Chapter 1 

Background 
WORLD WAR II HOME FRONT

As the United States entered World War II, 10 million people

entered active military service, leaving behind both the civilian

workplace and the rolls of the unemployed. However, fighting

forces alone would not win the war—weapons, ammunition,

airplanes, and ships would be needed as well. Industry,

challenged to undertake a massive buildup to produce these

supplies, aggressively began recruiting and training an effective

workforce from the population left behind. America’s home front

was activated.

The American World War II home front represents an

unprecedented scale of nationwide activity that resulted in

profound changes to the country and its citizens: women’s roles

were forever changed, minorities “cracked open” the door to

equal rights, and employer-sponsored health care programs

began to evolve. The country itself began to develop a more

cohesive identity, as citizens migrated to new areas and

intermingled with others from around the nation. America

emerged as a world power, bringing new challenges to its citizens.

World War II was indeed a watershed event—America would

never be the same.

“Rosie the Riveter” was a phrase coined to help recruit female

civilian workers and came to symbolize the workforce that was

mobilized to fill the gap. “Wendy the Welder” became another

symbol—in real life she was Janet Doyle, a welder working in the

shipyards of Richmond, California. Women faced some initial

resistance from employers while people of color encountered

more lengthy resistance; but ultimately all were brought into the

home front workforce. Rosie the Riveter has survived as the most

remembered symbol of the civilian workforce that helped win

World War II; this symbol continues to have a powerful

resonance among both women and men throughout the United

States.

The employment opportunities that opened up for women and

people of color during World War II were unprecedented.

Nationwide, 6 million women entered the workforce. African

Americans, Asians, Hispanics, and Native Americans were

eventually employed to work side-by-side with whites in

specialized, high-paying jobs. Women and people of color earned

more money than they ever had before and mastered job skills

that had been predominately performed by white men up until

then.

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Introduction

to the Park
4

CHAPTER 1: BACKGROUND
Many of the home front industries were set up at the nexus of

railroad lines and harbors where materials could be assembled

and shipped overseas. The defense industry buildup across the

nation led to the development of national recruitment efforts and

a large-scale migration of workers. As a result, the cities where the

World War II industries mobilized were confronted with

overwhelming demands for housing, transportation, community

services, shopping, and the need for expanded infrastructure to

support these basic services.

Richmond, California was ideally situated as a West Coast rail

terminus on San Francisco Bay, opening to the Pacific Ocean. By

1942, four shipyards had been built in Richmond; soon the city

was home to some 55 war-related industries. A World War II

“boomtown,” Richmond grew dramatically during the war, from

a pre-war population of fewer than 24,000 to approximately

100,000 at the war’s end. Available jobs in Richmond attracted

people from all over the country. 

To enable 24-hour production, the largest employers and the

public sector cooperated to provide unprecedented round-theclock child care, food service, health care, and employee services.

However, despite these efforts, many workers had to settle for

marginal housing, long lines at stores, and lengthy commutes—

and most Americans made many other home front sacrifices, as

well.

The World War II home front experience involved many day-today adjustments to support the war effort. Strategic materials

such as metal, paper, waste fat, nylon, silk, and rubber were

collected and recycled. Twenty common commodities, including

gasoline, sugar, coffee, shoes, butter, and meat, were carefully

rationed. Tires, cars, bicycles, vacuum cleaners, waffle irons, and

flashlights had to last because they were no longer manufactured.

People were asked to “Use it up—Wear it out—Make it do, or—

Do without.” Victory gardens cropped up everywhere. Many

Americans bought war bonds. Women replaced men in

professional sports leagues, orchestras, and other community

institutions.

Working conditions on the home front could be difficult and

dangerous and took a very high toll. A January 21, 1944, New

York Times article noted: “Industrial casualties (women and men)

between [the bombing of Pearl Harbor on December 7, 1941]

and January 1st of this year aggregated 37,500 killed, or 7,500

more than the military dead, 210,000 permanently disabled, and

4,500,000 temporarily disabled, or 60 times the number of

military wounded and missing.” While the ultimate U.S. casualty

count on the battlefront reached 295,000, the additional

casualties on the home front represented the complete price

Americans paid for victory.

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Rosie the Riveter/World War II Home Front National Historical Park
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War-related industry jobs peaked in early 1945 and

began to shut down as the last battles of the war

were fought. After the war, jobs for women and

people of color diminished dramatically. Post-war

jobs were largely reserved for returning servicemen.

Public messages were rephrased—once telling

women to come to work, the new messages advised

them that their appropriate roles were now at home.

