Affected Environment

CHAPTER 3

AFFECTED ENVIRONMENT

This chapter describes the physical and socioeconomic setting of the proposed SFOBB East Span Seismic Safety Project (East Span 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, an area beyond the physical limits of the project, as described above is considered if there is the 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.

The following technical studies and analyses containing detailed information were conducted for the SFOBB East Span Project.

"Addendum Archaeological Survey Report Maritime Archaeology," March 2000
"Addendum Finding of Adverse Effect," October 1999
"Air Quality Study Memorandum," March 1998
"Bicycle and Pedestrian Study Report," September 1998
"Biological Assessment," June 1999
"Biological Assessment (Retrofit Existing Bridge Alternative)," November 1996
"Community Impact Assessment," September 1998
"Conceptual Mitigation Plan for Special Aquatic Sites," November 2000
"Consideration of Proposed Mitigation Measures for Project Effects on Historic Buildings and Structures," September 1999
"CCSF S-1 Modified Alignment and the Impacts to the EBMUD Sewer Outfall," November 1999
"Dredged Material Management Plan," June 1999
"Final Relocation Impact Report," April 2001
"Finding of Adverse Effect: Buildings and Structures," September 1998
"Finding of Effect for Archaeological Resources," July 1998
"Hazardous Wastes Assessment," September 1998
"Historic Architecture Survey Report," July 1998
"Historic Property Survey Report," April 1996
"Land Use Issues Associated with the SFOBB East Span Seismic Safety Project and the Naval Station Treasure Island Draft Reuse Plan," January 2000
"Location Hydraulic Study," September 1998
"Natural Environment Study," September 1998
"Noise and Vibration Study," September 1998
"Phase I Archaeological Survey Report Maritime Archaeology," February 2000
"Positive Archaeological Survey Report," June 1998
"Retrofit vs. Replacement," April 2000
"Sediment Sampling and Analysis Report," June 2000
"Supplemental Draft Section 4(f) Evaluation," June 1999
"Traffic Circulation, Access and Parking Assessment," September 1998
"Treatment BMP Feasibility Study," December 2000
"Visual Impact Assessment," September 1998

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

3.1 COMMUNITY SETTING

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 Yerba Buena Island (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.

3.1.1 Existing Land Uses in the Project Vicinity

Yerba Buena Island and Treasure Island

YBI and TI are primarily federally owned properties. YBI is currently under jurisdiction of and owned by the U.S. Coast Guard (USCG) and the Department of the Navy (Navy) with the exception of the land for right-of-way for all alternatives for the project under consideration, which was recently transferred to Caltrans (see discussion below under Caltrans for more details). These federal agencies must approve any activity on their property. In general, the Navy owns the property north of the existing East Span, as well as the ramps to and from the bridge; the USCG owns most of the property south of the bridge. See Figure 3-2 in Appendix A for the jurisdictional boundary. The Navy also owns TI and the causeway connecting YBI and TI.

YBI is a 59-hectare (147-acre) natural island. The USCG facility consists of 17 hectares (41 acres) and is located south of the existing SFOBB East Span. The area on YBI owned by the Navy is 34 hectares (86 acres). The existing East Span connects to the West Span at the YBI tunnel, which runs through the middle of the island. The Caltrans permanent right-of-way is 8 hectares (20 acres).

TI is a 163-hectare (403-acre) man-made island created by placement of fill in the Bay. A man-made causeway located northwest of YBI connects the two islands.

U.S. Navy. The Naval Station Treasure Island (NSTI), which comprises the Navy property on YBI and TI, encompasses 197 hectares (489 acres) of land. The NSTI was operational from the 1940s until 1997, when it was decommissioned. Within Navy jurisdiction on YBI, there are about 10 buildings previously used by the military primarily for storage, communications, fire safety, and administrative purposes. In addition, there are 105 housing units, 10 of which are large single-family residences originally built for officers; the remainder are 2, 3, and 4-unit buildings, generally single-story. Of these 105 units, about 95 housing units, located on the western and central parts of YBI, are currently occupied as market-rate civilian housing.

Land uses on the eastern side of YBI within the vicinity of the existing East Span include Quarters 1-7, shown on Figure 3-2 in Appendix A. Quarters 1-7 were built in the early 1900s as officers’ quarters and comprise a Historic District eligible for listing on the National Register of Historic Places (refer to Section 3.10 for a discussion of Historic and Cultural Resources). Quarters 1-7 are currently undergoing renovation and will eventually be leased out by the City and County of San Francisco (CCSF) as locations for events and meetings. Two other buildings (Buildings 213 and 262) are located on the eastern side of YBI. Building 213 is currently vacant; however, a fire truck owned by the CCSF is stored inside. Building 262, known as the Torpedo Building, was constructed in 1891 and is eligible for the National Register of Historic Places (see Section 3.10 — Historic and Cultural Resources). This building is vacant.

The 163 hectares (403 acres) at TI support 150 military buildings and 904 housing units. The military buildings served a broad range of functions, including medical/dental offices, a fire training facility, prison, administrative offices, a conference center, restaurants, and barracks, as well as storage for equipment and other miscellaneous items for a total of 0.23 million square meters (2.5 million square feet).

The Navy is seeking to dispose of its property on YBI and TI under the Defense Base Closure and Realignment Act of 1990, as amended. Through this process, jurisdictional authority will pass from Navy control, and the property within the former naval station will be available for reuse.

The laws and regulations guiding the base closure process require the Navy to consult with the Local Redevelopment Authority (LRA) and consider the LRA’s plans as it decides how to dispose of NSTI. The CCSF is the LRA recognized by the Department of Defense as the agency responsible for planning the redevelopment of former NSTI. Accordingly, the Navy is working with the CCSF to coordinate base closure activities. A discussion of redevelopment plans for YBI is included in Section 3.1.2 below.

Notwithstanding the CCSF’s status as the LRA in the base closure process, the Navy has not yet completed its analysis for the disposal and reuse of NSTI pursuant to the National Environmental Policy Act (NEPA). Although the Navy must consider the CCSF’s plans for NSTI, the Navy has discretion to evaluate and decide among competing requests for the excess land. Pursuant to NEPA, the Navy must consider all reasonable disposal alternatives, including a "no action" alternative; the Navy has not disclosed what other alternatives are being considered; these will be publicly disclosed when the Navy circulates its Draft Environmental Impact Statement (DEIS) for the disposal and reuse of NSTI.

