AFFECTED ENVIRONMENT

This chapter describes the physical and socioeconomic setting of the proposed SFOBB East Span Seismic Safety Project and provides the baseline used to evaluate potential impacts. The project area encompasses land between the western portal of the Yerba Buena Tunnel and the SFOBB Toll Plaza on the Oakland Touchdown area (Figure 2-2 in Appendix A). The project area includes additional land on Yerba Buena Island (YBI) to allow for construction activity related to the project. In the Bay, the project area includes sufficient area to accommodate all of the proposed alignments and allow for construction-related activity as described in Chapter 2.

In some locations, the project area extends beyond the physical limits described above, where there is potential for environmental impacts to occur beyond those limits. Project area boundaries are described within individual sections of this chapter where they differ from the boundaries shown on Figure 2-2 in Appendix A. Where the term "Region" is used in this chapter, it refers to the entire nine-county Bay Area and the I-80 Transbay corridor.

The following technical studies containing detailed information were conducted to prepare the environmental impact statement for the SFOBB East Span Project.

"Air Quality Study Memorandum," March 1998

"Bicycle and Pedestrian Access Report," September 1998

"Biological Assessment," September 1998

"Community Impact Assessment," September 1998

"Extended Study Report, Archaeological Resources," June 1998

"Finding of Adverse Effect: Built Environment," July 1998

"Finding of Effect for Archaeological Resources," July 1998

"Hazardous Wastes Assessment," September 1998

"Historic Property Survey Report," July 1998

"Location Hydraulic Study," September 1998

"Natural Environment Study," September 1998

"Noise and Vibration Study," September 1998

"Draft Relocation Impact Report," September 1998

"Traffic Circulation, Access and Parking Assessment," September 1998

"Visual Impact Assessment," September 1998

These studies are available for review at the locations listed in the Preface of this document. (Note: because the Extended Study Report, Archaeological Resources and Finding Of Effect for Archaeological Resources contain confidential information about the locations of archaeological resources, they are not available for review.)

This section describes existing land uses in the project area and identifies and analyzes existing and projected social conditions in the project area so that the economic, demographic, service and fiscal impacts of the East Span Project can be evaluated.

Socioeconomic and demographic data are presented for the U.S. Census Tracts that are within the project area and that could be potentially affected by the East Span Project. Census Tract 4017 in Oakland includes the Oakland Touchdown area; Census Tract 179.02 includes YBI and Treasure Island (TI). To provide context for census tract data, they are compared to data for the cities of Oakland and San Francisco (YBI and TI are part of the City of San Francisco). Because the SFOBB is a regional facility, some demographic data are also presented at the county level. Figure 3-1 in Appendix A shows the Oakland and YBI/TI census tract locations in the project area.

U.S. Navy. The Navy owns 47 hectares (115 acres) of land north of the East Span on YBI, as well as a small area to the south of the span at the eastern tip of the island (see Figure 3-2 in Appendix A). The Navy also owns the 163-hectare (403-acre) TI and the causeway connecting the two islands. These properties form the U.S. Navy Naval Station Treasure Island, which has operated since the 1940s. The base is now closed and as part of the Base Reuse and Closure (BRAC) process being implemented by the Department of Defense, the U.S. Navy is in the process of transferring these properties to the City and County of San Francisco (CCSF).

On YBI, U.S. Navy property encompasses all land to the north of the existing span and an additional portion south of the span lying roughly east of where Macalla Road passes underneath the span. (See Figure 3-2 in Appendix A showing property ownership on YBI.) The land uses on U.S. Navy property are primarily residential. Quarters 1 through 7 were built in the early 1900s as officers’ quarters. Several of the buildings on YBI have been listed or are eligible for listing on the National Register of Historic Places. These properties are described in Section 3.10. With the exception of caretakers, the housing is now vacant.

In addition to these single-family residences, two apartment buildings, consisting of a total of 100 units, are located on the west edge of Macalla Road as it ascends from the TI causeway towards the westbound entrance ramp to the SFOBB (shown on Figure 2-16-1 in Appendix A). The units are currently vacant; however, 90 units are designated for use as residences by the Treasure Island Homeless Development Initiative (TIHDI), a CCSF program to rehabilitate housing for the homeless.

The infrastructure buildings on YBI consist of a vacant fire station (Building 213), located below Quarters 1 through 7 on the west side of Macalla Road, and a former torpedo house and mine assembly building (Building 262) located at the easternmost tip of the island.

On TI, approximately 30 military buildings are in the process of being demolished or are identified for future demolition. The remaining land uses include residential, educational, administrative/industrial buildings, recreational facilities, and infrastructure.

U.S. Coast Guard. The remaining property on YBI is owned by the USCG. It encompasses about 13 hectares (32 acres). The focus of USCG operations is a narrow half-mile strip of land at the eastern edge of the island. From this location, the USCG performs a variety of functions, including 24-hour search and rescue, law enforcement, and buoy repair and maintenance. Vessel traffic service is performed from a large communications tower at the top of YBI. Because of its search and rescue and law enforcement responsibilities, it is essential that the USCG be located at a waterfront site where boats can quickly accelerate to full speed. It is also very important for the unit to be centrally located in order to maintain adequate response times to emergency calls in the central and southern Bay.

Residential facilities are provided for about 100 USCG personnel who live on-site. The Bachelors Enlisted Quarters (BEQ) encompasses 60 rooms in a group of four buildings. There are also five single-family homes on the island for the families of admirals, captains, and commanders.

USCG administrative facilities on YBI consist of the following buildings:

• Building 40 - located at the entrance of the UCSG facility. It is a two-story building used for reserve training and USCG auxiliarist functions;

• Building 75 - vacant;

• Building 270 - vacant;

• Station and group command offices located adjacent to the BEQ;

• A group of two- and three-story buildings located south of the buoy maintenance and repair area; and

• Vessel Traffic Service (VTS) located at the top of the YBI hill on the main deck of a prefabricated metal building.

Industrial buildings are located at the southern end of the island. Maintenance, repair, and painting of buoys for the entire Bay Area are done in this area.

Recreational facilities on the island consist of an outdoor tennis court located next to Building 75.

The SFOBB touches down in the City of Oakland on a spit of land north of Port of Oakland facilities and west of the I-80/I-880/I-580 Interchange (distribution structure). The land in this area is owned by a number of public agencies, including the City of Oakland, the State of California, and the U.S. Army. (Refer to Figure 3-3 in Appendix A.)

The State of California owns the right-of-way where the current I-80/SFOBB alignment is located. This property extends approximately 50 meters (164 feet) from the outer boundaries of the westbound and eastbound I-80 alignments and includes a median area between the two alignments.

The SFOBB Toll Plaza is located approximately 200 meters (655 feet) west of the distribution structure and extends across the westbound I-80 alignment. Toll plaza administrative facilities, maintenance buildings, a tow-truck operations base, and the SFOBB Traffic Operations Center are located south of the toll plaza within the median area. Toll plaza workers also park in this area.

A Caltrans maintenance road extends the length of the project area within the Oakland Touchdown area on the south side of I-80. The roadway continues under the SFOBB and provides access to the north side of the bridge. Burma Road is also located on the south side of the touchdown. It extends from Maritime Street to the west end of the touchdown and is roughly parallel to the maintenance road. Burma Road was constructed by the U.S. Army and is now used by the Port of Oakland under a lease agreement. This roadway is blocked to public vehicular access about 1.6 kilometer (1 mile) from the west end of the touchdown. At this point, traffic is diverted onto the Caltrans maintenance road.

Various Caltrans storage, repair, and maintenance facilities are located between the Caltrans maintenance road and Burma Road, at the west end of the touchdown. The Caltrans Bay Bridge Substation and the Key Pier Substation, which were used during the era when the bridge carried trains, are also located in this area and are currently used for Caltrans maintenance activities. An East Bay Municipal Utility District (EBMUD) final dechlorination treatment station and outfall are also located in this area. The outfall extends 5 kilometers (3.1 miles) into the Bay.

An undeveloped open storage area for Caltrans construction materials and maintenance activities extends for about 1.6 kilometers (1 mile) between the Caltrans maintenance road and Burma Road. This property is owned by the City of Oakland. A billboard owned by the Port of Oakland is located within this area. It is designated for community non-profit organizations and Oakland Airport-related media.

Four additional Caltrans buildings are located south of the SFOBB Toll Plaza and the maintenance road. The buildings are used for storage, maintenance, and repair of materials associated with general maintenance of the bridge.

South of the Oakland Touchdown Area. The Port of Oakland extends from the south side of the Oakland Touchdown area and continues south along the San Francisco Bay shoreline to the Inner Harbor between the cities of Oakland and Alameda. The Port is a highly developed area of industrial, maritime, transportation, and commercial activities. Its deep-water berths and container cranes are supported by a network of warehouses, roadways connecting to freeways, and intermodal railyards. The Port also operates numerous non-maritime-related activities along its 30 kilometers (19 miles) of shoreline, including commercial real estate, two airports, park refuges, and industrial parks.

The U.S. Army owns the property on the south side of the Oakland Touchdown area, including Burma Road. Army property extends from near the end of the touchdown eastward and includes land on the east side of Maritime Street. Until recently, the Oakland Army Base Military Traffic Management Command Center was operated within this property. Within this property, the Port of Oakland (Port) operates the Bay Bridge public terminal on the shoreline south of the toll plaza. The terminal is currently undergoing renovation to allow it to service container cargo traffic. The Army notified the Port in July 1998 that it no longer requires this property, and the Port now has four months to officially respond with an offer to purchase the property.

A container freight storage area is located between Burma Road and the Caltrans maintenance road, south of the toll plaza. AMNAV, a private shipping company, is located on the south side of Burma Road and uses Pier 8 (adjacent to the Bay Bridge public terminal) for tug services. Burma Road continues eastward where it intersects with West Grand Avenue. West Grand Avenue provides access to and from I-80. A large shipping container storage area is located on property west of this intersection.

North Side of the Oakland Touchdown Area. The strip of land on the north side of the East Span is designated as a Resource Conservation Area in the City of Oakland General Plan. The first 50 meters (164 feet) of land to the north of the bridge is owned by Caltrans; beyond this boundary, the land is owned by the City of Oakland. The Resource Conservation Area consists of tidal lowlands and mudflats that flood each day with the incoming tide. The Resource Conservation Area continues nearly 3.2 kilometers (2 miles) eastward from the touchdown before turning northward towards Emeryville.

The first 1.6-kilometer (1-mile) stretch of shoreline in Emeryville, known as the Emeryville Crescent, provides sensitive habitat for a variety of wildlife and special status species. The study area for the SFOBB seismic safety project ends at Radio Point Beach, roughly 1,000 meters (3,300 feet) from the western end of the touchdown and approximately 2.4 kilometers (1.5 miles) from the Emeryville Crescent.

Yerba Buena Island. The Draft Naval Station Treasure Island Reuse Plan ("Draft TI Reuse Plan") has been developed for the Office of Military Base Conversion, CCSF, and the San Francisco Redevelopment Agency in anticipation of the closure of Naval Station Treasure Island. According to the Draft TI Reuse Plan, development on YBI may include up to 300 units of attached and detached single-family residential units as well as live/work units and artists cottages. It would also include "visitor-oriented" facilities such as lodging and conference facilities. A majority of the land will remain in open space as the island’s steep terrain limits the intensity of development.

Development intended for the southern half of YBI, owned by the USCG, will improve base facilities and amenities, including new residential and light industrial uses. USCG does not currently have a master plan in place.

Treasure Island. Due to present underutilization and revenue-producing potential, TI is expected to be subject to intense development over the next 20 years. The CCSF is currently preparing an EIR for TI and YBI to evaluate environmental impacts of proposed development on the property to be conveyed to the CCSF from the U.S. Navy. A market assessment in the Draft TI Reuse Plan concluded that "publicly oriented recreation and entertainment attractions" have been identified as particularly well-suited for the site.

In addition to these types of uses, the Draft TI Reuse Plan also considers land uses that would accommodate community facilities, major utilities, film production studios, and opportunities for non-profit institutions. New housing and shoreline open space on TI are also allowable uses.

The Port of Oakland, Caltrans, and the East Bay Regional Park District (EBRPD) all have plans for development on the Oakland Touchdown area.

Port of Oakland. The San Francisco Bay Area Seaport Plan (Seaport Plan) identifies long-range plans by the Port of Oakland to expand its operations. The plan, prepared by BCDC and the MTC in 1996 and amended in 1997, calls for expansion of Port facilities over the next 20 years. Before port expansion can proceed using Bay fill, marine terminal projects must meet the criteria specified in Section 66605(c) and (d) of the McAteer-Petris Act, administered by BCDC. Expansion plans are designed to meet the projected 2020 cargo volumes estimated in the Seaport Plan. A Record of Decision (ROD) has been signed to proceed with development of the Port of Oakland’s Joint Intermodal Terminal (JIT).

To meet anticipated demand, the Port is seeking acquisition of 175 hectares (433 acres) of land from the Department of Defense (DOD). There are currently three avenues available to the Port in seeking a conveyance of this property. The Base Reuse and Closure (BRAC) process would convey the bulk of the land to the Port, but would reserve a 6.5-hectare (16-acre) portion at the western end of the Oakland Touchdown area for development by the EBRPD as a public park. A second option is to utilize an agreement between the Port and the Army dated 1949, which states that all lands west of Maritime Street shall be reverted to the Port if the Army notifies the Port that it no longer needs the land and if the Port enters into an agreement to purchase the lands at fair market value. The Army notified the Port in July 1998 that it no longer requires this property, and the Port now has four months to officially respond. A third option is to allow the land to be conveyed to the California State Lands Commission, which is responsible for maintaining the shoreline for the Public Trust. Under the Burton Act, this land is designated to be developed for Port purposes.

Caltrans/Bay Conservation and Development Commission (BCDC) Permit 11-93. As part of the Cypress Replacement Project/I-880 Flyover, Caltrans is required to provide Bay access at the Oakland Touchdown area. These access areas, or overlooks, are required by BCDC to maximize public access to the western end of the Oakland Touchdown area. However, EBRPD and the Port have plans to develop a much larger public park in the same area (see below). BCDC also requires, as a permit condition, a bikeway to be located adjacent to eastbound I-80. A conceptual bikeway alignment would follow the Caltrans maintenance road and provide access to proposed scenic overlooks. If location of the conceptual overlooks and bikeway alignments prove infeasible, permit conditions require Caltrans payment of a fee in lieu of constructing the improvements.

Caltrans has interests in using a portion of the Oakland Touchdown area for maintenance access to the SFOBB.

East Bay Regional Parks District (EBRPD). The EBRPD Advanced Planning Division is reviewing lands at the Oakland Touchdown area for potential acquisition and stewardship to develop an approximately 6.5-hectare (16-acre) public park to the south of the existing alignment. The Port of Oakland has committed to work with EBRPD in the creation of this park. If the Port were to expand its facility in the future, the Port proposes to relocate the park to the new shoreline once the placement of fill is complete.

The seven public agencies with jurisdiction over or interest in land use in the project area are the U.S. Navy, CCSF, BCDC, City of Oakland, Port of Oakland, USCG, and the EBRPD. This section reviews their existing policies and planning documents and identifies the guiding principles that relate to the proposed project.

U.S. Navy. The U.S. Navy is in the process of transferring the property known as Naval Station Treasure Island to the CCSF as part of the BRAC process. CCSF is currently operating under a caretaker agreement to facilitate a transition of management and maintenance of the property. The transfer of property will be completed over the next few years.

The City and County of San Francisco. The CCSF is projected to acquire ownership of TI and portions of YBI in the year 2003. A caretaker agreement between CCSF and the Navy is currently in place. The caretaker agreement defines levels of maintenance on TI during the transfer and conveyance process and defines funding and service responsibilities. The Draft TI Reuse Plan serves as the guide for future activities on TI and CCSF-owned portions of YBI.

The Guiding Policies for Land Use identified in the Draft TI Reuse Plan are as follows:

• Provide for new civilian uses that contribute to the economic well-being of the islands and San Francisco by generating jobs and revenues;

• Limit uses to those that can be accommodated primarily by ferry; and

• Allow flexibility to respond to market opportunities and changes in technology over time. Attract initial uses and users that facilitate or are compatible with the development of desired long-term uses.

The Draft TI Reuse Plan identifies the following broad categories of uses to promote the above-stated policies: Publicly Oriented Uses, Open Space and Recreation, Institutional Uses, and Residential Community.

