APPENDIX E SUPPORTING TECHNICAL INFORMATION E.1 VISUAL RESOURCES AND AESTHETICS ASSUMPTIONS AND PHOTOGRAPHIC DOCUMENTATION Appendix E: Visual Resources and Aesthetics Assumptions and Photographic Documentation
E.1 VISUAL RESOURCES AND AESTHETICS ASSUMPTIONS AND PHOTOGRAPHIC DOCUMENTATION
Methodology The methods used to study visual resources include a review of pertinent data concerning existing conditions and project alternatives, field observations, and photo documentation offsite features including views of the islands from distant vantage points. Literature reviewed included the Treasure Island Reuse Plan Existing Conditions Reports (ROMA et al. 1995a, 1995b); Base Exterior Architecture Plan (U.S. Navy 1982); Naval Station Treasure Island Land Management Plan (U.S. Navy 1979), Naval Station Treasure Island Natural Resources Management Plan (U.S. Navy 1986), and Naval Station Treasure Island Master Plan Update (U.S. Navy 1988b). The visual resource assessment principles of viewing distance, viewer sensitivity, and visual contrast of the proposed modifications have been applied in this analysis, as described below. Figures E-1 and E-2 identify the photo locations used in the figures of existing views. These figures and photographs are found at the end of this appendix.
Treasure Island Character Existing Treasure Island development is characterized by various military support facilities including housing, institutional, retail/administrative, and industrial (Photos 1, 3, and 5). Treasure Island’s approximately 3 miles of perimeter shoreline is protected by a rock-filled seawall, which extends 13 to 16 feet National Geodetic Vertical Datum (NGVD). A paved maintenance road with restricted vehicular access along the top of the seawall is used as a bicycle and running path. The seawall height limits ground- based views of the surrounding Bay from many Treasure Island locations, particularly on the west and north sides where the seawall is the highest.
Treasure Island is entered via the Main Gate at the southwest corner of the island. An internal network of wide streets provides access in a grid pattern except within the residential area. Streets and parking areas cover nearly 25 percent of the surface.
Gateway and Museum The gateway provides entry to Treasure Island at the end of a causeway from Yerba Buena Island. The iron entry gate is painted a dark red-brown similar to the Golden Gate Bridge (Photo 2).
West-Side Frontage Road (Avenue of Palms) The west side of Treasure Island is distinguished by the regularly spaced row of palm trees with landscape shrubs and ground cover along the Bay side of the Avenue of Palms. The low profile well-maintained buildings and grounds along the east side of the Avenue of Palms contribute to the park-like aesthetic of this area.
Residential Areas On the northern side of the island, two-story townhouse and apartment-style family housing is arranged in neighborhoods on curving streets, which provides a moderately distinctive aesthetic character (Photo 3). The lack of substantial landscaping, however, gives much of this development a plain and institutional appearance. Views of the Bay
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are possible from upper story windows of units on the outer edge of the development. First floor views to the Bay and beyond are blocked by fences or the seawall.
Dormitories and Barracks In the west-central area of Treasure Island, large dormitory buildings, from 3 to 6 stories high, are set among open space and park-like grounds.
East Side Industrial Area and Frontage Road Treasure Island industrial facilities, including the sewage treatment plant and fire fighting school, are along the east side of the island. Avenue N, which runs adjacent and parallel to the east shore, features a sidewalk on its east side and palm trees interspersed with benches and landscape shrubs (Photo 4). Views from this area include the waters of the Bay, the east span of the SFOBB, and the City and Port of Oakland.
North-central Retail and Open Space Area Retail outlets of one- and two-story shops, including the Navy Exchange, are in the north-central area of Treasure Island. These are surrounded by parking lots, vacant lots, and other open space areas. Well-maintained picnic grounds and ball fields are nearby.
Dock Area On the southeast around Piers 1, 11, and 12, shop buildings and chain-link fences restrict access to the piers and help to create an industrial character against the backdrop of the east side of Yerba Buena Island and the east span of the SFOBB.
Former Hangar Buildings East of Building 1, the two largest buildings on Treasure Island, originally constructed as aircraft hangars, dominate the landscape (Photo 5). The similar style and color of Building 1 and the hangars ties the three buildings together visually.
Conference Center, Medical/Dental Clinic The Nimitz Conference Center is in the south-central area of the island, as are the medical/dental clinic and other office buildings. The conference center building has a low profile and is set among a grove of mature trees and well-maintained landscaped grounds. The medical/dental clinic is a relatively new and attractive building in an open setting of large lawns and some fairly mature trees.
Clipper Cove Area Clipper Cove is in a protected area on the east side of the isthmus connecting Treasure Island with Yerba Buena Island. It provides the highest scenic qualities on the island (Photo 6).
Yerba Buena Island Character Yerba Buena Island is less developed than Treasure Island. The Coast Guard maintains and operates a relatively small installation on the island’s south side. NSTI
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occupies the most visible portions of the island, including its entire northern flank and summit. The SFOBB/I-80 crosses the island, providing the only roadway links to the mainland. Six exit and entrance ramps connect the bridge to the island—one off-ramp and two on-ramps in the westbound direction, and two off-ramps and one on-ramp in the eastbound direction. The bridge structure is owned by the California Department of Transportation (Caltrans), while the ramps are owned by Navy.
A network of narrow hilly roads wind around the central portion of the island providing access to a variety of structures, mostly housing. Several of these buildings are more than 50 years old. Quarters 1 is a large Classic Revival residence built in 1899 and listed on the National Register of Historic Places. Quarters 2-10 have been determined eligible for listing in the National Register. Section 3.4, Cultural Resources, provides more detail on buildings of historic significance.
A small park on Clipper Cove lays just off the roadway near the intersection of Macalla and Treasure Island Roads. The park has a small lawn area, benches, and picnic tables and its south end is the head of the Clipper Cove Trail. From the park’s east edge, a steep, wooden staircase leads down to a narrow sandy beach.
Views and Visibility of NSTI Treasure Island and Yerba Buena Island are visible from much of the surrounding ROI. Land-based vantage points are mostly from distances greater than 2 miles. Viewing distances are important in determining how noticeable a landscape feature or potential visual impact would be. Foreground distances, defined here as 0 to 0.5 miles, permit perception of detail on individual small-scale landscape features. Middleground viewing distances, defined here as 0.5 to 3 miles, permit relationships between large and moderately sized objects to be perceived, with some perception of colors, textures, individual forms, and details visible. Background viewing distances, defined here as greater than 3 miles, generally permit only the broad perception of large features, such as land masses and large scale landscape patterns, with little distinction of color, texture, and detail.
Viewer sensitivity refers to the level of interest that viewers are likely to have in aesthetic qualities of a view. Sensitivity varies with the type of viewer, the number of viewers, the mode of travel and duration of viewing, and viewing distance. The most sensitive views (high sensitivity) are from locations where large numbers of recreational users specifically go (such as a public vista point) to spend time viewing scenery or appreciating aesthetic qualities. Low sensitivity views are associated with industrial areas of low scenic quality, seen primarily by people who work in the area or areas seen in the background or seldom seen by the public. Views of intermediate sensitivity (moderate visual sensitivity) are associated with highway views seen in middleground by moderate numbers of people or residential views seen in middleground in areas not characterized as view lots.
Following is a discussion of different types of viewing situations and viewers that apply to NSTI.
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Views from Open Space Areas, Parks, and Locations in San Francisco Public views of NSTI are available from many San Francisco locations, most notably from the Embarcadero/Central Waterfront area of the City, with direct views towards NSTI, that extends for about 2.5 miles from south of the SFOBB (almost to China Basin) to the Pier 39 area. This area provides middleground views of the western sides of the islands and the nearest ground-based views. Viewer types include commuters, tourists, users of the waterfront promenade (e.g., joggers), and lunch-time office workers. Several locations offers views of longer duration, such as waterfront restaurants, recreational piers (Photo 7), ferry terminals, the Ferry Plaza, and the future Embarcadero Park. Ground-level views from the Embarcadero roadway, Muni transit line, and other open space on the landward side of the Embarcadero (e.g., Justin Herman Plaza) have limited visual access to the islands due to the interposition of waterfront buildings. Upper floors of many downtown buildings, however, afford spectacular views.
Golden Gate Bridge/Fort Point/Marin Headlands The Golden Gate National Recreation Area (GGNRA) occupies much of the land offering scenic viewing opportunities near the Golden Gate Bridge. Views of Treasure Island and Yerba Buena Island are partially blocked from this area, due to topography and the orientation of views towards the north rather than to the east. The area around Fort Point and the southern anchor of the Golden Gate Bridge receives heavy traffic from tourists and park users and provides open views of Treasure Island; however, the background viewing distance (over 5 miles) and the presence of more dominant landscape features, such as the bridge, Alcatraz, the San Francisco waterfront, and the Transamerica Pyramid reduces the contribution of NSTI to the public view.
The Golden Gate Bridge offers NSTI views for pedestrians from its eastern walkway, one of the nation’s most heavily-used locations for sightseeing. Both Treasure Island and Yerba Buena Island are visible and centrally located in the view, but the background viewing distance reduces their prominence. The Marin Headlands and vista points at the northern bridge anchorage afford views similar to those from the bridge. Alcatraz Island partially blocks the view of Treasure Island from some of these locations.
Alcatraz Island Alcatraz Island (Alcatraz) provides daily self-guided tours of the former prison island. Alcatraz is reached only by ferry from San Francisco. Public views from Alcatraz of Treasure Island, from a distance of just over 2 miles, are some of the closest ground- based views.
Angel Island Angel Island is a state park and provides middleground views (at a 3-mile distance) of NSTI. The Angel Island perimeter trail offers views of both Treasure Island and Yerba Buena Islands and the SFOBB.
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North Bay The Sausalito waterfront is a popular public viewing area for residents and visitors, and provides some open views of the San Francisco skyline, the East Bay, Angel Island, Alcatraz, and Treasure Island and Yerba Buena Island. These latter are background, however, for views are dominated by the City skyline. Mount Tamalpais provides spectacular elevated panoramic views of the entire Bay Area from its summit, including views of Treasure Island and Yerba Buena Island.
East Bay The East Bay Shore, extending from the City of Richmond on the north to Oakland on the south, contains a series of parks and open space areas with views to NSTI from distances of 3 to 6 miles. The Richmond shoreline features various regional parks, local parks, and marinas, but the background viewing distances of over 5 miles and predominance of other nearer features and the skyline makes NSTI relatively inconspicuous. The City of Albany shoreline, including a future park on the old landfill site, the public beach, Golden Gate Fields racetrack area, and future shoreline park at the racetrack site, provides views of NSTI at a background distance of approximately 4 miles.
The Berkeley waterfront and marina provide an array of vantage points, including restaurants, a marina, open space, and the Berkeley Pier. NSTI is seen from 3 to 4 miles in the distance, against the backdrop of San Francisco. Under certain lighting conditions, especially in early morning sunshine, the larger NSTI pastel-colored buildings become quite conspicuous, most notably the former hangar buildings (similar to conditions shown in Photo 9), along with Yerba Buena Island and the east span of the SFOBB.
The Emeryville waterfront is about 3 miles from NSTI and represents one of the closer East Bay views. Middleground views are obtained from its westernmost parks and shoreline trail (Photo 9) and from restaurants and picnic areas. The northern half of Treasure Island is seen against the horizon of the Golden Gate and Golden Gate Bridge, and individual NSTI buildings are distinguishable from this viewing distance and direction.
The Emeryville shoreline extends to other public access locations around the Emeryville Crescent, including Radio Park, a small beach near the eastern landfall of the SFOBB, with middleground views of Treasure Island and Yerba Buena Island. Current highway construction on I-80 will result in enhanced public waterfront access and extensions of bicycle trails in Emeryville and other East Bay communities. When the planned continuous East Bay shoreline trail is completed, this would also add to viewing opportunities.
From various local and regional parks in the Berkeley and East Bay hills, panoramic long distance views of the Bay and NSTI are available, but at background distances. City of Oakland public viewpoints and potential future park development within the Port of Oakland Vision 2000 Program and Alameda Naval Air Station would provide
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some middleground views of south Yerba Buena Island, which blocks views of Treasure Island from these vantages.
Aesthetics Opportunities and Constraints Key issues affecting opportunities and constraints for visual enhancement and aesthetics in the reuse of NSTI include the following:
• Visual access to the Bay and surrounding region from user areas on the island, based on view blockage by such structures as new buildings and the peripheral dike);
• Historic landscape integrity around cultural resource sites in conjunction with the cultural resource studies;
• Shadow effects on public open space in relation to other climatic effects, especially wind; and
• Urban design character in relation to other City waterfront areas in terms of massing, heights, density, and recognizable design themes, depending on the nature of the visitor—serving development).
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Source: U.S. Navy, 2003 Naval Station Treasure Island, California Transfer and Reuse of Naval Station Treasure Island Figure E-1 8/12/03 vsa ...\280665675 Treasure Island\FEIR aug03\E-1 photo locs.cdr Emeryville 10 9
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Scale in Miles Treasure Island and Yerba Buena Island can be seen LEGEND: from various vantage points Photograph Location throughout the Bay Area. 10 Photograph Locations in Bay Area Photograph Direction San Francisco Bay Area, California Source: U.S. Navy, 2003 Transfer and Reuse of Naval Station Treasure Island Figure E-2
8/07/03 vsa ...\280665675 Treasure Island\FEIR aug03\E-2 photo locs BA.cdr Photos 1–4 Naval Station Treasure Island, California Transfer and Reuse of Naval Station Treasure Island 8/07/03 vsa ...\280665675 Treasure Island\FEIR aug03\AppxE__photos 1-4.cdr Appendix E Photos 5,6 Naval Station Treasure Island, California Transfer and Reuse of Naval Station Treasure Island 8/07/03 vsa ...\280665675 Treasure Island\FEIR aug03\Appx E__photos 5,6.cdr Appendix E Photos 7–9 Naval Station Treasure Island, California Transfer and Reuse of Naval Station Treasure Island 8/07/03 vsa ...\280665675 Treasure Island\FEIR aug03\Appx E__photos 7-9.cdr Appendix E Photos 10–13 Naval Station Treasure Island, California Transfer and Reuse of Naval Station Treasure Island 8/07/03 vsa ...\280665675 Treasure Island\FEIR aug03\Appx E__photos 10-13.cdr Appendix E E.2 POPULATION, EMPLOYMENT, AND HOUSING Appendix E: Population, Employment, and Housing
E.2 POPULATION, EMPLOYMENT, AND HOUSING
Population and Employment Assumptions This appendix describes the assumptions that were used to estimate population and employment impacts associated with the three NSTI reuse alternatives considered in the EIR. Sources are noted throughout the text with full references provided at the end of the appendix.
Population Estimation Assumptions For the purpose of this analysis, household size for existing housing units at NSTI was estimated to be 3.2 persons, while household size for newly constructed units was estimated to be 2.3 persons (Mara Feeney & Associates estimate). The rationale for these assumptions is presented in the following paragraphs.
Factors that might attract larger households to Treasure Island include the availability of an elementary school and childcare center. However, the access constraints could be a major deterrent to families with children who might have to be shuttled to a variety of after-school activities, medical appointments, shopping, etc.
According to the 1990 U.S. Census, the average household size in San Francisco was 2.3, and at NSTI was 3.7, reflecting the larger size of military families in comparison to typical San Francisco households. At NSTI, existing military family housing units have two to four bedrooms. It seems likely that in the future these units would be allocated to relatively large households (e.g., larger San Francisco families having the greatest need for space, and/or TIHDI to provide support services for families or groups of adults). The Coast Guard does not plan to occupy housing on Yerba Buena Island and Treasure Island, other than the five historic single-family housing units currently occupied on U.S. Coast Guard property on Yerba Buena Island.
A variety of assumptions have been made regarding household size in current base closure and reuse studies. The Presidio Planning Socioeconomic Analysis Report assumed an average household size of 3.2 for Presidio reuse, based on San Francisco’s average family size in 1990, as opposed to average household size (Jones & Jones, Inc. 1994). The NSTI Reuse Plan assumed 1.5 persons per household for new construction at Yerba Buena Island and 1.8 persons per household for new housing construction on Treasure Island (OMBC 1996). The Mayor’s Office currently is assuming an average household size of 2.5 persons per household in its NSTI projections (Berkson 1997).
Based on a consideration of the above information, it was decided that using two different household sizes—one for existing units and one for new units (which are likely to be built at higher densities)—would provide the most accurate population estimates. Therefore, for existing units, a household size of 3.2 persons is assumed, while a household size of 2.3 is projected for new units.
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Population associated with live-work units was estimated at 1.25 persons per unit (Mara Feeney & Associates estimate). Treasure Island population estimates also include the brig inmate population, which is estimated to be 90 (HMH 1997).
Employment Estimation Assumptions The employment density factors in Table E-1 were used to estimate employment from land uses proposed under each NSTI reuse scenario (Tables E-2 to E-4).
Table E-1 Employment Multipliers for Each Land Use
Land Use Employment Density Factor Source Publicly Oriented Themed Attraction 0.7 jobs per 1,000 visitors, with Berkson 1997 FTEs1 calculated as half of total jobs Hotels 1 employee per room OMBC 1996; ROMA 1994; EPS 1997 Conference Facilities 1 employee per 5,000 sf EPS 1997 Retail and Restaurants 1 employee per 500 sf Jones & Jones, Inc. 1994; ROMA 1994; EPS 1997 Entertainment 1 employee per 2,500 sf Mara Feeney & Associates estimate Center/Amphitheater Wedding Chapel 1 FTE1 Mara Feeney & Associates estimate Museum 1 employee per 2,500 sf OMBC 1996; EPS 1997 Mixed Use/Office 1 employee per 385 sf Jones & Jones, Inc. 1994 Film Production 1 employee per 1,000 sf EPS 1997 Marina 3 employees per 100 slips/buoys Mara Feeney & Associates estimate Yacht Club 1 employee per 1,000 sf Mara Feeney & Associates estimate Other public-oriented Uses 1 employee per 1,000 sf Mara Feeney & Associates estimate Residential New Residential 1 job per live-work unit and 1 Jones & Jones, Inc. 1994 employee per 500 sf neighborhood retail Institutional and Community Elementary School 1 teacher per 30 students (approx.) OMBC 1996 and 1 staff person per 200 students Child Development Center 1 staff person per 12 children OMBC 1996 (approx.) or one employee per 1,000 sf (approx.) Fire Training School 20 staff year-round HMH 1997 Warehousing 1 employee per 5,000 sf Jones & Jones, Inc. 1994 Wastewater Treatment Plant 1 employee per 5,000 sf Mara Feeney & Associates estimate Police and Fire Stations 1 employee per 1,000 sf Mara Feeney & Associates estimate Other Institutional 1 employee per 1,000 sf Jones & Jones, Inc. 1994 Open Space/Recreation Sports Complex 1 employee per 60,000 sf EPS 1997 (ballfields) and 1 employee per 10,000 sf (gymnasium)
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Table E-2 Estimated Population and Employment for the Maximum Development Reuse Alternative
TREASURE ISLAND LAND USE Estimated Estimated Population Employment1
Publicly Oriented Themed Attraction 1,750 Hotel/Conference/Lodging 1,300 Retail/Specialty/Restaurant 450 Entertainment center Amphitheater Movie Theater Wedding Chapel Museum 6 Mixed Use/Office 260 Film Production 501 Marina (land) 20 Marina (water) 12 Other publicly oriented uses 183 Total Publicly Oriented 4,482
Residential Existing Residential 640 New Residential 5,290 Neighborhood Retail 48 Total Residential 5,930 48
Institutional and Community Elementary school 32 Child development center 10 Fire training school 20 Warehouse/Storage WWTP 17 Brig 90 60 Fire station 35 Police station 26 Other institutional facilities Total Institutional and Community 90 200
Open Space/Recreation Golf course Sports fields/complex 7 Shoreline promenade/open space Ferry Terminals/Piers 2 Wildlife Habitat Total Open Space/Recreation 9 Total Treasure Island Transfer Acreage 6,020 4,739
YERBA BUENA ISLAND LAND USE
Publicly Oriented Hotel/Bed and Breakfast 150 Conference/Reception 18 Restaurant Total Publicly Oriented Uses 168
Residential Existing Housing 288 New Housing 575 Mixed Use 13 10 Total Residential 876 10
Institutional and Community Open Space/Recreation 1
Total Yerba Buena Island Transfer Acreage 876 179
NSTI TOTALS 6,896 4,918
1Full-time equivalent.
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Table E-3 Estimated Population and Employment for the Medium Development Reuse Alternative
TREASURE ISLAND LAND USE Estimated Estimated Population Employment1
Publicly Oriented Themed Attraction 700 Hotel/Conference/Lodging 1,400 Retail/Specialty/Restaurant Entertainment center 150 Amphitheater 4 Movie Theater Wedding Chapel 1 Museum 60 Mixed Use/Office Film Production Marina (land) Marina (water) 15 Other publicly oriented uses 183 Total Publicly Oriented 2,513
Residential Existing Residential New Residential Neighborhood Retail Total Residential
Institutional and Community Elementary school Child development center Fire training school Warehouse/Storage WWTP 9 Brig 90 60 Fire station 17 Police station 17 Other institutional facilities Total Institutional and Community 90 103
Open Space/Recreation Golf course 20 Sports fields/complex 1 Shoreline promenade/open space Ferry Terminals/Piers 2 Wildlife Habitat Total Open Space/Recreation 23 Total Treasure Island Transfer Acreage 90 2,639
YERBA BUENA ISLAND LAND USE
Publicly Oriented Hotel/Bed and Breakfast 150 Conference/Reception 6 Restaurant 24 Total Publicly Oriented Uses 180
Residential Existing Housing 160 New Housing 460 Mixed Use Total Residential 620
Institutional and Community Open Space/Recreation 1 Total Yerba Buena Island Transfer Acreage 620 181
NSTI TOTALS 710 2,820
1Full-time equivalent.
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Table E-4 Estimated Population and Employment for the Minimum Development Reuse Alternative
TREASURE ISLAND LAND USE Estimated Estimated Population Employment1
Publicly Oriented/Visitor Attraction Themed Attraction 350 Hotel/Conference/Lodging 16 Retail/Specialty/Restaurant 26 Entertainment center Amphitheater Movie Theater Wedding Chapel 1 Museum 6 Mixed Use/Office 557 Film Production 501 Marina (land) 20 Marina (water) 3 Other publicly oriented uses 256 Total Publicly Oriented 1,736
Residential Existing Residential 2,971 New Residential Neighborhood Retail Total Residential 2,971
Institutional and Community Elementary school 32 Child development center 10 Fire training school 20 Warehouse/Storage 7 WWTP 5 Brig 90 60 Fire station 10 Police station 3 Other institutional facilities 129 Total Institutional and Community 90 276
Open Space/Recreation Golf course Sports fields/complex 3 Shoreline promenade/open space Ferry Terminals/Piers Wildlife Habitat Total Open Space/Recreation 3 Total Treasure Island Transfer Acreage 2,015
YERBA BUENA ISLAND LAND USE
Publicly Oriented Hotel/Bed and Breakfast 150 Conference/Reception 6 Restaurant 24 Total Publicly Oriented Uses 180
Residential Existing Housing 288 New Housing 161 Mixed Use 0 Total Residential 449
Institutional and Community Open Space/Recreation 1
Total Yerba Buena Island Transfer Acreage 181 NSTI TOTALS 3,510 2,196
1Full-time equivalent.
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References
Berkson, Richard. EPS. Personal Communication with Mara Feeney. February 12 and April 10, 1997.
Economic and Planning Systems (EPS). Memorandum dated February 12, 1997, from Richard Berkson, EPS, to Mara Feeney. EPS Employment Estimates.
HMH Resources, Inc. (HMH). Memorandum dated February 11, 1997, from Jeff Schlichting to Distribution, Updated population estimates for Treasure Island reuse.
Jones & Jones, Inc. et al. Presidio Planning Socioeconomic Analysis Report. July, 1994.
Office of Military Base Conversion (OMBC), City and County of San Francisco Planning Department and San Francisco Redevelopment Agency. Naval Station Treasure Island Reuse Plan. July, 1996.
ROMA Design Group et al. Treasure Island Reuse Plan Alternatives Report. Revised Draft. July, 1994.
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E.3 TRANSPORTATION
Transportation Analysis Methodology and Assumptions This appendix presents the methodology and assumptions used in the transportation analysis of this EIR.
Existing Freeway Volumes Table E-5 presents 24-hour volumes and average daily vehicle trips (ADTs) from traffic counts conducted by Caltrans for the SFOBB/I-80 during weekday and weekend periods (Caltrans 1993).
Table E-6 summarizes the average hourly vehicle trips on the SFOBB in the peak periods (vph) based on counts conducted by Caltrans in 2000.
Ramp Volumes Table E-7 presents the westbound and eastbound traffic volumes on the on- and off- ramps between Yerba Buena Island and the SFOBB/I-80 based on 1994 Caltrans traffic count information.
Table E-8 summarizes the average hourly vehicle trips (vph) in the peak periods on the Treasure Island and Yerba Buena Island on and off-ramps based on counts conducted by Caltrans in 2000.
Land Use Program The reuse alternatives in Section 2, Proposed action and alternatives were defined using 26 classifications of land use assigned to approximately 15 delineated areas of the NSTI property. For purposes of the traffic analysis, these 15 areas were aggregated into 8 Traffic Analysis Zones (TAZs), 7 on Treasure Island and 1 on Yerba Buena Island. The 8 TAZs are shown on the Figure E-3 for the Maximum, Medium (both Phase 3), and Minimum (Phase 2) Development alternatives, respectively (see discussion on page E-34 for a more detailed description of the project phasing). Land use classifications were then used to calculate total trips that would be generated from projected reuses.
Table E-9 presents aggregated acreages, units, or trips for the individual land use categories for each of the Reuse Alternatives. The land use data for the reuse alternatives is based on information from the Reuse Plan and the San Francisco Planning Department.
Policy Summary The following policies from the Draft Reuse Plan address regional access, street systems, transit, and water transportation were developed during the Reuse Planning process.
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Table E-5 24-hour Mainline Counts and Total Daily Trips
I-80 Westbound I-80 Eastbound Weekday Weekend Weekday Weekend Time (vph) (vph) Time (vph) (vph) 12 – 1 AM 1,249 2,080 12 – 1 AM 2,499 4,491 1 – 2 792 1,226 1 – 2 1,442 3,367 2 – 3 597 747 2 – 3 986 2,669 3 – 4 689 727 3 – 4 679 1,368 4 – 5 1,342 812 4 – 5 735 946 5 – 6 4,689 1,886 5 – 6 1,653 1,218 6 – 7 9,798 3,227 6 – 7 4,517 2,293 7 – 8 10,762 4,365 7 – 8 7,925 3,936 8 – 9 10,026 5,865 8 – 9 8,356 5,307 9 – 10 8,461 7,760 9 – 10 6,216 6,281 10 – 11 7,423 8,476 10 – 11 5,900 7,077 11 – 12 6,898 8,940 11 – 12 6,442 7,028 12 – 1 PM 6,435 8,373 12 – 1 PM 6,585 6,937 1 – 2 6,408 8,527 1 – 2 7,056 6,974 2 – 3 6,475 7,534 2 – 3 8,855 8,021 3 – 4 7,554 7,152 3 – 4 10,266 8,792 4 – 5 8,289 7,597 4 – 5 9,156 7,608 5 – 6 8,505 7,804 5 – 6 9,747 9,625 6 – 7 7,528 7,753 6 – 7 9,931 9,193 7 – 8 5,752 7,052 7 – 8 8,505 6,961 8 – 9 4,170 5,280 8 – 9 6,071 5,411 9 – 10 4,064 5,759 9 – 10 6,157 5,585 10 – 11 3,804 5,488 10 – 11 5,458 6,074 11 – 12 2,429 4,083 11 – 12 4,833 6,009 Daily Total 134,139 128,513 Daily Total 139,970 133,171
Source: Caltrans 1993.
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Table E-6 MTC Summary of Caltrans 2000 Traffic Counts San Francisco Bay Area State Highway System 2000 Observed Traffic Counts
Oakland/SFOBB Westbound Oakland/SFOBB Eastbound Average Hourly Three Hour Average Hourly Three Hour Count Average Count Average Ending Time Ending Time 7:00 AM 9,087 7:00 AM 4,485 8:00 AM 8,996 8:00 AM 7,468 9:00 AM 8,444 8,842 9:00 AM 7,657 6,537
4:00 PM 6,881 4:00 AM 9,900 5:00 PM 7,562 5:00 AM 9,741 6:00 PM 8,113 7,519 6:00 AM 9,563 9,735
Maximum Three Hour Maximum Three Hour Hourly Count Average Hourly Count Average Ending Time Ending Time 7:00 AM 10,636 7:00 AM 5,758 8:00 AM 10,199 8:00 AM 8,360 9:00 AM 9,787 10,207 9:00 AM 8,271 7,463
4:00 PM 8,065 4:00 PM 10,568 5:00 PM 8,559 5:00 PM 10,574 6:00 PM 9,135 8,586 6:00 PM 10,367 10,503
Source: MTC/Caltrans, 2002.
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Table E-7 Ramp Volumes – 1994 Conditions
I-80 Westbound (Weekday) I-80 Eastbound (Weekday)
On-Ramp Off-Ramp Off-Ramp On-Ramp East Side West Side East Side West Side East Side Total East Side YBI tunnel. YBI tunnel Total YBI tunnel YBI tunnel YBI tunnel YBI tunnel Time vph vph vph vph Time vph vph Vph (vph) 12 – 1 AM 1 24 25 28 12 – 1 AM 10 7 17 27 1 – 2 0 12 12 20 1 – 2 4 3 7 8 2 – 3 0 6 6 15 2 – 3 8 4 12 7 3 – 4 3 3 6 10 3 – 4 3 1 4 7 4 – 5 0 8 8 27 4 – 5 5 1 6 12 5 – 6 2 26 28 178 5 – 6 22 3 25 63 6 – 7 15 53 68 470 6 – 7 118 52 170 344 7 – 8 42 86 128 198 7 – 8 122 16 138 226 8 – 9 32 64 96 98 8 – 9 64 32 96 139 9 – 10 18 62 80 142 9 – 10 73 17 90 127 10 – 11 23 83 106 179 10 – 11 74 23 97 125 11 – 12 25 120 145 150 11 – 12 79 20 99 161 12 – 1 PM 29 93 122 177 12 – 1 PM 74 31 105 149 1 – 2 31 85 116 127 1 – 2 79 29 108 157 2 – 3 21 165 186 183 2 – 3 82 23 105 248 3 – 4 45 179 224 210 3 – 4 85 32 117 313 4 – 5 24 142 166 242 4 – 5 78 33 111 206 5 – 6 22 65 87 183 5 – 6 78 16 94 136 6 – 7 19 62 81 168 6 – 7 64 15 79 148 7 – 8 16 47 63 135 7 – 8 57 45 102 102 8 – 9 12 40 52 122 8 – 9 54 12 66 71 9 – 10 32 84 116 104 9 – 10 50 25 75 79 10 – 11 5 48 53 65 10 – 11 39 15 54 50 11 – 12 3 22 25 46 11 – 12 27 14 41 24 Daily Total 420 1,579 1,999 3,277 Daily Total 1,349 469 1,818 2,929
Source: Caltrans 1994.