On October 25, 2000 and pursuant to 23 USC 107(d), the Federal Highway Administration (FHWA) executed a Federal Land Transfer of some land on YBI formerly owned by the United States. The right-of-way for the Interstate System was required over lands owned by the Department of the Navy. FHWA transferred land to Caltrans to give the state adequate right-of-way and control of access for construction of any of the alternatives for the East Span Project. There will be no physical changes until the Record of Decision (ROD) is approved for the East Span Project and construction begins. This Federal Land Transfer does not limit the evaluation of alternatives for the East Span Project, since the boundaries of the land transferred can accommodate any of the project alternatives under consideration. Any rights-of-way not required for the East Span Project will revert to the United States after project completion. The deed for conveyance of property was recorded on October 26, 2000, with the CCSF County Records Office.

U.S. Coast Guard. The remaining property on YBI is owned by the USCG. It encompasses about 17 hectares (41 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 to maintain adequate response times to emergency calls in the central and southern Bay.

Residential facilities are provided for about 78 USCG personnel or USCG dependents who live on-site. Accommodations are also provided in the barracks for an additional 30 on-duty and temporary personnel. The Bachelor Enlisted Quarters (BEQ) encompasses 54 rooms with approximately 68 residents in a group of four buildings. There are also five single-family homes on the island for the families of officers housing approximately ten residents.

USCG administrative facilities on YBI consist of the following buildings (see Figure 3-2 in Appendix A):

Building 40 - located at the entrance of the USCG facility. It is a two-story building used for administration;
Buildings 22 and 23 - Station and group command office buildings located adjacent to the BEQ;
Buildings 1-7 and 10-13 - A group of two- and three-story buildings located south of the buoy maintenance and repair area;
Building 278 - Vessel Traffic Service (VTS) located on the main deck of a prefabricated metal building at the top of the YBI hill;
Building 30 - equipment storage;
Building 75 - storage; and
Building 270 - vacant.

Industrial buildings are located at the southern end of the island. Maintenance, repair, and painting of buoys for the entire Bay Area are done at these industrial buildings. Recreational facilities on the island consist of outdoor tennis, basketball, and volleyball courts and a barbecue pit located next to Building 75.

Caltrans. As noted in this section under "U.S. Navy," the FHWA has transferred land, including fee ownership and construction easments, to Caltrans. The area now owned by Caltrans starts approximately 152 meters (500 feet) west of the western tunnel portal and runs through the tunnel and ends at about 256 meters (840 feet) east of the eastern tunnel portal for a total length of approximately 571 meters (1,875 feet). The width of the Caltrans property varies on the north side up to 44 meters (145 feet) from the centerline of the existing bridge and up to 38 meters (125 feet) from centerline on the south side.

Oakland Touchdown Area

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 Port of Oakland, the State of California, and the U.S. Army. (Refer to Figure 3-3 in Appendix A.) The State of California has a permanent easement for 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 directions of travel.

The SFOBB Toll Plaza is located approximately 200 meters (655 feet) west of the distribution structure and extends across the westbound I-80 lanes. SFOBB Toll Plaza administrative facilities, maintenance buildings, a tow-truck operations base, and the SFOBB Traffic Operations Center are located south of the SFOBB Toll Plaza within the median area. SFOBB 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 kilometers (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 Oakland Touchdown area. 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 sewer outfall is 2.4 meters (8 feet) in diameter, 5 kilometers (3.1 miles) long, and extends 1.6 kilometers (1 mile) into the Bay.

A 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 also 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 materials associated with general maintenance of the bridge.

South of the Oakland Touchdown Area. The Port of Oakland (Port) 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 uses. 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, recreational parks, wildlife refuges, and industrial facilities.

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. The Oakland Army Base Military Traffic Management Command Center operated from this property until the Oakland Army Base was decommissioned in September 1999. The Oakland Army Base Reuse Authority (OBRA) together with the U.S. Army, the City of Oakland, and the Port of Oakland, recently adopted the Oakland Army Base Reuse Plan through the Base Realignment and Closure (BRAC) process. The reuse plan is discussed in Section 3.1.2 — Developable Land and Development Trends. Within this property, the Port operates the Bay Bridge public terminal on the shoreline south of the SFOBB Toll Plaza. The terminal currently handles break bulk (non-containerized) cargo. The Port plans to operate the terminal in the near term.

A container freight storage area is located between Burma Road and the Caltrans maintenance road, south of the SFOBB 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. Caltrans has a permanent easement on the first 50 meters (164 feet) of land to the north of the bridge; beyond this boundary, the land is owned by the Port of Oakland. 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 project area for the East Span 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 (see Figure 2-2 in Appendix A).

3.1.2 Developable Land and Development Trends

Yerba Buena Island and Treasure Island

Yerba Buena Island. In July 1996, a Draft Naval Station Treasure Island Reuse Plan (1996 Draft Reuse Plan) was approved by the Office of Military Base Conversion, the CCSF, and the San Francisco Redevelopment Agency in anticipation of the closure of NSTI.

The conceptual land use plan for development on the eastern side of YBI (shown on Figure 4-1 in Appendix A) calls for a mixture of residential and visitor-serving uses. As noted in the "Implementation Strategy" section of the 1996 Draft Reuse Plan, proposed residential uses would include construction of 13 artisan cottages and 75 live/work units in 4 buildings with a total area of 6,968 square meters (75,000 square feet). Visitor-serving uses would include a 5,574-square-meter (60,000-square-foot) conference center that would be associated with Quarters 1-7. A height limit of 12.2 meters (40 feet) for eastern YBI is shown in the Plan. The 1996 Draft Reuse Plan also proposed reuse of Building 262 for uses such as art studios, a community center, additional live/work space, or a restaurant.

For western YBI, the 1996 Draft Reuse Plan calls for immediate utilization of the existing housing stock for market rate and homeless housing programs. At this time, however, the existing units on YBI are utilized as market-rate housing only. The plan envisions phased demolition and redevelopment of the housing stock on western YBI to develop higher density residential units (90 units) with either a hotel (150 rooms), a condominium development (100 units), or a lower density single-family development of 65 lots.

The 1996 Draft Reuse Plan envisions that development of TI/YBI would occur in five phases. Each phase would build on the previous phase to generate the revenue necessary to make needed infrastructure improvements which, in turn, would allow for more intensive development in subsequent phases. The phased implementation process is projected to extend over a period of 35 years. Development on YBI is envisioned to occur in the first three phases of plan implementation spanning a 15-year period. Development on eastern YBI, near the East Span, including the conference center, artisan cottages, and live/work units, is included in Phase 3 and is scheduled to begin in 2007.

