
(4) The corridor shall be used only for public access, including bicycle
and pedestrian traits, facilities associated with public access, such as seating,
parking and restroom facilities, and by authorized maintenance/service vehicles.
(5) As a condition of approval for development, open space,`public
access and conservation easements in the Public Access Corridor shall be
dedicated to a public agency, and maintained through an improvement and
maintenance district, or other provisions sufficient to provide funding for
maintenance throughout the life of the proposed development.
b. Trail Design Standards. The following requirements must be met:
(1) Trail width shall be a minimum of eight (8) feet for multi-purpose
paved trails and five (5) feet for pedestrian access trails.
(2) Where necessary, fencing or barriers designed to be compatible
with natural areas and educational signage shall be used to protect habitat
areas and public safety.
(3) Trails and other public access facilities shall be sited to avoid
identified wetland areas.
(4) All trails shall be accessible to the handicapped and disabled.
C. Specific Requirements. Specific minimum dimensions and requirements
apply to the following areas:
59
NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
LAND USE ELEMENT
(1) West Contra Costa Sanitary Landfill Public Access. A 100 foot -
public access easement along the northern perimeter of the landfill site is •`�
proposed as part of the landfill closure plan. This is one of the few locations
within the plan area where direct access to the water can occur without
traversing and disturbing sensitive marsh habitat. Both vehicular and non-
vehicular accesses are allowed in this area. Drawing 4 in Figure 8, Circulation
Plan, illustrates the roadway and trail configuration envisioned for this corridor.
In the future, a public access trail will continue along the western and southern
perimeters of the landfill site in conjunction with the site's long-term transition
to open space and park use.
Roadway connection to the landfill public access will occur via Parr Boulevard.
A multi-use (bicycle and pedestrian) trail from the Bay Trail will travel along
the top of the bank of San Pablo Creek, with an at-grade crossing of Parr
Boulevard as it enters the landfill. The entrance to the landfill will be
reconfigured to separate public access to the north shore from traffic entering
restricted areas of the landfill site.
As the landfill comes to closure, the final topography of the northern shoreline
edge and public access area should be sculpted to provide an attractive passive
recreational area with undulating slopes, picnic areas, self-guided interpretive
facilities, and possible marsh or beach restoration in protected areas.
The following standards shall be applied to the development of any public
access trails or open space areas on the site:
• A public access area conforming with the BCDC 100 foot shoreline
band requirement shall be provided and maintained along the bay shore.
Public access shall include both vehicular and pedestrian access, parking
and restroom facilities, a pedestrian pier and related amenities
appropriate to public use.
• A buffer area of at least 100 feet shall be provided between public
access areas and any operation or activity conducted as part of the
interim recycling center or other interim use. Such buffer area shall
provide visual and noise screening of activities related to the operations .
of the landfill or future non-open space activities through the use of
berms, and/or landscaping.
• The entrance to public access areas shall be clearly signed and such
entrance shall be separate from the main entrance to the facility.
• The public access area shall be maintained by the property owners.
i
60
MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
LAND USE ELEMENT
(2) Shoreline Trail from Richmond Parkway to Richmond Rod and
Gun Club. Public access in this area designated as Public Access Corridor is
intended to enable Bay Trail and local trail users to experience the natural
marsh/upland setting of the North Richmond area with minimum impact on
sensitive habitat areas. The parcels and roadways in the vicinity of Freethy
Boulevard will be reconfigured as a result of the Richmond Parkway alignment,
bringing the Public Access Corridor immediately adjacent to the Parkway just
below existing Freethy Boulevard. The corridor in this area includes all land
between the Parkway and the six foot contour, as shown in Figure 7. The Bay
Trail will traverse this section of the corridor, intersecting with a multi-use
shoreline trail extending north along the western edge of the Freethy Industrial
Park. This multi-use trail will continue along the corridor, following the
existing public access easement in the Pacific Gas and Electric Company
transmission line corridor to the Richmond Rod and Gun Club. Here it will
turn eastward along the Gun Club's southern boundary and connect to a
staging area and the Goodrick Avenue multi-use.trail. The staging area will
provide parking for trail users and information about the trail and its use.
The plan designates the Rod and Gun Club as Open Space and Parks and the
two jetties associated with this facility as Natural Conservation. These land
use designations allow the Rod and Gun Club to continue its operation with-
no expansion. Upon the cessation of its operation as a gun club, only the uses
described in this chapter as allowed under these land use designations would
be permitted on this site. The future open space/park portion of the site will
function as a destination for trail users.
(3) Shoreline Trail from the Rod and Gun Club to the Jetty
Observation Point. North of the Richmond Rod and Gun Club, a pedestrian
path will lead to an observation point on an existing jetty. This jetty,
composed of historic fill, is an existing access which bisects new marsh that has
been created because of the protection from wave action provided by the jetty.
This trail is approximately 3,600 feet in length.
The trail will be limited to pedestrian use, and authorized maintenance/service
vehicles. The corridor in these locations shall be surfaced with permeable
materials, such as decomposed granite. In order to allow shoreline restoration
activities, the Public Access Corridor should extend 200 feet inland from the
six foot contour.
(4) Rheem Creek Public Access Corridor. Along Rheem Creek, the
corridor should extend 100 feet northward from top of bank on the north side
of the creek. The trail will be limited to pedestrian use and authorized
61
NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
LAND USE ELEMENT
maintenance/service vehicles. Rheem Creek is controlled and maintained by
the Contra Costa County Flood Control District. (A maintenance road
currently exists along the south side of the creek.) The trail should provide a
pedestrian link from the plan area to the Bay Trail and the Parchester
residential area, east of the railroad tracks. The public access corridor and
pedestrian trail within the corridor shall be provided as part of the flood
control improvements required for Rheem Creek. The trail should connect
with the Bay Trail by passing under or over the railroad tracks. If such a
connection is deemed to be infeasible because of limitations for channel
improvements, this corridor shall be maintained solely as a riparian habitat.
Construction other than trails or facilities directly related to trails, such as
fencing, gates, signage, seating and informational kiosks, designed in
conformance with the Design Guidelines presented in Chapter 6 of this
document, shall not be permitted within the Public Access Corridor, except as
noted below:
• The public access corridor along the landfill site may have picnic
shelters, restroom facilities, self-guided interpretive centers, beach areas
pedestrian piers, roadways and bicycle and automobile parking areas
designed as part of an overall Master Plan for the site.
• The staging area at Goodrick Avenue and 'B" Street (realigned Freethy
Boulevard) may have bicycle and automobile parking areas, and
restroom facilities.
62
Chapter 5
CIRCULATION ELEMENT
This element of the Specific Plan identifies the framework for the vehicular
circulation system and establishes roadway standards for the plan area. The
planned Richmond Parkway (Route 93) will transverse the plan area and
require some reconfiguration of the existing roadway system. New local
roadways are included in the Specific Plan to provide access to development
areas established under the plan. Bicycle provisions are also identified.
Illustrative design sketches for roadways are shown in Figure 8. Additional
design guidelines for roadways are presented in Chapter 6. Pedestrian access is
discussed in Chapter 4, Land Use Element.
A. Circulation Policies
The overall circulation goal of the Specific Plan is to provide safe.and
convenient multi-modal access to and within the plan area. The planned
Richmond Parkway is critical to achieving this goal, as it will facilitate flow of
regional traffic through the area and provide improved regional access to
planned land uses in the Specific Plan area. The following policies are
intended to implement the goal of improved access:
1. Roadway System
Provide a safe network of secondary thoroughfare and collector streets,
connected to the planned Richmond Parkway, with enough capacity to
accommodate traffic from planned land uses.
2. Rail Service
Establish safe at-grade railroad crossings at roadways to maximize vehicle,
pedestrian and bicycle safety. Provide a grade-separated railroad crossing at
the planned Richmond Parkway (Route 93).
63
NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
CIRCULATION ELEMENT
3. Transit
Provide improved public transit service connecting the North Richmond
Shoreline Specific Plan area to the overall regional transit system.
4. Emergency Vehicle Access
Provide adequate emergency vehicle access to development areas.
5. I•icycles
a. Establish a bicycle circulation system to tie into the city's Bikeway Plan.
b. Provide public access to the waterfront via a bicycle pathway system.
(For pl.-..i policies and provisions for pedestrian systems, see Chapter 4.)
B. Existing Circulation
With San Pablo Bay immediately to the west, Point Pinole Regional Park to
the nort;I, and the Southern Pacific Railroad tracks.to the east, regional access
into th. plan area is limited to its southern boundary,,via Parr Boulevard and
Third Street. Segment 3 of the Richmond Parkway is completed south of Parr
Boulevard, providing a direct link to I-580. Currently all access to local roads
is from Parr Boulevard. Goodrick Avenue traverses the plan area north to
south from Parr Boulevard to north of Rheem Creek. It provides direct access
to industrial sites between Parr Boulevard and Freethy Boulevard. Its narrow
configuration and poor condition limit its function as the principal route
serving existing industrial development. Freethy Boulevard and Elmar Court
are new dead-end roadways serving a small undeveloped industrial subdivision.
These two roadways can only be accessed from Goodrick Avenue. The plan
area currently has substantial local truck traffic, as well as through commuter
traffic on Parr Boulevard.
C. Roadway Classifications and Standards
The circulation system proposed by the Specific Plan is shown in Figure 8, and
described below. Under the Specific Plan, the planned Richmond Parkway will
be the major regional route through the plan area, with Parr Boulevard serving
as a secondary regional access corridor for the surrounding area. A network of
new local roads will be constructed around the new Richmond Parkway.to Y
improve access to designated development areas. Goodrick Avenue will
64
MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
CIRCULATION ELEMENT
continue to function as the major north/south roadway feeding the local street
system.
1. Richmond Parkway (Route 93)
The planned Richmond Parkway, a project under construction by the City of
Richmond, will be the major thoroughfare in the plan area, bringing in most of
the regional traffic and providing access to the Specific Plan's local roadway
system. Although the Parkway has been completed south of Parr Boulevard, it
has not yet been constructed within the North Richmond Shoreline Specific
Plan area. Currently, regional traffic is funneled along Parr Boulevard. There
is a need to link the Parkway through the Specific Plan area to allow
regional/subregional traffic to bypass surrounding residential neighborhoods
which now suffer from large volumes of non-residential traffic, and to provide"
a connection between I-580 and I-80. Completion of this segment (Segment 4)
of the Parkway will make the plan area more accessible and increase its
development potential.
The Parkway is planned to be a six-lane, 45 mph expressway with a 12-foot
landscaped center median and landscaped right-of-way within a 130-foot right-
of-way. Access along the Parkway will be limited, with no curb cuts to
individual parcels permitted. Four lanes will be built initially, with one
additional lane added in each direction when warranted by the traffic volumes.
The Parkway intersections with Parr Boulevard and Goodrick Avenue are to
be signalized with turn lanes provided on the approaches to intersections. On
the Parkway at Parr Boulevard, the northbound approach will require two turn
lanes; one for left turns and one for right turns. The southbound Parkway
approach at Parr Boulevard will require one left turn lane. At Goodrick
Avenue, the Parkway will require three turn lanes, two for left turns and one
for right turns in either direction.
The Bay Trail is planned to be constructed on the Bay side of the Parkway,
within the 130-foot right-of-way.
a. Specific Plan Recommendations. It is recommended that, where the
Parkway adjoins the Public Access Corridor, the Bay Trail be separated from
the.roadway and be constructed within the Public Access Corridor, rather than
within the 130-foot Parkway right-of- way. Illustration 2 in Figure 8 shows the
recommended landscape design for the Richmond Parkway through the plan
area. Illustration 2 in Figure 8 also shows the relationship between the Bay
trail and the Parkway.
65
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MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
CIRCULATION ELEMENT
2. Parr Boulevard
a. Existing Conditions. This two-lane, east-west road connects I-80 in the
east, with the plan area via Road 20 to Garden Tract Road. The road serves
residential and industrial uses; pavement is average to poor; curbs, gutters and
sidewalks are intermittent. Average roadway width varies from about 20 to 40
feet, being narrowest in the Specific Plan area near Garden Tract Road.
b. Specific Plan Provisions. Parr Boulevard would function as the
secondary thoroughfare in the plan area. It is the only roadway traversing the
plan area, other than the Parkway, which provides access outside the plan area.
As the southern boundary of the plan area, it forms a distinct edge to the plan
area, and its intersection with the Parkway will be a major entryway.
Parr Boulevard is planned to be 44 feet wide, curb-to-curb, within a 60-foot
right-of-way. It would have two 16-foot travel lanes with a 12-foot continuous
two-way left turn lane. The proposed extension of Parr Boulevard north and
west of the landfill would be 24 feet curb-to-curb within a 48-foot right-of-way
(see Table 3). Illustration 1 in Figure 8 shows a cross-section of Parr
Boulevard with street tree planting and landscaping.
3. Local Collectors
The Specific Plan includes four local collector roadways, three of which are
new roadways. Illustration 1 in Figure 8 depicts the typical design standard for
the local collector streets. Goodrick Avenue is the only existing local roadway
which will remain intact under the Specific Plan.
a. Goodrick Avenue
(1) Existing Conditions. Goodrick Avenue intersects Parr Boulevard
just east of Third Street and extends northerly, serving a mixed industrial area.
The 18-foot roadway has pavement in poor condition, with narrow shoulders.
Goodrick provides access to Maas Avenue, Freethy Boulevard and Elmar
Court north of Parr Boulevard. Goodrick Avenue ends 1500 feet south of the
northern boundary of the Specific Plan area.
Y
69
NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
CIRCULATION ELEMENT
TABLE 3
ROADWAY DIMENSIONS'
ROADWAYS CURB-TO-CURB RIGHT-OF-
WIDTH(feet) WAY WIDTH
(feet)
Parr Boulevard, "A", "B" and "C" Streets, Goodrick 44 60
Avenue from Parr Boulevard to"A" Street
Goodrick Avenue (Bypass to "B" Street) 72 96
Goodrick Avenue (Bypass to"A" Street) 75 91
Goodrick Avenue ("B"Street to "B" Street) 34 60
Goodrick Avenue (North of North "B" Street) and 24 48
Landfill Roadway
Cul-de-sac Radius 38 N/A
' See Section J of this chapter for additional street development standards.
(2) Specific Plan Provisions. Goodrick Avenue will maintain its -
current alignment south of"B" Street (realigned Freethy Boulevard) and will
be upgraded as described below. North of"B" Street and to its terminus in the
Special Facilities District, Goodrick Avenue will be realigned 200 feet inland of
the six-foot contour. This will provide a substantial buffer against anticipated
sea level rise and a smoother transition between the hard edge of the roadway
and the shore. This shoreline transition zone, shown as the Public Access
Corridor in the Specific Plan, will also help to dissipate wave energy causing
erosion of the shoreline in this area.
As the only access into the area north of the Parkway, Goodrick Avenue will
function as a gateway into the Office/Industrial Flex designated area. The
Specific Plan calls for the Goodrick Avenue approach north of the Parkway to
be enhanced with a median and landscaping to reinforce the gateway image of
this intersection.
Y
'These roadway dimensions assume no on-street parking, and 100% buildout of the North
Richmond Shoreline Specific Plan area.
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MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
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_ The design and characteristics of Goodrick Avenue vary as it traverses a variety
of conditions in the plan area, as described below:
• 44 feet wide, curb-to-curb, within a 60-foot right-of-way from Parr
Boulevard to "A" Street, as illustrated in Illustration 1 in Figure 8.
• From "A" Street to the Richmond Parkway, a wider curb-to-curb
dimension of 75 feet within a 91-foot right-of-way is required to
accommodate the turn lanes from Goodrick to Parr.
• As the gateway into the Office/Industrial Flex area, Goodrick Avenue
north of Parr Boulevard would have a special landscape treatment,
shown in Illustration 3 of Figure 8. Here a 72-foot wide curb-to-curb
width is required within a 96-foot right-of-way from the Richmond
Parkway to "B" Street to create a gateway statement.