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Table E-8 2000 Peak Hour Summaries of Ramp Counts
a Ramp AM Peak Hour PM Peak Hour Description 7-8 AM 2-3 PM
WEEKDAY COUNTS Westbound 7.874 Westbound On-ramp (east side)1 13 24 7.674 Westbound On-ramp (west side)2 110 70 7.864 Westbound Off-ramp (east side) 209 109 Eastbound 7.944 Eastbound On-ramp (east side) 136 318 7.684 Eastbound Off-ramp (west side) 157 109 7.884 Eastbound Off-ramp (east side) 52 47 412 259Total On-Ramps 264 418Total Off-Ramps 676 677Total All Ramps
WEEKEND COUNTS Westbound 7.874 Westbound On-ramp (east side) 11 16 7.674 Westbound On-ramp (west side) 22 78 7.864 Westbound Off-ramp (east side) 96 222 Eastbound 7.944 Eastbound On-ramp (east side) 94 295 7.684 Eastbound Off-ramp (west side) 22 80 7.884 Eastbound Off-ramp (east side) 9 30 Total On-Ramps 127 389 Total Off-Ramps 127 332 Total All Ramps 254 721
Source: Caltrans, 2002.
1 Ramp located east of Yerba Buena Island (YBI) tunnel 2 Ramp located west of Yerba Buena Island (YBI) tunnel
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2 7
6
1 3
8
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LEGEND Traffic Analysis Zone (TAZ) Boundary
7 TAZ Number
For purposes of the traffic analysis, Naval Station Treasure Island was Traffic Analysis Zones for divided into eight Traffic Analysis Zones, seven on Treasure Island and one on Yerba Buena Island. Reuse Alternatives Naval Station Treasure Island, California Transfer and Reuse of Naval Station Treasure Island Figure E-3
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Table E-9 Land Use Program for the Reuse Alternatives
Maximum Development Alternative Medium Development Alternative Minimum Development Alternative Land Use Size Unit Land Use Size Unit Land Use Size Unit ZONE 1: Museum 15 ksf Theme Park 19 acres Museum 15 ksf Film Production 501 ksf Entertainment Center 300 ksf Film Production 501 ksf Manna 403 slips Museum 49.799 ksf Marina 503 slips Marina 500 slips ZONE 2: Theme Park 59 acres Theme Park 41 acres Theme Park 39 acres Outdoor Recreation 6.1 acres Amphitheatre 5,000 seats Open Space 36 acres Outdoor Recreation 10.8 acres Community/Institutional 89.628ksf ZONE 3: Office 100 ksf Theme Park 15 acres Office 178.8375 ksf Community/Institutional 183 ksf Community/Institutional 182.952 ksf Conference 80 ksf Job Corps 635 trips Job Corps 635 trips Job Corps 635 trips Community/Institutional 128.04ksf ZONE 4: Restaurant 225 ksf Office 100 ksf Restaurant 13.2ksf Retail 24 ksf Hotel 1,200 rooms Wedding Chapel 9.884 ksf Open Space 30 acres Open Space 15.3 acres Office 35.7675 ksf Hotel 1,300 rooms Conference 100 ksf Community/Institutional 12.804 ksf Wedding Chapel 9.884 ksf Open Space 24 acres Warehouse 34.848 ksf ZONE 5: Water Treatment Plant 10 acres Police, Fire, and Medical 60.984 ksf Fire School 244 trips Brig 109 trips Fire School 244 people Community/Institutional 25.608ksf Fire School 244 trips Open Space 15.3 acres Water Treatment Plant 3 acres Police, Fire, and Medical 61 ksf Brig 109 trips Brig 109 trips Water Treatment Plant 10 acres Police, Fire, and Medical 2.61 ksf Community/Institutional 34.848ksf ZONE 6: Outdoor Recreation 40.9 acres Outdoor Recreation 7.2 acres Outdoor Recreation 3.5 acres Residential 1,250 units Open Space 20.4 acres Police, Fire, and Medical 10.441 ksf Elementary School 152 trips Golf Course 8 holes Elementary School 152trips Child Development Center 10 ksf Child Development Center 10.123 ksf ZONE 7: Residential 1,250 units Golf Course 10 holes Residential 980 units Police, Fire, and Medical 2.61 ksf ZONE 8: Open Space 58 acres Open Space 57 acres Open Space 57 acres Conference 4 acres Conference 30.241 ksf Conference 30.241 ksf Restaurant 12 ksf Restaurant 12 ksf Restaurant 12.15ksf Hotel 150 rooms Hotel 150 rooms Hotel 150 rooms Mixed 12,000 sq. ft. Residential 250 units Residential 160 units Residential 300 units Community/Institutional 0 ksf Community/Institutional 348.48ksf Community/Institutional 348 ksf TOTALS: Amphitheatre Amphitheatre 5,000 seats Amphitheatre Brig 109 trips Brig 109 trips Brig 109 trips Child Development Center 10 ksf Child Development Center Child Development Center 10 ksf Community/Institutional 531 ksf Community/Institutional 218 ksf Community/Institutional 605 ksf Conference 4 acres Conference 130 ksf Conference 110 ksf Elementary School 152 trips Elementary School Elementary School 152 trips Entertainment Center Entertainment Center 300 ksf Entertainment Center Film Production 501 ksf Film Production Film Production 501 ksf Fire School 244 trips Fire School 244 trips Fire School 244 trips Golf Course Golf Course 18 holes Golf Course Hotel 1,450 rooms Hotel 1,350 rooms Hotel 150 rooms Job Corps 635 trips Job Corps 635 trips Job Corps 635 trips Marina 403 slips Marina 500 slips Marina 100 slips Mixed Use 12,000 sq. ft. Mixed Use Mixed Use Museum 15 ksf Museum 50 ksf Museum 15 ksf Office 100 ksf Office 100 ksf Office 215 ksf Open Space 88 acres Open Space 108 acres Open Space 117 acres Outdoor Recreation 47 acres Outdoor Recreation 18 acres Outdoor Recreation 3.5 acres Police Fire Medical 61 ksf Police Fire Medical 61 ksf Police Fire Medical 16 ksf Residential 2,800 units Residential 250 units Residential 1,140 units Restaurant (Quality) 237 ksf Restaurant 12 ksf Restaurant 25 ksf Retail 24 ksf Retail Retail Theme Park 59 acres Theme Park 75 acres Theme Park 39 acres Warehouse Warehouse Warehouse 35 ksf Water Treatment Plant 10 acres Water Treatment Plant 10 acres Water Treatment Plant 3 acres Wedding Chapel Wedding Chapel 10 ksf Wedding Chapel 10 ksf
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• Develop waterborne transportation as the primary means of access to Treasure Island;
• Establish transit and pedestrian-based development on Treasure Island;
• Establish a multimodal internal circulation system that emphasizes non-auto modes; and
• Promote a regional system of ferry landings that are accessible by a diversity of travel modes.
Regional Access Policies • Establish ferry service to Treasure Island in conjunction with publicly oriented uses, and increase service as visitor volumes expand;
• Place priority on making seismic improvements to the causeway; and
• Encourage Caltrans to consider seismic and geometric improvements to the SFOBB as part of the bridge retrofit.
Street System Policies • Establish a network of streets that builds upon the existing Treasure Island grid to accommodate travel demand and distribute traffic;
• Emphasize shoreline-to-shoreline connections across the island that provide direct linkages from the destinations within the island to the water’s edge, aid in orienting users to the site, and maximize opportunities for public access to the shoreline;
• Develop multimodal streets on Treasure Island that accommodate significant levels of bicycle and pedestrian traffic as well as shuttle, transit buses, and automobiles;
• Promote high visibility and accessibility of the ferry terminals through the design of the street system;
• Incorporate amenities in the design of the street network for pedestrians and bicyclists; and
• Maintain the existing street network on Yerba Buena Island.
Transit System Policies • Establish bus and shuttle services on the islands; and
• Establish a coordinated transit plan for providing access to Treasure Island that brings Muni, Alameda-Contra Costa Transit District (AC Transit), and ferry operations.
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Water Transportation System Policies • Upgrade facilities to accommodate ferry service on the east side, and establish a new ferry terminal on the west side of Treasure Island. Design both facilities to accommodate water taxis;
• Develop ferry access to be widely available, frequent, and attractive to patrons. Encourage the use of water taxis to supplement regularly scheduled ferries for occasional trips; and
• Ensure that all development agreements, owner participation agreements (OPAs) and leases contribute to the establishment of the Treasure Island ferry access system, commensurate with the level of demand projected for each use.
The following 15 policies from the Naval Station Treasure Island Reuse Plan Transportation Background Report were developed during the Reuse Planning process to assist in the formulation of a Reuse Plan. These policies support the use of transit in the form of ferries and buses to NSTI, and the assumptions used in the estimation of trip generation.
1. Support the earliest possible development of ferry service to NSTI from both San Francisco and the East Bay.
2. Ferry access should be widely available, frequent and attractively priced. Regularly scheduled ferries would be supplemented by ferry taxis for occasional trips.
3. Support a visitor-oriented development that requires most visitors to travel by ferry and all visitors to travel via high occupancy modes. Enforce this policy by requiring ticket sales to be completed at landside terminals for tickets that combine ferry and admission. Prohibit visitor parking and ticket sales at the themed attraction to ensure that visitors would in fact take the ferry.
4. All children attending the planned elementary school would arrive via school bus. Pick up and drop off by parents would be prohibited, except for emergencies.
5. Bus transit services would continue to have a role at NSTI. Bus services would be developed connecting the ferry terminal to island destinations (island shuttle) and providing local on-site circulation.
6. Bus services between the island and the mainland would continue to play a role in moving people between the island and the mainland areas.
7. Ferry service should be initially established in the area of Pier 1/Pier ½ on the east side of the island, and would accommodate ferries from both the East Bay and San Francisco. This would serve as the “front door” to the visitor-
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oriented use. Convenient shuttle services would connect this location with other sites on the island.
8. Ferry service would ultimately be implemented at a new terminal on the west side of the island, separating the travel to and from the East Bay and San Francisco locations. Regularly scheduled ferry service would ultimately be offered from multiple locations in both East Bay and San Francisco. The initial services would be offered from San Francisco Ferry Building and Jack London Square in Oakland.
9. The ferry plan must consider the landside impacts, including parking demand on the landside and traffic impacts for travel to the ferry terminals.
10. All employers on the island would be encouraged to provide transit passes at no charge to employees to encourage transit use.
11. All employers providing parking on the island would be required to charge employees for parking, minimizing auto use.
12. All development agreements would include detailed Travel Demand Management (TDM) plans designed to show how the developer would ensure that traffic generation is minimized.
13. Any residential development planned for the NSTI, beyond the initial Phase I units, would be developed as a “unique community,” which would limit auto ownership and auto use so as not to unduly impact the SFOBB.
14. Other TDM measures, including flextime, employer provided shuttles and subsidy of transit services should be aggressively pursued on the island.
15. Encourage the use of alternative fuels for all transit vehicles on the island, including the island shuttle.
Transportation Features Assumed for the Three Reuse Alternatives The following discussion summarizes the transportation features assumed for the three Reuse Alternatives:
• The Treasure Island street grid system would maximize the use of existing streets and access points;
• All street rights-of-way on Treasure Island would contain sidewalks;
• Pedestrian and bicycle facilities would be provided;
• Ferry service would be provided between Treasure Island and San Francisco and the East Bay;
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• Bus and shuttle service would be provided on NSTI and to NSTI from San Francisco and the East Bay;
• A coordinated transit plan for access to NSTI with the San Francisco Municipal Railway (Muni) and ferry operators would be established;
• A transportation demand management (TDM) program would be established. Measures that would be implemented would include the following;
− establish ferry ridership targets for new users;
− restrict visitor parking;
− require employers to provide incentives to reduce vehicular demand;
− establish and employee transportation coordinator;
− require that residential development develop and implement measures to minimize auto usage (limits on parking, road pricing, integrated community design);
− prohibit parking for certain uses such as the themed attraction;
− require school students from San Francisco to arrive by bus;
− establish parking restrictions;
− prohibit free parking;
− require TDM plans for all new users to meet transit ridership targets and require monitoring; and
− require facilities for bicycles in new uses, as well as in all ferries.
Planned Seismic Retrofit of the SFOBB/I-80. In evaluating the reuse alternatives it has been assumed that the SFOBB/I-80 structure and connecting ramps to NSTI would remain as they are. The substandard geometries of these ramps limit their vehicle processing capacities. This is a conservative assumption because upgrades of the eastbound on-ramp have now been approved as part of the East Span replacement of the SFOBB.
The suspension bridge that connects San Francisco and Yerba Buena Island will undergo major work on its towers, superstructure, foundation, and approaches during the planning horizon. More substantial improvements are required for the eastern span. A new replacement span will be constructed in place of the existing bridge. A modified eastbound on-ramp built to Caltrans standards will be part of the design for the new East Span (Caltrans 2001). The modified ramp configuration would improve
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sight and merging distances. A bicycle lane from Oakland to Yerba Buena Island on the new East Span is also a component of that project.
Transportation Plan Assumptions In order to fulfill the transportation policies for NSTI listed above, a number of transportation improvements would need to be in place. The reuse planning effort developed a transportation plan for various phases of development on NSTI. For the EIR, each Reuse Alternative was assigned a specific phase of the Transportation Plan; the Maximum and Medium Development alternatives were assigned Phase 3 (generally year 2007 to 2011 of the Reuse Plan), and the Minimum Development Alternative was assigned Phase 2 (year 2002 to 2006 of the Reuse Plan). The transportation service assumptions that were assumed for each Reuse Alternative are summarized below. The transportation plan for the Reuse Plan was presented in the Naval Station Treasure Island Reuse Plan Transportation Background Report.
Maximum and Medium Development Alternatives—Phase 3 of the Reuse Plan Transportation Plan • Both the Maximum and Medium Development alternatives depend heavily on ferry service to NSTI to handle the predicted levels of visitors. On Treasure Island, the southeastern pier (either Pier 1 or Pier 12) would still be in service. In addition, a new pier on the western side of the island would be constructed.
• Ferry access would be extended on both sides of the bay. New terminals could be created at Golden Gate Fields on Gilman Street, along the border of Albany and Berkeley, and at Candlestick Point in San Francisco.
Due to the increased intensity of land uses, there would be a heightened demand for ferry service. The numbers of parking spaces preliminarily identified in the plan that would be needed at ferry terminals are as follows:
− 1,100 parking spaces at the San Francisco Ferry Building; − 1,100 parking spaces at Candlestick Point; and, − 1,850 parking spaces in the East Bay, evenly split between Jack London Square and Golden Gate Fields.
An updated parking demand was prepared for the Draft EIR and is included in Section 4-5, Table 4-14.
• The Reuse Plan Implementation Strategy identified the need to provide off-site parking at the San Francisco Ferry Building, Jack London Square, Candlestick Point and the East Bay (Golden Gate Fields).
• Additional vessels would be needed to handle the ferry service increase in the bay. The new facilities at Golden Gate Fields and Candlestick Point would each require two dedicated ferries. In addition, there would be an extra vessel for the Ferry Building during peak periods, plus limited use of supplemental ferries during peak periods.
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Frequency during peak periods:
-- 10 trips per hour from the Ferry Building (6 minute headways);
-- 5 trips per hour from Candlestick Point (12 minute headways); and
-- 8 trips per hour from the East Bay, divided between the 2 terminals (15-minute headways for each terminal).
• Shuttle bus service around the two islands would be provided. A total of four vehicles, plus one back-up vehicle would be provided. Furthermore, two additional back-up vehicles would be used to cover the peak periods, plus a secondary shuttle loop.
• The AC Transit T route would also be expanded, with headways shortened to 10 minutes during the peak and 15 minutes during the non-peak times. Since this service is no longer provided, the service requirement to accommodate demand during the peak and non-peak periods was determined, and included in Section 4.5, Transportation as mitigation.
Minimum Development Alternative—Phase 2 of the Reuse Plan Transportation Plan • The intensity of the land uses in the Minimum Development Alternative is sufficient to warrant the addition of ferry service to NSTI. Either Pier 1 or Pier 12 would be used, both located on the southeast corner of Treasure Island. Modifications would have to be made for either pier, so they can be used by conventional ferries, and in order to meet American with Disabilities Act (ADA) requirements.
• For the ferry service, four vessels would be in use, two each from the San Francisco Ferry Building and from Jack London Square in Oakland. At the Ferry Building, an additional float would be needed to handle the new ferry service, while no modifications would be needed for the Jack London Square service.
• Parking requirements for the new ferry service include a need for significant parking at the two terminal sites. The off-site parking requirement was identified to be 950 parking spaces at Jack London and the Ferry Building, respectively.
• On NSTI, a shuttle bus service would be implemented. This service would be necessary to connect the Treasure Island ferry terminal to the major activity centers of the two islands. A fleet of 3 buses would be needed for this service, and would run approximately every 15 minutes.
• In addition to the on-island buses, AC Transit service to both Treasure Island and Yerba Buena Island would need to be reintroduced. No new stops would be needed; AC Transit headways of 15 minutes during the peak, and between 20 and 30 minutes off-peak would be required. Similar to the Maximum and Medium
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Development alternatives, since the AC Transit service is no longer provided, the service requirement to accommodate demand during the peak and non-peak periods was determined, and included in Section 4.5, Transportation, Circulation, and Parking as mitigation.
Travel Demand Travel demand refers to new auto, transit and pedestrian traffic generated by proposed land uses. These include traffic (in trips) entering and leaving NSTI, as well as trips between the various land uses on NSTI. Preliminary trip generation estimates were conducted during the reuse planning effort. Trip generation, trip distribution and mode split estimates were determined for the various land uses proposed on NSTI. Due to the isolated nature of NSTI, standard San Francisco and national rates were adjusted. The reuse planning team conducted this effort in cooperation with the San Francisco Planning Department.
For this EIR, the work conducted by the reuse planning team and the San Francisco Planning Department was reviewed. In general, trip generation rates, distribution and mode split estimates developed by the reuse planning team were used. Travel demand information needed to be developed, however, for other land uses not evaluated for the Reuse Plan. In addition, auto occupancy factors for vehicle trips to NSTI, and vehicle trips to ferry terminals were reviewed, and adjusted in some cases.
Trip Generation Tables E-10 and E-11 summarize the trip generation rates used to estimate Reuse Alternative-generated traffic, for weekday and weekend conditions, respectively. Tables E-12 and E-13 present the work/non-work split for weekday and weekend conditions, respectively.
Overall Reuse Alternative travel demand to and from NSTI was estimated from person-trip generation rates obtained from a variety of sources, including the San Francisco Planning Department’s Citywide Travel Behavior Survey (CTBS) and Guidelines for Environmental Review: Transportation Impacts (July 1991), the Port of San Francisco Waterfront Land Use Plan Draft EIR (December 1996), Hunters Point Transportation Plan (1996), information from existing operations on NSTI (e.g., brig and elementary schools), as well as input from the San Francisco Planning Department.
The Reuse Plan for NSTI provides for a balanced mix of land uses that would serve to create a new neighborhood. As such, it is anticipated that there would be a substantial number of trips that would occur between the various land uses, such as between residential and retail uses and between themed attraction and restaurant uses. Such trips were classified as “internal” trips. Internal trips within NSTI would also occur due to the fact that the development would occur on the islands that have delay
Table E-10 Trip Generation and In/Out Split—Weekday
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Person-Trip AM Peak PM Peak Rate Peak Worker Visitor Worker Visitor Land Use Units Daily AM PM In Out In Out In Out In Out Themed Attraction (1) acres 30400.00 1.7% 9.8% 1.00 0.00 1.00 0.00 0.37 0.63 0.30 0.70 Themed Attraction acres 12200.00 1.7% 9.8% 1.00 0.00 1.00 0.00 0.37 0.63 0.30 0.70 Themed Attraction acres 6100.00 1.7% 9.8% 1.00 0.00 1.00 0.00 0.37 0.63 0.30 0.70 Office (2) ksf 18.10 13.8% 17.3% 1.00 0.00 0.50 0.50 0.00 1.00 0.50 0.50 Hotel (3) rooms 6.92 3.3% 9.5% 0.37 0.63 1.00 0.00 0.37 0.63 0.47 0.53 Retail (4) ksf 168.00 0.0% 9.2% 1.00 0.00 0.50 0.50 0.00 1.00 0.50 0.50 Outdoor Recreation (5) acres 50.00 4.0% 8.0% 0.70 0.30 1.00 0.00 0.30 0.70 0.30 0.70 Open Space (6) acres 20.00 4.0% 8.0% 0.70 0.30 1.00 0.00 0.30 0.70 0.30 0.70 Marina (7) slips 2.96 2.7% 6.4% 0.33 0.67 0.33 0.67 0.60 0.40 0.60 0.40 Museum (8) ksf 50.00 0.0% 9.2% 1.00 0.00 1.00 0.00 0.30 0.70 0.30 0.70 Brig (9) trips 109.00 37.9% 33.1% 0.67 0.33 0.90 0.10 0.40 0.60 0.40 0.60 Job Corps (10) trips 635.00 43.0% 43.5% 1.00 0.00 0.50 0.50 0.00 1.00 0.50 0.50 Elementary School (11) trips 152.00 49.3% 19.7% 1.00 0.00 0.60 0.40 0.00 1.00 0.00 1.00 Film Production (12) ksf 1.14 0.0% 0.4% 0.00 1.00 0.00 1.00 0.00 1.00 0.00 1.00 Fire School (13) trips 244.00 46.0% 50.0% 1.00 0.00 1.00 0.00 0.00 1.00 0.00 1.00 Conference (14) ksf 5.93 9.8% 9.8% 1.00 0.00 0.90 0.10 0.00 1.00 0.10 0.90 Residential (15) units 10.00 13.8% 17.3% 0.00 1.00 0.34 0.66 1.00 0.00 0.32 0.68 Restaurant (16) ksf 96.51 1.0% 7.9% 0.94 0.06 0.94 0.06 0.70 0.30 0.70 0.30 Warehouse (17) ksf 4.88 11.7% 15.2% 0.72 0.28 0.72 0.28 0.35 0.65 0.35 0.65 Golf Course (18) holes 37.59 8.6% 8.9% 0.83 0.17 0.83 0.17 0.52 0.48 0.52 0.48 Water Treatment Plant (19) acres 0.00 Entertainment Center (20) ksf 46.81 0.0% 3.0% 1.00 0.00 0.50 0.50 0.50 0.50 0.50 0.50 Amphitheater (21) seats 2.01 0.0% 30.0% 1.00 0.00 0.50 0.50 0.50 0.50 0.50 0.50 Community / Institutional (22) ksf 50.00 10.0% 10.0% 1.00 0.00 0.50 0.50 0.00 1.00 0.00 1.00 Child Development Center (23) ksf 0.00 Police, Fire & Medical (24) ksf 24.00 10.0% 10.0% 1.00 0.00 0.50 0.50 0.20 0.80 0.20 0.80 Wedding Chapel (25) ksf 0.00 Mixed Use (26) ksf 45.50 2.0% 2.0% 1.00 0.00 0.50 0.50 0.00 1.00 0.50 0.50 Sources: (1) Korve Engineering, Distribution of visitors to So. Cal. themed attraction; N/N 3/25 memo to Dave Feltham Trip generation based on projected number of visitors for each development alternative. (2) CTBS Table A3, Table 39, AM Peak from ITE AM Peak/Weekday ADT relationship (3) CTBS SD1, AM Peak from ITE relationship, PM Peak per 4/11/96 DCP memo, weekend rate per 4/1/96 DCP memo (4) S.F. Waterfront EIR SD 2,3,4, weekend rate per 4/11/96 DCP memo (5) Draft Hunter's Point Transportation Plan, 1996; weekday, weekend same per 4/23 memo (6) Draft Hunter's Point Transportation Plan, 1996; passive open space (7) ITE (420) (8) Draft Hunter's Point/Weekday-weekend relationship from Exploratorium, 4/11/96, and work/non-work splits from CTBS Cultural (9) San Francisco City and County Sheriff, based on 180 inmates (10) Job Corps Environmental Evaluation (11) 4/9/96 DCP Memorandum (12) Conversation with Robin Eisman at SF Film and Video Arts Commission 4/10/96 (13) 4/10/96 DCP memo; Conversation with Assistant Director of Navy Fire Training Facility 4/10/96, Butte College Fire Sciences Dept. 4/6/96 (14) Presidio Transportation Planning & Analysis Technical Report, Oct 1993 (15) DCP Guidelines – ITE AM Peak/ADT relationship, weekend same as PM weekday, per 4/24/96 DCP memo (16) ITE (831) (17) ITE (150) (18) ITE (430) (19) Trip generation rate assumed to be 0.0, due to minimal number of trips. Korve Engineering, April 1997 (20) ITE (320) (21) Trip generation rate based on two visitor trips per seat and one worker per 100 seats. All amphitheater events would occur in the evening, with one event per day. Korve Engineering, April 1997 (22) CTBS SD1 – Institutional (23) Trip generation rate assumed to be 0.0. Majority of trips linked to Job Corps, Elementary School, and residential. Korve Engineering, April 1997 (24) ITE (630) (25) Wedding Chapel not anticipated to generate trips on a daily basis. Korve Engineering, April 1997 (26) Draft Hunter's Point Transportation Plan, 1996
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Table E-11 Trip Generation and In/Out Split—Weekend Person-Trip Midday Rate Worker Visitor Land Use Units Daily Peak In Out In Out Themed Attraction (1) acres 30400.00 5.5% 0.0% 1.00 0.90 0.10 Themed Attraction acres 12200.00 5.5% 0.0% 1.00 0.90 0.10 Themed Attraction acres 6100.00 5.5% 0.0% 1.00 0.90 0.10 Office (2) ksf 0.00 17.3% 0.0% 1.00 0.50 0.50 Hotel (3) rooms 6.92 8.2% 37.0% 0.63 0.47 0.53 Retail (4) ksf 168.00 9.9% 0.0% 1.00 0.50 0.50 Outdoor Recreation (5) acres 50.00 8.0% 30.0% 0.70 0.30 0.70 Open Space (6) acres 20.00 8.0% 30.0% 0.70 0.30 0.70 Marina (7) slips 3.22 27.0% 44.0% 0.56 0.44 0.56 Museum (8) ksf 75.00 14.4% 70.0% 0.30 0.70 0.30 Brig (9) trips 195.00 33.1% 40.0% 0.60 0.40 0.60 Job Corps (10) trips 1646.00 12.1% 0.0% 1.00 0.50 0.50 Elementary School (11) trips 0.00 Film Production (12) ksf 1.14 4.0% 50.0% 0.50 0.50 0.50 Fire School (13) trips 1.00 9.2% 0.0% 1.00 0.00 1.00 Conference (14) ksf 5.93 9.8% 50.0% 0.50 0.50 0.50 Residential (15) units 10.00 17.3% 0.0% 1.00 0.50 0.50 Restaurant (16) ksf 92.65 11.9% 53.0% 0.47 0.53 0.47 Warehouse (17) ksf 1.22 9.8% 64.0% 0.36 0.64 0.36 Golf Course (18) holes 42.43 10.8% 72.0% 0.28 0.72 0.28 Water Treatment Plant (19) acres 0.00 Entertainment Center (20) ksf 46.81 10.0% 50.0% 0.50 0.50 0.50 Amphitheater (21) seats 2.01 20.0% 50.0% 0.50 0.50 0.50 Community / Institutional (22) ksf 75.00 5.0% 0.0% 1.00 0.00 1.00 Child Development Center (23) ksf 0.00 Police, Fire & Medical (24) ksf 24.00 10.0% 20.0% 0.80 0.20 0.80 Wedding Chapel (25) ksf 0.00 Mixed Use (26) ksf 45.50 10.0% 50.0% 0.50 0.50 0.50 Sources: (1) Korve Engineering, Distribution of visitors to So. Cal. themed attraction; N/N 3/25 memo to Dave Feltham Trip generation based on projected number of visitors for each development alternative. (2) CTBS Table A3, Table 39, AM Peak from ITE AM Peak/Weekday ADT relationship (3) CTBS SD1, AM Peak from ITE relationship, PM Peak per 4/11/96 DCP memo, weekend rate per 4/1/96 DCP memo (4) S.F. Waterfront EIR SD 2,3,4, weekend rate per 4/11/96 DCP memo (5) Draft Hunter's Point Transportation Plan, 1996; weekday, weekend same per 4/23 memo (6) Draft Hunter's Point Transportation Plan, 1996; passive open space (7) ITE (420) (8) Draft Hunter's Point/Weekday-weekend relationship from Exploratorium, 4/11/96, and work/non-work splits from CTBS Cultural (9) San Francisco City and County Sheriff, based on 180 inmates (10) Job Corps Environmental Evaluation (11) 4/9/96 DCP Memorandum (12) Conversation with Robin Eisman at SF Film and Video Arts Commission 4/10/96 (13) 4/10/96 DCP memo; Conversation with Assistant Director of Navy Fire Training Facility 4/10/96, Butte College Fire Sciences Dept. 4/6/96 (14) Presidio Transportation Planning & Analysis Technical Report, Oct 1993 (15) DCP Guidelines – ITE AM Peak/ADT relationship, weekend same as PM weekday, per 4/24/96 DCP memo (16) ITE (831) (17) ITE (150) (18) ITE (430) (19) Trip generation rate assumed to be 0.0, due to minimal number of trips. Korve Engineering, April 1997 (20) ITE (320) (21) Trip generation rate based on two visitor trips per seat and one worker per 100 seats. All amphitheater events would occur in the evening, with one event per day. Korve Engineering, April 1997 (22) CTBS SD1 – Institutional (23) Trip generation rate assumed to be 0.0. Majority of trips linked to Job Corps, Elementary School, and residential. Korve Engineering, April 1997 (24) ITE (630) (25) Wedding Chapel not anticipated to generate trips on a daily basis. Korve Engineering, April 1997 (26) Draft Hunter's Point Transportation Plan, 1996
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Table E-12 Work, Non-work Splits—Weekday
AM Peak PM Peak Daily # o f # o f Land Use Workers Visitors Workers Visitors Workers Visitors Themed Attraction 0.10 0.90 0.19 0.81 0.19 0.81 Office 0.08 0.92 0.50 0.50 0.50 0.50 Hotel 0.10 0.90 0.45 0.55 0.45 0.55 Retail 0.08 0.92 0.08 0.92 0.08 0.92 Outdoor Recreation 0.05 0.95 0.05 0.95 0.05 0.95 Open Space 0.05 0.95 0.05 0.95 0.05 0.95 Marina 0.08 0.92 0.08 0.92 0.08 0.92 Museum 0.08 0.92 0.08 0.92 0.08 0.92 Brig 0.79 0.21 0.97 0.03 0.97 0.03 Job Corps 0.37 0.63 0.57 0.43 0.57 0.43 Elementary School 0.47 0.53 0.50 0.50 1.00 0.00 Film Production 1.00 0.00 1.00 0.00 1.00 0.00 Fire School 0.11 0.89 0.11 0.89 0.11 0.89 Conference 0.08 0.92 0.08 0.92 0.08 0.92 Residential 0.33 0.67 0.50 0.50 0.50 0.50 Restaurant (1) 0.08 0.92 0.08 0.92 0.08 0.92 Warehouse (2) 0.10 0.90 0.10 0.90 0.08 0.92 Golf Course (3) 0.08 0.92 0.08 0.92 0.08 0.92 Entertainment Center (4) 0.08 0.92 0.08 0.92 0.08 0.92 Amphitheatre (5) 0.005 0.995 0.00 0.00 0.10 0.90 Community/Institutional (6) 0.08 0.92 0.08 0.92 0.08 0.92 Police/Fire/Medical (7) 0.05 0.95 0.50 0.50 0.50 0.50 Mixed Use 0.08 0.92 0.08 0.92 0.08 0.92
Source: Korve Engineering, Inc. 1997 from the following sources:
(1) Based on Specialty Retail (2) From Korve Engineering, May 1997 (3) Based on Museum (4) Based on Specialty Retail (5) From Korve Engineering, May 1997 (6) Based on Museum (7) Based on Office
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Table E-13 Work, Non-work Splits—Weekend Daily Midday Peak # o f # o f Land Use Workers Visitors Workers Visitors Themed Attraction 0.10 0.90 0.00 1.00 Office 0.00 0.00 0.00 0.00 Hotel 0.10 0.90 0.45 0.55 Retail 0.08 0.92 0.08 0.92 Outdoor Recreation 0.05 0.95 0.05 0.95 Open Space 0.05 0.95 0.05 0.95 Marina 0.08 0.92 0.08 0.92 Museum 0.08 0.92 0.08 0.92 Brig 0.79 0.21 0.97 0.03 Job Corps 0.37 0.63 0.57 0.43 Elementary School 0.00 0.00 0.00 0.00 Film Production 1.00 0.00 1.00 0.00 Fire School 0.00 0.00 0.00 0.00 Conference 0.08 0.92 0.08 0.92 Residential 0.10 0.90 0.10 0.90 Restaurant (1) 0.08 0.92 0.08 0.92 Warehouse (2) 0.10 0.90 0.10 0.90 Golf Course (3) 0.08 0.92 0.08 0.92 Water Treatment Plant 1.00 0.00 1.00 0.00 Entertainment Center (4) 0.08 0.92 0.08 0.92 Amphitheatre (5) 0.005 0.995 0.01 0.99 Community/Institutional (6) 0.08 0.92 0.08 0.92 Child Development Center 0.50 0.50 0.08 0.92 Police/Fire/Medical (7) 0.05 0.95 0.50 0.50 Wedding Chapel 0.50 0.50 0.08 0.92 Mixed Use 0.08 0.92 0.08 0.92
Source: Korve Engineering Inc., 1997 from the following sources:
(1) Based on Specialty Retail (2) From Korve Engineering, May 1997 (3) Based on Museum (4) Based on Specialty Retail (5) From Korve Engineering, May 1997 (6) Based on Museum (7) Based on Weekday percentages
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penalties for bridge crossings due to congestion and substandard ramp configurations, and, therefore, residents and visitors would limit the number of crossings they would make throughout the day.