The proposed redevelopment of YBI set forth in the 1996 Draft Reuse Plan is subject to review and approval by BCDC under federal and state law to determine whether the proposed transfer of land to the CCSF and the proposed redevelopment of YBI are consistent with the Park Priority Use designation for YBI in the BCDC Bay Plan. The proposed uses in the Draft Reuse Plan would require amending the existing San Francisco Bay Plan to delete the park priority use designation at YBI. The San Francisco Bay Plan states, "If and when not needed by the Navy and Coast Guard, redevelop released areas for recreational use."

Development intended for the southeastern 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 35 years. The CCSF and the Navy are currently preparing an EIR/EIS for TI and YBI to evaluate environmental impacts of proposed development on the property proposed for conveyance to the CCSF from the Navy. A market assessment in the 1996 Draft 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 1996 Draft 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 presented as potential uses.

According to the 1996 Draft Reuse Plan, expansion of the Treasure Island Marina was originally scheduled for Phase 2 development. Since the plan was written, the marina project has been accelerated. The conceptual marina development plan was approved by the Treasure Island Development Authority. Approval of the final marina development plan will require certification of an environmental document in compliance with the California Environmental Quality Act (CEQA) and NEPA.

Construction of the Treasure Island Marina is scheduled to begin in mid- to late-2001, after approval of the final plan, environmental document, and BCDC permit.

Oakland Touchdown Area

The Port of Oakland, Caltrans, the East Bay Regional Park District (EBRPD), and EBMUD all have plans for development or maintenance of existing facilities on the Oakland Touchdown area. One of these plans is the creation of a public park at the western end of the Oakland Touchdown area. Planning for the park is being led by EBRPD (see discussion below under East Bay Regional Park District).

Caltrans will continue to use a portion of the Oakland Touchdown area for maintenance access to the bridge approach and the SFOBB. In addition, Caltrans is planning a separate project to reconstruct the toll plaza/administration area located just east of the Oakland Touchdown area.

Port of Oakland. The Port and the City of Oakland are currently seeking conveyance of the Oakland Army Base (OARB) located just south of the current eastern terminus of the SFOBB for economic and community development purposes. Under the existing plan, the 1998 Draft Final Reuse Plan for the Oakland Army Base (July 27, 1998) (Draft Final Reuse Plan), the Port of Oakland would develop a 194-acre Maritime District, including the OARB properties located west of Maritime Street and an expanded Knight Rail Yard. The City of Oakland would develop most of the remaining OARB area for non-maritime uses, with a primary focus on industrial, business, technology, and workforce training uses.

The OBRA is considering a proposal to revise its Draft Final Reuse Plan. Under the proposed revised Draft Final Reuse Plan, the Port of Oakland would develop lands east of Maritime Street (located southeast of the Oakland Touchdown area outside of the project area limits) for maritime uses. The City of Oakland would develop the areas south of Burma Road as non-maritime uses (see Figure 3-3 in Appendix A). The reuse plan for the OARB, including the proposed revised plan, must be approved by OBRA, subject to environmental review.

The proposed revised Draft Final Reuse Plan for the Oakland Touchdown area, if approved by OBRA, would include conveyance of 4.9 hectares (12 acres) to the EBRPD for development of the Gateway Park at the western end of the Oakland Touchdown area. In the first iteration of the plan, this park was also included. FHWA has determined that the land to be conveyed is a protected Section 4(f) resource.

The San Francisco Bay Area Seaport Plan (Seaport Plan) identifies long-range plans by the Port of Oakland (Port) to expand its operations. The plan, originally approved by BCDC in 1982 and last amended in 1997, allows for expansion of Port facilities to 2017. 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. Development of the Port’s Joint Intermodal Terminal (JIT), located outside the East Span Project area limits, is currently under way.

On January 4, 2001, BCDC voted to amend the San Francisco Bay Plan and Seaport Plan by the "Port Priority Use" area designation from the Bay Bridge Site, Pier 7, and Bay Bridge Terminal (see Figure 3-3 in Appendix A). Deleting the "Port Priority Use" designation from these areas will allow the City of Oakland to implement a development plan for the area to accommodate non-maritime land uses. The deletion also eliminates the inconsistency between the BCDC’s "Port Priority Use" designation and OBRA's designation of the land as a future park.

Bay Conservation and Development Commission (BCDC) Permit 11-93. As part of the I-880/Cypress Freeway Replacement Project, Caltrans is required by BCDC to provide and maintain a public access bicycle/pedestrian pathway system connecting the cities of Emeryville and Oakland between Shellmound Street and Nelson Mandela Parkway, through the distribution structure for I-80 to the Oakland Touchdown area. Caltrans is also required to provide two scenic overlooks, a 465-square-meter (5,000-square-foot) outlook on the north side of the Oakland Touchdown area and a 232-square-meter (2,500-square-foot) lookout area on the south side of the area. Both overlook areas would include public amenities such as restrooms, parking, benches, a fish cleaning facility, trash cans, and native landscaping. The EBRPD has plans to develop a much larger public park in the same area (see below). If the locations of all or portions of the conceptual overlooks and bikeway alignments prove infeasible due to replacement of the existing bridge, the permit conditions allow Caltrans to pay a fee in lieu of constructing the improvements, subject to BCDC approval.

East Bay Regional Park District (EBRPD). The EBRPD Advanced Planning Division is evaluating lands at the Oakland Touchdown area for potential acquisition and stewardship to develop an approximately 5.9-hectare (14.7-acre) public park to the south of the existing bridge and approach. Subsequent to publication of the East Span Project DEIS in 1998, the EBRPD was designated by OBRA as the lead agency in developing the proposed Gateway Park at the western end of the Oakland Touchdown area. EBRPD’s Advanced Planning Division is coordinating park planning among the City of Oakland, the National Park Service, BCDC, and the Port of Oakland.

3.1.3 Adopted Goals and Policies

Land Use Policies

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

U.S. Navy. The Navy is in the process of transferring the property known as NSTI as part of the BRAC process. For the purposes of the East Span FEIS, Caltrans assumed that the CCSF is the intended recipient of YBI. This assumption was based on the 1996 Draft Reuse Plan, the CCSF's role as Local Reuse Authority, and the currently in-force Base Caretaker Agreement between the Navy and CCSF. The transfer of property will be completed over the next few years.

The City and County of San Francisco/Treasure Island Development Authority. In 1997, the California Legislature passed AB699, the Treasure Island Conversion Act, vesting the Treasure Island Development Authority (TIDA) with full redevelopment authority for NSTI. In April 1997, the CCSF Board of Supervisors adopted Resolution 380-97 establishing TIDA as a nonprofit planning benefit corporation to promote the redevelopment of TI/YBI. The CCSF is projected to acquire ownership of TI and portions of YBI in the year 2003. A caretaker agreement between the 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 1996 Draft Reuse Plan serves as the guide for future activities on TI and CCSF-owned portions of YBI.