The City of Oakland. Envision Oakland is the title of the 1997 Draft Land Use and Transportation Element of the Oakland General Plan. This document contains policies and actions for implementation of the community’s vision for Oakland. Envision Oakland includes land use designations for the Oakland Touchdown area and adjacent areas.

• The land immediately adjacent to the north of the existing touchdown is designated as Resource Conservation Area;

• The land immediately adjacent to and south of the existing touchdown is designated as General Industrial/Transportation; and

• An unspecified site within the land to be released by the Army as part of the Oakland Army Base Reuse and Closure Process, located on the southern half of the Oakland Touchdown area, has been proposed as Park and Open Space.

Transportation policies found in Envision Oakland reflect the City’s priority to maintain exceptional access to and through Oakland for the wide variety of transportation modes that have historically existed within the city.

The Port of Oakland. The Port of Oakland is beginning development of a reuse plan to guide port expansion in the Oakland Army Base area. That reuse plan will include policies to guide development within the project area. The Port has plans for expansion that include utilizing some of the area south of the Oakland Touchdown area as a staging and storage area for shipping containers.

U.S. Coast Guard. Although the USCG regularly prepares master plans for its various facilities, the USCG facility on YBI does not currently have a master plan in place. Finalization of a draft master plan prepared in September 1995 is pending the results of the TI BRAC process, and the final design for the East Span Project. Once the final design for the East Span Project have been chosen, the amount of land required from the USCG property can be determined. The completed master plan for the USCG properties will be based upon land remaining available for development.

East Bay Regional Park District. The EBRPD Master Plan (December 17, 1996) does not discuss specific areas within the East Bay. Instead, it presents the policies and procedures to be used for acquisition and stewardship of any lands to be placed under EBRPD management. As noted in Section 3.1.2, the lands at the west end of the Oakland Touchdown area are currently being reviewed by the EBRPD Advanced Planning Division for potential acquisition and stewardship. The EBRPD has gone on record with BCDC stating its intention to develop a park on the Oakland Touchdown area.

The San Francisco Bay Conservation and Development Commission. The San Francisco Bay Conservation and Development Commission (BCDC) prepared the San Francisco Bay Plan (adopted 1969, amended 1987) which outlines policies to guide future uses of the Bay and shoreline and the maps that apply these policies to the present Bay and shoreline.

The Bay Plan makes the following recommendations which are applicable to the current project:

• Filling in the Bay should only be allowed for purposes that provide substantial public benefits and only if there is no reasonable alternative.

• Any route over the Bay will be subject to: (a) placement on structure, not fill; (b) provide navigational clearance; (c) ancillary facilities should avoid new fill if possible; and (d) new structures should consider mass transit facilities (Transportation Policy 4).

• Sedimentation resulting from dredging projects should be limited by: (a) placement on dry land; (b) placement as fill in approved fill projects; (c) barging or piping to suitable disposal sites in the ocean; or (d) if no other alternative is feasible, dumping in designated parts of the Bay (Dredging Policy 1).

• Maximum feasible public access to the waterfront should be provided and permanently guaranteed.

• Public access should be provided to some natural areas to permit study and enjoyment.

• Access to the waterfront should be provided via walkways and trails.

• Portions of YBI released from use by USCG and Navy should be redeveloped for recreational use.

• If and when the Oakland Army Base and Naval Supply Center in the City of Oakland are not needed by the military, the area should be developed for port and related industrial uses.

• New or remodeled bridges should be designed to permit maximum viewing of the Bay and its surroundings by motorists and pedestrians. Guard rails and bridge supports should be designed with views in mind.

• Towers, bridges, or other structures should be designed as landmarks. Such landmarks should be low enough to assure continued visual dominance of the hills around the Bay.

BCDC has also issued Permit No. 11-93 to Caltrans for work on the Cypress Replacement Project. This permit, in response to BCDC’s policies regarding maximum feasible public access, requires Caltrans, as mitigation, to create a public access pedestrian/bicycle pathway system connecting the cities of Emeryville and Oakland with the Touchdown area. These public access improvements are described in concept in the permit granted by BCDC for that project. The permit stipulates that these public access improvements are conditioned on the feasibility of construction; should construction prove infeasible, the permit provides that financial compensation would be accepted in lieu of constructing these improvements.

Demographic information for the two census tracts within the project study area is presented below. Detailed demographic information for the nine-county Bay Area region can be found within the Community Impact Assessment technical report.

Both YBI and TI are owned by the U.S. Government. With the exception of barracks on TI, most of the housing stock consists of apartments. Most of the units are currently vacant.

The housing stock in Census Tract 4017, which includes the Oakland Touchdown area, was 62 percent renter-occupied according to the 1990 Census. Average household size in this census tract was 2.8 people per household. The closest housing to the Oakland Touchdown is situated approximately 2.4 kilometers (1.5 miles) away.

Within the YBI/TI census tract, based on 1990 Census data, 35 percent of the population was under the age of 16 and 0.2 percent was aged 65 or older, which reflects the use of housing for military personnel and their families. In 1990, Oakland had 22 percent of its population aged under 16 and 12 percent of its population was 65 or older.

The ethnic composition of YBI/TI, according to the 1990 Census, consists of 65 percent Caucasian, 16 percent African-American, and 15 percent Asian. Data for Census Tract 4017, which contains the West Oakland neighborhoods closest to the SFOBB, indicates that 63 percent of the population is African-American. The Caucasian and Asian populations of Census Tract 4017 comprise 16 and seven percent of the area, respectively.

The characteristics of the current TI and YBI labor force (after base closure) have not been documented. Census data for 1990 indicate that 72 percent of those employed at that time on TI and YBI were in the armed services. It was assumed that the remaining 28 percent is the civilian labor force employed at the base.

Almost 30 percent of the labor force in West Oakland was employed in craft or laborer positions. According to a 1995 survey, there were approximately 488 businesses/employers in West Oakland. At the time of the survey, the largest employer in the West Oakland community was the United States Postal Service. One of the larger employers, the Oakland Army Base is scheduled for closure in 2001, and a reuse plan for the site is currently being developed. The West Oakland Census Tract 4017 unemployment rate in 1990 was 24 percent.

In 1990, the YBI/TI area had five percent of its population living at or below the poverty line. This relatively low figure is primarily due to military pay rates. With average household and per capita incomes approximately 50 percent lower than values for the Oakland as a whole, Census Tract 4017 in West Oakland exhibited characteristics of a low-income community in 1990. The proportion of the neighborhood living below the poverty level was 21 percent.

Primary sources of the CCSF General Fund are various taxes and state subventions. Approximately 22 percent of the 1996-97 General Fund came from property taxes, ten percent from business taxes, and seven percent from sales taxes. The remainder comes from other taxes such as motor vehicle and utility taxes, hotel taxes, traffic fines, departmental fees, and major federal and state subventions for social service and healthcare programs.

According to the Mayor's 1996-97 budget, 35 percent of the General Fund was allocated to public safety activities, 22 percent was for human welfare and neighborhood development, 19 percent went to community health, and the remainder was allocated to a variety of programs and activities, including general administration, culture and recreation, public works, transportation, and commerce.

CCSF recently developed plans for the redevelopment of TI and portions of YBI currently owned by the Navy. A large investment in infrastructure is required to support redevelopment, and CCSF has not established a way to fund the front-end investment required to encourage private investment on the islands.

The city share of property tax which goes into the Oakland General Fund is less than 22 percent. The largest share of property tax collected in Oakland goes to Alameda County, special districts, and school districts. In the 1996-97 budget, 59 percent of the General Fund was allocated to police and fire activities, nine percent went to public works and neighborhood development, and ten percent was for culture and recreation.

Water Supply. The San Francisco Water Department (SFWD) supplies water to TI and YBI via steel pipes attached to the West Span. Backup water supply is provided via the East Span by the East Bay Municipal Utility District (EBMUD) from a connection with EBMUD’s system in Emeryville. The water reaches reservoirs on the islands via a steel pipe attached to the bridge. Both sources provide potable and fire protection water. The CCSF has asked EBMUD to continue to supply water to TI and YBI since it assumed management of the islands from the Navy.

EBMUD is also responsible for water supply at the Oakland end of the bridge. It has supply pipes to the SFOBB Toll Plaza, Caltrans maintenance buildings, and throughout the Oakland Army Base property to the south of the Caltrans right-of-way.

Sewer and Sewage Treatment. All wastewater generated on TI and YBI is treated at the sewage treatment plant located at the northeast corner of TI.

Sewage service and treatment in the East Bay are provided by EBMUD. The treatment plant is located just south of the distribution structure. A major EBMUD sewer outfall line parallels the bridge approach to the south. Other EBMUD facilities include an effluent pump station near the toll plaza, a dechlorination facility south of the eastbound lanes approximately 183 meters (600 feet) east of the existing bridge takeoff point, and an outfall drop structure adjacent to the shoreline where the outfall transitions to the water. (Refer to alignment drawings in Appendix A.)

Storm Drains. At the Oakland Touchdown, the storm drain system consists of pipes and various outfalls along the perimeter of the spit, which discharge directly into San Francisco Bay. The storm drain system consists of pipes and various outfalls along the perimeter of TI and YBI, which discharge directly into San Francisco Bay.

Electrical Infrastructure. Electrical power is provided to TI and YBI via a Navy-owned 34.5 KV submarine cable connected to the Navy’s Davis Substation located at the Fleet and Industrial Supply Center (FISC) in Oakland.

In the Oakland Touchdown area, there are several electrical power lines. South of the existing SFOBB, there is a 480 KV and a 12 KV overhead line mounted on poles and owned by Caltrans and Pacific Gas and Electric Co. From the substation, the 12 KV line extends underground onto the existing SFOBB. North of the existing SFOBB, there is an underground 5 KV line running along I-80. A 34.5 KV submarine cable, owned by the Navy and the City and County of San Francisco (CCSF), crosses under the existing SFOBB and proceeds to YBI and TI.

Telecommunications Infrastructure. Telecommunications service is provided to TI and YBI from San Francisco via a conduit system located on the West Span of the SFOBB.

Pacific Bell owns fiber optic cables and telephone lines located south of the existing SFOBB on YBI and in the Oakland Touchdown area and on the existing SFOBB. Three mobile phone sites are located on YBI, owned by GTE Cellular, PacBell Mobile Services, and Cellular One.

Natural Gas Infrastructure. Natural gas is provided to YBI and TI by PG&E from Oakland via a 254 millimeter (10-inch) diameter high-pressure submarine gas main.

The California Highway Patrol (CHP) has jurisdiction over I-80 and the SFOBB for matters involving both traffic and emergency services. Calls from the east and west segments of the bridge are taken by CHP offices in Oakland and San Francisco, respectively. Municipal police departments are not responsible for State bridges and roads unless they are asked to participate in a specific joint investigation or action.

The Oakland CHP office is located at 3601 Telegraph Avenue, close to the interchange of I-580, 24, and I-980, and approximately 1.6 kilometers (1 mile) east of I-80 and the approach to the SFOBB. The CHP office in San Francisco is located on Eighth Street adjacent to the on- and off-ramps for the bridge. In addition, there is a police station on TI which was taken over from the Navy and has been operated by the San Francisco Police Department since late 1997.

The delivery of fire and emergency services coverage within the project area is shared by several jurisdictions due to the complexity of access to the various segments of the SFOBB and the YBI Tunnel. Fires or medical emergencies on the westbound East Span are covered primarily by the Oakland Fire Department, with assistance from the Emeryville Fire Department. Two Oakland fire stations and one Emeryville fire station are available to handle emergencies on the East Span.

In 1997, there were 68 calls to the Oakland Fire Department from the SFOBB to report vehicle fires and other fires, injury accidents, and other medical emergencies.

The San Francisco Fire Department’s (SFFD) Fire Station #48 on TI has primary responsibility to cover incidents on the upper deck (westbound) of the SFOBB from the tunnel to the San Francisco anchorage and on the lower deck (eastbound) from YBI to Oakland. Additional coverage is provided by two SFFD stations on mainland San Francisco which cover the lower (eastbound) deck west and inside the YBI Tunnel.

There is a school on TI which is part of the San Francisco Unified School District. It includes grades kindergarten through 8. In Oakland, there are several private and public schools in Census Tract 4017, but the closest school is approximately 3 kilometers (2 miles) from the Oakland Touchdown. In addition, there is a child development center at the Oakland Army Base which may remain in operation at its current location after the base closes in 2001.

There are a variety of recreation facilities on TI, including a 103-slip marina in the lagoon between TI and YBI, a fishing pier, parks, ball fields, tennis courts, and a golf driving range. There are a number of indoor recreation resources formerly operated by the Navy. The only recreation area on YBI is a tennis court on the USCG property.

Radio Point Beach is located north of the bridge approach and west of the SFOBB Toll Plaza, at the end of Radio Road. BCDC requirements for the Cypress Replacement Project/I-80 Flyover Project (Permit 11-93) include an extension of the Bay Trail via a road south of the eastbound bridge roadway. A lookout area on the south side of the SFOBB takeoff point is to be developed and connected by bicycle and walking path to a lookout area at the north side of the SFOBB to the west of Radio Point Beach.

Environmental justice concerns reflect the potential of a project to adversely affect a low-income or minority community to a greater extent than other segments of the population. Federal policies, including Executive Order No. 12898 (Federal Actions to Address Environmental Justice in Minority Populations and Low Income Populations) and FHWA guidance documents, require that relevant neighborhoods be determined as "minority" or "low-income" based on U.S. Census demographic data.

The U.S. Department of Transportation and FHWA have issued guidance on complying with Executive Order 12898 during the environmental review process. The U.S. Department of Transportation’s Final Strategy for implementing the executive order was published in the Federal Register on June 29, 1995. The objectives can be summarized as: 1) improve the environment and public health and safety in the transportation of peoples and goods and the development and maintenance of transportation systems and services; 2) harmonize transportation policies and investments with environmental concerns, reflecting an appropriate consideration of economic and social interests; 3) consider the interests, issues, and contributions of affected communities, disclose appropriate information, and give communities an opportunity to be involved in decision-making.

In addition to complying with the executive order, the Department of Transportation is committed to Title VI of the Civil Rights Act, which provides that no person in the United States shall, on the grounds of race, color, or national origin, be excluded from participation in, be denied the benefits of, or be subject to discrimination under any program or activity of receiving Federal financial assistance. (See Appendix L.)

A neighborhood is considered minority or low-income if it contains any readily identifiable groups of minority persons and/or low-income persons who live in geographic proximity to the project. According to U.S. Census data, the overall population in San Francisco in 1990 was 53 percent minority. Therefore, the TI/YBI neighborhood would not be defined as minority because its population is approximately 40 percent minority. According to the 1990 Census, the minority population is about 68 percent for the City of Oakland. The West Oakland neighborhood that contains the touchdown for the project, Census Tract 4017, includes a minority population of 84 percent, identifiably higher than the city as a whole. The neighborhood, therefore, is considered minority. Although the residential population of Census Tract 4017 is not located adjacent to the project, the minority designator of Census Tract 4017 was considered in the evaluation and reporting of potential environmental impacts of the project. Neither the San Francisco nor Oakland census tract in closest proximity to the project meets the Department of Transportation low-income definition, which uses the Department of Health and Human Services’ poverty guidelines of a median household income of less than $15,150 for a family of four.

This section describes existing and planned transportation facilities in the project vicinity, including the local street and highway system, passenger rail and public transit facilities, pedestrian and bicycle facilities, maritime facilities, and parking facilities. Existing and projected future travel demand are also discussed.

The traffic study area includes I-80 between Yerba Buena Island (YBI) and the toll plaza, the freeway ramps on YBI, and local streets on YBI and in the Oakland Touchdown area.

The existing San Francisco-Oakland Bay Bridge (SFOBB) is a double-deck structure. Eastbound traffic travels on the lower deck and westbound traffic travels on the upper deck. The bridge currently accommodates cars, buses, trucks, and motorcycles. There are five 3.3-meter (11-foot) travel lanes on each deck and no shoulders. The posted speed limit is 80 kmh (50 mph) for both directions.

YBI is directly linked to the SFOBB by a set of freeway ramps that allow access to and from east- and westbound bridge lanes. There are six ramps, including two westbound on-ramps, one westbound off-ramp, one eastbound on-ramp and two eastbound off-ramps. The YBI ramps are shown in Figure 3-4 in Appendix A.