Many, however, had found a new sense of freedom

and independence that they were not willing to give

up. There also was the expectation that those who

relocated to the home front industrial sites would

return to the places from which they had come—

most of these migrants, however, were determined

to stay in their new locations. America was changed

forever.

ESTABLISHING THE NATIONAL 

HISTORICAL PARK

The City of Richmond has long recognized the

national significance of their World War II history

and the value of preserving the historic features of

Richmond Shipyard No. 3* for future generations.

Beginning in 1997, the City Council passed

unanimously Resolution 203-97 authorizing the

submittal of a National Register of Historic Places

nomination and a California Historic Landmark

designation for Shipyard No. 3.

In 1998, Congressman George Miller introduced

HR 4483 that provided for a feasibility study to be

completed by the National Park Service to

determine whether the Rosie the Riveter Memorial

was suitable for designation as a National Park

Service affiliated site. The findings by the National

Park Service identified that it was feasible, suitable,

and appropriate to designate the Rosie the Riveter

Memorial as an affiliated area in the national park

system. In addition, the study identified that the

entire publicly owned areas formerly occupied by

the Kaiser Shipyards and the Ford Assembly

Building could be established as the Rosie the

Riveter/World War II Home Front National

Historical Park.

In 1999, the Richmond City Council unanimously

passed Resolution No. 129-99 expressing the city’s

support for the establishment of a national historical

site in partnership with the National Park Service.

Then, in 2000, Richmond’s City Council

unanimously passed two additional resolutions: 

No. 46a-00 (March 21, 2000) and No. 64-00 (April

18, 2000). These stated that, if the national historical

park were established, it would be public policy that

any future development and use of Shipyard No. 3

would be compatible with the continued

preservation of intact historic resources and with

public access to such resources. (See appendix A for

a list of city resolutions related to the national

historical park.)

In 2000, President William Jefferson Clinton signed

Public Law 106-352 establishing Rosie the

Riveter/World War II Home Front National

Historical Park (see appendix B). Congress

recognized that Richmond, California retained the

largest collection of intact historic sites and

structures that could be preserved and used to tell

the stories of the American World War II home

front. The national historical park was established—

In order to preserve for the benefit and

inspiration of the people of the United States as

a national historical park certain sites,

structures, and areas located in Richmond,

California, that are associated with the

industrial, governmental, and citizen efforts

that led to victory in World War II...

Establishment of the national historical park in

Richmond, California acknowledges the important

role played by the city and the significant

contributions and sacrifices of its citizens—and it

commemorates the efforts of countless Americans in

cities and towns across the nation who made similar

contributions and sacrifices to achieve victory in

World War II.

CHAPTER 1: BACKGROUND

*Shipyard No. 3 is often referred to locally as Terminals 5, 6,

and 7.
COOPERATING PARTNERS

Rosie the Riveter/World War II Home Front National Historical

Park consists of sites, structures, and open spaces in Richmond,

California that are associated with the industrial, governmental,

and citizen efforts that led to victory in World War II. The park

was conceived as a partnership park, with many different entities

involved in both preserving the Richmond World War II home

front and providing services to support visitor experiences. In

addition to the City of Richmond, these cooperating partners

include owners of historic resources; individuals, organizations

and businesses; nonprofit organizations that support the mission

of the park; local, regional, and state governmental entities; and

the National Park Service. More partners are expected to become

involved as the park continues to evolve.

The City of Richmond, California owns and maintains many of

the historic structures and sites that are in the national historical

park. The historic portion of Richmond Shipyard No. 3,

consisting of graving basins/dry docks and five historic shipyard

buildings, is the largest of all the sites. Closer to the city center is

historic Richmond Fire Station 67A, which continues to operate

as a firehouse.

In 2000, the city constructed and dedicated a memorial to Rosie

the Riveter. Both the memorial and the park land around it have

been included in the national historical park. Also, numerous

waterfront parks provide views of the areas where the Kaiser

Shipyards were located. These open spaces include Barbara and

Jay Vincent Park, Shimada Peace Memorial Park, Sheridan

Observation Point Park, Lucretia Edwards Park, and a portion of

the recently developed Bay Trail/Esplanade.

The Ford Assembly Building is in private ownership. The City of

Richmond and the current property owner have worked to

preserve major historic elements on the exterior of the building.

The interior is being used for adaptive contemporary uses.

Contra Costa County owns the historic Maritime and Ruth C.

Powers child development centers. Until recently, both centers

had been used for child care continuously since World War II.