• 34 feet wide, curb-to-curb, within a 60-foot right-of-way between its
southern and northern intersections with "B" Street;
• 24 feet wide, curb-to-curb, within a 48-foot right-of-way north of the
northern intersection with "B" Street, as shown in Illustration 6 in
Figure 8.
b. "A" Street. "A" Street is proposed to intersect Goodrick Avenue
approximately 600 feet south of the Richmond Parkway. It will provide direct
access to parcels which will be adjacent to the Parkway. Since these parcels
will not be allowed access off the Parkway, "A" Street will be the only means of
ingress and egress. It will end in cul-de-sacs to the east and west of Goodrick
Avenue, extending 800 feet to the west and 1,800 feet to the east. "A" Street
is proposed to be 44 feet wide, curb-to-curb, within a 60-foot right-of-way.
C. "B" Street. "B" Street (realigned Freethy Boulevard) is proposed to
intersect Goodrick Avenue approximately 700 feet north of the Richmond
Parkway alignment. Since no direct access to individual parcels will be allowed
from the Parkway, the Specific Plan anticipates a consolidation of Freethy
Boulevard and Elmar Court into a single local access road parallel to the
Parkway. By providing a distinctive edge, this road will buffer the adjacent
shoreline from this development area. "B" Street will extend 1,700 feet west of
Goodrick and end in a cul-de-sac. East of Goodrick it will be aligned as a loop
road to serve this development area. It will curve easterly, northerly and
westerly before intersecting Goodrick at a Tee intersection approximately 2,700
feet north of the southerly intersection. This roadway is proposed to be 44
feet wide, curb-to-curb, within a 60-foot right-of-way.
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NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
CIRCULATION ELEMENT
d. "C" Street. "C" Street is proposed to intersect Parr Boulevard
approximately 700 feet west of the Richmond Parkway, extending 650 feet -
north of Parr Boulevard, then looping west and south to again intersect Parr
Boulevard 750 feet west of the easterly intersection, where it extends as a
public access road along the northern boundary of the landfill. "C" Street is
proposed to be 44 feet wide, curb-to-curb, within a 60-foot right-of-way up to
its western intersection with Parr Boulevard; from this intersection westward
the road would provide access through the Public Access Corridor to the
pedestrian pier at the northwestern end of the landfill and would include two
ten-foot travel lanes within a right-of-way of 24 feet.
D. Railroad Operations
Existing railroad operations and Specific Plan provisions are described below.
1. Existing Conditions
Railroad service is now considered to be a vital part of the industrial businesses
in Richmond, and will continue to be in the future. There are two railroad
lines in the Specific Plan area vicinity; the Southern Pacific Railroad borders
the Specific Plan area on the east, and the Atchison, Topeka and Santa Fe
Railroad lies further to the east, outside the Specific Plan area. There are
16 Amtrak and ten freight trains daily on the Southern Pacific line, and four
freight trains daily on the Santa Fe line. The city has conducted a Railroad
Operations Feasibility Study for the areas south of the Specific Plan area, in
the vicinity of the existing rail yards. None of the alternative rail alignments,
consolidating improvements, grade separations or grade crossing projects would
affect the Specific Plan area.
2. Specific Plan Provisions
Railroad grade separation is planned for the Richmond Parkway (Route 93) as
the Parkway crosses the Southern Pacific Railroad tracks on the plan area
eastern boundary. The at-grade emergency vehicle access proposed to extend
from "B" Street to Morton Avenue should be fenced and gated to restrict use
to emergency vehicles only. This is the only at-grade crossing proposed within
the Specific Plan area.
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MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
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E. Transit Service
1. Existing Conditions
Public transit is available in Richmond from AC Transit and Bay Area Rapid
Transit (BART). Currently, there is no service within the plan area. The
closest existing bus route is AC Transit Route.71 running along Rumrill
Boulevard, with a stop at the Richmond BART station. The proposed
Comprehensive Service Plan for AC Transit indicates that the Richmond
BART station will continue to be a transit center, providing connections to
many local lines. Bus transfer stations are located at the Hilltop Mall in
Richmond and Contra Costa Community College in San Pablo. These are
both interim facilities, with permanent facilities planned to be built within the
next five years. The Contra Costa Community College station would be a
time-transfer facility, which is managed so that transferring passengers would
not have to wait for buses. The Hilltop bus transfer station would not be a
time-transfer facility. Route 71 currently runs to both of these bus transfer
stations.
2. Specific Plan Provisions
Public transit should be expanded to serve the proposed development in the
Specific Plan area. Local AC Transit line 71 could provide service throughout
the day, extending north up Goodrick Avenue, and looping through the
Office/Industrial Flex District along "B" Street. Transit service could also run
along Goodrick Avenue south of the Parkway to Parr Boulevard and west on
Parr Boulevard to the Parkway. Bus stops would be located in compliance
with AC Transit standards, and generally would occur at major intersections,
including Goodrick and the Parkway, Parr Boulevard and Third, Parr
Boulevard and the Parkway, and at Goodrick and 'B" Street intersections.
Specific transit service routing, scheduling and stop locations would be
coordinated with AC Transit as the Specific Plan area develops. Chapter 7,
Implementation, contains recommended actions to improve transit service.
F. Bicycle Circulation
1. Existing Conditions
Throughout most of the Specific Plan area, there is currently no safe access for
bicycle riders. Most roadways are narrow with limited shoulders and no
sidewalks. There is frequent heavy truck traffic on the local roadways
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NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
CIRCULATION ELEMENT
associated with nearby industrial land uses and the landfill, and there are high
traffic volumes on Parr Boulevard, often moving at relatively high speeds.
2. Specific Plan Provisions
A bicycle path would be provided along the west side of Goodrick Avenue
between "B" Street and Parr Boulevard. This bikeway would continue south
across San Pablo Creek to the Wildcat Creek staging area, connecting to the
Third Street bicycle path planned for in the City of Richmond Bicycle Plan.
As shown in Figure 8, north of the Richmond Parkway the Goodrick Street
bicycle path would terminate at a staging area at "B" Street, just south of the
future park (e)dsting Rod and Gun Club). From this staging area the multi-use
(pedestrian and bicycle) path would traverse the public access corridor,
following "B" Street southwesterly and turning to join the Parkway and the Bay
Trail. A multi-use path would also be provided along the south bank of San
Pablo Creek between the Bay Trail at the Richmond Parkway and the West
Contra Costa County Landfill. The trail would continue along the northern
shore of the landfill, parallel and on the bayside of the proposed bayshore
roadway. Regional bicycle access into the plan area would be provided as part'
of the Bay Trail which would be constructed with Segment 4 of the Richmond
Parkway through the plan area. This multi-use path would connect south
across San Pablo Creek, and northeast across the Southern Pacific Railroad
tracks on the eastern edge of the plan area. The Bay Trail is intended to
provide a direct bicycle connection with the Parchester Village residential area
along the eastern edge of the Southern Pacific railroad tracks to Morton r
Avenue. An alternative means of bicycle connection would be the
recommended emergency vehicle access from "B" Street to Morton Avenue via
a gated, at-grade crossing over the Southern Pacific railroad tracks.
G. Projected Traffic Volumes
The roadway and circulation system developed for the Specific Plan is based in
part on the future traffic needs of the plan area. The local street system
established by the Specific Plan is designed to accommodate the traffic
projected for 100 percent buildout. Volumes along the Richmond Parkway,
Parr Boulevard and Goodrick Avenue will be within the roadway capacities
provided by the plan. However, the combination of turning movements and
through traffic at the Parkway intersections could lead to capacity problems.:at
these intersections. Level of service projections at Specific Plan buildout in
the year 2005 are shown in Table 4 for the planned Richmond Parkway, Parr..
Boulevard and Goodrick Avenue.
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MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
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Table 4
YEAR 2005
PROJECT AT 100% BUILDOUT2
INTERSECTION AM PEAK HOUR PM PEAK HOUR
Parkway/Goodrick F•"' F
Parkway/Parr D/35.3•'• D/39.9
Pan/Goodrick AA/A' CA/A
ParrfMird "A•• AA/A
• Unsignalized level of service: southbound left,southbound right/eastbound left
Unsignalized level of service: northbound left, northbound right/westbound left
Signalized level of service/average vehicle delay in seconds
'"'• Signalized level of service/no average delay given for LOS F operation
The level of service calculations are based on full buildout of the Specific Plan
in combination with projected cumulative traffic through volumes on the
Richmond Parkway. All intersections would operate within acceptable level of
service standards at both the A.M. and P.M. peak hours except the signalized
intersection of the Parkway and Goodrick Avenue. Traffic at this intersection
would experience an average delay beyond one minute during the AM. and
P.M. peak hours. This is due to the combination of turning movements and
through traffic volumes at this intersection. These projections are based on a
worst-case scenario, with all development building at the maximum allowable
floor area ratio. The Specific Plan would provide on-going monitoring of the
traffic volumes in the plan area to determine if actual development would
result in level of service F for the Richmond Parkway/Goodrick Avenue
intersection.
H. Transportation Demand Management (TDM) Techniques
As the Specific Plan area develops, traffic volumes both within and through the
plan area will increase. Increases in travel demand and the serious constraints
to roadway capacities have made it imperative to find solutions for reducing
future traffic congestion on the local roadway system. Transportation Demand
Management (TDM) techniques are measures implemented by private
Y'
2 Without mitigations. Intersection geometrics per DKS Associates, Traffic Forecasts and
Related Operations Studies for the Richmond Parkway.
75
NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
CIRCULATION ELEMENT
companies to reduce peak hour demands. Transportation System Management
(TSM) measures are coordinated efforts by private companies, transportation
agencies and local government agencies to reduce congestion on the roadway
system by increasing vehicular occupancy and transit usage. As a newly
developing area, these measures can be instituted as part of the development
process as projects are built within the plan area.
TDM mitigation actions are designed to reduce the number of vehicle trips,
shorten trip lengths, and change the timing of trips so that fewer people will
travel during the most congested parts of the day. They encourage expanding
the use of transit, carpools, vanpools, bicycling, and walking, with a focus on
the home-to-work commute. Also included are efforts to promote alternative
work hours. To the extent that such programs lower the number of vehicle
miles of travel, they also have environmental benefits such as reduced
automobile emissions and reduced gasoline consumption.
1. Specific Plan Provisions
The Specific Plan incorporates alternative mode transportation systems into its
circulation network. Bicycle and pedestrian access are provided throughout the
Specific Plan area and connect into a regional trail system serving adjacent
residential areas (see Figure 7). The trail system links directly to the
Parchester Village residential community immediately adjacent to the east of
the plan area. In addition, the Specific Plan calls for transit service to be
expanded to the plan area. '
New development will be required to develop TDM and TSM measures to
reduce trips and contribute to the City's TDM program. The City must report
annually to the Contra Costa Transportation Authority that they are complying
with the County's program to reduce single-occupancy vehicles and/or increase
alternate modes of travel. The City, if in compliance, receives funds under
Measure C for transportation-related projects.
I. Emergency Vehicle Access
Proposed locations of emergency vehicle access in the Specific Plan area are:.-
described
re:.described below. As the plan area develops, building placement, parking lot
design, and individual lot access must be aligned to accommodate emergency
access connections. Emergency vehicle access corridors should be a minimum .
of 20 feet in width.
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MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
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1. "B" Street cul-de-sac
An emergency vehicle access connection from the cul-de-sac would be
provided to the Richmond Parkway. This would be incorporated as part of the
public access path between the Parkway and business parking areas adjacent to
the cul-de-sac.
2. "B" Street north of Rheem Creek
An at-grade, gated railroad crossing would be provided to connect B Street
with Morton Avenue.
3. "B" Street to "A" Street
Emergency vehicle access would be provided to connect "B" Street with "A"
Street under the Parkway, east of Goodrick Avenue.
4. "A" Street cul-de-sac west of Goodrick
Emergency vehicle access would be provided in at least one location tq the
west of Goodrick Avenue, connecting "A" Street and Parr Boulevard.
5. "A" Street cul-de-sac east of Goodrick
Emergency vehicle access would be provided in at least one location east of
Radiant Avenue.
J. Street Development Standards
Table 3 and Figure 8 provide recommended Specific Plan roadway dimensions
and illustrate recommended roadway cross-sections. In addition, the following
development standards for the circulation system would be incorporated into
roadway designs:
1. Transition areas would be provided at each location where curb-to-curb
and right-of-way widths change. Roadways would change gradually from widths
with turn lanes to standard configurations.
2. Driveways would be spaced at least 150 feet apart. The number of
driveway entrances should be limited to the greatest extent possible. Adjacent
parcels should be served by a single driveway, if possible.
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NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
CIRCULATION ELEMENT
3. Long curb radii should be provided at intersections and driveways to
accommodate truck turn movements.
4. On-street parking should be prohibited on all streets in the Specific Plan
area to facilitate the flow of truck traffic and to maximize sight distances for
turn movements to and from driveways.
K. Roadway Phasing
I. Richmond Parkway
Development of the Specific Plan is dependent on the construction and
completion of the Richmond Parkway. Other roadway improvements in the
Specific Plan area should be phased in conjunction with the Parkway. The
status and phasing of the Richmond Parkway as of Spring 1991 in the Specific
Plan area is as follows:3
• Sections 2 and 3, from Castro Street to Parr Boulevard: two lanes have
been constructed with bridges over Wildcat and San Pablo Creeks; an
additional two lanes are expected to be completed in January 1994.
• Section 4, from Parr Boulevard to Giant Highway: An alignment has
been selected by the Richmond City Council to be open to public use
June 1995. No decision has been made yet as to whether the Southern
Pacific Railroad tracks will be crossed with an underpass or overpass.
• Section 5, from Giant Highway to San Pablo Avenue: grading has been
completed; to be opened August 1994.
2. Other Roadways.
Improvements to Parr Boulevard and Goodrick Avenue and the construction
of'B" Street west of Goodrick Avenue should be completed in conjunction
with Parkway improvements. The timing for construction of"A" and "C"
Streets and "B" Street east of Goodrick Avenue will depend in part upon the
sequence of development in the Specific Plan area. To encourage
development of the entire Specific Plan area in the near future, Parr
Boulevard and Goodrick Avenue should be fully constructed, then "A," "B" and
"C" Streets should be constructed as development proposals require. A
complete discussion of the roadway phasing implementation is contained in
Chapter 7, Implementation Element, of this plan.
3Source: Robert Kosche, Engineer, Bechtel Corporation
78
Chapter 6
DESIGN GUIDELINES
A. Introduction
The design guidelines described and illustrated in this chapter are
recommendations for site planning, building and open space relationships,
architecture and landscape design. They should be used as criteria for
preparing and/or reviewing development proposals, including expansions to
existing uses, within the plan area. These guidelines are intended to create an
integrated development pattern and theme while allowing design flexibility.
Design specifics are left up to individual architects, landscape architects and
developers, who are encouraged to design creative projects within these
general guidelines.
The plan area, partially developed for industrial use, is dominated by views of
San Pablo Bay, marshes along the shoreline, and long-distance views of the San
Francisco skyline, Golden Gate Bridge and Mt. Tamalpais. This juxtaposition
of natural and industrial landscapes offers an unusual design opportunity, and
is the basis for the design concepts promoted in these guidelines. In order to
meet the overall visual resource goal of the Specific Plan, new development in
the area should observe the following four design principles:
1. Site and building design should recognize and complement the unique
shoreline character of the area;
2. Site and building design should maximize visual and physical access to
the shoreline and natural areas, while respecting their integrity and
sensitivity.
3. Views of the marshlands, wetlands and bay should be ever-present from
the developed areas, and the focus of building and site design.
4. All site development should be contained within landscapes consistent in
character with the natural shoreline landscape.