The following is a summary of land use policies from the 1996 Draft Reuse Plan which are relevant to development on YBI:

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;
Allow flexibility to respond to market opportunities and changes in technology over time;
Attract initial uses and users that facilitate and are compatible with the development of desired long-term uses;
At YBI, there are two sites where visitor-oriented uses are envisioned. They include: (1) the eastern end of the island where a portion of the property could be developed as an attraction that is tied by boat to activities taking place at TI; and (2) Quarters 1-7, which could be used for conference facilities and limited lodging; the properties total 5,574 square meters (60,000 square feet);
Provide for the opportunity for publicly oriented uses at YBI;
Allow for the expansion of publicly oriented uses;
If the publicly oriented uses require a larger "footprint" and if circumstances make other properties available, the expansion of publicly oriented uses should be accommodated;
In certain cases, areas are shown with multiple land use designations, providing the opportunity at TI and YBI to retain some flexibility and create an opportunity for a broader range of potential activities;
Publicly oriented uses are a possibility at Yerba Buena Island, in the flatter areas on the eastern end of the island (including Quarters 1-7);
Focus public open space on the natural features and amenities of the island setting;
Protect hillside and shoreline open space at YBI;
Maintain and expand waterfront recreational and transportation facilities to enliven the water’s edge and improve access;
The opportunity for ferry facilities should be developed (where possible) along YBI. In addition, the opportunity for berths and floats to serve smaller craft (such as water taxis) as well as ferries should be provided;
Provide a range of institutional uses that can satisfy a broad range of public purposes. Encourage collaboration between users to reduce costs for facilities and services;
Provide for existing and new housing at YBI; and
For Yerba Buena Island, residential uses may include single-family attached and detached as well as live/work studios and artisan cottages. A maximum of 300 units would be allowed at YBI and would be distributed in both the hillside and flat land areas. As a general land use policy, the 300 housing unit figure is given by the 1996 Draft Reuse Plan to establish an upper limit of housing density on the island.

The City of Oakland. Envision Oakland is the title of the Land Use and Transportation Element of the Oakland General Plan that was adopted March 24, 1998. 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. As noted in Section 3.1.2 — Developable Land and Development Trends, the Port of Oakland and the City of Oakland have proposed a revision of OBRA’s Draft Final Reuse Plan. The proposed revised Draft Final Reuse Plan would include policies to guide Port of Oakland development outside the project area and, if approved, would also convey land to the City of Oakland for economic development purposes.

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 has 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 — Developable Land and Development Trends, the lands at the west end of the Oakland Touchdown area are currently being evaluated 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 (Gateway Park) on the Oakland Touchdown area.

The San Francisco Bay Conservation and Development Commission. The BCDC is a state agency and was created by the McAteer-Petris Act to regulate development in and around San Francisco Bay. After its creation, BCDC was designated as the Federal Coastal Zone Management Agency for San Francisco Bay in accordance with the Federal Coastal Zone Management Act (CZMA). The purpose of the CZMA is similar to that of the McAteer-Petris Act, to regulate development in coastal areas and to protect their unique resources. Under the McAteer-Petris Act, BCDC has jurisdiction over the entire Bay and a shoreline band 30 meters (100 feet) shoreward of the mean high tide line.

The McAteer-Petris Act contains findings and declarations that recognize the rapid development around the Bay and that establish the framework for developing and implementing the San Francisco Bay Plan. The McAteer-Petris Act addresses the need to allow for water-oriented land use while protecting the Bay from unnecessary filling and maximizing public access. Section 66602 states that "the San Francisco Bay Plan should make provision for adequate and suitable locations for certain water-oriented land uses along the Bay shoreline that are essential to the public welfare of the Bay Area, thereby minimizing the necessity for future Bay fill to create new sites for these uses. Maximum feasible public access should also be provided."

The McAteer-Petris Act provides additional guidelines to regulate fill within the Bay. The guidelines include the following recommendations:

"That further filling of San Francisco Bay and certain waterways should be authorized only when public benefits from fill clearly exceed public detriment from the loss of the water areas and should be limited to water-oriented uses or minor fill for improving shoreline appearance or public access to the Bay;
That fill in the Bay and certain waterways for any purpose should be authorized only when no alternative upland location is available for such purposes;
That the water area authorized to be filled should be the minimum necessary to achieve the purpose of the fill;
That the nature, location and extent of any fill should be such that it will minimize harmful effects to the Bay Area;
That public health, safety and welfare require that fill be constructed in accordance with sound safety standards which will afford reasonable protection to persons and property against the hazards of unstable geologic or soil conditions or of flood or storm waters; and
That fill should be authorized when the filling would to the maximum extent feasible, establish a permanent shoreline.

As part of its statutory mandate under the McAteer-Petris Act, BCDC prepared the San Francisco Bay Plan as its master planning document for San Francisco Bay. The Plan, adopted in 1969, as amended, outlines policies to guide future uses of the Bay and shoreline. The Bay Plan includes maps that apply these policies to the present Bay and shoreline.

Note: On November 4, 1999, BCDC voted 15-0-0 "…to support a solid fill alternative (vs. pile-supported fill) as most appropriate for the portion of the proposed East Span replacement structure where it reaches the shoreline in Oakland." The vote was advisory and does not constitute granting of a permit.

The following Bay Plan policies are applicable to the current project:

Any route over the Bay will be subject to: (a) placement on structure, not fill; (b) providing navigational clearance; (c) avoiding new fill for ancillary facilities , if possible; and (d) considering mass transit facilities (Transportation Policy 4) for new structures;
Sedimentation resulting from dredging projects should be limited by: (a) placement as fill in approved fill projects; (b) barging or piping to suitable disposal sites in the ocean; (c) placement on dry land; or (d) if no other alternative is feasible, dumping in designated parts of the Bay (Dredging Policy 2;
"Yerba Buena Island If and when not needed by Navy or Coast Guard, redevelop released areas for recreational use";
Marshes and mudflats should be maintained to the fullest possible extent to conserve fish and wildlife and to abate air and water pollution. Filling and diking that eliminate marshes and mudflats should, therefore, be allowed only for purposes providing substantial public benefits and only if there is no reasonable alternative. Marshes and mudflats are an integral part of the Bay tidal system and, therefore, should be protected in the same manner as open water areas; and
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.

The San Francisco Bay Area Seaport Plan, prepared by BCDC and the Metropolitan Transportation Commission (MTC), constitutes the maritime element of MTC’s Regional Transportation Plan and is incorporated into BCDC’s San Francisco Bay Plan. The relationship of the Seaport Plan to the project was addressed in Section 3.1.2 — Developable Land and Development Trends under "Port of Oakland."