On YBI, there are two main roadways, Macalla Road and Treasure Island Road. Macalla Road connects to Treasure Island Road via an undercrossing beneath the SFOBB. Macalla Road also provides access to the northern part of YBI, including most of the housing and the United States Coast Guard (USCG) station. Treasure Island Road traverses the west side of YBI and provides access to Treasure Island (TI). Figure 3-5 in Appendix A shows the YBI street system.

The I-80 freeway, SFOBB Toll Plaza, and existing bridge touchdown dominate the existing Oakland Touchdown area. Vehicle access to the area is primarily from the distribution structure. Westbound high-occupancy vehicle (HOV) lanes extend to the north and south sides of the toll plaza from I-80, I-580, and I-880. They terminate on the west side of the toll plaza where HOV traffic merges with mixed-flow traffic.

Local roadways providing access to the Oakland Touchdown area include Burma Road, an extension of West Grand Avenue, and Maritime Street. These streets are located outside of the project area; however, they provide access to the Oakland Touchdown area and could potentially be affected by the project. These roadways are generally low volume, but this low volume consists of a high percentage of trucks serving the Port of Oakland and local industry. There are other roads in the area which provide access for Caltrans vehicles to the toll plaza, Caltrans maintenance facility, and auto access to Radio Point Beach and the area to the south of the bridge abutment. Figure 3-6 in Appendix A shows the Oakland Touchdown area roadways, and Figure 3-7 in Appendix A shows the streets outside of the project area that provide access to the touchdown area.

The Draft TI Reuse Plan includes a Draft Circulation Element for TI and YBI. Due to the limited capacity of the on- and off-ramps connecting YBI with the SFOBB, automobile access to the islands is de-emphasized in the Circulation Element. Instead, the focus is on ferry access to the islands and alternative modes of transportation for circulation on the islands such as foot, bicycle, and shuttle buses. A bus shuttle system would provide service from the TI ferry terminal to TI and YBI, along Macalla and Treasure Island Roads.

The Circulation Element also calls for minor changes in circulation on YBI. The element proposes limited improvements to improve emergency access. Due to the steep terrain and the threat of landslides, most of the streets on YBI, including Macalla Road, would remain in their current configuration. The SFOBB on- and off-ramps would remain in their present configuration. Treasure Island Road would remain the primary access route between the SFOBB and TI.

The SFOBB is the primary motor vehicle link between San Francisco and the San Francisco Peninsula and the East Bay. The westbound approaches are congested during the morning commute period, and the eastbound approaches are congested during the evening peak period. During these times the SFOBB operates at capacity. The SFOBB is also heavily traveled during off-peak travel times. Traffic flow on the SFOBB is vulnerable to congestion due to stalls, accidents, lane closures required for bridge maintenance, and the lack of shoulders for clearing stopped vehicles. There are 274,000 vehicles that use the SFOBB daily. In the morning peak hour, 10,800 westbound vehicles use the SFOBB.

The freeway ramps to and from the SFOBB at YBI typically operate with no more than 200 vehicles during the peak hour. Despite low traffic volumes, the eastbound on-ramp operates at capacity in the afternoon peak hour due to severely restricted design limitations (e.g., tight curves and short merges onto the freeway).

All of the local streets in the project area (YBI, TI, and the Oakland Touchdown area) currently operate with low volumes of traffic. The streets in the Oakland Touchdown area serve primarily truck traffic.

In the future, peak-hour traffic demands on the approaches to the SFOBB are expected to increase. These increases will be due to increased demand for travel between the East and West Bay Area. Traffic volumes for westbound PM peak and eastbound AM peak may increase since there is unused capacity during those peak periods. Also, Average Daily Traffic (ADT) may increase due to unused capacity available during off-peak travel times. However, traffic volumes on the bridge itself are expected to remain fairly constant during the westbound AM peak period and the eastbound PM peak period because the bridge itself constrains traffic volumes.

AC Transit, the provider of transbay bus service, currently operates 37 transbay bus routes between East Bay cities and the Transbay Transit Terminal in San Francisco. Service is provided during daytime and evening hours with most service provided during morning and afternoon commute periods. Transbay buses access the SFOBB via West Grand, Maritime Street, I-580, I-80, and I-880. The buses use the HOV lanes at the toll plaza. West Grand Avenue is a major access route for nine AC Transit Transbay routes. Two bus routes (one transbay; one local) also operate on Maritime Street. There are no public transit routes operating on surface streets in the Oakland Touchdown area. In 1998, AC Transit carried about 13,000 passengers across the bridge per day and between 2,100 and 3,200 in the peak hour.

The San Francisco Municipal Railway (MUNI) provides local bus service (Route 108) between TI and the Transbay Transit Terminal in San Francisco via the SFOBB. Route 108 operates at hourly headways on weekdays and serves a single bus stop at the TI gate. There are no stops on YBI.

Bay Area Rapid Transit (BART) provides about 530 daily transbay trains in the corridor. BART carries about 134,000 transbay passengers per day and between 14-15,000 per hour in the peak hours.

Caltrans operates a bicycle shuttle between the MacArthur BART station in Oakland and the Transbay Transit Terminal in San Francisco via the SFOBB. The shuttle carries about 1,500 to 2,000 cyclists per month.

No bicycle or pedestrian facilities currently exist within the project limits, and pedestrians and bicycles are prohibited from using the SFOBB.

Currently, pedestrians and bicyclists have several transit options for travel in the SFOBB corridor.

• BART operates 530 daily transbay trains. The system carries about 260,000 passengers per day. Bicycle ridership on the entire BART system is about 3,500 passengers per day. Bicyclists are prohibited from using the system during commute hours in the peak direction of travel.

• AC Transit operates 37 transbay bus routes that provide 654 daily buses between the East Bay and the Transbay Transit Terminal via the SFOBB. AC Transit intends to outfit all 700 buses serving transbay routes with bicycle racks.

• The Alameda-Oakland-San Francisco Ferry has 13 daily round trips from Jack London Square in Oakland to the San Francisco Ferry Building. The ferry also operates six daily round trips to Pier 39 in San Francisco. The ferries currently carry about 10 to 15 bicyclists per day during the week and higher numbers on the weekends.

• Caltrans Bicycle Shuttle transports bicyclists between the MacArthur BART station and the Transbay Transit Terminal in San Francisco. The shuttle makes four daily departures from Oakland and three departures from San Francisco in the morning and four San Francisco and three Oakland departures in the evening. The shuttle carries about 1,500 to 2,000 bicyclists per month.

Several bikeway and pedestrian facilities have been planned in the East Bay portion of the study area:

• A bikeway is proposed on Maritime Street as mitigation for improvements made by the Port of Oakland. No completion date has been identified by the City of Oakland.

• A bikeway is proposed on Seventh Street to provide access to Portview Park.

• A bikeway on West Grand Avenue between Maritime Street and Mandela Parkway is planned as part of the I-880/Cypress Replacement and the I-80 HOV lanes and Operational Improvement Project.

• A bikeway to be located adjacent to eastbound I-80 is proposed as a Bay Conservation and Development Commission (BCDC) permit requirement of the I-880/Cypress Freeway Replacement Project. In concept, it would follow the Caltrans maintenance road and provide access to proposed scenic overlooks at the Oakland Touchdown area as well as connect to the Bay Trail system.

• The Bay Trail is a regional hiking and bicycling trail planned to ring the shoreline of San Francisco and San Pablo Bays. The SFOBB and the region’s other toll bridges are all designated as "spine" trails of the Bay Trail. The spine trails create the backbone of the Bay Trail system, encircling and crossing the Bay and providing a continuous recreational corridor in all nine Bay Area counties. The Bay Trail system is only partially complete.

Figure 3-7 in Appendix A shows these planned improvements.

Two companies provide ferry service between the East Bay and San Francisco. The Blue and Gold Fleet provides weekday and weekend service between the Ferry Building and Pier 39 in San Francisco, Oakland’s Jack London Square, and Alameda’s Main Street Terminal. None of the terminals is located within the project area. The ferries pass below the SFOBB West Span on their route and do not travel through the SFOBB East Span Project area.

Harbor Bay Maritime also provides ferry service between San Francisco and the East Bay. The only East Bay stop is made at Harbor Island in Alameda outside the project limits. These ferries pass below the SFOBB West Span on their route across the Bay and do not travel through the East Span Project area.

The SFOBB traverses the southern portion of Central San Francisco Bay, an area bounded to the north by the Richmond-San Rafael Bridge, the west by the Golden Gate Bridge, and the south by the SFOBB. The western portion of the Central Bay is characterized by relatively deep water, high tidal water exchange through the Golden Gate, and strong currents. This area is dominated by rocky shorelines. The eastern portion of the Central Bay is dominated by shallow mudflats.

The San Francisco Bay is used by commercial and recreational maritime traffic. The channel between SFOBB Piers E-2 and E-3 is used by most commercial navigation (the navigation channel is shown on Figure 2-2 in Appendix A). It is approximately 427 meters (1,400 feet) wide with 56 meters (184 feet) of vertical clearance above mean high water. There is no federal navigation channel on the east side of TI. The controlling depth in this area is 7.6 meters (25 feet). The largest commercial vessels using this waterway are tug and fuel barge combinations, derricks, dredges, tour boats, and occasionally small freighters. Larger commercial vessels transit beneath the SFOBB west of YBI. The USCG has established a regulated navigation area for the portion of San Francisco Bay east of TI, precluding vessels of more than 1,450 gross tonnes (1,600 gross tons) or tugs with a tow of 1,450 gross tonnes (1,600 gross tons) or more from meeting, crossing, or overtaking a vessel of similar size.

Two maritime facilities are located within the project area. They are the Port of Oakland’s Bay Bridge Terminal area and the USCG moorings on YBI.

Trucks are a major component on certain study area roadways. I-80 is a major local, regional, and interstate truck route, carrying approximately 11,500 truck trips daily on the SFOBB, or about four percent of the average annual daily traffic (AADT) volume. Local streets, including Maritime Street, Burma Road, and the maintenance roads in the Oakland Touchdown area serve primarily truck traffic associated with the Port of Oakland.

One paved area used for parking is located within the project area on YBI. It is located east of Quarters 1 and can accommodate approximately 315 parking spaces. This area is currently used for special events at the Naval Quarters. Most residents, visitors, and employees prefer to park closer to their destinations. On-street parking within the project area is difficult because the roadways are narrow; however, two on-street spaces are located just south of the SFOBB on Treasure Island Road. Additional on-street parking is located in the residential neighborhoods and at former Navy facilities.

In the Oakland Touchdown area, parking for toll plaza and other workers currently exists in the median area between the westbound and eastbound I-80 alignments. Other land uses in the touchdown area have "informal" parking areas because the land is open and flat.

The existing and proposed SFOBB retrofit/replacement structures are required to conform to Federal Aviation Administration (FAA) Regulations Part 77, "Objects Affecting Navigable Airspace." The conformance requires both obstruction marking and lighting in accordance with FAA Advisory Circular AC70/7460 effective January 1, 1996.

The focus of this visual assessment has been the visual effects of the Retrofit Existing Structure Alternative and the replacement alternative bridge design variations (skyway and signature) and replacement alternative alignments (Alternatives N-2, N-6, and S-4) in terms of visual obstruction, dominance within the viewshed, and design quality in terms of vividness, intactness, and unity. These issues are also considered with respect to the types of viewers that will be affected by the project (residents, office workers, motorists, pedestrians, bicyclists, and recreational users). As described below, the visual effects of each design variation and alignment are evaluated from 17 viewpoints around the Bay Area, as are the changes that would occur within each of the distinct landscape units which make up the study area. For more information on this visual assessment, the Visual Assessment Technical Report is available at the locations listed in the Preface of this document. The Visual Assessment Technical Report includes a CD-ROM with photographs and an interactive map of visual simulations.

There are several issues which are not evaluated in this study. These include detailed design issues such as color, lighting, railing, walkways, and piers. These design elements of replacement alternatives have not yet been developed in detail.

In addition, the merits of various signature bridge design concepts are not discussed in this report. A separate process was established to evaluate the merits of various signature bridge design concepts. This process began with meetings of the Bay Bridge Design Task Force (Task Force), which considered several design variations for the replacement alternatives. The Task Force was established by the Metropolitan Transportation Commission (MTC). The Task Force initiated an open request for ideas about the design of the signature portion of the East Span and held numerous public meetings. The Task Force also received an evaluation of various designs by a distinguished panel of engineering and architectural experts (the Engineering and Design Advisory Panel, or EDAP) and elected officials.

The Bay Area is one of the most scenic areas of the world, combining water, islands, urban skylines, bridges, and mountains into vistas both picturesque and impressive. Seven different bridges span the Bay, each one constituting a significant scenic resource in its own right. The Golden Gate Bridge is known around the world for its grace and beauty. However, all seven bridges, including the San Francisco-Oakland Bay Bridge (SFOBB), the Richmond-San Rafael, the San Mateo, and the Dumbarton, span significant stretches of open water and are highly visible from vantage points around the Bay. The San Francisco Bay Area extends over 97 kilometers (60 miles) from the Sacramento River Delta in Benicia to the marshlands of Santa Clara County, a total of more than 1,000 square kilometers (386 square miles). The Bay is a rich marine resource providing navigable waterways for commerce and habitat for countless species.

The cities of Oakland and San Francisco are located across the Bay from one another, roughly midway between the northern and southern ends of the Bay. For viewers both on and off the water, the area between these two cities is particularly scenic. Four major islands (Alcatraz, Angel, Treasure, and Yerba Buena) are found in this region; Mt. Tamalpais and the hills of Marin County tower to the west, and the skylines of Oakland and San Francisco complement the area’s natural beauty. The preservation of the aesthetic quality of this region is of particular importance to decision-makers and the millions of people who live in and visit the Bay Area each year.

Along with the Golden Gate Bridge, the SFOBB is one of the Bay Area’s most prominent man-made features. See Figure 3-8 in Appendix A.

The SFOBB East Span is a highly visible structure that can be seen from cities on the west side of the Bay (San Francisco, Sausalito) as well as from cities in the East Bay (including Alameda, Oakland, Berkeley, Emeryville, Albany, El Cerrito, and Richmond). For eastbound motorists, the SFOBB East Span is the gateway into Oakland and the East Bay. While motorists traveling in this direction on the existing East Span have views of the City and Port of Oakland to the south and the hills behind the communities of Berkeley and Emeryville to the north, these views are highly obstructed by the upper deck of the bridge and the steel trusses which line the bridge.

The study area has been subdivided into "landscape units" to facilitate its description and analysis of the project. Landscape units are geographically distinct portions of the study area which have a particular visual character. In the study area, the five landscape units identified are Yerba Buena Island, the main span (cantilever section) of the existing East Span, the Incline Section of the East Span, the Oakland Touchdown area, and the toll plaza. The boundaries of each landscape unit are shown in Figure 3-9 in Appendix A and described in Table 3.3-1. Figures 3-10a-c in Appendix A include representative photographs of the landscape units.

Each landscape unit has a certain visual character based upon the land uses that comprise it. These smaller scale land uses and landforms within each landscape unit are called "visual image types". Visual image types are areas that exhibit a fairly homogeneous visual quality. The visual image types are depicted in Figures 3-10a-c in Appendix A.

Source: Visual Impact Assessment, September 1998.

Viewer groups include those viewers who can expect to see views from the bridge, and those who can expect to see views to the bridge. Viewer groups are defined as those viewers most likely to share similar exposure to and expectations of their view from and to the SFOBB East Span.

Views from the bridge are seen from motor vehicles. Viewer groups include commuters, recreational users, and commercial users.

Commuters. The flow of commuting traffic is primarily westbound (to San Francisco) during the morning period and primarily eastbound (to Oakland and surrounding communities) in the afternoon period.

Westbound traffic on the SFOBB rides on the upper deck of the bridge. Westbound views are partially obstructed by the architecture of the bridge itself, most noticeably by the presence of a 1.2-meter (4-foot) high solid railing that runs along either side of the roadway. The construction style includes steel beams that reach from the upper deck into the cantilever structure at regular intervals, partially obstructing views from automobiles. Nevertheless, commuters have several dramatic views, including the skyline of San Francisco and the Marin Headlands, as they proceed westward.