Unlike the approach more common in suburban office/industrial parks, where
transitional landscapes of varying degrees of formality "screen" or "buffer"
development from surrounding areas, the approach in the North Richmond
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NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
DESIGN GUIDELINES
shoreline area is to strive for architectural and site design that treats buildings
as simple, attractive elements within the natural landscape. This approach
could be compared with that used in the Sea Ranch development on the north
coast of California, where buildings are contained within the natural landscape
and designed to have minimum impact on the environment.
Typical landscape design concepts that screen and separate buildings from the
natural landscape or extend development areas into the surrounding area
should be reversed. Planting design around buildings and developed areas
should recreate instead the*natural shoreline landscape. Site development such
as parking, storage, loading, and outdoor plazas or patios should be designed as
an integral part of the building. These activity areas should be either enclosed
within the building envelope or designed as "respectful guests" within the
natural landscape.
B. General Design Guidelines
The following seven design guidelines describe and illustrate concepts that
should be observed throughout the plan area, especially in the newly <
developing Office/Industrial Flex, Special Facilities and Light Industrial
districts. They are followed by guidelines for specific areas and design `
elements.
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80
MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
DESIGN GUIDELINES
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Guideline 1. Development should be sited and designed to maximize physical
and visual access to the Bay shore.
• Figure A. Office uses and private open space areas should be oriented
to take advantage of Bay views and other natural amenities.
• Figure B. Natural open space areas should be continuous through
development areas and should connect individual adjacent parcels with
the proposed trail network.
• Figure C. View corridors to the Bay along the Richmond Parkway
should be maintained. Buildings adjacent to the Parkway should have
simple facade treatments fronting to the Parkway.
81
NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
DESIGN GUIDELINES
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Guideline 2. The environmental setting of the Bay shore and its environs
should be respected and where appropriate enhanced.
• Figure A. Continuous open space surrounds the building envelope,
breached only by a boardwalk to the shoreline access trail. Parking,
service and refuse are all located away from the Bay. Parking is
configured in small areas, screened from the shoreline, public access and
roadway views.
• Figure B. Enhanced freshwater marsh adjacent to the Rheem Creek
riparian zone.
82
MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
DESIGN GUIDELINES
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Guideline 3. Building forms, materials and details should express a unique
response to the environment and proposed land uses, as shown in these
examples of office and industrial buildings at the shoreline.
• Figure A. This building incorporates existing industrial components with
brick, corrugated steel siding and vertical wood siding.
• Figure B. Large scale "warehouse" building includes pedestrian details
such as sandblasted concrete paving, planters and bollards. Building
materials include wood siding, exposed trusses, concrete and glass.
• Figures C and D. This complex of buildings uses similar forms and
details as unifying elements. The roof forms and flattened arch element
combine with architectural steel, industrial hardware, lighting and
exposed steel trusses.
• Figures E and F. The deck element, pipe railing, bollards, wood siding
and glass are common elements in these two different shoreline projects.
83
NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
DESIGN GUIDELINES
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Guideline 4. Variety in parcel size and building form should be encouraged
in a framework that establishes continuity and a cohesive development
pattern.
• Figure A. Parcel #1 with Bay frontage shares parking, access and open
space. The buildings are big but fenestration breaks up long facades,
provides interest and human scale.
Parcels #2, #3, and #4 have smaller, individual buildings which provide
variety and interest. Common open space connects these parcels with
each other and helps promote the ideal of "buildings in the landscape"..
All parcels are linked to the public access corridor.
84
MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
DESIGN GUIDELINES
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Guideline 5. Building masses are to be simple in form and of strong
geometry. Signage and other attachments should be designed as part of the
building.
• Figure A. Simple building forms are repeated creating a bold
streetscape.
• Figure B. Simple facades utilize different forms and similar materials to
create a diverse and interesting streetscape,
• Figures C and D. Massive, undifferentiated facades, poorly designed
signage, and dominance of parking areas result in uninteresting and
monotonous views from streets.
85
NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
DESIGN GUIDELINES
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Guideline 6. Trails and public access corridors should be clearly delineated.
Public access should be prohibited at sensitive habitat areas.
• Figure A. Public access provisions, such as signage, observation area
and bike racks, should be sited adjacent to shoreline access path.
• Figure B. Pedestrian shoreline path within the public access corridor is
bordered with.concrete headers to provide delineation and protect
natural areas within it.
• Figure C. Pedestrian signage provides access information.
• Figure D. Fence details and signage to limit access to sensitive habitat..
areas.
86
MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
DESIGN GUIDELINES
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Guidelines 7. Design elements, such as landscaping, grading, lighting,
monument signage, hardscape and accessing structures should be coordinated
and used to create a cohesive image for the plan area compatible with the
shoreline setting.
• Figure A. This dumpster enclosure and light standard are of the same
character and built of the same materials as the adjacent building.
• Figure B. Hardscape, landscape, and signage are unified and convey a
sense of entry at the "gateway" intersection.
• Figure C. Berming and landscaping combine as an effective screen.
Berming should be used judiciously, with gradual and naturalistic
changes in grade. Abrupt changes in grade and artificially high berms
out of character with the low natural topography should be avoided.
• Figure D. Rustic bollards, anchor chain and wood bench are compatible
in a shoreline setting.
87
NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
DESIGN GUIDELINES
C. Guidelines for Specific Areas and Design Elements
1. Site Planning and Building Design
a. Lot Coverage. Building coverage and paved areas should be minimized
to the extent possible to reduce the potential for runoff into the adjacent
wetland areas. Building and paved areas should be sited in clusters to provide
adequate light and space between them.
b. View Corridors. Buildings should be sited in clusters to protect and
maximize view corridors to the Bay and shoreline.
C. Building Heights. Buildings and structures should be reviewed for their
compatibility with the shoreline and natural areas, and should not adversely
affect the air, light, or visual quality of these features. Buildings over one story
in height should be stepped back from the Public Access Corridor and Natural
Conservation areas in order to minimize the mass of the building and a sense
of encroachment into open space and natural areas.
d. Relationship to Streets. Fronts of buildings generally should be oriented
to the street. In those areas where a lot also has frontage adjacent to`a
natural conservation area, the building design should take advantage of this
setting, with an equal facade treatment, windows and other design features
which create an interaction with the natural setting. In those areas where a lot
also has frontage adjacent to the planned Richmond Parkway, the building
faces fronting the Parkway should be designed to be attractive from the
Parkway. Service areas should be screened from Parkway views, from streets,
from the Public Access Corridor, and from Natural Conservation areas.
e. Internal Open Space. On-site open space can be used as a unifying
element, especially in large parcel development. Open space should be
continuous through any one development and should logically connect
individual developments or parcels with other parcels and with the proposed
trail network. Location of open space areas should consider sun exposure,
wind protection and offer seating areas with opportunities to view adjacent
natural areas.
f. Parking Areas. Parking areas need not be located in one consolidated
area of a particular lot, but may be separated by landscaping and building
elements. Landscaped areas should be provided in and around parking areas.
Trees should be selected and located so that at least 25 percent of the public
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MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
DESIGN GUIDELINES
parking area is covered by tree canopy within 10 years. (See Chapter 4,
Section E, 3,e.4 for minimum tree planting requirements.)
g. Entry/gateways. Buildings at the entry points (Parr Boulevard and the
Parkway, Goodrick Avenue and the Parkway) should be oriented toward and
reinforce the gateway concept. These buildings will be highly visible and will
set the tone for future development in the area. Special landscape paving and
signage treatments should also be utilized to reinforce the gateway concept.
h. Construction and Materials. Building designs should be innovative and
reflect the unique shoreline environment. Typical industrial developments
utilizing concrete tilt-up buildings should be discouraged. Where tilt-up
construction is used, appropriate surface treatment should be required.
Facades of high 4uality, architectural-grade steel, masonry, corrugated iron and
concrete, relieved with reveals, moldings, and punched openings are
encouraged in the Office/ Industrial Flex and Light Industrial district. The use
of durable natural materials, such as sandblasted concrete, smooth stucco,
corrugated steel and unfinished masonry should be encouraged if designed to
fit the natural setting. Prefabricated metal buildings should not be permitted
unless an exception is made by the City and County design review boards based
on exceptional building detailing and site design.
2. Lighting
a. Site Lighting. All outdoor lighting should be directed down and
screened away from adjacent properties, streets and Natural Conservation
areas. Lights should not cause glare or excessive light spillage to adjacent sites.
Intensity should be no greater than is required for vehicle and pedestrian
safety. The standard heights of lights should be the minimum required to
efficiently light parking areas and building entries.
b. Accent Lighting. Exterior architectural and site lighting should be used
to highlight the facility's entrances and architectural and landscape features.
Up lighting should be concealed or otherwise positioned in such a manner that
the light source cannot be seen from any property line of the site on which the
light is located. Floodlighting or spot lighting of architecture, graphics, or
natural features should not create spillage of light onto adjacent properties.
C. Walkway Lighting. Standard, pole, bollard and wall-mounted fixtures
should be allowed. Pole and wall-mounted fixtures mounted above six feet (6)
should be of a down-light or cut-off type.
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NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
DESIGN GUIDELINES
d. Parking Area Li hting. Light standard heights should not exceed the
height of the roof line of the building(s) which the parking area serve(s).
Standards, poles and fixtures should be uniform in color and should be
compatible with the architecture and color of the building. All lighting fixtures
should be restricted to down-light or cut-off types. Law-pressure sodium
lighting or lighting of a similar color should not be used.
3. Landscape Design
Although landscape for individual site developments may vary in character,
materials and design, the natural shoreline landscape should be the unifying
design concept for the plan area.
a. Landscape design should respond to the natural conditions found near
the shoreline. The use of native grasses and other indigenous salt and
drought-tolerant plant materials is encouraged.
b. All landscape design should be designed to minimize impacts on natural
conservation areas.
C. A limited palette of major plant species can effectively create a strong,
clear image of the Specific Plan area. Plant species should be visually
compatible with shoreline conditions. Native species or those adapted to the
climate and region are preferred.
d. All landscape design should conform to the City of Richmond's Urban
Forest Management/Master Plan and Landscape Design and Development
Guidelines and County Ordinance No. 90-59 (Water Conservation Landscaping
in New Developments).
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90
MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
DESIGN GUIDELINES
e. Use of natural paving materials, textures and colors can enhance the
character of pedestrian areas and relate them to the natural setting. Porous
paving materials, such as stabilized decomposed granite, should be used where
appropriate to reduce the amount of surface runoff and to reduce
concentration of runoff.
f. Maintenance programs should be developed for landscaped areas that
recognize the special nature of the area. Use of.fertilizers, herbicides and
pesticides should be limited.
g. Irrigation. Low water use plant materials and well-controlled irrigation
systems should be used to limit freshwater runoff to natural conservation areas,
especially marshlands. Automatic irrigation systems should be installed in all
landscaped areas. The irrigation systems should be designed to minimize
overspray into natural conservation areas.
h. Individual landscape plans should be compatible with and reinforce the
Streetscape Plan as shown in Figure 9 and Table 5.
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NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
DESIGN GUIDELINES
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4. Roadways
The Streetscape Plan shown in Figure 9 identifies streetscape concepts
associated with roadways in the Specific Plan. The Circulation Plan (Figure 8)
identifies the hierarchy of roadways within the plan area.
a. Goodrick Avenue. The streetscape on Goodrick Avenue should reflect
that of a contemporary boulevard serving research and development and office
uses. Between Parr Boulevard and the Richmond Parkway, a single species of
street tree such as sycamore or alder, planted at a consistent 30-foot interval
along its length will establish this as the main boulevard serving the area.
Trees should be coordinated with street lighting to create a simple repetitive
pattern. Tree type should be tall and have a branching pattern to
accommodate an eight-foot clear space for pedestrians. North of the Parkway
this theme continues in the "gateway" but changes north of"B" Street, where .
Bay views are most prominent. Trees in this area are planted in groves at
92
MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
DESIGN GUIDELINES
V
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intersections only, and Goodrick is left open for Bay views with shrub and
grass plantings in the right-of-way. Species should be compatible with
shoreline landscapes, and could include willows and myoporum. Trees should
be planted in planting strips between curb and sidewalk. Shrub and
groundcover planting in these strips should be drought tolerant
b. Richmond Parkway. The planned Richmond Parkway will have
substantial landscape within its right-of-way. (Suggested plantings are
compatible with recommendations of the City's Richmond Parkway Visual
Design Guidelines for Section 4 of the Parkway, with the sycamore and
Lombardy poplar as signature trees. Parcels adjacent to the Parkway should
develop landscape plans to complement and reinforce Parkway concepts. The
planting concept for the Parkway edges includes a double row of tall screen
trees (i.e., Lombardy Poplar) along the entire southern and most of the
northern sections of the Parkway. One area, designated as a view corridor, will
be planted only with low shrubs and groundcovers to provide views of the Bay.
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NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
DESIGN GUIDELINES
Table 5 '
Streetscape Plan
Landscape Treatments
Symbol Location Treatment Plant Type Suggested
Species
On both sides Parkway Upright,vertical Double row of
.� of Parkway, plantings screen trees Lombardy
except at view poplars
corridors
On both sides Boulevard Large, Sycamore
of Parr street trees broadleaf
Q(0 Boulevard, evergreen or
A Street, and deciduous
Goodrick canopy trees
On north side Entry planting Same as Red maple or
of intersection Boulevard Chinese flame
of Goodrick Street tree, tree
Avenue and supplemented
Richmond with flowering
Parkway accent trees and
groundcover
On inland side Intersection Broadleaf Alders
of streetplantings deciduous grove
intersections trees
north of
Parkway
On both sides Street plantings Shrubs and Willows,
of streets north groundcovcrs, myoporum,
c::t7 of Parkway compatible with rhus,Sydney
natural golden wattle,
shoreline rockrose
vegetation
On both sides Riparian Native or Willow,
of Rheem plantings adapted riparian buckeye,
Creek area trees and hazelnut,
shrubs coffeeberry,
plus understory
On landfill site Shoreline Compact groves Lombardy
plantings of tall poplars, -
windbreak trees Monterey
cypress and
pines
94
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MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
DESIGN GUIDELINES
C. Secondary Streets C'X,"B",and "C"). The proposed second-tier streets
should have an informal streetscape. The objective is to retain open views
from these streets and create a streetscape compatible with the natural
shoreline.
d. Landfill Plantinias. When viewed from Point Pinole Regional Shoreline
Park, the plan area forms a continuous landscape unit, with the bay as a flat
foreground plane, the shoreline as a sweeping distinct edge, and the upland
areas as a less distinct low background, interrupted by clustered tree plantings.
The landfill site is the terminal focal point of these views. In addition to
providing windbreaks and shelter, landscaping of the landfill site should
maintain the open character and the sweeping shoreline edge of this landscape
unit. The long-term use and look of the area should be similar to Point Pinole
Regional Shoreline Park. To achieve this look, compact groves of poplars,
Monterey cypress or pine species should be planted on the northern and
western slopes of the landfill. The selected species should be approved for use
over the "cap" of the closed landfill, and the cap designed at a depth sufficient
to accommodate large tree plantings. These trees should be planted as part of
the closure plan, so that when the area reverts to open space, the trees will be
mature, providing windbreaks and visual continuity with Point Pinole.
e. Gateway Plantine. The introduction of the Richmond Parkway will
create two distinct opportunities for "gateway" treatments. Where the Parkway
crosses the San Pablo Creek Bridge, northbound views to the Bay should be
framed and maintained. This is also the first impression of the Specific Plan
area for motorists from the south. The gateway should be emphasized with
planting, signage and special paving treatments. Another gateway opportunity
in the area is the intersection of Goodrick Avenue and the Richmond Parkway.
A signalized intersection will provide increased visibility of the area from this
location. The planting should be consistent with that along the Parkway, but
further strengthened to incorporate the Goodrick "boulevard" planting theme.
The gateway to the north should be emphasized with monument signage and
special paving.