East Bay Municipal Utility District (EBMUD). EBMUD owns, operates, and maintains facilities on the Oakland Touchdown within the project area. In letters of comment, EBMUD has expressed its concern with the potential environmental and financial problems resulting from construction of a southern alignment (see Section 3.1.6 — Community Services below).

3.1.4 Demographic Characteristics of the Project Area and Inclusive

Census Tracts

The project is located within census tracts 179.02 which includes TI and YBI, and 4017 which includes a portion of West Oakland (Figure 3-1 in Appendix A). Although the project is located within these census tracts, the project area limits include YBI and the Oakland Touchdown area (Figure 2-2 in Appendix A) and do not contain any large populations or cohesive communities.

Demographic information for the two census tracts within the project study area is presented below. Each subsection includes a description of the demographic characteristics for the project area limits and the larger census tract.

The 1990 Census information does not reflect the current demographic profile of YBI/TI, due to the closure of Naval Station Treasure Island in September 1997. Consequently, the demographic profile is based on the TI project website, field surveys and interviews with Treasure Island Development Authority and Treasure Island Homeless Development Initiative staff. The 1990 Census is used for demographic information for the Oakland Touchdown area and adjoining census tract.

Detailed demographic information for the nine-county Bay area region can be found in the Community Impact Assessment technical report.

Household Characteristics

Project Area. On YBI, housing at the USCG facility consists of dormitory type housing (BEQ), and five single-family homes (occupied by officers). The total resident population at the facility is approximately 78 people.

On the portion of YBI under Navy ownership, the housing stock is managed by the Treasure Island Development Authority. The 95 multi-family housing units on YBI are leased at market rate to the general public.

There are no housing units within the project limits in the Oakland Touchdown area.

Outside the Project Area. All of the housing stock on TI consists of apartments, with the exception of the barracks which are dormitories. According to the Director of the Treasure Island Homeless Development Initiative, all of the available housing stock on TI is occupied by renters. The current resident population on TI is estimated to be 2,700. Of the 116 units currently leased as below-market rate housing, 66 units are occupied by families of 4 or more people and the remaining 50 are single-occupancy. An additional 96 units of below-market rate family housing is undergoing renovation and will be available soon.

According to the Treasure Island Project web pages, as of January 2000, 300 market rate units were rented on TI. Occupants include City of San Francisco employees (including teachers, firefighters, police officers) and college students.

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 units are located approximately 2.4 kilometers (1.5 miles) away from the project limits.

Ethnic Mix and Age Distribution

Project Area. The ethnic mix of the residents on YBI is likely to be diverse and reflect that of the San Francisco Bay Area.

Outside the Project Area. Of the 116 below-market rate units occupied on TI, families with 2 or more children occupy 66 units. The remaining 50 units are single-occupancy. Of the occupied below-market rate units, 80 percent of the population is African American and the remaining 20 percent represent other ethnic groups.

According to the 1990 Census, the population of Census Tract 4017 in West Oakland is 63 percent African-American, 16 percent Asian and 7 percent Caucasian. Other ethnic groups made up the remaining 21 percent of the population.

Jobs and Employment

Project Area. The USCG employs 149 military and 1 civilian personnel. The characteristics of the current YBI labor force (outside the USCG facility) have not been documented; however, it is assumed that employment on the island is centered on rehabilitation and maintenance of the housing stock and historic structures.

The unemployment rate for the CCSF, overall, is 3 percent.

Outside the Project Area. The characteristics of the current TI labor force have not been documented. It is estimated that the daytime population on TI is 4,000. Employment centers on TI include the Job Corps Culinary Center, film studios, the Treasure Island Development Authority offices, a restaurant, convenience store, public services (police and fire) and the Treasure Island Elementary/Middle School.

Almost 30 percent of the labor force in Census Tract 4017 in West Oakland was employed in craft or laborer positions in 1990. The unemployment rate was 24 percent in 1990. The current unemployment rate for the City of Oakland, overall, is 5.5 percent.

According to a 1995 survey, there were approximately 488 businesses and employers in West Oakland (which includes areas outside of Census Tract 4017). At the time of the survey, the largest employer in the West Oakland community was the United States Postal Service. Another large employer, the Oakland Army Base, was closed in 1999 and is undergoing the base realignment and closure process to transfer the land to the City of Oakland and the Port of Oakland.

Income Levels

Project Area Limits. Income information for residents of YBI is not available until the 2000 Census is released.

Outside the Project Area. To qualify for the below-market rate housing on TI, residents must meet the U.S. Department of Health and Human Services income criteria, which in 2000 is $17,054 for a family of four. Income level information for other residents and military personnel is not available. None of the below-market rate housing is within the project area on YBI, so there is no identifiable low-income population on YBI.

In 1990, 21 percent of the residents of Census Tract 4017 were classified as living below the poverty level. Average household and per capita incomes were approximately 50 percent lower than Oakland as a whole. There are no households (low-income, minority, or otherwise) within the project area at the Oakland Touchdown area.

3.1.5 Fiscal Conditions

San Francisco

Primary sources of the CCSF General Fund are various taxes and state subventions. Approximately 30 percent of the 2000-2001 General Fund came from tax revenues; the remaining 70 percent is derived from federal and state grants, charges for specific purposes, and other revenues.

According to the Mayor’s 2000-2001 budget, 41 percent of the General Fund was for public works and transportation, 11 percent for public health, 17 percent for social services, 5 percent for culture and recreation, 7 percent for administration and finance, 6 percent for general obligations, and 13 percent for public protection.

The CCSF prepared the 1996 Draft Reuse Plan to address redevelopment of TI and portions of YBI currently and formerly owned by the Navy. Some of the land formerly owned by the Navy was recently transferred to Caltrans. The land was transferred to give the state adequate right-of-way and control of access for construction over lands for the East Span Project. A large investment in infrastructure is required to support redevelopment and, as noted in Section 3.1.2 — Developable Land and Development Trends, planned development of TI/YBI will be phased in order to generate revenue to pay for necessary infrastructure improvements.

Oakland

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 1998-99 budget, 53 percent of the General Fund was allocated to police and fire activities, 8.3 percent went to public works and neighborhood development, and 8.6 percent was for culture and recreation.

3.1.6 Community Services

Utilities

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 by a line on the East Span that is owned by the Navy and is operated and maintained by the CCSF through a caretaker agreement. The pipeline conveys water from the EBMUD. Both sources of water are used for fire protection and domestic purposes. (Refer to Figures 3-30a and 3-30b in Appendix A for existing utilities on YBI and the Oakland Touchdown area.)