Trip Distribution Travel distribution to and from Treasure Island was based on existing factors from the CTBS and the Waterfront Land Use Plan Draft EIR. Trip distribution factors are specific to the type of trip generated. For example, work trips to the visitor-oriented attractions would not be expected to follow the same distribution patterns as those of the visitors. Table E-14 presents the trip distributions between NSTI and four areas— San Francisco, the East Bay, the North Bay and the South Bay.
Mode Split Mode split assumptions were made primarily based on a combination of existing and modified policies that emphasized high occupancy modes and recognized the impact of capacity constraints on mode choice. See Policy Summary of this appendix. In general, mode splits were adjusted to recognize the limited roadway access to the islands and accordingly to emphasize non-auto travel modes. Table E-15 presents the mode split assumptions, while Tables E-16 and E-17 present, respectively, the average vehicle occupancy for vehicle trips to and from NSTI and to the ferry terminals.
SFOBB/I-80 Analysis
Freeway Operation Analysis This section presents the approach to and results of the freeway operation analysis conducted for the existing conditions and all the Reuse Alternatives. It also includes the on- and off-ramp analysis for Yerba Buena Island. Table E-18 provides level of service definitions for freeway sections. Analyses of freeway operations were conducted for the following freeway sections and directions:
Westbound direction I-80 in the AM peak period Westbound direction I-80 in the PM peak period Eastbound direction I-80 in the AM peak period Eastbound direction I-80 in the PM peak period
Network Development The freeway operations area studied included the section of I-80 freeway from east of Treasure Island to the west of the I-80/US 101 junction. This study area is approximately 4.3 miles (7 km) long and includes the mainline freeway and the associated ramps.
The analysis employed the FREQ11 software program, a freeway corridor simulation model developed by the Institute of Transportation Studies of the University of California at Berkeley. This program evaluates the basic freeway segments, ramp
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Table E-14 Person-trip Distribution—Weekday and Weekend
San Francisco East Bay South Bay/Peninsula North Bay Internal Work Visitor Work Visitor Work Visitor Work Visitor Work Visitor Land Use % % % % % % % % % % Themed Attraction 55.4 52.5 24.2 45.0 14.3 0.0 6.1 2.5 0.0 0.0 Office 56.6 11.6 25.4 5.8 13.7 1.4 4.3 1.2 0.0 80.0 Hotel 55.4 19.9 24.2 17.5 14.3 9.3 6.1 3.3 0.0 50.0 Retail 45.4 0.0 24.2 0.0 14.3 0.0 6.1 0.0 100.0 100.0 Outdoor Recreation 55.4 70.0 24.2 30.0 14.3 0.0 6.1 0.0 0.0 0.0 Open Space 55.4 70.0 24.2 30.0 14.3 0.0 6.1 0.0 0.0 0.0 Marina 55.4 52.5 24.2 45.0 14.3 0.0 6.1 2.5 0.0 0.0 Museum 55.4 58.0 24.2 29.0 14.3 7.0 6.1 6.0 0.0 0.0 Brig 55.4 50.0 24.2 50.0 14.3 0.0 6.1 0.0 0.0 0.0 Job Corps 55.4 50.0 24.2 50.0 14.3 0.0 6.1 0.0 0.0 0.0 Elementary School 55.4 100.0 24.2 0.0 14.3 0.0 6.1 0.0 0.0 0.0 Film Production 55.4 50.0 24.2 50.0 14.3 0.0 6.1 0.0 0.0 0.0 Fire School 55.4 50.0 24.2 50.0 14.3 0.0 6.1 0.0 0.0 0.0 Conference 55.4 58.0 24.2 29.0 14.3 7.0 6.1 6.0 0.0 0.0 Residential 69.1 15.8 17.2 3.4 1.7 0.3 2.0 0.4 10.0 80.0 Restaurant (1) 55.4 15.0 24.2 15.0 14.3 0.0 6.1 0.0 0.0 70.0 Warehouse (2) 55.4 50.0 24.2 50.0 14.3 0.0 6.1 0.0 0.0 0.0 Golf Course (3) 55.4 70.0 24.2 30.0 14.3 0.0 6.1 0.0 0.0 0.0 Water Treatment Plant 55.4 50.0 24.2 50.0 14.3 0.0 6.1 0.0 0.0 0.0 Entertainment Center (4) 55.4 52.5 24.2 45.0 14.3 0.0 6.1 2.5 0.0 0.0 Amphitheatre (5) 55.4 52.5 24.2 45.0 14.3 0.0 6.1 2.5 0.0 0.0 Community/Institutional (6) 55.4 15.0 24.2 15.0 14.3 0.0 6.1 0.0 0.0 70.0 Child Development Center 55.4 100.0 24.2 0.0 14.3 0.0 6.1 0.0 0.0 0.0 Police/Fire/Medical (7) 55.4 0.0 24.2 0.0 14.3 0.0 6.1 0.0 0.0 100.0 Wedding Chapel 55.4 20.0 24.2 17.5 14.3 9.3 6.1 3.3 0.0 50.0 Mixed Use 27.7 40.6 12.1 20.3 7.2 4.9 3.1 4.2 50.0 30.0
Source: Korve Engineering, Inc., 1997.
Notes: (1) Based on Hotel, with modifications to reflect predominantly internal trips for visitors. (2) Based on Film Production (3) Based on Outdoor Recreation (4) Based on Themed Attraction (5) Based on Themed Attraction (6) Based on Museum, with modifications to reflect predominantly internal trips for visitors. (7) Based on Brig, with modifications to reflect predominantly internal trips for visitors.
Table E-15 Mode Split—Weekday and Weekend
San Francisco East Bay South Bay/Peninsula Nor th Bay Internal Work Non-Work Work Non-Work Work Non-Work Work Non-Work Work Non-Work Land Use Mode % % % % % % % % % % Themed Attraction Auto 34.0 0.0 39.0 0.0 57.4 0.0 51.0 0.0 0.0 0.0 Amphitheatre Carpool 14.0 0.0 4.0 0.0 2.0 0.0 5.0 0.0 0.0 0.0 Entertainment Center Bus 13.0 10.0 43.0 10.0 10.2 10 .0 0.0 10.0 100.0 100.0 Ferry 39.0 90.0 14.0 90.0 30.4 90.0 44.0 90.0 0.0 0.0 Office, Museum, Brig Auto 34.0 36.0 39.0 47.0 57.4 60.0 51.0 71.0 0.0 0.0 Mixed Use, Job Corp Carpool 14.0 30.0 4.0 28.0 2.0 16.0 5.0 19.0 0.0 0.0 Elem Sch; Police, Fire, Med Bus 13.0 9.0 43.0 19.0 10.2 6.0 0.0 7.0 100.0 100.0 Comm/Inst. Ferry 39.0 26.0 14.0 6.0 30.4 18.0 44.0 3.0 0.0 0.0 Hotel Auto 34.0 35.5 39.0 47.0 57.4 60.0 51.0 71.4 0.0 0.0 Conference Carpool 14.0 30.0 4.0 28.0 2.0 16.0 5.0 19.4 0.0 0.0 Restaurant Bus 13.0 9.0 43.0 19.0 10.2 6.0 0.0 7.2 100.0 100.0 Ferry 39.0 25.5 14.0 6.0 30.4 18.0 44.0 2.0 0.0 0.0 Retail Auto 34.0 50.0 39.0 50.0 57.4 0.0 51.0 0.0 0.0 0.0 Carpool 14.0 0.0 4.0 0.0 2.0 0.0 5.0 0.0 0.0 0.0 Bus 13.0 50.0 43.0 50.0 10.2 0.0 0.0 0.0 100.0 100.0 Ferry 39.0 0.0 14.0 0.0 30.4 0.0 44.0 0.0 0.0 0.0 Outdoor Recreation Auto 34.0 36.0 39.0 47.0 57.4 60.0 51.0 71.0 0.0 0.0 Golf Course Carpool 14.0 30.0 4.0 28.0 2.0 16.0 5.0 19.0 0.0 0.0 Bus 13.0 9.0 43.0 19.0 10.2 6.0 0.0 7.0 100.0 100.0 Ferry 39.0 26.0 14.0 6.0 30.4 18.0 44.0 2.0 0.0 0.0 Open Space Auto 34.0 84.0 39.0 84.0 57.4 84.0 51.0 84.0 0.0 0.0 Marina Carpool 14.0 0.0 4.0 0.0 2.0 0.0 5.0 0.0 0.0 0.0 Bus 13.0 12.0 43.0 12.0 10.2 12.0 0.0 12.0 100.0 100.0 Ferry 39.0 4.0 14.0 4.0 30.4 4.0 44.0 4.0 0.0 0.0 Film Production Auto 58.0 36.0 66.0 47.0 89.0 60.0 52.0 71.0 0.0 0.0 Warehouse Carpool 19.0 30.0 0.0 28.0 5.0 16.0 10.0 19.0 0.0 0.0 Bus 6.0 9.0 17.0 19.0 3.0 6.0 19.0 7.0 100.0 100.0 Ferry 17.0 26.0 17.0 6.0 3.0 18.0 19.0 2.0 0.0 0.0 Fire School Auto 34.0 34.0 39.0 39.0 57.4 57.4 51.0 51.0 0.0 0.0 Carpool 14.0 14.0 4.0 4.0 2.0 2.0 5.0 5.0 0.0 0.0 Bus 13.0 13.0 43.0 43.0 10.2 10.2 0.0 0.0 100.0 100.0 Ferry 39.0 39.0 14.0 14.0 30.4 30.4 44.0 44.0 0.0 0.0 Residential Auto 34.0 66.0 66.0 84.0 34.0 62.5 66.0 0.0 0.0 0.0 Carpool 2.0 2.0 2.0 0.0 2.0 3.0 2.0 0.0 0.0 0.0 Bus 16.0 24.0 24.0 12.0 16.0 9.0 24.0 10.0 100.0 100.0 Ferry 48.0 8.0 8.0 4.0 48.0 25.5 8.0 90.0 0.0 0.0 Source: Korve Engineering Inc., 1997.
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Table E-16 Average Vehicle Occupancy for Trips to NSTI (persons per vehicle)
Vehicle type Work Non-work Vanpool/Other 3 8
Auto 1.5 3
Source: San Francisco Planning Department, Citywide Travel Behavior Survey, May 1993 and Guidelines for Environmental Review, Transportation Impacts, July 1991.
Table E-17 Average Vehicle Occupancy for Vehicle Trips to Ferry Terminals (persons per vehicle)
Vehicle type Work Non-work Vanpool/Other 3 8
Auto 1.5 3
Source: San Francisco Planning Department, Citywide Travel Behavior Survey, May 1993 and Guidelines for Environmental Review, Transportation Impacts, July 1991.
Table E-18 Level of Service Definitions for Freeway Sections
Average Speed LOS (mph) A > 60 B > 55 C > 49 D > 41 E > 30 F <30
Source: Highway Capacity Manual, Transportation Research Board, Special Report No. 209, Washington D.C., 1994.
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junctions, and weaving areas based on the 1985 Highway Capacity Manual (HCM) procedures as a system, and provides system wide average speeds and queue spillback data over a three-hour peak period. The purpose of the three-hour analysis period is to analyze the network before, during and after the peak hour to analyze the congestion build-up and dissipation. The calibrated AM and PM peak conditions network developed for the Alternatives to Replacement of the Embarcadero Freeway and the Terminal Separator Structure (November 1994) was used as a base for this exercise. This network included the section of I-80 freeway from west of Treasure Island to the west of the I-80/US 101 junction based on 1993/1994 traffic conditions.
For the NSTI Transfer and Reuse EIS/EIR, the FREQ11 freeway network was expanded to include NSTI and the on- and off-ramps associated with it in both the eastbound and westbound directions. Ramp volumes from 1994 Caltrans counts were used as an input into the expanded network.
In addition to the AM and PM peak networks, a third network, and the weekend midday peak period, was developed. Since weekend ramp volumes were not available for year 1993/1994, it was assumed that ramp traffic volumes during the weekend midday peak period are similar to the AM peak. Mainline volumes for weekend conditions were obtained from Caltrans for 1996/1997 conditions, and these volumes were used as an input into the model.
The following input parameters were adjusted to calibrate the new model to the existing conditions as reported in Alternatives to Replacement of the Embarcadero Freeway and the Terminal Separator Structure and existing conditions observed in 1997:
• Speed flow curves for each freeway subsection were developed to reflect the maximum flow rate of 2,100 passenger cars per hour per lane.
• A speed-flow curve (65-mph) was used, based on the data on the I-80 freeway provided by FREQ11.
• Weaving section capacities were based on the existing operations. The weaving section capacities in the model were adjusted to reflect the existing operation.
• On- and off-ramp capacities were based on existing counts and HCM procedures. The field-measured counts were used at ramp locations where the actual ramp counts exceeded the HCM maximum recommended capacity.
The same freeway network and capacities were assumed for the year 2000 as for 1993/1994.
Development of SFOBB/Yerba Buena Island Ramp Capacities Since the existing ramps, especially the westbound and eastbound on-ramps, have substandard geometries, a number of approaches were taken to determine the on- and
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off-ramp capacities of these ramps. These methods included an HCM methodology procedure, linear regression methodology, and field measured maximum volume throughput counts.
Linear Regression Methodology The HCM uses a methodology that calculates the capacity of an on-ramp merge area in terms of the maximum total flow that can enter the merge influence area. This is the sum of the ramp flow plus the flow in lanes one and two. A survey was conducted to find the relationship between the on-ramp volume, the time it takes for a given vehicle to enter the traffic stream from the on-ramp, the measured lane one (right-most lane) volume and the calculated lane two volume. A regression analysis was conducted with the above data, in which a relationship was not found between the collected data (i.e., R square value of 0.08).
HCM Methodology The Yerba Buena on-ramps to I-80/SFOBB function similar to a STOP controlled T- intersection due to the existing configuration. As a result, the on-ramps were evaluated using the 1985 Highway Capacity Manual (Special Report 209, Transportation Research Board, 1994 Update) operations methodology, as outlined in Chapter 10 (Unsignalized Intersections). This method determines the capacity of the minor street intersection approach (on-ramp) by estimating the availability and the usefulness in gaps in major street traffic (so that vehicles on the minor street can merge with traffic on the major street). A survey was conducted to measure the time it takes for a given vehicle to enter the traffic stream from the on-ramp. This value (averaged by the total number of vehicles) was used as an accepted gap value. This method was not used because actual counts on the on-ramps exceeded the HCM maximum recommended capacity.
Field Measured Data Using 1994 on-ramp and off-ramp traffic counts (a complete set of ramp volume counts for when NSTI was operational was only available for 1994 conditions) provided by Caltrans, the maximum number of serviced vehicles were used as the capacity of the on- and off-ramps. Caltrans data indicate that the eastbound on-ramp from Yerba Buena Island had the highest demand. In addition, during field surveys in 1994, a queue at the eastbound on-ramp was observed during the ramp peak hour, this signifying that the on-ramp was operating at capacity. The merging distances for the eastbound on-ramp is less than 50 feet and the bridge piers severely restrict sight distances for drivers trying to get onto the bridge. With the operational constraints on the eastbound on-ramp, this ramp was used as a worst-case scenario, and an on-ramp capacity of 330 vph was used for all on-ramps. An off-ramp capacity of 560 vph was used for all off-ramps, except for the eastbound off-ramp west of the tunnel in which a lower capacity of 500 vph was used due to its steep grade and tight turning radius.
The capacity data input into the FREQ11 model for the freeway and ramps is presented in Table E-19. The on-ramp and off-ramp capacities were assumed to be the same in 2000 as in 1993/1994 as no improvements to the system were made during that time period.
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Table E-19 Freeway and Ramp Capacity at Yerba Buena Island (vph)
Freeway Eastbound SFOBB/I-80 Westbound SFOBB/I-80 Mainline Off-ramp (west Off-ramp (east On-ramp (east side On-ramp (east side Off-ramp (east On-ramp (west side YBI tunnel1) side YBI tunnel) YBI tunnel) YBI tunnel) side of YBI tunnel side YBI tunnel) 10,500 500 560 330 330 560 330
Source: Korve Engineering Inc., 1997.
1Yerba Buena Island.
Future Travel Forecasts
SFOBB/I-80 Year 2010 conditions AM and PM peak period traffic volumes were estimated using the MTC travel demand model. An annualized growth rate, which was determined by comparing the existing 1994 counts and year 2015 model volumes obtained from the Alternatives to Replacement of the Embarcadero Freeway and the Terminal Separator Structure Report, was applied to existing 1994 traffic counts to derive Year 2010 baseline volumes. These growth rates were based on ABAG Projections ‘94. The San Francisco 2015 Cumulative Update to the ABAG Projections ‘96 land use database was not used in the analyses as such data is useful only when the project under review is broadly physically integrated into the larger region. NSTI is connected to the region by one route – the SFOBB/I-80. Since the SFOBB/I-80 is already operating at capacity, the new data would not affect any analyses done using the Projections ’94 data.
Based on the growth rate developed for the Alternatives to the Replacement of the Embarcadero Freeway and Terminal Separator Structure EIS/EIR, the AM peak traffic hour demand on the SFOBB was anticipated to increase over 1994 by approximately 6 percent in the westbound direction and 14 percent in the eastbound direction east of Treasure Island by the year 2010. Overall increases in traffic volumes during the PM peak hour were anticipated to be approximately 13 percent in the westbound direction and an additional 3 percent in the westbound direction east of Treasure Island by the year 2010.
The year 2010 weekend midday peak hour volumes were developed using 1996/1997 mainline traffic volumes for weekday and weekend conditions, and projected growth for weekday conditions. The existing relationship between the weekend midday peak and weekday AM peak period was calculated. This distribution was then applied to the projected year 2010 weekday AM peak hour volumes to obtain year 2010 weekend midday peak period mainline traffic volumes.
The weekend midday peak hour traffic demand growth on the SFOBB was projected to be similar to the AM peak. The increase would be approximately 6 percent in the westbound direction and 14 percent in the eastbound direction east of Treasure Island by the year 2010.
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For the updated year 2020 analysis, two important assumptions were made: 1) The SFOBB is operating at capacity during the AM and PM peak hours in the peak direction and has been for several years and 2) traffic on the bridge could not be increased during the AM or PM peak hours due to capacity constraints. As a result of these factors, the 2020 travel demand forecasts for the mainline freeway or the SFOBB would be consistent with those prepared for 2010.
On- and Off-ramps The land use components of the Maximum, Medium, and Minimum Development Alternatives were used to determine the projected travel to and from NSTI during the weekday AM and PM peak hours, and the weekend midday peak hour.
Future Conditions under the No Action Alternative
SFOBB /I-80 Operations During peak period of operation, traffic demand projected for future year 2010 conditions was expected to exceed the current maximum volumes on the SFOBB of 10,000 vph. However, existing metering practices in the westbound direction at the toll plaza would limit the number of vehicles that could access the SFOBB/I-80. Westbound traffic accessing the SFOBB/I-80 would be restricted to approximately 10,500 vehicles during the AM peak hour and 9,000 vehicles during the PM peak hour. More vehicles are metered in the PM peak due to congestion and backups from I-80 in San Francisco. With the projected increases in traffic demand, the peak period would be anticipated to spread over a longer period than under existing conditions. During both the AM and PM peak hours, the westbound traffic on the SFOBB/I-80 would be projected to operate at capacity for more than three hours during the peak period.
In the eastbound direction, the capacity and congestion in downtown segments of I-80 would restrict the number of vehicles accessing the SFOBB/I-80 to approximately 9,500 vph. This condition would be anticipated to continue under the No Action Alternative, as there are no planned improvements at the downtown San Francisco approach of the SFOBB/I-80. As in the westbound direction, the increase in eastbound demand would result in the spread of the peak period. By 2020, the projected increase in travel demand could result in further spreading of the peak period in both directions and increased queues at the toll plaza for westbound traffic and on San Francisco city streets for eastbound traffic.
Ramp Operations As a result of the closure of the NSTI, traffic volume on the ramps connecting the SFOBB/I-80 with Yerba Buena Island has decreased. With the NSTI decommissioning and minimal reuse of the existing land uses, during both the weekday AM and PM peak hours, the ramp volumes are anticipated to be approximately a third of the 1994 levels. Under No Action conditions, total traffic entering and exiting NSTI in both the eastbound and westbound directions would be approximately 275 vph during the AM peak hour, and 250 vph during the PM peak hour. During the weekend midday peak hour, volumes are estimated to be similar to weekday AM conditions
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(275 vph). These vehicles would include trips to and from the Coast Guard Station, the museum, and sightseeing trips.
Analysis Results Table E-20 presents a summary of the analysis results of the SFOBB/I-80 freeway operations for the peak hour conditions. Tables E-21 and E-23 present the SFOBB/I-80 operations for the three-hour FREQ11 run, for the eastbound and westbound directions, respectively. Traffic volumes, speeds and LOS are presented for five segments of the SFOBB/I-80. Table E-23 presents the SFOBB/I-80 results for weekend conditions. Table E-24 presents the SFOBB/I-80 ramp volumes and queues for the Yerba Buena Island on- and off-ramps.
Intersection Analysis Operating characteristics of intersections are described by use of the concept of Level of Service (LOS). LOS designations are a qualitative description of an intersection’s performance based on traffic delays. An intersection’s LOS could range from LOS A, representing free-flow conditions, to LOS F, representing congested conditions. All intersections analyzed for the Reuse Alternatives are unsignalized, and Table E-25 provides detailed descriptions of the various LOS operating conditions for unsignalized intersections.
Operations at unsignalized intersections (both two-way and all-way stop-controlled) were evaluated using the methodology outlined in Chapter 10 of the 1994 Update to the 1985 Highway Capacity Manual. For two-way stop-controlled intersections, the analysis method determines the conflicting traffic volumes, the capacity of the gaps in the major traffic stream, and estimates the average total delay for each movement. Total delay is defined as the total elapsed time from when a vehicle joins the queue until the vehicle departs from the stopped position at the head of the queue. Level of service is then based on the average total delay. Level of service for unsignalized intersections ranges from LOS A, which is generally free-flow conditions with easily made turns by the minor street traffic, to LOS F, which indicates very long delays for the minor street traffic. For all-way STOP-controlled intersections, the analysis methodology estimates the capacity and delay for each roadway approach based upon the intersection geometry and the turning movements at the intersection. The LOS is then determined based on the average total delay for the intersection as a whole.
Table E-26 presents a summary of the weekday and weekend peak hour analyses for the five study intersections. Given the delays in redevelopment of Treasure Island, the original 2010 projections are assumed to occur by 2020.
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Table E-20 Summary of SFOBB/I-80 Weekday and Weekend Peak Hour Traffic Conditions
Eastbound Westbound Scenario/Time Period Speed LOS Speed LOS 3 Weekday AM Peak Hour (7:30 – 8:30)
1993/94 57 B 45 E
No (Year 57 B 23 F Maximum 57 B 22 F (Year
Medium 57 B 23 F (Year
Minimum 57 B 23 F (Year
Weekday PM Peak Hour (4:30 – 5:30)
1993/94 46 D 56 B
No 46 D 18 F (Year
Maximum 46 D 17 F (Year
Medium 46 D 17 F (Year
Minimum 46 D 17 F (Year
Weekend Midday Peak Hour (12:30 – 1:30)
1993/94 57 B 57 B
No 57 B 57 B (Year Maximum 56 B 57 B (Year Medium 57 B 57 B (Year
Minimum 56 B 57 B (Year
Source: Korve Engineering, Inc., May 1997, Updated by EnviroTrans Solutions 2002.
1 Eastbound I-80/SFOBB east of the tunnel 2 Westbound I-80/SFOBB east of the tunnel 3 LOS is based on mainline travel speeds consistent with San Francisco CMP LOS designations
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Table E-21 Freeway Mainline Travel Speeds, Volumes, and LOS (SFOBB/I-80 Eastbound) —Weekday Conditions
AM Peak Period T.I. Road Left Off- to T.I. Road T.I. Road Right Off- to T.I. Road Fremont On- to I-80 Mainline I-80 SFOBB to T.I Road Left Off- Right Off- On- T.I. Road On- to I-80 Mainline Scenario/Time Volume Speed Volume Speed Volume Speed Volume Speed Volume Speed Period (vph) (mph) LOS (vph) (mph) LOS (vph) (mph) LOS (vph) (mph) LOS (vph) (mph) LOS 1993/94 6:30 – 7:30 AM 6,889 53 D 6,889 57 B 7,051 57 B 6,721 57 B 7,049 57 B 7:30 – 8:30 AM 7,048 53 D 7,048 57 B 7,387 57 B 6,916 57 B 7,133 57 B 8:30 – 9:30 AM 6,328 53 D 6,328 57 B 6,870 57 B 6,249 57 B 6,387 57 B No Action 6:30 – 7:30 AM 7,135 52 D 7,135 57 B 6,984 57 B 7,046 57 B 7,127 57 B 7:30 – 8:30 AM 7,410 52 D 7,410 57 B 7,376 57 B 7,366 57 B 7,407 57 B 8:30 – 9:30 AM 6,922 52 D 6,922 57 B 6,835 57 B 6,867 57 B 6,908 57 B Maximum Alternative 6:30 – 7:30 AM 7,186 52 D 7,186 57 B 6,985 57 B 6,864 57 B 7,162 57 B 7:30 – 8:30 AM 7,483 52 D 7,483 57 B 7,376 57 B 7,310 57 B 7,459 57 B 8:30 – 9:30 AM 6,962 52 D 6,962 57 B 6,836 57 B 6,761 57 B 6,910 57 B Medium Alternative 6:30 – 7:30 AM 7,176 52 D 7,176 57 B 7,001 57 B 6,889 57 B 7,024 57 B 7:30 – 8:30 AM 7,468 52 D 7,468 57 B 7,376 57 B 7,317 57 B 7,385 57 B 8:30 – 9:30 AM 7,339 52 D 6,955 57 B 6,847 57 B 6,778 57 B 6,844 57 B Minimum Alternative 6:30 – 7:30 AM 7,185 52 D 7,185 57 B 6,984 57 B 6,864 57 B 7,053 57 B 7:30 – 8:30 AM 7,483 52 D 7,483 57 B 7,376 57 B 7,310 57 B 7,405 57 B 8:30 – 9:30 AM 6,961 52 D 6,961 57 B 6,835 57 B 6,760 57 B 6,855 57 B
PM Peak Period T.I. Road Left Off- to T.I. Road T.I. Road Right Off- to T.I. Road Fremont On- to I-80 Mainline I-80 SFOBB to T.I Road Left Off- Right Off- On- T.I. Road On- to I-80 Mainline Scenario/Time Volume Speed Volume Speed Volume Speed Volume Speed Volume Speed Period (vph) (mph) LOS (vph) (mph) LOS (vph) (mph) LOS (vph) (mph) LOS (vph) (mph) LOS 1993/94 3:30 – 4:30 PM 9,451 47 D 9,451 46 D 9,393 46 D 9,373 46 D 9,620 46 D 4:30 – 5:30 PM 9,456 47 D 9,456 46 D 9,384 46 D 9,359 46 D 9,473 46 D 5:30 – 6:30 PM 8,965 51 D 8,965 46 D 8,897 47 D 8,875 47 D 9,005 46 D No Action 3:30 – 4:30 PM 9,499 47 D 9,499 46 D 9,423 46 D 9,421 46 D 9,460 45 D 4:30 – 5:30 PM 9,457 47 D 9,457 46 D 9,399 46 D 9,393 46 D 9,471 45 D 5:30 – 6:30 PM 8,965 51 D 8,965 46 D 8,937 46 D 8,936 46 D 8,975 45 D Maximum Alternative 3:30 – 4:30 PM 9,450 47 D 9,450 46 D 9,206 46 D 9,140 46 D 9,290 46 D 4:30 – 5:30 PM 9,455 47 D 9,455 46 D 8,933 47 D 8,790 47 D 9,090 46 D 5:30 – 6:30 PM 8,965 51 D 8,965 46 D 8,706 47 D 8,633 47 D 8,783 47 D Medium Alternative 3:30 – 4:30 PM 9,450 47 D 9,450 46 D 9,360 46 D 9,339 46 D 9,476 46 D 4:30 – 5:30 PM 9,456 47 D 9,450 46 D 9,260 46 D 9,214 46 D 9,487 46 D 5:30 – 6:30 PM 8,965 51 D 8,965 46 D 8,869 47 D 8,847 47 D 8,984 46 D Minimum Alternative 3:30 – 4:30 PM 9,450 47 D 9,450 46 D 9,338 46 D 9,311 46 D 9,435 46 D 4:30 – 5:30 PM 9,458 47 D 9,458 46 D 9,211 46 D 9,150 46 D 9,397 46 D 5:30 – 6:30 PM 8,965 51 D 8,965 46 D 8,845 47 D 8,814 47 D 8,938 46 D Source: Korve Engineering, Inc., May 1997. LOS is based on mainline travel speeds consistent with San Francisco CMP LOS designations 1 Ramp located west of Yerba Buena Island tunnel. 2 Ramp located east of Yerba Buena Island tunnel.