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NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
DESIGN GUIDELINES
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S. Public Access
Public access to the shoreline occurs within the Public Access Corridor, and in
Parks and Open Space areas connected to the Public Access Corridor. The
Bay Trail also provides public access to the shoreline and to other parts of the
plan area. It is proposed as a 12-foot wide hard surface trail separated from
the Richmond Parkway roadway with a planting strip. Figure 7, Public Access
and Trails, shows the proposed trail locations and public access opportunities
recommended by the Specific Plan.
In addition to the required development standards for public access trails in
Chapter 4 of this plan, the following design guidelines are recommended:
a. Stabilized decomposed granite surfaces, or other porous paving material,
should be used wherever appropriate to minimize surface water runoff. The
trails and paths can be separated from natural vegetation with a continuous.
98
MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
DESIGN GUIDELINES
concrete header which will also decrease maintenance of the path, and provide
guidance for wheelchair users and the blind.
b. Sidewalks. On roadways adjacent to the Public Access Corridor,
sidewalks should be located only on the side of the roadway where
development will occur. The side of the roadway adjacent to the Public Access
Corridor should be separated from the public access path or trail by a
landscaped area and curb.
C. Public Access Design Elements. Design elements in public access areas
such as benches, information kiosks and bicycle racks should be minimal and
simply designed, consistent with the natural shoreline and historic bay land
environment. Natural materials should be used wherever possible, and the
range of design elements should be limited.
d. Handicapped Access. All public access facilities, including but not
limited to telephones, paths, trails, restrooms, drinking fountains, parking,
gates, signing and seating, should be designed to be accessible to people with
mobility handicaps and safe for use by people with visual handicaps. All
features of every plan containing public access facilities should be reviewed to
ensure that the intended accessibility and safety have in fact been provided for.
99
Chapter 7
IMPLEMENTATION ELEMENT
A. Introduction
The Specific Plan will be implemented through a combination of public and
private actions and investments. This element identifies the regulatory,
financial, development and conservation measures necessary to achieve the
Specific Plan. There are six parts to this Implementation Element.
• Actions required for adoption of the North Richmond Shoreline Specific
Plan
• Relationship of the Specific Plan to CEQA
• Development review and approval process
• Infrastructure improvements
• Hazardous waste remediation
• Natural conservation implementation actions
B. Actions Required for Adoption of the
North Richmond Shoreline Specific Plan
The City of Richmond and Contra Costa County must take the following
actions prior to adoption of the North Richmond Shoreline Specific Plan:
• Certify the North Richmond Shoreline Specific Plan EIR.
• Amend City of Richmond General Plan and adopt rezoning as
necessary.
• Amend Contra Costa County General Plan and adopt rezoning as
necessary
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NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
IMPLEMENTATION ELEMENT
1. Required Changes to the City of Richmond General Plan
The Specific Plan would amend and implement the City of Richmond General
Plan and the Richmond Coastline Plan for the designated Specific Plan area
within the Richmond city limits.
a. For the Specific Plan to be consistent with the City of Richmond
General Plan, amendments to the General Plan and Coastline Plan maps are
required as follows:
• Change the circulation pattern to reflect the circulation pattern of the
Specific Plan, including the Richmond Parkway alignment;
• Identify on the General Plan Map the Rod and Gun Club parcel as
Parks and Open Space and Natural Conservation;
• Adopt the Natural Conservation and Public Access Corridor
designations shown on the Specific Plan Land Use Map;
• Change the lands southeast of the Richmond Parkway alignment from
Special Industry to General Industrial designation consistent with the
Specific Plan's Heavy Industrial category;
Change the lands west of the Parkway and north of Parr Boulevard from
General Industrial to Special Industrial designation consistent with the
Specific Plan's Light Industrial category;
• Change the lands north of the planned.Parkway designated for
Agriculture to Special Industry designation consistent with the Specific
Plan's Office/Industrial Flex category;
• Change the Coastline Plan map to reflect the changes outlined above
for the General Plan Land Use map;
• Change Plate 5 of the Coastline Plan to identify the Rod and Gun
parcel as Parks and Open Space and Natural Conservation; and
• Change the Plate 13 of the Coastline Plan to reflect the new trail
alignments and public access corridors.
b. The General Plan Open Space & Conservation Element should be
amended to reflect the Natural Conservation and Public Access Corridor
designations on the Specific Plan Land Use Map.
C. Map 5 of the Safety Element has not been updated to reflect flood
control improvements in the area. The areas of flood hazard would be further -_
revised when Plan-recommended improvements are made to the Rheem Creek
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MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
IMPLEMENTATION ELEMENT
flood channel. Map 5 of the Safety Element should be changed to reflect
current and future flood hazard conditions.
2. Relationship to the City of Richmond's Draft Zoning Ordinance
The City of Richmond is anticipating adopting the Draft Zoning Ordinance
prior to adoption of the Specific Plan. Most of the land use designations and
development standards proposed by the Specific Plan are consistent with the
zoning categories and requirements of the City's proposed Draft Zoning
Ordinance. There are some land use designations, however, which are not now
included in the Draft Zoning Ordinance. These include the Special Facilities,
Class I waste disposal site, Natural Conservation, and Public Access Corridor
land use designations. Regulations and provisions of the most applicable
zoning district would apply to areas designated for these land uses, subject to
determination by the Planning Director. Table 6 shows the relationship
between Specific Plan land use designations and the most applicable City and
County zoning districts.
The North Richmond Specific Plan is intended to supersede the existing
zoning code within the designated areas of the plan. The Specific Plan,
however, does not cover the entire range of issues addressed by the City's
ti zoning and subdivision ordinances and the building code. For uses, standards,
regulations, or procedures not expressly addressed by the Specific Plan, the
provisions of all other City regulatory ordinances remain in effect.
Lands within the plan area would have to be rezoned to be consistent with the
land use designations shown on the Specific Plan Land Use Map. The most
applicable zoning districts are shown in Table 6.
3. Required Changes to the Contra Costa County General Plan
Contra Costa County adopted a new General Plan in January 1991. The land
use map designates the unincorporated area of the Specific Plan for Open
Space and Light Industrial uses. A small area is also designated for Heavy
Industrial uses at the northwest corner of Radiant Avenue and Parr Boulevard.
The County will process a General Plan Amendment concurrent with the
Specific Plan to ensure consistency. The County's General Plan should be
amended in the following ways for the Specific Plan to be consistent with the
County plan:
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NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
IMPLEMENTATION ELEMENT
Table 6
Applicable Zoning Districts.
Specific Plan Land Draft City Zoning County Zoning
Use Designation Ordinance Ordinance
Heavy Industrial Section 15.04.330 Chapter 84-66
M-3: Heavy Industrial Planned Unit District
Light Industrial Section 15.04.320 Chapter 84-66
M-2: light Industrial Planned Unit District
Office/Industrial Flex Section 15.04.310 Chapter 84-66
M-1: Research and Development Planned Unit District
District
Special Facilities Section 15.04.310 Chapter 84-66
M-1: Research and Development Planned Unit District
District
and
Section 15.04.5 10
HR: Hazardous Resource
District (Overlay)
Parks and Open Space Section 15.04.420 Chapter 84-66
CRR: Community and Planned Unit District
Regional Recreational -
District
Natural Conservation Section 15.04.420 Chapter 84-66
CRR: Community and Planned Unit District
Regional Recreational
District
and
SFD: Special Feature
District (Overlay)
Class I Waste Disposal Site Section 15.04.330 Section 84-66
M-3: Heavy Industrial District Planned Unit District
and and
Section 15.04.820.020 Section 84-63
Hazardous Materials Land Use Permits for Development
Projects Involving Hazardous Waste
or Hazardous Material
Public Access Corridor Section 15.04.420 Chapter 84-66
CRR: Community and Regional Planned Unit District.
District
and
SFO: Special Feature District
(Overlay)
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MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
IMPLEMENTATION ELEMENT
• Change the circulation pattern to reflect the street and trail alignments
of the Specific Plan circulation system;
• Change the land use designation southeast of the Richmond Parkway
alignment from Light Industrial to Heavy Industrial;
• Change the Open Space designations where appropriate to Light
Industrial; and
• Extend the urban limit line shown in the General Plan to include
Specific Plan areas designated for Heavy Industrial, Light Industrial,
Office/Industrial Flex and Special Facilities.
4. Relationship to the Contra Costa County Zoning Ordinance
As shown in Table 6, the Planned Unit District (Chapter 84-66 of the Contra
Costa County Zoning Ordinance) shall apply to all Specific Plan areas within
the County. The Planned Unit District requires development review of all
applications within the district.
5. Relationship of the Specific Plan to the California Environmental
Quality Act
A program Environmental Impact Report has been prepared for the North
Richmond Shoreline Area Specific Plan which assesses the impacts of the Plan.
The program EIR must be certified by the City's Environmental Assessment
Panel prior to adoption of the Specific Plan. Individual future projects within
the prescribed intensity and/or location of development as assessed in the
program EIR need to address only the site-specific impacts of the project
identified in the initial environmental review. If issues raised in the
environmental review of a project were not considered as part of the program
EIR, a project EIR may be required. All general impacts already addressed in
the program EIR need not be included in the project EIR.
For projects located entirely within the City's jurisdiction of the Specific Plan
area, the City of Richmond shall be the lead agency for CEQA review. For
projects located entirely in the unincorporated portion of the Specific Plan
area, Contra Costa County shall be the lead agency. The East Bay Regional
Park District may also take the lead agency role on District projects within
either jurisdiction.
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NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
IMPLEMENTATION ELEMENT
6. Procedures for Amending the North Richmond Shoreline Specific Plan -
Requests to amend the Plan may be made at any time to the City or County
for lands within their respective jurisdictions. All amendments shall be
mutually referred between the City and County for review and comment.
C. Development Review and Approval Process
I. Standards
The development standards set forth in Chapter 4, Land Use shall be adopted
by resolution and shall apply to all new development, substantial rehabilitation,
construction or additions to existing buildings within the Specific Plan area.
For the purposes of this plan, "development" includes the physical placement
or erection of any building or structure. "Substantial rehabilitation" includes
exterior changes to a building or its site, such as modernization, remodeling,
alteration, landscaping, or other physical change to existing structures or the
site.
2. Design Review Process
All development proposals and substantial rehabilitation projects within the
Specific Plan area shall be subject to Design Review. Design Review ensures
that development proposals are visually and physically integrated with one
another and with the natural surroundings of the Specific Plan area.
Prior to submitting a development application, project applicants shall meet
with a representative of the City's Planning Department or the County's
Community Development Department, and the County Redevelopment
Agency to discuss project concept plans and the permit application process. At
this time, City or County representatives shall inform the applicant as to what
information must be included, as well as whether supplemental information will
be required on the development application. Critical environmental and/or
development issues, if any, will be identified at this time.
The compatibility between the proposed project and the overall concepts and
spirit of the Specific Plan shall be considered when evaluating each
development proposal. The project will be reviewed for consistency with
Specific Plan provisions, including the Design Guidelines in Chapter 6.
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MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
IMPLEMENTATION ELEMENT
As part of the Design Review process, the seam between two adjacent projects
should be carefully considered. This is especially important because the
landscape and streetscape improvements will be implemented by private
developers. In order to ensure a consistent landscape and streetscape
throughout the Specific Plan area, each developer's designs should adhere to
the standards and guidelines set forth in Chapters 4 and 6 of the Plan.
3. Conditions of Approval
Conditions of approval may be used for the following purposes in the North
Richmond Shoreline Specific Plan area to:
• Secure public access to the shoreline and dedication of conservation
easements or other property interest for the purpose of protecting
sensitive wildlife in Natural Conservation areas of the Specific Plan;
• Implement the design guidelines established in this pian for landscaping,
streetscaping and trail development;
• Require hazardous waste remediation where applicable;
• Secure infrastructure financing and construction arrangements,(such as
agreement to enter into an assessment district or some other financing
mechanism or provision of development fees);
• Install utilities, streets, and streetscape improvements located between
the curb and the property line;
• Require improvements necessary to mitigate a proposed project's share
of significant and/or cumulative environmental impacts that may occur
both on- and off-site (e.g., for traffic, drainage, water or sewer).
In cases where the streetscape improvements extend beyond the existing
property line, dedication of right-of-way may be required. In these cases,
following installation of the streetscape improvements, the developer is
required to dedicate the property between the existing property line and the
new property line to the City of Richmond for properties in the City's limits;
or to Contra Costa County for properties in the unincorporated area of the
Specific Plan.
As conditions of approval involving properties adjacent to the Natural
Conservation designation, the City and County shall:
• Require public access easements in the Public Access Corridor, as
identified in the Specific Plan.
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NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
IMPLEMENTATION ELEMENT
• Obtain dedication of conservation or public access easements or
irrevocable offers to dedicate such easements, to public agencies or non-
profit organizations for private land which is within the Natural
Conservation district or Public Access Corridor.
D. Employment Development Programs
One of the three main policies of the Specific Plan is to encourage
development which will provide increased job opportunities, primarily for
residents in the surrounding area. Programs are identified below which can
make employment opportunities accessible and maximize the public benefits
accruing to local residents. These employment assistance programs would be
undertaken by the City of Richmond or Contra Costa County.
I. Hire Richmond Program
The Hire Richmond Program would encourage employers located in the area
to seek out and identify Richmond residents, particularly minorities and
women, for employment opportunities. The program would give Richmond
residents preferential access to jobs at all skill levels. The City should
encourage employers locating in the Specific Plan area to outline recruitment
policies, and to utilize the services of organizations such as the Richmond
Private Industry Council (PIC).
2. First Source Program
Under the First Source Program, the City would encourage employers in the
project area to provide entry-level jobs to high unemployment groups in
Richmond. Under the program, employers would use local training and
recruitment agencies, as the first source to fill entry-level openings. The City
would agree to provide job-ready candidates through existing agencies.
3. Initial Resource Policy
The County Initial Resource Policy would encourage employers in the
unincorporated part of the project area to seek out and identify prospective
employees as well as provide jobs for North Richmond residents. The County
would work through existing agencies to provide job-ready candidates.
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MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
IMPLEMENTATION ELEMENT
4. Apprentice Program
The City of Richmond and Contra Costa County should work with the trade
unions, contractors, and other parties to develop and implement an effective
apprenticeship program. Especially during the construction period,
apprenticeship programs shall be utilized to give Richmond residents job
experience and training. Working with the labor unions and contractor
associations, the City and County should try to achieve a ratio of one (1)
apprentice to every three (3)journey workers.
5. Salary Stipend Program
Employers may be unable to train and employ marginally-skilled workers. To
provide an incentive to employ and train workers, a salary stipend program
might be utilized. Under the program, a portion of the first year's salary of
eligible workers hired and trained by firms locating in the project area, would
be paid for by the City or County. Resources for the program might come
from tax increment, revenues or other redevelopment project area funding
sources.
6. Referral Service
Resources should be dedicated to establishing an unemployment assistance and
referral service. Existing providers, such as the Richmond Private Industry
Council, might be utilized to provide this service. Referral services would
include assessment and testing, employee database and referral, employment
counseling, vocational training, pre-apprenticeship education and preparation,
job training, skill upgrading, and related activities.
7. Summer Intern Program
The City should work with employers locating in the Specific Plan area to
establish a Richmond summer intern program whereby Richmond residents
satisfying predetermined academic requirements (e.g. 2.00 grade point average)
would receive preference for summer employment positions.
8. Commercial and Small Business Participation
The proposed development will create significant commercial and business
opportunities. Entrepreneurism and small business should be developed and
marketed as an alternative to employment. Small business can provide
r meaningful employment and income for Richmond residents. The following
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NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
IMPLEMENTATION ELEMENT
potential programs could be utilized to provide business opportunities to
Richmond residents, particularly to minorities and women:
a. Minority Business Enterprises (MBE). To the maximum degree
possible, MBEs should be utilized for work to be performed in
connection with the planning and design for each land use during
the pre-construction phase. Priority should be given to qualified
local minority business enterprises.
b. Construction/Subcontracting Program. The City and County
could establish a construction/subcontracting program for MBEs,
particularly those owned by Richmond residents. As part of this
program, the City and County should explore providing bonding
assistance to qualified MBEs.
