February5,2016

ApplicationSummary(ForCommissionconsiderationonFebruary18,2016)

Number: BCDCPermitApplicationNo.2013.007.00DateFiled: January22,201690thDay: April21,2016StaffAssigned: AnnikenLydon(415/352-3624;anniken.lydon@bcdc.ca.gov)

Summary

Applicant: SanFrancisquitoCreekJointPowersAuthority(JPA).TheJPAisaregional

governmentagencyconsistingoftheCityofPaloAlto,theCityofMenloPark,

theCityofEastPaloAlto,theSanMateoCountyFloodControlDistrict,andthe

SantaClaraValleyWaterDistrict.

Location: WithinandadjacenttoSanFrancisquitoCreekandFaberTractMarsh(partof

theDonEdwardsSanFranciscoBayNationalWildlifeRefuge),locatedonthe

boundarybetweenSanMateoandSantaClaraCounties(ExhibitA).Theproject

ispartiallywithintheCommission’sBayand100-footshorelineband,andareas

designatedaswildliferefugeandwaterfrontparkpriorityuseareasintheSan

FranciscoBayPlan(BayPlan)(Figure1).

Figure1.ProjectLocation

2

Project: The“SanFrancisquitoCreekFloodReduction,EcosystemRestoration,and

RecreationProject”(project)isthefirstphaseofalargerplannedfloodcontrol

projectalongthelengthofSanFrancisquitoCreek.Approximately13.6acresofthe

263.5acresoftheprojectiswithintheCommission’sBayand100-footshoreline

bandjurisdiction.TheproposedprojectwouldincreasetheSanFrancisquitoCreek

(SFC)channelfloodwatercapacityandconveyanceby:(1)wideningthecreekto

improvefloodwaterconveyance;(2)restoringin-streammarshandenhancing

existinghabitatsalongthechannel;and(3)enhancingandcreatingnewmarsh

habitatinareasaroundthefloodcontrolchannelprojectarea.

Theprimaryprojectpurposeisto:

• Protectpropertiesandinfrastructure(inEastPaloAltoandPaloAlto)between

EastBayshoreRoadandtheSanFranciscoBayfromSFCflowsresultingfrom

100-yearfluvialfloodflowsoccurringsimultaneouslywitha100-yeartideand26

inchesofprojectedsealevelrisethrough2067;

• Accommodatefuturefloodprotectionmeasuresthatmightbeconstructed

upstreamoftheproject;

• Enhancehabitatalongtheprojectreach,particularlyhabitatforthreatenedand

endangeredspecies;

• Enhancerecreationaluses;and

• Minimizeoperationalandmaintenancerequirements.

LeveeStabilization: Theprojectincludesreinforcingexistingleveesalongthenorth(SFCnorthlevee)

andsouth(SFCsouthlevee)sidesofthecreek,constructingfloodwallsinsome

locations,andrealigningtheSFCsouthleveetowidenthechannelnearthe

FriendshipBridgeintotheadjacentPaloAltoMunicipalGolfCourse(golfcourse)to

allowforincreasedfloodwatercapacityduringhighflows.

3

MarshEnhancementandCreation: WithintheCommission’sBayandshorelinebandjurisdictions,theprojectwould

resultinabout2.19acresofpermanentandtemporaryimpactstotidalmarsh

habitatswithinSanFrancisquitoCreekandtheFaberTractMarsh.Theprojectwould

restoreapproximately9.44acresoftidalmarshandtransitionzonehabitatswithin

thecreekandtheadjacentFaberTractMarsh,whichwouldinclude:thecreationof

newtidalmarshterracewithinthechannel;restorationofhighmarshandtransition

zonehabitatswithintheSanFrancisquitoCreekchannel;creationoftransitionzones

andhightiderefugiaalongtheleveebanksandwithinFaberTractMarsh;the

loweringofanexistingleveetohighmarshelevationsinOuterFaberMarsh;andthe

creationofhightiderefugiaislandswithinOuterFaberMarsh(ExhibitD).

PublicAccess: Theprojectwouldprovideanewapproximately202-footboardwalkportionofthe

BayTrailconnectingFriendshipBridgeandthenewlyrealignedSFCsouthlevee,

creatingtrailcontinuityacrossthesite.Additionalpublicaccesstrailimprovements

wouldbeprovidedoutsidetheCommission’sjurisdiction,whichwouldallowgreater

connectivitytothissitefromadjacentareas.Theseimprovementsinclude:realigning

andresurfacingexistingtrailsalongthetopoftheSFCsouthleveeinPaloAlto;

establishinganewformaltrailalongthetopoftheSFCnorthleveenearEastPalo

Altoresidentialareas;improvingexistingaccesspointstothetrails;constructinga

newaccesspointatEastBayshoreRoad;andprovidinginterpretivesignagenearthe

newlyconstructedboardwalkacrossthecreek(ExhibitG).Alltrailswouldhavea

minimumwidthoftenfeetandportionsofthetrailswouldupto16feetwidein

somelocations.

IssuesRaised: Thestaffbelievesthattheapplicationraisesfiveprimaryissues:(1)whetherthe

projectisconsistentwiththeMcAteer-PetrisActandtheBayPlanpoliciesregarding

fill;(2)whethertheprojectisconsistentwiththeMcAteer-PetrisActandtheBay

Planpoliciesonnaturalresources,includingFish,WildlifeandOtherAquatic

Organisms;TidalMarshesandTidalFlats;WaterQuality;andMitigation;(3)whether

4

theprojectwouldprovidethemaximumfeasiblepublicaccessconsistentwiththe

project;(4)whethertheprojectisconsistentwiththeBayPlanPriorityUseMap7

(includingwildliferefugeandwaterfrontrecreationareas);and(5)whetherthe

proposedshorelineimprovementsareconsistentwiththeBayPlanpolicieson

ProtectionoftheShoreline.

Background

SanFrancisquitoCreekliesbetweenSanMateoandSantaClaracountiesinthecreek’slowerwatershed.ThisurbancreeksystembeginsattheconfluenceofCorteMaderaCreekandBearCreek,justbelowSearsvilleLakeinStanfordUniversity’sJasperRidgeBiologicalPreserve.ThemouthoftheCreekopenstotheSanFranciscoBayadjacenttoPaloAltoAirportofSantaClaraCounty(PaloAltoAirport)tothesouthandtheFaberTracttothenorth(ExhibitA).

SanFrancisquitocreekisaperennialstreamthatistidallyinfluencedbySanFranciscoBay.Theclosestweatherstation,4.5milestothenorthwestoftheprojectsite,recordsanannualaverageprecipitationof19.8inches.Thecreek’sannualflowis21.4cubicfeetpersecond(cfs)onaverage,withthelowflow(about0-1.0cfs)occurringinlatesummerandearlyfall.Thecreekcanbeadrystreambedforabout6monthsoftheyear.However,floodingfromthecreekisacommonoccurrence.ThemostrecentfloodeventoccurredinDecember2012,whenthecreekovertoppeditsbanksinseveralareas.AnevenlargereventoccurredinFebruary1998,whichtheU.S.ArmyCorpsofEngineers(USACE)estimatedwasa45-yearfloodevent.A100-yearfloodeventisanticipatedtoresultinflowsof9,400cfsatthemouthofthecreek.AccordingtotheSanFrancisquitoCreekJPA,theseflowswouldexceedtheexistingcapacityofthecreekandresultindamagetoadjacentpropertieswithinEastPaloAltoandPaloAlto.Consistentwithitssetting,muchofthecreek’slengthwithintheareahasbeenstraightened,channelized,orotherwiseimprovedforfloodprotection,butthechannelhasnotbeenlinedwithconcrete.

Thefullprojectsite(ExhibitD)supportsdikedmarsh,freshwatermarsh,tidalsaltmarsh,freshwaterpond,tidalchannelandbaywaters,andtidalpan,aswellasuplandareascomposedofannualgrasslands,ruderalareas,turf,andurbanizedareas.TheFaberTractMarshcontainsveryhighqualitytidalmarshhabitatandisknowntosupportoneofthelargestpopulationsofthestateandfederally-endangeredCaliforniaRidgway’srailregion-wide.FaberTractMarshandadjacentareasalsoprovidehabitatfortheendangeredsaltmarshharvestmouse.Inaddition,theSanFrancisquitoCreekprovidesimportantmigration,spawning,andrearinghabitatforwinter-runsteelheadtrout.Statelistedlongfinsmeltandfederallylistedgreensturgeonarealsoknowntoinhabittidally-influencedareasoftheSouthBayoccurringneartheprojectsite.