The Richmond Museum Association owns and operates the SS

Red Oak Victory that was built in Richmond at Kaiser’s Shipyard

No. 1. Regularly scheduled tours of the SS Red Oak Victory are

available at its berth in Shipyard No. 3. The association also

operates the Richmond Museum of History. Although the

museum is not included in the legislation, its mission

complements the purposes of the national historical park.

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Rosie the Riveter/World War II Home Front National Historical Park
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The Rosie the Riveter Trust was established in 1999

and helps support the preservation and

interpretation of the historic resources that are now

part of Rosie the Riveter/World War II Home Front

National Historical Park. It also is the designated

cooperating association for the park.

The National Park Service brings national focus and

attention to the World War II-era resources of

Richmond. The Park Service contributes to

leveraging grants and endowments to other

cooperating partners and provides technical

assistance in preserving historic resources and

telling the American home front stories. The

National Park Service also plays a key role in

facilitating existing partnerships and in developing

new partnerships that provide for mutual benefit

among participants and support the park’s legislated

mandates. 

CHAPTER 1: BACKGROUND

Purpose of and Need

for the Plan

This general management plan provides a direction

for the management of Rosie the Riveter/World War

II Home Front National Historical Park during the

next 20 years. It provides a framework for decision

making and problem solving.

Additional detailed plans, studies, and compliance

documents may be required before some of the

proposed conditions are achieved.

This draft general management plan / environmental

assessment presents and analyzes three alternative

visions for the management and use of Rosie the

Riveter/World War II Home Front National

Historical Park. In consultation with the other

cooperating partners, the National Park Service has

identified alternative B as the preferred alternative.

The potential environmental impacts of the three

alternatives have been identified and assessed (see

“Chapter 5: Environmental Consequences”).

PURPOSE OF THE PLAN

The purposes of this general management plan for

Rosie the Riveter/World War II Home Front

National Historical Park are as follows: 

 Describe the purpose of the park, the

significance of the park’s resources, and special

mandates that will influence management

decisions.

 Define a vision for preserving Richmond’s

World War II home front structures and for

providing opportunities for visitors to explore

America’s home front stories.

 Analyze the alternative visions in relation to the

surrounding cultural setting and community. 

 Afford everyone who has a stake in decisions

affecting the national historical park an

opportunity to be involved in the planning

process and to understand the decisions that

are made. 

NEED FOR THE PLAN

A general management plan is needed to meet the

requirements of Public Law 106-352, which

established Rosie the Riveter/World War II Home

Front National Historical Park, and the National

Parks and Recreation Act of 1978. The legislation

establishing the park directs that a general

management plan be prepared in consultation with

the City of Richmond, California, and be

transmitted to the Committee on Resources of the

House of Representatives and the Committee on

Energy and Natural Resources of the Senate. 

The general management plan builds on this

legislation, and on established resolutions, laws, and

policies to develop a vision for the park’s future.
ISSUES TO BE ADDRESSED

A more detailed discussion of these topics, as well as additional

issues and concerns related to the planning effort can be found in

“Chapter 4: The Affected Environment.”

• World War II Historic Sites and Structures

The World War II-era historic sites and structures in Richmond,

California are maintained and managed by different public and

private owners. The National Park Service does not own any of

the historic sites and structures. Many of these park resources are

losing their World War II qualities and attributes while

accommodating contemporary uses. What elements of the park’s

sites and structures need to be preserved in order to tell the

World War II home front stories?

• Museum Collections

A large amount of World War II home front historic objects,

artifacts, works of art, documents, drawings, and letters are

located throughout the nation’s attics and basements and in

formal collections. What is the purpose of the park’s museum

collection and how will future acquisitions be guided?

The growing museum collection at Rosie the Riveter/World War

II Home Front National Historical Park requires an appropriate

curatorial and research facility that meets the secretary of the

interior’s standards. Where should the curatorial and research

facility be located?

• Visitor Experience

Rosie the Riveter/World War II Home Front National Historical

Park is a newly established partnership park. Currently, visitor

opportunities to explore and learn about the World War II home

front stories are not available at many of the park sites and

structures. The national historical park lacks a unified identity

among the many park sites that could help guide park visitors.

Most visitors explore the national historical park on their own,

using self-guiding brochures. There are few scheduled talks and

guided tours. Visitor orientation and information are available

through the park’s website and self-service information station.

What level and type of park services, orientation, and education

are necessary in order for visitors to experience and learn about

the themes of the national historical park?

• SS Red Oak Victory

The Richmond Museum Association owns, manages, and is

restoring the SS Red Oak Victory. There are potential alternative

locations in which to berth the SS Red Oak Victory in Richmond,

California. What is the best location to berth the SS Red Oak

Victory in order to integrate it with the World War II home front

stories and the visitor experience of the national historical park?