C. Business Resource Center. Many small and minority-owned
businesses lack sufficient business management experience.
Management and technical assistance should be provided to
maximize the potential for Richmond residents to take advantage
of small business opportunities generated by the project.`
Management assistance could include:
• Marketing and outreach
• "How to" courses and instructional materials
• Franchise database
• Financial, tax, and technical assistance
• Capital assistance (loan guarantees, below market rate
interest, etc.)
The Richmond Private Industry Council is broadening its
programs to facilitate the purchase of goods and services from
local business development, and could be utilized in this effort.
d. Local Business Vendor Program. The City should establish its
programs to facilitate the purchase of goods and services from
local business, particularly those owned by Richmond residents
and minorities. As example, the landscape, maintenance,
janitorial or security services might be provided by a local small
minority-owned business that would agree to hire and train local:
workers. -
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e. MBE Tenants Program. The City should establish a program
whereby MBEs (particularly those owned by Richmond residents).
would be given assistance to secure tenancies in the development.
The assistance should include, but not be limited to lease write-
downs of commercial space.
E. Richmond Enterprise Zone
The City of Richmond has established an Enterprise Zone in the central, south
and north parts of the City. The zone lies south of the North Richmond
Shoreline Plan area. The Enterprise Zone is an area within which the State of
California offers special tax incentives to businesses that purchase machinery or
hire new employees from targeted groups. The goal of an Enterprise Zone is
to create an environment that fosters business growth and expansion, the
product of which is new job opportunities. The State of California offers five
tax incentives to businesses within the zone. They are:
1. Hire credit for part of the wages paid to eligible new hires. Over a five-
year period, this could mean up to $20,000 per employee.
2. Sales and use tax credit for the full amount of sales and use tax paid on
specific machinery bought for use in the Enterprise Zone.
3. Business expense deduction for depreciable, tangible property.
Businesses in the Enterprise Zone can deduct up to $10,000 per item.
4. Net operating loss carryover to future years to reduce the amount of
taxable zone income.
5. Net interest deduction for lenders who make loans in the zone. Lenders
can deduct net interest income made on certain loans to businesses within the
Enterprise Zone.
In order to promote business growth and, in turn, create new jobs, the City
should apply to the State to extend the Enterprise Zone boundaries to include
the North Richmond Shoreline Plan area.
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F. Infrastructure Improvements
This section outlines the actions the city and the county will need to take to
provide the circulation and other infrastructure improvements for the North
Richmond Shoreline Area.
1. Infrastructure Master Plan
Successful implementation of the North Richmond Shoreline Infrastructure
Master Plan Specific Plan will require specific infrastructure improvements to
attract new private development and investment in the Specific Plan area. An
Infrastructure Master Plan should be prepared to provide detailed estimates of
the capital costs of the facilities improvements as well as estimates of ongoing
operation and maintenance costs to the jurisdictions affected, including the
East Bay Municipal Utilities District, the West Contra Costa Sanitary District,
the City of Richmond, Contra Costa County, and the West Contra Costa
County Flood Control District.
2. Required Capital Improvements
The infrastructure systems (roads, water delivery, sewer collection and storm
drainage) in the North Richmond Shoreline Area are generally not adequate `
to support the type and amount of development allowed under this Specific
Plan. Sewer and water systems are near capacity for the development that
presently exists in the area. The circulation system and parcel configuration in
some areas of the Specific Plan will require realignment of sewer, water and
drainage systems. Table 7 indicates the capital improvement needs in the
planning area and associated benefits that will affect either all property owners
or some individual property owners in the Specific Plan area.
a. Circulation. The planned Richmond Parkway is a key component to the
implementation of the Specific Plan. Construction of the Parkway is partly
funded through Measure C funds from the Contra Costa County
Transportation Authority. Additional funding is from Regional Measure 1, the
State Transportation Improvement Program (STIP), City redevelopment funds,
developer fees, and contributions from assessment districts and the private
sector.
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Table 7
CAPITAL IMPROVEMENT NEEDS IN THE PLAN AREA
AND ASSOCIATED PROPERTY OWNER BENEFITS
Type of Improvement Improvements That Benefit Improvements That Benefit
All Property Owners Individual Property Owners
Streets and Parking Widening of all existing • Extension of new
roads throughout the collectors into new and
Specific Plan area where existing parcels.
unaffected by the • Creation of driveways
Richmond Parkway and curb cuts.
alignment On-street parking where
allowed.
Water Distribution System Off-site water main All water main
expansion at Brookside, realignments in the
Giant Road and Parr Freethy/Elmar/Goodrick
Blvd. area.
• All water main extensions
from existing mains
following proposed local
collector alignments.
+ Sewer Collection System Expansion of sewer main • All sewer main
along Parr Blvd. relocations in the
Freethy/Elmar/Goodrick
area.
• All water main extensions
from existing mains that
follow proposed local
collector extension
alignments.
Storm Drainage Collection Installation of storm drain • All public storm drainage
System system to drain area into improvements that
city system or into connect private property
detention ponds for use in to-the storm drain system
wetlands
Shoreline/Wetland Restore shoreline/natural • All shoreline marsh
Restoration areas for regional restoration benefitting
ecological benefit properties adjacent to
natural conservation and
wetland areas with
natural amenities.
Source: Brady and Associates.
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The Parkway's alignment will preempt a portion of Freethy Boulevard at -
Goodrick Avenue and the intersection of Elmar Court at Freethy Boulevard.
This alignment will result in the reconfiguration of access to the Freethy
Industrial Park subdivision. Design and construction of"B" Street west of
Goodrick Avenue should be completed as part of the Parkway project.
The Parkway alignment will also create a triangular remnant parcel on the
Rhone-Poulenc property immediately north of the FMC property in the
southeastern corner of the Specific Plan area. Access to this parcel will be
provided from Goodrick Avenue. Design and construction of"A" Street
should be completed as part of the Richmond Parkway project.
The following actions are to be implemented as the plan area develops:
Action 1. Reservation of the appropriate rights-of-way shall be required as
parcels along each proposed new roadway are developed. The City and
County's subdivision review processes should assure that the rights-of-way of
"B", and "C" streets are reserved during review of tentative maps.
Action 2. The City should monitor increases in traffic volumes as development
of the Specific Plan area occurs and, when warranted, require that developers
install a signal at the Goodrick Avenuef'B" Street intersection.
Action 3. A comprehensive program of Transportation Demand Management
(TDM) and Transportation Systems Management (TSM) measures should be
jointly developed and adopted by the City of Richmond, Contra Costa County,
the West Contra Costa Transportation Advisory Committee, the Contra Costa
County Transportation Authority, AC Transit and the Metropolitan
Transportation Commission in conjunction with local employers. Such a
program should be composed of the following components:
1. Capacity-Building Measures. Low-cost capital improvements to increase
the capacity of the system such as:
• Synchronization of traffic signals
• Restrictions on driveway spacing
• Provision of off-street bus stops and turn-outs
• Selective truck routing
• Restriction of turning movements
• Signing and roadway marking revisions
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2. Trip Reduction Measures. Steps which decrease the quantity of traffic
generated by a given project, accomplished by reducing single and double
occupant vehicle use, such as:
• Enactment of ridesharing/carpooling/vanpooling incentive programs by
new development;
• Promotion of staggered work hours/flextime/compressed work week
• requirement that parking lots be designed with drop-off areas and
preferential parking stalls for carpools and vanpools;
• Construction of sidewalks, bike lanes and pedestrian walkways;
• Mandatory construction of showers and bicycle storage facilities; and
• Promotion of employer-paid transit subsidies.
Under the Measure C program, all projects in Contra Costa County large
enough to generate more than 100 vehicle trips in the peak hour are subject to
traffic impact analysis. If the proposed project would be inconsistent with
adopted level of service standards, the proposed project must implement
alternative commute programs, which can include the measures described
above.
3. Public Transit Provisions. Transit service and transit facilities, including
provision of passenger shelters within the Specific Plan, should be improved to
increase transit usage and reduce traffic. Transit operating or pass subsidies
should be considered to encourage transit ridership. Actions to improve public
transit include:
• Work with AC Transit to develop a plan to provide adequate transit
service to the plan area;
• Provide for bus pull-outs and shelters at bus stops to serve the area; and
• Coordinate the location of bus stops with public access provisions.
b. Water Supply. EBMUD has sufficient capacity.to serve the areal
There are no pumping stations in the Specific Plan area and none will be
required as a result of development allowed under the Plan. However, off-site
and on-site improvements to water mains to provide adequate source and
realignment of the distribution system, for maintenance, and to conform with
the revised street configuration of the Specific Plan will be required. Table 8
'Bill McGowan,Associate Civil Engineer,EBMUD, personal communication,June 14, 1991.
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describes existing water mains in the area. Recommended off-site and on-site
improvements are the following:
Off-Site Improvements:
• Water will be provided by the Sobrante Center facility in EI Sobrante
through a gravity system that leads to a 48-inch main at Brookside Drive
and Rumrill Road in San Pablo. The water main at Brookside Drive
will need to be expanded along Giant Road to Parr Boulevard where 12-
inch mains currently_exist.
• An 8-inch water main under Morton Avenue could be enlarged and
extended to serve the office/industrial flex space north of Rheem Creek
if service could not be extended from Goodrick Avenue.
On-Site Improvements:
• Upgrade 12-inch mains along Parr Boulevard and Goodrick Avenue.
• Upgrade and relocated 8-inch mains along Freethy Boulevard, Maas
Avenue, Elmar Court.
• Extend main past the Rod and Gun Club on Goodrick Avenue.
• Acquire water district easements along proposed new roadways, as
shown in the Circulation Element, and extend mains in conjunction with
roadway construction and property development.
C. Sewer Collection. Sewer collection and treatment for the planning area
is provided by West Contra Costa County Sanitary District. Table 8 describes
existing sewer mains in the area. The District indicates that no off-site
improvements would be required. As with water distribution/delivery mains,
sewer mains would need to be relocated in the area of Freethy Boulevard and
Elmar Court near Goodrick Avenue to follow the proposed alignment of the
local collector street in the Specific Plan area. . The 33-inch and 48-inch mains
under Parr Boulevard between Garden Tract and Goodrick Avenue and the
Santa Fe and Pacific Railroad tracks are capable of accommodating.future
growth, depending upon the actual uses that develop.2
2Mike Allendorfer, Senior Civil Engineer, West Contra Costa Sanitary District,:-June 19,1991.
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Table 8
EXISTING WATER AND SEWER MAINS
Water Date
Location Main Installed Sewer Main
s
Parr Blvd. between Garden Tract & 3rd 8" 1961 33"
Parr Blvd. between 3rd & Goodrick 12" 1955 33"
Parr Blvd. between Goodrick & SPRR 8" 1937 & 1952 24"
Goodrick Ave. between Parr Blvd & Maas 12" 1957 15"
Goodrick Ave. north of Maas/Freethy No main N/A No main
Freethy Blvd. 8" 1966 8"w/force
main to
Goodrick
main
Maas Avenue 8" 1957 8"
Elmar Court 8" 1982 8"
OFF=SI
Service to N. Richmond Shoreline Area 48" 1961 N/A
• would likely come from a 48" main at
Brookside Dr. & Rumrill Blvd.
Giant Road between Brookside Dr. & 12" 1951 N/A
Parr Blvd.
Morton Avenue (Parchester) 8" 1966 N/A
Collins Road 12" 1946 N/A
Source: EBMUD; WCCSD; Brady and Associates
N/A = Not applicable.
New sewer mains required for development in the planning area will likely
include:
• Upgrade the 15-inch main along Goodrick Avenue between Parr
Boulevard and B Street (realigned Freethy Boulevard) and the extension
north of B Street through the Rhone-Poulenc and Breuner properties.
• Relocation of the pump station and forced main north to the area of the
road intersection near the Rod and Gun Club, and relocation of gravity
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NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
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lines feeding the forced main to follow the Freethy Boulevard/Elmar
Court area along the routes described for the proposed new streets.
• Extension of sewer main north from Parr Boulevard along Radiant
Avenue to the Rhone-Poulenc General Industrial area southeast of the
Richmond Parkway.
• Extension of a main west from Goodrick Avenue to the General
Industrial Area south of the Richmond Parkway.
• Extension of a main north from Parr Boulevard to the Light Industrial
area adjacent to the San Pablo Marsh.
d. Storm Drain Facilities. The City of Richmond is responsible for
maintenance of storm drainage in the majority of the study area. Contra Costa
County is responsible for maintenance of storm drainage in the unincorporated
land immediately north of Parr Boulevard and west of the SPRR tracks.
Developers are responsible for any new facilities required as part of their
development.
Storm drainage lines are largely absent from the plan area. Lines are located
in the Parchester Village neighborhood, the largest of which is 36 inches. In
the majority of the study area, storm water runoff is currently collected in a
system of drainage ditches and creeks and discharged into the Bay.3 To
maintain water quality and avoid conflicts with the habitat value of the Specific
Plan area, the Specific Plan requires storm runoff to be centrally collected and
directed either to a wastewater treatment facility or detained on-site in
detention ponds that shall be drained to wetlands in the plan area. Future
storm drainage needs shall be assessed on a site-by-site basis and reviewed by
the Public Works Department with jurisdiction, with the goal to control and
adequately treat storm drainage.
The following storm drainage improvements are required in the Specific Plan
Area:
• Design the surface drainage system, including the drainage from streets
and parking lots, to capture all runoff less than that resulting from a
storm with a 10-year return period and to prevent it from flowing to the
tidal salt marsh or other wetlands in the North Richmond Shoreline
Area.
3Jay Ghandi, Assistant Engineer, City of Richmond, Department of Public Works,:personal z
communication,June 19, 1991.
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• Coordinate review of each new development with the City of Richmond
Department of Public Works to assure that businesses within the
Specific Plan area comply with the ongoing National Pollutant Discharge
Elimination System (NPDES) permitting process.
• Require best management practices for new and existing development,
including covering storage areas which hold potentially polluting
materials, berms to protect areas of potential contaminant spills, grease
and oil separators on storm drains, regular street sweeping programs,
and education of employees on water quality issues, as described in
Amendment to Section 12.18.050 of the Municipal Code.
Shoreline and wetland restoration implementation actions are described in
Section 7 of this chapter.
3. Infrastructure Financing Plan
The City and the County should develop an Infrastructure Financing Plan for
financing the facilities improvements identified in the Infrastructure Master
Plan. The following section recommends financing approaches and ,
arrangements appropriate for the Specific Plan. Responsibilities for financing
shall reflect the share of benefit a property receives from each type of capital
improvement.
Table 9 summarizes the recommended approaches for financing infrastructure
needed to implement the North Richmond Shoreline Specific Plan. The
summary characterizes the financing approaches and type of improvements by
construction phase (one to five years) and operations and maintenance period
(six plus years).
a. Local Roads. Construction of local roads could be financed through
development fees and, to some extent, through Richmond Parkway funding,
within the incorporated portion of the Specific Plan area. In the
unincorporated portion redevelopment property tax increments also could be
used to finance local road improvements. The County also intends to create or
expand the existing west county "area of benefit" fee area to address needed
road alignments.