5

Thelandsurroundingtheprojectsiteincludesprotectedopenspace,residential,lightindustrial,andrecreationaluses.Thenorthbankoftheprojectreach(SFCnorthlevee)isborderedbyEastPaloAltoresidencesandbytidalmarshareasofFaberTractMarsh;thesouthbankoftheprojectreach(SFCsouthlevee)isborderedbybusinesses,including:theInternationalSchoolofthePeninsula,UnitedStatesPostalService(USPS)facility,theBaylandsAthleticCenter,thePaloAltoMunicipalGolfCourse,andPaloAltoAirport.LeveesexistalongbothsidesofSanFrancisquitoCreekandalongthewesternedgeandinterioroftheFaberTract.Afootbridge(FriendshipBridge)crossesthecreekjustsouthoftheFaberTract.TheSanFranciscoBayTrailrunsalongthecrownoftheSFCsouthleveefromGengRoaddownstreamtothemouthofthecreekandalsocrossesFriendshipBridgeandcontinuesnorthalongthewesternsideofFaberTractMarsh(ExhibitG).

WithintheCommission’sjurisdiction,theprojectincludes:therealignmentoftheSFCsouthlevee;installationoffloodwallsinareasalongthecreek;temporaryplacementofacofferdamandothernecessaryconstructionelements;reinforcementofdegradedleveeareas;restorationofmarshhabitatalongthechanneledges;degradingofanexistingleveetomarshplainelevations;andtheplacementofhightiderefugiaislandsinOuterFaberMarsh(ExhibitD).ConstructiontheproposedprojectwithinBCDC’sjurisdictionwouldoccurovertwoconsecutiveconstructionseasonswithmostoftheworkoccurringbetweenJuneandOctoberofeachyear.

ProjectDescription

ProjectDetails: Theapplicant,theSanFrancisquitoCreekJointPowersAuthority(JPA),describesthe

projectasfollows:

IntheBay:

1. Constructuptofive,hightiderefugiaislandsinOuterFaberMarshbyplacingapproximately1,250squarefeet(250squarefeetperisland;0.006acres)ofimportedsolidfillintheMarsh.Eachislandwouldbeapproximately10feetby30feetinsizeandconstructedtoaninitialelevationofapproximately8.8feet(NAVD88),plantedwithnativemarshgumplantandothertallstaturewetlandvegetation(ExhibitL);

2. Excavateapproximately1,470cubicyards(cy)ofsedimentfromanapproximately23,600-square-footareaofthecreekchannelanddisposeofmaterialatanuplanddisposallocation(ExhibitH);

3. Remove390feetofabandonedsanitarysewerlinewithinBCDC’sBayjurisdictionlocatednearFriendshipBridgeandinstall810feetofnewsewerlineembeddedatleast6.0feetordeeperbelowthechannelmudline;

6

4. Constructanapproximately2,062-square-foot,wooden,pile-supportedboardwalk(approximately202feetlongand10feetwide)overthenewlycreatedmarshplainterracetoconnecttheabutmentoftheleftsideofFriendshipIslandtothenewlyrealignedSFCsouthleveewithintheCommission’sfutureBayjurisdiction;

5. Constructone“steelheadpassagefeature”inthecreek,includingapermanentrockspur(partialweir),consistingofapproximately1,710squarefeetoflargerockandothersolidfillinthechannel;and

6. Placeapproximately12,860squarefeetoftemporarysolidfillduringin-channelconstructionoccurringoveratwo-yearperiod,whichincludes:

a. installinganapproximately1,850-foot-long,36-inchdiameterHDPEdiversionpipealongtheoutboardsideoftheSFCnorthlevee;

b. constructingatemporary,steelsheetpile,cofferdam,approximately12feettalland160feetlong,spanningthewidthofthechannel(ExhibitP);

c. placinggravel-filledbagsaroundtheconnectionbetweenthepipeandthecofferdamwalls;

d. placingapproximately7,256squarefeetofrockwithinthechannelasanenergydissipaterforthewateroutflowdiversionpipe;

e. dewateringthechannelandcreekforin-channelconstructionactivitiesfromJunethroughOctoberduringeachyearofthetwo-yearconstruction(2016-2017);and

f. removingalltemporaryfill(waterdiversionpipes,rockandcofferdam,etc.)followingtheclosureofthein-channelworkwindow.

PartiallyWithintheBayand100-footShorelineBand:

1. Placeapproximately26,400squarefeetofripraparoundtheeasternfootingsofFriendshipBridge(futureFriendshipIsland);

2. Placeapproximately28,500squarefeetofriprapalongtheinboardsideoftheSFCnorthlevee,alongFaberTractMarshnearFriendshipBridge,andalongtheinboardsideoftheSFCsouthernleveetostabilizeshorelinefeaturesduringincreasedfloodflowswithinthecreek(ExhibitI);

3. Placeapproximately11,150squarefeetofcleanfillalongtheoutboardsideoftheSFCnorthlevee,intheFaberTractMarshtostabilizeandrestorelowportionsoftheleveefrom11feet(NAVD88)toapproximately13feet(NAVD88).ExtendtheoutboardsideoftheSFCnorthleveeata6:1slopeintoFaberTractMarshtoprotectthetoeoftheexistingleveefromfailureduringhighflowevents;and

7

4. Restore1.74acresofhighmarshandtransitionalhabitatalongandwithinSanFrancisquitoCreek,andthenorthandsouthleveesaspartofthetotal15.14-acrehighmarsh/transitionzonerestorationeffort.Thiswouldinclude0.88acresofnewlycreatedhighmarshplainterraceintheCommission’sfutureBayjurisdictionandrestorationof0.86acresofhighmarsh/transitionzonealongtheedgesofthecreek.

Withinthe100-footShorelineBand:

1. Degradeapproximately600feet(37,670squarefeet)ofanunmaintainedsectionoftheexistingSFCnorthleveethatrunsbetweentheOuterFaberMarshandtheterminusofSanFrancisquitoCreek(ExhibitI)from10-12footelevation(NAVD88)toapproximately8feet(NAVD88)tocreateaconnectionbetweenthecreekandtheOuterFaberMarshduringhighflowperiods.Useapproximately4,000cyofexcavatedsoilsforleveefillifitissuitableforthisuse;

2. DegradeportionsoftheexistingpavedSFCsouthlevee(approximately700feet,60,400squarefeet)toanelevationof7feet(NAVD88)andwidentheexistingchannel,andsetbackportionsoftheexistingSFCsouthleveeintothegolfcourse,outsidetheCommission’scurrentjurisdiction.SettingtheleveebackwouldexpandtheCommission’sBayandshorelinebandjurisdictionsbeyondtheircurrentboundary(ExhibitsEandF);

3. Placeapproximately56,500squarefeetofnewfillforaportionofthenewlyalignedSFCsouthlevee,withintheCommission’sexistingandfutureshorelinebandjurisdictionandrealign600feetofthepublicaccessalongthenewSFCsouthleveetop.ThenewSFCsouthleveealongthegolfcoursewouldbeapproximately80feetwideatthebaseand14feettall;

4. Paveandmaintaina600feetofthenewlyrealignedpublicaccesstrailrunningalongthecrownoftherealignedSFCsouthleveeandrestoreaccesstotheBayTrail;

5. TemporarilycloseexistingpublicaccesstrailsonthesouthsideoftheSanFrancisquitoCreeknearFriendshipBridgeduringconstructionoperations;

6. LeaveportionsoftheexistingSFCsouthleveeconnectionwithFriendshipBridgetocreateanisland(FriendshipIsland)inthemiddleofthenewlywidenedchannel;

7. Stockpiletopsoilremovedduringexcavationandreusestockpiledsoiltorepairareasdisturbedduringconstruction;

8. InstallandmaintainatleastoneinterpretivesignrelatedtoFaberTractMarshatanapprovedlocationnearFriendshipBridgeorthenewlyconstructedboardwalk;

8

9. InstallandmaintainatleastsevenBCDCpublicshorelineway-findingsignsatapprovedlocationstonotifythepublicofwheretoaccesstheshoreline;

10. RemoveoldPG&Egasutilitylinesandinstallanew24-inchgaslineupstreamofFriendshipBridgeusinghorizontaldirectionaldrilling;

11. Constructasteelsheetpilefloodwalluptofourfeetabove(18.40NAVD88)theexistingSFCnorthleveetopofbankandalongapproximately500feetofshorelineneartheO’ConnorWayPumpStationandFriendshipBridge(betweenaboutSTA28+00toSTA33+00)toconnecttheoutfallstructuretotheadjacentlevees,aportionofwhichiswithintheCommission’sjurisdiction;

12. Plantnativehighmarshvegetationonapproximately5,120feet(6acres)alongtheleveesonthenorth,east,andsouthsidesofFaberTractMarshtoimprovehightiderefugeareas;

13. Utilizecertainareasforthestagingofconstructionequipmentormaterials(ExhibitO);and

14. Install,useandmaintainaneightfoot-highfencetoexcludepredatorsfromenteringtheFaberTractMarshonthenorthernsideoftheSanFrancisquitoCreekviatheSFCnorthlevee.