Eastbound traffic on the SFOBB rides on the lower deck of the span. Views from the lower deck are significantly obstructed for three reasons: the presence of the westbound roadway above, the presence of a 1.2-meter (4-foot) high solid railing that lines either side of the lower span, and the presence of steel beams that span from the upper to lower deck at regular intervals. For motorists commuting in sport utility vehicles, buses, and other vehicles with a higher passenger compartment, visibility is less compromised by the solid railing and the architecture of the bridge.

Recreational Users. Recreational users of the bridge include tourists enjoying the scenery of the Bay, outdoor enthusiasts traveling to points eastward from San Francisco, and people making their way to events or gatherings outside of their working environment. All recreational users are in vehicles as there are no bicycle or pedestrian facilities on the SFOBB.

Commercial Users. Commercial users include truck drivers, delivery personnel, bus drivers, and other people involved in day-to-day commerce in the Bay Area.

Commercial users might make several trips across the bridge on a daily basis. Commercial users would tend to ride in vehicles with a higher passenger compartment and so would enjoy greater visibility from the bridge.

The viewers’ experience of the bridge varies considerably based upon their location, the duration of their view, and the frequency with which they are exposed to views of the bridge. To provide a representative sample of what changes viewers across the San Francisco Bay Area would experience in their viewshed as a result of construction of a new bridge, a cross section of viewers and viewpoints was chosen. Please see Figures 4-5 through 4-12 in Appendix A for photographs of views toward the East Span.

Viewer Groups. Viewer groups identified in this section include commuters, ferry passengers, residents and workers, and recreational users/tourists.

Commuters with views to the East Span exist on both sides of the Bay. Commuters traveling on the interstate highway system in the East Bay on sections of I-80 westbound and I-880 northbound have particularly clear views and would be most sensitive to changes to the East Span.

Ferry passengers primarily include commuters between various points in the East and North Bay and San Francisco. Ferry passengers view the East Span from the Bay surface.

Residential viewers and workers exist on both sides of the Bay. Views vary greatly within this group, based on proximity, view obstruction, and the location and elevation of the residence/workplace. Residents and workers with clear, unobstructed views would be most sensitive to changes to the East Span. In the East Bay, potential viewers may live/work in Oakland, Emeryville, Berkeley, Albany, El Cerrito, or Richmond. In the West Bay, potential viewers may live/work in San Francisco or Sausalito.

Recreational users and tourists have abundant opportunities to view the East Span from all around the Bay Area. Activities such as boating, kayaking, windsurfing, and fishing make use of the Bay itself, while activities such as sightseeing, hiking, and walking often incorporate a view of the Bay. These users would typically be very sensitive to changes to the East Span.

Existing Visual Quality. Representative viewpoints were identified and were used to simulate the proposed project alternatives. This was done to assist in the analysis and documentation of visual resource changes. The location of these viewpoints within the Bay Area is depicted in Figure 3-11 in Appendix A. Potential viewpoints were chosen on the basis of a variety of factors, including: high visibility/close proximity to sensitive viewers; specific views or types of views identified as important by the public, representative of specific viewers or viewer groups, and range of view types available to the public (close proximity to long-distance views).

The existing visual quality for each of the viewpoints identified was evaluated using an approach to scenic quality evaluation that looks for indicators of the level of visual relationships rather than on a judgment of physical landscape components. This approach provides a set of three evaluative criteria developed under the sponsorship of the Federal Highway Administration in previous visual impact studies: vividness, intactness, and unity.

These criteria are defined as follows:

• Vividness is the visual power or memorability of landscape components as they combine in striking and distinctive visual patterns. An example within the study area is the view of the Bay and San Francisco skyline seen from the upper deck of the existing Bay Bridge.

• Intactness is the visual integrity of the natural and man-built landscape of the immediate environs and its freedom from encroaching elements. An example of lack of intactness within the study area is the patchwork of industrial uses on the Oakland Touchdown.

• Unity is the visual coherence and compositional harmony of the viewshed. The viewshed includes all natural and man-made features found within the normal view range. In man-altered landscapes, it frequently attests to the careful design or fit of individual components in the landscape. An example is the way man-made elements such as the Golden Gate Bridge combine with natural features such as San Francisco Bay to provide a coherent image unique to the Bay Area.

The results of this analysis of existing visual quality are summarized in Table 3.3-2.

Source: Visual Impact Assessment, September 1998.

The effects of air pollution on health and other aspects of the quality of life are considered potentially serious by regulatory agencies such as the U.S. Environmental Protection Agency (EPA). Several federal, state, and local regulations and programs have been established to protect and improve air quality in the Bay Area.

Pursuant to the federal Clean Air Act of 1970 and its subsequent amendments, the EPA established ambient air pollutant concentration standards and maximum allowable emission rates for certain individual sources of air pollutants. EPA made each state responsible for attaining ambient air quality standards—National Ambient Air Quality Standards (NAAQS)—within its borders. A State Implementation Plan (SIP) must be prepared that demonstrates how each state will attain the NAAQS.

NAAQS have been established for seven criteria air pollutants: ozone, carbon monoxide, particulate matter with an aerodynamic diameter less than ten micrometers (PM₁₀), particulate matter with an aerodynamic diameter less than 2.5 micrometers (PM_2.5), nitrogen oxides, lead, and sulfur dioxide. Primary standards for air pollutants were established to protect public health, while secondary standards were established to protect the public welfare by preventing impairment of visibility and damage to vegetation and property. The federal primary standards are listed in Table 3.4-1. The table also summarizes the attainment status for each criteria pollutant regulated by the EPA.

On the federal level, the Bay Area has been designated as an attainment (meeting standards) or unclassified (i.e., available data do not support a designation of non-attainment or attainment) area for all pollutants, except ozone. In June 1998, the EPA re-designated the Bay Area as non-attainment area for ozone because the area had 11 violations in 1995 and six violations in 1996. The Bay Area Air Quality Management District (BAAQMD), the local agency in charge of controlling air pollution and attaining air quality standards in the Bay Area, must now develop a plan to meet the national ozone standard by the year 2000.

Under the Clean Air Act, regions that are maintenance areas (i.e., a geographic area that had previously been designated a non-attainment area but now meets the applicable standard) still must demonstrate how they will maintain compliance with the standard. The BAAQMD has prepared a Carbon Monoxide Maintenance Plan that includes information on control measures that will be used to keep the area in attainment for at least the next ten years.

In addition to other SIP and Air Quality Plan activities, federal agencies must also make a determination of conformity with the SIP before taking any action on a proposed project located in a non-attainment or maintenance area. In 1993, EPA published the

General Conformity Rule that indicates how federal agencies are to make such a determination. A similar rule was created to specifically address conformity issues related to transportation activities. The most recent version of the Transportation Conformity Rule is July 1997. In general, transportation projects must not cause or contribute to new violations of air quality standards, worsen existing violations, or interfere with timely attainment of standards. Regional transportation plans (RTPs) and transportation improvement programs (TIPs) must conform to the SIP. Individual projects with federal funding or approval from the Federal Highway Administration (FHWA) or the Federal Transit Administration (FTA) must come from a conforming RTP and TIP, have been included in the regional emissions analysis for the RTP and TIP or be included in a newly performed regional analysis.

Projects must also be analyzed for their localized air quality impacts in PM₁₀ and carbon monoxide non-attainment or maintenance areas. Guidance for performing PM₁₀ analyses is not yet available.

The California Air Resources Board (CARB) coordinates and oversees the activities of California's many local air quality agencies. The CARB is also responsible for incorporating local non-attainment plans into the SIP. The CARB has established state ambient air quality standards, many of which are more stringent than the corresponding NAAQS (see Table 3.4-1 for a comparison of the standards). The CARB and the local air quality agencies operate numerous air quality monitoring stations throughout the state. Data collected at these stations are used to classify areas and air basins as attainment or non-attainment for each criteria air pollutant based on whether the federal and state standards have been achieved.

The California Clean Air Act (CCAA), which became effective on January 1, 1989, provides a planning framework for attainment of California Air Quality Standards. Local air quality agencies in violation of state ambient air quality standards are required to prepare plans for attaining the state standards.

The San Francisco Bay Area has been classified by the CARB as a serious state non-attainment area for ozone. The Bay Area 1994 Clean Air Plan included a comprehensive strategy to reduce ground-level ozone in the Bay Area. This plan was updated in 1997. The Bay Area 1997 Clean Air Plan includes changes in the organization and scheduling of some of the 1994 Clean Air Plan control measures and also includes 12 new stationary and mobile source control measures, as well as two new transportation control measures.

The Bay Area also does not attain state PM₁₀ ambient air quality standards, but attainment programs for PM₁₀ are not yet required. The California Legislature, when it passed the California Clean Air Act in 1988, recognized that PM₁₀ attainment could not be easily obtained. The CCAA did require the CARB to produce a report regarding the prospect of achieving the state ambient air quality standard for PM₁₀. The CARB recommended that certain actions be taken, but did not impose a planning process to require attainment by a certain date.

The primary factors affecting local air quality are the locations of air pollutant sources and the amounts of pollutants emitted, but meteorological and topographical conditions also are important. Atmospheric conditions such as wind speed, wind direction, and air temperature gradients interact with the physical features of the landscape to determine the movement and dispersal of air pollutants. Another important factor is the Pacific Ocean, which moderates temperatures and helps create consistent wind gradients.

The San Francisco Bay Area has complex terrain, relatively strong prevailing winds because of its closeness to the Pacific Ocean, and strong temperature gradients between the coast and inland areas. Consequently, the Bay Area has low potential for accumulation of pollutants near the coast and high potential in sheltered inland valleys. The project is in an area where pollution potential is very low due largely to good ventilation and less influx of pollutants from upwind sources. However, on occasion, the area does experience warm temperatures, calm winds, and pollutant stagnation.

3.4.3 Existing Project Area Air Quality

Monitoring data in the project area are limited. The criteria pollutant monitoring stations closest to the project site are located on Alice Street (near Jack London Square) in Oakland and at the county hospital in San Leandro. Monitored values at these stations may be slightly higher than actual concentrations in the project area since there are so few pollutant sources near the SFOBB. The Alice Street Station measures ozone and carbon monoxide and the San Leandro Station measures for ozone and PM₁₀. Table 3.4-2 summarizes recent monitoring data from these two stations.

The monitoring data show that the area occasionally violates state ozone and 24-hour PM₁₀ standards and, even more rarely, exceeds the federal ozone standard. The Oakland station monitored only one state ozone violation during the three years examined. During the same three years, the San Leandro station had 11 violations of the state ozone standard and three violations of the federal standard. The California 24-hour PM₁₀ standard was exceeded twice. All other pollutant levels were below federal and state standards.

This section describes the affected environment for noise and vibration. This discussion includes how noise and vibration are measured and reported, criteria for assessing noise levels, and measured and modeled noise and vibration levels at Yerba Buena Island (YBI), Treasure Island (TI), and along the Oakland shoreline. A detailed noise impact assessment technical report has been prepared and is available for review at the locations indicated in the Preface.

A number of factors affect sound as it is perceived by the human ear. These include the actual level of sound (or noise), the frequencies involved, the period of exposure to the noise, and the changes or fluctuations in the noise levels during exposure. Levels of noise are measured in units called decibels (dB). Since the human ear cannot perceive all pitches or frequencies equally well, measured sound levels are adjusted or weighted to correspond to human hearing. This adjusted unit is known as the "A-weighted" decibel. All references to noise in this report refer to A-weighted decibel levels, or dBA.

Very few noises are constant. Most fluctuate in decibel level over short periods of time. One way of describing fluctuating sound is to report the fluctuating noise heard over a specific time period as if it had been a steady, unchanging sound. For this, a descriptor called the Equivalent Sound Level, L_eq, is computed. L_eq is the constant sound level (A-weighted) that, for a given situation and period (e.g., 1-hour L_eq, or 24-hour L_eq), conveys the same sound energy as the actual time-varying sound. The 1-hour L_eq during the noisiest hour is often used to determine if a traffic noise impact exists and to determine abatement measures for roadway noise, while 24-hour cumulative L_eq averaging methods are used to evaluate typical noise exposure in an area.

Roadway noise is dependent on many factors: vehicle type and speed, number of vehicles, roadway surface and gradient, distance from the roadway to the receiver, ground surface (whether hard or soft), and shielding due to structures, soundwalls, hills, the edge of a roadway, and earth berms between a receiver and the road. For example, increases in vehicle speed and/or traffic will increase the noise level.

Roadway surface and gradient will also affect traffic noise. Noise from rough and potholed surfaces can be three to four dBA higher than smooth seal-coated surfaces. A steeper road gradient will primarily affect the level of truck traffic noise. The SFOBB generates higher noise levels than a typical roadway, due to the reverberation of sound and vibration within the bridge structure, and the reflection of noise from the upper deck.

Noise impacts are usually assessed by evaluating the total predicted noise level and evaluating differences between the existing and future noise environments. When evaluating noise increases in the environment, the following relationships to quantifiable increases are used as a basis for assessing impacts.

• Except during carefully controlled laboratory conditions, a change of 1 dBA is very difficult to perceive.

• In the outside environment, a 3 dBA change is considered barely noticeable.

• An increase of 5 dBA is readily perceived as "louder" and is generally required before a change in community response would be expected.

• A 10 dBA increase is perceived as a doubling of noise.

• Caltrans defines an increase of 12 dBA as a "substantial increase."

Although the majority of the project area is over Bay waters, the existing and proposed bridge alternatives cross or are near a variety of existing and future land uses, with varying degrees of noise and vibration sensitivity. These are briefly summarized below.

Yerba Buena Island.

The U.S. Navy and the U.S. Coast Guard (USCG) have former and existing residential units on YBI. These include the Navy’s residential Quarters 1 through 9, two apartment block units (which are mostly currently vacant), and the USCG’s enlisted and officers’ quarters. The USCG also maintains various offices, maintenance and repair facilities, and an outdoor tennis court. All of these existing uses are currently exposed to noise and vibration from the existing bridge traffic. Conceptual future plans for YBI anticipate the closure of the Naval Station Treasure Island, and use of the area by the City and County of San Francisco (CCSF) for residential uses, visitor serving attractions, conference facilities, and open space.

Treasure Island.

The northwestern portion of TI was developed for residential uses and includes recreational facilities. The eastern and southern portions of the island include administrative uses, and one of the buildings is currently used for film production. There is an existing recreational marina. Future land use plans, while not specifically defined to date, include entertainment and visitor attraction facilities; film production and industrial use facilitates; hotel, resort, and conference center uses; and potential residential and research and development uses.

Oakland Touchdown Area.

Noise- and vibration-sensitive uses on the Oakland side of the bridge are limited to informal recreational activities such as fishing and wildlife habitat. Currently, there are no formal public shoreline facilities, although the area is used for fishing access and shoreline viewing. The Port of Oakland and the EBRPD are considering creation and management of a park and shoreline access facilities. In addition, public access, in the form of pedestrian and bicycle access and viewing areas could be developed in this area as a result of previous Caltrans project commitments.

Federal Highway Administration (FHWA) Noise Abatement Criteria (NAC) for various land use ratings (called activity categories) are given in Table 3.5-1. These noise criteria are assigned to both exterior and interior activities. Noise attenuation provided by most residential structures leads to compliance with the interior NAC if the exterior criterion is attained.

Land uses in the vicinity of the Oakland Touchdown area include industrial and port-related sites, open space lands, wildlife habitat, and potential future park shoreline areas. At YBI, land uses include residences, government offices and buildings, currently unused buildings, and open space. Commercial uses are present on TI. These land uses and exterior NAC correspond to the following FHWA activity categories (exterior uses), according to Table 3.5-1.

• Category B (67 dBA) - Residences, parks, and recreation areas
• Category C (72 dBA) - Developed lands not included in Category B
• Category D (No NAC) - Undeveloped lands

As described in more detail in Section 4.5, if these sound levels are predicted to be approached or exceeded during the noisiest one-hour period, or if the project will result in a substantial (12 decibels or greater) noise increase, noise abatement measures are to be considered and, if found reasonable and feasible, they must be considered for inclusion in the project. A first step in the determination of whether future noise levels will approach or exceed the criteria is to measure noise levels and use this data to establish baseline conditions and calibrate the noise model.