EBMUD is also responsible for the water supply at the Oakland end of the bridge. It has a supply pipe to the SFOBB Toll Plaza and Caltrans maintenance buildings, as well as pipelines that traverse the property of the former Oakland Army Base.

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 to the east of the SFOBB Toll Plaza. A major EBMUD sewer outfall line parallels the bridge approach to the south. Other EBMUD facilities include an effluent pump station near the SFOBB 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 Figure 3-3 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 on TI/YBI 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 power line which is elevated along the south side of the approach to the bridge, crosses under the bridge, and then transitions near the incline to a 12 KV (in a 34.5 KV casing) submarine cable owned by the Navy and the CCSF. The Oakland cable is connected to the Navy’s Davis Substation located at the former Fleet and Industrial Supply Center (FISC) site in Oakland.

In the Oakland Touchdown area, there are several electrical power lines. South of the existing SFOBB, there are a 480 KV and two 12 KV overhead lines mounted on poles. One 12 KV line is owned by Caltrans. The other 12 KV line and the 480 KV line are owned by Pacific Gas & Electric Co. (PG&E). 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.

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 and a consortium have 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 Verizon Communications, Cingular Wireless, and AT&T Wireless.

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 line is located on the south side of the existing bridge, crossing under the bridge near the west end of the Oakland Touchdown and entering the Bay north of the bridge where it continues on to YBI/TI.

Police and Fire

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 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.

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 of and inside the YBI tunnel.

Schools

There is a school on TI which is part of the San Francisco Unified School District. It includes grades kindergarten through eighth, and over 40 percent of the students participate in programs funded by Chapter 1 to benefit children from low-income families. There is also a Federal Job Corps Culinary Training Program on TI. 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, at the former Oakland Army Base, there is a child development center which will remain in operation either at its current location or at a relocated site after the base is transferred to civilian ownership.

Cultural and Recreational Facilities

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 on USCG property, and includes a tennis court, basketball courts, and a volleyball court for use by USCG personnel.

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 I-880/Cypress Freeway Replacement Project are discussed in Section 3.1.2 — Developable Land and Development Trends under "Bay Conservation and Development Commission Permit 11-93." If the permit conditions cannot be implemented, the permit allows Caltrans to pay a fee in lieu of constructing the improvements, subject to BCDC approval.

3.1.7 Environmental Justice

Executive Order 12898, Federal Actions to Address Environmental Justice in Minority Populations and Low-Income Populations, signed by President Clinton on February 11, 1994, directs federal agencies to take appropriate and necessary steps to identify and address disproportionately high and adverse impacts of federal projects on the health or environment of minority and low-income populations to the greatest extent practicable and permitted by law.

The Executive Order requires each Federal agency to take the appropriate steps to identify and avoid any disproportionately high and adverse human health or environmental impacts of Federal programs, policies and activities on minority and low-income populations.

Project Area Limits. The population on YBI in the market-rate rental housing is comprised of diverse racial, ethnic, and income groups. The population is not considered a readily identifiable minority or low-income population or community.

Outside the Project Area. As noted in Section 3.1.4 — Demographic Characteristics of the Project Area and Inclusive Census Tracts, the census tracts encompassing YBI/TI and the Oakland Touchdown area contain identifiable minority and low-income communities; however, these communities are outside of the project area.

3.2 TRANSPORTATION SETTING

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, bicycle and pedestrian facilities, maritime facilities, and parking facilities. Existing and projected future travel demand are also discussed

3.2.1 Traffic

Existing Street and Highway System

The traffic study area includes I-80 between Yerba Buena Island (YBI) and the SFOBB 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 kph (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 Southgate Road. 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 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 SFOBB Toll Plaza from I-80, I-580, and I-880. They terminate on the west side of the SFOBB 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 generally have low traffic volume, but it 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 SFOBB 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 includes the streets outside of the project area that provide access to the Oakland Touchdown area.

Future Roadway Improvements

The 1996 Draft Reuse Plan for Naval Station Treasure Island (NSTI), which documents the CCSF’s redevelopment proposals, 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 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.

No major roadway changes are planned for public roadways within the Oakland Touchdown area. The reconstruction of the SFOBB Toll Plaza may include some minor access improvements to the Toll Plaza parking area.

Existing and Projected Traffic Demand

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. Approximately 272,000 vehicles use the SFOBB daily. In the morning peak-hour, 10,800 westbound vehicles use the SFOBB.

The freeway ramps to and from the SFOBB on 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 bridge).

All of the local streets in the project area (YBI, TI, and the Oakland Touchdown area) currently operate with low traffic volumes. 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 would 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 due to possible changes in commute patterns. Also, Average Daily Traffic (ADT) may increase due to unused capacity available during off-peak travel times. However, traffic volumes on the bridge are expected to remain fairly constant during the westbound AM peak period and the eastbound PM peak period because the bridge constrains traffic volumes.

3.2.2 Transit

Alameda-Contra Costa Transit District (AC Transit), the provider of transbay bus service, currently operates 37 transbay bus routes, totaling 654 daily bus trips, 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 Avenue, Maritime Street, I-580, I-80, and I-880. The buses use the HOV lanes at the SFOBB 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 PM 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 bus stop at the TI gate and a bus stop on YBI for the USCG facility.

Bay Area Rapid Transit (BART) provides about 546 daily transbay trains in the corridor. BART carries about 148,900 transbay passengers per day and approximately 30,000 passengers in the two-hour peak commute period each morning and afternoon.

3.2.3 Non-Motorized Traffic: Bicycles and Pedestrians

Existing Facilities

Bicycles and pedestrians are prohibited from using the SFOBB. No bicycle or pedestrian facilities exist elsewhere within the project limits, except for a few pedestrian facilities on YBI that include sidewalks, footpaths, and stairways. Most of the roadways on the island are not designed to accommodate pedestrians and bicycles, but do not explicitly forbid non-motorized travel. The 1996 Draft Reuse Plan identifies bicycle and pedestrian travel as important future travel modes on YBI and TI. (See Figure 3-5 in Appendix A for existing streets and pedestrian facilities on YBI.)

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

BART operates 546 daily transbay trains. Bicycle ridership in 1997 on the entire BART system was about 700 bicyclists per day. Rules governing bicycle use on BART changed in 1998 to allow expanded use. Current ridership data are not available.
AC Transit operates 37 transbay bus routes that provide 654 daily bus trips between the East Bay and the Transbay Transit Terminal. AC Transit intends to outfit all 700 buses in its fleet with bicycle racks. Once equipped with a bicycle rack, each bus would be able to accommodate two bicycles at a time;
The Alameda-Oakland-San Francisco Ferry currently carries about 10 to 15 bicyclists per day during the week and higher numbers on the weekends; and
The Caltrans bicycle shuttle transports bicyclists between the MacArthur BART station and the Transbay Transit Terminal in San Francisco. The shuttle makes four daily morning departures from Oakland and three departures from San Francisco and four San Francisco and three Oakland departures in the evening. The shuttle carries about 1,500 to 2,000 bicyclists per month.