BayFill: Theproposedprojectwouldresultinthenetplacementofapproximately24,000squarefeetofnewfillwithintheBaytoreinforcedegradedleveeareas,createhigh-tiderefugiaislands,andprotectfootings/shorelineareasthatwouldprovidepublicaccess.Approximately2,062squarefeetofthefillwouldbepile-supportedfillforaboardwalkoverthenewlywidenedsectionofSanFrancisquitoCreek.Approximately54,790squarefeetofrockriprapwouldbeplacedwithintheCommission’sBayandshorelinebandjurisdictionforshorelineprotectionofalongleveeslopes.

Table1.FillAreasfortheProposedProject(insquarefeet).

BayJurisdiction(sf) ShorelineBandJurisdiction(sf)

Description TypeofFill ToBeRemoved

ToBePlaced ToBeRemoved

ToBePlaced

TotalNetFillArea(sf)

SFCnorthandsouthleveeriprap Solid 0 7,125 0 21,341 28,466

FriendshipIslandRiprap

Solid 0 2,642 0 23,682 26,324

SFCnorthleveeoutboardside

Solid 0 8,455 0 2,678 11,133

Fishpassagestructures(rock) Solid 0 1710 0 0 1,710

9

BayJurisdiction(sf) ShorelineBandJurisdiction(sf)

Description TypeofFill ToBeRemoved

ToBePlaced ToBeRemoved

ToBePlaced

TotalNetFillArea(sf)

SFCsouthleveefill Solid 0 3,525 -60,378 52,943 -3,910

OuterFaberMarshleveedegrade

Solid -2,806 0 -34,864 0 -37,670

EarthfillforFaberMarshleveesandhigh

tiderefugiaSolid 0 1,250 0 539 1,789

TemporaryCofferdamandotherconstruction

structuresTemporary -12,806 12,806 0 0 0

TotalSolidFill 21,901 5,941 27,842

Boardwalk Pile-Supported

0 2,062 0 0 2,062

TotalPile-SupportedFill 2,062 2,062

TOTALBAYFILL(sf) 23,963

Mitigation: ThefloodreductionprojectwouldresultinimpactstotheBayenvironment.Thefullproject,includingareasoutsidetheCommission’sjurisdiction,wouldimpactaboutapproximately10.64acresofhabitat.Theproposalforcompensatorymitigationincludesrestoring15.14acresoftidalmarshwithinthechannel(7.51acresofhighmarshplantingareaand7.63acresofhighmarshtransitionzone).Approximately1.15acresoftheimpactswouldoccurwithintheCommission’sjurisdictioninthecreekandtheapplicanthasproposedtorestore1.74acresoftidalmarshandtransitionzonehabitatswithinBCDC’sjurisdiction.Additionally,theprojectwouldimpactapproximately1.04acresofhabitatinFaberTractMarshwithintheCommission’sjurisdiction,forwhichtheapplicanthasproposed7.7acresofhabitatrestorationandenhancements.Habitatrestorationfeaturesinclude,removinginvasivevegetationalongtheleveesaroundtheFaberTractMarsh,restoringnativevegetation,providinghightiderefugiaislandsforRidgway’sRailandsaltmarshharvestmouseintheOuterFaberMarsh,restoringtidalmarshareaswithintheSanFrancisquitoCreek,andcreatinganewtidalmarshterrace.Additionally,theprojectproponentmaymitigateforimpactstogroundfishhabitatwithinthechannelresultingfromconstructionoftheproject.Thismitigationmayincludeeither:(1)fundingforanexistingrestorationproject;(2)purchasingcreditsfromamitigationbank;or(3)implementinganewrestorationproject.

10

PublicAccess: Theprojectwouldincreaseoverallpublicaccessaroundtheprojectsitefrom

approximately161,622squarefeet(15,206linearfeet)toapproximately209,118squarefeet(15,193linearfeet).WithintheCommission’sjurisdiction,thepublicaccesswouldbeincreasedfromthecurrentlyavailable11,162squarefeet(1,082linearfeet)toapproximately16,522squarefeet(1,192linearfeet).Inordertorealigntheleveeandimprovethepublicaccess,theprojectwouldincluderemovalofapproximately700linearfeetofexistingSFCsouthleveepublicaccesstrail,provideapproximately800linearfeet(11,650squarefeet)ofnewpublicaccesstrailalongthenewlyrealignedSFCsouthleveetopandalongthenewlyconstructedboardwalk,enhanceexistingpublicaccessareasinsideandoutsidetheCommission’sjurisdiction,andincorporateinterpretivesignage.Morespecifically,theproposedpublicaccessimprovementsinclude:1. InstallationofeducationalsignagerelatedtoFaberTractMarshandanoverlook

arealocatedneartheFriendshipBridge;2. A202-linear-foot,wooden,pile-supportedboardwalkacrossthenewlywidened

SanFrancisquitoCreek,connectingsectionsoftheBayTrailonthenorthandsouthsidesoftheprojectarea;

3. Atleastsevennew“publicshore”signsatapprovedlocationsoutsidetheCommission’sjurisdictionthatnotifythepublicofshorelineaccesspoints;

4. PlaceaggregatebaseontheEastPaloAltoSFCnorthleveeandwidenportionsofthetrailtoenhancetheexistingtrail;

5. Paving,wideningand/orimprovingportionsofthetrailonthePaloAltoSFCsouthlevee;

6. Alltrailswouldbeaminimumof10feetwide,butportionsoftheSFCnorthleveeandSFCsouthleveemaybewidenedtoupto16feet;

7. ImprovementstotheO’ConnorWayPumpHouse,DaphneWay,VerbenaDrive,accesspointsontheEastPaloAltoSFCnorthlevee,includingbollardsorothervehicleexclusionelements,oradditionalimprovementsnecessarytoenhancepublicaccess;and

8. AnewformaltrailaccesspointatEastBayshoreRoadontheSFCnorthlevee,whichwouldincludebollards,signageorotheradditionalimprovementsnecessarytoenhancepublicaccess.

PriorityUse: Theproposedprojectincludeselementswithinawildliferefugepriorityuseareaat

FaberTractMarshandelementswithinawaterfrontparkpriorityuseareasalongthegolfcourseandleveesadjacenttoFaberTractMarsh.

ScheduleandCost: TheapplicantproposedtobeginconstructiononApril1,2016andcompleting

constructionbyNovember11,2017.Thetotalcostoftheprojectisapproximately$24,407,000.00.

11

StaffAnalysis

A. IssuesRaised:Thestaffbelievesthattheapplicationraisesfiveprimaryissues:(1)whethertheprojectisconsistentwiththeMcAteer-PetrisActandtheBayPlanpoliciesregardingfill;(2)whethertheprojectisconsistentwiththeMcAteer-PetrisActandtheBayPlanpoliciesonnaturalresources,includingFish,WildlifeandOtherAquaticOrganisms;TidalMarshesandTidalFlats;WaterQuality;andMitigation;(3)whethertheprojectwouldprovidethemaximumfeasiblepublicaccessconsistentwiththeproject;(4)whethertheprojectisconsistentwiththeBayPlanPriorityUseMap7(includingwildliferefugeandwaterfrontrecreationareas);and(5)whethertheproposedshorelineimprovementsareconsistentwiththeBayPlanpoliciesonProtectionoftheShoreline.