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Table E-22 Freeway Mainline Travel Speeds, Volumes, and LOS (SFOBB/I-80 Westbound) Weekday Conditions AM Peak Period I-80 Mainline to Fremont I-80 SFOBB to Y.B On-ramp Y.B. On- to Y.B. Off-ramp Y.B. Off- to Y.B. On-ramp Y.B. On- to I-80 Mainline Off-Ramp Scenario/Time Volume Speed Volume Speed Volume Speed Volume Speed Volume Speed Period (vph) (mph) LOS (vph) (mph) LOS (vph) (mph) LOS (vph) (mph) LOS (vph) (mph) LOS 1993/94 6:30 – 7:30 AM 10,540 34 F 10,628 36 F 10,429 46 D 10,472 37 E 10,500 28 F 7:30 – 8:30 AM 9,571 45 E 9,644 45 E 9,540 46 D 9,572 55 C 9,823 25 F 8:30 – 9:30 AM 8,120 49 D 8,184 49 D 8,034 50 D 8,056 57 B 8,056 57 B No Action 6:30 – 7:30 AM 9,115 21 F 9,130 21 F 9,090 21 F 9,125 22 F 9,125 22 F 7:30 – 8:30 AM 9,586 23 F 9,575 23 F 9,553 23 F 9,571 24 F 9,571 24 F 8:30 – 9:30 AM 8,422 48 D 8,429 49 D 8,410 42 E 9,041 27 F 9,041 22 F Maximum Alternative 6:30 – 7:30 AM 8,729 20 F 8,876 21 F 8,725 20 F 9,005 22 F 9,055 22 F 7:30 – 8:30 AM 9,274 22 F 9,348 22 F 9,260 22 F 9,439 23 F 9,439 23 F 8:30 – 9:30 AM 8,883 27 F 8,957 21 F 8,887 20 F 9,057 22 F 9,057 22 F Medium Alternative 6:30 – 7:30 AM 9,297 22 F 9,336 22 F 9,198 21 F 9,291 23 F 9,291 23 F 7:30 – 8:30 AM 9,553 23 F 9,572 23 F 9,502 23 F 9,549 24 F 9,549 24 F 8:30 – 9:30 AM 8,473 42 E 8,494 27 F 8,431 24 F 9,046 22 F 9,046 22 F Minimum Alternative 6:30 – 7:30 AM 9,126 21 F 9,200 22 F 9,045 21 F 9,217 22 F 9,217 22 F 7:30 – 8:30 AM 9,474 23 F 9,510 23 F 9,431 22 F 9,517 24 F 9,517 24 F 8:30 – 9:30 AM 8,482 35 F 8,519 22 F 8,963 20 F 9,049 27 F 9,049 22 F
PM Peak Period I-80 Mainline to Fremont I-80 SFOBB to Y.B On-ramp Y.B. On- to Y.B. Off-ramp Y.B. Off- to Y.B. On-ramp Y.B. On- to I-80 Mainline Off-Ramp Scenario/Time Volume Speed Volume Speed Volume Speed Volume Speed Volume Speed Period (vph) (mph) LOS (vph) (mph) LOS (vph) (mph) LOS (vph) (mph) LOS (vph) (mph) LOS 1993/94 3:30 – 4:30 PM 8,191 56 B 8,327 56 B 8,072 57 B 8,097 57 B 8,097 56 B 4:30 – 5:30 PM 8,347 56 B 8,423 56 B 8,210 56 B 8,233 56 B 8,199 19 F 5:30 – 6:30 PM 7,966 57 B 8,047 56 B 7,890 57 B 7,909 57 B 7,909 57 B No Action 3:30 – 4:30 PM 9,000 58 B 9,008 56 B 8,990 56 B 7,822 38 E 7,822 18 F 4:30 – 5:30 PM 7,960 18 F 7,975 18 F 7,941 17 F 8,001 18 F 8,001 18 F 5:30 – 6:30 PM 8,498 20 F 8,506 20 F 8,489 20 F 8,520 20 F 8,520 20 F Maximum Alternative 3:30 – 4:30 PM 7,722 48 D 7,764 37 E 7,568 32 F 7,790 23 F 7,745 17 F 4:30 – 5:30 PM 7,795 17 F 7,879 18 F 7,513 16 F 7,923 17 F 7,843 18 F 5:30 – 6:30 PM 8,406 18 F 8,449 20 F 8,259 19 F 8,474 19 F 8,435 20 F Medium Alternative 3:30 – 4:30 PM 7,667 47 D 7,724 37 E 7,650 32 F 7,798 23 F 7,798 18 F 4:30 – 5:30 PM 7,697 17 F 7,768 17 F 7,627 16 F 7,922 17 F 7,922 18 F 5:30 – 6:30 PM 8,365 19 F 8,401 19 F 8,329 19 F 8,476 19 F 8,476 20 F Minimum Alternative 3:30 – 4:30 PM 7,708 51 D 7,740 40 E 7,568 35 F 7,745 24 F 7,790 18 F 4:30 – 5:30 PM 7,743 17 F 7,810 17 F 7,513 15 F 7,843 17 F 7,923 18 F 5:30 – 6:30 PM 8,388 19 F 8,420 19 F 8,259 19 F 8,435 19 F 8,474 20 F Source: Korve Engineering, Inc., May 1997.
LOS is based on mainline travel speeds consistent with San Francisco CMP LOS designations 1 Ramp located east of Yerba Buena Island tunnel. 2 Ramp located west of Yerba Buena Island tunnel.
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Table E-23 Freeway Mainline Travel Speeds, Volumes, and LOS (SFOBB/I-80) Weekend Conditions Eastbound Weekend Midday Peak T.I. Road Left Off- to T.I. Road T.I. Road Right Off- to T.I. Road Fremont On-to I-80 Mainline I-80 SFOBB to T.I Road Left Off- Right Off- On- T.I. Road On- to I-80 Mainline Scenario/Time Volume Speed Volume Speed Volume Speed Volume Speed Volume Speed Period (vph) (mph) LOS (vph) (mph) LOS (vph) (mph) LOS (vph) (mph) LOS (vph) (mph) LOS 1993/94 11:30 – 12:30 PM 6,584 53 D 6,584 57 B 6,510 58 A 6,487 58 A 6,640 57 B 12:30 – 1:30 PM 7,152 53 D 7,152 57 B 7,050 57 B 7,038 57 B 7,171 57 B 1:30 – 2:30 PM 7,435 53 D 7,435 57 B 7,329 57 B 7,304 57 B 7,409 57 B No Action 11:30 – 12:30 PM 7,378 52 D 7,378 57 B 7,330 57 B 7,328 57 B 7,369 57 B 12:30 – 1:30 PM 7,692 52 D 7,692 57 B 7,604 57 B 7,600 57 B 7,681 57 B 1:30 – 2:30 PM 7,434 52 D 7,434 57 B 7,390 57 B 7,389 57 B 7,430 57 B Maximum Alternative 11:30 – 12:30 PM 7,403 52 D 7,403 57 B 7,292 57 B 7,264 57 B 7,504 57 B 12:30 – 1:30 PM 7,795 52 D 7,795 56 B 7,587 57 B 7,533 57 B 7,863 56 B 1:30 – 2:30 PM 7,435 52 D 7,435 57 B 7,334 57 B 7,308 57 B 7,638 57 B Medium Alternative 11:30 – 12:30 PM 7,399 52 D 7,399 57 B 7,298 57 B 7,272 57 B 7,420 57 B 12:30 – 1:30 PM 7,778 52 D 7,778 56 B 7,589 57 B 7,543 57 B 7,838 57 B 1:30 – 2:30 PM 7,434 52 D 7,434 57 B 7,343 57 B 7,321 57 B 7,469 57 B Minimum Alternative 11:30 – 12:30 PM 7,391 52 D 7,391 57 B 7,312 57 B 7,297 57 B 7,457 57 B 12:30 – 1:30 PM 7,744 52 D 7,744 56 B 7,598 57 B 7,570 57 B 7,890 58 B 1:30 – 2:30 PM 7,434 52 D 7,434 57 B 7,363 57 B 7,350 57 B 7,510 57 B
Westbound Weekend Midday Peak I-80 Mainline to Fremont I-80 SFOBB to Y.B On-ramp Y.B. On- to Y.B. Off-ramp Y.B. Off- to Y.B. On-ramp Y.B. On- to I-80 Mainline Off-Ramp Scenario/Time Volume Speed Volume Speed Volume Speed Volume Speed Volume Speed Period (vph) (mph) LOS (vph) (mph) LOS (vph) (mph) LOS (vph) (mph) LOS (vph) (mph) LOS 1993/94 11:30 – 12:30 PM 7,600 57 B 7,727 57 B 7,586 57 B 7,609 57 B 7,609 57 B 12:30 – 1:30 PM 7,131 57 B 7,283 57 B 7,094 57 B 7,106 57 B 7,106 57 B 1:30 – 2:30 PM 7,087 57 B 7,233 57 B 7,094 57 B 7,111 57 B 7,111 57 B No Action 11:30 – 12:30 PM 8,054 57 B 8,071 57 B 8,050 57 B 8,067 57 B 8,067 57 B 12:30 – 1:30 PM 7,611 57 B 7,624 57 B 7,582 57 B 7,616 57 B 7,616 57 B 1:30 – 2:30 PM 7,498 57 B 7,504 57 B 7,485 57 B 7,504 57 B 7,504 57 B Maximum Alternative 11:30 – 12:30 PM 8,130 57 B 8,227 56 B 8,148 57 B 8,432 56 B 8,432 58 B 12:30 – 1:30 PM 7,744 57 B 7,937 57 B 7,770 57 B 8,100 57 B 8,100 57 B 1:30 – 2:30 PM 7,563 57 B 7,659 57 B 7,582 57 B 7,912 57 B 7,912 57 B Medium Alternative 11:30 – 12:30 PM 8,118 57 B 8,163 57 B 8,090 57 B 8,221 56 B 8,221 56 B 12:30 – 1:30 PM 7,717 57 B 7,807 57 B 7,664 57 B 7,925 57 B 7,925 57 B 1:30 – 2:30 PM 7,550 57 B 7,594 57 B 7,528 57 B 7,660 57 B 7,660 57 B Minimum Alternative 11:30 – 12:30 PM 8,093 57 B 8,148 57 B 8,098 57 B 8,257 56 B 8,257 56 B 12:30 – 1:30 PM 7,669 57 B 7,778 57 B 7,682 57 B 7,999 57 B 7,999 57 B 1:30 – 2:30 PM 7,526 57 B 7,581 57 B 7,537 57 B 7,697 57 B 7,697 57 B
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Table E-24 Volume and Maximum Queue on Connector Ramps—Weekday & Weekend Conditions
No Maximum Medium Minimum Ram Volume Queue Volume Queue Volume Queue Volume Queue
Weekday AM Westbound On (east of 1 01403070 Westbound 4 0160140160 Westbound On (west of 3 033390170
Eastbound Off (west of 9 0230200230 Eastbound Off (east of 60140130140 Eastbound 8 0290130190
Weekday PM Westbound On (east of 1 0807060 Westbound 3 0370140160 Westbound On (west of 6 0352 29 0270
Eastbound Off (west of 5 0532 19 0240 Eastbound Off (east of 601404060 Eastbound 7 0300270240
Weekend Midday Westbound On (east of 1 019090100 Westbound 4 0170150100 Westbound On (west of 3 05623 26 0310
Eastbound Off (west of 9 0230210160 Eastbound Off (east of 60 5 05030 Eastbound 8 04815 29 0320
Source: Korve Engineering, Inc., May 1997.
Notes: On-ramp queue based on a measured capacity of 330 vph on the Treasure Island on-ramps. Off-ramp queue based on a measured capacity of 560 for all off-ramps except the eastbound Treasure Island off-ramp (east of YBI.) with a capacity of 500 vph.
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Table E-25 Level of Service Definitions for Two-Way and All-Way Stop-Controlled Intersections Average Total Delay LOS Typical Traffic Condition (sec/veh) A 0 – 5 Little or no delay B 5.1 – 10 Short traffic delays C 10.1 – 20 Average traffic delays D 20.1 – 30 Long traffic delays E 30.1 – 45 Very long traffic delays F >45 (1)
Source: Highway Capacity Manual, Special Report No. 209, Transportation Research Board, 1985, Updated 1994
(1) For two-way stop-controlled intersections, LOS F exists when there are insufficient gaps of suitable size to allow side street demand to cross safely through major street traffic stream. This LOS is generally evident from extremely long total delays experienced by side street traffic and by queuing on the minor approaches. When demand volume exceeds the capacity of the lane, extreme delays would be encountered with queuing, which may cause severe congestion affecting other traffic movements in the intersection. This condition usually warrants improvement to the intersection.
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Table E-26 Intersection Level of Service⎯Year 2020 Conditions Weekday AM and PM Peak Hours
Maximum Development Medium Development Minimum Development Alternative Alternative Alternative Study Intersection AM PM AM. PM AM PM Delay1 LOS Delay LOS Delay LOS Delay LOS Delay LOS Delay LOS Avenue of the Palms/ 6.2 B 28.9 D 0.7 A 3.4 A 2.8 B 3.8 A California Avenue
Avenue C/California 0.1 A 0.9 A 0.1 A 0.0 A 0.1 A 1.2 A
Avenue C/9th Street 0.2 A 2.4 B 0.2 A 0.1 A 0.3 A 2.5 A
Avenue H/4th Street 0.3 A 0.3 B 0.4 A 0.6 A 0.5 A 0.4 A
Avenue H/9th Street 2.5 A 4.5 A 1.1 A 1.3 A 1.2 A 1.2 A
Weekend Midday Peak Hour
Intersection Maximum Development Medium Development Minimum Development Alternative Alternative Alternative Delay1 LOS Delay LOS Delay LOS Avenue of the Palms/California Avenue 21.9 D 3.4 A 3.5 A
Avenue C/California Avenue 0.1 A 0.0 A 0.1 A
Avenue C/9th Street 0.2 A 0.2 A 0.5 A
Avenue H/4th Street 0.0 A 0.2 A 0.1 A
Avenue H/9th Street 4.1 A 1.1 A 1.1 A
Source: Korve Engineering 1997.
1: Delay is expressed in seconds per vehicle.
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Transit Analysis
Ferry Service The key determinants to the ferry requirement tables (Figures 40, 44, and 47 in the Naval Station Treasure Island Reuse Plan Transportation Background Report) were the number of vessels and trips required to meet the peak travel hour/peak direction requirements. For example, if the peak direction ferry travel demand to Treasure Island is 710 passengers, three vessels would be required during that hour assuming a standard vessel capacity of 300 persons and a single ferry route. Table E-27 summarizes peak hour/peak direction ferry travel demand to Treasure Island for the Reuse Alternatives.
If the peak demand hour is during a commute period, when all available vessels are in service, the entire fleet of vessels required to NSTI must be dedicated to that service, unless a portion of the demand can be met by existing ferries by introducing a stop at Treasure Island. If the peak travel demand for NSTI is midday or evenings during the weekdays, any time on the weekend, or if peak period reverse commute capacity could be tapped, the reserve capacity in the existing and the proposed Bay Area ferry fleet expansion could meet some of the projected ferry demand for NSTI. The Reuse Plan ferry analysis focused on the weekday demand when excess vessels were assumed to be unavailable and all the new demand generated from NSTI would need to be provided through new service. In comparing the daily and peak hour ferry demand calculated for the Reuse Plan and for the alternatives in the following conclusions were developed.
• The Reuse Plan Phase 3 ferry plan would be adequate to serve the trip demand generated by the Maximum and Medium Development Alternatives. Although the 30,668 trips using the ferries during Phase 3 of the Reuse Plan would be less than the 34,632 daily riders under the Maximum Development Alternative and less than the 35,036 under the Medium Development Alternative, the weekday PM peak hour/peak directional use was projected to be 2,300 for the Phase 3 plan, compared with the demand of 2,082 and 2,482 peak directional trips with the Maximum and Medium Development Alternatives, respectively.
Although the Medium Development Alternative would generate eight percent more ferry trips during the 5:00 to 6:00 PM peak hour than the Reuse Plan Phase 3 ferry plan, due to differences in land uses from the Reuse Plan, the Medium Development Alternative would have somewhat different distributions to the Ferry Building, Candlestick Point, and the East Bay terminals. In comparison with the Phase 3 plan, the Medium Development Alternative would result in three percent fewer trips to the Ferry Building, 15 percent more trips to the East Bay, and 19 percent more trips to Candlestick Point. However, since ferry increments serve up to 300 passengers, the comparison trips indicates that the same number of peak hour and peak period (the peak hour for ferry was assumed to be 7:00 to 8:00 PM), trips could carry the incremental peak hour demand. For example, two ferry trips are required to carry 506 persons from NSTI to Candlestick Point, the same number of ferry trips required to carry 436 persons between 5:00 and 6:00 PM in the Phase 3 plan.
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Table E-27 Summary of Treasure Island Ferry Trips Peak Hour/Peak Direction
Analysis Period Maximum Development Medium Development Minimum Development Alternative Alternative Alternative Weekday daily 34,632 35,036 9,578
Weekday AM peak 1,529 554 739
Weekday PM/peak 3,898/2,082 4,416/2,482 1,260/709 direction1 Weekend daily 32,118 36,170 9,681
Weekend midday 3,118/1,706 4,233/2,262 1,004/633 peak/peak direction2 Source: Korve Engineering, Inc., 1997.
1 Peak direction is outbound. 2 Peak direction is inbound for Maximum and Minimum Development Alternatives and outbound for Minimum Development Alternative.
Because of parking deficiencies at the Ferry Building and Jack London Square, the Phase 3 plan included additional vessels from Candlestick Point in San Francisco and Golden Gate Fields on the Albany/Berkeley border, locations where additional parking capacity is available. This level of service required three vessels from the Ferry Building, three vessels from Candlestick Point, and four from the two East Bay ferry terminals.
• The Reuse Plan Phase 2 would be adequate to serve the trip demand generated by the Minimum Development Alternative. The Phase 2 plan was developed to serve weekday daily transportation of 10,222 trips by ferry, as compared to 9,578 daily weekday trips for the Minimum Development Alternative. Assuming 15-knot vessels between the Ferry Building and Treasure Island, and 25-knot vessels operating from Jack London Square, a total of 4 vessels would be required to serve the travel demand.
During development of the Reuse Plan ferry program, at least 2 ferry trips were assigned per hour from each terminal so that wait times would never exceed 30 minutes. Since 4 vessels could provide 2 trips per hour from Oakland and 3 trips per hour from the Ferry Building, they would have a capacity of 900 persons per hour in the peak direction from the Ferry Building and 600 passengers an hour from Jack London Square, significantly above the indicated demand for 790 passenger trips during the weekday PM peak hour for the Minimum Development Alternative.
Proposals for additional ferry service from NSTI and Larkspur, Vallejo, Alameda and Oakland were discussed as part of the Reuse Alternative definition. While ferry service is expected from Oakland (and a stop at Alameda is possible), service from Larkspur
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and Vallejo is unlikely to be warranted, with passengers from those locations taking regularly scheduled service to the Ferry Building and transferring to the short route from the Ferry Building to NSTI. Demand from those locations would be insufficient to justify new vessels for dedicated service on Larkspur to NSTI or Vallejo to NSTI routes.
Ferry service proposed as part of the Reuse Plan would be implemented incrementally as development occurs on Treasure Island. Funding for ferry capital improvements and operations is being pursued through public and private sources. The Treasure Island Development Authority, in conjunction with the Bay Area Water Transit Authority (BAWTA), has secured initial funding for design and construction of a temporary ferry terminal on Treasure Island. BAWTA has also secured initial federal funding for development of a prototype fuel cell powered vessel that would operate between San Francisco and Treasure Island. Funding for the full ferry service plan outlined in the Reuse Plan Phase 3 has not been obtained.
If unused capacity on existing ferry vessels were made available, the demand for new vessels could potentially be reduced. See Tables E-28 and 29. The additional demand from the North Bay, which is relatively small, could potentially be accommodated via the existing Sausalito and Larkspur ferry service to the San Francisco ferry building with a stop at or connecting service to Treasure Island.
The demand from the East Bay would only be partially accommodated on the existing ferry service if an intermediate stop at Treasure Island were introduced on the Oakland/ Alameda service to San Francisco. If this service potential were tapped, it could reduce the number of vessels required to accommodate service to Treasure Island.
The ferry demand between San Francisco and Treasure Island could be partially accommodated through reverse commute capacity available on the Oakland/Alameda ferry route. Presently, the vessels operating in the reverse commute direction operate at about 10 percent or less of capacity. Pressing existing vessels into Treasure Island service would potentially increase the efficiency of ferry operations by increasing fare box recoveries of runs that are currently operating well below capacity. Adding an additional NSTI stop to existing San Francisco trips from east bay terminals could have an adverse impact on existing ridership due to the added crossing time and could disrupt standard sequential schedules (typically service once every hour or two) potentially requiring new vessels to meet schedule requirements. New service would also be required between Candlestick Point and Treasure Island to accommodate the new demand to and from southern San Francisco and the Peninsula.
Bus Service AC Transit bus service between NSTI, San Francisco, and the East Bay was discontinued in 1996. Subsequently, San Francisco Muni has provided bus service between NSTI and San Francisco. In 2002, Muni upgraded the 108 Line to provide 24-hour weekday and weekend service. During the peak periods, the 108 operates at
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Table E-28 Summary of Existing Ferry Transit Service Daily and Peak Hour Trips
Ridership Available Seats
Service/Analysis Period One-Way Number Peak Reverse Peak Reverse Capacity of Trips Direction1 Peak2 Direction Peak Weekday daily Alameda/Oakland Ferry 3,900 13 1,350 NA 2,550 NA North Bay Ferry 11,650 31 6,950 NA 4,700 NA Subtotal 15,550 44 8,300 NA 7,250 NA
Weekday AM peak Alameda/Oakland Ferry 390 1 162 39 228 351 North Bay Ferry 1,740 3 539 174 1,201 1,566 Subtotal 2,130 4 701 213 1,429 1,917
Weekday PM peak Alameda/Oakland Ferry 600 2 322 60 278 540 North Bay Ferry 1,740 3 760 174 980 1,566 Subtotal 2,340 5 1,082 234 1,258 2,106
Source: EnviroTrans Solutions from 2002 from Ferry Operators, San Francisco Bay Area Regional Ferry Plan Update, Pacific Transit Management Corporation, March 1999, and A Strategy to Reduce Traffic Congestion and Improve Air Quality, Draft Implementation & Operations Plan, San Francisco Water Transit Authority, September 13, 2002..
Notes: North Bay transit ridership estimated based on 31 percent capacity utilization factors identified in 2002 San Francisco Transportation Impact Analysis Guidelines for Environmental Review. The ferries were assumed to be approximately 10 percent occupied on the reverse commute trips based on observed ridership. 1 On a typical day, the peak direction for ferries is inbound to the San Francisco terminal in the AM peak and outbound from the ferry terminal in the PM peak. 2 The reverse peak direction is outbound from San Francisco terminal in the AM peak and inbound to the San Francisco ferry terminal in the PM peak.
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Table E-29 Treasure Island Ferry Transit Demand Demand to Available Capacity Assessment
Project Seats Available Net New New Runs Total Demand Per Existing Ridership Seats Required Required Daily AM PM Daily AM PM Daily AM PM Daily AM PM Maximum Development Ferry Terminal Location
San Francisco Downtown Ferry Building 13,950 785 1,710 13,995 1,917 2,106 -45 -1,132 -396 0 -4 -1 Candlestick Park 7,600 430 945 0 0 0 7,600 430 945 25 1 3 Subtotal San Francisco1 21,550 1,215 2,655 13,995 1,917 2,106 7,555 -702 549 25 -2 2
East Bay2 12,085 280 1,135 2,550 228 278 9,535 52 857 32 0 3
North Bay2 1,000 35 110 4,700 1,201 980 -3,700 -1,166 -870 -12 -4 -3
TOTAL Ferry Ridership 34,635 1,530 3,900 21,245 3,346 3,364 13,390 -1,816 536 45 -6 2
Medium Development Ferry Terminal Location
San Francisco Downtown Ferry Building 13,045 255 1,655 13,995 1,917 2,106 -950 -1,662 -451 -3 -6 -2 Candlestick Park 7,010 155 885 0 0 0 7,010 155 885 23 1 3 Subtotal San Francisco 20,055 410 2,540 13,995 1,917 2,106 6,060 -1,507 434 20 -5 1
East Bay 13,985 125 1,740 2,550 228 278 11,435 -103 1,462 38 0 5
North Bay 1,000 20 130 4,700 1,201 980 -3,700 -1,181 -850 -12 -4 -3
TOTAL Ferry Ridership 35,040 555 4,410 21,245 3,346 3,364 13,795 -2,791 1,046 46 -9 4
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Table E-29 Contd. Project Seats Available Net New New Runs Total Demand Per Existing Ridership Seats Required Required Minimum Development Daily AM PM Daily AM PM Daily AM PM Daily AM PM Ferry Terminal Location
San Francisco Downtown Ferry Building 6,590 615 945 13,995 1,917 2,106 -7,405 -1,302 -1,161 -25 -4 -4 Candlestick Park 0 00000000000 Subtotal San Francisco1 6,590 615 945 13,995 1,917 2,106 -7,405 -1,302 -1,161 -25 -4 -4
East Bay 2,740 100 280 2,550 228 278 190 -128 2 1 0 0
North Bay 300 20 35 4,700 1,201 980 -4,400 -1,181 -945 -15 -4 -3
TOTAL Ferry Ridership 9,630 735 1,260 21,245 3,346 3,364 -11,615 -2,611 -2,104 -39 -9 -7
Source: EnviroTrans Solutions, 2002 Notes: Assumes an average 300 ferry vessel passenger capacity for new vessels. Current ferry travel is predominantly inbound to San Francisco in the AM peak hour and predominantly outbound from San Francisco in the PM peak hour with the reverse commute boats providing substantial capacity (approximately 90 percent seats available) for trips from San Francisco to Treasure Island in the morning and from Treasure Island to San Francisco in the afternoon. 1 The seats estimated to be potentially available for the AM trip to Treasure Island from San Francisco and the PM trips from Treasure Island to San Francisco are the estimated number of unused reverse commute seats on the East Bay and North Bay ferries. 2 The seats estimated to be potentially available for the AM trips from the East Bay and North Bay to Treasure Island and the PM trips from Treasure Island to the East Bay and North Bay are the limited number of unused seats in the peak commute direction on the East and North Bay ferries.
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15-minute headways, while during the off-peak service is provided at 30-minute headways. On weekends buses operate every 20 minutes during the day and 45 minutes at might and early morning. The Naval Station Treasure Island Reuse Plan Transportation Plan assumed that bus service would be provided to and from both San Francisco and the East Bay.
The number of projected bus trips to Treasure Island was calculated for each of the three Reuse Alternatives. Both inbound and outbound trips were determined for San Francisco and the East Bay. Due to the bus connections from the North Bay and South Bay within San Francisco (Golden Gate Transit and SamTrans, respectively), all transit trips from these two regions were combined with the San Francisco trips. Table E-30 summarizes the daily and peak hour bus transit demand to and from Treasure Island for the Reuse Alternatives.
Table E-30 Summary of Treasure Island Bus Trips Daily and Peak Hour Trips
Analysis Period Maximum Development Medium Development Minimum Development Alternative Alternative Alternative Weekday daily 9,600 7,100 3,925
Weekday AM peak 696 285 428
Weekday PM/peak 1,278/689 908/553 583/342 direction1 Weekend daily 8,760 8,170 4,650
Weekend midday 1,110/736 872/49 510/396 peak/peak direction2
Source: Korve Engineering, Inc., 1997.
1 Peak direction is inbound for the Maximum Development Alternative and outbound for the Medium and Minimum Development Alternatives. 2 Peak direction is outbound for all Alternatives.
For both eastbound and westbound travel, the average bus capacity was estimated to be 45 passengers based on bus size and load factor standards for San Francisco Muni. The existing bus capacity and ridership and the projected capacity upgrades to serve the Reuse Alternatives are summarized in Tables E-31 and E-32. Presently Muni scheduled bus service is operating over capacity and additional runs are being provided to and from Treasure Island to meet the demand.
Based on the current unused Muni bus capacity and the projected number of additional transit users from Treasure Island, the headways necessary to ensure adequate transit service were calculated for weekday AM and PM peak hours. A similar effort was conducted for weekend midday conditions.. These headways are summarized in Table E-33.
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Table E-31 Summary of Existing Bus Transit Service Daily and Peak Hour Trips
Outbound Number of Available Service/Analysis Period Capacity1 Trips2 Ridership Capacity Weekday daily San Francisco Muni 1,890 42 1,928 80 East Bay/AC Transit 0 0 0 0 Subtotal 1,890 42 1,928 80
Weekday AM peak San Francisco Muni 270 6 310 46 East Bay/AC Transit 0 0 0 0 Subtotal 270 6 310 46
Weekday PM peak San Francisco Muni 945 6 320 56 East Bay/AC Transit 0 0 0 0 Subtotal 945 6 320 56
Source: EnviroTrans Solutions from Muni Service Planning, David Matofsky, 2002.
