The Berkeley Santa Fe Right-of-Way

a linear park and commons an urban greenway a community resource

The Berkeley Santa Fe Right-of-Way

Prepared by: Rails to Trails Conservancy

In Cooperation with: Berkeley Partners for Parks and Berkeley Community Gardening Collaborative

Prepared for: The City of Berkeley, Parks and Recreation Department

AN OVERVIEW: HISTORY AND OPPORTUNITIES

November

2010

for

The South Berkeley Santa Fe Right-of-Way

• ProvideabroadoverviewoftheBerkeleySantaFeright-of-way(ROW),withanemphasisonthespacebetweenChan-ningWayandOregonStreet

• Describetheopportunitiesandchalleng-esandbenefitsofthispublicasset

• ProvideapackageBerkeleyresidentsanddecision-makerscanuseforcommunityoutreachandtodescribetheprojecttopotentialfundingagencies.

• Provideinformationtohelpguidetheplanninganddevelopmentoftheproject

Thepurposeofthisdocumentisto:

A Linear Commons A Multi-purpose Greenway A Community Resource

Front cover photo (large): © Bryce hall / rails-to-trails conservancy

In1904,theSantaFeRailroadestablishedthe“Oak-landLocal,”whichranfromPointRichmondtoOakland,andrandiagonallythroughBerkeley.TheOaklandLocalservedpassengersandfreightuntilthe1950s,whentheautomobiledoomedrailpassen-gerservice.Whilepassengerserviceofficiallyendedinthelate1950s,freighttrainscontinuedtorunonthelinewhiletheCityofBerkeleybegantolookatalternativewaystopurchaseand/orusethecorridor.

In1977,thecitizensofBerkeleyapproved“MeasureY,”whichprovidedabout$500,000fortheacquisi-tionanddevelopmentofthefull3.1-milestretchoftheSantaFeRailroadRight-of-way(SantaFeROW)throughBerkeley(Figure1).Berkeley’sCityCouncilapprovedtheacquisitionin1978,andayearlatertheyapprovedthedevelopmentoftheSantaFeROWforacombinationof“parkland,housing,andtoselltoneighboringresidents.”TheSantaFeRailroadagreedtoremoveitstracks,railroadties,crossingandsignalingequip-ment.TheCitythencompletedtwosignificantimprovementstothislandintheearly1980s:onewasCedar-RosePark,builtatthenorthernendofBerkeley’sSantaFeROW;thesecondwasStrawberryCreekPark,builtjustsouthofUniversityAvenue(thiswasthefirstremovalfromaculvertor“day-lighting”res-torationofanurbancreekinthenation).

AftertheCityconstructedthosetwoparks,therestofthecorridorremainedundevelopedexceptforseveralaffordablehousingprojectswhichwerebuiltonparcelsadjacenttoChanningandDwightWay.Inaddition,immediatelysouthofWardStreet,theCitybuiltahousingdevelopment,SojournerTruthWay.OppositiontothecontinuedlossoftheSFROWasapublicassetledtothepassageofthevoter-approvedMeasureLwhichmandatedretentionoftheremain-derofthecorridorasopenspace.Inaddition,theCity’s2000GeneralPlanforbadeadditionalparcelsalesoftheright-of-way.Thecorridorwasthusdes-ignatedexclusivelyforparks,pathways,totlots,com-munitygardensandotherresident-supportedopenspaceprojects.


The Santa Fe ROW — taken from Blake Street, looking south.

History of the Berkeley Santa Fe Right-of-Way

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Figure 1 Berkeley Santa Fe Right-of-Way

Figure 2

Berkeley Santa Fe Project Area

There have been three community-led and developed improvementstotheSantaFeRightofWay(SFROW)inthepasttwodecades.Intheearly1990s,theCitygrantedBerkeleyYouthAlternativestheuseofoneblockoftheSantaFeROW—betweenBancroftStreetandChanningWay—forayouth-trainingandcommunitygarden.Itremainsalargeandactivegardentoday.In2003,theCityCouncilapprovedSpiralGardens’plantobuildaplantnurseryandurbanfarmatSacramentoandOregonstreets,attheverysouthendoftheSantaFeROW.Itisnowathrivingnativeandedibleplantsnurseryandeducationalcenterthatalsosellsfreshproducefromastreet-stand.Thethirdadditionwastheconstructionofapavedmulti-usepathwayrunningnorthofUniversityAvenueforthreeblockstoDelawareStreetandaninformal,BerkeleyPartnersforParks’affiliates-leddevelopmentofatrailonthecorridorbetweenDelawareandLincolnStreets,connectingittotheOhloneGreenway.TheCityisinterestedinconnectingthisextensiontotheOhloneGreenwayatsomepointinthefuture.

