Fruitvale: Challanged TOD

from New Urban News

Fruitvale Village in Oakland, California, has become a reluctant symbol of the difficulties that transit-oriented development (TOD) can encounter.

Three years after the $100 million collection of apartments, retail, and community and professional services opened next to a Bay Area Rapid Transit station in the Fruitvale neighborhood, four of its 23 retail spaces remain empty. Slowness in filling the stores has been a source of frustration for the Unity Council, which sponsored the project.

The slowness has given developers and transit specialists yet another case to cite when cautioning about putting large volumes of retail space in TOD projects — at least in unproven locations. Dan Parolek, a principal at Opticos Design in Berkeley, says a developer at the Pleasant Hill BART station in Contra Costa County tried to use the example of Fruitvale “as the reason why they should do very little retail within the project plan.”

Fruitvale’s problems do not seem insurmountable — the vacancies are now on the way to being filled, says Jeff Pace, Unity Council’s vice president of finance and business opportunities. But they have sparked discussion about how much spending commuters can be counted on to do in TOD projects. They have also highlighted the need for effective parking strategies.

Pace, who joined Unity Council in 2004, after the retail problems emerged, says Fruitvale Village has been a huge success in most respects. The 3.7-acre development is now a vital center for its predominantly Latino section of Oakland. The Village’s 114,000 square feet of office, professional, and community space include a public library, a Head Start program, a community-based medical clinic, a children’s counseling clinic, and a senior center, as well as the Council’s headquarters. The project’s 47 apartments, ten of them designated “affordable,” rented quickly and have remained in demand.

Jeff Ordway, manager of property development for BART, credits the Council with helping to strengthen International Boulevard, an old commercial corridor nearby. Retail buildings on International “went from 40 percent vacancy in 2000 to less than 5 percent in 2004,” he notes.The one blot on Fruitvale’s achievement is the tortoise-like progress in filling the 40,000 square feet of retail. Some observers fault the design, pointing out that the stores are arranged along a pedestrian plaza — one that the station’s 6,500 daily commuters have no need to traverse. BART more or less mandated that the main commuter parking garage be built where it would create a short and direct route between commuters’ cars and the station, says Pace, noting, “Pedestrians getting out of their cars have no natural incentive to walk through the retail.”

Parolek says that placing the retail along a pedestrian-only plaza and then converting a city street between the plaza and International Boulevard into a pedestrian-only passage probably harmed the retail by making it harder for motorists to become familiar with the Village’s offerings.

Unity Council, like many nonprofit organizations with a social mission, was inexperienced at managing a retail center, and made mistakes in signing up merchants. National retailers were turned away while independent local merchants were favored. A locals-first policy can, of course, enhance local character. In Fruitvale, though, it led to selecting some merchants who were inexperienced and undercapitalized — unable to survive when pedestrian traffic fell short of expectations. “We turned away Starbucks twice,” says Pace. “That’s a really stupid thing to do.”

The Council did not obtain adequate legal protections. Its standard lease lacked a “going dark” clause, which would have stipulated that if a tenant did not get its business operating by a certain date, the agreement would terminate. “We have someone who has been paying rent for 21 months and is still not open,” Pace acknowledges. That business is now expected to open late this year. Leases contained no ban on retailers having other locations close by. “A record store had one store a block and a half away; they couldn’t make them both work,” says Pace, who is articulate and candid on what to do and what not to do.

FINDING REMEDIES
The Council has sharpened its leasing strategy in the past two years, and is now giving people more reasons for exploring the plaza. “We’ve been running a farmers’ market right in front of the BART patrons,” Pace says. “Our plan is to extend it through the main Fruitvale plaza.” In the summer, an outdoor cinema operates on Friday evenings in the plaza. “First Thursdays,” an event featuring food and mariachi music, operated until early October and will return in the spring.

The Council has introduced seating, better lighting, and other improvements to the passage from the plaza to International Boulevard. A public market will soon occupy one of the buildings along the passage, and there will be places for permanent outdoor stalls as well as stalls that can be assembled and disassembled each day, Pace says. Small merchants will sell arts and crafts and handmade foods such as tortillas.

At the end of October, negotiations were under way to fill the plaza’s four remaining vacancies. “We think we’re really turning the corner,” he says. Architect Ernesto Vasquez, a principal in McLarand, Vasquez, Emsiek & Partners, involved in the project for years, says Fruitvale Village is becoming a destination for people seeking Latino products and services. He urges developers: “Be patient; you need to avoid being rushed into getting tenants, and not getting the right tenants.” Delaying the retail component of a project or building it in phases may reduce the risk of its failing. Vasquez thinks conditions at Fruitvale will improve when the project’s second phase, containing approximately 300 to 450 housing units, is built.

“Retail is the Achilles’ heel of TODs,” warns Richard Cervero, a transportation specialist who teaches at Berkeley. “If not done right, it can really stigmatize a development as a loser.” Richard Willson, a Cal Poly Pomona planning professor who has advised BART on parking policy, says, “Among developers, I find a bit of naiveté about how people use transit facilities.” They often don’t realize that many commuters rush through, not buying much, Willson says. Ordway says commuters generally constitute a tertiary market — less important than the people who live in the surrounding community and individuals who live or work in the project area.Ordway says developers would be wise to study a TOD project that Calthorpe Associates was involved in planning next to a BART station in Richmond, north of Berkeley. There, buildings along a pathway to the station were constructed so they could start as wholly residential and be converted to live/work — with street-level offices or retail — after the location proves itself.