1 Muni has collected ridership data only for Line 108 only for the outbound direction from the Transbay Terminal. The capacity of the buses is 45 passengers (26 seats) based on the acceptable load factor standards as published in 2002 San Francisco Transportation Impact Analysis Guidelines for Environmental Review. 2 The number of trips is based on the service actually provided. Muni is providing service beyond the scheduled runs to Treasure Island to meet the service demand.
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Table E-32 Treasure Island Transit Demand Demand to Available Bus Capacity Assessment
Project Capacity Available Net New New Runs Total Demand Per Existing Ridership Capacity Required Required Direction of Travel Daily AM PM Daily AM PM Daily AM PM Daily AM PM Maximum Development
San Francisco inbound 2,655 135 445 NA NA NA NA NA NA NA NA NA outbound 2,655 305 305 80 46 56 2,575 259 249 57 6 6 East Bay inbound 2,145 140 245 0 0 0 2,145 140 245 48 3 5 outbound 2,145 120 285 0 0 0 2,145 120 285 48 3 6 TOTAL Bus Ridership 9,600 700 1,280 NA NA NA NA NA NA NA NA NA
Medium Development
San Francisco inbound 1,810 85 190 NA NA NA NA NA NA NA NA NA outbound 1,810 50 270 80 46 56 1,730 4 214 38 1 5 East Bay inbound 1,740 110 165 0 0 0 1,740 110 165 39 2 4 outbound 1,740 40 285 0 0 0 1,740 40 285 39 2 6 TOTAL Bus Ridership 7,100 285 910 NA NA NA NA NA NA NA NA NA
Minimum Development
San Francisco inbound 1,070 105 165 NA NA NA NA NA NA NA NA NA outbound 1,070 135 160 80 46 56 990 89 104 22 2 2 East Bay inbound 893 125 75 0 0 0 893 125 75 20 3 2 outbound 893 65 185 0 0 0 893 65 185 20 1 4 TOTAL Bus Ridership 3,925 430 585 NA NA NA NA NA NA NA NA NA
Source: Korve Engineering, 1997 and EnviroTrans Solutions, 2002
Notes: Assumes an average capacity of 45 passengers per bus. NA = Not Available
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Table E-33 Summary of Bus Service Requirements
Alternative Weekday Headways Weekend Headways Muni AC Transit Muni AC Transit Maximum Development 10 minutes 10 minutes 10 minutes 10 minutes Medium Development 12 minutes 10 minutes 20 minutes 12 minutes Minimum Development 15 minutes 15 minutes 20 minutes 15 minutes
Source: Korve Engineering, Inc., 1997, updated by EnviroTrans Solutions, 2003.
With Muni operating at capacity under all Reuse Alternatives, future development on Treasure Island will need to be accommodated with increments of new service.
For all Reuse Alternatives, additional Muni and new AC Transit service would need to be provided to meet the projected weekday and weekend demand from Treasure Island.
Parking Analysis Long-term and short-term parking demand for all the proposed land uses was determined based on the methodology outlined in Appendix 5.1 of the San Francisco Guidelines for Environmental Review: Transportation Impacts (SF Guidelines). For the proposed residential uses, long-term parking demand was estimated for residents using a rate of 1.5 spaces per unit. For the proposed commercial uses (i.e., all uses other than residential), both long-term parking demand was estimated for employees and short-term parking demand was estimated for visitors.
Long-term parking demand for employees of the commercial uses was based on the estimated number of work trips by auto, while short-term parking demand for visitors was based on the estimated number of non-work trips by auto. As described in the SF Guidelines, the use of parking turnover rates1 is required in order to estimate short- term parking demand. Parking turnover rates were obtained from the Naval Station Treasure Island Reuse Plan Transportation Background Report and are summarized in Table E-34 for each land use.
Existing parking data around the Downtown San Francisco ferry terminal was updated in 2002 to provide a current estimate of long term parking availability. The results of the parking inventory are summarized in Table E-35. Generally, the parking is at or near occupancy during the mid-day on week days. On Friday nights, the average occupancy is 55 percent and on a weekend mid-day, the parking occupancy is only 17 percent.
1 - A parking turnover rate represents the number of vehicles, in a parking lot or garage that occupy one parking space during the day (i.e., the number of times one parking spaces turns over throughout the day).
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Table E-34 Parking Turnover Rates
Parking Land Use Turnover Rate (Vehicles Per Space) Brig, child development center, entertainment center, film production, fire 1.0 school, golf, police, themed attraction, water treatment plant, and wedding chapel
Amphitheater, mixed-use, restaurant, and retail 1.5
Community/institutional, conference, elementary school, hotel, and job corps 2.0
Museum, office, and warehouse 4.0
Marina, open space, and outdoor recreation 5.0
Source: Naval Station Treasure Island Reuse Plan Transportation Background Report, Nelson\Nygaard. Consulting Associates/Pacific Transit Management Corp., June, 1996.
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Table E-35 Treasure Island Transit Demand Demand to Available Bus Capacity Assessment
Project Capacity Available Net New New Runs Total Demand Per Existing Ridership Capacity Required Required Direction of Travel Daily AM PM Daily AM PM Daily AM PM Daily AM PM Maximum Development
San Francisco inbound 2,655 135 445 0-1,890 0-270 0-270 765-2,655 0-135 175-445 17-59 0-3 4-10 outbound 2,655 305 305 80 46 56 2,575 259 249 57 6 6 East Bay inbound 2,145 140 245 0 0 0 2,145 140 245 48 3 5 outbound 2,145 120 285 0 0 0 2,145 120 285 48 3 6 TOTAL Bus Ridership 9,600 700 1,280
Medium Development
San Francisco inbound 1,810 85 190 0-1,890 0-270 0-270 0-1,810 0-85 0-190 0-40 0-20 0-4 outbound 1,810 50 270 80 46 56 ,730 4 214 38 1 5 East Bay inbound 1,740 110 165 0 0 0 1,740 110 165 39 2 4 outbound 1,740 40 285 0 0 0 1,740 40 285 39 2 6 TOTAL 7,100 285 910
Minimum Development
San Francisco inbound 1,070 105 165 0-1,890 0-270 0-270 0-1,070 0-105 0-165 0-24 0-2 0-4 outbound 1,070 135 160 80 46 56 990 89 104 22 2 2 East Bay inbound 893 125 75 0 0 0 893 125 75 20 3 2 outbound 893 65 185 0 0 0 893 65 185 20 1 4 TOTAL 3,925 430 585
Source: Korve Engineering, 1997 and EnviroTrans Solutions, 2002
Notes: Assumes an average capacity of 45 passengers per bus. Muni does not collect inbound ridership numbers. The inbound numbers represent the range of available capacity based on the potential range of existing riders. The net new capacity required and the net new runs required is also presented as a range.
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E.4 AIR QUALITY
Ozone, Carbon Monoxide, and PM10 Ozone usually is considered the primary indicator of photochemical smog, a complex mixture of secondary pollutants created by chemical reactions that occur in the presence of ultraviolet light. Because photochemical reaction rates depend on the intensity of ultraviolet light and warm air temperatures, photochemical smog is primarily a summer and early fall air pollution problem. The constituents of photochemical smog include respiratory irritants, such as ozone, nitrogen dioxide, sulfuric acid, and sulfate aerosols; eye irritants, such as aldehydes (including acrolein and formaldehyde), nitrogen dioxide, and organic nitrates; a range of toxic or potentially carcinogenic organic compounds; and visibility-reducing aerosols. Ambient air quality standards have been set for two of the major components of photochemical smog, namely ozone and nitrogen dioxide. All combustion processes, including motor vehicle engines, produce emissions of ozone precursors (reactive organic compounds and nitrogen oxides).
Carbon monoxide is primarily a winter period pollution problem, with motor vehicles being the dominant emission source in most areas. The winter seasonality occurs because vehicle emission rates increase at low temperatures and because meteorological factors that limit pollutant dispersion (low wind speeds and strong temperature inversions) are more prevalent during the winter than at other times of the year. Ambient air quality standards for carbon monoxide have been set for both one- and eight-hour periods.
Inhalable particulate matter (PM10) is an aggregation of solid particles and liquid aerosols capable of penetrating to the lower respiratory tract. PM10 includes directly emitted particulate matter plus secondary aerosols formed from gaseous pollutants through chemical reactions and condensation processes. Major categories of secondary aerosols include low-volatility organic compounds, nitrate salts, and sulfate salts. The
constituents of PM10 include a range of particle sizes, shapes, densities, and chemical compositions. Federal and state PM10 standards have been set for concentrations averaged over 24-hour and annual periods. PM10 concentrations are expressed on a weight basis as micrograms per cubic meter (μg/m3).
The “10” in PM10 does not refer to a particle size limit but refers to a statistical measure of monitoring equipment performance called a cutpoint diameter. A cutpoint diameter is the size range at which 50 percent of the mass of ambient particles will be collected by
a sampling device. A PM10 sampler collects 50 percent by weight of the particles in the 9.5 to 10.5 micron size range, more than 50 percent by weight of particles in smaller size ranges, and less than 50 percent by weight of particles in larger size ranges. The Federal
and state PM10 standards do not define any absolute upper size limit for the included particles, but particles with aerodynamic equivalent diameters larger than 50 microns are unlikely to be collected.
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Applicable Federal and State Air Regulations The Federal Clean Air Act, 42 U.S.C. §7401 et seq., requires each state to develop, adopt, and implement a state implementation plan (SIP) to achieve, maintain, and enforce Federal air quality standards throughout the state. These plans must be submitted to and approved by the U.S. Environmental Protection Agency (U.S. EPA). In California, the state implementation plan consists of separate elements for different regions of the state. SIP elements are generally developed on a pollutant-by-pollutant basis whenever one or more air quality standards are being violated.
Local councils of governments and air pollution control districts have had the primary responsibility for developing and adopting the regional elements of the California SIP. In the San Francisco Bay region, SIP document preparation has been a coordinated effort involving three regional agencies: the Bay Area Air Quality Management District (BAAQMD), the Association of Bay Area Governments (ABAG), and the Metropolitan Transportation Commission (MTC).
Areas that violate a Federal or state ambient air quality standard are generally
categorized as nonattainment areas. Ozone, carbon monoxide, and PM10 nonattainment designations are further categorized by severity of the problem. Those areas that meet Federal or state ambient air quality standards are categorized as attainment areas. Areas that lack sufficient monitoring data are generally categorized as unclassified areas.
In July 1997, the U.S. EPA revised the violation criteria for the existing Federal PM10 standards, adopted a new 8-hour ozone standard (an 8-hour average of 0.08 parts per
million [ppm]), and adopted new fine particle (PM2.5) standards (15 micrograms per cubic meter as an annual average and 65 micrograms per cubic meter as a 24-hour average).
In June 1998, the San Francisco Bay Area was reclassified from an attainment/maintenance area to an unclassified nonattainment area for the Federal 1-hour ozone standard. The urbanized portions of the San Francisco Bay Area are presently categorized as attainment areas for the Federal carbon monoxide standards.
The Bay Area is currently designated as unclassified for the Federal PM10 standard (Libretti 1998). If future monitoring data results in a nonattainment designation for the
Federal PM2.5 standards, a PM2.5 SIP would be required (probably in 2005).
The California Clean Air Act of 1988, Cal. Health and Safety Code §39607 note (West 1996), requires air pollution control districts and air quality management districts to develop air quality management plans for meeting state ambient air quality standards for ozone, carbon monoxide, sulfur dioxide and nitrogen dioxide. The state Air Resources
Board (ARB) is responsible for developing a plan for meeting state PM10 standards. The entire San Francisco Bay Area is classified as a moderate nonattainment area for the state ozone standard. The Bay Area is also classified as a nonattainment area for the
state PM10 standard. The entire San Francisco Bay Area is currently classified as an attainment area for the state carbon monoxide standards.
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The California Clean Air Act does not set specific deadlines for achieving state air quality standards. Instead, attainment is required “as expeditiously as practicable.” Emission control programs that must be implemented are more stringent for areas that do not expect rapid attainment of the ozone and carbon monoxide standards.
Clean Air Act Conformity Requirements Section 176(c) of the Clean Air Act, 42 U.S.C. §7506(c), requires Federal agencies to ensure that actions undertaken in nonattainment or maintenance areas are consistent with the Clean Air Act and with Federally enforceable air quality management plans. U.S. EPA has promulgated separate rules that establish conformity analysis procedures for transportation-related actions and for other (general) Federal agency actions.
A formal conformity determination is required for Federal actions occurring in nonattainment or maintenance areas (such as the San Francisco Bay area) when the total direct and indirect emissions of nonattainment pollutants (or their precursors) exceed specified thresholds. The Federal nonattainment and maintenance pollutants subject to conformity analyses in the San Francisco Bay area include ozone precursors (reactive organic compounds and nitrogen oxides) and carbon monoxide. Applicable threshold levels for Federal actions in the San Francisco Bay Area are 100 tons per year of reactive organic compounds, 100 tons per year of nitrogen oxides, and 100 tons per year of carbon monoxide.
Several categories of Federal agency actions are identified in the general conformity rule as actions that are presumed to result in emissions below the threshold level. Transfers of ownership, interests, and titles in land, facilities, real property, or personal property to other public agencies or to private parties are presumed to have emissions below the threshold level because the agency transferring the facilities or property will not retain responsibility or control over subsequent activities. Lease arrangements, however, may be subject to the requirements of the conformity rule if the terms of the lease allow Federal agencies to control the leasee's emission-generating activities.
Air Pollution Control Programs Air pollution control programs were established in California prior to the enactment of Federal requirements. Responsibility for air quality management programs in California is divided between ARB as the primary state air quality management agency and air pollution control districts as the primary local air quality management agencies. Federal Clean Air Act legislation in the 1970s resulted in a gradual merger of local and Federal air quality programs, particularly industrial source air quality permit programs.
The roles and responsibilities of both ARB and local air pollution control districts were expanded by the California Clean Air Act of 1988. Local air pollution control districts were given added responsibility and authority to adopt transportation control measure programs and emission reduction programs for indirect and areawide emission sources.
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Recent state legislation restricts the types of transportation control measure programs that can be established by air pollution control districts. Mandatory trip reduction programs can be established only if necessary to achieve Federal air quality standards.
Many types of industrial and commercial facilities require air quality permits for their equipment and operations. The BAAQMD has the primary air quality permit authority throughout the San Francisco Bay Area. Permit authority is derived from a combination of Federal and state legislation, and can be categorized into construction or installation authorizations for individual pieces of equipment and permits for continued operation of equipment and facilities. This results in a two-step permit process for new emission sources: an initial authority to construct (ATC) permit and a subsequent permit to operate (PTO).
Air Dispersion Modeling Air quality for the project was modeled using CALINE 4, California Line Source Dispersion Model, version 4, the standard modeling program used by Caltrans to assess carbon monoxide impacts near transportation facilities. Tables E-36 and E-44 show data parameters used in the model.
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E.5 BIOLOGICAL RESOURCES Appendix E: Biological Resources
E.5 BIOLOGICAL RESOURCES
Applicable Biological Resources Regulations: Federal Laws
Fish and Wildlife Conservation Act (Sikes Act) This act requires the development of a cooperative management plan with Federal and state fish and wildlife conservation agencies. It applies to all Federal land and water areas suitable for conserving and managing fish and wildlife resources. It requires that fish and wildlife management be integrated with other natural resource activities into a balanced multiple-use program. As amended, it requires that trained professionals be used to implement natural resource activities.
Federal Endangered Species Act Federal law directs that all Federal agencies and departments use their authority to preserve endangered and threatened species under the guidance of the Endangered Species Act (16 U.S.C. §1531 et seq.). The Federal Endangered Species Act requires that the USFWS issue a permit prior to actions that would result in killing, harming, or harassing Federally-listed endangered or threatened species. This permit process is directed under Section 7 of the act for actions in which a Federal agency is involved and in a similar process under Section 10a of the act for state and local agencies, and individuals. Federal agencies are required to consult with the USFWS (or the National Marine Fisheries Service (now known as NOAA Fisheries) for some species) prior to undertaking actions that may affect endangered species. A Federal agency is required to obtain a biological opinion from the USFWS on whether its proposed actions may jeopardize the continued existence of any threatened or endangered species. Federal agencies are prohibited from taking actions that would jeopardize the continued existence of these species.
This EIR is considered the biological assessment for purposes of the formal consultation with the USFWS pursuant to Section 7 of the Federal Endangered Species Act of 1973. A Section 7 consultation may be required due to the presence of Federally endangered species, specifically the California least tern, California brown pelican, and American peregrine falcon.
Migratory Bird Treaty Act The Migratory Bird Treaty Act of 1918, 16 U.S.C. §703, prohibits the taking of individuals, nests, or eggs of a migratory bird species without permits. Migratory birds nest and pass through the Bay Area during the spring and fall.
Clean Water Act The COE regulates impacts to wetlands and other waters under Section 404 of the Clean Water Act, 33 U.S.C. §1344. Projects that include potential dredge or fill impacts to waters of the United States must be reviewed by the COE and the U.S. EPA. The COE also regulates works extending bayward of the mean high water line. Activities along the shoreline of NSTI may be regulated under Section 10 of the River on Harbors Act of 1899, 33 U.S.C. §403.
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Marine Mammal Protection Act Under the Marine Mammal Protection Act of 1972, 16. U.S.C. § 1431 et seq., a moratorium was imposed on the taking and importing of marine mammals, except for scientific research and display, taking incidental to commercial fishing operations, and taking covered by international agreement. This act could apply to activities at NSTI, such as boat traffic or human presence, if it would affect marine mammals.
Rivers and Harbors Act of 1899 (Section 10) The COE regulates impacts to navigable waters, making the excavation from or deposition of material into those waters subject to regulation. The Rivers and Harbors Act of 1899 (Section 10), 33 U.S.C. §403, includes the building of structures in, over, or under these waters.
Applicable Biological Resources Regulations: State Laws
Porter-Cologne Water Quality Control Act The Porter-Cologne Water Quality Control Act, Cal. Water Code §13000 et seq., established a comprehensive program for regulating state water quality and controlling pollution. The organizations responsible for implementing this law include the State Water Resources Control Board and the regional water quality control boards.
California Endangered Species Act California provides procedures similar to the Federal Endangered Species Act for non- Federal projects under the California Endangered Species Act, CDFG Code §2090 et seq. For example, the CDFG can adopt a Federal biological opinion as a state biological opinion under CDFG Code (§2095). Upon Federal transfer, NSTI reuse would become subject to these state regulations.
Coastal Zone Management Act (1972, amended in 1990) The CZMA of 1972 and subsequent 1990 amendments, 16 USC §1456 et seq., authorizes states to establish coastal management programs. In the Bay Area, BCDC is responsible for developing and administering the CZMA-approved coastal management program. BCDC’s coastal management program for the San Francisco Bay was approved in 1977 and is based on the McAteer-Petris Act, Cal. Pub. Res. Code §§66600 et seq., the Suisun Marsh Preservation Act of 1977, Cal. Pub. Res. Code §29000 et seq., and the bay plan. The CZMA review process is initiated when a Federal agency provides a coastal consistency determination or a negative determination to the California Coastal Commission or BCDC, stating the effect of the Federal activity on the designated state coastal zone. BCDC can concur or object to a permit based on its policies and laws.
Existing Biological Conditions: Vegetation Treasure Island is covered mainly by buildings, roads, and parking lots. Most of the vegetation is in landscaped areas of mature ornamental trees, shrubs and grasses. The only undeveloped areas on NSTI are on Yerba Buena Island, where eucalyptus woodlands represent the largest habitat. Yerba Buena Island has a mix of four habitat
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types of predominantly native species, four habitat types of predominantly nonnative species and developed areas with little or no vegetation, forming a mosaic pattern of habitat types (CCSF 1995a). The native habitat types are coast live oak woodland, central coast riparian scrub, northern coastal scrub and valley wildrye grassland. The nonnative habitat types are eucalyptus woodland, nonnative scrub-shrubland (i.e., nonnative invading garden species), ruderal (i.e., weedy), and landscaped. Descriptions of each of these terrestrial habitat types and of the nearshore marine habitat follow. Table E-45 lists the plant species observed at NSTI.
Yerba Buena Island
Coast Live Oak Woodland Coast live oak woodland typically is found on north-facing slopes and shaded ravines in the western portion of Yerba Buena Island and on more exposed drier sites in the north. This community is dominated by coast live oak (Quercus agrifolia), which frequently occurs in pure dense stands with a closed canopy. This vegetation type conforms to the coast live oak series, as classified by Sawyer and Keeler-Wolf (1995).
Very few tree and shrub species commonly associated with coast live oak woodland still can be found on Yerba Buena Island. These are limited to toyon (Heteromeles arbutifolia), blue elderberry (Sambucus mexicana), scattered California hazelnut (Corylus cornuta var. californica), and a few California buckeye (Aesculus californica). Much of the understory of the remaining coast live oak woodland is overgrown with native species, such as poison oak (Toxicodendron diversiloba), California blackberry (Rubus ursinus), and California man-root (Marah fabaceus) and such nonnative species as Tasmanian blue gum (Eucalyptus globulus), English ivy (Hedera helix), German ivy (Senecio mikanioides), Himalayan blackberry (Rubus discolor), and nasturtium (Tropaeolum majus); there is a relatively intact herbaceous understory at several locations. On the north-facing slope above Clipper Cove, the understory consists of a dense layer of poison oak and California blackberry, along with abundant ferns, such as western sword fern, (Polystichum munitum), wood fern (Dryopteris arguta), California polypody (Polypodium californicum), and goldenback fern (Pityrogramma triangularis var. triangularis).
On more exposed sites, the herbaceous understory commonly consists of such native species as poison oak, California man-root, oso berry (Osmaronria cerasiformis), miner’s lettuce (Claytonia perfoliata), bracken fern (Pteridium aquilinum), coast figwort (Scrophularia californica), common Pacific pea (Lathyrus vestitus var. vestitus), stinging phacelia (Phacelia malvifolia), fiesta flower (Pholistoma auritum var. auritum), rigid hedge nettle (Stachys ajugoides var. rigida), and American vetch (Vicia americana). Dutchman’s pipevine (Aristolochia californica) is also present in the oak understory at several locations within the study area.
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Central Coast Riparian Scrub Central coast riparian scrub typically consists of a scrubby, streamside, open to impenetrable thicket composed of any of several species of willows. The central coast
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Table E-45 Plant Species Observed at NSTI
Family Scientific Name Common Name Equisetae Equisetaceae – Horsetail Family Equisetum telmateia ssp. braunii giant horsetail
Filicinae Dennstaedtiaceae – Bracken Family Pteridium aquilinum var. pubescens western brackenfern Dryopteridaceae – Fern Family Dryopteris arguta wood fern Polystichum munitum western sword fern Polypodiaceae – Fern Family Polypodium californicum California polypody Pteridaceae – Fern Family Adiantum jordanii maidenhair fern Pellaea andromedaefolia coffee fern Pentagramma triangularis var. triangularis goldenback fern
Coniferae Cupressaceae – Cypress Family Chamaecyparis lawsonii Port Orford cedar Cuppressus glabra smooth Arizona cypress Cupressus macrocarpa Monterey cypress Pinaceae – Pine Family Pinus canariensis Canary Island pine Pinus halepensis aleppo pine Pinus pinea Italian stone pine Pinus radiata Monterey pine Taxaceae – Yew Family Taxus baccata English yew Taxodiaceae – Redwood Family Sequoia sempervirens coast redwood
Dicotyledonae Aizoaceae – Carpetweed Family Aptenia cordifolia ice-plant Carpobrotus edulis Hottentot fig Conicosia pugioniformis conicosia Anacardiaceae – Sumac Family Toxicodendron diversilobum poison oak Apiaceae – Parsley Family Anthriscus caucalis bur-chervil Foeniculum vulgare sweet fennel Ligusticum apiifolium? Pacific lovage Scandix pecten-veneris shepherd’s needle Sanicula crassicaulis sanicle Apocynaceae – Dogbane Family Vinca major periwinkle Araliaceae – Aralia Family Hedera canariensis Algerian ivy Hedera helix English ivy Asteraceae – Sunflower Family Achillea millefolium yarrow Ageratina adenophora sticky eupatorium Agoseris grandiflora California dandelion Ambrosia chamissonis beach-bur Anaphalis margaritacea pearly everlasting Anthemis cotula dog mayweed Arctotheca calendula capeweed Argyranthemum foeniculaceum ox-eye daisy Artemisia californica California sagebrush Baccharis pilularis coyote brush Bellis perennis English daisy Carduus pycnocephalus Italian thistle Centaurea solstitialis yellow star thistle Chamomilla suaveolens pineapple weed Chrysanthemum coronarium garland daisy Cirsium occidentale var. occidentale cobwebby thistle
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Table E-45 Plant Species Observed at NSTI (continued)
Family Scientific Name Common Name Conyza bilboana horseweed Cotula australis Australian brass-buttons Cotula coronopifolia African brass-buttons Crepis bursifolia Italian hawk’s-beard Erechtites glomerata cut-leafed coast fireweed Erechtites minima toothed coast fireweed Ericameria ericoides mock heather Erigeron glaucus seaside daisy Eriophyllum staechadifolium seaside woolly sunflower Felicia amelloides blue marguerite Filago gallica narrow-leaf filago Gnaphalium californicum California everlasting Gnaphalium canescens ssp. beneolens fragrant everlasting Gnaphalium stramineum cotton-batting plant Hypochoeris glabra smooth cats-ear Lactuca serriola wild lettuce Osteospermum fruticosum African daisy Picris echioides bristly ox-tongue Senecio hybridus cineraria Senecio mikanioides German ivy Senecio vulgaris common groundsel Silybum marianum milk thistle Sonchus asper prickly sow-thistle Sonchus oleraceus common sow-thistle Stephanomeria virgata ssp. pleurocarpa tall stephanomeria Taraxacum officinale common dandelion Betulaceae – Birch Family Alnus cordata Italian alder Corylus cornuta var. californica California hazelnut Brassicaceae – Mustard Family Brassica nigra black mustard Cakile maritima sea-rocket Capsella bursa-pastoris shepards purse Cardamine oligosperma mitter-cress Coronopus didymus lesser wart-cress Lepidium nitidum var. nitidum peppergrass Lobularia maritima sweet alyssum Raphanus sativus wild radish Sisymbrium orientale oriental sisymbrium Buddlejaceae – Buddleja Family Buddleja davidii butterfly bush Caprifoliaceae – Honeysuckle Family Lonicera japonica Japanese honeysuckle Sambucus mexicana blue elderberry Caryophyllaceae – Pink Family Cardionema ramosissimum sand mat Cerastium glomeratum mouse-ear chickweed Silene gallica common catchfly Spergularia bocconii Buccone’s sand-spurry Spergularia macrotheca var. macrotheca large flowered sand-spurry Stellaria media common chickweed Chenopodiaceae – Goosefoot Family Atriplex triangularis spearscale Chenopodium californicum California goosefoot Salicornia virginica pickleweed Convolvulaceae – Morning-glory Family Calystegia purpurata ssp. purpurata morning-glory Crassulaceae – Stone-crop Family Aeonium haworthii stonecrop Crassula connata pigmy-weed Dudleya farinosa bluff lettuce
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Table E-45 Plant Species Observed at NSTI (continued)
Family Scientific Name Common Name Sedum dendroideum stonecrop Cucurbitaceae – Gourd Family Marah fabaceus California man-root Euphorbiaceae – Spurge Family Chamaesyce maculata spotted spurge Euphorbia peplus petty spurge Fabaceae – Pea Family Acacia baileyana Cootamundra wattle Acacia decurrens green wattle Acacia longifolia Sydney golden wattle Albizia lophantha plume acacia Bauhinia variegata purple orchid tree Ceratonia siliqua carob Cercis occidentalis western redbud Genista monspessulana French broom Lathyrus tingitanus Tangier pea Lathyrus vestitus var. vestitus common Pacific pea Lotus corniculatus bird’s foot trefoil Lotus scoparius California broom Lotus strigosus strigos treefoil Lotus wrangelianus Chile trefoil Lupinus arboreus yellow bush lupine Lupinus bicolor lupine Lupinus microcarpus var. microcarpus chick lupine Lupinus nanus Douglas’ lupine Medicago lupulina bur-clover Medicago polymorpha bur-clover Medicago sativa alfalfa Melilotus albus white sweet-clover Melilotus indica yellow sweet-clover Trifolium gracilentum var. gracilentum pin-point clover Trifolium hirtum rose clover Trifolium wildenovii valley clover Vicia americana var. americana American vetch Vicia benghalensis vetch Vicia sativa ssp. nigra common vetch Vicia sativa ssp. sativa common vetch Vicia villosa ssp. villosa hairy vetch Fagaceae – Oak Family Quercus agrifolia coast live oak Geraniaceae – Geranium Family Erodium botrys long-beaked storkbill Erodium cicutarium red-stemmed filaree Erodium moschatum white-stemmed filaree Geranium dissectum cranesbill Geranium molle dovesfoot geranium Pelargonium peltatum ivy geranium Hippocastanaceae – Buckeye Family Aesculus californica California buckeye Hydrophyllaceae – Waterleaf Family Phacelia malvifolia stinging phacelia Phacelia distans common phacelia Pholistoma auritum var. auritum fiesta flower Lamiaceae – Mint Family Salvia leucantha Mexican bush sage Stachys ajugoides var. rigida rigid hedge nettle Malvaceae – Mallow Family Abutilon striatum Indian mallow Malva nicaeensis bull mallow Malva parviflora cheeseweed Malva sylvestris high mallow Moraceae – Mulberry Family Ficus pumila creeping fig
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Table E-45 Plant Species Observed at NSTI (continued)
Family Scientific Name Common Name Myoporaceae – Myoporum Family Myoporum laetum myoporum Myrtaceae – Myrtle Family Eucalyptus camaldulensis river red gum Eucalyptus ficifolia scarlet flowering gum Eucalyptus globulus Tasmanian blue gum Eucalyptus leucoxylon white ironbark Eucalyptus sideroxylon red ironbark Leptospermum laevigatum Australian tea tree Melaleuca deussata lilac melaleuca Metrosideros excelsa New Zealand Christmas tree Oleaceae – Olive Family Ligustrum japonicum waxleaf privet Ligustrum lucidum glossy privet Ligustrum ovalifolium California privet Onagraceae – Evening Primrose Family Clarkia unguiculata elegant clarkia Epilobium brachycarpum fireweed Epilobium ciliatum ssp. ciliatum northern willow herb Oxalidaceae – Oxalis Family Oxalis pes-caprae Bermuda buttercup Papaveraceae – Poppy Family Eschscholzia californica California poppy Fumaria parviflora small-flowered fumitory Pittosporaceae – Pittosporum Family Pittosporum crassifolium thick-leafed pittosporum Pittosporum tobira Japanese pittosporum Pittosporum undulatum victorian box Plantaginaceae – Plantain Family Plantago erecta plantain Plantago lanceolata English plantain Polemoniaceae – Phlox Family Gilia capitata ssp. chamissonis1 dune gilia Polygonaceae – Buckwheat Family Eriogonum latifolium coast buckwheat Muehlenbeckia complexa wire plant, mattress vine Polygonum arenastrum common knotweed Rumex acetosella sheep sorrel Rumex crispus curly dock Rumex pulcher fiddle dock Portulaceae – Purslane Family Claytonia exigua ssp. exigua common montia Claytonia perfoliata miner’s lettuce Primulaceae – Primrose Family Anagallis arvensis scarlet pimpernel Proteaceae – Protea Family Hakea suaveolens sweet hakea Ranunculaceae – Buttercup Family Ranunculus californicus buttercup Rhamnaceae – Buckthorn Family Ceanothus dentatus dwarf ceanothus Ceanothus foliosus var. medius La Cuesta ceanothus Ceanothus integerrimus deer brush Ceanothus thyrsiflorus blue blossom Rosaceae – Rose Family Cotoneaster pannosa cotoneaster Cotoneaster lacteus cotoneaster Eriobotrya japonica loquat Heteromeles arbutifolia toyon Oemleria cerasiformis oso berry Pyracantha sp. firethorn Raphiolepis indica India hawthorne Rosa gymnocarpa wood rose Rubus discolor Himalaya blackberry Rubus ursinus California blackberry Rubiaceae – Madder Family Coprosma repens mirror plant Galium aparine goose grass Salicaceae – Willow Family Populus nigra black (Italian) poplar Populus tremuloides quaking aspen
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Table E-45 Plant Species Observed at NSTI (continued)
Family Scientific Name Common Name Salix lasiolepis arroyo willow Salix laevigata red willow Saxifragaceae – Saxifrage Family Escallonia rubra escallonia Scrophulariaceae – Figwort Family Hebe speciosa showy hebe Mimulus aurantiacus sticky monkey-flower Mimulus guttatus common large monkey-flower Scrophularia californica coast figwort, bee plant Triphysaria pusilla dwarf orthocarpus Veronica persica Persian speedwell Solanaceae – Nightshade Family Solanum douglasii Douglas’ nightshade Solanum nigrum black nightshade Tropaeolaceae – Nasturtium Family Tropaeolum majus garden nasturtium Ulmaceae – Elm Family Ulmus pumila Siberian elm Valerianaceae – Valerian Family Centranthus ruber red valerian
Monocotyledonae Araceae – Arum Family Zantedeschia aethiopica calla lily Arecaceae – Palm Family Phoenix canariensis Canary Island palm Washingtonia robusta Mexican fan palm Commelinaceae – Spiderwort Family Tradescantia fluminensis spiderwort Cyperaceae – Sedge Family Carex barbarae? (not C. comosa) Barbara’s sedge Cyperus eragrostis umbrella sedge Iridaceae – Iris Family Chasmanthe floribunda chasmanthe Iris x hybrid bearded iris Iris xiphium Dutch iris Sisyrinchium bellum California blue-eyed grass Juncaceae – Rush Family Juncus balticus wire rush Juncus bufonius var. bufonius toad rush Juncus bufonius var. congestus toad rush Juncus effusus var. pacificus common rush Juncus patens spreading rush Luzula comosa wood rush Liliaceae – Lily Family Agave americana century plant Agapanthus africanus lily-of-the-Nile Allium triquetrum cultivated onion Aloe saponaria aloe Chlorogalum pomeridianum var. divaricatum wavy-leaf soap plant Dichelostemma capitatum ssp. capitatum blue dicks Triteleia laxa Ithuriel’s spear Poaceae – Grass Family Agrostis pallens Leafy bentgrass Aira caryophyllea silver European hairgrass Avena barbata slender wild oat Avena fatua wild oat Briza maxima big quaking grass Briza minor quaking grass Bromus diandrus ripgut brome Bromu scarinatus var. carinatus California brome Bromus hordeaceus soft chess Bromus madritensis ssp. rubens red brome Cortaderia jubata pampas grass Cynodon dactylon Bermuda grass Cynosorus echinatus hedgehog dogtail Dactylis glomerata orchard grass
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Table E-45 Plant Species Observed at NSTI (continued)
Family Scientific Name Common Name Distichlis spicata salt grass Ehrharta erecta veldt grass Festuca arundinacea tall fescue Festuca rubra? red fescue Holcus lanatus velvet grass Hordeum marinum ssp. gussoneanum Mediterranean barley Hordeum murinum ssp. glaucum hare barley Hordeum murinum ssp. leporinum hare barley Leptochloa fascicularis bearded sprangletop Leymus condensatus giant ryegrass Leymus triticoides creeping ryegrass Lolium multiflorum Italian ryegrass Lolium perenne perennial ryegrass Melica imperfecta Coast Range melic Nassella pulchra purple needlegrass Parapholis incurva sickle grass Phalaris aquatica Harding grass Phalaris minor littleseed canary grass Poa secunda ssp. secunda one-sided bluegrass Polypogon monspeliensis rabbitfoot grass Vulpia bromoides six-weeks fescue Vulpia myuros var. hirsuta foxtail fescue Source: U.S. Navy 1993; 1996g.