1. BayFill.TheCommissionmayallowfillonlywhenitmeetstherequirementsidentifiedintheMcAteer-PetrisActSection66605,whichstates,inpart,that:“[(a)]thepublicbenefitsfromfillintheBayshouldbeauthorizedwhenpublicbenefitsfromfillclearlyexceedpublicdetrimentfromthelossofwaterareas,fillshouldbelimitedtowater-orientedusesorminorfillforimprovingshorelineappearanceandpublicaccess;(b)thereisnoalternativeuplandlocation;(c)thefillistheminimumamountnecessary;(d)thefillisdesignedtominimizeharmfuleffectstotheBayArea,includingreducingimpactstowatercirculation,waterquality,marshesandwildlife,andotherconditionsoftheenvironment;(e)thatthefillshouldbeconstructedinaccordancewithsoundsafetystandards,whichofferprotectiontopersonsandpropertyagainstthehazardsofunstablegeologicorsoilconditionsoroffloodorstormwaters;(f)authorizedfillshouldestablishapermanentshoreline;and(g)thefillshouldbeauthorizedonlywhentheapplicanthasvalidtitle.”

Theprojectwouldresultinthenetplacementofapproximately24,000squarefeetofnewpermanentfillintheBayforavarietyofuses,includingthoserelatedtostabilizationandprotectionofexistingleveesalongthecreek,constructionofafloodwall(partofwhichisintheCommission’sjurisdiction),replacementofutilitylines,creationofhightiderefugiaislandsintheOuterFaberMarsh,placementofin-streamfishmigrationstructures(steelheadpassagefeatures),andprotectionofbridgefootings/abutmentslocatedwithinthestreambed.SolidfillplacedontheoutboardsideoftheSFCnorthleveeinOuterFaberTractwouldbeprimarilyforthecreationofhightiderefugia.Fillforpublicaccesswouldincludeapproximately2,062squarefeetofthefillforanewwooden,pile-supportedboardwalkovernewlycreatedopen-waterareaandtidalmarshplainwithintheCommission’sfutureBayjurisdiction,whichwouldbecreatedbytheproject.

Temporaryfillwouldincludetheplacementofcofferdams,waterdiversionpipes,andenergydissipatersduringin-channelconstruction,occurringfromJunethroughOctober.

Duringconstruction,streamflowsfromupstreamofthesitewouldneedtobypasstheconstructionsite.Inordertoaccomplishthis,approximately12,806squarefeetoftemporaryfillforatemporarycofferdamandothernecessarywaterdiversionstructureswouldbeplacedwithinthecreek.Sheetpileswouldbeembeddedapproximately20feetdeepintothechannel.A36-inchHDPEdiversionpipewouldrunalongthesurface

12

oftheFaberTractmarsh(1,850feetlong,1,940cyoffill)temporarilycoveringabout5,550squarefeetofthemarsh.Attheendofthediversionpipe,arockenergydissipaterwouldbeconstructedwithinthechannel,resultinginapproximately540cyoftemporarysolidfill(7,256squarefeet).ThepipesandtherockenergydissipaterwouldberemovedaftereachconstructionseasoninthecreekandstoredoutsideBCDC’sjurisdiction.

a. PublicBenefit.Theexistingshorelineandcreekconsistsofanundersizedfloodprotectionchannel,floodprotectionleveesinneedofrepair,anexistingmarshthatlacksconnectiontothecreekandhaslimitedexistinghightiderefugia.Inaddition,leveesononesideofthecreekarelowerthantheothersidecreatingagreaterfloodriskforEastPaloAlto,andaninadequateleveloffloodprotectionexistsforthecurrentandfutureconditionsasevidencedbyrecentfloodevents.Currently,thelowerportionofthecreekisconstrained,andpartiallyfilledwithsediment,reducingfloodcapacity.Additionally,theleveedegradeproposedalongtheOuterFaberMarshwouldreducetheconstrictionpointneartheBayandreducefloodelevationsfurtherupstreamduringhighflows.

TheFaberTractMarshisborderedonfoursidesbyleveesorearthenbermsthatrestrictfluvialandtidalexchangeofsedimentintothemarsh.Inaddition,themarshhaslimitedtransitionzonesorhightiderefugia,sothehighesttidesfullyinundatethemarsh.Duringhightides,wildlife,includingtwofederallyandstatelistedspecies,mustmovetotheedgesofthemarshwherepredationratescanbehigh.Thefillproposedwithinthemarshtocreatehightiderefugiaislandsandalongtheedgestoprovideadditionaltransitionspaceatthetoeoftheleveewouldprovidemuchneededopportunitiesforspeciestoreachhigherelevationsduringhightides.ThereforethisfillwouldprovideasignificantpublicbenefitinthatitsupportsnativeBayspecies,especiallythosewithcriticalpopulationissuesassociatedwithhabitatloss.

b. WaterOrientedUse.WithintheCommission’sjurisdiction,approximately30,000squarefeetoffillisproposedwithintheCommission’sBayand100-footshorelinebandjurisdictionsforthepurposeoffloodprotection.Whilenotexplicitlydescribedasa“waterorienteduse”bytheMcAteer-PetrisAct,shorelineprotectionsystems,havebeenauthorizedinnumerouslocationsaroundtheBaybytheCommission,andhavebeenfoundtobeawater-orienteduse.TheBayPlanhasanentiresectionwithfindingsandpoliciesonShorelineProjectionintheBay.Finding(b)oftheCommission’sShorelineProtectionpoliciesrecognizesthat,“[m]oststructuralshorelineprotectionprojectsinvolvesomefill….”TheprimarypurposeofmuchoftheproposedprojectelementsistoprovideupstreamfloodprotectionforresidentswithintheCityofEastPaloAltoandtoprovideprotectiontopropertyownersonthePaloAltosideofthecreekbyreinforcingorenhancingcurrentlyexistinglevees.

13

c. AlternativeUplandLocation.Theproposedfloodcontrolprojectisdesignedtoprotectresidentsinthefloodplainfromflooding.Thereisnoalternativeuplandlocationforthefillproposedinthechannelbecauseshorelineprotectionfeaturesarenecessaryforthebasicprojectpurposeandneed.Inadditiontofloodprotection,theprojecthasothergoals,includinghabitatenhancement,restoration,andcreatinguplandrefugia.FaberTractMarshwouldbesubjecttomorefrequentfloodingeventsaftertheloweringoftheleveebetweentheSanFrancisquitoCreekandtheOuterFaberMarsh,andtherefore,theproposedfillisnecessarytoprovidehigherelevationrefugiaforRidgway’sRailandsaltmarshharvestmicethatlivethere(ExhibitI).

d. MinimumAmountNecessary.Theprojectwouldinvolveanetplacementofapproximately24,000squarefeetofnewfillintheCommission’scurrentandfutureBayjurisdiction(Table1).Theprojectproponenthasstatedthatthisistheminimumamountoffillnecessarytoconstructprojectelementsandachievethefloodprotectionandhabitatrestorationgoalsoftheproject.Approximately1,250squarefeet(110cy)ofthisfillwouldbeforthecreationoffivehightiderefugiaislandsintheOuterFaberMarsh(ExhibitL).Theprojectproponentshavestatedthatthefillistheminimumamountnecessarytoachievethedesiredhabitatfeatureswithminimalreductioninexistingmarshhabitatandmitigatefortemporaryorpermanentlossofhabitatresultingfromtheproject.

Inaddition,placementofapproximately18,200squarefeetofsolidfill,consistingofriprapandearthenfill,intheBayisnecessaryforprotectingsectionsoftheSFCnorthleveenearFriendshipBridgeandtheO’ConnorPumpStation,reinforcinglowsectionsoftheoutboardsideoftheSFCnorthlevee,andprotectionofareasofFriendshipIslandfromerosion(ExhibitI).Theriprapfeaturewouldbecarefullyengineeredandadditionallybefrontedbytenfeetofvegetationtoprotectthestabilityofthelevee.Duetothevelocityofthewaterflowingthroughthechannelduringhighflows,rockandconcreteareneededtomaintaintheleveesinthechannelassoftersedimentswouldlikelybewashedoutoreroded.Theprojectwouldalsoinvolveminoramountsofsolidfillconsistingofmainlyrockwithinthefloodcontrolchanneltocreateoneofsixhighvelocityrefugeareasforsteelheadmigratinginthecreek.FiveotherfishpassagefeatureswouldbeprovidedupstreamandoutsidetheCommission’sjurisdiction.Thevelocityreductionareawouldallowforindividualsteelheadandothersspecieslivingwithinandtravelingthroughthechanneltohaveanareaofrespite.Ifthefishpassagefeatureswerenotcreated,steelheadmigratinginthechannelwouldnothavethenecessaryquietwaterstorestandfeedduringmigration.Thiscouldleadtothespeciesabandoningthiscreekrunovertime.Becausethesefeaturesarespecificallydesignedforthispurpose,theapplicanthasstateditistheminimumamountoffillnecessary.

e. PermanentShoreline.ThefillplacedalongtheleveesaspartofthisprojectandwithintheCommission’sBayandshorelinebandjurisdictionwouldbolsterexistinglevees,increasechannelfloodcapacityandprotecttheadjacentcommunitiesalongtheSanFrancisquitoCreekfromflooddamagebyprotectingresidentsandthe

14

surroundinglandfromfloodingthatwouldoccurduringa100-yearstormeventoccurringatatimewhentheBayexperiences26inchesofsealevelriseinthefuture.Inaddition,theproposedprojectwouldresultinanetincreaseintheCommission’sBayjurisdictionafterthewideningoftheSanFrancisquitoCreekiscompleted.Theproposeddesignisanticipatedtobealong-termsolutionthatwouldestablishapermanentshorelineuntilatleast2067.Beyondthatdate,projectmodificationsandadaptationsmaybeneededtofurtherprotectresidentsandadjacentpropertiesfromfutureconditions.

f. ValidTitle.Allworkfortheproposedproject,withinBCDC’sjurisdiction,wouldbeconductedonpropertyownedbytheCityofPaloAlto.TheCityofPaloAltograntedaneasementforworkontheproposedprojecttotheSantaClaraValleyWaterDistrict,whichisamemberoftheJPA.