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Rosie the Riveter/World War II Home Front National Historical Park
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• Role of the National Park Service

The National Park Service maintains a small staff

and is leading the planning effort in establishing the

national historical park. The National Park Service

has limited financial resources and does not own or

manage the primary historic resources of the

national historical park. What role and contributions

could the National Park Service provide to this

partnership park?

THE NEXT STEPS

After the distribution of the draft general

management plan / environmental assessment there

will be a 60-day public review and comment period.

The planning team will then evaluate comments

received from individuals; organizations and

businesses; tribes; and local, state, and federal

agencies regarding the plan. If there are no

indications that a significant impact would result

from implementation of the plan, the team will

consult with the cooperating partners in preparation

of a statement of “Finding of No Significant

Impact,” or FONSI. Upon approval of the FONSI by

the regional director of the National Park Service

Pacific West Region, there will be a 30-day no-action

period before the plan is implemented. 

IMPLEMENTATION OF THE PLAN

Implementation of the approved plan will depend

on the cooperating partners, access to various

funding resources, and public support in Richmond,

California and throughout the greater Bay Area and

the nation. Approval of a plan does not guarantee

that the funding and staffing will be forthcoming.

Full implementation of the approved plan could take

many years.

Implementation of the approved plan could also be

affected by other factors. Once the general

management plan has been approved, additional

feasibility studies and more detailed planning and

environmental documentation will be completed as

needed. 

The general management plan does not describe

how particular programs or projects should be

prioritized or implemented. Those decisions will be

addressed by the cooperating partners. 

CHAPTER 1: BACKGROUND
Various documents and existing plans provide guidance and

boundaries for the content of general management plans. The

legislation creating the park identifies the park’s purpose and

helps to set boundaries on appropriate uses; the park’s

significance statements help to identify the most important

resources that should be preserved or protected; and the park’s

interpretive themes help identify key stories that should be told at

the park. Because Rosie the Riveter/World War II Home Front

National Historical Park is part of a national system of parks,

additional guidance comes from federal laws and policies.

PARK PURPOSE 

Rosie the Riveter/World War II Home Front National Historical

Park, located in the wartime boomtown of Richmond, California,

preserves and interprets the sites, structures, areas, oral histories,

and artifacts associated with the industrial, governmental, and

citizen efforts that led to victory in World War II.

PARK SIGNIFICANCE

The significance of a national historical park is the important and

distinct cultural heritage that is embodied in the places and

resources of the park. The park significance statements answer

the question as to why Rosie the Riveter/World War II Home

Front National Historical Park’s resources are distinctive and

what they contribute to our heritage. Defining the significance of

the national historical park will help cooperating partners make

decisions that preserve the properties and maintain their

character-defining features to accomplish the purpose of the

national historical park. Rosie the Riveter/World War II Home

Front National Historical Park:

 preserves an outstanding collection of World War II home

front sites, structures, and landscapes.

 is the place in the national park system dedicated to

collecting, preserving, and making accessible to visitors the

oral histories, stories, and artifacts of the World War II home

front.

 provides a place in the national park system where visitors

link to sites across the country for the purpose of exploring

the social and community issues and events that emerged on

the American home front during World War II.

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Guidance for the 

Planning Effort
12

PRIMARY INTERPRETIVE THEMES

Primary interpretive themes are the key stories,

concepts, and ideas of a park that relate to the park’s

purpose and significance. They create a foundation

for educating visitors about the national historical

park and its resources. These themes provide a

framework for visitors to form intellectual and

emotional connections with park resources and

experiences. All primary interpretive themes are of

equal priority and importance and form the

foundation of the park’s interpretive program,

although subsequent interpretive planning may

elaborate on these primary themes. The following

theme topics and theme statements were developed

through a series of public workshops in the spring of

2006.

• The Home Front and Work War II –

Mobilizing America

 The City of Richmond, California, is a dramatic

example of the widespread changes and crossfertilization of culture and ideas that occurred

during World War II as Americans migrated for

work and mixed with people of diverse ethnic

and cultural backgrounds.

 The World War II-era growth of Richmond,

California, is an excellent example of the effect

of the massive influx of people on a small town

and its infrastructure and the subsequent

development and unintended consequences

that resulted.

 The cityscape of Richmond, California, (streets,

railroad tracks, businesses and homes) provides

opportunities to explore the critical and

necessary connections between industry,

transportation, commercial activity, and family

life on the home front.