Whatremainsoftheundevelopedcorridor—asix-blocksec-tionfromChanningWaytoWardStreet(Figure2)--presents

anotheruniqueopportunitytocreatemuch-neededopenspaceinthecommunityofSouthBerkeleyandlinktotheex-istingSantaFeROWgreenway,whichextendsasthe“OhloneGreenway”allthewaytoRichmond.AssuggestedinFigure1,thislinearcommons,whencompleted,willbeaccessibleandwelcomingtoavarietyofpeopleandtocommunityresources,suchas:

• Schools• Daycareandyouthcenters• Parksandcommunitygardens• Existingandproposedbicyclepathways• TransitnodessuchastheNorthBerkeleyBARTand

ACTransitstops• SouthBerkeleyPublicLibrary

• Seniorhousing

Onethinghasbecomeuniversallyclearfromcommu-nitydiscussionsoftheSouthBerkeleySFROW: the greenway’s potential is enormous.Asagatheringspot,arecreationalpocket,anaturalescapeandagreenandgrowingspace,theSantaFeROWcandefineasignificantnewcommunitylandscapeandcommonsforSouthBerkeley..

Realizing the Promise of Parkland

Berkeley Community Orchard

While neighborhood residents and community groups have identified a variety of potential uses for the SFROW, the concept of creating a community orchard has been developed the most. The vision for the orchard can be traced back to 1998, and a passionate group of residents is still advocating for it.

Several soil tests have been conducted and a draft site plan has been created for the proposed orchard site, which sits between Carleton and Derby streets on the ROW. Trace amounts of arsenic were identified on the parcel in a toxicity study, but higher arsenic levels occur naturally in the area. Nevertheless, the city of Berkeley is not comfortable allowing public use of the space without further testing, and the area has been gated off.

Though challenges exist for the project, it should not be overlooked that a great deal of work and creative energy have been dedicated to the concept, and that it remains popular with neighborhood residents.

SpiralGardens—agardeningsuccessstoryontheSantaFeROW.

SomeBerkeleycommunitymembershavebeeninterestedinconvertingtheSantaFeROWintoasuccessionofgreenspacessincetheearly1980s.Duringthattime,agroupformedtoencouragetheCitytoallocatefunds.Communityparticipationhasbeenakeyelementinmanyoftheexistinggreening,andparkprojectsthathavebeenestablishedalongthecorridor,althoughpublicoutreachandparticipationfocusingontheSo.BerkeleySFROW,theVisiondocument’sprojectarea,beganrelativelyrecently.

In2005and2006aclassofLandscapeArchitecturegraduatestudentsfromtheUniversityofCalifornia,BerkeleyconductedoutreachtobetterunderstandthedesiresandconcernsofcommunitymembersrelatedtotheBerkeleySantaFecorridor.Theirwork,whichculminatedinapublicationthatsummarizedtheirprojects,“CitizenParticipationinthePlanningProcess...BerkeleyParksandOpenSpace,”contributedawealthofknowledgeandnewideasabouthowtotransformthephysicalspaceofthiscorridor.Thesestudentsconductedinterviewswiththeleadersofseveralneighborhoodorganizations,and200surveysweredistributedtoSouthBerkeleyresidents.Thisoutreachfoundgeneralconsensusamongresidentsthatgreen,quiet,park-likeactivitiessuchascommunitygardens,nativeplantdisplays,lawnspaceandbike/pedestrianpathwayswerepreferabletolouder,moreactiveusessuchasbasketballorboccecourts.

InMay2006,theUCBerkeleystudentspresentedtheirprojectstothecommunityatameetingintheoldSantaFeDepot(nowtheMontessoriSchool).Thecommunitygatheringbroughtrenewedinteresttothepotentialforre-developingthecorridor.Communitymembersbegantotalktogetherandbrainstormonhowtogetorganized.Soonafterthestudents’presentation,astakeholdermeetingwasconvenedinMay2006,includingRails-to-

Community Outreach & Participation

TrailsConservancy,BerkeleyPartnersforParks,theBerkeleyCommunityGardeningCollaborative,MayorTomBatesandseveralothercommunityorganizations.ThegoaloftheconveningwastocontinuetheplanningprocessfortheremainingavailablespacealongtheSantaFeROW.