Planned Bicycle and Pedestrian Facilities

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 impacts created by Port of Oakland projects. The City of Oakland is responsible for planning the facility although no completion date has been identified;
A bikeway is proposed by the City of Oakland on Seventh Street to provide access to Portview Park, which is located at the western end of Seventh Street, adjacent to the Seventh Street Marine Container Terminal;
A bikeway on West Grand Avenue between Maritime Street and Mandela Parkway is planned by Caltrans as part of the I-880/Cypress Freeway Replacement Project and the I-80 HOV lanes and Operational Improvement Project;
A bikeway to be located adjacent to eastbound I-80 is required as a condition of BCDC Permit 11-93 for 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; and
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 part of the "spine" trail of the Bay Trail. The spine trail creates the backbone of the Bay Trail system, encircling and crossing the Bay and providing a continuous transportation and recreational corridor in all nine Bay Area counties. To date, slightly more than half the length of the proposed Bay Trail system has been completed. Figure 3-7 in Appendix A shows these planned improvements.

3.2.4 Maritime Traffic

Ferries

Two companies provide ferry service between the East Bay and San Francisco. The Alameda/Oakland Ferry provides 13 daily round trips from Jack London Square in Oakland to the San Francisco Ferry Building and six daily trips to Pier 39 in San Francisco. All trips make a stop at the Alameda Main Street Terminal. None of the terminals are 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 to the Ferry Building in San Francisco and do not travel through the East Span Project area.

Maritime Operations

The SFOBB traverses the Central Bay Subregion of the San Francisco Bay between the cities of San Francisco and Oakland. 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 main navigation opening under the East Span of the SFOBB is located between Piers E2 and E3. It is used by commercial navigation traveling under the East Span (the main navigation opening is shown on Figure 2-9 in Appendix A). It is approximately 405 meters (1,328 feet) wide with 56 meters (184 feet) of vertical clearance above mean high water. 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. The USCG has established a regulated navigation area for the portion of San Francisco Bay east of YBI, 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. Larger commercial vessels transit beneath the SFOBB west of YBI.

Two maritime facilities are currently located within the project area. They are the Port of Oakland’s Bay Bridge Terminal area and the USCG moorings on YBI. However, recent amendments to BCDC's San Francisco Bay Plan and Seaport Plan have changed land use designations in the Bay Bridge Terminal area. The "Port Priority Use" has been deleted. In addition, there is an existing pleasure/recreational craft marina on TI at Clipper Cove. The CCSF is in the process of expanding services and making improvements to Clipper Cove.

3.2.5 Truck Routes and Truck Traffic

Trucks are a major component of vehicular traffic on certain study area roadways. I-80 is a major local, regional, and interstate truck route, carrying approximately 8,430 truck trips daily on the SFOBB, or about three percent of the annual average 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.

3.2.6 Parking

Yerba Buena Island

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 was formerly used for special events at the Officers' Quarters and is now controlled by Caltrans through a temporary construction easement. During construction, Navy/CCSF will need to contact and get permission from Caltrans if they would like to use it. On-street parking within the project area is difficult because the roadways are narrow; however, two designated on-street spaces are located just south of the SFOBB on Treasure Island Road. Additional on-street parking is located in the residential neighborhoods at former Navy facilities and at current USCG facilities.

Oakland Touchdown Area

In the Oakland Touchdown area, parking for SFOBB Toll Plaza and other workers currently exists in the median area between the westbound and eastbound lanes of I-80. Other land uses in the touchdown area have "informal" parking areas because the land is open and flat. In addition, under BCDC Permit 11-93, Caltrans is required to provide six parking spaces on the south side of the Oakland Touchdown for use by visitors to the view lookout areas.

3.2.7 Federal Aviation Administration

The existing and proposed SFOBB 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.

3.2.8 United States Coast Guard

The existing and proposed SFOBB structures are required to conform to USCG Regulations Parts 114 and 115 of Title 33, Code of Federal Regulations. Conformance with these regulations requires that marine navigation channels remain navigable during and after construction. The appropriate levels of lighting and obstruction markings are required to identify permanent and temporary bridge structures.

3.3 VISUAL SETTING

As described below, the visual setting was evaluated from 20 viewpoints around the Bay Area and within each of the distinct landscape units which make up the study area. For more information on this visual assessment, the Visual Impact Assessment technical report is available at the locations listed in the Preface of this document. The Visual Impact Assessment technical report includes a CD-ROM with photographs, simulated drive-throughs, and an interactive map of visual simulations. Since publication of the Visual Impact Assessment, three additional viewpoints have been added to the visual analysis in response to agency comments. As a result, the three additional viewpoints are discussed in this EIS (see Figures 4-15a through 4-17c in Appendix A), but not included in the Visual Impact Assessment technical report.

3.3.1 Existing Visual Character and Context

Regional Landscape and Scenic Resources

The Bay Area is one of the most scenic areas of the world, combining water, islands, urban skylines, bridges, and mountains into picturesque and impressive vistas. 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 Bridge, the San Mateo-Hayward Bridge, and the Dumbarton Bridge, span significant stretches of open water and are highly visible from vantage points around the Bay. San Francisco Bay extends over 97 kilometers (60 miles) from the Sacramento River Delta 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 northwest; the East Bay hills of Oakland and Berkeley rise dramatically to the east; 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.

Context of the East Span within the Bay Area

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 for visual context.

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 to 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.

3.3.2 Existing Landscape Units and Visual Image Types

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 (YBI), the main span (cantilever section) of the existing East Span, the incline section of the East Span, the Oakland Touchdown area, and the SFOBB Toll Plaza. The boundaries of each landscape unit are shown in Figure 3-9 in Appendix A and described in Table 3.3-1. Figure 3-10a in Appendix A includes 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 3-10b and 3-10c in Appendix A.