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riparian scrub conforms to the arroyo willow series, as described in Sawyer and Keeler- Wolf (1995), and to Palustrine shrub-scrub wetland, as described in Cowardin et al. (1979).
Central coast riparian scrub growth on Yerba Buena Island is found primarily at lower elevations of the steep north-facing slope adjacent to Clipper Cove where the water table nears the surface. There is also a single stand on the western edge of the island. This habitat type is dominated by arroyo willow (Salix lasiolepis), with lesser amounts of red willow (Salix laevigata). Together, these two species form a complete canopy supporting virtually no understory. Other native plant species commonly found within or immediately adjacent to central coast riparian scrub on-site include blue elderberry, California blackberry, and giant horsetail (Equisetum telmateia ssp. braunii). The nonnative nasturtium and butterfly bush (Buddleja davidii) have become naturalized around the willows above Clipper Cove.
Northern (Franciscan) Coastal Scrub Northern coastal scrub consists of a dense cover of low shrubs up to 6 feet high with a well-developed herbaceous or low woody understory. Northern coastal scrub is best developed on windy exposed sites with shallow rocky soils. The shrub canopy typically is dominated by one to several species, such as coyote brush (Baccharis pilularis), California sagebrush (Artemisia californica), and yellow bush lupine (Lupinus arboreus). Northern coastal scrub corresponds to the California sagebrush series, as classified by Sawyer and Keeler-Wolf (1995).
Northern coastal scrub on Yerba Buena Island is primarily found in a continuous band along the steep bluffs on the islands western edge, mostly west of Treasure Island Road. Here, northern coastal scrub shows a strong resemblance to northern dune scrub both in terms of species composition and substrate. Remnant patches of northern coastal scrub also occur inland of Treasure Island Road on the western side of the island and on the steep bluffs at the island’s eastern-most point, below the SFOBB. The dominant species is California sagebrush. Common native species also occurring include yellow bush lupine, creeping ryegrass, California polypody, poison oak, coyote brush, coast figwort, seaside daisy (Erigeron glaucus), tall stephanomeria (Stephanomeria virgata ssp. pleurocarpa), lizard tail (Eriophyllum staechadifolium), blue dicks (Dichelostemma capitatum ssp. capitatum), purple needlegrass (Stipa pulchra), leafy bentgrass (Agrostis pallens), yarrow (Achillea millefolium), sticky monkey-flower (Mimulus aurantiacus), California broom (Lotus scoparius), bluff lettuce (Dudleya farinosa), California poppy (Eschscholzia californica), pearly everlasting (Anaphalis margaritacea), coast range melic (Melica imperfecta), coast buckwheat (Eriogonum latifolium) and California brome (Bromus carinatus var. carinatus).
Invasive exotics that have naturalized on the island include sweet fennel (Foeniculum vulgare), Tasmanian blue gum, French broom (Genista monspessulana), ehrharta (Ehrharta erecta), ice plant (Carpobrotus edulis), ox-eye daisy (Chrysanthemum foeniculaceum), red valerian (Centranthus rubber), and several species of wattle (Acacia spp.). These species could gradually replace some northern coastal scrub vegetation.
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Valley Wildrye Grassland Valley wildrye grassland typically forms dense patches dominated by creeping ryegrass (Leymus triticoides). This plant community typically occurs on moist sites at low elevations, often adjacent to riparian or freshwater marsh habitat. This plant community conforms to Creeping Ryegrass Series, as described by Sawyer and Keeler- Wolf (1995).
On Yerba Buena Island, valley wildrye grassland appears to have developed relatively recently as a result of site modifications, and the most representative area on the island can be found above the western shoreline near the causeway connecting Yerba Buena Island with Treasure Island (see Figure 3-12 in Section 3.8, Biological Resources). Here, creeping ryegrass, giant ryegrass (Leymus condensatus), and smaller amounts of Vancouver’s ryegrass (Leymus vancouverensis) form a dense band on the bluffs above the northern coastal scrub and extending into the eucalyptus trees. Valley wildrye grassland occurs on native soils along the bluffs and extends onto fill and over riprap lining the causeway linking Yerba Buena Island and Treasure Island. Creeping ryegrass is fairly abundant within the study area, persisting in the eucalyptus understory at many locations.
Eucalyptus Woodland At NSTI, eucalyptus woodland is nonnative and dominated by Tasmanian blue gum trees, 60 to 80 feet high and around 50 years old. Eucalyptus are the dominant tree feature on Yerba Buena Island, forming a more or less continuous band at the upper and middle elevations of the island. Canopy coverage ranges from around 40 to 80 percent. The understory varies from ruderal (weedy) nonnative herbs to relicts of the native coast live oak woodland, northern coastal scrub and grassland communities. Because the eucalyptus groves are relatively young and the canopy has not yet closed completely, many native species have persisted. Native plant species relatively common beneath the incomplete eucalyptus canopy include coast live oak, toyon, California polypody, California man-root, blue elderberry, poison oak, California blackberry, creeping ryegrass, wood fern, rigid hedge nettle, common montia, blue dicks, soap plant (Chlorogalum pomeridianum var. divaricatum), and morning glory (Calystegia purpurata ssp. purpurata).
Nonnative Scrub/Shrubland Nonnative scrub/shrubland consists of nonnative invasive garden species that have become naturalized primarily on disturbed sites. This plant community coincides and in many cases overlaps with eucalyptus woodland. It is dominated by French broom and includes butterfly bush, Tasmanian blue gum, sweet fennel, green wattle (Acacia decurrens), golden wattle (A. longifolia), myoporum (Myoporum laetum), and Australian tea tree (Leptospermum laevigatum).
Ruderal (Weedy) Ruderal habitat is that from which the native vegetation has been completely removed by grading or cultivation or that has been affected by other surface disturbances. Such areas have become recolonized by invasive exotic species as well as native species; the
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native vegetation ultimately may become at least partially restored if there is no further disturbance.
Numerous portions of Yerba Buena Island presently support habitat that has been significantly altered by grading, construction, and road building. This is especially evident on the eastern point of the island where the original grassy knoll was graded flat, along most of the eastern portion of Macalla Road, and at the former cemetery site at the west end of Macalla Road (see Figure 3-3 in Section 3.4, Cultural Resources). The native vegetation in these areas was completely removed and they have been recolonized largely by nonnative ruderal (weedy) plant species. At the former cemetery location, however, abundant native annual wildflowers have recolonized the site.
Dominant invasive nonnative plant species occupying ruderal sites on Yerba Buena Island include various brome grasses (Bromus spp.), sweet fennel, wild radish (Raphanus sativus), black mustard (Brassica nigra), Italian ryegrass (Lolium multiflorum), French broom, wild oats (Avena fatua), storkbill (Erodium spp.), bur- clover (Medicago polymorpha), dog mayweed (Anthemis cotula), Italian thistle (Carduus pycnocephalus), sweet clover (Melilotus spp.), and mallow (Malva spp.).
NSTI
Landscaped/Developed Areas The vegetation in the landscaped/developed areas of NSTI (all of Treasure Island and the central and eastern portions of Yerba Buena Island) is characterized by ornamental species and other nonnative species. The grass species in the landscaped areas are primarily perennial ryegrass (Lolium perenne), alta fescue (Festuca sp.), and Kentucky bluegrass (Poa pratensis)(U.S. Navy 1986). Brush species in this environment include star acacia (Acacia verticillata), bottle brush (Callistemon citrinus), several holly species (Ilex sp.), oleander (Nerium oleander), boxwood (Buxus sp.), and veronica (Hebe sp.). Tree species in the landscaped areas are blue gum eucalyptus, Monterey pine (Pinus radiata) and several other pine species (Pinus sp.), coast live oak, California fan palm (Washingtonia filifera), olive (Olea europaea), and willow (Salix sp.).
On the southwest shore of Clipper Cove on Yerba Buena Island is the 4-acre Clipper Cove Picnic Area, containing a sand shoreline and a mix of native and introduced vegetation. The tree canopy includes coast live oak, eucalyptus, willow, Monterey pine, and Monterey cypress (Cupressus lawsoniana). Below the trees is a shrub layer dominated by coastal sage, coyote brush and poison oak, and a grass layer of brome and wild oat (Avena fatua)(CCSF 1995a).
Nearshore Marine Habitat Although no critical fisheries habitat was identified in the NSTI area, eelgrass beds (Zostera sp.), common to sheltered areas such as harbors and coves, exist along the east shore of Yerba Buena Island at Clipper Cove (see Figure 3-14 in Section 3.8, Biological Resources). No other eelgrass beds in the area have been noted. Eelgrass is a type of seagrass, which are common marine flowering plants that grow in soft
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sediments. Eelgrass provides many important ecological functions, such as stabilizing unconsolidated sediments, providing shelter for many organisms, and improving water quality by reducing nutrients, sediments, and pollutant inputs from land (Williams and Davis 1996). Eelgrass beds provide important nursery habitat for many of the fish species in San Francisco Bay.
Existing Biological Conditions: Wildlife Wildlife traverse through both Treasure Island and Yerba Buena Island. The habitats on Yerba Buena Island are more diverse and provide greater wildlife value than the developed and landscaped Treasure Island. The entire Bay Area is a crucial resting and foraging area and wintering ground for thousands of birds in the Pacific Flyway, which extends from South America to the Arctic Circle (U.S. Navy 1986). Wildlife found in disturbed urban areas of the region, including NSTI, is comprised of invertebrates, amphibians, reptiles, birds, and mammals. Table E-46 lists the wildlife species observed or predicted to occur at NSTI.
Yerba Buena Island
Coast Live Oak and Eucalyptus Woodlands Observed species. Several bird species, including Lewis’ woodpecker (Melanerpes lewis), Steller’s jay (Cyanocitta stellari), white-breasted nuthatch (Sitta carolinensis), and American robin (Turdus migratorius) have been observed using the two woodland habitat types on Yerba Buena Island (CCSF 1995a).
Potential species. No mammal species are known to prefer these woodland habitats over other habitats, although at least two bat species, Pacific western big-eared bat (Plecotus townsendii townsendii) and greater western mastiff bat (Eumops perotis californicus), which roost in trees and open buildings, could reside on Yerba Buena Island.
Scrub/Shrubland Known species. Birds known to inhabit the brushland habitats on Yerba Buena Island are California quail (Callipepla californica), northern mockingbird (Mimus polyglottos), savannah sparrow (Passerculus sandwichensis), and white-crowned sparrow (Zonotrichia leucophrys). Undisturbed grounds and mixed vegetation on sloped terrain provide burrowing, foraging, and sheltering habitat for two small mammal species, the California pocket mouse (Perognathus californicus) and the California ground squirrel (Citellus beecheyi).
Potential species. Reptiles and amphibians, which may be found on Yerba Buena Island in the brushland habitat, include the northern alligator lizard (Gerrhonotus coeruleus), and the California slender salamander (Batrachoseps attenuatus).
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Table E-46 Wildlife Species Observed or Predicted to Occur at NSTI
Class Order Family Scientific Name Common Name Vertebrates
Mammalia – Mammals Chiroptera – Bats Vespertilionidae – Common Bats Plecotus townsendii townsendii Pacific western big-eared bat Molossidae – Free-tailed and mastiff bats Eumops perotis californicus greater western mastiff-bat
Rodentia – Rodents Heteromyidae Chaetodipus californicus California pocket mouse Sciuridae – Squirrels, Chipmunks, and Marmots Citellus beecheyi California ground squirrel Muridae Rattus norvegicus Norway rat Rattus rattus black rat Mus musculus house mouse
Pinnipedia – Seals, Sea lions, and relatives Otariidae – Sea lions and Seals Zalophus californianus California sea lion Phocidae – Hair seals Phoca vitulina harbor seal
Aves – Birds Podicipediformes – Grebes Podicipedidae – Grebes Podiceps auritus horned grebe
Pelicaniformes – Tropicbirds,Pelicans, and relatives Pelecaniformes – Pelicans Pelecanus occidentalis brown pelican Phalacrocoracidae – Cormorants Phalacrocorax auritus double-crested cormorant
Ciconiformes – Herons, Storks, Ibises Ardeidae – Herons and Bitterns Ardea herodias great blue heron Casmerodius albus great egret Nycticorax nycticorax black-crowned night-heron
Anseriformes – Ducks and relatives Anatidae – Swans, Geese, and Ducks Bucephala albeola bufflehead Melanitta perspicillata surf scoter
Falconiformes – Vultures, Hawks, and Falcons Falconidae – Caracaras and Falcons Falco peregrinus American peregrine falcon
Galliformes – Gallinaceous birds Phasianinae – Quails, Partridges and Pheasants Callipepla californica California quail
Gruiformes – Cranes, Rails, and relatives Rallidae – Rails, Gallinules, and Coots Fulica americana American coot
Charadriformes – Shorebirds, Gulls, and relatives Laridae – Gulls and Terns Larus argentatus herring gull Sterna antillarum browni California least tern
Columbiformes – Pigeons and Doves Columbidae – Pigeons and Doves Columba livia rock dove Zenaida macroura mourning dove
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Table E-46 Wildlife Species Observed or Predicted to Occur at NSTI (continued)
Class Order Family Scientific Name Common Name
Piciformes – Woodpeckers Picidae – Woodpeckers Colaptes auratus northern flicker Melanerpes lewis Lewis’ woodpecker
Passeriformes – Perching Birds Corvidae – Jays, Magpies and Crows Aphelocoma coerulescens scrub jay Cyanocitta stellari Stellar’s jay Corvus brachyrhynchos American crow Aegithalidae – Bushtits Psaltriparus minimus bushtit Sittidae – Nuthatches Sitta carolinensis white-breasted nuthatch Certhiidae – Creepers Certhia americana brown creeper Muscicapidae – Thrushes, Solitaires and Turdus migratorius American robin Bluebirds Mimidae- Mockingbirds and Thrasheers Mimus polyglottos northern mockingbird Muscicapidae – Gnatcatchers and Kinglets Regulus calendula ruby-crowned kinglet Sturnidae – Starlings Sturnus vulgaris European starling Carpodacus mexicanus house finch Emberizidae – Wood Warblers, Sparrows, Passer domesticus house sparrow Blackbirds, and relatives Passerculus sandwichensis savannah sparrow Zonotrichia leucophrys white-crowned sparrow Agelaius phoeniceus red-winged blackgbird Sturnella neglecta western meadowlark
Reptilia – Reptiles Squamata – Lizards and snakes Anguidae – Alligator lizards Gerrhonotus coeruleus northern alligator lizard
Amphibia – Amphibians Urodela – Salamanders Phethodontidae – Lungless salamanders Batrachoseps attentuatus California slender salamander
Chondrichthys – Sharks and Rays Carcharhiniformes – Sharks Triakididae – Smoothhounds Mustelus henlei brown smoothhound Triakis semifasciata leopard shark
Rajiformes – Skates and Rays Rajidae – Skates Raja binoculata big skate
Myliobatidiformes – Rays Myliobatidae – Eagle rays Myliobatis californica bat ray
Osteichthys – Bony fishes Acipenseriformes – Sturgeons and Paddlefish Acipenseridae – sturgeons Acipenser transmontanus white sturgeon
Clupeiformes – Herrings and Anchovies Clupeidae – Herrings Clupea pallasii Pacific herring Alosa sapidissima American Shad
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Table E-46 Wildlife Species Observed or Predicted to Occur at NSTI (continued)
Class Order Family Scientific Name Common Name Engraulididae – Anchovies Engraulis mordax northern anchovy
Salmoniformes – Trouts, Salmons, and Smelts Salmonidae – Trouts, Salmons, Smelts Oncorhynchus tschawytscha Chinook salmon Osmeridae – Smelts Hypomesus pretiosus surf smelt Allosmerus elongatus whitebait smelt Spirinchus thaleichthys longfin smelt
Mytciformes – Myctiforms Synodontidae – Lizardfishes Synodus lucioceps California lizardfish
Batrachoidiformes Batrachoididae – Toadfishes Porichthys notatus plainfin midshipman
Gadiformes – Cods Gadidae – Cods Microgadus proximus Pacific tomcod
Atheriniformes – Atheriniforms Atherinidae – Silversides Atherinopsis californiensis jacksmelt
Gasterosteiformes – Sticklebacks, Pipefishes, and Seahorses Syngnathidae – Pipefishes and seahorses Syngnathus leptorhynchus bay pipefish
Scorpaeniformes – Mail-cheeked fish Scorpaenidae – Rockfish Sebastes mystinus blue rockfish Sebastes melanops black rockfish Sebastes auricolatus brown rockfish Hexagrammidae – Greenlings and lingcods Ophiodon elongatus lingcod Cottidae – Sculpins Leptocottus armatus Pacific staghorn sculpin Cyclopteridae – Lumpfishes Liparis pulchellus showy snailfish
Perciformes – Perciform Serranidae – seabasses and groupers Morone saxatilis striped bass Sciaenidae – Croakers Genyonemus lineatas white croaker Embiotocidae – Surfperches Amphistichus koelzi calico surfperch Cymatogaster aggregata shiner surfperch Hyperprosopon argentum walleye surfperch Hyperprosopon ellipticum silver surfperch Rhacochilus vacca pile perch Rhacochilus toxotes rubberlip surfperch Gobiidae – Gobies Tridentiger trigonocephalus chameleon goby Acanthogobius flavimanus yellowfin goby Stromateidae – Butterfishes Peprinus simillimus Pacific butterfish Cynoglossidae – Tonguefishes Symphurus atricauda California tonguefish Bothidae – Lefteye flounders Paralichthys californicus California halibut Citharichythys stigmaeus speckled sanddab Citharichythys sordidus Pacific sanddab Pleuronectidae – righteye flounders Hypsopsetta guttulata diamond turbot Paraphrys vetulus English sole Psettichthys melanostictus sand sole
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Table E-46 Wildlife Species Observed or Predicted to Occur at NSTI (continued)
Class Order Family Scientific Name Common Name Platichthys stellatus starry flounder
Invertebrates
Phylum: Arthropoda – Arthropods Crustacea – Crustaceans Decapoda – Decapods Crangonidae – Sand shrimp Crangon franciscorum Franciscan bay shrimp Crangon nigricauda black-tailed bay shrimp Crangon nigrimaculata black-spotted bay shrimp Cancridae – Cancer crabs Cancer magister dungeness crab Cancer productus red rock crab Cancer antennarius rock crab Cancer gracilis graceful crab
Phylum: Mollusca – Molluscs Bivalvia – Bivalves Mytiloida – Mussels, Pen Shells, and Oysters Mytilidae – Mussels Mylitus edulis bay mussel Musculista sengousia Japanese mussel Ostreiidae – Oysters Crassostrea gigas giant Pacific oyster
Veneroida – Clams Tridacnidae giant clams Mactra californica California mactra Veneridae – Venus clams Gemma gemma gem clam Tapes japonica manila clam Macoma nasuta bent-nose clam Protothaca staminea common littleneck Source: U.S. Navy 1993.
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Ruderal and Valley Wildrye Grassland Potential species. Bird species that are likely to use these grasslands habitat include western meadowlark (Sturnella neglecta), lark sparrow (Chondestes grammacus), American kestrel (Falco sparverius), common barn owl (Tyto alba), and other raptor species that might prey on insects, small mammals, and reptiles using this habitat. The California ground squirrel, house mouse (Mus musculus), valley pocket gopher (Thomomys bottae), cottontail (Sylvilagus audubonii), blacktailed jackrabbit (Lepus californicus), gopher snake (Pituophis melanoleucus) and northern alligator lizard (Gerrhonotus coeruleus) are typical species that also may be found in these habitat types.
NSTI
Landscaped/Developed Areas Known species. The terrestrial wildlife on the landscaped or developed regions of NSTI includes common bird species such as European starling (Sturnus vulgaris), pigeon (Columba livia), robin (Turdus migratorius), house sparrow (Passer domesticus), mourning dove (Zenaida macroura), scrub jay (Aphelocoma coerulescens), and flicker (Colaptes auratus). Great blue heron (Ardea herodias), black-crowned night heron (Nycticorax nycticorax), and great egret (Casmerodius albus) have been observed hunting for fish along the riprapped shoreline (CCSF 1995a).
Potential species. Some of theknown bird species provide a prey base for the peregrine falcon (Falco peregrinus), and other raptor species that may be occasional visitors to Treasure Island. The California pocket mouse and California ground squirrel may be found in areas of development but are likely to be more common in undeveloped areas of Yerba Buena Island. The Pacific western big-eared bat and greater western mastiff bat may be found in open buildings. Urban rodents, such as the Norway rat (Rattus norvegicus), black rat (R. rattus), and house mouse (Mus musculus) may frequent some of the buildings at NSTI.
Nearshore Marine Habitat The predominant aquatic habitat around NSTI is subtidal with unconsolidated mud (silt/clay) bottom substrate. The water depths surrounding NSTI range from 7 to 33 feet, with the exception of the southeastern tip of the facility, where depth increases to more than 66 feet. There are no freshwater or wetland habitats on NSTI (U.S. Navy 1990a). There is rocky intertidal shoreline with mudflats on the western side of the cove between Yerba Buena Island and Treasure Island. Limited intertidal habitat, consisting of concrete riprap and dock and pier pilings exists along most of the shoreline surrounding Treasure Island. Yerba Buena Island has a rocky intertidal shoreline with mudflats extending to the north between it and Treasure Island. Cobble gravel substrate is found off the southern and western edges of Yerba Buena Island (see Figure 3-14 in Section 3.8, Biological Resources).
Mudflats occupy the intertidal zone, separating the adjacent development from open waters. The mudflats have no vascular plants on them, but they contain substantial
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surface and subsurface micro- and macro-algal growth and diverse invertebrate fauna. This invertebrate fauna, consisting of worms, small mollusks, and arthropods, is an important food source for a variety of wintering shorebirds. When the mudflats are exposed at low tide, large congregations of shorebirds gather on them to feed. These feeding areas are important in the yearly migration and winter residence cycle of most of these bird species.
Most of the species of benthic organisms in San Francisco Bay are introduced species that are generally better adapted to changes in Bay water quality than native species. Many of these exotic species have been released to the Bay in contaminated water from cargo ship ballast. A recent report prepared for the USFWS characterized the Bay and the Delta as “the most invaded aquatic ecosystem in North America.” According to the report, there is no shallow water habitat in the area that has not been invaded by nonnative species (Perlman 1996).
A case study of benthic invertebrate communities in the San Francisco Bay and Delta provides a general description of this species habitat in the vicinity of NSTI (Cohen and Carlton 1995). These communities were characterized as having high species diversity, abundance, and biomass. These attributes are probably due to the variety of substrate conditions, the relatively undisturbed sediments, high rate of water motion, and adequate food supply. Benthic species most abundant in the nearshore environment include amphipods, mollusks, and crustaceans. The most abundant infaunal species in terms of individuals is the amphipod Ampelisca abdita (nonnative), usually constituting more than 50 percent of the total number of individuals in the samples, from 10,000 to 50,000 individuals per square meter (Nichols and Pamatmat 1988). Biomass is dominated by clams—Gemma gemma (nonnative), Tapes japonica (nonnative), Musculista sengousia (nonnative), and Macoma nasuta (native)—and polychaete worms. The most prevalent species of polychaetes are capitellids, Mediomastus californiensis, and Asychis elongata. Nephtys cornuta franciscana, a mobile polychaete species, is found in areas of recent disturbance. Mollusks, such as the bay mussel (Mytilus edulis), California mactra (Mactra californica), and common littleneck (Protothaca staminea), as well as crustaceans, such as amphipods, copepods, shrimp, graceful rock crab (Cancer gracilis), and Dungeness crab (Cancer magister), also are found in abundance in the nearshore environment. Several community components (e.g., diversity of mollusks, polychaetes, and other crustaceans) were directly correlated (p<0.001) with abundance levels of Ampelisca abdita. Therefore, Ampelisca appears to be a key species in structuring the benthic habitat and exerting influence over the presence of other organisms.
Open Water Habitat Known species. Annual surveys of the fisheries community conducted by the CDFG to characterize San Francisco Bay and the Sacramento-San Joaquin Delta have identified numerous fish species in the vicinity of NSTI. The most abundant species found have been northern anchovy (Engraulis mordax), Pacific herring (Clupea pallasii), shiner perch (Cymatogaster aggregata), longfin smelt (Spirinchus dilatus, a state Fish and Game Species of Special Concern), white croaker (Genyonemus lineatus), and
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jacksmelt (Atherinopsis californiensis). Pacific herring have been found in large numbers during the winter and spring, with large numbers of northern anchovy present in spring and summer. Herring were observed spawning on and around the rocky shores surrounding Treasure Island and in eelgrass beds near the eastern shore of Yerba Buena Island. Adult striped bass (Morone saxitilis) feed on the anchovies, herring, shiner perch, sculpins (Cottidae) and gobies (Gobiidae) that typically inhabit the water on the northeast side of Treasure Island and the area beneath the SFOBB east of Yerba Buena Island (see Figure 3-14 in Section 3.8, Biological Resources).
Shoreline/Open Water Interface Known species. Marine mammals have been observed at or near NSTI. The harbor seal (Phoca vitulina) is routinely seen in the San Francisco Bay waters at NSTI. The Baywide population of approximately 700 has remained constant since the early 1970s (SFEP 1993). An area on the southwest and western shoreline of Yerba Buena Island under the SFOBB is used by several hundred harbor seals as a “haul-out”(see Figure 3-14 in Section 3.8, Biological Resources) from December to April (SFEP 1993, U.S. Navy 1990a).
Potential species. The California sea lion (Zalophus californianus) may be found near NSTI; it is more commonly seen along San Francisco’s waterfront (SFEP 1993).
Existing Biological Conditions: Special Status Species Table E-47 lists special status species unlikely to occur at NSTI.
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Table E-47 Special Status Species Unlikely to Occur at NSTI
Status1 Common Name Federal/State Scientific Name CNPS Habitat Plants Adobe sanicle FSC/CR/1B Chaparral, coastal prairies, meadows, valley and foothill Sanicula maritima grasslands; clay serpentinite. No suitable habitat on-site.
Franciscan thistle --/CEQA/4 Bluffs, ravines and seeps in broadleafed upland forest, coastal Cirsium andrewsii bluff scrub, sometimes on serpentinite. No suitable habitat on- site.