TheCommissionshoulddeterminewhethertheprojectisconsistentwiththeMcAteer-PetrisActandtheBayPlanpoliciesregardingfill.

2. NaturalResources.WithintheCommission’sjurisdiction,theprojectwouldimpactapproximately2.19acresoftidalmarshhabitatandproposestorestore9.44acresoftidalmarsh,transitionzone,andhightiderefugehabitats.Theprojectwould:(1)widenthetidalcreekbyrealigninganadjacentlevee;(2)excavateuplandhabitatthathasdevelopedwithinthecreekchannelandrestoretidalmarshalongtheedgesofthechannel;(3)fillsmallamountsoftidalmarshintheFaberTractMarshtocreatehigh-tiderefugiaislandsandtransitionalhabitattoimproverefugehabitatforthesaltmarshharvestmouseandtheCaliforniaRidgway’sRail;(4)installfishvelocityrefugefeatureswithincreekusingsolidfill,suchaslargerock;and(5)placefillontheoutboardsideoftheSFCnorthleveetoreduceerosionoftheleveetoeduringovertopping.

a. Fish,WildlifeandTidalMarshHabitat.TheBayPlanpoliciesonFish,OtherAquaticOrganisms,andWildlifestate,inpart,that“[t]oassurethebenefitstofish,otheraquaticorganismsandwildlifeforfuturegenerations...theBay’stidalmarshes,tidalflats,andsubtidalhabitatshouldbeconserved,restored,andincreased.”Similarly,theBayPlanpoliciesonTidalMarshesandTidalflatsstate,inpart,“[t]idalmarshesandtidalflatsshouldbeconservedtothefullestpossibleextent.Filling,diking,anddredgingprojectsthatwouldsubstantiallyharmtidalmarshesortidalflatsshouldbeallowedonlyforpurposesthatprovidesubstantialpublicbenefitsandonlyifthereisnofeasiblealternative.”Thesepoliciesfurtherstatethatanyproposedprojectsintheseareas,“[s]houldbethoroughlyevaluatedtodeterminetheeffectoftheprojectontidalmarshesandtidalflats,anddesignedtominimize,andiffeasible,avoidanyharmfuleffects,”andthat“[p]rojectsshouldbesitedanddesignedtoavoid,orifavoidanceisinfeasible,minimizeadverseimpactsonanytransitionzonepresent….”Thepoliciesencouragethat“shorelineprojectsshouldbedesignedtoprovideatransitionzonebetweentidalanduplandhabitats.”

15

Fish,OtherAquaticOrganismsandWildlifePolicy4statesthat“[t]heCommissionshouldconsultwiththeCaliforniaDepartmentofFishandWildlifeandtheU.S.FishandWildlifeServiceortheNationalMarineFisheriesServicewheneveraproposedprojectmayadverselyaffectanendangeredorthreatenedplant,fish,otheraquaticorganismsorwildlifespecies...andgiveappropriateconsiderationof(their)recommendationsinordertoavoidpossibleadverseimpactsofaproposedprojectonfish,otheraquaticorganismsandwildlifehabitat.”

TidalMarshPolicy6states,inpart,that,“[a]nyecosystemrestorationprojectshouldincludeclearandspecificlong-termandshort-termbiologicalandphysicalgoals,andsuccesscriteria,andamonitoringprogramtoassessthesustainabilityoftheproject.Designandevaluationoftheprojectshouldincludeanalysisof:(a)howthesystem’sadaptivecapacitycanbeenhancedsothatitisresilienttoselevelriseandclimatechange;(b)theimpactoftheprojectontheBay’ssedimentbudget;...(e)potentialinvasivespeciesintroduction,spread,andtheircontrol;(f)ratesofcolonizationbyvegetation;(g)theexpecteduseofthesitebyfish,wildlifeandotheraquaticorganismsandwildlife;...and(i)sitecharacterization.Ifsuccesscriteriaarenotmet,appropriateadaptivemeasuresshouldbetaken.”

Finally,Fish,OtherAquaticOrganismsandWildlifePolicy5statesthat“[t]heCommissionmaypermitaminoramountoffillordredginginwildliferefuges,shownonthePlanMaps,necessarytoenhancefish,otheraquaticorganismsandwildlifehabitatortoprovidepublicfacilitiesforwildlifeobservation,interpretationandeducation.”TidalMarshPolicy8furtherstatesthat“[b]aseduponscientificecologicalanalysisandconsultationwiththerelevantfederalandstateresourceagencies,aminoramountoffillmaybeauthorizedtoenhanceorrestorefish,otheraquaticorganismsorwildlifehabitatiftheCommissionfindsthatnoothermethodofenhancementorrestorationexceptfillingisfeasible….”

Toassesstheimpactstothesespeciesandhabitats,theprojectunderwentaCaliforniaEnvironmentalQualityAct(CEQA)review(ExhibitN),aswellasreviewbytheStateandFederalResourceAgencies,resultingintheissuanceoftwobiologicalopinions.AstreambedalterationagreementfromCDFWfortheprojectiscurrentlyindraftform.

(1) CreekAlteration.Asproposed,theprojectwouldaltertheexistingtidalcreekhabitatwithintheCommission’sBayandshorelinebandjurisdictionsbywideningareastoincreasefloodflows.Intheprocess,bothtidalandriparianhabitatwouldberemovedthroughexcavationofuplandareaswithinthelowerreachofthecreek.Therealignmentofthechannelwouldimpact1.15acresoftidalmarshhabitatwithinBCDC’sjurisdiction.Theproposedexcavationactivitieswithinthechannelwouldtemporarilyimpactapproximately1,470cubicyards(cy)and16,120squarefeetofruderalandhigh-marshhabitatwithinthechannel,butwouldrestoreelevationsinthecreektoapproximatelymeanhigher

16

highwater(6.0-8.0ftNAVD88,gradedatapproximately30:1)andallowforpassiverevegetationofhigh-marshhabitatalongthechanneledges.Thenewlycreatedhightidemarshterraceareawithinthewidenedcreekwouldbeplantedwithhigh-marshplantsincludingalkaliweed,saltgrass,alkaliheath,marshjaumea,andperennialpickleweed.Additionally,transitionalhabitatwouldbeconstructedalongtheleveeslopeswithinBCDC’sjurisdictionandthroughouttheprojectarea.Postconstruction,theprojectwouldprovideatotalof15.14acresoftidalmarshhabitatoverthefulllengthofthelowerreachofthecreek,1.74acresofwhicharewithintheCommission’snewandexistingjurisdiction.

Oncethechannelisrealignedandwidenedthenewchannelwouldbeatappropriateelevationsforcreekandfloodflows,andwouldincludealowflowchannelandawiderhighflowchannel.Theprojectwoulddevelopin-channeltidalmarshhabitattoallowimprovedhabitatconnectivitybetweenthecreekandsurroundingbaylands,enhancingecosystemfunctionality.