RECONSIDERING PARKING
BART has abandoned its policy of providing free parking at many of its East Bay stations. BART has also modified its requirement that when parking lots at a station are built upon, an equal number of new parking spaces must be provided, typically in garages or decks. The changes bode well for future TOD, by eliminating major financial hurdles.

Patrick Siegman at Nelson\Nygaard consultants in San Francisco, says the next step should be the establishment, by municipalities, of “parking benefit districts” in neighborhoods around transit stations. Commuters could pay to use designated on-street spaces. The revenue would be devoted to public improvements desired by the neighborhood, such as better sidewalks, lighting, and landscaping. “At $4 each for 250 cars, you’d have $1,000 a day in revenue to spruce up the neighborhood,” Siegman calculates. Parking benefit districts are being considered at two Oakland stations, Ordway says.Despite challenges, TOD is gaining momentum. On land owned by BART, nearly $2 billion of capital has already been invested in TOD or is in process or in negotiations, according to Ordway. At Pleasant Hill, which contains substantial housing and employment, approximately 40,000 square feet of space is expected to be available for retail. “It’s not just pure retail,” Parolek emphasizes. “It’s allowed to be used for professional services such as a dentist or optometrist.”

Live Theater & Shopping

excerpt from Shopping Centers Today

Federal Realty Investment Trust’s Village at Shirlington, in Arlington, Va., gained a dramatic anchor last month — literally. The locally based Signature Theatre production company moved from its space in an industrial garage to a 48,000-square-foot playhouse at the center. The Village is an outdoor, Main Street-style shopping center last renovated in 1989 and made up largely of restaurants and cafés. Tenants include Capital City Brewing Company, Caribou Coffee and Johnny Rockets. Shoppers can have dinner and then see a show, and Sam Sweet, managing director of Signature, says this has worked out very well. “We’ve promoted it as a total entertainment experience,” he said. “Instead of having to find parking and run across the street, people can park in the free garage, walk into Shirlington, perhaps have dinner and see a show.”


The playhouse is in a four-floor complex, with the first floor occupied by the Arlington County Library. The mostly musical repertoire includes Stephen Sondheim’s Into the Woods, which has been a big success, according to Sweet. Walls of glass in the lobby allow patrons to sit at the bar and look out onto the shopping crowd. With the mixture of retail and theater entertainment, Sweet says, traffic has increased, with more visitors walking in for ticket purchases.

Monroe center... emerging BOHO Center?

One of the most desirable locations for BOHO centers is at or near transit hubs such as light rail stations. The new Monroe Center in New Jersey is a perfect example of this new trend.

"A culturally friendly transit village"
An example of the opportunities provide by transit-oriented development is the 123-unit Monroe Center in New Jersy, described by the Hudson Reporter (24 January 2006) as a "high-rise condominium tower" which "will ultimately be part of a 435-unit development on a 5.5-acre site just steps from the Ninth Street stop of the Hudson Bergen Light Rail....[it] will include four high-rise residential buildings of between 10 and 13 stories, with ground floor retail, commercial arts space, and mezzanine space." It's intended to be "a culturally friendly transit village", according to the paper.

This ideal location has been attracting an eclectic mix of artists, entrepreneurs, and small businesses. The paper goes on to note:

"Already underway is the renovation of the interior of the existing Monroe Center for the Arts at 720 Monroe St. Since opening in 1990, the converted Levelor Blinds Factory has maintained an eclectic mixture of businesses that now include ad agencies, interior designers, cake bakers, architects, toy makers, dance instructors, and yoga studios. "

Accesible Urban Transit Hub

Another selling point, said the developer, is the project's location. He said that because of the property's proximity to the light rail, this project will be a good example of the "smart growth" principle of a "transit friendly community."

A transit village is a state-promoted planning initiative to redevelop and revitalize communities around transit facilities, making them appealing choices for people to live in, while lessening their reliance on cars.

More than required parking
In Hoboken, parking is always an issue, and this is one of the few projects that will provide more parking spaces than the zoning requires. When fully built out, the project will have 1,120 garage parking spaces to complement the surrounding off-street parking.

Outdoor Plaza
According to the developers, outdoor areas at Monroe Center will include one large plaza with stylistic fountains, seating decks and a "hammock park." Each new building at the community will also feature rooftop gardens. "Monroe Center's appeal as a destination will be enhanced by its substantial outdoor public areas," points out Gerard Saddel, a partner of Monroe Center Development, LLC. "A series of public parks and a plaza will be scattered throughout the entire development."

Ten Principles for Creating Successful Squares

by Project for Public Space PPS

The Small details add up to great places.