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Table 9
FINANCING MECHANISMS FOR
CAPITAL IMPROVEMENTS, OPERATIONS AND MAINTENANCE
Type of Improvements Construction Operations and
Phase Financing Maintenance Financing
Local Roads Richmond Parkway County and City
funding; Development general fund
Fees;
Tax Increments
Water mains Public Facilities
Off-site Development Fees; EBMUD
On-Site Tax Increments
Sewer Mains Public Facilities WCCSD
Development Fees;
Tax Increments
Storm Drains Public Facilities CCFCD
Development Fees;
Tax Increments
Public Trails Public Facilities Landscaping and
Development Fees; Lighting District
Landscaping and (City and County)
Lighting
District/SCC
Landfill Open Space and Public Facilities Landscaping and ,
Recreation Facilities Development Fees Lighting District
(County)
Source: Brady and Associates
Legend:
City = City of Richmond
County = Contra Costa County
SCC = State Coastal Conservancy
EBMUD = East Bay Municipal Utilities District
WCCSD = West Contra Costa Sanitary District
CCFCD = Contra Costa County Flood Control District
b. Water Sunnly. Off-site water mains and other water supply facilities
should be financed with development fees. The Infrastructure Financing Plan
should examine whether these fees should be applied to all development across
the board (an approach that would require demonstration of a "nexus" under,.
AB 1600) or whether fee revenues should be collected through the negotiation.
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MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
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of property development agreements. In unincorporated areas, property tax
increments could also be used to fund water supply facilities.
Once construction of off-site water facilities is completed, EBMUD would take
over operations and maintenance responsibilities and water service charges
would be collected from individual.users.
C. Sewer. West Contra Costa Sanitary District requires that new sewer
systems be financed and built by developers of projects. Sewer facilities could
be financed through development fees. After construction of sewer facilities is
completed, WCCSD would take over operation and maintenance of the sewer
facilities, funded by service charges assessed sewer customers.
In the unincorporated portion of the Specific Plan area, in addition to
development fees, redevelopment tax increments could also be used to finance
sewer improvements in that portion of the area.
d. Storm Drains. Storm drain facilities would be financed and built by
developers of projects. The County Flood Control District maintains off-site
storm drainage facilities that connect to the area storm drainage system. In the
unincorporated portion of the Specific Plan area, in addition to development
fees, redevelopment tax increments could also be used to finance capital
improvements in that portion of the area.
e. Public Trails. A combination of developer-funded improvements,
development fees, property tax increments in the unincorporated area, and a
Landscaping and Lighting District or appropriate entity should be used for
financing trail improvements identified in this Specific Plan. Public trails would
be dedicated to the appropriate public agency. The Landscaping and Lighting
District would assume the role of operating and maintaining these trail
improvements in both the city and the county.
f. Landfill Open Space and Recreation Facilities. Once the landfill is
converted to open space and recreation uses,.open space and recreation
facilities would be financed by the landfill operators. When completed, the
operation and maintenance of these facilities would be financed through
extension of the Landscaping and Lighting District or appropriate entity used
to operate and maintain public trails facilities.
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G. Hazardous Waste Remediation
The North Richmond Shoreline Area has been historically a location of heavy
industrial manufacturing. There is evidence of varying degrees of soil,
groundwater and surface water contamination in the planning area.4 As of
late 1989 there are 12.identified_contamination sites in the North Richmond
Shoreline planning area needing hazardous waste remediation. These sites
require remediation efforts, and in four cases remediation efforts are already
under way.
The process of hazardous waste remediation is overseen by two state agencies,
the State Department of Toxic Substances Control (DTSC) and the Regional
Water Quality Control Board (RWQCB). DTSC administers the federal
Environmental Protection Agency's standards concerning the public health
effects of soil contamination, while RWQCB administers state water quality
standards for surface and groundwater. The lead responsibility for remediation
efforts is determined on a case-by-case basis and depends on at least three
factors:
• The proposed use of the land;
• The type(s) of hazardous waste contaminants involved on the site; and
• The relative need for continuous, ongoing monitoring of the site.
Remediation efforts and the rates at which they proceed affect the -
implementation of the North Richmond Shoreline Specific Plan since land
cannot be developed unless clean up of contaminated sites is successful.
Typically, clean up occurs as a requirement of new development or expansion
of an existing facility. Sometimes clean up can be required based on
complaints. Industries which are permitted for hazardous materials are
regularly inspected by regulatory agencies and required to meet the
appropriate standards.
The costs of successful remediation for contaminated parcels cannot be
estimated because of the complexity of factors involved in determining the
contaminants that actually exist, the methods of exhuming and disposing.of
them, or the method of sealing away the contamination (if feasible).
It is anticipated that remediation of existing hazardous materials and.toxic
contamination in the plan area will occur gradually, as development and
4 Brady and Associates, North Richmond Shoreline Area Specific Plan Existing Conditions
Analysis, November 1989, p. 105.
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MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
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redevelopment occurs. Costs of remediation will be borne primarily by the
responsible parties in the private sector. City and County responsibilities for
remediation will be primarily review of remediation actions.
H. Natural Conservation,-Shoreline Restoration and
Flood Protection Implementation Actions
There are a number of actions required to protect and restore natural
conservation areas with sensitive and highly valued habitats, to protect and
restore eroding shoreline areas, and to protect areas from coastal flooding.
General actions are described below in three categories, as follows:
1. Protection of Natural Conservation Areas
2. Shoreline restoration
3. Flood Protection
Within each general category, specific actions are also recommended for
certain areas. Prior to carrying out these actions, management plans that
provide detailed specifications should be prepared. Additional environmental
review may be required. Responsibilities for management plans will rest with
developers with property in affected areas; public agencies with interest or
jurisdiction and any trust or organization which undertakes conservation or
restoration activities in the area. Responsibilities for specific actions are listed
below.
Implementation Mechanisms. Many of the actions described below would be
implemented through conditions of approval placed on development. Other
actions are area-wide in nature and impact, and would be implemented through
an assessment district (a Shoreline Restoration Assessment District), formed
jointly by the City and the County, to fund the necessary capital improvements
for shoreline restoration and flood protection. The assessment district would
levy an assessment on Specific Plan landowners and developers to defray the
continuing operations and maintenance costs associated with these
improvements, as well as the initial construction of capital improvements.
Other financing approaches for restoration and enhancement projects are
discussed in Appendix C.
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1. Actions Recommended for Protection of Natural Conservation Areas
a. Habitat Clean-up and Monitorinp,
Goal: Remove debris and junk from Natural Conservation areas and monitor
regularly to discourage dumping_of_illegal fill and other activities which could
degrade habitat value.
This goal can be accomplished through the following specific actions:
Action: Enforcement of the City's Nuisance and Weed Abatement ordinance
and appropriate County ordinances.
Action: Annual cleanup campaigns conducted in conjunction with property
owners, environmental interest groups or other service organizations.
Action: Removal of garbage dumped at the end of Freethy Boulevard as part
of the Richmond Parkway project.
Action: Coordinate with property owners and special interest groupso such as
the Sierra Club, to organize monitoring activities.
Action: Provide educational signs and activities within the Public Access
Corridor to increase public awareness of the impact of hazardous materials on
habitats.
Responsibility: City and County.
b. Predator Control.
Goal: Limit predation which can disturb sensitive species and severely limit
their ability to successfully reproduce.
Action: Institute"a predator control program in conjunction with the State
Department of Fish and Game. Because there are endangered species which
utilize the type of habitat found in the plan area, predator control can augment
other enhancement measures in maintaining the area as a viable habitat for
endangered species.
Responsibility: City and County.
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C. Water Quii%.
Goal: Improve habitat value by controlling contamination to water caused by
urban runoff and toxic waste spoils found in the plan area.
Action: Control degradation caused by non-point source pollution by requiring
the following measures in all development:
• Covered storage areas which hold polluting materials.
• Berms to contain areas of potential contaminant spills.
• Grease and oil separators on storm drains.
• Regular street sweeping programs.
• Education of employees on water quality issues.
• Limit use of pesticides, herbicides and fertilizers in landscaped areas.
Responsibility: City and County should require as conditions of approval on all
development.
Action: Establish a water quality monitoring program to determine the existing
water quality in habitat areas and to monitor water quality on an annual basis.
Monitoring should be required by new development during the environmental
assessment process or as part of mitigation requirements.
Responsibility: City and County should require as conditions of approval on all
development.
d. Control Stormwater Runoff to Habitat Areas.
Goal: Control the discharge of fresh storm water runoff to salt marsh and
other wetland habitat areas.
Action: Require landscaping, building layout and infrastructure design to
mitigate the impact of increased impervious surface on local hydrology.
Require low water use landscaping with drip irrigation or well-controlled
sprinkler systems to limit freshwater runoff.
Action: Where sufficient space is available between the development and the
salt marsh, require a buffer zone of appropriate native vegetation to protect
the marsh from freshwater runoff. Where there is insufficient buffer space, or
where the tributary area would produce large runoff volumes, detention of
' runoff from storms up to the 10-year post-development storm should be
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NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
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required. This requirement should be coordinated with the Public Works
Department's storage requirements for discharge to the sanitary sewer system.
Action: Investigate oversized culverts with large catch basins and underground
storage, shallow surface ponds, pipes with tree plantings to evapotranspire the
water, and storage and treatment of.runoff for.use.in irrigation, industrial
processes, or other water reuse facilities for feasibility of use within the plan
area. Such measures can protect the marsh and aid new business with the
constraints of water shortage experienced during the past years of drought,
which could continue in the future.
Responsibility: City and County should require as conditions of approval for
all new development.
e. Restore Wildcat Marsh.
Goal: Restore the remnant of Wildcat Marsh that has been cut off from tidal
action (included within the Natural Conservation designation) to tidal influence
and recreate a natural marsh habitat.
Issues: The remnant marsh has subsided to elevations of approximately 2.1 to
2.5 feet NGVD,S approximately one foot lower than corresponding elevations
on adjacent Wildcat Marsh, due to periodic drying of the marsh soils. If
sedimentation rates in this protected area are sufficient, the marsh plain will
return to more natural elevations. If sedimentation rates are not adequate,
and the vegetation cannot adjust to full tidal inundation, control measures in
the levee will be necessary to dampen the tidal range.
Water quality concerns and possible toxic contamination of the site by runoff
and leachate from the landfill will require careful monitoring to determine
possible effects on this enhancement effort. Restoration of the marsh will
require coordination with Richmond Sanitary Services, the landfill operator, to
ensure that interim uses of the landfill site do not conflict with the future
restoration of the marsh. Use of this area for a sedimentation basin to control
silt in runoff from the landfill area or as a drying site for dredge spoils should
be analyzed in terms of the impacts on existing and future habitat value for the
SNGVD refers to the National Geodetic vertical datum, the standard fixed elevation datum r.
used in the United States. It was established in 1929, and corresponds approximately with.mean ..
sea level. Locally, NGVD is equivalent to t2.8 feet above mean lower low water (MLLW), the
datum used for regional tide tables and most sea floor mapping.
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MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
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area. Interim uses of the landfill site should be designed with the ultimate goal
of marsh restoration.
Action: Three options are available to restore the Wildcat Marsh remnant.
Option 1. The Wildcat.Marsh remnant could be restored to tidal
flooding relatively inexpensively. If this area were to be returned to tidal
flooding it would initially be at an elevation near the lowest distribution of
cord grass, but would probably function primarily as mudflat. Natural
sedimentation would eventually restore historic marsh plain elevations, but the
time frame for this type of restoration is likely to be in terms of decades rather
than years.
Option 2. Marsh restoration can be achieved more rapidly through the
use of dredge spoils to restore elevations. With this option a channel system
which maintains proper circulation in the newly created tidal marsh may be
required.
Option 3. Retain existing elevations and control tidal ranges. This
option would require a long-term maintenance and operating program and is
subject to periodic malfunctions.
Action: Prepare a detailed management plan for marsh and carry out
environmental review as needed.
Action: County should require the closure plan for the landfill to investigate
the use of dredge spoils and the need for a channel system, and require the
restoration of the Wildcat Marsh remnant as part of the closure plan.
Responsibility: City and County.
f. Restore Filled Portion of San Pablo Creek Marsh.
Goal: Remove fill from the inland edge of San Pablo Creek Marsh. San
Pablo Creek Marsh has been subject to incremental fill. Fill should be
removed and these areas allowed to revegetate naturally. However, prior to
removal of fill, an analysis should be done to the extent to which isolated fill
areas are used as refuges during periods of marsh inundation, as part of
environmental review. Mitigation for habitat removal should be required at a
minimum replacement ratio of three to one. Compliance actions should be
taken to require removal of illegal fill in this area.
127
NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
IMPLEMENTATION ELEMENT
Action: Where compliance actions are not sufficient to accomplish fill .
removal, seek public agency assistance with marsh restoration.
Action: Prepare a detailed management plan for marsh and carry out
environmental review as needed.
Responsibility: BCDC, U.S. Army Corps of Engineers, City and County.
g. Enhance Seasonal Wetlands.
Goal: Enhance seasonal wetlands south of Rheem Creek as a viable wetland
resource when development occurs on the surrounding Office/Industrial Flex
area.
Issue: Seasonal wetlands have a high habitat value for a variety of waterfowl
and shore birds. The primary opportunity for enhancement of seasonal
wetland habitat value is by preserving the wetland area south of Rheem Creek
identified by the preliminary wetland delineation prepared for the Richmond .
Parkway. This area is shown as Natural Conservation on the Specific Plan.
Action: Require development plans for adjacent property to include
preparation of a management plan for enhancement of this seasonal marsh.
The plan should be developed in consultation with the State Department of
Fish and Game, the U.S. Fish and Wildlife Service and appropriate regulatory
agencies. Enhancement may be achieved by diverting storm water runoff from
Rheem Creek to the wetland area, by excavating to reach groundwater sources
or by collecting surface runoff from the surrounding development in ponding
areas where sediments and pollutants are deposited before this runoff drains to
the wetland. The use of urban runoff as a water source will require
monitoring to minimize possible pollutant effects on wildlife.
h. Remove Fill and Restore Marsh. San Pablo Creek Marsh and North of
Rheem Creek.
Goal: Restore wetlands which have been filled.
Action: Prepare detailed management plans for marsh and carry out
environmental review as needed.
(1) In Natural Conservation areas where wetlands have been-filled
without permits, parties known to be responsible for such filling of wetlands,
will be required to remove fill or otherwise carry out wetland compensation
128
MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
IMPLEMENTATION ELEMENT
projects, subject to the requirements of the U.S. Army Corps of Engineers and
BCDC regulations.
Responsibility: U. S. Army Corps of Engineers and BCDC
(2) In Natural Conservation areas where wetlands have been filled or
disturbed in other ways, and there are no known responsible parties or the
filling or other disturbance predated wetland protection laws, wetlands
restoration management plans should be developed to restore wetland values.
The plans should be prepared in consultation with U.S. Army Corps of
Engineers, BCDC, State Department of Fish and Game and the U.S. Fish and
Wildlife Service.
Responsibility: The City and County, through the Shoreline Restoration
Assessment District, would be responsible for the program and should
coordinate program with interested organizations and agencies for wetland
restoration.
2. Actions Recommended for Shoreline Protection
a. Prohibit Net Loss of Wetlands and Limit Wetland Impacts.
Action: Permits will be issued for projects that would cause adverse impacts
on wetlands only where project design is consistent with explicit guidance from
the State Department of Fish and Game, the U.S. Fish and Wildlife Service,
U.S. Army Corps of Engineers, and B.C.D.C. As a condition of project
approval, any compensatory habitat restoration must be carried out in advance
of project construction.
Responsibility: City and County.
b. Investigate Armoring Shoreline.
Goal: Protect development from sea level rise and reduce erosion of the
shoreline.