The existing noise environment was characterized through the evaluation of field noise measurements. Long-term measurements (at least 24 hours) were made at representative locations (see Figures 3-12, 3-13 and 3-14 in Appendix A). These included the Navy senior officers’ quarters and a cluster of former Navy residential structures north of the bridge, the USCG officer residences, and facilities south of the bridge. A long-term measurement was also made on the north side of the bridge at the Oakland Touchdown area. Thirty-eight short-term measurements (approximately 15 minutes long) were also made at representative locations and land uses. These included residential locations, the USCG administrative offices, historic non-residential buildings, and public shoreline access, and wildlife habitat locations. Additional "special studies" measurements were made below and near the existing bridge and on the structure near the traffic lanes for use in evaluating bridge noise dynamics and shielding and for evaluation of noise levels that might be experienced on replacement bridge alternatives by bicyclists and pedestrians. The short-term and long-term measurements were used to calibrate the noise model, providing more accurate modeling of existing and future noise levels generated by traffic.

Future peak-hour noise levels were predicted using the "Sound32" noise model. This model is based on the FHWA Noise Prediction Model and uses California Vehicle Noise Emission Levels. Traffic data were developed for the model based on volumes and speed scenarios that would create the loudest peak noise levels. Each scenario was tested, and the "worst-case" traffic speed and volume condition (i.e., 1,600 vehicles per lane per hour traveling at 97 kilometers [60 miles] per hour) was selected for further modeling that created the maximum predicted noise conditions.

Existing vibration measurements were made at five locations, at and near the bridge piers on YBI, and at several points on TI.

Source: Federal Highway Administration 1982

Generally, the field measurements indicated noise levels in excess of 66 dBA L_eq along and near most of the project route. Based on the measured noise levels, noise modeling was performed to predict the highest noise period and level for the peak-noise-hour traffic conditions for the existing bridge. Following is a summary of the results by geographical area. Table 3.5-2 summarizes the results of the long-term (24-hour) noise measurements. Table 3.5-3 lists the measured short-term (generally 10 to 15 minutes in duration) noise levels, while modeled noise levels for the existing bridge and setting are shown in Table 3.5-4. The data in Table 3.5-4 represents the traffic noise during the peak-noise hour using Level-of-Service C-D traffic volumes and speeds (1,600 vehicles per hour per lane traveling at 97 kilometers [60 miles] per hour). The locations of measured and modeled receptors are shown in Figures 3-12, 3-13 and 3-14 in Appendix A.

All of the noise measurements conducted on YBI approached or exceeded the FHWA Noise Abatement Criteria (NAC) for Activity Category B (residences, parks, recreation areas) of 67 dBA L_eq, with the exception of the noise measurements taken at the Coast Guard Officers Quarters (Quarters A, B, and C), located southerly of the bridge, west of the existing Coast Guard station. At that location, noise levels ranged from 60 dBA L_eq to 62 dBA L_eq. Elsewhere, noise levels ranged from 66 dBA L_eq to 74 dBA L_eq. These noise levels were verified by repeating the measurement one or more times at selected locations. 24-hour noise measurements at YBI ranged from 59 dBA (24-hour L_eq) at Location 5 to 72 dBA (24-hour L_eq) at Location 1.

Consistent with the measurements, the noise modeling also showed existing peak noise levels that would exceed the NAC for residential locations (Table 3.5-4). Non-residential land uses, such as the Coast Guard administrative complex, have a NAC of 72 dBA (for Category C land uses). The existing peak-hour noise level at Location 7 is predicted at 69 to 71 dBA, and, thus, would approach the criteria under worst-case conditions.

The measured and modeled noise levels are primarily generated by traffic on the existing bridge structure. Specifically, the stacked configuration of the bridge causes traffic noise from the lower deck to be reflected from the upper deck underside, and traffic noise components from both the upper and lower decks are also transmitted downward. The expansion joints in the existing bridge structure were observed to cause additional noise as traffic passes over them.

A noise measurement was conducted in the parking lot of a film studio located on TI (see Figure 3-13 in Appendix A). This site overlooks the East Span, which is approximately 760 meters (2,500 feet) south of the studio. The measured noise level was 62 dBA L_eq at this location, and the noise model indicated the peak-noise-hour level to be 67 dBA L_eq. These levels are below the NAC for Activity Category C of 72 dBA L_eq.

Measured noise levels in the vicinity of the Oakland Touchdown area ranged from 64 to 71 dBA L_eq. Modeling of peak-noise-hour traffic conditions indicated levels of 65 to 74 dBA. Two of the seven noise measurements conducted in the area exceeded the NAC for Activity Category C (the prevalent land use in this area, along with Activity Category D) of 72 dBA L_eq. A 24-hour noise measurement conducted at Location 12 resulted in a 24-hour L_eq of 71 dBA. Nine of the 14 modeled locations within the Oakland Touchdown area approach or exceed the 72 dBA L_eq threshold.

Vibration measurements were made at five locations: at and near the bridge piers at YBI and at several points at TI. Short-term measurements were made during freely flowing traffic conditions to obtain representative vibration levels. The measurements indicated that heavy-duty trucks crossing the bridge were the primary sources of vibration measured at the bridge columns and in the vicinity of the bridge structure. At TI, measured vibration levels were primarily associated with wind and wave action at the shoreline.

A Hazardous Wastes Assessment was conducted for the East Span Project to identify potential contaminant sources within and adjacent to the project area that may affect design and construction of the project. For purposes of this assessment, hazardous wastes or materials include hazardous substances as regulated under the Comprehensive Environmental Response, Compensation and Liability Act (CERCLA), hazardous wastes as regulated under the Resource Conservation and Recovery Act (RCRA), and the California Hazardous Waste Control Law (HWCL), hazardous materials as regulated under the Department of Transportation, and other special wastes regulated under federal, state, and local regulations.

The following presents an overview of the major laws and regulations that apply to hazardous waste of the East Span Project.

• The Comprehensive Environmental Response, Compensation and Liability Act (CERCLA) or Superfund, as amended by the Superfund Amendments and Reauthorization Act (SARA), was originally passed in 1980. CERCLA created national policies and procedures to identify and remediate sites previously contaminated by the release of hazardous substances. These laws have the effect of holding past and present owners of real property liable for the costs of site investigations and remediation associated with environmental contamination regardless of whether the current owner was responsible for the contamination.

• The Resource Conservation and Recovery Act of 1976 (RCRA) regulates hazardous waste storage, treatment, and disposal sites. The State of California implements the RCRA requirements under authorization from the federal EPA through enforcement of the California Hazardous Waste Control Law, which provides regulations that equal or exceed the federal standards.

• Other potentially relevant environmental laws and regulations include:

- Clean Water Act (CWA)

- Safe Drinking Water Act (SDWA)

- Federal Insecticide, Fungicide, and Rodenticide Act (FIFRA)

- Toxic Substance Control Act (TSCA)

- Clean Air Act (CAA)

- Various state environmental laws and regulations

In the project area, the Regional Water Quality Control Board (RWQCB) administers federal, state, and local regulations for cleanup of affected surface water, groundwater, and soils that present a threat to water quality. The California Department of Toxic Substances Control (DTSC) is the lead agency for several of the cleanup actions on YBI. The California Occupational Safety and Health Agency (CalOSHA) will be involved in providing oversight for hazardous substance and waste handling during construction.

A review of the existing hazardous wastes reports and data was conducted to identify potential hazardous waste concerns that may be affected by the East Span Project alternatives. A summary of these reports can be found in the Hazardous Wastes Assessment, September 1998.

Publicly available federal and state environmental databases were reviewed to obtain information on the location of potential sites of environmental concern that may adversely affect the project. These sites include registered underground storage tanks (USTs) and leaking underground storage tanks (LUSTs); facilities that use, generate, treat, or dispose of hazardous wastes and/or substances; transporters of hazardous wastes; solid waste landfill sites; and unauthorized spills and releases of regulated substances.

The database search area encompassed a distance that extended from 0.8 to 1.6 kilometers (1/2 to 1 mile) on either side of the project area depending on the type of database listing. Databases reviewed for this report are described in the Hazardous Wastes Assessment.

An evaluation of historical land uses and land use changes in the project area was conducted to identify potential historical contaminant sources. This update included interviews with environmental specialists and current property owners, as well as a historical photographic review.

A site reconnaissance in the project area and vicinity was completed to identify and confirm potential contaminant sources identified in earlier data reviews and to identify potential unreported contaminant sources.

For the portion of the alignments over water, the assessment was limited to a review of existing data. Sediment samples were collected along existing SFOBB piers in 1996.

Potential contaminant sources that were identified through the existing data review were screened to determine their potential to conflict with the project based on the following criteria:

• The occurrence of a documented release based on either public records or physical observation;

• The physical, chemical, and toxicological characteristics of suspected contaminants released and the media potentially affected (soil, water, and air);

• Distance from the project area;

• Nature of proposed design and construction activities in relation to the location and possible impact from a potential contaminant source; and

• Estimated groundwater flow direction and depth.

These criteria were used to eliminate potential sources that were unlikely to conflict with the project. Potential contaminant sources not eliminated during this screening process were recommended for further evaluation.

Table 3.6-2 summarizes the findings of the Oakland Touchdown area hazardous wastes assessment.

Two of the potential contaminant sites are located at the Oakland Army Base which is located in a highly industrialized area. Property adjacent to the Oakland Army Base is used as a maritime shipping facility. An environmental baseline study has been conducted to document the physical condition of the property resulting from the use, storage, and disposal of hazardous substances and petroleum products during the base’s history. It was recommended that further investigation be conducted in Parcel 1 to determine the source, and vertical and horizontal extent of the previously detected contamination.

Source: Parsons Brinckerhoff, Inc., 1998

Ag = Silver

Cd = Cadmium

Cr = Chromium

Ni = Nickel

PAHs = Polyaromatic Hydrocarbons

PCBs = Polychlorinated Biphenyl

PCE = Tetrachloroethene

Sb = Antimony

Ti = Titanium

TPH = Total Petroleum Hydrocarbons

TRPH = Total Recoverable Petroleum

Hydrocarbons

Source: Parsons Brinckerhoff, Inc., 1998

A Sediment Sampling and Analysis Report was also completed by Caltrans in 1996 for the in-Bay portion of the project area. Sediment sampling and analyses at the SFOBB East Span were performed for Caltrans in 1996 on the upper 2 meters (6 feet) of the Bay sediment along the SFOBB piers. The purpose of the investigation was to collect sediment samples from near the SFOBB East Span piers/caissons that would require dredging for retrofit of the existing bridge, as well as analyze the samples and prepare an investigation report for submittal to the Dredged Materials Management Office (DMMO).

Based on physical, chemical, and bioassay results, it was concluded that the disposal of SFOBB East Span sediments at the Alcatraz disposal site would not cause adverse effects to marine biota. It was therefore recommended that the dredged sediments generated during the seismic retrofit activities at the SFOBB East Span be approved for aquatic disposal at the Alcatraz disposal site (Clayton 1996). The result of this investigation will assist in determining the suitability of sediment encountered during construction of the SFOBB East Span Project for in-Bay disposal.

The project is located in the Coast Ranges geologic/geomorphic province of central and northern California. The Coast Ranges province extends from approximately 500 kilometers (300 miles) south and 400 kilometers (250 miles) north of the project site. The Coast Ranges province is bordered to the north by the Klamath Mountains, to the south by the Transverse Ranges province, to the west by the Pacific Ocean, and to the east by the Great Valley province.

The Coast Ranges have a general northwest orientation and are characterized by north-northwest trending folds and faults. The province consists of sedimentary, metamorphic, volcanic, and igneous rocks ranging in age from the Jurassic/Cretaceous age (100 to 200 million years ago) to recent.

The San Francisco Bay region is located within a northwesterly oriented geomorphic depression called the San Francisco Bay-Santa Clara Valley depression. This depression and its surrounding mountains all have relatively recent tectonic origin. Formation began about one million years ago (within the Quaternary age). The sea level has fluctuated significantly several times prior to and during Holocene times, and sediments known as Bay mud have been and are currently being deposited under estuarine conditions. The Bay mud consists of unconsolidated to moderately consolidated, saturated, organic-rich silty marine clays. (See Figure 3-16 in Appendix A for a geologic profile of the project area.)

The San Francisco Bay Area is one of the more seismically active regions of California. There are at least seven active faults (San Andreas, Hayward, Rodgers Creek, Calaveras, Green Valley, Concord, and Franklin) within 50 kilometers (31 miles) of the project area. The active faults trend northwesterly to the north and display a similar right-lateral, primarily horizontal movement. These faults have generated large, historical earthquakes resulting in major surface disturbances, and segments of these faults have been designated as Special Studies Zones by the California Division of Mines and Geology (Alquist-Priolo Special Studies Zones Act of 1972). Numerous other smaller active faults are present throughout the region but are farther from the project area and not believed to be capable of causing significant earthquake shaking within the project area.

The project area’s main geologic structures are associated with two major faults: the San Andreas fault about 14 kilometers (9 miles) to the west and the Hayward fault, which is located about 8 kilometers (5 miles) to the east of the study area. Both faults have had large historic earthquakes. Earthquakes on the San Andreas fault include the 8.25 magnitude (Richter Scale) earthquake on April 18, 1906, and the 7.1 magnitude (Richter Scale) Loma Prieta earthquake on October 17, 1989. These earthquakes caused widespread damage throughout the greater San Francisco Bay Area. The Hayward fault has long been documented as active, with major earthquakes in 1836 and 1868. A maximum credible earthquake (MCE) is the largest earthquake reasonably capable of occurring based on current geological knowledge. The MCE has been estimated for the San Andreas fault at 8.0 and 7-1/4 on the Hayward fault.

YBI is a naturally occurring island approximately 60 hectares (147 acres) in size. The change in topography of the island is extreme, with steep slopes over short distances. The elevations range from 103 meters (338 feet) near the center of the island to sea level. Slopes range from five to 75 percent. The USCG land along the southeast shore occupies the flattest area of the island and has been enlarged through the placement of fill material.

The island is underlain by Franciscan Formation basement rocks consisting of interbedded graywacke sandstone, mudstone, and claystone of varying proportions.

On YBI, the majority of the Franciscan Formation is covered with unlithified sand and alluvial deposits, along with localized areas of artificial fill. There are several Franciscan Formation outcrops on YBI. The unconsolidated sedimentary deposits consist of silty sand with interbeds of clayey sand and clayey silt. Areas of artificial fill surrounding YBI, such as TI and the USCG station were created by placing dredged Bay deposits and cut materials from YBI in relatively shallow water areas to create emergent usable pads.

Slope Stability. Existing landslides have been identified at various locations on YBI and appear to range from older, probably prehistoric, failures to recent failures. The modes of the slope failures include discontinuity-controlled rock failures (due to weakness in the rock), relatively deep-seated rotational landslides, and relatively surficial failures. Rock-wedge failures have occurred in the Franciscan Formation slopes surrounding the northeast point and eastern YBI Tunnel approach. The sizes of the rock-wedge failures are variable and range up to in excess of 30 meters (100 feet) in width and length. Of most concern is a larger rock-wedge failure in the vicinity of the proposed west pier for the northern alignments. Relatively deep-seated rotational landslides are located on the west and northwest of the eastern YBI Tunnel approach area but appear to have occurred outside of the project study area. The landslides appear to be older and probably failed prehistorically. A number of relatively shallow slope failures are located in unconsolidated sedimentary deposits on the southwest slope of the eastern YBI Tunnel approach above the USCG station. These landslides are up to 45 meters (150 feet) high, 61 meters (200 feet) wide, and 6 meters (20 feet) thick. Some of the landslides have occurred recently. Additional debris-flow failures and zones of shallow creeping soils have been identified in the Franciscan Formation on the northwest and southeast slopes of the eastern YBI Tunnel approach and on the east and north facing slopes of the northeast point.

In general, the area has a westerly thinning sequence of Holocene- and Pleistocene-age marine and alluvial sediments overlaying Franciscan Formation bedrock, which ranges from near the surface at YBI to over 100 meters (328 feet) below the Bay bottom near the Oakland Touchdown. The marine sediments are primarily clays and silts, while the alluvial sediments are more commonly sands. The Holocene- and Pleistocene-age sequence in some areas of the study area has been eroded by various episodes of channeling. In general, marine clays are thicker and the alluvial sands are thinner (or absent) within buried paleochannels.