Inthespringof2008,twowalkswereorganizedandconductedalongtheSantaFeROWbyBerkeleyPartnersforParksandtheBerkeleyCommunityGardeningCollaborative.Thegroupsvisitedcommunitygardens,artworkalongtheOhloneGreenway,nearbyparks,schoolgardensandneighborhoodstores.TheyalsosharedtheirideasonhowtheseamenitiesrelatedtotheSantaFecorridor,andwhattheywouldliketoseeinthefuture.

InNovember2009,BerkeleyCouncilmember,DarrylMoore,whosedistrictincludesthesouthernportionoftheSFROW,helpedtoorganizeacommunitymeetingtore-connectwithBerkeleyresidentsregardingtheprojectofplanninganddevelopingtheremainingopenspace.Morethan40peopleconvenedattheSanPabloParkCommunityCentertodiscussthefutureusesoftheSantaFeCorridor.Amongthepotentialopenspacefeaturesthatweremost-favoredbytheparticipantswereacommunitygardenororchard,habitatrestoration,asmall,continuouspathway,adogparks/runandtot-lot(s).Manyexpressedthedesirethatthespacesupportmultiplepurposes,andthatwhilenearbySanPabloParkisdevotedmainlytoactivesports,thisspaceshouldcomplementtheparkbyfocusingonmorepassiveuses.

UniqueastheSantaFeROWlinearparkwouldbe,itfollowsinthelongtraditionofrail-trailsascommunityamenities.Whilethepersonalitiesofthesepathwaysmaybediverse,theystillshareacommonhistoryandacommonsetofcommunityandnaturalbenefits.


In 1916, the world’s most extensive rail transportation

networkstretchedacrosstheUnitedStates,withcitiesand

smalltownsconnectedbyribbonsofstreet.Inthatyear,

therailroadsystempeakedwithmorethan270,000miles

oftrackwindingacrosseverystate.

Yetduetochangesindevelopmentandtransportationpat-

terns,economicsandpolitics,railroadshavesincestopped

utilizingmorethan150,000milesoftrack.

Rails-to-TrailsConservancy(RTC)formedin1986topre-

servethisintegralpartofournation’sheritage.Byconvert-

ingunusedrailintomulti-usetrails,thecorridorscontinue

toplayavitalroleincommunitiesacrosstheUnitedStates.

Today,thethrivingrail-trailmovementhascreatedthou-

sandsofpublictrailsforrunning,walking,bicycling,play-

ing,communitygardeningandotherpurposes.Thereare

approximately15,000milesofrail-trailacrosstheUnited

States,andmorethan350milesinCaliforniaalone.Con-

vertedrail-trailshavemanybenefits:

• Rail-trailshavegentlegradesandminimalroadintersections,makingthemperfectforseniors,familiesandpeoplewithdisabilities.

• Rail-trailsactaslineargreenwaysthroughurbanareas,providingmuch-neededopenspaceand

The Story ofRail-Trails

newrecreationalopportunities.

• Rail-trailspromotesustainablelanduseandhelprevivehistoricbusinessdistricts.

• Rail-trailsareindependentcommunityamenitiesthatenhanceexistingrecreationalresourcesbylinkingneighborhoodsandschoolstoparks,waterfronts,recreationalcentersandotherfacilities.

BenefitsHealth Trailscreatetransportationandrecreationopportu-nitiesbyprovidingpeopleofallageswithattractive,safeaccessibleplacestobike,walk,jog,skateorplay.Indoingso,theymakeiteasierforpeopletoengageinphysicalactivity.Thephysicalenvironmentalhasasubstantialimpactontheactivitylevelofcommuni-ties.Arecentsurveyfoundthat43percentofpeoplewithsafeplacestowalkwithin10minutesoftheirhomemeetrecommendedactivitylevels,whilejust27percentofthosewithoutsafeplacestowalkaresufficientlyactive(ActiveLivingNetwork,2007).

IfmoreAmericansembracewalkingandbikingaseverydayoptions,wecancreateahealthiernation.

Community CommunityandfamilyareattheheartoftheAmeri-cantrailexperience.Oneofthemostsignificantben-efitsoftrailsisthesenseofcommunityandthecon-nectionstheybuild.Well-designedtrailstransform“community”fromanabstractionintoareal,physicalspace.

Trailsconnectpeoplewithplaces,enablingthemtowalkorcycletorunerrandsorcommutetowork.Trailsprovidenatural,scenicareasthatmotivatepeopletospendmoretimeoutdoorsandremainphysicallyactive.Trailsconnectneighborhoodsandschoolssochildrencancycleorwalktotheirfriends’homesortoschool,especiallyincommunitiesthatlacksidewalks.Likegymsandhealthclubs,commu-nitypathwaysalsoserveasaplacewherepeoplecanseeandinteractwithotherpeopleexercising.Re-searchershavefoundthatalackofthistypeofsocialsupportisoftenabarriertoparticipationinexercise.