• Common Purpose / Disparate

Experience

 While the United States was united in fighting

oppression and injustice overseas, a number of

Americans were still experiencing prejudice,

intolerance, and discrimination on the home

front.

• Shedding Light on America’s

Promise

 Although gender discrimination did not end as

a result of World War II, American women were

given more diverse working opportunities, as

represented by the iconic symbol of “Rosie the

Riveter” which helped to set the stage for the

Women’s Rights Movement and expanding

opportunities for women.

 In spite of new opportunities for women and

minorities, gender and racial discrimination,

economic disadvantages, and the lack of liberty

and justice for all undermined the sense of

common purpose and spirit and shaped the

disparate opportunities experienced by

individuals.

• America Today – The Home Front

Legacy

 Inventions and improvements to our material

cultural brought about by World War II

continue to be important and relevant today;

these include mass-production processes,

technological advances (such as jet and rocket

propulsion and atomic energy application), and

advances in industrial safety.

 American family structure, the role of women

and minorities in society, and the struggles of

the labor and civil rights movements advanced

to the forefront in World War II and

dramatically redefined American society.

 The relationship between government and

industry changed dramatically during World

War II; they became partners, laying the

groundwork for what President Eisenhower

called the “Military/Industrial Complex.”

 Many elements of today’s society are a legacy of

the World War II home front effort: employerprovided healthcare, publicly supported

childcare, major demographic shifts, and

resulting impacts on urban and rural America.

CHAPTER 1: BACKGROUND
SPECIAL MANDATES AND ADMINISTRATIVE

COMMITMENTS

When Congress created Rosie the Riveter/World War II Home

Front National Historical Park (Public Law 106-352), the

legislation included the following directions and constraints in

the establishment of the park: 

 The national historical park will be developed and operated

by cooperating partners.

 The general management plan will be prepared in

consultation with the City of Richmond, California.

 The general management plan shall include a plan to

preserve the historic setting of the Rosie the Riveter/World

War II Home Front National Historical Park, which shall be

jointly developed and approved by the City of Richmond.

 The general management plan shall include a determination

of whether there are additional representative sites in

Richmond that should be added to the park, or whether

there are sites in the rest of the United States related to the

industrial, governmental, and citizen efforts during World

War II that should be linked to and interpreted at the park.

Such determination shall consider any information or

finding developed in the World War II Home Front Theme

Study.

 The World War II Home Front Education Center shall

include a program that allows for distance learning and links

to other representative sites across the country, for the

purpose of educating the public as to the significance of the

site and the World War II home front.

 The National Park Service may interpret the story of Rosie

the Riveter and the World War II home front.

 The National Park Service may conduct and maintain oral

histories that are related to the World War II home front

theme.

 The National Park Service may acquire and provide for the

curation of historic artifacts that relate to the park.

 The National Park Service may provide technical assistance

in the preservation of historic properties that support the

story.

 The National Park Service shall administer the park in

accordance with Public Law 106-352 and the provisions of

law generally applicable to units of the national park system,

including the act entitled “An Act to establish a National

Park Service.”

 National Park Service funds cannot be used for operation,

maintenance, or preservation of the SS Red Oak Victory.

 The National Park Service may not own certain properties

and may not maintain or manage them, although they may

enter into agreements for interpretation and technical

assistance (see table 1).

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Rosie the Riveter/World War II Home Front National Historical Park
14

CHAPTER 1: BACKGROUND

PARK SITES LEASE AND ACQUISITION COOPERATIVE AGREEMENT

Ford Assembly Building

Richmond Shipyard No. 3

National Register Historic District

Sheet Metal Shop

5 Graving Basins/Dry Docks

General Warehouse

Machine Shop

Forge Shop

First Aid Station

Cafeteria

Whirley Crane

Open Space Parks, City of

Richmond

Shimada Peace Memorial Park

Lucretia Edwards Park

Barbara and Jay Vincent Park

Rosie the Riveter Memorial

Bay Trail/Esplanade

Sheridan Observation Point Park

SS Red Oak Victory

Kaiser Permanente Field Hospital

Fire Station 67A,

City of Richmond

Maritime Child 

Development Center

Ruth C. Powers Child

Development Center

World War II War Workers

Housing

Leasehold Interest

Public Law 106-352, Sec. 3 (e)(1)

Ford Assembly Building.— The

National Park Service may acquire

a leasehold interest in the Ford

Assembly Building for the 

purposes of operating a World

War II Home Front Education

Center.

Park legislation does not provide

guidance on lease agreements

or acquisition at these park sites.