Issue: The North Richmond shoreline is variable and dynamic; some areas are
expanding while others are eroding. An analysis of historic maps shows that
the eroding segments of shoreline have retreated approximately 100 to 300 feet
since the late 19th century, or an average rate of 1 to 3 feet per year. Two
factors could tend to push future shoreline erosion toward the upper end of
r this range: an accelerated rate of sea level rise and a reduction of sediment
129
NORTH RICHMOND SHORELINE SPECIFIC PLAN MAY 1992
IMPLEMENTATION ELEMENT
input to the Bay. Both result in increased wave energy at the shoreline. An
acceleration in the rate of sea level rise due to global warming is anticipated,
although its exact magnitude is not known. A reduction in the rate of
sediment inflow to San Francisco Bay began with the end of hydraulic mining
in 1884, and continued as a result of the construction of dams on most of the
rivers feeding sediment to the Bay. If.the shoreline erosion process continues
at an average rate of 3 feet per year, in 50 years the shoreline will be 150 feet
inland of its current position. For more explanation of the relationship
between sea level rise, sedimentation and marsh formation, see the Existing
Conditions Hydrology Report.
Shoreline protection policies must recognize the sensitive nature of shoreline
habitat. Rip-rap destroys mudflat habitat and should be discouraged as a
shoreline protection measure where it does not currently exist, unless no
alternative is feasible to prevent unacceptable wetland loss. On the other
hand, areas currently protected by riprap are contributing to the protection of
adjacent shoreline where marsh is aggrading.
C. Allow for Eastward Movement of Shoreline.
Action: As shown in Figures 6 and 8, relocate Goodrick Avenue north of
Rheem Creek inland to allow a wider marsh fringe which slopes more gradually
through a transition zone to an upland buffer, as shown on the Specific Plan
Land Use Map. The slope should ideally be 30 horizontal to 1 vertical, with a
minimum slope of 10 horizontal to 1 vertical. Such enhancement would allow
the shoreline to adjust more naturally to rising sea level, changes in
sedimentation rates and wave energy.
Responsibility: City and County should require this improvement as a
condition of approval of development in this area.
d. Retain Existing Shoreline Protection.
Action: Retain existing jetties to protect newly developing marshland.
Responsibility: Property owners should maintain the jetties.
130
MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
IMPLEMENTATION ELEMENT
3. Actions Recommended to Protect Area from Flooding
a. Provide Flood Control Improvements Along Rheem Creek.
Goal: Protect development areas from flooding and enhance Rheem Creek as
a riparian corridor.
Issue: Portions of the Specific Plan area are within the 100-year floodplain of
Rheem Creek. Based on preliminary revised flood zone mapping,
approximately 24 acres south of Rheem Creek are subject to shallow sheet
flow (less than one foot deep) as is also most of the area north of Rheem
Creek designated Office/Industrial Flex (see Existing Conditions report). There
is also an approximately 4.5-acre area north of Freethy Boulevard and east of
Goodrick Avenue which is subject to flooding from Rheem Creek. Portions of
adjacent properties will be subject to flooding, and will need to address
flooding in order to develop. Flood control improvements in this area can
provide an opportunity to enhance the riparian value of the creek corridor.
Action: Develop a flood control improvement plan for Rheem Creek in
cooperation with the County Flood Control District, the Corps and the
California Department of Fish and Game. Require a riparian habitat
restoration plan to be completed in conjunction with flood control measures.
This plan should require reshaping Rheem Creek to provide a low flow
channel, floodplain terrace and riparian habitat zones, as shown in Figure 10.
The dimensions of the channel and associated right-of-way will be in some
measure determined by the peak flow the creek must carry, with higher peak
flows requiring a wider cross-section and more land for the creek right-of-way.
The Specific Plan has reserved a 100-foot Public Access Corridor on the north
side of the creek to accommodate these improvements, and a Natural
Conservation designation within the riparian corridor and seasonal wetlands.
Responsibility: City should require developers in Rheem Creek area to
provide flood control improvement plans.
b. Prevent Coastal Flooding.
Goal: Protect development from coastal flooding while preserving shoreline
habitat.
131
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MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
IMPLEMENTATION ELEMENT
Issue: Coastal flooding occurs due to high tides. The Federal Emergency
Management Agency (FEMA) currently establishes the elevation of coastal
flooding at six feet NGVD. This is a "stillwater" elevation and does not
account for wave run-up, storm surge, or potential sea level rise. Coastal
flooding protection measures usually include the construction of seawalls and
breakwaters as well as filling.low-lying areas to elevations above anticipated
highest tides. These types of actions are detrimental to habitat goals, and fill
in the Bay is restricted under the regulations of BCDC and the federal Clean
Water Act.
Action: Prohibit the use of seawalls, breakwaters and fill as flood protection
measures for Natural Conservation areas of the Plan.
Issue: A portion of the Office/Industrial Flex area north of Rheem Creek is
subject to coastal flooding. This area is also subject to shallow sheet flow
flooding from Rheem Creek. Although elevations in this area are generally
above six feet NGVD, some areas are below seven feet NGVD.
Action: Require building-pad elevations to provide one foot of freeboard
above seven feet NGVD (minimum finished flood elevation of eight feet for
permanent buildings) to allow for waves and some sea-level rise during'the
• design life of the project (50 to 100 years).
Responsibility: City should require the above as condition of approval for all
development in Office/Industrial Flex area north of Rheem Creek.
r �
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133
Chapter 8
ACKNOWLEDGEMENTS
A. North Richmond Shoreline Specific Plan
Citizen Advisory Committee
Members
Eric Zell, Chairman, Property Owner Interests
M.M. Snodgrass, Vice Chairman, North Richmond Industrial and Agricultural
Association
Nelson Bennett, North Richmond Neighborhood and Concerned Citizens
Tom Butt, West Contra Costa Bayshore Council
Henry Clark, North Richmond Project Area Committee
Lucretia Edwards, Contra Costa Shoreline Parks Committee
ti
Oscar Erickson, North Richmond Industrial and Agricultural Association
Robert Hicks, Property Owner Interests
Bob Jobe, West Contra Costa Council of Industries
J.L. Johnson, Ministerial Alliance
Joe Kinard, Richmond Chamber of Commerce
Helen Klebanoff, Save San Francisco Bay Association
Maxine Kyle, Parchester Village Homeowners Association
Allan LaPointe, Urban Creeks Council ,
Mark Mason, Sierra Club
Barbara Rivenes, Golden Gate Audubon Society
Harold Saksa, Richmond Rod and Gun Club
John Sheridan, Economic Development Commission
Jessie Slocum, Jr., North Richmond Neighborhood House
Barbara Vincent, League of Women Voters
Jay Vincent, Greenbelt Alliance
Willie Williams, Contra Costa Black Chamber of Commerce
r
135
NORTH RICHMOND SHORELINE AREA SPECIFIC PLAN MAY 1992
ACKNOWLEDGEMENTS
Alternates
Tom Bradner, West Contra Costa Bayshore Council
Derwin Cox, Ministerial Alliance
Steve Crook, Economic Development Commission
Aniece Jackson, .Greenbelt Alliance
Lillie Mae Jones, League of Women Voters
Henry Kelman, Richmond Chamber of Commerce
Robert Lizor, Richmond Rod and Gun Club
Ed Menosee, North Richmond Industrial and Agricultural Association
David Ninomiya, North Richmond Industrial and Agricultural Association
Richard Oba, Golden Gate Audubon Society
Sue Raby, Sierra Club
Alice Simms, Parchester Village Homeowners Association
Martha Watson, Contra Costa Shoreline Parks Committee
Hermann Welm, West Contra Costa Council of Industries
Sy Zell, Property Owner Interests
B. North Richmond Shoreline Specific Plan
Technical Advisory Committee
Members
r
Gary Binger, Association of Bay Area Governments
Jeff Blanchfield, San Francisco Bay Conservation and Development
Commission
Bill Braga, West Contra Costa Sanitary District
Mike Carlin, Regional Water Quality Control Board
James Cutler, Contra Costa County Community Development Department
Melanie Denninger, State Coastal Conservancy
Marilynn Friley, U.S. Fish and Wildlife Service, Ecological Services
Nancy Kaufman, Richmond Planning Department
Jim Kennedy, Contra Costa County Redevelopment Agency
Theresa Larson, Contra Costa County Public Works Department
Tom Mikkelson, East Bay Regional Park District
Sharon Moreland, U.S. Army Corps of Engineers
Jane Sekelsky, State Lands Commission
Pete Sorensen, U.S. Fish and Wildlife Service, Endangered Species
Carl Wilcox, State Department of Fish and Game
136
MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN
ACKNOWLEDGEMENTS
Alternates
Bob Batha, San Francisco Bay Conservation and Development Commission
Brian Cooke, Richmond Planning Department
Mary Howe, State Lands Commission
Mark Kartovich, Regional Water.Quality Control Board
Jill Keimach, Association of Bay Area Governments
Beth Lee, Contra Costa County Redevelopment Agency
Terry Palmisano, State Department of Fish and Game
Beth Stone, East Bay Regional Park.District
C. Contributing Staff
City of Richmond
James A. Farah, Planning Director
Nancy Kaufman, Principal Planner
Brian Cooke, Associate Planner
Marilyn Williams, Richmond Parkway Project Coordinator
Kirt Hunter, Assistant City Engineer
Contra Costa County
James Cutler, Assistant Director of Community Development
Jerry Raycraft, Redevelopment Agency
Beth Lee, Redevelopment Agency
State Coastal Conservancy
Melanie Denninger, Project Analyst
D. List of Preparers
Brady and Associates
Sheila Brady, Principal-in-Charge
Mary Roberts, Senior Associate
Brad Wiblin, Associate
Tim Stroshane, Associate
Lyn Hogan, Graphics Manager
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137
NORTH RICHMOND SHORELINE AREA SPECIFIC PLAN MAY 1992
ACKNOWLEDGEMENTS
Christina DeFrisco, Graphic Artist
Sarah Westphal, Graphic Artist
Shelli Ireland, Word Processor
..Crane Transportation Group
Mark Crane, Principal
Carolyn Cole, Senior Engineer
Philip Williams and Associates
Philip Williams, Principal-in-Charge
Larry Fishbain, Hydrologist
Wetlands Research Associates
Jim Buckholtz, Senior Associate
William Carmen, Associate
Ward & Associates
Bill Ward, Principal
Orion Environmental Associates
Joyce Hsiao, Principal
1
138
APPENDICES
i
Appendix A
Alternative B
Alternative B was developed in response to field surveys of the Plan area
conducted by the U.S. Fish and Wildlife Service and the State Department of
Fish and Game. The purpose of the surveys was to verify the presence and
condition of wetlands and wildlife habitats within the baylands, and to more
precisely evaluate the potential effects of the proposed Specific Plan on
biological resources. The surveys indicated that areas potentially having
wetland characteristics were larger than those which had been delineated
earlier by the U.S. Army Corps of Engineers, and which had formed the basis
for decisions made in formulation of the three plan alternatives, one of which
was selected for development into this Draft Specific Plan. Based on this
evaluation, U.S. Fish and Wildlife representatives recommended modifications
that resulted in a new alternative called Alternative B. Alternative B was
reviewed by the CAC, which decided that Alternative B should be evaluated in
detail in the EIR as the mitigated plan alternative.
Alternative B, shown in Figure A, is designed to reduce potential biological
and hydrological impacts of the proposed Specific Plan. In this alternative,
natural resource preservation is emphasized, although a mix of land uses is
retained which would provide an employment base for area residents. Under
this alternative, the amount of land in the area designated as Natural
Conservation north of Rheem Creek would be increased by 35 acres and
developable land north of the creek would be concentrated in a 20 acre area
located just north of the creek and adjacent to the railroad tracks. This
20 acre area would be designated as Special Facilities. Office/Industrial Flex
land uses would be eliminated north of the creek. The Special Facilities area
at the end of Goodrick Avenue would also be eliminated, with this area shown
as Natural Conservation. The existing residential uses at the north end of
Goodrick Avenue would be allowed to continue with access from the existing
road. If acquired for public purposes, this area would revert to Natural
r Conservation, and a pedestrian access path would be maintained within the
A-1
NORTH RICHMOND SHORELINE SPECIFIC PLAN EIR MAY 1992
APPENDICES
existing road alignment. South of Rheem Creek, the same configuration and
combination of land uses as those allowed under the proposed Specific Plan
would occur under this alternative.
Alternative B would result in the preservation of more wetlands and more
-contiguous upland/wetland habitat.than the proposed Plan. These differences
would result in less potential for impacts on wildlife habitat within the Plan
area.
For a detailed comparison of this alternative with the proposed Specific Plan,
refer to the North Richmond Shoreline Specific Plan Draft EIR.
a. Circulation Plan.
The circulation system would be the same as shown in the proposed Plan, with
the following exceptions. Goodrick Avenue, north of the Rod and Gun Club,
would function as a private road to provide access only to the existing uses at
its terminus. "B" Road would terminate in the Special Facilities area north of
Rheem Creek, rather than looping back into Goodrick Avenue north of the
Rod and Gun Club. The public trail system would be modified to eliminate
the observation point and access across the marsh on the jetty located farthest
north. North of Rheem Creek, the trail system would follow the Goodrick
Avenue alignment, and would terminate some 500 feet beyond the existing
uses along an upland area.
b. Population, Housing and Employment.
This alternative would generate between 8,714 and 12,139 jobs at buildout in
the Plan area, compared with the 10,094 to 14,843 generated under the
proposed Plan. This alternative would remain consistent with both City and
County economic development policies.
C. Land Use.
The major difference in land use between Alternative B and the proposed
Specific Plan would occur north of Rheem Creek where the Natural
Conservation area would be expanded by 35 acres under this alternative.
Under Alternative B, the Natural Conservation Area would be extended north
from Rheem Creek to the northern edge of the Plan area.
A-2
MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN EIR
APPENDICES
In Alternative B, the Office/Industrial Flex area would not extend north
beyond Rheem Creek, as it does in the proposed Plan. Alternative B would
designate only 83 acres as Office/Industrial Flex, compared to 134 acres in the
proposed Plan. The Special Facilities area would be placed just north of
Rheem Creek instead of on the point to the northwest, and would be
expanded from .4 acres to 20 acres. The.area north and west of the Special
Facilities area would be designated Natural Conservation. Although a
pedestrian-only public access trail would continue along the existing road
alignment to the north, the Public Access Corridor would terminate at the
intersection of Goodrick Avenue and Rheem Creek.
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Appendix B
Table 1
OWNERSHIP AND PARCELIZATION'
Owner Acreaee Assessor's Parcel No.
Breuner, Gerald L. 1.00 405-010-001
State of California 158.935 405-010-013
Breuner, Gerald L. 40.653 405-010-017
-, -- 1.72 405-010-018
Breuner, Gerald L. 17.454 405-010-019
Breuner, Gerald L. 18.726 405-010-020
East Bay Regional Park District 266.975 405-020-009
Justine Realty Co. 6.823 408-082-006
Matlack Inc. 5.103 408-082-010
--, -- .19 408-082-012
Westover, Russell C. III & Joyce 1.364 408-082-015
Bragg Investment Company 2.683 408-082-016
Parr Properties 2.970 408-082-018
Tierney, Elizabeth A. Trust 4.29 408-082-019
JBJ Enterprises 5.341 408-082-020
Parr Properties .247 408-082-021
Parr Properties .295 408-082-022
Parr Properties 2.018 408-082-023
Campbell, John & Sabiha 1.0 408-090-006
Miyamoto, Lily, et al. 1.12 408-090-007
Miyamoto, Lily, et al. .23 408-090-009
Turpen, Russel L. & Erma M. 4.666 408-090-016
' 1 Information in this table was compiled in 1988 and updated in March, 1992.