TransportationActivetransportationchoices—likewalkingorbik-ingtoworkinsteadofusingacar—allowpeopletomeettheirneighborsandstrollalongneighbor-hoodstreets.Theshortwalkingandbikingtripsthatbecomedailyroutinescanreplacemanyofthelonger,autotripsthatclogneighborhoodsaroundthecountry.Whenofferedarealchoicethroughtheprovisionofwalkingandbikinginfrastructure,peoplewilloftenchoosetowalkandbike.

Withshorttripsunderthreemilesrepresentingnear-


lyhalfofalltripstaken(FHWA2006),walkingandbikingarepoisedtobringhealthy,cleantransporta-tiontocommunitiesaroundthecountry.

Environment/ClimateRecentstudieshaveshownthatmakingcommunitiesmorebike-andpedestrian-friendlycansignificantlyreduceoverallgreenhousegasemissionsbydrivingdownvehiclemilestraveled(VMT).Walkingandbikingaremainstreamcomponentsofastrongclimate-changemanagementstrategytoday.Withincreasedinvestment,thepotentialforthiscleanandhealthytransportationmodetohelpdecreasecarbonemissionscanbesignificant.

Economic BenefitsTrailscanbepowerfultoolsforeconomicdevelop-ment.TheNewYorkTimesrecentlynotedaNationalAssociationofHomebuildersstudythatfoundthattrailsarethenumberoneamenitypotentialhom-eownerscitewhenchoosinganewcommunity.Trailsareincreasinglybeingusedtohelpurbancommuni-tiesrevitalizelong-underutilizedcorridors.Trailsarebuildingstrong,vitalcommunitieswithincreasedpropertyvaluesforarearesidentsandimprovedeco-nomicopportunitiesforlocalbusinesses.

Byconsciouslylinkingtrailsandbusinesses,andbyprovidingnewdesirablehousingchoicesalongtrails,communitiesaroundthecountryarebuildingvital,economicallystableneighborhoodsthataretrulysustainable.

Opportunities• Unused,vacantspacedesignatedexclusivelyforopenspace

• SupportandcommitmentfromlocalorganizationsincludingBerkeleyCommunityGardeningCollaborative(BCGC),BerkeleyPartnersforParks(BPFP),LivableBerkeley,theSanPabloParkNeighborhoodAssocia-tion,amongothers• Supportandcommitmentfromlocalorganizations

• Thecorridorcancreateacommonsforadiverseneighborhoodthatlackssufficientopenspaceforrecreationandcommunitygardening

• Public-non-profitpartnershipforstewardshipand/ormaintenanceofROWfeaturesincludingvegetation,paths,andcommunitygardens,

• Supportfromkeyelectedofficials,includingMayorTomBatesandCouncilmanDarrylMoore

Challenges• Lackofcompletecorridor

continuity

• Somesoiltoxicity

• Citybudgetaryconstraintsforparkdevelopmentandmain-tenance

• Spaceislimited,andallideaswillnotlikelybeimplemented

Opportunities & Challenges

Several timely opportunities now exist thatencouragethedevelopmentoftheSantaFeROWintolinearopenspaceandthatrequireactionbeforetheyarelost.Severalsignificantconstraintsmustalsobeaddressed.

CourtesyofBrianWhyte

TheCityrecognizesthevalueoftheSFROWasa

resourcetoprovideforanimprovedqualityoflifefor

thecommunity.However,achiefconcernofelected

officialsandCitystaffisthecostofimplementation

andongoingmaintenancefortheproject.Fortu-

nately,numerousregional,stateandfederalfunding

sourcesareavailabletoplanandconstructparks.

Whilerail-trailprojectsareoftenfundedthrough

transportationfundingsources,thisprojectisas

muchalinearparkasatransportationcorridor.

Listedbelowarepotentialfundingsourcesthatfocus

onparkdevelopment.Otherpotentialfundingre-

sourcesareprovidedinAppendixA,“BerkeleySanta

FeROWFundingMatrix,”(aseparatelybounddocu-

ment).

Park Development and Community

Revitalization Act of 2008

IntroducedasCAAssemblyBill31,thisgrantpro-

gramestablishesalocalfundingstreamthattargetsthe

acquisitionanddevelopmentofparklandincritically

under-servedcommunities.Proposition84willpro-

videfourhundredmilliondollarstofundtheprogram.