Acquisition

Public Law 106-352, Sec. 3 (e)(2)

The National Park Service may

acquire, from willing sellers, lands

or interests in the World War II

day care centers, the World War II

worker housing, the Kaiser

Permanente Field Hospital, and

Fire Station 67A, through 

donation, purchase with donated

or appropriated funds, transfer

from any other Federal agency, or

exchange.

Limited Agreement

Public Law 106-352,

Sec. 3 (b)(2)

The National Park Service may

enter into cooperative agreements

for interpretation and technical

assistance with preservation.

Limited Agreement

Public Law 106-352,

Sec. 3 (b)(2)

The National Park Service may

enter into cooperative agreements

for interpretation and technical

assistance with preservation.

General Agreement 

Public Law 106-352,

Sec. 3 (b)(1)

The National Park Service may

enter into cooperative agreements

to mark, interpret, improve,

restore, and provide technical

assistance with respect to the

preservation and interpretation of

such properties. 

The National Park Service may consult and enter into a cooperative agreement with interested parties for interpretation and technical assistance with

the preservation of this vessel, but no authorized funds may be used for the

operation, maintenance, or preservation of the vessel.

Table 1: Legislative Guidance for Developing General and Cooperative Agreements 

This table displays the different types of agreements that may be entered into by the National Park Service and

the types of acquisitions permitted for the National Park Service. The specific guidance varies with each park site. 
LAWS 

This section identifies some of the key laws that

provide guidance for establishing and managing

Rosie the Riveter/World War II Home Front

National Historical Park.

As with all units of the national park system, the

management of Rosie the Riveter/World War II

Home Front National Historical Park is guided by

the 1916 Organic Act that created the National Park

Service; the General Authorities Act of 1970; the act

of March 27, 1978, relating to the management of

the national park system; and the National Parks

Omnibus Management Act (1998). Other laws and

executive orders have much broader application,

such as the Endangered Species Act, the National

Historic Preservation Act, and Executive Order

11990 addressing the protection of wetlands.

The NPS Organic Act (16 USC Section 1) provides

the fundamental management direction for all units

of the national park system:

[P]romote and regulate the use of the Federal

areas known as national parks, monuments,

and reservations...by such means and

measures as conform to the fundamental

purpose of said parks, monuments and

reservations, which purpose is to conserve the

scenery and the natural and historic objects

and the wild life therein and to provide for the

enjoyment of the same in such manner and by

such means as will leave them unimpaired for

the enjoyment of future generations.

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Rosie the Riveter/World War II Home Front National Historical Park

The National Park System General Authorities Act (16

USC Section 1a-1 et seq.) affirms that while all

national park system units remain “distinct in

character,” they are “united through their interrelated

purposes and resources into one national park system

as cumulative expressions of a single national

heritage.” The act makes it clear that the NPS Organic

Act and other protective mandates apply equally to all

units of the system.

POLICIES

Rosie the Riveter/World War II Home Front National

Historical Park is a partnership park where the

National Park Service is a cooperating partner with a

defined set of responsibilities. The role and

responsibilities of the National Park Service are

guided by the agency’s management policies. 

Appendix C contains a table that summarizes the

conditions prescribed by laws, regulations, and

policies that are most pertinent to the planning and

management of Rosie the Riveter/World War II Home

Front National Historical Park. Although many of

these polices do not govern the properties and

actions of cooperating partners, they can help inform

and provide guidance to decisions relating to the

preservation and management of the park’s cultural

resources.
16

Relationship of this General

Management Plan to Other

Planning Efforts

6. Ensure a proper balance between economic and

physical development in Richmond and

protection and enhancement of the natural

environment.

7. Promote a coherent sense of place and create a

community of pleasant contrasts through skillful

land-use planning, urban design, and use of

visual elements such as scenic routes and

beautification of gateways and visual corridors.

8. Guide future growth so that the community

remains an attractive, uncrowded, and pleasant

place to live and work.

9. Attain a new level of mutually beneficial

communication and coordinated planning

between Richmond and its neighboring

jurisdictions, other public agencies, and the

regional agencies.

10. Support the educational opportunities in the

city.

11. Provide an acceptable noise environment for

existing and future residents.

12. Protect the community from risks to human life

and property caused by natural and

technological disasters.

The City of Richmond and the National Park

Service are working to coordinate planning efforts;

the preferred alternative from the park’s general

management plan will appear as a unique element in

the city’s general plan. When adopted by the City of

Richmond City Council, the park's general

management plan and city’s general plan will have

the same vision for the park.