The eastern approach to the San Francisco-Oakland Bay Bridge (SFOBB) sits on a man-made spit that extends out into San Francisco Bay. The site is generally flat, rising approximately 1.5 to 3 meters (5 to 10 feet) above sea level. The area is a former tidal flat that was filled prior to the construction of the existing SFOBB in the 1930s. The source of the fill is not known, but was likely a combination of dredged soil and imported fill, including some rubble and other debris. Due to the fill, settlement of the underlying Young Bay mud has likely occurred, creating mud that is stronger than its nearby marine counterpart.

The Franciscan Formation in this area is deep (an elevation of -135 to -150 meters [-440 to -500 feet]) and slopes gently to the east/southeast. A sequence of Holocene- and Pleistocene-age marine and alluvial sediments overlie the bedrock. The subsurface soils vary and consist of generally less than 3 meters (10 feet) of loose, sandy fill that is underlain by a very soft, saturated layer of Bay mud that extends down to approximately 12 meters (40 feet).^, In other areas, the soil is composed of coarser grain sediments that include various amounts of gravel. The primary material in the underlying Merritt-Posey-San Antonio Formation at the Oakland Touchdown is a layer of dense sand of approximately 4.5 to 6.1 meters (15 to 20 feet) thick. A north-south trending paleochannel exists under the Oakland Touchdown area. This paleochannel does not appear to contain alluvial sands.

Tsunamis are seismically induced "sea waves" that are generated when large subsea earth or rock masses are displaced during earthquakes or very large landslides. The low-amplitude, very-long-period waves travel very quickly and increase significantly in size and height upon entering shallow water. The waves can cause significant damage to coastal areas.

A map prepared in 1972 by the U.S. Geological Survey (USGS), entitled "Maps Showing Areas of Potential Inundation by Tsunamis in the San Francisco Bay Region, California," shows the Oakland Touchdown area would be inundated with about 3.1 to 3.7 meters (10 to 12 feet) of water if a 6.1-meter (20-foot) wave were to occur at the Golden Gate. (A 6.1-meter [20-foot] wave approximates the run-up that occurred at Crescent City, California, due to the 1964 Alaska earthquake.) Given the hypothetical nature of the information, it is likely the inundation level at the Oakland Touchdown area would be lower, at a level closer to 1 meter (3.3 feet).

According to the USGS map, the portion of the bridge on YBI would not be inundated by a 6.1-meter (20-foot) tsunami, although lower-lying fill areas such as the USCG station could be subject to damage.

Federal

The discharge of any pollutants to waters of the United States is regulated, under the Federal Water Pollution Control Act, by the National Pollutant Discharge Elimination System (NPDES) Program. The U.S. Environmental Protection Agency (EPA) administers the NPDES program in the nation, and it has given regulatory authority to those states with a local regulatory body. (See State discussion below for further details.)

Sections 401 and 404 of the Federal Clean Water Act also apply to the San Francisco-Oakland Bay Bridge (SFOBB) East Span Project. Under the Section 401 Water Quality Certification Program, every applicant for a federal permit or license for an activity which may result in a discharge into a water body must request state certification that the proposed activity will not violate state and federal water quality standards. Section 404 authorizes the U.S. Army Corps of Engineers (ACOE) to issue permits regulating the discharge of dredged or fill material into the waters of the U.S., including wetlands.

Section 9 of the Rivers and Harbors Act of 1899 is another federal regulation that would apply to the East Span Project. Section 9 prohibits the construction of any bridge, dam, dike, or causeway over or in navigable waterways of the U.S. without Congressional approval. Administration of Section 9 has been delegated to the U.S. Coast Guard (USCG).

The Coastal Zone Management Act created a broad program based on land development controls within coastal zones. Implementation occurs through individual state programs, as discussed below.

In the State of California, under the Porter-Cologne Water Quality Control Act, the State Water Resources Control Board has the ultimate authority over state water rights and water quality policy. The NPDES program in California is implemented by the State Water Resources Control Board through its nine Regional Water Quality Control Boards (also established under the Porter-Cologne Act).

An NPDES permit is required for any proposed waste discharges or storm water discharges from municipal areas with populations of 100,000 or more to surface waters and from construction activities disturbing 2 hectares (5 acres) or more of land. The East Span Project is located within the boundaries of the San Francisco Bay Regional Water Quality Control Board (RWQCB) and requires an NPDES permit. Caltrans District 4 currently operates under NPDES Permit No. CAS029998, which covers all Caltrans activities within the boundaries of the RWQCB’s jurisdiction. As a result, the East Span Project is covered under this NPDES permit.

The RWQCB has adopted a Water Quality Control Plan for the San Francisco Bay Basin (Basin Plan), which sets forth water quality objectives to protect and enhance the beneficial uses of the Bay and its tributaries. Beneficial uses of the waters in the San Francisco Bay include commercial and sport fishing, estuarine habitat, industrial service and process supply, fish migration, navigation, preservation of rare and endangered species, recreation, shellfish harvesting, fish spawning, and wildlife habitat. Water quality objectives include parameters such as bacteria, bioaccumulation, biostimulatory substances, color, dissolved oxygen, floating material, oil and grease, population and community ecology, pH, salinity, sediment, suspended material, settleable material, sulfide, temperature, toxicity, turbidity, and un-ionized ammonia.

The California Coastal Act (CCA) is California’s coastal zone management program. The CCA established the California Coastal Commission as having jurisdiction over California’s coastal zone. The San Francisco Bay Conservation and Development Commission (BCDC) issues federal consistency determinations under the Coastal Zone Management Act for projects within its jurisdiction. The East Span Seismic Safety Project is within BCDC’s jurisdiction. Project compliance with the Coastal Zone Management Act is addressed through BCDC’s permitting process. Caltrans will obtain a consistency determination from BCDC prior to the project construction.

The McAteer-Petris Act created the BCDC as a response to haphazard and uncoordinated filling of the San Francisco Bay. The primary purpose of the act is to promote responsible planning and regulation of the San Francisco Bay. The act emphasizes the elimination of the unnecessary placement of fill in the Bay, the use of the Bay for water-oriented uses, and the inclusion of public access consistent with a proposed project. In 1968, BCDC prepared the federally approved San Francisco Bay Plan which established policies to guide development in and along the Bay through a permitting process (see Section 3.1.3). The act requires that a project have permits to fill, to extract materials, and to make substantial changes in use of land, water, or existing structures in the Bay.

The San Francisco Bay has a drainage area of many thousand square kilometers (miles). It is the primary point of outfall to the Pacific Ocean for a large portion of California.

Flood flows are not defined beneath the SFOBB. The influence of flood flows on the project area is minimal because of the location in relation to the tributary streams to the San Francisco Bay.

Central San Francisco Bay, in the vicinity of the East Span Project, is influenced by the tides of the Bay. The frequency and height of tides throughout the Bay have been estimated by the ACOE. Table 3.8-1 summarizes the tidal elevations for the Bay, as measured at two tide measuring stations in the project area.

Source: U.S. Army Corps of Engineers, 1984.

The high tide elevations presented in Table 3.8-1 are based on historical tidal data. The EPA and other agencies believe that concentrations of atmospheric gases will continue to increase in the coming decades, resulting in global warming and subsequent thermal expansion, which will cause the sea level to rise. The ACOE has made an attempt to adjust the predicted tidal elevations based on historical data to include this expected increase in sea level. Table 3.8-2 shows high tide elevations that have been adjusted for expected increases in sea level.

Source: U.S. Army Corps of Engineers, 1984.

Notes: Year 2000 estimated rise 0.09-0.12m (0.3-0.4ft); Year 2050 estimated rise 0.52-0.80m (1.7-2.6ft).

Elevations per NGVD (National Geodetic Vertical Datum).

The surface water body in the project area is the Central San Francisco Bay, which connects to the Pacific Ocean through the Golden Gate Channel. Surface runoff from the project area flows directly or indirectly into the Central San Francisco Bay. The surface runoff is composed of freeway runoff from the SFOBB and I-80 and the toll plaza, urban runoff from adjacent streets, and the land runoff from adjacent industrial sites and open areas. Other discharges to the Central San Francisco Bay include discharges from municipal wastewater treatment plants, discharges from dredging operations, and discharges from other industrial processes.

Surface water quality throughout the estuary (San Francisco Bay) has been evaluated, to a limited extent, by the San Francisco Estuary Institute (SFEI), through the Regional Monitoring Program (RMP). The YBI station is located in the project area. In addition, three other stations are located in the vicinity of the project study area. These stations are: Alameda Station, located upstream of the project area; Point Isabel Station, located downstream of the project area toward the central Bay, and Horseshoe Bay Station, located downstream of the project area toward the Golden Gate Channel.

The SFEI 1996 Annual Report covers the fourth year of the RMP. The results for the 1996 study period indicate that, in general, there are water quality variations from season to season. Table 3.8-3 presents a summary of the concentrations of various pollutants in the Central Bay monitored in 1996.

The east end of the project, at the Oakland Touchdown, lies over the East Bay Plain groundwater basin in Alameda County. Existing and potential beneficial uses of this regional basin include municipal and domestic water supply, industrial service water supply, industrial process water supply, and agricultural water supply. The East Bay Plain extends over an area of 295 square kilometers (114 square miles), with an average depth to aquifer below land surface ranging between 8 meters (25 feet) and 183 meters (596 feet), and a storage capacity of 3.4 billion cubic meters (2,770,000 acre-feet).

RWQCB groundwater quality objectives consist primarily of narrative objectives with a limited number of numerical objectives. The maintenance of existing groundwater quality is the primary objective. In addition, at a minimum, groundwater shall not contain concentrations of bacteria, chemical constituents, radioactivity, or substances producing taste and odor in excess of the objectives unless naturally occurring background concentrations are greater. In the central groundwater basin, which contains the East Bay Plain, the nitrate concentration shall be less than 45 mg/L and the concentration of total dissolved solids (TDS) shall be less than the background concentration or 500 mg/L, whichever is lower. Additionally, the RWQCB has the authority to establish basin and/or site-specific numerical groundwater objectives as necessary.

Source: Caltrans District 4, April 1998.

Note: ug/L = microgram per liter

This section addresses existing vegetation communities and associated wildlife, special status plant and wildlife species, wetlands, and non-wetlands waters of the United States that occur in the project area. Detailed survey information is provided in the Natural Environment Study and Biological Assessment.

Natural resources in the project area were evaluated in accordance with the provisions of state and federal environmental statutes and regulations. These include the Federal Endangered Species Act of 1973, as amended, the California Endangered Species Act of 1985, the Clean Water Act (Section 404), the Federal Rivers and Harbors Act of 1899, the Marine Mammal Protection Act, the Migratory Bird Treaty Act, the McAteer-Petris Act, the National Environmental Policy Act, and Executive Order 11990 (Protection of Wetlands).

Most of the terrestrial vegetation within the project area consists of non-native plant species. Patches of native vegetation occur on Yerba Buena Island (YBI) and include coast live oak woodland, northern coastal scrub, and northern coastal saltmarsh. Mudflats in the study area are found along the south side of YBI and along the north side of the Oakland Touchdown area. The Oakland Touchdown area consists primarily of ruderal vegetation, occurring at the Oakland Army Base property. Small patches of northern foredune and landscaped vegetation occurs along the north side of the Oakland Touchdown area. Figures 3-17 and 3-18 in Appendix A show the habitat types in the project area. Terrestrial vegetative communities and associated wildlife species are summarized below.

Typical landscaped species found on YBI include Tasmanian blue gum (Eucalyptus sp.), German ivy (Senecio mikanioides), and Monterey cypress (Cupressus macrocarpa). Native plant species are largely excluded from these areas due to several factors, including lack of light due to the density of the overstory canopy, accumulation of debris from overstory trees, human disturbance, and poor soil conditions. Landscaped vegetation is not considered to be sensitive habitat for plant or wildlife species. Common wildlife species that occur in landscaped areas include the European starling (Sturnus vulgaris), house sparrow (Passer domesticus), Anna’s hummingbird (Calpte anna), Virginia opossum (Didelphis virginiana), Norway rat (Rattus norvegicus), and striped skunk (Mephitis mephitis).

Areas that have been heavily disturbed contain ruderal vegetation generally characterized by herbaceous, non-woody species. This vegetation occurs along the Oakland Touchdown area on the Oakland Army Base property. Hard-packed mud areas occur within this vegetation and provide valuable upland resting areas, refugia, for shorebird species during high tides. Some of the shorebird species known to use these areas include western sandpiper (Calidris mauri), semipalmated plover (Charadrius semipalmatus), and dunlin (Calidris alpina).

Only a few tree and shrub species that are associated with coast live oak woodland occur in small patches on YBI, near Macalla Road. Species present include toyon (Heteromeles arbutifolia), blue elderberry (Sambucus sp.), California hazelnut (Corylus cornuta), and a few California buckeye (Aesculus californica). Understory plant species observed include native species such as poison oak (Toxicodendron diversilobum) and California blackberry (Rubus ursinus). Non-native plant species observed within the coast live oak woodland include German ivy, Himalayan blackberry (Rubus discolor), and Tasmanian blue gum.

Typical wildlife species associated with coast live oak woodland include northern flicker (Colaptes auratus), mourning dove (Zenaida macroura), western gray squirrel (Sciurus griseus), western fence lizard (Sceloporus occidentalis), and gopher snake (Pitouphis melanoleucus).

A few patches of northern coastal scrub occur on steep bluffs along the east end of YBI. The dominant plant species in this area is California sagebrush (Artemisia californica). Common plant species include farinosa dudleya (Dudleya farinosa), yarrow (Achillea millefolium), and seaside woolly sunflower (Eriophyllum staechadifolium). Wildlife species that could be expected to occur in coastal scrub habitat include white-crowned sparrow (Zonotrichia leucophrys), bewick’s wren (Thryomanes bewickii), and vagrant shrew (Sorex vagrans).

A small narrow band of northern coastal salt marsh occurs on the northern side of YBI. Dominant plant species include pickleweed (Salicornia virginica) and saltgrass (Distichilis spicata). Animals that have the potential to occur within coastal salt marsh vegetation, including the northern salt marsh harvest mouse, do not occur within this narrow band of habitat because of its small size.

This vegetative community also occurs within the Emeryville Crescent, adjacent to the Oakland Touchdown area, outside of the project area. Salt marsh habitat along the Emeryville Cresent provides important breeding and foraging habitat for a variety of migratory and resident wildlife species. Migratory bird species common to salt marsh habitat include northern pintail (Anas acuta), mallard (Anas platyrhynchos), least sandpiper (Calidris minutilla), and willet (Catoptrophorus semipalmatus). Resident species that commonly use this habitat include great blue heron (Ardea herodias), marsh wren (Cistothorus palustris), red-winged blackbird (Agelaius phoeniceus), and California red-backed vole (Clethrionomys californicus).

A patch of northern foredunes is located on the northern shoreline of the Oakland Touchdown area at Radio Point Beach. The dominant plant species include beach bur (Ambrosia chamissonis), fig-marigold (Carpobrotius edulis), and saltgrass. A band of marsh gumplant (Grindelia stricta var. angustifolia), a California Native Plant Society (CNPS) List 4 species, occurs in a depression behind the foredune area. This area is bound by potential jurisdictional wetlands and large patches of fig-marigold.

Within the project area, mudflats are found along the northern side of the Oakland Touchdown area and on the southern side of YBI. Mudflats are exposed at extremely low tides and inundated at high tides. Mudflats are either unvegetated or vegetated only by algal mats (40 CFR 230.42). Mudflat areas around the Bay and near the project area provide important feeding habitat during the winter months for many species of shorebirds.

The San Francisco-Oakland Bay Bridge (SFOBB) is located in the middle of the San Francisco Bay Estuary. The estuary is commonly divided into several segments (listed from north to south): the Suisun Bay, Carquinez Strait, San Pablo Bay, Central Bay, and South Bay. The San Francisco Bay Estuary sits at the terminus of the Sacramento-San Joaquin Delta, a drainage basin system which covers 40 percent of the land area of California. The San Francisco Bay Estuary and the Sacramento-San Joaquin Delta together form one of the largest estuarine systems in North America. Aquatic habitats in the estuary range from deep channel bottoms to shallow marsh pools.

Several species of waterfowl use this habitat in the winter months, including lesser scaup (Aythya affinis), surf scoter (Melanitta perspicillata), and canvasback (Aythya valisineria). Other avian species that are often observed in the project area include brown pelican (Pelecanus occidentalis) and western gull (Larus occidentalis). A common marine mammal found foraging in the project area is the harbor seal (Phoca vitulina).