Funding Opportunities

Land and Water Conservation Fund

California’sDepartmentofParksandRecreationdis-

tributesgrantstolocalcommunitiestoacquirepark-

landandbuildparkandrecreationfacilitiestomeet

state-wideparkandrecreationgoals.Thetypesof

projectsmostoftenfundedbythesegrantsareacqui-

sitionordevelopmentofneighborhood,community

andregionalparks.

Cal/Environmental Justice Grants

TheCaliforniaEnvironmentalProtectionAgency

hasestablishedtheEJSmallGrantsProgramtoas-

sisteligiblecommunity-based,grassroots,nonprofit

entities,andfederallyrecognizedtribalgovernments

toaddressenvironmentaljusticeissues.Recentgrants

havebeeninthe$20,000range.

Foundations and Universities

Whilefundingforparkconstructionwillmostlikely

comefromgovernmentfundingsources,foundations

andUCBerkeleymaybeinterestedincontributing

financiallytotheplanningprocess.


GiventheCity’sexistingpriorities,it’sunlikelythatthisprojectwillbeconsideredforthenextseveralyears.Whenitisripetogoforward,thefollowingpresentssuggestedstepstoadvancetheproject.

Byworkingtogethereffectively,communitygroupsandlocalagenciescansuccessfullyconverttheSantaFeROWintoavibrantopenspacefortheBerkeleycommunity.Threecrucialcomponentsofsuccessfulprojectsinclude

Aclearandrealisticplanofactionthatdetailstheben-•efitsoftheprojectandaddressesconstraintsandotherchallenges,includingfunding

Strong,widespreadcommunitysupportfortheproject•

Local,regional,stateandfederalagencysupport•

Suggested steps:

Identify fundingtocontinuetheplanningprocessfortheproject.Enoughmoneyshouldbeidentifiedtoensuretheprojectcancontinuewithoutsignificantdelays.Thefundingcancomefromacombinationofsources.

Continue the community outreach and engagement process. Thisdocumentshouldbeusedasatooltoeducateresidentsontheproject,andtosolicitfurtherideasandopinionsconcerningwhatthespaceshouldultimatelybeconvertedinto.Outreachshouldconsistofbothlargercommunitymeetingsandtargetedcommunication(inter-

views,surveys,etc.)withresidentsandstakeholders.

Create a Santa Fe ROW working groupthatcanmovetheprojectforwardandcoordinatefutureoutreachandevents.Thegroupshouldincluderesidents,citystaff,electedof-ficialsandstafffromcommunityorganizationstoensurethateffortsarecoordinatedandthattheprojectremainsapriority.

Adopt a City Council resolutionstronglysupportingtheproject.Thisstepwillindicateclearpoliticalsupportfortheproject,whichisessentialforfundingapplications.Anditwillhelptointegratetheprojectinothercity,countyandregionalplans.

Gain higher priority from city agencies and commis-sions. Inorderfortheprojecttoberealized,itneedstobehigherontheprioritylistofboththeRecreationandParksDepartmentandCommission.

Complete a Master or Site PlanfortheSantaFeROW.Thisisalonger-termgoal,butitwillneedtohappentocre-atethenewparkspace.Theprocessshouldincludethecom-pletionofallrelevantenvironmentalcompliance,(CEQA,etc.),soilandengineeringassessments.

Consider developing a phased implementation strategy. Whileitismostefficienttobothplanandgainapprovalsfortheentireprojectasonesite,thespacecanbedividedintosegmentsforimplementation.BreakingtheROWintosmallerphases,orsegments,canacceleratefundrais-ingandconstructionefforts.

Suggested Next Steps

Western Regional Office235 Montgomery street, suite 769 / san Francisco, ca 94104tel 415.814.1100 / fax 415.989.1255 / www.railstotrails.org

National Headquarters 2121 Ward court, nW, 5th Floor Washington, Dc 20037tel 202.331.9696 fax 202.223.9257 www.railstotrails.org

Phot

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ourt

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onse

rvan

cyRails-to-Trails Conservancy wishes to thank:

The Berkeley Gardening Collaborative, particularly Beebo •Turman, and Berkeley Partners for Parks, particularly John Steere, who have exemplified remarkable persistence and dedication to this project;

The City of Berkeley, particularly Councilmember Darryl •Moore, for his strong commitment and support for the project and Mayor Tom Bates and his staff, who helped initiate this documentThe residents of Berkeley, who have contributed invaluable •ideas, time and energy to the process.

The Berkeley Santa Fe Right-of-Way

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