Table 3.3-1 Landscape Units

Landscape Unit

Description

Yerba Buena Island (YBI)

57 ha (142 acres) in size, 103 m (338 ft) maximum elevation above mean sea level.
Visually, the island appears to be largely undeveloped: steep, wooded hillsides leading down to the shoreline. The existing East Span is the island’s most prominent manmade feature.
Structures visible from the SFOBB East Span: USCG facilities, the observation tower, and tunnel portal.
Visual image types present on the island include residential, industrial, military, historic, and open space

The Main Span (Cantilever Section)

1.6 km (1 mile) long, up to 61 m (200 ft) above mean sea level.
Composed of steel beams, grayish-silver in color, which form a zigzag pattern along either side of the roadway between the upper and lower decks.
Fashioned in a style reminiscent of a train trestle. Includes a 737-meter (2,418-foot) cantilever truss adjacent to YBI, five high truss spans of slightly more than 152 meters (500 feet) each.
Visual image types present include open space (Bay) and historic (the bridge).

Table 3.3-1 Landscape Units (Continued)

Landscape Unit	Description
The Incline Section	1.7 km long (1.1 miles), rising from mean sea level to meet the cantilever section at 61 m (200 ft) above mean sea level. Connects the cantilever section of the SFOBB East Span to the Oakland Touchdown area. Composed of steel beams, grayish-silver in color which form a zigzag pattern along either side of the roadway between the upper and lower decks. Visual image types present include open space (Bay) and historic (the bridge).
Oakland Touchdown	1.6 km (1 mile) from the SFOBB Toll Plaza to where the East Span begins its incline. Area is flat and rises only a few meters above sea level. On the north side of the touchdown is an open area adjacent to the mudflats of the Emeryville Crescent. This area harbors several pine trees and low marshland vegetation. On the south side of the span, industrial uses, including open storage, the EBMUD dechlorination facility, and two maintenance buildings, one once part of the historic Key System, are located at the extreme western end of the touchdown. An undeveloped area owned by the U.S. Army exists along the shoreline at the southern edge of the touchdown area. Visual image types include industrial, historic, and open space.
SFOBB Toll Plaza	Ground level, encompassing 15 lanes of westbound traffic. Entirely man-altered with broad expanses of asphalt where vehicles queue to pay tolls and six lanes of eastbound traffic continuing off the bridge toward the network of highways in the East Bay. Main Bridge Administration Building is located at the SFOBB Toll Plaza, along with a series of Caltrans maintenance and repair buildings which support the operation and maintenance of the SFOBB. Visual image types in this landscape unit consist of military and industrial.

Source: Visual Impact Assessment, September 1998.

3.3.3 Viewer Groups and Viewpoints

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

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.

Views to 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 4-15 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, Richmond, or San Leandro. In the West Bay, potential viewers may live/work in San Francisco, Sausalito, Tiburon, or elsewhere in Marin County.

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 FHWA 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; and

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.

Table 3.3-2 Summary of Existing Visual Quality

Viewpoint	Setting	Vividness	Intactness	Unity
Richmond Marina	9.6 km (6 mi.) north of span. Coastal. Sea level.	Moderate-to-high	Moderate-to-high	Moderate-to-high
Berkeley Pier	4.8 km (3 mi.) northeast of span. Coastal. Sea level.	High	High	Moderate
The Claremont Hotel	8.0 (5 mi.) kilometers northeast of span. Inland. Elevated.	Low	Low-to-moderate	High
I-80 between University Ave. and Ashby Ave.	4.0 km (2.5 mi.) northeast of span (moving southbound). Inland. Sea level.	Moderate	Low-to-moderate	Low-to-moderate
Emeryville Marina	2.5 km (1.6 mi.) northeast of span. Coastal. Sea level.	Moderate	Moderate	Moderate-to-high
Oakland Touchdown Area	60 m (200 ft.) south of span. Coastal. Sea level.	High	High	High
I-880 Approaching the SFOBB	9.8 km (6 mi.) east of span at closest point (moving). Inland. Elevated.	Moderate	Low-to-moderate	Low-to-moderate
Oakland Federal Building	5.6 km (3.5 mi.) southeast of the span. Inland. Elevated.	Low-to-moderate	Moderate	Moderate-to-high
Alameda Naval Air Station	4.0 km (2.5 mi.) south of span. Inland. Sea level.	Moderate-to-high	Moderate	Moderate
Oakland-San Francisco Ferry	As close as 0.8 km (0.5 mi.) south of span (moving west-east). In the Bay. Sea level.	High	High	High
Hunters Point	10.0 km (6.3 mi.) southwest of span. Coastal. Sea level.	Moderate	Moderate-to-high	High
Potrero Hill	7.0 km (4.4 mi.) southwest of span. Inland. Elevated.	Moderate	Moderate	Moderate-to-high
Pier 39	5.0 km (3 mi.) west of span. Coastal. Sea level.	Low-to-moderate	Moderate-to-high	Moderate
Treasure IslandViewpoint 1	0.8 km (0.5 mi.) northwest of span. Coastal. Sea level.	High	High	Moderate-to-high
Treasure IslandViewpoint 2^a	0.8 km (0.5 mi.) north of span. Coastal. Sea level.	High	High	Moderate-to-high
Sausalito	12.0 km (7.5 mi.) northwest of the span. Coastal. Sea level.	Moderate	Moderate-to-high	High
Angel Island	7.2 km (4.5 mi.) northwest of span. Inland. Elevated.	Moderate-to-high	Moderate	High
Vallejo-San Francisco Ferry	As close as 2.5 km (1.6 mi.) northwest of span (moving south-north). In the Bay. Sea level.	High	Moderate-to-high	High
Nimitz House, YBI^a	Within 100 meters (328 feet) north and west of the span. The span is approximately 30 meters (98 feet) above the viewpoint.	High	Low	Low
Yerba Buena^a	74 meters (250 feet) north of span. Forest. Historic buildings. Sea level.	High	Moderate-to-low	Moderate-to-low

Source: Visual Impact Assessment, September 1998.

^aThese viewpoints added after completion of the Visual Impact Assessment.

3.4 AIR QUALITY

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

3.4.1 Regulatory Context

Federal Regulations

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, developed an Ozone Attainment Plan, which was adopted in June 1999. The EPA has indicated that the 1999 Ozone Attainment Plan is inadequate. As a result, the Metropolitan Transportation Commission (MTC), the Air Resources Board, and the BAAQMD are preparing a revised Ozone Attainment Plan for submittal to EPA by July 2001. The BAAQMD hopes to achieve attainment by 2003.

Under the Clean Air Act, regions that are maintenance areas (i.e., geographic areas that were previously designated non-attainment areas, but now meet 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 Bay 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

Table 3.4-1 State and Federal Air Quality Standards

California Standards

National Standards

Pollutant

Averaging Time

Concentration

Bay Area Attainment Status^a

Concentration

Bay Area Attainment Status

Ozone

1-hour

0.09 ppm

(180 µg/m³)

0.12 ppm