B-1
NORTH RICHMOND SHORELINE SPECIFIC PLAN EIR MAY 1992
APPENDICES
Table 1. Ownership and Parcelization
Ng, Clifford G. & Daisy 2.07 408-090-017
Ng, Clifford G. & Daisy 3.00 408-090-018
Miyamoto, Lily, et al. .46 408-090-019
Miyamoto, Lily, et al. 12.77 408-090-020
Erickson, Inc., Oscar E. 9.196 408-090-028
Miyamoto, Lily, et al. .26 408-090-029
Color Spot, Inc. 29.20 408-090-031
Child Enterprises 5.488 408-090-032
A & L Enterprises .50 408-090-033
Rose, Tommy & Lois 1.97 408-090-034
Stanley, Walter F. & Ruth L. 1.74 408-090-035
Breuner, Gerald L. 3.721 408-100-001
Breuner, Gerald L. 8.60 408-100-002
Breuner, Gerald L. 2.06 408-100-003
Breuner, "Gerald L. 45.486 408-100-004
Breuner, Gerald L. 31.47 408-100-005
PG&E -- 408-100-006
PG&E -- 408-100-007
PG&E -- 408-100-008
Breuner, Gerald L. 10.31 408-100-009
Stauffer Chemical Company 27.14 408-100-010
f
Stauffer Chemical Company 53.40 408-100-011
Breuner, Gerald L. 6.97 408-110-001
Breuner, Gerald L. 50.432 408-110-004
Granzella, Richard 6.43 408-120-001
Richmond Rod & Gun Club 8.65 408-120-010
Industrial Land Company 49.55 408-120-013
Granzella, Richard 73.41 408-120-017
Industrial Land Company 211.15 408-120-018
Granzella, Richard " 20.82 408-120-020
Richmond Rod & Gun Club 80.45 408-120-021
Estrada, Joseph C. 1.0 408-130-004.
Karnes, Richard & Dolores 14.0 408-130-007
Granzella, Richard, et al. 1.474 408-130-011
Bledsoe, Eric J. 1.0 408-130-012
Bledsoe, Eric J. 2.0 408-130-013
Broadline Corporation 2.00 408-130-015
B-2
MAY 1992 NORTH RICHMOND SHORELINE SPECIFIC PLAN EIR
APPENDICES
Table 1. Ownership and Parcelization
Broadline Corporation 2.486 408-130-016
Dashiell Penelope, G., Tre B., Sparrow, OS .50 408-130-018
Dashiell Penelope, G., Tre B., Sparrow, OS 5.514 408-130-019
Karnes, Richard & Dolores 2.92 408-130-020
United Refuse Service 1.68 408-130-022
NOVE Investments 2.82 408-130-023
Freeman, John H. & Victoria S. 3.00 408-130-024
Freeman, John H. & Victoria S. .36 408-130-025
C.C.C. Flood Control & Water Cons. 1.25 408-130-026
C.C.C. Flood Control & Water Cons. 3.34 408-130-027
State of California (submerged) 88.20 408-140-005
Richmond Sanitary Service 4.04 408-140-006
Richmond Sanitary Service 73.45 408-140-008
Richmond Sanitary Service 174.93 408-140-009
Richmond Sanitary Service 4.25 408-140-010
State of California (submerged) 65.83 408-140-011
Richmond Sanitary Service 114.98 408-140-012
Hicks, Geraldine Lloyd 1.00 408-220-001
Hicks, Geraldine Lloyd .993 408-220-002
Hicks, Geraldine Lloyd 2.003 408-220-003
Hicks, Geraldine Lloyd 1.97 408-220-004
Hicks, Geraldine Lloyd 2.21 408-220-005
Hicks, Geraldine Lloyd 2.323 408-220-006
Hicks, Geraldine Lloyd 1.968 408-220-007
Hicks, Geraldine Lloyd 2.002 408-220-008
Hicks, Geraldine Lloyd .993 408-220-009
Hicks, Geraldine Lloyd 1.001 408-220-010
Hicks, Geraldine Lloyd 31.895 408-220-013
Hicks, Geraldine Lloyd 3.869 408-220-015
Hicks, Geraldine Lloyd 4.397 408-220-016
Hicks, Geraldine Lloyd .817 408-220-017
Hicks, Geraldine Lloyd .817 408-220-018
Hicks, Geraldine Lloyd 1.165 408-220-019
Hicks, Geraldine Lloyd .862 408-220-020
Hicks, Geraldine Lloyd -- 408-220-021
Custom Rolled Corr. Metals Co. 7.00 408-220-022
Hicks, Geraldine Lloyd 1.530 408-220-023
Hicks, Geraldine Lloyd .828 408-220-024
B-3
NORTH RICHMOND SHORELINE SPECIFIC PLAN EIR MAY 1992
APPENDICES
Table 1. Ownership and Parcelization
Hicks, Geraldine Lloyd 1.463 408-220-025
Hicks, Geraldine Lloyd .736 408-220-026
Hicks, Geraldine Lloyd 5.580 408-220-027
Hicks, Geraldine Lloyd 2.337 408-220-028
TOTAL ACRES 1,951.289
Source: Contra Costa County and City of Richmond Assessor's Maps and Standard Assessment
Rolls, Fiscal Year 1987/88; August 4, 1989.
Y
B-4
Appendix C
Financing Approaches
Funding for Specific Plan improvements can be provided by both public and
private sources. Financing approaches available to implement the Specific Plan
are identified in this section.
Capital improvements in the Specific Plan area will include improved
infrastructure, such as water and sewer mains, storm drains, and local roads, as
well as public access and resource protection and enhancement facilities.
Capital improvements in the Specific Plan area can be financed through:
• Development fees; .
r Redevelopment tax increment financing in the unincorporated portion
of the Specific Plan area;
• Assessment or improvement districts; and
• Wetland mitigation banks.
Financing mechanisms are already in place for the completion of the
Richmond Parkway, including Contra Costa County Measure C, Regional
Measure 1 (bridge toll revenue allocations), development fees, and public
facilities fees for the Pinole Point/Hilltop Developing Area. This latter
mechanism relies upon new development paying fees at the time of the
building permit application into a capital improvements fund for various off-
site road and public facility improvements in the Pinole Point/Hilltop area,
including the Richmond Parkway.2 Within-the Specific Plan area, Section 4 of
the Richmond Parkway is to be financed primarily with Measure C, Regional
Measure 1 funds and developer fees.
2City of Richmond, City Manager's Office and Planning Department,Development Program Report for
the Pinole Point/Hilltop Developing Area Providing for Public Facilities Pursuant to the Public Facilities Fee
_ Ordinance, Chapter 1264 of the Municipal Code of the City of Richmond,January 1990. Fee schedule for
new development in the area was established by City Council Resolution No.91-90,adopted April 23,1990.
C-1
NORTH RICHMOND SHORELINE SPECIFIC PLAN E1R MAY 1992
APPENDICES
a. Development Fees.
Development fees are typically collected at the time building permit or other
development approvals are sought for new projects. They represent a "pay as
you go" method of financing public capital improvements through the
application of available.funds of the public.agency.constructing the
improvements on a current basis.
New development in the Richmond portion of the Specific Plan area would be
part of the Pinole Point/Hilltop Developing Area Public Facilities Fee Area
and would be subject to fees to pay for its fair share of off-site road
improvements and other facilities and services necessary for development in
the Specific Plan area.
New development in the County portion of the Specific Plan area would also
be subject to development fees. The County intends to create or expand the
existing west County "area of benefit" fee area to provide needed road
alignments.
Cities and counties must make determinations concerning the purpose and use
of development fees and establish a "nexus" or casual connection between a
development project (or type of project) and the public improvement being
financed with the fee. State law requires that the fee revenue must be
segregated from the jurisdiction's general fund and that, if fees are held for
five years or more without being either committed to or expended on a capital `
project, then the city or county must make findings annually for continuing to
hold the fee revenue. If these findings are not supportable, the fee revenue
must be refunded. Fees charged as part of the terms of a development
agreement are, however, exempted from these requirements.
b. Redevelopment Tax Increments.
Contra Costa County established the North Richmond Redevelopment Project
Area in 1987, which includes all unincorporated areas of the Specific Plan area.
The County Redevelopment Agency is able to issue tax allocation bonds to
finance capital improvements identified by this Specific Plan in the
unincorporated area of the Plan area, in coordination with the City of
Richmond. The bonds would be secured by tax increments from property tax
revenues attributed to redevelopment activity within the County.'s.jurisdiction
in the Specific Plan area.
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The Redevelopment Plan identifies roads and streets, water and sewer mains,
storm drain improvements, utilities, landscaping and streetscaping, development
of trails, open space and park sites, and parcel acquisition as necessary to
support planned development in the area, and as eligible for financing under
its authority.
C. Assessment Districts.
Assessment districts (as allowed by the Improvement Act of 1911, Municipal
Improvement Act of 1913, the Improvement Bond Act of 1915, and the
Landscaping and Lighting Act of 1972) provide mechanisms for local
governments to construct, acquire and maintain public improvements,
apportion the costs through liens against properties in a designated area that
directly benefit from the improvements, and finance construction through the
issuance of tax-exempt bonds.
These types of districts, when combined together, can finance Specific Plan
capital improvements including: transportation facilities, roads and streets,
parks, recreation areas (including necessary structures), sewers, drainage
systems, lighting, fire protection systems, flood protection, water supply
systems, utilities, landscaping and structural reinforcement (e.g., retaining
r walls), and land stabilization.
d. Wetland Mitigation Banks
One of the mechanisms used by public agencies to protect and enhance
wetlands is the mitigation bank, described below:
The State Department of Fish and Game in January 1987 adopted the
Wetlands Resource Policy for protection, preservation, restoration,
enhancement and expansion of wetland habitats. The policy provides
guidelines for mitigation of impacts on wetlands, and states that mitigation
measures must result in no net loss of either wetland acreage or wetland
habitat value. Although these guidelines are not regulations, the State
Department of Fish and Game comments on adequacy of measures through
the CEQA process and permitting process. The Department consistently
recommends avoidance of impacts to wetlands. Where this is not feasible, the
Department recommends on-site mitigation, and, in select cases, mitigation at
relatively large wetland complexes established away from the project site. The
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concept of mitigation banking responds to this need for large areas of wetlands
that can mitigate piece-meal losses of small wetland areas.3 '
A mitigation bank is created when a public agency, such as the State Coastal
Conservancy, acquires degraded wetland areas, or areas that can be restored to
provide wetland habitat, enhances_their_habitat value, and then makes habitat
mitigation credits available for purchase by developers who need to
compensate for fish and wildlife habitat losses that result from their
development projects.
The bank differs from a mitigation project in that it is designed to provide
compensation for habitat losses that will result from several development
projects, not just one. Though each such project may affect only a few square
feet of habitat, their cumulative impact may affect many more acres. In
contrast, a mitigation project is tailor-made to meet the mitigation needs of
one specific development project. A mitigation bank is established in advance
of the impacts that will result from development projects. The increase in
habitat value, quantified by applying a methodology such as the U.S. Fish and
Wildlife Service's Habitat Evaluation Procedure (HEP), is tallied as mitigation
"credits." Following enhancement of the site, these credits are available for
purchase by developers to satisfy off-site mitigation requirements which have
been determined by the appropriate permitting agency. A mitigation bank is
ti
markedly different from an "in-lieu fee" program. An in-lieu fee program is a
process whereby several developers pay fees into an account that, when
enough money has accumulated, is used to purchase and enhance a degraded
area. Thus, many months or even years may lapse before the mitigation
project is initiated and the habitat losses are compensated.
Advantages of Mitigation Banks. Mitigation banks can be used to
provide habitat compensation in a manner which is sometimes superior to more
traditional methods that require the completion of individual mitigation
projects or the payment of in-lieu fees.
Requiring applicants whose projects will impact only tiny fragments of wetlands
to identify, acquire and enhance an area in order to replace wetland values lost
as a result of a development project is a cumbersome, inefficient and often
ineffective process. When this process isundertaken by a developer with.no.
experience in designing wetland enhancement projects and whose overriding-
3 "Draft Department of Fish and Game Guidelines for the Establishment and Use of Wetland
Mitigation Banks." State of California, The Resources Agency, California Department of Fish and Game,
September 1990.
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goal is to satisfy the mitigation requirement as quickly as possible for the least
possible cost, the mitigation project that results often has little habitat value.
Because permitting agencies typically do not have adequate staff to monitor
compliance with the mitigation requirements they impose, permit applicants
often fail entirely to comply with their mitigation requirements.
A mitigation bank, sponsored by a resource agency that is motivated to
complete the project and has experience designing wetland restoration projects,
may have greater potential for successfully meeting restoration objectives than
isolated mitigation projects designed and implemented by permit applicants. An
agency-sponsored mitigation bank provides a streamlined mechanism for permit
applicants to satisfy their mitigation requirements while eliminating the need
for permitting agencies to track permit applicants to be certain that they have
complied with mitigation requirements. A sponsoring agency that is closely
allied with the permitting agency can be easily held accountable for completion
and management of a mitigation bank. And a mitigation bank, established to
satisfy the mitigation needs of a number of development projects that will
impact very small wetland areas, can provide a larger area of more diverse and
perhaps more valuable wetland habitat.
Disadvantages of Wetland Mitigation Banks. Issues such as seldction of
the appropriate site, designing feasible restoration plans, determining.the cost
and number of available habitat credits, setting guidelines for use of the
mitigation banks, and managing the mitigation banks over the long-term must
be resolved by the responsible agency in order to ensure successful habitat
compensation. As a result, there is a relatively high level of uncertainty
associated with mitigation banks.4 In addition, the availability of a mitigation
bank may be perceived as potentially facilitating inappropriate development.
Funding Implications of Mitigation Banking. Creation of a mitigation
bank would require substantial start-up funding. Such funding typically would
be provided by a public agency. Mitigation banking may generate revenue to
pay off the loan or reimbursable grant used to develop the mitigation bank.
4 Riddle,Elizabeth P., California State Coastal Conservancy,"Mitigation Banks: Unmitigated Disaster
or Sound Investment?"
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e. Funding Sources for Public Access. and Resource Protection and -
Enhancement.
There are a limited number of sources of funds available specifically for
financing public access and resource protection and enhancement in the
Specific Plan area. These sources are identified below.
1. State Coastal Conservancy Funding. The State Coastal
Conservancy has three programs that could be used to finance the
shoreline and public access improvements called for in the Specific Plan.
These programs include financing for:
• Public access
• Urban waterfront restoration
• Resource enhancement
Restoration and enhancement projects funded by the State Coastal
Conservancy usually are carried out on property held by non-profit
organizations or public agencies. Funds may used to develop and
implement resource and urban waterfront restoration plans, build public
access, and purchase property for these purposes.
2. Wildlife Conservation Board. This board, a division of State
Department of Fish and Game, supplies grants for wildlife habitat
restoration and acquisition of natural resource areas. Projects are 01
selected for funding on the recommendation of the Department of Fish
and Game.
3. State Lands Commission. The Commission banks funds paid by
landowners to clear title of any claims by the State. These funds are
then used to buy wetlands next to the San Francisco Bay.
4. Shell Oil Fund. Shell Oil Company paid approximately $10
million into the Natural Resources Fund as a settlement for claims
arising from a 1988 oil spill near the Shell refinery in Martinez. The
fund will be used to acquire, create, restore or enhance wetlands in the
area of the spill. Suggestions for use of the fund were due by March 1,
1991 and ten projects have been identified which would use all of.the.
money. The trust is willing to consider other ideas and projects in case.
one of the ten identified projects does not work out.
Is-
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5. The Resources Agency of California - California Transportation
` Commission Environmental Enhancement and Mitigation Program.
Established in 1989 under AB 471, the program is administered by the
Resources Agency which reviews projects for funding and recommends
projects to the California Transportation Commission (CTC) for
funding. Grants are awarded annually by the CTC. The program
provides funds for acquisition and restoration for environmental
enhancement to local, state, and federal agencies and nonprofit
organizations for projects associated with environmental impacts of
transportation facilities. Funds available for 1991-2001 are $10
million/year, with maximum grant of$500,000.
6. East Bay Regional Park District. The East Bay Regional Park
District (EBRPD), as a limited purpose governmental agency charged
with developing and operating a park system in the East Bay, may
acquire land and plan, develop and operate a system of public parks and
recreation facilities within its District. The District's 1989 Master Plan
provides for acquisition of Regional Shoreline and Regional Trail lands
within the Specific Plan area.
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