CaltransworkupstreamoftheprojectsitewillwidenthebridgeoverSanFrancisquitoCreek,whichwillallowadditionalflowstogettotheprojectreach.Thiscouldpotentiallyincreasevelocitieswithinthechannelandhavethepotentialtoimpactsteelhead.Asdiscussedinmoredetailbelow,six“SteelheadPassageFeatures”wouldbeinstalledalongthelowerreachofSanFrancisquitocreekandconsistmainlyofrockandrootwadmaterials(ExhibitD;velocityrefugelocations).Ofthesixsteelheadpassagefeatures,onehighvelocityrefugeareawouldbelocatedwithintheCommission’sjurisdiction.Thiswouldprovidedesirablehabitatfeatureswithinthechannel,whichisexpectedtohavelong-termbenefitsforfishandwildlifespecieswithintheprojectarea.

Whilethechannelcouldaccommodategreaterfloodflows,thechannelwideningportionoftheprojectwouldnotbeexpectedtosignificantlyimpactthetidalhydrologyoftheBayandsedimentmovementwithintheBayandwouldreduceupstreamfloodelevations.

BetweenJune15ththroughOctober15th,in2016and2017,theprojectwouldhavetemporaryimpactstothechannelandtidalhydrologyduringthein-channelconstructionwindow.Duringthisperiod,temporaryfillforconstruction,includingplacementofacofferdamattheBaywardendofthechannelandoneupstreamwouldnecessarytodewaterthecreekandperformwork.Theconstructionwouldalsorequiretemporaryuseofa36-inchHDPEwaterdiversionpipethatwouldberoutedalongtheoutboardbankoftheFaberTractmarshleveetoanenergydissipater(mostlyconsistingofrock)justdownstreamfromthecofferdam.Theenergydissipaterwouldhelppreventtheerosionofchannelbanksduetooutflowfromthediversionpipe.

(2) FaberTractMarsh.TheFaberTractMarshisa95-acretidalsaltmarshsituatedalongthenorthsideofSanFrancisquitoCreek,andsupportsoneofthelargestpopulationsofCaliforniaRidgway’srailintheregion.ItisalsopartoftheUSFWS’designatedCentral/SouthSanFranciscoBayRecoveryUnitfortheCalifornia

17

Ridgway’srail,andthereforeisconsideredanimportantandsensitivearea.Italsosupportsasignificantpopulationofsaltmarshharvestmouse,blackrailsandothermarshdependentspecies.Currently,FaberTractMarshcontainslittleelevationdiversityandisprimarilylowtidalsaltmarshwithafewsaltpannes.

Torestorefloodprotectionalongthecreek,lowspotsontheSFCnorthleveeadjacenttothemarshwouldberepaired.InreinforcingtheSFCnorthlevee,thetoeoftheleveewouldbewidenedintothemarshtocreateanewgentlerslopeata6H:1Vratiotoreduceerosionoftheleveeandadjacentmarshduringleveeovertopping.Thewideningofthetoeoftheleveewouldprovidetransitionalhabitatbetweenthemarshandlevee,therebyprovidinganecosystemenhancementthatwillsupportmidandhighmarshhabitats.TheprojectwouldalsodegradeanunmaintainedleveebetweenSanFrancisquitoCreekandOuterFaberMarsh(finalelevationwouldbe8feetNAVD88)toallowfloodwatertoflowintothemarshtofurtherreduceupstreamfloodelevationsandprovidegreaterhabitatconnectivity.Theproposedprojectwouldimpactapproximately1.04acresoftidalmarshhabitatswithinFaberTractMarsh.

Aspartofamitigationpackageproposedbytheapplicantsandagreedtobytheresourceagencies,torestoreandcreateapproximately1.7acresoftidalmarshandhightiderefugehabitatswithinandaroundFaberTractMarsh.TheprojectwouldincludethecreationofuptofivemarshmoundsintheOuterFaberTracttoprovidehightiderefugiaforspecialstatusspecies.Thesemoundswouldproviderelieffromhightideandincreasedinundationduetofloodingandsealevelriseovertime.Themarshmoundswouldrequireapproximately1,250squarefeetoftotalfill(0.006acresfootprintforeachofthefiveislands)andbeconstructedusingimportedfillmaterialfreefromvegetationorplantmaterial.Theconstructedelevationoftherefugiaislandswouldbeapproximately8.8feet(NAVD88)andwouldbeplantedwithmarshvegetationthatwouldallowCaliforniaRidgway’srailsandsaltmarshharvestmicetoescapekingtides.Theislandsareanticipatedtosettletoafinalelevationofabout8.4feet(NAVD88)atfiveyearspostconstruction.TheproposedfillvolumeforeachislandissimilartovolumesthattheCommissionapprovedfortheCaliforniaStateCoastalConservancytobuildhightiderefugiahabitatinothermarshlocationsaroundSanFranciscoBay(BCDCPermitNo.M2014.025.00).

Additionally,theapplicantproposesapproximately6.0acresofbermenhancementsandrevegetationoftheleveessurroundingFaberTractMarsh(leveestothenorth,southandeastofthemarsh)(ExhibitK)tofurtherprovidehightiderefugeareasforCaliforniaRidgway’srailandsaltmarshharvestmouse.Bermenhancementswouldincluderemovalofinvasivespecies,plantingofhighmarshandtransitionaluplandhabitatnecessaryforthesespecies,andmonitoringofthesuccessofrevegetationalongtheselevees,asdiscussedbelow.

18

TheleveessurroundingFaberTractMarshandthehightiderefugiaislandswouldbeplantedwithhighmarshandtransitionalvegetationconsistentwiththeleveelocationsandadjacentbaylands.PlantingvegetationisanimportantaspectoftheproposalbecausetheleveesandboardwalksaroundtheprojectsiteprovidepotentialaccessformammalianpredatorsoftheCaliforniaRidgway’srailandthesaltmarshharvestmouse.Additionally,utilitytransmissiontowersandlineslocatedwithinandadjacenttothemarshprovideartificialperchesandnestingplatformsforraptorsandotheravianpredatorsthatmaypreyupontheRidgway’srailandsaltmarshharvestmouse.Predationratesareknowntoincreaseduringextremehightideeventswhenappropriatecoverisnotavailable.Thevegetationwillprovideanadditionalprotectivemeasureforthesespeciesduringhightide.Lastly,tofurtherenhancetheexistingmarshhabitat,theprojectwouldremoveinvasivevegetationonthenorth,south,andeastleveessurroundingFaberTractMarshandplantthemwithnativehighmarshandtransitionzonespecies.

Together,thisportionoftheprojectwouldenhanceapproximately7.7acresofhighmarsh,transitionalandhightiderefugiahabitatinandaroundFaberTractMarsh.

(3)Wildlife.Withinthefullprojectarea,thereareseveralstateandfederallylistedspecies,orspeciesofspecialconcernthatcouldbeaffectedbytheproject,includingCentralCaliforniaCoaststeelhead,longfinsmelt,Californiared-leggedfrog,greensturgeon,westernsnowyplover,blackrail,saltmarshharvestmouse,CaliforniaRidgway’srail,SanFranciscogartersnake,Californialeasttern,white-tailedkite,westernpondturtle,westernburrowingowl,northernharrier,SanFranciscocommonyellowthroat,andAlamedasongsparrow;othernativeandnon-nativefishspecies,andnestingbirds.WithintheCommission’sjurisdiction,thespeciesofconcernexcludesthefreshwaterspecies,suchasthepondturtleandred-leggedfrog.

OnDecember30,2015theNationalMarineFisheriesService(NMFS)issuedaBiologicalOpinion(BO)thatdeterminedthattheproposedprojectis“notlikelytojeopardizethecontinuedexistenceofthethreatened[CentralCaliforniaCoast]CCCsteelhead(Oncorhynchusmykiss)orsoutherndistinctpopulationofgreensturgeon,norisitlikelytoadverselymodifytheircriticalhabitat.”However,NMFSdeterminedthatincidentaltakeofCCCsteelheadwouldoccurduringprojectconstructionasjuvenilesteelheadarelikelytobepresentduringthedewateringofthesiteforconstruction.NMFSprovidedreasonableandprudentmeasuresandconditionstominimizeimpactssteelheadinthechannel,whichincludedmeasurestoreduceharmduringdewateringofthechannel,buildingsteelheadhabitatcomplexityfeatures(steelheadpassagefeatures)suchasrockweirsordebrisjams,monitoringandreportingofsteelhead“take”duringconstructionactivities,andannualinspectionsoffishhabitatfeatures.Additionally,NMFSconcludedthattheproposedproject“wouldadverselyaffectEFH[EssentialFishHabitat]forspeciesmanagedwithinthePacificCoast

19

GroundfishandCoastalPelagicSpeciesFisheryManagementPlans,”specificallyimpactingPacificGroundfishandCoastalPelagicspeciesthatusethecreekandadjacentsubtidalareas.NMFSfoundthatpreyitemswithintheprojectareaforthesecoastalpelagicandgroundfishspecieswouldlikelytakeatleastoneyeartore-establishintheareaafterconstructionactivitieshavefinished.NMFSprovidedconservationrecommendationsintheBO,whichwouldavoid,minimize,orotherwiseoffsetpotentialadverseeffectsonEFH.NMFSrecommendin-kindcompensatorymitigationataratioof1:1on-siteorataratioof3:1ifoff-sitetocompensatefortemporalimpactstoanestimated6.9acresofchannelhabitatresultingfromallconstructionactivitiesduringtheproposedproject.