The SFOBB is located in the Central Bay segment of the San Francisco Bay Estuary. The Central Bay is characterized by waters that are cold, saline, and low in total suspended sediment. This section of the estuary is strongly influenced by tidal currents, due to its proximity to the Pacific Ocean. Fish swim through the Central Bay on their way to and from the entrapment zone, an area where fresh water flows from the Delta mix with brackish water flows from the estuary, trapping sediment and phytoplankton in the water column. Because nutrients and phytoplankton are concentrated in this area, it is considered to be especially important to fish species which come to this area to feed. The location of the entrapment zone fluctuates within the estuary as freshwater outflow from the Delta changes in volume. Open water is the largest natural habitat found in the project area.

Fisheries. Although most populations of Bay/Delta fish species have been severely reduced, several species of anadromous, marine, and estuarine species use the Bay/Delta for part of their life cycle. Anadromous species in the Central Bay, such as the native Chinook salmon (Oncorhynchus tshawytscha) and delta smelt (Hypomesus transpacificus), migrate through the open water areas of the Bay on their way to and from the tributaries of the Delta. Marine species common to the Central Bay include the Northern anchovy (Engraulis mordax) and Pacific herring (Clupea harengeus).

Plankton. Phytoplankton in the San Francisco Bay Estuary are consumed by organisms including clams, worms, mussels, and shrimp-like zooplankton called copepods. Zooplankton, in turn, are consumed by a variety of fish species and are especially important to the survival of juvenile fish. Important species of zooplankton in the Central Bay include the ghost shrimp and the shrimp-like euphausiids, commonly known as krill. Phytoplankton growth in the Bay is controlled primarily by the availability of light required for photosynthesis. A combination of factors, including water depth and transparency, river inflow, and freshwater export from the Delta, influence the ability of phytoplankton to receive adequate light for photosynthesis. These factors influence the productivity and concentrations of phytoplankton throughout the various regions of the Bay. Phytoplankton levels in the Central Bay generally remain low due to the high degree of tidal water exchange and mixing. However, diatoms may become abundant in the Central and South Bays during the spring when diatom blooms are occurring in coastal waters due to upwelling.

Benthos. Benthic organisms are filter feeders that strain phytoplankton and detritus from the water column and graze on nutrients that fall to the bottom sediment. A broad range of species are commonly found in the Bay along mudflats, the bottom of open water areas, and on hard surfaces below the intertidal zone. Some benthic organisms, such as worms, burrow into the bottom sediment and others, such as oysters, crabs, flat worms, and copepods, live on the sediment surface. Others, including mussels, live on hard surfaces such as rocks and pilings. Existing submerged bridge structures and rocky outcrops may provide substrate for benthic invertebrates, including the bay mussel.

Wetland resources in the project study area include "special aquatic sites" regulated by the Army Corps of Engineers (ACOE) under Section 404 of the federal Clean Water Act and waters of the U.S. regulated under Section 10 of the Rivers and Harbors Act. Special aquatic sites found in the project area include wetlands, mudflats, and vegetated shallows such as eelgrass in estuarine systems. A delineation of jurisdictional wetlands, mudflats, and eelgrass beds was conducted in the project area. Potential jurisdictional wetlands were delineated in the field using methods outlined in the ACOE Wetland Delineation Manual. Jurisdictional wetlands are defined when three conditions exist: 1) presence of hydric soils, 2) presence of ponded water during the growing season, and 3) presence of hydrophytic vegetation. Eelgrass beds were delineated in the field during Mean Low Water (MLW) when the potential for observing the edge of eelgrass beds or individual stands is easiest. Fathometer surveys and bottom grab samples were taken when eelgrass was not apparent on the water surface or when visibility was not suitable to determine eelgrass distribution. Eelgrass beds are present in the San Francisco Bay Estuary from Mean Lower Low Water (MLLW), elevation -0.9 meter (2.87 feet) NGVD to 1.5 meters (5 feet) below MLLW.

Mudflats were delineated and are present in the project area between the Mean High Water (MHW) line, elevation at 0.8 meter (2.63 feet) NGVD, and the MLLW. Special aquatic sites and waters of the U.S. in the project area are shown on Figures 3-19 and 3-20 in Appendix A. The following is a description of the wetlands, mudflats, eelgrass beds, and waters of the U.S. in the project area.

The total area of jurisdictional wetlands in the project area is 0.06 hectare (0.15 acre). There are three wetland sites in the project area. One wetland site is a narrow strip located along the high tide line of Radio Point Beach. Approximately 0.01 hectare (0.03 acre) of this wetland is within the project study area and another 0.01 hectare (0.03 acre) extends beyond the project area boundary to the northeast. Vegetation in this area consists of saltgrass and searocket (Cakile maritima), both considered wetland indicator species. This vegetation is growing at or slightly above the high tide line. A muted-tidal wetland occurs behind the foredune area outside of the project area (wetland sample point B-1). A small non-tidal wetland area occurs within the project area on Port of Oakland property, located just south of the existing highway. The wetland area at this site is 0.03 hectare (0.07 acre) and includes rabbit foot grass (Polypogon monspeliensis), a wetland indicator species. This site appears to have been recently used for construction staging and storage, and it is likely that the topographic depression was created by these activities. West of this site exists another non-tidal wetland area also located on Port of Oakland property. This wetland is 0.02 hectare (0.03 acre) and consists of wetland indicator plants, including buttons (Cotula coronopifolia), sourclover (Melitotus indica), and rabbit foot grass.

Another small band of tidal wetlands occurs on the north side of YBI. This wetland band extends for approximately 90 meters (295 feet) along the high-tide line and is approximately 1 meter (3.28 feet) wide. The total wetland area is approximately 0.01 hectare (0.03 acre). Wetland vegetation in this wetland area is comprised of pickleweed, fat hen (Atriplex triangulars), and saltgrass. This wetland area is described as northern coastal salt marsh in Section 3.9.2. Animal species associated with northern coastal salt marsh vegetation do not occur within this narrow band of wetland due to its small size.

Wetlands possess unique functions and values that vary depending on the type of wetland, its size, surrounding land uses, and the degree to which it has been previously disturbed. Wetland functions are defined as the physical, chemical, and biological attributes of a wetland, such as flood storage, species habitat, or groundwater discharge. Other functions of wetland may have specific "values" that are considered beneficial to society, such as groundwater recharge, recreation, or aesthetics. Each wetland type was evaluated separately to determine general wetland functions and values. The following are a few standard functions used to assess each wetland type:

• Wildlife diversity/abundance,
• Aquatic diversity/abundance,
• Uniqueness/heritage.

The tidal wetlands present in the project study area are likely to be remnant wetlands surrounded by non-native species. Compared to the tidal wetlands located in the Emeryville Crescent, tidal wetlands in the project area do not provide extensive habitat for wildlife and, therefore, functions and values are limited. The non-tidal wetland area is also characterized by limited functions and values due to the lack of wetland species diversity and human disturbance. This wetland area is unlikely to provide habitat for wildlife species.

Mudflats occur along the north side of the Oakland Touchdown area at the eastern bridge abutment and along the southeast side of YBI, east of the Coast Guard station. Approximately 1.2 hectares (2.97 acres) of mudflats are located between Radio Point Beach and the eastern bridge abutment. An additional 0.06 hectare (0.15 acre) of mudflats is located along the beach, east of the Coast Guard station on YBI. The mudflat areas located along the north side of the Oakland Touchdown area and along the southeast side of YBI provide a high level of functions and values as foraging habitat for a variety of bird species.

Eelgrass beds are known to occur in shallow waters within the project area. These areas are considered special aquatic sites under Section 404 of the federal Clean Water Act. Eelgrass provides important nursery habitat and protection for many fish and invertebrate species. In addition, avian species are often observed foraging among vegetated shallows. Eelgrass vegetates shallow, gradually sloping sand, sand/mud, and sand/shell debris habitats. A delineation of eelgrass beds was performed for the project area; locations of eelgrass beds are shown on Figures 3-17 and 3-18 in Appendix A. The distribution of eelgrass on the north side of the Oakland Touchdown area extends in depths ranging from about 1.1 to 1.5 meters (3.5 to 5.0 feet). Eelgrass beds in this area are patchy, occurring within 3.0 to 4.6 meters (10 to 15 feet) of each other. This eelgrass bed contained individual patches of eelgrass varying from 1.5 to 3.6 meters (5 to 12 feet) in diameter. Eelgrass near the shore of the Oakland Touchdown appears to be young, which suggests that the eelgrass bed is growing in size and density.

Four eelgrass bed areas were delineated near YBI. Eelgrass beds in this area occur in a continuous manner along the edge of the shoreline and extend to areas no greater in depth than 1.1 to 1.5 meters (3.5 to 5.0 feet).

Approximately 1.5 hectares (3.6 acres) occur adjacent to YBI and approximately 22.3 hectares (55.1 acres) occur north of the Oakland Touchdown area.

Waters of the U.S. within the study area include "waters…that are subject to the ebb and flow of the tide shoreward to the Mean High Water mark" and are used to transport interstate or foreign commerce, as described under Section 10 jurisdiction (33 Code of Federal Regulation Part 322.2). The waters of the U.S. also provide valuable habitat for aquatic organisms and wildlife. The project area is bisected by a navigation channel that is under the jurisdiction of the USCG. Section 10 jurisdiction extends to the mean high water mark on the north and south sides of the SFOBB. Section 404 jurisdiction extends to the High-Tide Line (HTL) on the north and south sides of the bridge. Special aquatic sites, including mudflats and eelgrass beds, are under Section 10 and Section 404 jurisdiction.

Areas subject to jurisdiction of Bay Conservation and Development Commission (BCDC) under the McAteer-Petris Act extend to all areas of the Bay that are subject to tidal action, including a 30.5-meter (100-foot) shoreline band surrounding the Bay from the Mean High Water mark. In addition, BDCD’s San Francisco Bay jurisdiction includes subtidal areas, intertidal areas, and tidal marsh areas which are between mean high tide and 1.5 meters (5 feet) above the MSL. For the SFOBB project, the area subject to BCDC jurisdiction includes the YBI and Oakland Touchdown area shoreline.

Special status species include plant and wildlife species protected under federal and state Endangered Species Acts, Migratory Bird Treaty Act, and the Marine Mammal Protection Act. This section identifies special status plant and wildlife species with potential to occur in the vicinity of the project area, as documented by lists compiled from various sources. Based on those lists, surveys were conducted of the habitat in the project area and consultation with other biologists were completed to identify specific species and habitats potentially impacted by the project alternatives. Many of the species identified through these sources have the potential to occur within the greater regional area but are not present within the project area due to the lack of suitable habitat. A comprehensive list of special status species is provided in Tables 3.9-1 and 3.9-2.

A list of special status plant species, shown in Table 3.9-1, contains 42 species that have the potential to occur in the East Span Project area. This list was compiled based on the list of species provided by U.S. Fish and Wildlife Service (USFWS), literature review, a review of the California Natural Diversity Database (CNDDB), and California Native Plant Society’s (CNPS’s) Inventory database. The CNPS is an independent organization that reviews and maintains information on rare native plants in California. In an effort to categorize degrees of concern for rare plants, the CNPS developed five lists which indicate rarity and endangered plants. The first two categories, List 1B and List 2, meet CEQA criteria for plants listed as rare, threatened, or endangered. Included in this list is a CNPS List 4 category which includes plants of limited distribution and are considered significant species locally.

Surveys for plants were conducted in Fall 1997 and Spring 1998 to assess the known and potential occurrence of threatened and endangered species. Survey dates were selected to optimize the likelihood of observing target species during their blooming period. Several plant species have the potential to occur due to presence of marginal supporting habitat. The results of the surveys indicate that only the marsh gumplant occurs in the project area. A brief description of the marsh gumplant is provided below.

Marsh Gumplant. Marsh gumplant is included on List 4 of the CNPS Inventory. It has no federal or state status. This species was observed during botanical surveys on the northern portion of the YBI and the Oakland Touchdown. The marsh gumplant may provide nesting habitat for the Alameda song sparrow.

A list of special status species, shown in Table 3.9-2, contains 70 species that have the potential to occur in the vicinity of the East Span Project area. These species were compiled based on the list of species provided by the USFWS and NMFS, a literature review, and a review of the CNDDB. Of the 70 special status wildlife species thought to occur in the vicinity of the project area, only 16 wildlife species have the potential to occur in the project area because suitable or marginally suitable supporting habitat is present.

Surveys for wildlife and aquatic species were not conducted for this project, given the availability of information from previous studies, including avian surveys, entomology field surveys, and reptile and amphibian surveys. A brief description of wildlife species known to occur in the project area is provided below.

Harbor Seal (Phoca vitulina). Harbor seals are protected from harassment under the Federal Marine Mammal Protection Act of 1972, as amended. Foraging sites are generally close to shore where medium-sized fish in addition to bivalves, crab, octopus, herring, and squid are taken as prey. Harbor seals use the south side of YBI as a haul-out site year-round. This site is located approximately 305 meters (1,000 feet) from the nearest construction limit boundary.

American Peregrine Falcon (Falco peregrinus anatum). Two pairs of peregrine falcon nest and roost on the SFOBB. One pair nests on the West Span and one pair on the East Span. Courtship behavior and other nesting activities can begin as early as December for these pairs. Eggs are usually laid in early March, and the young generally fledge in the third week of May.

Saltmarsh Common Yellowthroat (Geothlypis trichas sinuosa). The saltmarsh common yellowthroat inhabits fresh and brackish wetland areas as well as upland habitat throughout the San Francisco Bay Area. Saltmarsh common yellowthroats use the Emeryville Cresent as wintering habitat. Observations of three individuals perched on gumplant (Grindelia sp.), located adjacent to the SFOBB Toll Plaza, were made in December 1989 by Caltrans environmental staff.

Alameda Song Sparrow (Melospiza melodia pusillula). The Alameda song sparrow prefers fresh, brackish and salt marsh habitats. Alameda song sparrow occurs in coastal salt marsh habitat at the Emeryville Crescent, adjacent to the SFOBB Toll Plaza. There have been no observations of the Alameda song sparrow nesting in the project area; however, marsh gumplant, which occurs on the north side of the Oakland Touchdown and the YBI, may provide nesting habitat for the Alameda song sparrow. The Alameda song sparrow has been observed perching on individual gumplants within the project area.

Double-crested Cormorant (Phalacrocorax auritus). This species breeds in dense colonies that can be found on rocky coasts and offshore islands, as well as on inland lakes, and rivers. Cormorants have the ability to nest at any time during the breeding season if the first nesting attempt is unsuccessful. Therefore, nests may be active any time between March and September. Double-crested cormorants have been known to nest on the East Span of the SFOBB since 1984. The colony of double-crested cormorants includes 400 to 600 nesting pairs. Higher concentrations of nesting pairs occur between Piers E5 and E15.

California Brown Pelican (Pelecanus occidentalis californicus). The California brown pelican is known to rest on bridge footings and forage within the project area. No known nest sites occur in the project area. Activity near the bridge structure during any of the proposed project actions would discourage pelicans from resting or foraging near the existing bridge.

Western Gull (Larus occidentalis). The western gull is protected under the Migratory Bird Treaty Act. Western gulls nest on the pier footings of the SFOBB West Span and have the potential to nest on the footings of the East Span.

California Clapper Rail (Rallus longistostris obsoletus). The California clapper rail is a year-round resident of coastal salt marshes. Individuals hide their nests among a canopy of wetland vegetation dominated by pickleweed and cordgrass. They feed during low tides when invertebrates and seeds are most easily obtained. Clapper rails are most commonly found in the South Bay and Suisun marsh areas of San Francisco Bay. This species is known to occur in the Emeryville Crescent area, located outside of the study area.

California Least Tern (Sterna antillarum browni). The California least tern nests in colonies on bare or sparsely vegetated areas near the coast. This species is found in the San Francisco Bay Area during the breeding season from May through August. The closest known nesting sites are located on the Oakland Army Base and at the Alameda Naval Air Station. Nesting habitat which supports the California least tern is not located within the study area.

Shorebirds. Shorebirds are protected under the Migratory Bird Treaty Act. Shorebirds that are known to occur in the project area include western sandpiper (Calidris mauri) and black-bellied plover (Pluvialis squatarola). A strip of Oakland Army Base property located on the south side of the Oakland Touchdown is known to provide upland resting habitat for large concentrations of shorebirds during high tides. As a result of development around the Central Bay, limited upland resting areas remain available for shorebird use during the winter season.