Compact cobwebby thistle FSC/CEQA/1B Chaparral, coastal dunes, coastal prairie, sometimes on Cirsium occidentale var. compactum serpentinite. No suitable habitat on-site.
San Francisco gumplant FSC/--/1B Sandy or serpentine slopes; sea bluffs. No suitable habitat on- Grindelia hirsutula var. maritima site.
Marsh gumplant --/CEQA/4 Coastal saltmarsh. No suitable habitat on-site. Grindelia stricta var. angustifolia
Diablo helianthella FSC/--/1B Broadleaf upland forest, chaparral, cismontane woodland, coastal Helianthella castanea scrub, riparian woodland, valley and foothill grassland. No suitable habitat on-site.
Santa Cruz tarplant FC/CE/1B Coastal prairies, valley and foothill grasslands- often clay. Holocarpha macradenia Marginal habitat on-site but not found during survey.
Contra Costa goldfields FPE/--/1B Mesic valley and foothill grasslands, vernal pools; alkali, clay- Lasthenia conjugens based soils. No suitable habitat on-site.
Beach layia FE/CE/1B Coastal dunes. Marginal habitat on-site but not found during Layia carnosa survey.
San Francisco lessingia FPE/CE/1B Restricted to sandy soils. Suitable habitat on-site but not found Lessingia germanorum var. germanorum during survey.
Marsh microseris --/--/P4 Moist grassland, open woods and coastal scrub. Marginal habitat Microseris paludosa on-site but not found during survey.
Choris’s popcorn-flower --/CEQA/3 Moist, grassy sites in coastal scrub, coastal prairie and chaparral. Plagiobothrys chorisianus var. chorisianus No suitable habitat on-site.
San Francisco popcorn-flower FSC/CE/1B Moist places in forests, grasslands. No suitable habitat on-site. Plagiobothrys diffusus (Plagiobothrys reticulatus var. rossianorum)
Coast rock cress FSC/--/4 Broadleaf upland forest, coastal bluff scrub, coastal prairie, coastal Arabis blepharophylla scrub. No suitable habitat on-site.
San Francisco wallflower FSC/--/4 Coastal dunes, coastal scrub, valley and foothill grasslands; often Erysimum franciscanum serpentinite or granitic. Suitable habitat on-site but not found during survey.
Swamp (marsh) sandwort FE/CE/1B Boggy meadows and marshes. No suitable habitat on-site. Arenaria paludicola
Mission Dolores (San Francisco) campion FSC/--/1B Sandy soils, coastal bluffs, chaparral. Suitable habitat on-site but Silene verecunda ssp. verecunda not found during survey.
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Table E-47 Special Status Species Unlikely to Occur at NSTI (continued)
Status1 Common Name Federal/State Scientific Name CNPS Habitat California suaeda FE/CEQA/1B Coastal salt marsh. No suitable habitat on-site. Suaeda californica Bristly sedge --/CEQA/2 Marshes and swamps, lake margins. No suitable habitat on-site. Carex comosa
Presidio manzanita FE/CE/1B Serpentine outcroppings. No suitable habitat on-site. Arctostaphylos hookeri ssp. ravenii
San Francisco manzanita FSC/--/1A Serpentine outcroppings. No suitable habitat on-site. Arctostaphylos hookeri ssp. franciscana
Alkali milk vetch --/CEQA/1B Playas, valley/foothill grasslands on adobe clay and alkaline vernal Astragalus tener var. tener pools. No suitable habitat on-site.
Curly-leaved monardella --/CEQA/4 Chaparral, coastal dunes, coastal scrub, lower montane coniferous Monardella undulata forests, on sandy soils. Suitable habitat on-site but not found during survey.
Fragrant fritillary FSC/CEQA/1B Coastal scrub, coastal prairies, valley and foothill grasslands; clay Fritillaria liliacea serpentinite. No suitable habitat on-site.
Coast lily FSC/CEQA/1B Broadleafed upland forest, closed-cone coniferous forest, coastal Lilium maritimum prairies, coastal scrub, North coast coniferous forest No suitable habitat on-site.
Marin dwarf-flax FPT/CT/1B Serpentine grassland. No suitable habitat on-site. Hesperolinon congestum
Marin checkermallow FC/CR/1B Dry ridges near coast. No suitable habitat on-site. Sidalcea hickmanii ssp. viridis
Presidio clarkia FE/CE/1B Serpentine soil. No suitable habitat on-site. Clarkia franciscana
Michael’s rein orchid --/CEQA/4 Coastal bluff scrub, closed-cone coniferous forest, cismontane Piperia michaelii woodland and lower montane coniferous forest. Marginal habitat on-site but not found during survey.
Many-stemmed gilia --/--/P1B Coastal strand, stabilized coastal dunes. Marginal habitat on-site Gilia millefoliata but not found during survey.
Large-flowered linanthus --/CEQA/4 Coastal bluff scrub, closed-cone coniferous forest, coastal dunes, Linanthus grandiflorus coastal prairie, coastal scrub, valley/foothill grassland. No suitable habitat on-site.
San Francisco Bay spineflower FSC/--/1B Closed-cone coniferous forest, chaparral (maritime), coastal Chorizanthe cuspidata var. cuspidata scrub; sandy or gravelly, openings. No suitable habitat on-site.
Kellogg’s wedge-leaved horkelia FSC/--/1B Closed-cone coniferous forest, coastal scrub, chaparral Horkelia cuneata ssp. sericea (maritime); sandy or gravelly openings. No suitable habitat on- site.
Round-headed Chinese houses --/CEQA/1B Coastal dunes. No suitable habitat on-site. Collinsia corymbosa
San Francisco collinsia --/CEQA/4 Moist, shady scrub, forests. Marginal habitat on-site but not Collinsia multicolor found during survey.
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Table E-47 Special Status Species Unlikely to Occur at NSTI (continued)
Status1 Common Name Federal/State Scientific Name CNPS Habitat Point Reyes (northcoast) bird’s beak FSC/--/1B Coastal salt marshes, coastal dunes. No suitable habitat on-site. Cordylanthus maritimus ssp. palustris
San Francisco owl’s clover FSC/--/1B Coastal grassland, serpentine slopes. No suitable habitat on-site. Triphysaria floribunda
Mammals Pacific (Townsend’s) western big-eared bat FSC/--/-- Caves, mine tunnels, and buildings for roosts. Plecotus townsendii townsendii
Greater (California) western mastiff bat FSC/--/-- Roosts on or in buildings, crevices in cliffs, in trees, and in Eumops perotis californicus tunnels.
San Francisco dusky-footed woodrat FSC/--/-- Heavy chaparral, streamside thickets, deciduous or mixed woods. Neotoma fuscipes annectens Sources: Burt and Grossenheider 1980; CDFG 1994, 1996a, 1996b, 1996c, 1996d; Eschmeyer and Hammann 1983; Hickman 1993; National Geographic Society 1987, Skinner and Pavlik 1994; U.S. Navy 1994a, 1995b; USFWS 1994, 1995a, 1995b, 1996; U.S. Navy 1996h. 1 Federal designations listed by the USFWS. State designations listed by the CDFG. CNPS designations listed by the California Native Plant Society.
Notes: Federal Status State Status CNPS Status FE = Endangered CE = Endangered 1 = Plants of highest priority FT = Threatened CR = Rare 1A = Presumed extinct in FPE = Proposed endangered CT = Threatened California FPT = Proposed threatened CPE = Proposed endangered 1B = Rare and endangered in FSS = Federal sensitive species CSC = California species of California and elsewhere FC = Candidate special concern 2 = Rare and endangered in FSC = Species of concern CSA = California special animal California but more common (formerly C2) CEQA = Protected under CEQA elsewhere FSCR = Species of concern - 3 = Additional data are needed recommended listing 4 = Limited distribution P = Proposed for listing. CNPS status as indicated.
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E.6 SOILS, GEOLOGY, AND SEISMICITY
Regional Seismicity The probability of one or more large earthquakes (Richter magnitude 7.0 or greater) occurring on the San Andreas, Hayward, or Rogers Creek faults has been estimated to be greater than 67 percent for the 30-year period from 1990 to 2020 (Working Group 1990). This is considered to be a conservative estimate for earthquakes that could affect NSTI because it does not include possible earthquakes on other active faults in the area. The estimated individual probabilities of magnitude 7.0 or greater earthquakes for the same period on either the northern segment of the Hayward Fault or the San Francisco Peninsula segment of the San Andreas Fault were estimated to be 27 percent and 23 percent, respectively.
Geology Underlying NSTI
Treasure Island The unconsolidated deposits that constitute and underlie Treasure Island can be divided into four broad categories based on their engineering characteristics—fill, native shoal sand, recent bay sediments, and older bay sediments (Rollins et al. 1994). The fill was derived from hydraulic and clamshell dredging and was placed within a retaining dike built of rock. Filling commenced February 11, 1936, and was completed July 2, 1937, except for refill operations from August 1 to 24, 1937 (Lee 1969). The retaining dike was placed in 2 to 4 stages on a prepared bed of coarse sand placed over the shoal. The retaining dike was later covered with riprap from elevation –6 to +14 feet MLLW (Rollins et al. 1994). Of the 29 million cubic yards of artificial fill placed on Treasure Island, 1.3 million cubic yards (less than 0.5 percent) was described as “heavy sand,” consisting of coarse and well-graded sand and gravel from Presidio, Alcatraz, and Knox Shoals. The remaining material was predominantly sand, but much finer-grained, which was transported to the island by pipeline from nearby dredging grounds.
Beneath the artificial fill are sand and Bay Mud deposits that formed the Yerba Buena Shoals. About 65 percent of the area of the shoal was described as “fine to coarse loose sand, occasionally interbedded with soft sandy mud, mud with sand, sandy clay or clay.” The remaining 35 percent was described as “soft mud” (Lee 1969). Both the fill and the native shoal sand consists predominantly of sand, with varying amounts of clay, silt, and gravel. Geotechnical tests suggest that the fill is somewhat looser than the shoal deposits (Rollins et al. 1994). The thickness of the combined fill and shoal sand material ranges from 35 feet at the south end of Treasure Island to 50 feet in the north.
The recent bay sediments include Bay Mud and what may be remnants of sands belonging to the San Antonio formation. In the southeast corner of Treasure Island, these recent bay sediments are a mixture of Bay Mud interbedded with sand. The Bay Mud is underlain by a relatively dense sand, which could be a remnant of San Antonio deposition. The thickness of the Bay Mud is about 35 to 50 feet in the south, 45 to 55 feet in the north, 70 feet in the northeast, and about 160 feet in the northwest corner.
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The interbedded Bay Mud and sands are up to 120 feet thick in the southeast corner of Treasure Island (Rollins et al. 1994).
Beneath the recent bay sediments is a relatively stiff sandy or silty clay (possibly corresponding to the Yerba Buena Mud). Based on the interpretation of Rogers and Figuers, the Yerba Buena Mud adjacent to Treasure Island is underlain by about 100 feet of Alameda formation.
A boring on Treasure Island, near the center of the west shore, confirms the depth of the Franciscan bedrock beneath that portion of the island at about 280 feet. Based on this boring and other existing data (Rollins et al. 1994), it is estimated that the bedrock surface slopes down about 2 degrees to the northwest.
Yerba Buena Island Yerba Buena Island consists predominantly of consolidated sandstone and shale of the Franciscan formation. Slopes on Yerba Buena Island range from 5 to 75 percent (U.S. Navy 1986). The Franciscan formation is overlain in some areas by thin sand deposits belonging to the Pleistocene Colma formation (Blake et al. 1974), or is derived from the underlying Franciscan sandstone (Radbruch 1957). Only a small area has been filled, on the northeast tip of the island beneath the SFOBB (Nilsen 1975; Radbruch 1957).
Ground Shaking ABAG has prepared a series of maps projecting the intensity of ground shaking in geologic materials throughout the Bay Area (ABAG 1995a). According to these maps, the fill materials at NSTI are the type of materials that typically increase seismic shaking. The most damaging earthquake at NSTI would be one originating on the northern portion of the Hayward Fault (ABAG 1995a). Such an earthquake, with a moment magnitude of 7.1, could produce ground shaking on NSTI with an intensity of IX on the Mercalli scale (ABAG 1995a). By comparison, ABAG assigned a Mercalli intensity of VIII to ground shaking on NSTI during the October 17, 1989, Loma Prieta earthquake. The epicenter of this 1989 earthquake was 59 and 61 miles south of Yerba Buena Island and Treasure Island, respectively. The peak ground accelerations measured in the east-west direction at Yerba Buena Island and Treasure Island were 0.06 and 0.16 times the acceleration of gravity (g), respectively (Rollins et al. 1994). North-south accelerations were less. The duration of strong shaking was four seconds. The much lower ground acceleration measured on Yerba Buena Island than on Treasure Island illustrates the different responses of bedrock and fill.
There is a 67 percent probability that one or more earthquakes of magnitude 7.0 or greater on a nearby portion of the Hayward or San Andreas faults will occur by 2010 (Working Group 1990). Rollins et al. (1994) predicted that a magnitude 7.0 earthquake on the Hayward Fault would produce a peak bedrock acceleration of about 0.45 g on Yerba Buena Island, or about 7.5 times the acceleration observed during the Loma Prieta earthquake. Even though Treasure Island is underlain by fill, the peak acceleration in a large nearby earthquake would be about the same on both Yerba Buena
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Island and Treasure Island, according to Rollins et al. (1994) because the seismic response of fill is not linear.
Dike Stability A bed of hydraulic sand fill was placed in areas where the shoals were deeper than -6 feet MLLW. Then, a low retaining dike of rock was placed around the perimeter of the fill, on either the native sediments or the sand fill. As a result, much of the lowermost rock dike structure rests on a sandy base up to 30 feet thick. Fill was pumped or deposited behind the retaining dike until it reached the top of the dike, followed by placement of another retaining dike on the previous one. The process was repeated until the surface of the fill reached approximately 13 feet MLLW. Riprap placed on the dike’s outer slope completed the process.
During construction of the perimeter dikes, a 500-foot section on the north end of the east dike slumped. The area was stabilized by flattening the slope and placing a bed of “heavy” sand beyond the toe of the dike to act as a counterweight (Lee 1969). The north seawall was modified by excavating a trench approximately 400 feet wide and 30 to 40 feet deep along the seawall, which was backfilled with coarse sand. The retaining dike then was constructed on the sand. As a result, this portion of the dike rests on a sand layer approximately 70 feet thick.
Portions of the dikes were repaired between 1983 and 1985. New rock was placed on the face of the dikes and, in several locations, at the toe of the dikes. Erosion or dredging removed portions of the hydraulically placed sand fill and native shoal materials and some of the underlying Bay Mud at the toe of the original dike, from approximately 3,800 to approximately 6,200 feet north of the entry gate (U.S. Navy 1990c). This increased the height of the slope in this section to 54 feet. Repairs consisted of placing rock in this area.
The stability of the perimeter dike at Treasure Island was evaluated by the Navy following the 1989 Loma Prieta earthquake (U.S. Navy 1990c). The objectives of the evaluation were to assess the stability of the dike during nearer or larger earthquakes than the Loma Prieta and to evaluate potential remedial measures to increase dike stability. The field investigation included drilling 12 onshore borings, 7 offshore borings, and 36 cone penetration tests (CPT). Geotechnical and stratigraphic data from previous studies also were compiled and evaluated.
Figure 3-22 in Section 3.9, Soils, Geology, and Seismicity shows four cross sections of the perimeter dikes considered to be representative of Treasure Island conditions (U.S. Navy 1990c). Cross sections FF’ and II’, which are the most typical, show that the dikes are constructed on potentially liquefiable material. Cross section CC’ shows where offshore material was removed by dredging or erosion and was repaired with rock. Section DD’ is the location where the retaining dike was reconstructed on 70 feet of sand after the slope failed during the initial construction.
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The Navy’s 1990 study, incorporated into the 1995 Treadwell and Rollo report, indicated that during a design-level earthquake (Richter magnitude 8.0 on the San Andreas fault or magnitude 7.0 on the north East Bay segment of the Hayward fault), the sand fill and shoal materials below the water table would be expected to liquefy, and the existing perimeter dikes and causeway shoreline would be expected to spread laterally toward the Bay. Within 500 feet inland of the perimeter dike and along portions of the causeway underlain by sand fill and shoal materials, lateral spread displacements were estimated to be greater than 10 feet. Movements of this magnitude would cause dike failure. Even if improvements are made to mitigate the hazards associated with liquefaction and lateral spreading, rotational slope failures may still occur through the underlying weak layer of recent Bay sediments. During a design-level earthquake, deep failures that could occur through recent Bay sediments could result in up to 5 feet of slope movement. The study further concluded that if improvements were performed to increase the stability of the slope against deep failures, lateral displacements could be reduced to less than 1 foot (U.S. Navy 1990c; Treadwell and Rollo 1995).
Improving Ground Stability Five foundation soil modification techniques have been used at Treasure Island to reduce their susceptibility to liquefaction and differential settlement (U.S. Navy 1990c). These techniques involved some form of densifying the underlying soil, such as installing sand compaction piles, installing nonstructural timber piles, vibro-compaction, and stone columns. Mixing the soil with portland cement to form a foundation of “soilcrete” also has been attempted. Figure 3-23 in Section 3.9, Soils, Geology, and Seismicity shows the locations of the 12 buildings and one area at the base of Pier 1 with improved foundations. All other structures founded on improved ground or piles reportedly performed reasonable well during the Loma Prieta earthquake, with the exception of Building 461 (Treadwell and Rollo 1995).
The three original structures remaining from the 1939 Golden Gate Exposition, Buildings 1, 2, and 3, located at the south end of the island, are constructed on pile foundations that rest in firm clays. Building 369 is the only other structure on the island known to be constructed on a pile foundation.
Buildings 450 and 452 were constructed using sand compaction piles. The piles were driven into the soil approximately 30 feet, densifying the surrounding soil in the process.
Building 453 was constructed over timber piles driven to a depth of about 30 feet. Although the piles were left in place, the structure does not rest on them. The driving of the piles also densified the surrounding soils.
Buildings 487, 488, 489, the new medical/dental building (Building 442), and the base of Pier 1 were constructed on stone columns. The columns are created by pressing a large diameter vibrating probe into the ground, and then filling the resulting hole with crushed rock. The stone column is both a support and a relief chamber for the escape of excess pore water pressure that causes liquefaction.
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Building 461 was constructed on a foundation of soilcrete. This method was used to limit differential settlement by forcing the structure to settle as a unit. Building 461 was the only “improved structure” that suffered major damage during the Loma Prieta earthquake. The area around this building experienced bayward lateral spreading and major damage caused by differential foundation settlement (Treadwell and Rollo 1995).
Relevant Draft Reuse Plan Assumptions The Existing Conditions background report (CCSF 1995b), completed during the City’s development of the Draft Reuse Plan, summarized a detailed geotechnical analysis (Treadwell and Rollo 1995) that recommended strategies to reduce hazards at the site to acceptable levels. The Reuse Plan incorporates some of these geotechnical recommendations and adds other specific measures. Together, these measures would stabilize the Treasure Island perimeter and would implement site-specific improvements with each future Treasure Island development project. For Yerba Buena Island, the Reuse Plan recommends landslide and soil stabilization measures on a location or project-specific basis. The five major strategies or packages of measures that apply to one or more of the reuse alternatives analyzed in this section are perimeter dike improvements, interior island improvements, avoidance and remediation of unstable slopes, open space use, and structural improvements. Each of these strategies is described in more detail below.
Perimeter dike improvements The Reuse Plan acknowledges that special measures would be required for reuse of Treasure Island and the causeway. For example, the Reuse Plan calls for improving the Treasure Island perimeter dike and the causeway to reduce the potential for dike failure and large lateral displacement by creating an “improved zone,” capable of confining and retaining liquefied soil inland of the zone (Treadwell and Rollo 1995). Recommended remediation techniques include placing stone columns, soil-cement columns, and rock berms to limit lateral spreading.
The extent of the dike improvements are different for each reuse alternative, as indicated in the alternative descriptions and as shown in Figure 2-2. The Maximum Development Alternative would include stabilization of the entire perimeter dike. The Medium Development Alternative includes stabilizing all but the northwest corner of the island. Under the Minimum Development Alternative, no perimeter dike improvements would be made. Implementing the reuse alternatives assumes that where perimeter stabilization is proposed, it would conform with the criteria presented in the geotechnical report’s Appendix C (Treadwell and Rollo 1995).
Interior island improvements Interior island improvements can be performed on Treasure Island and on the causeway to reduce the potential for large differential settlement caused by liquefaction-induced sand densification and consolidation of the underlying soft Bay deposits (settlement). Methods of reducing the potential of ground failure/subsidence include using stone columns, dynamic compaction, chemical and compaction grouting or surcharge fill with wick drains (which remove excess subsurface soil waters). In conjunction with
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perimeter dike improvements, interior island improvements would reduce the potential of lateral and vertical ground displacement, resulting in a relatively stable site for construction. Foundation recommendations also are provided in the geotechnical report.
Avoidance and remediation of unstable slopes Slope hazards would be stabilized (e.g., through flattening or drainage improvements) on a project-by-project basis. Geotechnical reports would be required before building in these areas.
Open space use Open space uses would reduce the potentially damaging effects of earthquake-induced ground settlement, lateral spreading, or other geologic hazards.
Structural improvements The Reuse Plan states that site-specific geotechnical considerations must be considered in conjunction with structural investigations to assure that necessary measures are taken to address the unique seismic conditions on Treasure Island. The level of upgrades for existing structures would be determined on a site-by-site basis. For existing structures, the Handbook for the Seismic Evaluation of Existing Buildings (FEMA-178) would be used for assessing seismic hazards (CCSF 1996c). All interim and future users would be required to conduct geotechnical and structural investigations and an assessment of life safety hazards prior to building occupancy or obtaining development approvals (CCSF 1996d).
In recognition of Treasure Island’s liquefaction hazards, the Reuse Plan includes the following strategies to reduce risks of liquefaction:
• Reinforce the perimeter dike and causeway to substantially reduce lateral spreading hazards;
• Investigate structural and geotechnical conditions with appropriate upgrades prior to reuse of existing structures;
• Prepare geotechnical site investigations and appropriate structural design for all new development;
• Prepare an emergency response plan to deal effectively with major emergencies; and
• Provide continuing education to promote greater public awareness of disaster risks and responses.
The reuse alternatives include full or partial Treasure Island perimeter dike stabilization by using soil-cement and stone columns (please see Figure 2-2, which shows perimeter stabilization for the alternatives). The Maximum Development Alternative would
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include a column-stabilized utility corridor running east-west through the middle of Treasure Island. Specific areas of the interior of Treasure Island and the landslide hazard areas on Yerba Buena Island would be stabilized on a site-by-site basis and would be addressed as part of subsequent project-specific environmental documentation and/or permit processing.
As described in Chapter 3, Section 3.9, the site is identified as a Seismic Hazard Zone by the California Division of Mines and Geology (now known as the California Geological Survey (CGS)). This designation subjects the site to various requirements, including a review of the site’s seismic hazards by the independent lead agency. In compliance with this designation, for any development proposal in an area of liquefaction potential or areas susceptible to landslide, the City Department of Building Inspection (DBI) in its review of the building permit application, would require the project sponsor to prepare a geotechnical report. The geotechnical report would assess the nature and severity of the hazard(s) on the site and would recommend project design and construction features to reduce the hazard(s). To ensure compliance with all San Francisco Building Code provisions regarding structural safety, when DBI reviews the geotechnical report and building plans for a proposed project, it would determine necessary engineering and design features for the project to reduce potential damage to structures from ground shaking, liquefaction, and landslide. Therefore, potential damage to new structures from geologic hazards on a project site are assumed to be mitigated through the DBI requirement for a geotechnical report and review of the building permit application pursuant to its implementing the Building Code.
Perimeter stabilization criteria are not specified in the Reuse Plan. The mitigation measures identified in this EIR would limit damage from seismic events to the maximum extent feasible. However, because of the high costs of such measures, their full implementation may not be economically feasible for certain alternatives, as defined in the CEQA Guidelines §15364.
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E.7 HAZARDOUS MATERIALS AND WASTE
Federal and State Hazardous Materials and Waste Laws
Resource Conservation and Recovery Act (42 U.S.C. §6901 et seq.) In response to the need to more closely regulate the ongoing handling, storage, transportation, and disposal of hazardous wastes, the U.S. Congress passed the Resource Conservation and Recovery Act (RCRA), which regulates the hazardous waste storage, treatment, and disposal sites. Prior to RCRA, California had passed the Hazardous Waste Control Law of 1972. This law provides regulations that equal or exceed the Federal standards set by RCRA for hazardous waste management. California was given “interim authorization” to implement RCRA by enforcing its Hazardous Waste Control Law. Final authorization for the state to implement RCRA was given in 1993. The responsible agency for enforcing RCRA and the Hazardous Waste Control Law is the California Environmental Protection Agency, Department of Toxic Substances Control.
Comprehensive Environmental Response, Compensation, and Liability Act (42 U.S.C. §9601 et seq.) Originally passed in 1980, the Comprehensive Environmental Response, Compensation, and Liability Act (CERCLA) created national policies and procedures to identify and remediate sites previously contaminated by the release of hazardous substances. CERCLA formalized the process for identifying sites and prioritizing the site cleanup. The CERCLA regulations contain criteria for evaluating sites that provide the basis for the Preliminary Assessment (PA) and Site Investigation (SI). The evaluation that results is a priority ranking of the site that determines whether it should be placed on the National Priorities List (NPL). Facilities placed on the NPL are commonly referred to as “Superfund” sites. NSTI is not on the NPL.
Community Environmental Response Facilitation Act (42 U.S.C. §9601 note [West 1995]) Congress amended CERCLA in 1992 through the passage of the Community Environmental Response Facilitation Act (CERFA). The purpose of CERFA is to expedite the identification of uncontaminated real property, within closing Federal facilities, which offers the greatest opportunity for reuse and redevelopment. Uncontaminated, or “CERFA-eligible,” property is defined as real property where no storage, release, or disposal of hazardous substances or petroleum products has occurred, including migration of these substances from adjacent areas. CERFA also clarified when “all remedial action has been taken.” CERFA defined that all remedial action has been taken if construction and installation of an approved remedial design has been completed and the remedy has been demonstrated to the administrator to be operating properly and successfully. The continuation of long-term pumping and treating or operation and maintenance, after the remedy has been demonstrated to the administrator to be operating properly and successfully does not preclude the transfer of the property.
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Identifying uncontaminated properties at NSTI is the responsibility of the Navy. The U.S. EPA is the regulatory authority for enforcing CERCLA, including the CERFA amendments. However, the U.S. EPA has joined with the California Environmental Protection Agency (Cal EPA) in implementing CERFA for DOD facilities in California. Cal EPA serves as the “lead agency” for closures of military bases, including NSTI, not listed in the NPL. Cal EPA generally follows U.S. EPA guidance for CERCLA sites.
The final basewide EBS, published in May 1995 (U.S. Navy 1995c) and developed in cooperation with the regulatory community, identified 8 of 145 parcels as “CERFA- clean.” These eight parcels include T001, T033, T064, T082, T083, T085, T088, and YB012. Of the remaining 137, 17 parcels were identified as areas where hazardous substances or petroleum products were or were not stored with no release into the environment, 30 were identified as areas where storage, release, disposal, or migration of hazardous substances has occurred but no response actions implemented, and 90 were identified as areas that are unevaluated or that require additional evaluation.
CERFA requires a process and schedule for identifying uncontaminated sites. Parcels have been classified into seven categories, as follows:
Category 1 Areas where there has been no release or disposal of hazardous substances or petroleum products (including no migration of theses substances from adjacent areas);
Category 2 Areas where only release of disposal of petroleum products has occurred;
Category 3 Areas where release of hazardous substances has occurred but at concentrations that do not require a removal or remedial action;
Category 4 Areas where release of hazardous substances has occurred and where all remedial actions necessary to protect human health and the environment have been taken;
Category 5 Areas where release of hazardous substances has occurred and where removal or remedial actions are underway but where all required remedial actions have not yet been taken;
Category 6 Areas where release of hazardous substances has occurred but where required actions have not yet been taken; and
Category 7 Areas that are not evaluated or that require additional evaluation.
For properties that cannot qualify as “CERFA-eligible,” the law specifies that the deed for transferring subject property shall include a covenant warranting that all remediation necessary to protect human health and the environment with respect to
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any hazardous substance remaining on the property has been taken prior to the date of transfer and that any response action or corrective action found to be necessary after the date of transfer shall be conducted by the U.S.
Properties that contain or potentially contain contamination may be transferred prior to completion of environmental remediation (i.e., “early transfer”) only if conditions listed in the amended CERCLA regulations, CERCLA §120 (h)(3) are met. These conditions include the following:
• Agreement by the U.S. EPA and the state that the property is suitable for the intended use and that the intended use will protect human health and the environment;
• Public notice and comment;
• Property use restrictions, if necessary, to ensure that human health and the environment are protected and that the necessary remedial actions can take place;
• Assurances from the Federal government that transfer of the property will not substantially delay response actions at the property and that the Federal government will continue any necessary response actions after transfer; and
• A Federal budget request for adequate funding to complete the remedial actions on schedule.
If these conditions are met, the property may be transferred using a FOSET. In all other circumstances, contaminated or potentially contaminated properties cannot be transferred until remediation is complete. However, the DOD has established a policy for leasing these properties. The DOD with regulatory participation, can develop a site-specific or supplemental environmental baseline survey or, in specific cases, can use the basewide EBS and a FOSL or FOST for the property. The FOSL may include specific land use restrictions to protect human health and the environment and to ensure government access for final investigations and remediation. With the exception noted above, a FOST may be issued only for properties on which all remedial actions necessary to protect human health and the environment have been taken, pursuant to CERCLA §120(h)(3).
Aboveground and Underground Storage Tank Regulations Aboveground storage tanks (ASTs) and underground storage tanks (USTs) are subject to regulation by Federal, state, and local agencies. Public agencies involved in implementing and enforcing AST and UST regulations are the following:
• U.S. EPA, Region IX, San Francisco, California; • State Water Resources Control Board, Sacramento, California;
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• California Air Resources Board, Sacramento, California; • San Francisco Bay Regional Water Quality Control Board; • Bay Area Air Quality Management District, San Francisco, California; • San Francisco Environmental Health Department; and • San Francisco Fire Department.
California has a cooperative agreement with U.S. EPA (1991) to implement AST and UST regulations through the SWRCB. California in turn delegates authority to county and city agencies for local implementation and enforcement of AST and UST regulations. The San Francisco Department of Public Health enforces AST, UST and hazardous materials regulations. The San Francisco Department of Public Health oversees tank removals in accordance with San Francisco Municipal Code Article 21. The BAAQMD is responsible for implementing and enforcing air quality regulations in San Francisco. The San Francisco Fire Department is responsible for enforcing the Uniform Fire Codes as they apply to hazardous materials and tanks.