• Zoning Ordinance

The zoning ordinance defines the desired land use

for the City of Richmond. The ordinance is tied to

the Richmond General Plan. The sites and structures

of the national historical park are in a variety of

land-use zones dispersed throughout Richmond. As

the Richmond General Plan is being updated,

Rosie the Riveter/World War II Home Front

National Historical Park includes historic sites and

structures dispersed throughout Richmond,

California. In this northeast section of San Francisco

Bay there are numerous local and regional plans that

could influence the management of the national

historical park. The following narrative highlights

some of these plans and identifies their relationship

to this general management plan.

CITY OF RICHMOND, CALIFORNIA

• Richmond General Plan 1994

(Revision Underway)

The state of California requires county and city

governments to adopt a comprehensive, long-term

general plan. Currently, the City of Richmond is in

the process of updating their 1994 general plan. This

plan is intended to guide the community’s longrange development. Its goals and policies represent

the city’s overall philosophy on public and private

development and provide a foundation for decision

making. The current 1994 general plan contains the

following 12 goals:

1. Provide attractive residential neighborhoods

with a variety of dwelling types and prices that

are affordable to all segments of the population.

2. Provide community facilities, commercial

services, and amenities that are easily accessible

to residential neighborhoods.

3. Provide for a range of commercial and industrial

uses to stimulate a strong, growing local

economy and job opportunities for residents.

4. Provide a safe, attractive and efficient circulation

system that ensures ongoing convenient access

to all residential, business, and recreational areas

by all modes of transportation.

5. Encourage a level of urban design and

beautification that improves the aesthetic and

economic values of individual properties and

neighborhoods for existing and future residents.
elements of this general management plan could be incorporated

and revisions in local zoning might follow. Currently, properties

in the national historical park are located in the following landuse zones:

 Ford Assembly Building: Light Industrial 

 Ruth C. Powers Child Development Center: Single

Family—Low Density Residential 

 Richmond Shipyard No. 3: Heavy Industrial and Marine

Industrial 

 Maritime Child Development Center, Richmond Fire

Station 67A, and Kaiser Permanente Field Hospital:

Public and Civic Uses 

 Rosie the Riveter Memorial, Lucretia Edwards Park, Bay

Trail/Esplanade, Barbara and Jay Vincent Park, and

Shimada Peace Memorial Park: Planned Area District 

• Ford Assembly Building Reuse Plan

The Ford Assembly Building is designated as a park site in the

legislation establishing Rosie the Riveter/World War II Home

Front National Historical Park. The City of Richmond invested in

the preservation and earthquake retrofit of the building and then

sold the structure to a private developer as an economic

generation project for mixed use. The reuse plan for the Ford

Assembly Building includes retail space, space for cultural

activities, and areas for light industrial use. This project has been

approved by the City of Richmond. The approved plan also

includes provisions for housing the NPS-operated World War II

Home Front Visitor/Education Center.

CONTRA COSTA COUNTY, CALIFORNIA

• Shaping Our Future Vision

Contra Costa County has developed, in conjunction with 19 cities

in the county, a vision for the county and its growth. The vision

addresses growth-related issues such as using land more

efficiently, preserving the integrity of existing neighborhoods,

reducing traffic congestion, redeveloping business districts, and

preserving open spaces and hillsides. It recommends that county

and local municipalities coordinate general plans and zoning

efforts with the Shaping Our Future Vision. An integral element of

the vision is to encourage the accommodation of growth in

targeted reinvestment and infill areas, which will preserve

existing open space and promote a stronger economic viability in

those neighborhoods. All alternatives in this general management

plan for the national historical park are consistent with the vision. 

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Rosie the Riveter/World War II Home Front National Historical Park
18

SAN FRANCISCO BAY CONSERVATION

AND DEVELOPMENT COMMISSION

San Francisco Bay Conservation and Development

Commission (BCDC) is the regional planning

authority for the San Francisco Bay Area. The agency

works to monitor and ensure a continuing supply of

port facilities within the Bay Area. Any change in use

of Richmond’s ports away from water-dependent

uses requires review and approval. 

The development commission is authorized to

control bay filling and dredging and bay-related

shoreline development. Areas in the development

commission’s jurisdiction include the San Francisco

Bay, a shoreline band 100 feet inland, and several

other distinct features in the Bay Area such as salt

ponds and managed wetlands. Several BCDC plans

affect development efforts along the Richmond

shoreline.

• San Francisco Bay Plan

The San Francisco Bay Plan quantifies how the Bay

Conservation and Development Commission

proposes to reach its primary goal of developing the

bay and associated shoreline to the highest potential.

The plan identifies priority use areas in the bay,

including ports, water-related industries, wateroriented recreation, airports, and wildlife refuges.