TheUSFWSissuedaBiologicalOpiniononJanuary15,2016andfoundthat,whiletheprojectoccurredinanareaknowntobehabitatforanumberoffederally-listedspeciesandthatmanyofthesespeciesmaybeaffectedbytheproject,theprojectwas“notlikelytoadversely”affectthosespecies.IntheBO,USFWSdidprovidegeneralconservationmeasuresforprotectedspeciesintheprojectarea,includinggeneralsiteconstruction,waterquality,useofpesticides,operationsandmaintenanceofleveesandvegetationmanagement.TheUSFWSdeterminedtheprojectasproposedwouldresultinpotentialimpactstotheCaliforniaRidgway’srailandsaltmarshharvestmouseintheformofincreasedlikelihoodofpredationfromincreasedhabitatinundationinOuterFaberMarshandremovaloftheuplandrefugiaalongtheOuterFaberlevee.Duringtheconsultationphase,theapplicantsandtheUSFWSenteredintonegotiationstoreduceimpactstolistedspecies,particularlyinregardstothemarshhabitatinFaberTract.IntheBO,theUSFWSprovidedconservationmeasuresspecifictoCaliforniaRidgway’srailandsaltmarshharvestmouse,whichitdeterminedwhenimplementedwouldensurethattheproposedprojectwouldnotbelikelytojeopardizethecontinuedexistenceofthesespecies.Theprojectwouldminimizeimpactstothesespeciesthroughimplementationoftheconservationmeasuresrelatedtopredatormanagement,vegetationremoval,creationandrestorationofhightiderefuge,andothermeasures.TheBOalsorequiresconditionsrelatedtoconstructionofspecifichabitatfeatures,monitoringofthesefeatures,andinclusionofmethodsofpredatormanagement.

AsofFebruary5,2016,BCDChasreceivedadraftStreambedAlterationAgreement(SAA)fromtheCaliforniaDepartmentofFishandWildlife(CDFW),inwhichCDFWdeterminedthattheproposedproject“couldsubstantiallyadverselyaffectexistingfishorwildliferesources.”CDFWpreparedthedraftSAAfortheproposedproject,whichincludesmeasurestoprotectfishandwildlifespecieswithintheprojectarea.WithoutimplementationofprotectionmeasuresidentifiedintheSAA,CDFWbelievesthattheprojectwouldresultinpermanentlossofnaturalbedorbank;channelprofilewidening;lossofbankstabilityduringconstruction;increasedbankerosion;acceleratedchannelscour;increasedturbidity;changesinpH;short-termreleaseofcontaminants;short-term

20

changesindissolvedoxygen,watertemperature,andstreamflow;drybackofstreamchannels;permanentlossofwetlandvegetation;permanentdeclineinvegetativediversity;colonizationbyexoticplantspecies;changeinstreamflow;temporaryimpactstostreamduetodewateringactivities;directtakeofaquaticspeciesfrompumps;constructionoftrenchesthatcancaptureterrestrialandsemi-aquaticorganisms;temporarylossofwildlifeconnectivitytowatersource;temporarylossofterrestrialanimalspecies’travelroutesduetoconstruction;disturbanceormortalityofterrestrial,aquatic,andsemi-aquaticfishandwildlifespecies;anddisturbancetonestingbirds.However,theSAAincludesavoidanceandminimizationmeasurestoreduceimpactstostate-listedspeciesbyrequiringanumberofconstructionbestmanagementpractices,onsitemonitoringbyaCDFWapprovedbiologist,trainingforallprojectworkersregardingavoidanceofimpactstospecialstatusspeciesandtheirhabitats,andanumberofotherminimizationmeasures.Additionally,theSAAalsorequiresmitigationforbothtemporaryandpermanentimpactstohabitatasaresultoftheproject.TheSAAalsoincludesarequirementforafinalized,approvedMitigationandMonitoringPlanforallhabitatmitigationwork(habitatrestoration,enhancement,creation).

b. WaterQuality.TheBayPlanpoliciesonWaterQualitystate,inpartthat“Baywaterpollutionshouldbepreventedtothegreatestextentfeasible.TheBay’stidalmarshes,tidalflats,andwatersurfaceareaandvolumeshouldbeconservedand,wheneverpossible,restoredandincreasedtoprotectandimprovewaterquality.”TheyfurtherstatethattheCommissionshouldconsidertherecommendations,decisions,andadviceandauthorityofthe…theRegionalBoard,”andthattheBoard’srecommendationsanddecisionsshouldbethebasisforcarryingouttheCommission’swaterqualityresponsibilities.Thepoliciesalsostatethat“Newprojectsshouldbesited,designed,constructedandmaintainedtopreventor,ifpreventionisinfeasible,tominimizethedischargeofpollutantsintotheBay.…”

Theprojectincludesgradingandtheexcavationofuplandsedimentswithinthechanneltoenhancefloodcapacity,restoremarshelevationsandhabitatfunctionalityandconnectivityinandaroundtheprojectsite.ThroughrestorationandexpansionofthelowerreachofSanFrancisquitoCreekchannel,theprojectwouldresultinanetincreaseinthesurfaceareaandvolumeoftheCommission’sBayjurisdictionandimprovethequalityoftidalmarshhabitat.Theproposedprojectincludesenhancementoflocalecosystems,andanenlargedbay/creekinterface,whichwillimprovethepassageforsteelheadmigratingfromtheBayintothecreekandupperwatershed.

Asistypicalofconstructionprojects,potentialsourcesofwaterpollutionincludetheuseofsmallamountsofhazardousmaterialssuchasfuels,oils,concreteandasphaltintheconstructionoftheproposedprojectelements.TheapplicanthasstatedthattheywouldworkwiththeselectedconstructioncontractortoprepareaStormWaterPollutionPreventionPlan(SWPPP)andwouldprovideittotheCommissionwhen

21

available.Thisplanwouldincludeconstructionbestmanagementpracticestominimizeconstructionrelateddischargesintothecreek,includingconstructiondebris,nouseofchemically-treatedwoodinthechannel,minimizingdisturbanceandremovalofvegetation,andminimizingdisturbancetothecreekwherepossible.

Adjacenttotheprojectsite,aformerlandfillislocatednearthePaloAltoBaylandsAthleticCenter.Inaddition,afewundergroundstoragetanksthatmayhavecontainedpetroleumhydrocarbonsarelocatedalongthecreek.Currentlyanautomotiverepairbusinessislocatedalongtheleftbankofthecreek.TheFinalEIRfoundthattheprojectisnotlikelytoencounteranyoftheabove-mentionedpotentialsourcesofcontaminationbecausetheyarelocatedoutsideoftheconstructionfootprintandtherefore,theprojectwouldnotresultinsoilandgroundwatercontamination.

OnApril7,2015,theSanFranciscoRegionalWaterQualityControlBoard(WaterBoard)issuedaconditionalWaterQualityCertificationfortheproject.TheWaterQualityCertificationrequirestheapplicanttoprovideareviseddewateringplantoaddressbothsurfacewaterandgroundwatermanagementtoensuretheproposeddischargeswouldmeetapplicablewaterqualityobjectivesandtofurtherreducepotentialforpollutantstoentertheBay.Inaddition,itrequirestheapplicanttotestanyimportedsoilthatwouldbeplacedbelowtopofbank,onleveesandatanyotherlocationswhereithasthepotentialtodischargetothecreekorotherwatersoftheStatetoensureitdoesnothaveelevatedlevelsofcontaminants.