Squares have been a core focus of PPS beginning with our first project 30 years ago--Rockefeller Center's Channel Gardens. We've honed the ten principles below based on the hundreds of squares--the good and the bad--that we've analyzed and observed since then. What stands out most is that design is only a small fraction of what goes into making a great square. To really succeed, a square must take into account a host of factors that extend beyond its physical dimensions.
1. Image and Identity
A popular square in Copenhagen, Denmark.

Historically, squares were the center of communities, and they traditionally helped shape the identity of entire cities. Sometimes a fountain was used to give the square a strong image: Think of the majestic Trevi Fountain in Rome or the Swann Fountain in Philadelphia's Logan Circle. The image of many squares was closely tied to the great civic buildings located nearby, such as cathedrals, city halls, or libraries. Today, creating a square that becomes the most significant place in a city--that gives identity to whole communities--is a huge challenge, but meeting this challenge is absolutely necessary if great civic squares are to return.

2. Attractions and Destinations
Ghirardelli Square, San Francisco.

Any great square has a variety of smaller "places" within it to appeal to various people. These can include outdoor cafés, fountains, sculpture, or a bandshell for performances. These attractions don't need to be big to make the square a success. In fact, some of the best civic squares have numerous small attractions such as a vendor cart or playground that, when put together, draw people throughout the day. We often use the idea of "The Power of Ten" to set goals for destinations within a square. Creating ten good places, each with ten things to do, offers a full program for a successful square.
3. Amenities
Circular benches provide a comfortable place to sit in Rockefeller Center, New York City.

A square should feature amenities that make it comfortable for people to use. A bench or waste receptacle in just the right location can make a big difference in how people choose to use a place. Lighting can strengthen a square's identity while highlighting specific activities, entrances, or pathways. Public art can be a great magnet for children of all ages to come together. Whether temporary or permanent, a good amenity will help establish a convivial setting for social interaction.
4. Flexible Design
Tennis on the square, Copenhagen.

The use of a square changes during the course of the day, week, and year. To respond to these natural fluctuations, flexibility needs to be built in. Instead of a permanent stage, for example, a retractable or temporary stage could be used. Likewise, it is important to have on-site storage for movable chairs, tables, umbrellas, and games so they can be used at a moment's notice.

5. Seasonal Strategy
The holiday market in New York's Union Square.

A successful square can't flourish with just one design or management strategy. Great squares such as Bryant Park, the plazas of Rockefeller Center, and Detroit's new Campus Martius change with the seasons. Skating rinks, outdoor cafés, markets, horticulture displays, art and sculpture help adapt our use of the space from one season to the next.

6. Access
A short pedestrian crossing at Plaza Santa Ana in Madrid, Spain.

To be successful, a square needs to be easy to get to. The best squares are always easily accessible by foot: Surrounding streets are narrow; crosswalks are well marked; lights are timed for pedestrians, not vehicles; traffic moves slowly; and transit stops are located nearby. A square surrounded by lanes of fast-moving traffic will be cut off from pedestrians and deprived of its most essential element: people.

7. The Inner Square & the Outer Square
Ground floor retail rings the edge of this square in Verona, Italy.

Visionary park planner Frederick Law Olmsted's idea of the "inner park" and the "outer park" is just as relevant today as it was over 100 years ago. The streets and sidewalks around a square greatly affect its accessibility and use, as do the buildings that surround it. Imagine a square fronted on each side by 15-foot blank walls -- that is the worst-case scenario for the outer square. Then imagine that same square situated next to a public library: the library doors open right onto the square; people sit outside and read on the steps; maybe the children's reading room has an outdoor space right on the square, or even a bookstore and cafe. An active, welcoming outer square is essential to the well-being of the inner square.

8. Reaching Out Like an Octopus
A great square reaches out into the surrounding neighborhood, like Piazza Maggiore in Bologna, Italy.

Just as important as the edge of a square is the way that streets, sidewalks and ground floors of adjacent buildings lead into it. Like the tentacles of an octopus extending into the surrounding neighborhood, the influence of a good square (such as Union Square in New York) starts at least a block away. Vehicles slow down, walking becomes more enjoyable, and pedestrian traffic increases. Elements within the square are visible from a distance, and the ground floor activity of buildings entices pedestrians to move toward the square.

9. The Central Role of Management
Attentive maintenance is an essential part of good management in St. Stephen's Green, Dublin.

The best places are ones that people return to time and time again. The only way to achieve this is through a management plan that understands and promotes ways of keeping the square safe and lively. For example, a good manager understands existing and potential users and gears events to both types of people. Good managers become so familiar with the patterns of how people use the park that waste receptacles get emptied at just the right time and refreshment stands are open when people most want them. Good managers create a feeling of comfort and safety in a square, fixing and maintaining it so that people feel assured that someone is in charge.
10. Diverse Funding Sources
Sponsorships can help fund events like Festa Italiana in Portland's Pioneer Courthouse Square.

A well-managed square is generally beyond the scope of the average city parks or public works department, which is why partnerships have been established to operate most of the best squares in the United States. These partnerships seek to supplement what the city can provide with funding from diverse sources, including--but not limited to--rent from cafés, markets or other small commercial uses on the site; taxes on adjacent properties; film shoots; and benefit fundraisers.