U.S. EPA issued final regulations in 40 C.F.R. Parts 280 and 281, regarding USTs containing petroleum products and hazardous substances on September 23, 1988. The specific goals of the Federal UST regulations are to prevent and detect UST leaks and spills, to correct environmental impacts resulting from UST leaks and spills, to assure UST owners and operators can pay for UST contamination, and assure each state has a UST regulatory program that is at least as stringent as the Federal regulations. The regulations that may apply to USTs are the following:
• 40 C.F.R. 280, Technical Standards and Corrective Action Requirements for Owners and Operators of Underground Storage Tanks;
• 40 C.F.R. 109, Criteria for State, Local, and Regional Oil Removal Contingency Plan;
• 40 C.F.R. 112, Oil Pollution Prevention (Spill Prevention Control and Countermeasures);
• 40 C.F.R. 113, Liability Limits for Small Onshore Storage Facilities;
• 40 C.F.R. 114, Civil Penalties for Violation of Oil Pollution Prevention Regulations; and
• Clean Air Act, 55 Federal Register, revised 1990.
The State of California has adopted a more stringent set of UST and AST regulations than those of the Federal government. These tank regulations outline the reporting, monitoring, closure, and tank system requirements for USTs and ASTs. The following state laws and regulations are applicable for regulating USTs and ASTs:
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• Cal. Health and Safety Code, Division 20, Chapter 6.7, §§25280-25299.7 Underground Storage of Hazardous Substances, October 1990;
• Cal. Health and Safety Code, Chapter 6.5, §§25250-25250.25, Management of Used Oil;
• 23 C.C.R. Waters, Division 3, State Water Resources Control Board, Chapter 16, Underground Tank Regulations, May 5, 1994;
• 22 C.C.R. Division 4.5, Chapter 12, Standards Applicable to Generators of Hazardous Wastes; and
• 22 C.C.R. Division 4.5, Chapter 15, Interim Status for Owners and Operators of Hazardous Waste Transfer, Treatment, Storage, and Disposal Facilities.
Spill Prevention Control and Countermeasure Plan Federal regulations for preventing and responding to spills from storage tanks apply to those facilities with an aggregate UST storage quantity of 42,000 gallons (158,970 liters), or 1,320 gallons (4,996 liters) in AST storage or 660 gallons (2,498 liters) in 1 AST. These regulations are contained in 40 C.F.R. Part 112. In general, 40 C.F.R. Part 112 outlines the requirements for facilities required to prepare a SPCC plan, which includes a description of the UST facility, identifies potential spill hazards, discusses the current prevention procedures and personnel training and makes recommendations for corrective actions.
Hazardous Waste Generator and Storage Regulations Businesses that generate or store hazardous waste are required to file hazardous waste contingency and business plans set forth in the state hazardous waste program, as specified in, 22 C.C.R. Division 4.5, Chapter 12, Standards Applicable to Generators of Hazardous Waste and Chapter 15, Interim Status Standards for Owners and Operators of Hazardous Waste Transfer, Treatment, Storage and Disposal Facilities. These regulations outline the requirements for pretransportation and accumulation of wastes, personnel training, preparedness and prevention, contingency plan and emergency procedures and tank systems requirements.
Asbestos Regulations Removal of ACM is regulated by U.S. EPA, Occupational Safety And Health Administration (OSHA), and the State of California. ACM may be subject to regulation as hazardous waste under state law, 22 C.C.R. §66261.24(a)(2). California has established specific requirements for disposing of ACM, Cal. Health and Safety Code §25143.7, Pub. Res. Code §44820. Asbestos fiber emissions into the ambient air are regulated in accordance with Section 112 of the Clean Air Act, 42 U.S.C. §7412, which established the National Emissions Standards for Hazardous Air Pollutants (NESHAP). The NESHAP regulations address the demolition or renovation of buildings with ACM, 40 C.F.R. Part 61. The Toxic Substances Control Act (TSCA), 15
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U.S.C. §2601 et seq., and the Asbestos Hazardous Emergency Response Act (AHERA), 15 U.S.C. §2601 note (West 1998), provide the regulatory basis for handling ACM in school buildings. Protection measures for asbestos workers, such as permissible exposure levels and monitoring requirements, are set forth in the Occupational Safety and Health Act, 29 C.F.R. Part 1910.1001.
Renovating or demolishing buildings with ACM can release asbestos fibers into the air. Asbestos fibers could be released due to disturbing or damaging various building materials, such as pipe and boiler insulation, acoustical ceilings, sprayed-on fireproofing, and other materials used for soundproofing or insulation. Only friable ACM, such as those listed above, are considered a health risk. Nonfriable ACM, such as transite piping, shingles, or floor tile, are not a health risk unless they are mechanically abraded in such a way as to produce dust.
Lead Paint Regulations In 1992, Congress enacted the Residential Lead-based Paint Hazard Reduction Act of 1992, 42 U.S.C. §4851 note (West 1995), Title X of the Housing and Community Development Act, Pub. L. 102-550. As part of Title X, Congress amended the 1971 Lead-based Paint Poisoning Prevention Act, 42 U.S.C. §4801 note (West 1995), and added a new Title IV to the Toxic Substance Control Act. Under this law, certain Federally owned housing constructed prior to 1960 must be inspected for lead-based paint, and lead-based paint hazards must be abated. Federally owned housing constructed after 1969 and before 1978 must be inspected for lead-based paint hazards, and the data must be disclosed to prospective purchasers, 42 U.S.C. §4822. The act also requires disclosure of lead-based paint hazard information. The law also requires disclosure of lead-based paint hazard information and requires Federal agencies to comply with Federal, state, interstate, and local requirements pertaining to lead-based paint. The California Health and Safety Code §429.16, establishes a program within the Department of Health to implement Title X. In addition, under the Childhood Lead Poisoning Prevention Act, Cal. Health and Safety Code §309.76(b), the Department of Health Services and the Department of Housing and Community Development are directed to adopt regulations concerning the abatement of lead paint in and on housing.
If work is performed on structures coated with lead-based paint, regulations for air exposure to workers under OSHA may be applicable.
In addition, according to DTSC, lead-contaminated residues generated during paint removal are potentially subject to regulation under RCRA if found to be characteristic hazardous waste. In response to a Navy request for a regulatory interpretation of how to properly classify and dispose of demolition debris coated with lead-based paint, the DTSC stated that if a waste stream generated during a renovation or demolition project potentially exhibits a hazardous waste characteristic, it should be representatively sampled and characterized to determine whether it is a hazardous waste (DTSC 1992). The determination depends in part on the physical state of the waste. If during the demolition or dismantling of the buildings, the paint is separated from the building material, then the paint waste should be evaluated independently from the building
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material to determine proper management. The letter also states that this interpretation is the same as the Federal interpretation of how building debris with lead-based paint should be managed.
The DOD policy for lead-based paint at BRAC properties is to manage it in a manner that protects human health and the environment and complies with all applicable Federal, state, and local laws and regulations governing lead-based paint hazards (USDOD 1994).
Polychlorinated Biphenyl Regulations Pursuant to the Toxic Substances Control Act, 15 U.S.C. §2605(e), U.S. EPA has adopted regulations, 40 C.F.R. Part 761, pertaining to using, marking, storing, and disposing of PCBs and certain PCB-containing equipment. PCBs are also potentially subject to regulation as a hazardous waste under state law, 22 C.C.R. §66261.24(a)(2). Restrictions on disposing of PCB wastes are set forth in 22 C.C.R. §66268.110.
The disposal of PCBs is regulated under TSCA, which banned the manufacture and distribution of PCBs, except for those used in enclosed systems. By definition, “PCB equipment” contains PCB concentrations of 500 ppm or more, whereas “PCB- contaminated equipment” contains PCB concentrations of 50 ppm or greater but less than 500 ppm. The U.S. EPA, under TSCA, regulates the removal and disposal of all sources of PCBs containing 50 ppm or more; the regulations are more stringent for PCB equipment than for PCB-contaminated equipment. Primary Federal regulations for controlling existing PCBs are found at 40 C.F.R. Part 761. California regulations are more stringent than their Federal equivalents and are found at 22 C.C.R. Within California, a waste fluid containing five ppm PCBs or more is regulated as hazardous.
Radon As part of the indoor radon abatement provisions in TSCA, the head of each Federal department or agency that owns a Federal building is required to conduct a study to determine the extent of radon contamination in such buildings, 15 U.S.C. §2669.
The screening phase of the Navy radon assessment and mitigation program began in 1989. The program consists of an initial screening phase to identify housing projects, school and day care facilities, barracks, hospitals, and brigs with elevated radon levels; a detailed assessment to collect samples from buildings in which elevated levels of radon gas are found during the initial screening; and a mitigation phase to perform corrective actions in buildings with elevated radon levels. Mitigation priority will be based on U.S. EPA guidelines as listed in Table E-48.
Table E-48 Radon Action Timeframes
Radon Level (pCi/L) Action Timeframe 0 to 4 No action required
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4 to 20 Within 5 years 20 to 200 Within 6 months Over 200 Within 3 weeks
Local Hazardous Materials and Wastes Laws
Local Fire Department Requirements The local fire department enforces the tank regulations set forth in the C.C.R. and the regulations pertaining to human and environmental protection in the Uniform Fire Code (1994 edition), particularly Articles 52 and 79, for constructing, installing, operating, and closing ASTs and USTs storing flammable and combustible materials. In addition, the local fire department enforces local and state regulations in the California Fire Code and California Fire Code Standards and any local ordinance pertaining to the fire code.
Hazardous Materials and Wastes at NSTI The following tables (Tables E-49 through E-53) summarize current installation restoration program sites, PA/SI sites requiring no further action, UST inventory, and AST inventory and status. Locations of installation restoration program sites are shown in Figures 3-25 through 3-27 in Section 3.12. Figure E-4 shows the location of hazardous waste generation site activities.
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Table E-49 Historical Operations Associated with Installation Restoration Program1 Sites
Type of Operation Potential Hazardous Substances Installation Restoration Sites Ammunition bunkers, debris and Di-nitro compounds, lead, PAHs, dioxins, 12, 30 trash disposal, waste incineration PCBs Boiler plant Mercuric nitrate, asbestos (debris) 5 Disposal areas Oil and grease, asbestos, paint 11 Wastewater treatment plant sludge 7, 8 Unidentified fluids 19 Drum storage area Hydraulic fluid, recycled oil, grease 20 Fire training activities Petroleum hydrocarbons, magnesium, fire 6 (1946 to 1992) extinguishing chemicals Forge/foundry Metals, organic solvents 9 Fuel storage/pipeline Petroleum hydrocarbons, lead, oil, 14, 15, 16, 17, 22, 25 (1943-present) waste oil 21 Miscellaneous storage/hydraulic PCBs 3 training school/paint shop Waste hydraulic oil 4 Pesticides, paints 7, 10 On-/off-ramps to Bay Bridge Lead paint 28, 29 Foundry/paint shop Paints, thinners, solvents 9, 10 Dry cleaning facility Petroleum hydrocarbons, solvents 24 Skeet range Lead, PAHs 27 Storm water outfalls Sediments contaminated from site operations 13 Transportation center Petroleum hydrocarbons, oils, grease, 20 solvents X-ray development (medical) Developer and fixer solutions 1
Source: U.S. Navy 1997.
1 The Installation Restoration Program, established by the Department of Defense to meet requirements of CERCLA of 1980 and SARA of 1986, identifies, assesses, and clean up or controls contamination from past hazardous waste disposal practices and hazardous materials spills
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Table E-50 Installation Restoration Program (IRP) Site Summary
Site Name Site Contaminants of Dates of Status/ Site Parcel Description Class Potential Concern Operation Recommendations IR 01 T92 Medical Clinic IRP Silver 1940s to late No further action. Site closed 1970s March 20, 2002. IR 03 T116 PCB Equipment Storage IRP PCB pre-1953 to No action. Site closed Area present March 20, 2002. IR 04a T66 Hydraulic Training School IRP - Petroleum 1970s to Navy submitted closure report Petroleum present with request for no further action in July 2003. IR 05 T57 Old Boiler Plant IRP VOC, petroleum 1940s to Presence of asbestos not 1968 confirmed; VOCs to be addressed as part of IR 24; petroleum will be addressed under petroleum program; site closed January 17, 2001. IR 06 T108, T109, Fire Training Area IRP – Petroleum 1946 to Petroleum to be addressed T112 Petroleum 1992 under petroleum program; recent dioxin data to be evaluated further under CERCLA. IR 07 T113 Pesticide Storage IRP Pesticides, herbicides 1943 to Navy has recommended no 1960s action for the site. DTSC postponing closure pending investigation of adjacent areas. IR 08 YB24 Army Point Sludge IRP Pesticides, metals 1968 to A final RI will be prepared; Disposal Area, YBI unknown Navy expects no further action required. Estimated closeout date is late 2004. IR 09 T7 Foundry IRP Petroleum, metals 1943 to A final RI will be prepared; 1987 Navy expects no further action required. Estimated closeout date is late 2004.
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Table E-50 Installation Restoration Program (IRP) Site Summary (continued)
Site Name Site Contaminants of Dates of Status/ Site Parcel Description Class Potential Concern Operation Recommendations IR 10 T114 Bus Painting Shop IRP Pesticides, petroleum, 1947 to A final RI will be prepared; SVOC 1955 Navy expects no further action required. Estimated closeout date is late 2004. IR 11 YB25 Yerba Buena Island IRP Metals, petroleum, 1935 to The Navy will prepare a RI and Landfill pesticides, VOC, SVOC present expects to evaluate the site in an FS. IR 12 T96, T101, Old Bunker Area IRP Petroleum, metals, SVOC 1940s to A removal action at the site is T102, T103, 1969 scheduled to be completed in T104 2004 and will be followed by a final RI. Estimated site closeout is mid-2006. IR 13 TI/YBI Storm Water Outfalls IRP Metals, SVOC, petroleum, 1936 to Final RI submitted in 2001. A (Offshore shorelines (TI/YBI) (Offshore pesticides present no action ROD is being OU) Sediments) prepared; closure expected late 2003. IR 14b T76 New Fuel Farm IRP – VOC, petroleum, metals 1943 to CAP finalized in June 2002. Petroleum present Air sparging and soil vapor extraction system has operated since 2002. Estimated closeout is late 2004. IR 15 T10, T16 Old Fuel Farm IRP – Petroleum, SVOC 1940s Shallow soil excavation Petroleum completed in August 2003; groundwater monitoring continuing with expected closeout in late 2004.
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Table E-50 Installation Restoration Program (IRP) Site Summary (continued)
Site Name Site Contaminants of Dates of Status/ Site Parcel Description Class Potential Concern Operation Recommendations IR 16 YB2 Clipper Cove Tank Farm IRP – Petroleum 1940s to Shallow soil excavation Petroleum 1960s completed in August 2001; Navy expects to submit closure report with request for no further action in November 2003. IR 17 T58 Tanks 103/104 IRP Metals, petroleum, SVOC 1943 to VOCs will be addressed as part present of IR 24; petroleum will be addressed under petroleum program; site closed January 17, 2001. IR 19b T67 Refuse Transfer Area IRP Petroleum 1953 to [See Site 04.] present IR 20 T97 Auto Hobby Shop/ IRP – Petroleum 1943 to Excavation of soil completed Transportation Center Petroleum present in August 2001; Navy expects to complete closure report with request for no further action in September 2003. IR 21 T8, T9 Vessel Waste Oil Recovery IRP Petroleum, VOC 1946 to Final RI in preparation; Navy present expects to evaluate in an FS. IR 22b T74 Navy Exchange Service IRP Petroleum 1946 to [See IR 14.] Station present IR 24 T56 Fifth Street Fuel Releases IRP VOC 1986 to Source area remediation pilot (Dry Cleaning Facility) 1987 study planned; estimated site closeout 2008. IR 25 T6 Seaplane Maintenance IRP – Petroleum 1943 to CAP finalized in 2002. Air Petroleum 1958 sparging with soil vapor extraction began operation in 2002. Estimated closeout in late 2005.
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Table E-50 Installation Restoration Program (IRP) Site Summary (continued)
Site Name Site Contaminants of Dates of Status/ Site Parcel Description Class Potential Concern Operation Recommendations IR 27 NA Clipper Cove Skeet Range IRP Lead, PAH 1979 to Final RI submitted in 2001. 1989 An FS is being prepared. Navy (Offshore expects closeout in mid-2005. OU) IR 28 YB1, West Side On/Off Ramps IRP Lead NA [See IR 08.] YB10 IR 29 YB17, East Side On/Off Ramps IRP Lead NA [See IR 08.] YB18, YB23, YB25 IR 30 ?? Building 502 IRP Lead, copper, dioxins Unknown Investigation ongoing.
Notes: a Sites 04 and 19 are being investigated together since they are adjacent and have similar contaminants. b Sites 14 and 22 are being investigated together since they are adjacent and have similar contaminants. CAP Corrective Action Plan IR Installation restoration IRP Installation Restoration Program NA Not applicable OU Operable unit PAH Polychlorinated aromatic hydrocarbon PCB Polychlorinated biphenyls SVOC Semivolatile organic compound TI Treasure Island VOC Volatile organic compound YBI Yerba Buena Island
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Table E-51 Sites Removed from the Installation Restoration Program (IRP)
Site Description Status Parcel Number
02 Radiation Training Area Removed from IRP following PA/SI; no further T100 action expected T101
18 Asbestos-covered Piping, YBI Removed from IRP following PA/SI; no further YB18 action expected
23 YBI Line Break Removed from IRP following PA/SI; no further YB20 action expected T56, T97, T6, 26 Underground Storage Tanks Removed from IRP following PA/SI; further YB7, YB11, investigation under the state petroleum program YB18, YB19, YB23, YB25
Source: U.S. Navy 1997a.
Notes: YBI Yerba Buena Island PA/SI Preliminary assessment/site inspection
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Table E-52 Underground Storage Tank Inventory
Tanka/ Map Year Capacity (Gal) Tank Reference Parcel Installed Material Substance Stored Action Case Status Removed/Closed in Place 2C/6 T6 1976 1,500 steel Diesel Fuel Removed 5/5/92 Closed 2/25/02 by RWQCB 225A/23 T97 Unknown 2,200 steel Diesel Fuel Removed 4/26/88 Closure report expected in September 2003 225B/23 T97 Unknown 1,000 steel Gasoline Removed 3/1/89 Closure report expected in September 2003 225C/23 T97 Unknown 5,000 steel Gasoline Removed 3/1/89 Closure report expected in September 2003 225D/23 T97 Unknown 1,000 steel Gasoline Removed 3/1/89 Closure report expected in September 2003 240A/14 T108 1940s 1,500 steel Diesel Fuel Removed 4/8/92 Continued groundwater monitoring 240B/13 T108 1940s 1,500 steel Diesel Fuel Removed 4/8/92 Continued groundwater monitoring 330A/15 T74 Unknown 550 steel Diesel Fuel Removed 4/17/92 Continued groundwater monitoring 330B/15 T74 Unknown 550 steel Diesel Fuel Removed 4/17/92 Continued groundwater monitoring 330E/15 T74 Unknown 550 steel Diesel Fuel Removed 4/17/92 Continued groundwater monitoring 330F/15 T74 Unknown 550 steel Diesel Fuel Removed 4/17/92 Continued groundwater monitoring 2A/5 T6 Unknown 70 steel Kerosene Removed 5/11/92 Closed 7/22/96 by RWQCB 2D/7 T6 1976 550 steel Diesel Fuel Removed 5/5/92 Closed 7/22/96 by RWQCB 330C/16 T74 Unknown 250 steel Waste Oil Removed 4/23/92 Closed 7/22/96 by RWQCB 330D/17 T76 Unknown 10,000 steel Diesel Fuel Removed 4/29/92 Closed 7/22/96 by RWQCB Source: U.S. Navy 1997a.
Notes: a The tank number includes the building number where each tank is located b Tank numbers assigned by ERM-West, Inc.
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Table E-52 Underground Storage Tank Inventory (continued)
Tanka/ Parcel Year Capacity (Gal) Tank Substance Stored Action Case Status Map Installed Material Reference 85/26 T76 Unknown 1,000 Waste Oil Removed 12/1/94 Continued groundwater monitoring 248Ab/24 T108 Unknown 1,500 Diesel Fuel Removed 12/1/94 Continued groundwater monitoring 248Bb/24 T108 Unknown 1,500 Diesel Fuel Removed 12/1/94 Continued groundwater monitoring 257b/27 T92 Unknown 550 unknown Diesel Removed 12/1/94 Closed 10/03/97 by RWQCB 1A/1 T2 Unknown 3,000 steel Diesel Fuel Removed 7/2/92 Closed 2/25/02 by RWQCB 1E/3 T2 1943 900 steel Diesel Fuel Removed 6/3/92 Closed 2/25/02 by RWQCB 180C/10 T6 1930s 4,000 steel Waste Oil Removed 5/15/92 Continued groundwater monitoring 180D/29 T5 Unknown 5,000 unknown Gasoline Removed 1996 Closed 10/03/97 by RWQCB 180E/29 T5 Unknown 5,000 unknown Gasoline Removed 1996 Closed 10/03/97 by RWQCB 201/11 T84 Unknown 2,000 steel Diesel Fuel Closed in place 9/1/92 Site closure recommended in fuel line CAP 227/12 T31 1940s 1,000 steel Diesel Fuel Removed 7/10/92 Closure report expected in 2003 Source: U.S. Navy 1997a. Notes: a The tank number includes the building number where each tank is located b Tank numbers assigned by ERM-West, Inc.
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Table E-52 Underground Storage Tank Inventory (continued)
a Tank / Year Capacity (Gal) Tank Case Status Map Parcel Installed Material Substance Stored Action Reference 270/25 YB23 Unknown 550 steel Diesel Fuel Removed 3/22/90 Closure recommended in fuel line CAP 368A/18 T38 Unknown 550 steel Diesel Fuel Removed 7/15/92 Closed 2/25/02 by RWQCB 368B/18 T38 1940s 1,000 steel Diesel Fuel Removed 7/15/92 Closure recommended in July 2003 1b/31 YB19 Unknown 260 steel Diesel Abandoned in place Closed 7/23/02 by RWQCB 2b/31 YB19 Unknown 260 steel Diesel Abandoned in place Closed 7/23/02 by RWQCB 3b/31 YB19 Unknown 500 steel Diesel Abandoned in place Closed 7/23/02 by RWQCB 4b/31 YB19 Unknown 260 steel Diesel Abandoned in place Closed 7/23/02 by RWQCB 5b/31 YB19 Unknown 260 steel Diesel Abandoned in place Closed 7/23/02 by RWQCB 6b/31 YB19 Unknown 260 steel Diesel Abandoned in place Closed 7/23/02 by RWQCB 7b/31 YB19 Unknown 260 steel Diesel Abandoned in place Closed 7/23/02 by RWQCB 9b/35 YB19 Unknown 250 steel Diesel Abandoned in place Closed 7/23/02 by RWQCB Source: U.S. Navy 1997a. Notes: a The tank number includes the building number where each tank is located b Tank numbers assigned by ERM-West, Inc.
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Table E-52 Underground Storage Tank Inventory (continued)
a Tank / Year Capacity (Gal) Tank Case Status Map Parcel Installed Material Substance Stored Action Reference 10b/32 YB19 Unknown 250 steel Diesel Abandoned in place Closed 7/23/02 by RWQCB 62b/36 YB13 Unknown 250 unknown Diesel Abandoned in place Closed 7/23/02 by RWQCB 240b/33 YB16 Unknown 1,000 Diesel Abandoned in place Closed 7/23/02 by RWQCB 8b/34 YB19 Unknown 250 steel Fuel Oil Home heating tank Closed 10/03/97 by RWQCB removed 1/18/95 234/30 T56 Unknown 600 steel Diesel Removed 7/9/97 Closure recommended in fuel line CAP 1B/2 T2 Unknown 1,000 steel Diesel Removed 6/12/92 Closed 7/22/96 by RWQCB 1C/2 T2 Unknown 500 steel Diesel Removed 6/12/92 Closed 7/22/96 by RWQCB 1D/2 T2 Unknown 500 steel Diesel Removed 6/12/92 Closed 7/22/96 by RWQCB 1F/4 T2 1976 100 steel Diesel Removed 6/3/92 Closed 7/22/96 by RWQCB 57/22 YB19 Unknown 500 unknown Diesel Removed 4/1/89 Closure recommended in UST summary report 111/20 YB11 Unknown 37,500 concrete Diesel Closed in place 9/10/92 Closed 7/22/96 by RWQCB Source: U.S. Navy 1997a. Notes: a The tank number includes the building number where each tank is located b Tank numbers assigned by ERM-West, Inc.
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Table E-52 Underground Storage Tank Inventory (continued)
a Tank / Year Capacity (Gal) Tank Case Status Map Parcel Installed Material Substance Stored Action Reference 169/21 YB20 1940 10,000 steel Diesel Closed in place 8/13/92 Closed 7/22/96 by RWQCB 180A/8 T5 1976 2,000 steel Diesel Removed 5/28/92 Closed 7/22/96 by RWQCB 180B/9 T6 Unknown 2,000 concrete Diesel Removed 5/21/92 Closed 7/22/96 by RWQCB 230/28 T56 Unknown 1,000 steel Fuel Oil Removed 7/25/90 Closed 10/03/97 by RWQCB 248Cb T108 Unknown 1,000 steel Waste Oil Removed 5/16/02 Continued groundwater monitoring 248Db T108 Unknown 1,000 steel Waste Oil Removed 10/7/02 Continued groundwater monitoring 66 YB11 Unknown 2,000 steel Diesel Closed in place 10/01/01 Closed 10/23/02 by RWQCB 204A YB25 Unknown 5,000 steel Gasoline Removal pending Pending 204B YB25 Unknown 5,000 steel Gasoline Removal pending Pending 469 T2 Unknown 2,000 steel Diesel Removed 12/21/99 Closed 7/7/00 by CCSF BERM Source: U.S. Navy 1997a; updated from UST Summary Report (Navy 2003).
Notes: a The tank number includes the building number where each tank is located b Tank numbers assigned by ERM-West, Inc.
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Table E-53 Aboveground Storage Tank Inventory and Status
Parcel/Map Location/Identification (Quantity) Size and Contents Status Reference T76/C Tanks 6A through 6G, (7) 10,000-gallons unleaded gasoline Existing; any release Building 85 tanks addressed under Site 14 T76 Tank 672 3,000-gallon gasoline/diesel tank Active T68/Q 2 tanks at new fire fighting (2) 100,000-gallon neutralization Active school tanks T68/Q 3 tanks at new fire fighting (3) 30,000-gallon propane tanks Active school T112/K Tank 415a at WWTP 300-gallon diesel tank Existing T91/O Building 540a, auxiliary 15,000-gallon diesel tank Drained and cleaned; no boiler plant and fuel further action storage recommended T112/P Building 550a, auxiliary 8,000-gallon diesel tank Drained and cleaned; no boiler plant and fuel further action storage recommended T6/M Building 520a, auxiliary 15,000-gallon diesel tank Drained and cleaned; no boiler plant and fuel further action storage recommended T15/N Tanks 530Aa through 6,000-gallon sulfuric acid tank Drained and cleaned; no 530Da, Building 530, main 6,000-gallon liquid caustic tank further action boiler plant and fuel 15,000-gallon neutralizer tank recommended storage 6,000-gallon diesel tank YB20/T Tank 169 26,670-gallon fuel oil tank Existing, abandoned YB20/T Tank 170 26,670-gallon fuel oil tank Existing, abandoned T58/H Tanks 103 and 104, (2) 200,000-gallon diesel Abandoned, no further Building 107 action recommended Source: U.S. Navy 1997a.
Notes: a Tank ID number assigned by ERM-West, Inc. b These six tanks are listed twice in Table E-46 because they were moved from one location to another at NSTI
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Table E-53 Aboveground Storage Tank Inventory and Status (continued)
Parcel/Map Location/Identification (Quantity) Size and Contents Status Reference T10/B Tanks 4Mb and 5Mb (2) 210,000-gallon diesel tanks Moved; any release moved to T76 in the 1940s addressed under Site 15 T10/D Tank 6Mb (4) 10,000-gallon gasoline tanks Moved; any release moved to T76 in the 1940s addressed under Site 15 T76/A Tanks 4 and 5, Building 85 (2) 210,000-gallon gasoline/diesel Removed; any release tanks addressed under Site 14 T76/L Tank 456, Building 85 50,000-gallon gasoline tank Removed; any release addressed under Site 14 T9/F Tanks 12Aa through 12Ea (5) 2,000-gallon bilgewater tanks Removed, any release at Pier 11 (IR 21) addressed under IR 21 T42/I Tanks 133 and 134 (2) 10,000-gallon fuel oil tanks Removed; no further action recommended T114/J Tanks 335Aa through (3) unknown volume tanks Removed, any release 335Ca containing waste antifreeze, waste addressed under IR 10 solvent, and waste oil T12/E Tank 7 600-gallon fuel oil tank Removed; no further action recommended YB14/S Tank 117 37,500-gallon black oil tank Removed YB2/U Tank 181 (10) 18,500-gallon gasoline tanks Removed; any release addressed under Site 16 YB20/V Tank 214a 10,000-gallon diesel fuel tank Removed; any release to be addressed under adjacent pipeline site T18/G Tank 34 Unknown volume fuel oil tank Removed; any release addressed under Site 15 T18 Bldg. 34 50-gallon diesel tank for emergency Removed; any release generator addressed under Site 15 T78 Brig (Bldg. 670) Unknown volume diesel tank for Existing emergency generator T92 Bldg. 257 (TI) 50-gallon diesel tank for emergency Existing generator YB24 Bldg. 213 (YBI) Unknown volume tank for Removed emergency generator YB8 Bldg. 107 (YBI) Unknown volume tank for Existing emergency generator YB11/R Tank 66a Unknown volume fuel oil tank Removed Source: U.S. Navy 1997a.
Notes: a Tank ID number assigned by ERM-West, Inc. b These six tanks are listed twice in Table E-46 because they were moved from one location to another at NSTI
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1 2
7 8 9
10
11 12
Generation Sites Treasure Island 1 NTIC Boiler/Feedwater School 2 PWC Point/Solvent Storage 3 NTIC Hazardous Waste Accumulation Area 4 Fuel Storage Area 5 NTIC Fire Fighting School 6 Hazardous Waste Accumulation Area 7 Main Boiler Plant 8 Port Operation 9 Ship Intermediate Maintenance Activity 10 Mobile Inshore Undersea Warfare Unit 11 PWC Transportation 12 Auto Hobby Shop
Source: U.S. Navy, 1995c Legend: Hazardous Waste Generation 1 Location of Generation Areas Site Activities Areas Excluded from Transfer Naval Station Treasure Island, California Transfer and Reuse of Naval Station Treasure Island Figure E-4
8/15/03 vsa ...\280665675 Treasure Island\FEIR aug03\E-4_haz waste.cdr