Central Valley and Central California-Coast Steelhead (Oncorhynchus mykiss). Steelhead, the anadromous form of rainbow trout, inhabit the Sacramento, Stanislaus, Tuolumne, and Merced Rivers and the mainstem of the San Joaquin River. The life history of steelhead is similar to that of chinook salmon, with two major differences. First, steelhead do not necessarily die after spawning, thus maintaining their ability to return to the Pacific Ocean after spawning in freshwater. Second, juvenile steelhead may spend up to four years rearing in freshwater prior to emigrating to the ocean as smolts. Typically, Sacramento steelhead emigrate as age 1 fish (one year in fresh water) through San Francisco Bay and the Sacramento-San Joaquin Estuary from November through May.

Steelhead populations in the Central California Coast ESU (Evolutionary Significant Unit) have been listed by the NMFS as threatened under the Federal Endangered Species Act (62 No. 159) and are proposed as endangered in the California Central Valley ESU. Steelhead migration periods are similar to the winter-run chinook salmon which inhabit shallow water habitat during foraging.

Winter-run, Fall-run, Spring-run Chinook Salmon (Oncorhynchus tshawytscha). Chinook salmon are anadromous, spending three to five years at sea before returning to freshwater to spawn. San Francisco Bay serves as a conduit through which all adult salmon must pass to reach their upstream spawning grounds. Additionally, juvenile "smolt" salmon utilize the Bay as a migration corridor to reach the Pacific Ocean. Smoltification is the physiological acclimation of juvenile salmon to full-strength sea water which occurs after completion of the freshwater rearing phase. The chinook salmon population in San Francisco Bay and the Sacramento-San Joaquin Estuary is comprised of four races: fall-run, late fall-run, spring-run and winter-run. Each of these spawning populations is separated based on the timing of adult upstream migration, spawning, and juvenile downstream migration. The winter-run is federally listed as endangered, the spring-run is listed as federally proposed endangered, and the fall-run is listed as proposed threatened.

The federal and state endangered winter-run chinook salmon migrate as adults through San Francisco Bay and the Sacramento-San Joaquin River Estuary from December through April. Spawning is confined to the mainstream Sacramento River and occurs from mid-April through mid-July, peaking in May and June. Winter-run fry emerge from the gravel from July through October and rear to smoltification in the Sacramento River upstream from the Delta. However, in years of high Delta outflow, fry may emigrate to the estuary. Generally, the period of peak outmigration through San Francisco Bay and the Sacramento-San Joaquin Estuary is between January and April. The area of designated winter-run critical habitat includes all of San Francisco Bay north of the SFOBB.

The spring-run chinook salmon enters the Sacramento River from March to July and spawns from late August through early October, with a peak in September. The fall-run chinook salmon enters the Sacramento and San Joaquin Rivers from July through April and spawns from October through February. Both runs exhibit an ocean-type life history, emigrating as fry, subyearlings, and yearlings. Winter-run, spring-run, and fall-run chinook salmon have the potential to occur in the study area.

Green Sturgeon (Acipenser medirostris) and Longfin Smelt (Sprinchus thaleichtys). Habitat for the green sturgeon and longfin smelt does not occur in the project study area; however, it has the potential to occur during years of high amounts of rain.

Pacific Herring (Clupea harengeus). Pacific herring is a small schooling marine fish which enters estuaries and bays to spawn. Pacific herring spawn from late October through March. This species spawns in both subtidal and intertidal habitat. In San Francisco Bay, about 50 to 70 percent of spawning occurs in the subtidal zone.

The project area contains both historic and current spawning habitat. Pacific herring utilize eelgrass for spawning substrate, but due to the paucity of eelgrass in San Francisco Bay, other marine vegetation (seaweeds), pilings, and rocks are also used for egg attachment. Herring may spawn on sandy substrates, but in San Francisco Bay, herring have not been observed to spawn on mudflats lacking vegetation. After spawning, Pacific herring return to their ocean feeding grounds. After hatching, larval herring generally remain in the estuary or bay in which they were spawned, before migrating to the ocean in the fall.

Early life stages of herring development are sensitive to environmental and human-induced stress, including non-suitable levels of water temperature, salinity, dissolved oxygen concentrations, suspended sediments, and toxic contaminants. Eelgrass beds suitable for herring spawning occur within the project study area.

Abbreviations:

Source: Natural Environmental Study, August 1998

Table 3.9-2

A cultural resources investigation was conducted in accordance with Section 106 of the National Historic Preservation Act and implementing regulations (36 CFR 800) to document the findings summarized below. On February 18, 1998, Caltrans, in conjunction with the FHWA, established an Area of Potential Effects (APE) wide enough to include all project alternatives, design options, and potential construction easements. The area was surveyed to identify cultural resources including archaeological and historic sites or properties. Accordingly, an Archaeological Survey Report (ASR), Historic Architecture Survey Report (HASR), Historic Properties Survey Report (HPSR), and Finding of Effects Report were prepared for review by the State Historic Preservation Officer (SHPO).

Cultural resources investigations for the East Span Project build on previous research conducted in 1997 by the U.S. Navy for the Naval Station Treasure Island Disposal and Reuse Project and prior Caltrans investigations for seismic retrofit work on the existing SFOBB published in 1997. These investigations and research for the East Span Project have resulted in the identification of cultural resources that are either listed on or determined eligible for listing on the National Register of Historic Places (NRHP). The SHPO has concurred with the findings of these previous investigations and with the eligibility evaluations prepared for the East Span Project.

The evaluation of NRHP eligibility is made by applying the Criteria of Evaluation codified in 36 CFR 60.4 as follows:

• The quality of significance in American history, architecture, archaeology, engineering, and culture is present in districts, sites, buildings, structures, and objects that possess integrity of location, design, setting, materials, workmanship, feeling, and association, and that

2. Are associated with the lives of persons significant in our past; or
3. Embody the distinctive characteristics of a type, period, or method of construction, or that represent the work of a master, or that possess high artistic values, or that represent a significant distinguishable entity whose components may lack individual distinction; or

4. Have yielded or may be likely to yield information important in history or

The results of archaeological and historic architectural investigations are presented in the following sections.

The presence of one archaeological site, CA-SFr-04/H, which has both a prehistoric and historic component, has been recorded within the APE. The prehistoric component of this site is a contributing element to the potential eligibility of the site under Criterion D. Native American burials were reported to have been removed from this site by the University of California in 1934. Since CA-SFr-04/H has contained and may again yield human remains, its potential significance may extend beyond Criterion D.

The historic component of CA-SFr-04/H, related to the Naval Training Station, was determined to be a non-contributing element for potential eligibility to the National Register. Archival research does indicate, however, that there is a potential for eligible historical archaeological resources within the APE which are related to the American Period and associated with the presence of the Army Post and Depot and civilian occupation. Further historical archaeological research will be necessary to gather additional information related to the possible preservation of American Period resources, both on land and on the bay bottom within the footprint of the SFOBB East Span alternatives, and to determine eligibility. The State Historic Preservation Officer concurred with these findings on August 13 and 21, 1998. See Appendix G for SHPO views on eligibility.

The APE was occupied in prehistoric times by members of the Huchiun tribelet of the Ohlone (Costanoan) group. A list of interested Native Americans was provided by the Native American Heritage Commission prior to a field test of CA-SFr-04/H in March 1998. This test confirmed the integrity of the prehistoric component and established the vertical and horizontal boundaries of the deposit. All parties on the list were contacted in order to solicit their views regarding the field test. A Native American monitor was on site during archaeological field test investigations. Coordination will continue with interested Native Americans.

No historic or prehistoric resources were identified within the Oakland Touchdown area of the APE and this area is considered to possess no archaeological sensitivity. Refer to Appendix G for the views of the SHPO on archaeological resources (letters dated August 13 and 21, 1998.)

Archival research and field investigations were conducted for the East Span Project and documented in a Historic Architecture Survey Report (Caltrans, April 1998). Previous investigations in 1983, 1991, and 1996 were also reviewed. Based on these investigations, NRHP-listed and NRHP-eligible resources have been identified within the APE as defined for the build alternatives. Listed and eligible resources are described below and identified on Figures 3-21 and 3-22 in Appendix A.

The SFOBB, completed in 1937, is a double-deck structure carrying five lanes of traffic on each level. (See Section 1.3.1 and Figure 1-1 in Appendix A for a description of the SFOBB.) The Bay Bridge is eligible for the NRHP under Criteria A, B, and C for its role in shaping Bay Area transportation patterns, its association with important engineers and architects, and as a significant accomplishment in civil engineering. The National Register property includes entrance and exit ramps connected to the west approach, and the elevated bus ramps that connect the west approach to the Transbay Transit Terminal at Mission Street between First and Fremont Streets. Twin-towered suspension spans extend from San Francisco to YBI and are connected by a massive center anchorage. On YBI, there are concrete viaducts at either end of a double-deck tunnel. Continuing eastward from the island, a series of steel truss spans carry the highway across the eastern portion of the Bay.

The lower deck of the bridge originally carried two tracks for electric streetcars in addition to three lanes for trucks, while the upper deck carried five lanes for automobiles. Rail service was terminated in 1958, and the bridge was altered to its present configuration of five traffic lanes on each level. Substantial alterations were also made to the YBI Tunnel and its approaches at that time. The other major alteration of the structure occurred on the west approach ramps in San Francisco, with the construction of the freeway system in the late 1950s. This work altered much of the upper deck approach ramp between First and Fifth Streets. Maintenance work over the years and repairs made after earthquakes have resulted in other changes to the structure, but the bridge as a whole retains sufficient integrity to be eligible for NRHP listing.

Four buildings associated with the SFOBB and included in the eligibility determination of the entire bridge are located within the project APE.

Caltrans Garage (YBI). The Caltrans garage, located on YBI adjacent to the SFOBB, was constructed in the late 1930s as an integral component to the SFOBB. The building, constructed of reinforced concrete, is included in the eligibility determination of the entire bridge (see Figure 3-23 in Appendix A).

Caltrans Electrical Substation (YBI) - This reinforced concrete structure, located on YBI adjacent to the SFOBB, was constructed in the 1930s as an integral component to the SFOBB (see Figure 3-23 in Appendix A). It is included in the eligibility determination of the entire bridge.

Caltrans Electrical Substation (Oakland Touchdown Area). This reinforced concrete structure, located at the Oakland Touchdown area adjacent to the SFOBB, was constructed in the late 1930s as an integral component to the SFOBB (see Figure 3-24 in Appendix A). It is included in the eligibility determination of the bridge.

Key Pier Substation. This reinforced concrete structure, located at the Oakland Touchdown area adjacent to the SFOBB, was constructed in 1926 (see Figure 3-24 in Appendix A). It was not built as a component of the Bay Bridge; however, it was incorporated into the bridge operation to supply power for the trains crossing the bridge. It is a contributing component of the Bay Bridge and is also individually eligible for the NRHP under Criterion A for the reason that it is historically significant as a rare surviving remnant of the Key System railroad.

The Senior Officers’ Quarters Historic District (the district) includes seven residences, all of wood-frame construction, with two full floors and a dormered attic (see Figure 3-25 in Appendix A). They were constructed between 1900 and 1903 in the Classical Revival Style. Buildings 83 and 230 are garages with second floor living quarters, constructed in 1918 and 1944, respectively. Building 205 is a single-story garage constructed in 1935. Other non-architectural elements of the district include the landscaping behind the residences, the formal gardens between Quarters 1 and Building 230, and the lawn to the east of Quarters 1 that slopes down to a retaining wall at the edge of the former parade grounds. The district is eligible for the NRHP under Criteria A and C, in the areas of military history and architecture.

The district was originally identified in an historic architecture survey of Yerba Buena and Treasure Islands, carried out for the Navy in 1997. The boundary of the district in the vicinity of the Bay Bridge is not clear, due to discrepancies between the written description and the map included in the survey report. The map appears to show the drip line of the bridge as the southeast boundary of the district, while the written description does not mention the bridge or the landscape features (two triangular planter boxes and a concrete stairway) located directly under the bridge. As part of its compliance with Section 106, FHWA intends to seek clarification of the district boundary in consultation with the SHPO and the Navy. FHWA will make recommendation to the SHPO as to the most appropriate boundary for the historic district, based on historical research and consideration of the integrity of the landscape features in the area. The SHPO must concur in any revisions to the boundaries of the district.

Quarters 1. The largest and most elaborate of the seven residences within the historic district, was listed on the NRHP in 1991. It is individually listed in NRHP under Criteria A and C (see Figure 3-25 in Appendix A).

Quarters 8. Naval Quarters 8 is a three-story residence of Mediterranean design, built of wood with a stucco exterior on the first two floors (see Figure 3-26 in Appendix A). It was constructed in 1905 as the home of the commander of the Marine Corps detachment assigned to YBI. The property is eligible for the NRHP under Criteria A and C, in the areas of military history and architecture. The house is historically significant as one of the few extant buildings from the early 20^th century associated with the Naval Station on YBI and the last remaining building associated with the Marine Corps presence on the island. It is also architecturally significant as the work of prominent San Francisco architects James and Merritt Reid.

Quarters 9. Naval Quarters 9 is a 1-1/2-story residence of wood-frame construction (see Figure 3-27 in Appendix A). The property is eligible for the NRHP under Criteria A and C, in the areas of military history and architecture. It was built ca. 1916 as the residence for the civilian "master of tugs" and is the only extant building on YBI constructed for a civilian employee of the Navy. It is also one of the few surviving buildings on the island from the period of extensive growth of the Naval Station in the years before and during U.S. involvement in World War I.

Quarters 10. Naval Quarters 10 is a two-story, wood-frame residence constructed in 1948 (see Figure 3-28 in Appendix A). The property is eligible under NRHP Criterion C, for its architecture (Bay Area modernism). The historic property includes the garage, Building 267, which was constructed at the same time as the house and is included as a contributing component of the historic resource.

Building 262. Building 262, at the eastern tip of YBI, is a reinforced concrete building with a gable roof clad in corrugated metal (see Figure 3-29 in Appendix A). The property is eligible for the NRHP under Criteria A and C, in the areas of military history and architecture. It was constructed for the U.S. Army in 1891, for the manufacture and storage of mines to be used in coastal defenses. The building is historically significant as the only extant building associated with the 19^th century Army presence on YBI. It is also significant architecturally, as a pioneering example of reinforced concrete construction, a building technique that was still in its infancy in 1891.

No other historic properties exist within the APE. There are no California Historical Landmarks, California Points of Historical Interest, or city-designated landmarks within the APE. NRHP historic districts exist in proximity to the East Span Project APE but would not be affected by the proposed action. The USCG historic district is located to the southeast and outside the APE on YBI and would not be affected by the project. The Oakland Army Base historic district is located to the east of the APE at the Oakland Touchdown area and would not be affected by the project.

Consultation was initiated with the State Historic Preservation Officer (SHPO) in June 1998, concerning eligibility of resources within the APE. The SHPO responded in a letter dated August 13, 1998 (see Appendix G: Agency Consultation Letters) and concurred with National Register eligibility for Quarters 10, Navy Building 267 (the garage for Quarters 10), the Bay Bridge Oakland Substation, and the Key Pier Substation. The SHPO had concerns abut the pre-1948 buildings that were considered ineligible in the HASR and requested information evidencing that FHWA solicited the comments of the Navy and USCG on the eligibility of these properties. Caltrans addressed this concern, and the SHPO responded in a letter dated August 21, 1998, concurring that the buildings are not eligible. (A copy of the August 21 letter can be found in Appendix G.)

Paleontologic resources, typically vertebrate or invertebrate fossilized remains, are afforded federal protection under 40 CFR 1508.27 as a subset of scientific resources. California Public Resources Code Section 5097.5 provides for protection of paleontological sites and features on public lands. Paleontologic resources may exist within the project APE in sediments underlying San Francisco Bay. A mammoth tooth was discovered in the 1930s within Bay sediments during construction of the existing SFOBB East Span at Pier E11. California Public Resources Code Section 5097.5 mandates that "No person shall knowingly and willfully excavate upon, or remove, destroy, injure, or deface, any …vertebrate paleontological site, including fossilized footprints…or any other paleontological…feature, situated on public lands, except with the express permission of the public agency having jurisdiction over the lands. Typically, the State Lands Commission is the designated public agency.

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