The plan outlines the permitting policies and

procedures for activities in priority-use and

nonpriority-use areas and how they will be granted. 

Richmond Shipyard No. 3 is in the port priority-use

designated area for the Port of Richmond. The

cooperating partners will work with the Bay

Conservation and Development Commission to

address potential issues related to management

options that provide for public access to the historic

sites in the port priority-use designated areas.

• Seaport Plan

The Seaport Plan is a second tier document to the

San Francisco Bay Plan. It provides specific details

about facilities identified as port priority-use areas in

the San Francisco Bay Plan. The data includes

boundaries of port priority-use areas, cargo

forecasts, policies, and planned improvements. The

Seaport Plan recommends changes and upgrades at

specific ports and their terminals. The cooperating

partners will work with the Bay Conservation and

Development Commission to address potential

issues of providing for public access to the historic

sites in the port priority-use areas. 

• Special Area Plan: South Richmond

Shoreline

The Special Area Plan amends both the San

Francisco Bay Plan and the Richmond General Plan.

The aim of the Special Area Plan is to achieve

compatibility between the two plans. The overall

goals are to integrate the City of Richmond interests

and regional interests and to better balance

conservation and development concerns. The

Special Area Plan covers a geographic region south

of I-580 from just west of Shipyard No. 3 to the

Alameda County line to the east. All national

historical park sites south of I-580 are covered by

this plan. The South Richmond shoreline is broken

into four sub-areas. Park sites are in the Richmond

Inner Harbor and Santa Fe Channel sub-areas. The

Special Area Plan identifies future development goals

for these sub-areas. In the Richmond Inner Harbor

sub-area, the goals are to delete the port priority-use

designation and develop a marina and residential,

commercial, and open space areas. In the Santa Fe

Channel sub-area, the future development goals are

to maintain the port priority-use designation and

encourage public access where feasible. The

alternatives in this general management plan for the

national historical park are consistent with the

Special Area Plan.

ASSOCIATION OF BAY AREA

GOVERNMENTS

• Bay Trail Plan

The Association of Bay Area Governments

developed the Bay Trail Plan pursuant to California

Senate Bill 100. The Bay Trail is to be a regional

hiking and bicycling trail around the perimeter of

the San Francisco and San Pablo bays. Senate Bill

100 mandates that the Bay Trail provide connections

to existing park and recreation facilities, create links

to existing and proposed transportation facilities,

and avoid adverse effects on environmentally

sensitive areas. 

The Bay Trail connects all of the national historical

park’s sites that are along Richmond’s waterfront.

All alternatives in this general management plan for

CHAPTER 1: BACKGROUND
the national historical park are consistent with the purposes and

objectives of the Bay Trail.

SAN FRANCISCO BAY AREA WATER 

TRANSIT AUTHORITY 

The San Francisco Bay Area Water Transit Authority (Water

Transit Authority) is a regional agency authorized by the state of

California to operate a comprehensive San Francisco Bay Area

public water transit system. The Water Transit Authority’s Final

Program Environmental Impact Report: Expansion of Ferry Transit

Service in the San Francisco Bay Area outlines a comprehensive

strategy for expanding water transportation services in the San

Francisco Bay. The Water Transit Authority’s goal during the next

20 years is to develop a reliable, convenient, flexible, and costeffective water transit system that will help reduce vehicle

congestion and pollution in the Bay Area. In 2003 the Water

Transit Authority plan was approved by state statute. When the

plan is fully implemented, the Water Transit Authority estimates

that commuter-based ferry ridership will grow to approximately

12 million riders annually by 2025. The primary objectives of the

Water Transit Authority plan include the following:

 addition of eight new ferry routes plus improved service

on the existing ferry systems

 addition of 31 new passenger ferries over the next 10

years

 acquisition of clean emission vessels

 provision of convenient landside connections to

terminals

 expansion of facilities at the San Francisco Ferry

Building 

 construction of two spare vessels 

 partnering with Redwood City, Treasure Island,

Antioch, Martinez, Hercules, and Moffett Field to

continue planning their respective waterfronts

 pursuit of funding from federal and local sources

In addition, new water transportation routes are proposed for

numerous Bay Area communities including Richmond. The

Water Transit Authority is coordinating with the City of

Richmond and Contra Costa County in planning the potential

route. In this general management plan, the concept of water

transportation service is a desirable goal, as it would provide easy

and convenient visitor access to Rosie the Riveter/World War II

Home Front National Historical Park from other communities

throughout the San Francisco Bay Area.

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Rosie the Riveter/World War II Home Front National Historical Park