Regardingthedischargeofstormwatersthroughthechannel,theapplicantisrequiredtoobtaincoverageundertheNPDESGeneralPermitfortheDischargesofStormwaterAssociatedwithConstructionActivity(WaterBoardOrderNo.DWQ-2009-0009asamendedbyOrdersNos.2010-0014-DWQand2012-006-DWQ).

c. Mitigation.TheBayPlanpoliciesonmitigationstatethat“[p]rojectsshouldbedesignedtoavoidadverseenvironmentalimpactstoBaynaturalresources….Wheneveradverseimpactscannotbeavoided,theyshouldbeminimizedtothegreatestextentpracticable…andwhenunavoidableadverseimpactsoccur,mitigationshouldberequired.”Themitigationpoliciesalsostate,inpart,that“IndividualcompensatorymitigationprojectsshouldbesitedanddesignedwithinaBay-wideecologicalcontext,asclosetotheimpactsiteaspracticableto:(1)compensatefortheadverseimpacts;(2)ensureahighlikelihoodoflong-termecologicalsuccess;and(3)supporttheimprovedhealthoftheBayecologicalsystem....”Additionally,thesepoliciesstate,“[t]heamountandtypeofcompensatorymitigationshouldbedeterminedforeachmitigationprojectbasedonaclearlyidentifiedrationaleandanalysisofanumberofmetrics.Further,themitigationshould,beprovidedpriorto,orconcurrentlywiththeoccurrenceofprojectimpacts.”TheCommission’spoliciesallowforcompensatorymitigationwhennecessary,aspartofamitigationprogramandfurtherdescribethecomponentsofaproposedmitigationandmonitoringplannecessarytoensuresuccess.

22

Theapplicantdescribestheproposedproject’simpactswithintheCommission’sjurisdictionsasoccurringintidalportionsofSanFrancisquitoCreekandFaberTractMarshandseekstomitigatefortheseimpactsthroughacombinationofhabitatenhancementsandrestoration.Asproposed,theprojectwouldimpactatotalof2.19acresofexistinghabitats,including:1.15acresoftidalmarshhabitatimpactsfromtheexcavationofsedimentandvegetationwithinthecreek,andapproximately1.04acresofbothtemporaryandpermanentimpactstotidalmarshwithinFaberTractMarshduringthecreationofthewiderleveetoeslopeontheSFCnorthleveeandwithinthemarsh.Inimpactingthesehabitats,wildlifespeciesthataredependentonthesehabitatsarealsoimpactedasdescribedinthefishandwildlifesectionabove.

(1) ProposedMitigation.MitigationfortheseimpactsisbothproposedbytheapplicantinthedraftMitigationandMonitoringPlan(December2015)andrequiredbytheresourceagenciesandtheWaterBoard.TocompensatefortheimpactstothetidalcreekandinFaberTractMarsh,theapplicanthasproposedtocreate(1.68acres)ofnewmarshhabitatwithintheCommission’sjurisdictionandrestore1.76acresoftidalmarshhabitat;foratotalof3.44acresoftidalmarshandtransitionzonehabitatrestoration.Inwideningthechannel,theapplicanthasprovidedalowflowchannelwithadjacentmarshplainbenchesthatcanaccommodatefloodflows,muchlikeanaturalcreekwould.Thiswouldimprovetheexistinghabitatandincreaseavailablelow,mediumandhighmarshwithinthechannel.ThisproposalisconsistentwiththerequirementsoftheWaterBoard,USFWSandCDFWformitigationofimpactstothisportionoftheprojectandisalsosubjecttofinalapprovalandagreementbyalltheAgencies.

NMFSandCDFWidentifiedpotentialimpactstonativesteelheadthatmigrateupSanFrancisquitoCreekannuallytospawninggroundshigherinthewatershed.Theagenciesfoundthatincreasedwaterflowandreducedrestingareas(highflowrefugia)couldimpactthislistedspeciesaswellasothernativespeciesthatusethecreek.Tomitigateforthisimpact,theprojectincludestheplacementofhighvelocityrefugeareas(steelheadpassagefeatures)withinthecreek,usinglargerockandrootwadstocreateareasofcalmwaterforrestingandforagingfish.Ofthese,oneislocatedwithintheCommission’sjurisdiction.Additionally,theprojectwouldincludetheenhancement(activeandpassivere-establishment)ofabout1.74acresoftidalmarshhabitatswithinandadjacenttothecreek,withinBCDC’sjurisdiction,tosupportfishandotherwildlifeutilizingthecreekandadjacenthabitats.Thein-channelrestorationworkwouldbeperformedata1:1ratiofortemporaryprojectimpacts,anda2:1ratioforpermanenthabitatloss/impacts,asagreeduponbyCDFWandtheWaterBoard.Additionally,NMFShasrecommendedmitigationforin-streamimpactstoessentialfishhabitatbysuggestingin-kindmitigationbeprovidedataratioof1:1onsiteorarationof3:1ifoffsite,orthatfundingbeprovidedforout-of-kindmitigation.

23

ToadditionallycompensatefortheimpactsoftheprojectonFaberTractMarsh,theapplicanthasproposed,withwhichtheUSFWS,CDFWandWaterBoardhaveagreed,toprovidehabitatenhancementwithintheFaberTractMarsh.Theseenhancementsinclude:constructionofuptofivehightiderefugiaislands;enhancingapproximately6.0acresoftransitionzoneandhightiderefugiahabitatalongtheleveessurroundingthemarsh;removalofinvasivespeciesalongthelevees;andplantingnativemidandhighmarshspeciesonthehightiderefugiaislands.Together,allhabitatcreation,restorationandenhancementfeaturesprovide21.17acresofenhancedmarshhabitatandtransitionzonehabitat,ofwhich9.44acreswouldbewithintheCommission’sjurisdiction.Thesehabitatenhancementswouldlikelyresultinimprovedspeciessurvivalovertimeduetoincreasedvegetationcoverageinrefugeareasduringinundationperiodstoreducepredation.

InreviewingtheWaterBoard’smitigationrequirements,theyappeartobeconsistentwiththeproposedmitigationpackagerequiredbyotheragenciesandfortheprojectareaswithintheCommission’sjurisdiction.However,theRWQCBincludedarequirementthatincreasesmitigationrequirementsiftheinitiallyrequiredmitigationisnotcompletedwithin12monthsofwhentheassociatedimpactfirstoccurred.Ifmitigationconstructiondoesnotoccurwithinayearoftheimpacts,thentheapplicantwouldberesponsibleforanadditionaltenpercentmitigationperyear,asappropriate,onoradjacenttotheprojectsite,fortheportionofthemitigationnotcompletedwithin12monthsoftheimpactoccurrence.Further,ifonsitemitigationisnotavailable,theWaterBoardhasrequiredmitigationatanalternatesiteathigherratiosthancurrentlyproposed.

(2)Monitoring.TheapplicantsubmittedadraftMitigationandMonitoringPlan(December2015)andadraftHighTideRefugeHabitatEnhancementPlan(H.T.Harvey&Associates2015),whichidentifiesseveralelementsthatwillbemonitoredforsuccessofthehabitatrestorationandenhancementportionsoftheproject.Theapplicantisproposingannualmonitoringofrestorationareasoveratleastafive-yearperiodwithmonitoringbeoverseenandconductedbyaqualifiedbiologist.Theapplicantisproposingtocontinuemonitoringuntildefinedandagreeduponsuccesscriteriaaremet.Theapplicantisproposingsuccesscriteriaforthechannelbe60%restoredvegetativecover,whichtheapplicantbelievesisreasonablegiventhattheprojectsiteisinatidalchannelthatexperiencesbotherosionalanddepositionalforces.

MonitoringofthemarshplainenhancementandrestorationeffortswithinFaberTractwouldproceedonceconstructioniscompleteandcontinueoverfiveyears,oruntilthesuccesscriteriahasbeenmet.IntheareaoftheloweredouterFaberTractlevee,theapplicantisproposing60%vegetativecoversuccesscriteriawithnotmorethan5%invasivespecies.ForthetransitionalhabitatalongtheSanFrancisquitoCreekleveetransitionalslopeandhightiderefugeislands,theapplicantisproposingthesuccesscriteriaof70%vegetativecoverwithnotmorethan5%invasivespecies.Inthepast,theCommissionhasrequired90%vegetativecoverasthesuccess

24

criteriaforsimilarprojects.TheMonitoringandManagementPlaniscurrentlyinadraftform,sotheCommissionmaywanttoconsiderdifferentsuccesscriteria,orrequirecertainelementsbeincludedinthefinalmonitoringandmanagementplanaspartofthepermitrequirements.

TheCommissionshoulddeterminewhethertheprojectisconsistentwiththeMcAteer-PetrisActandtheBayPlanpoliciesonnaturalresources,includingFish,WildlifeandOtherAquaticOrganisms;TidalMarshesandTidalFlats;WaterQuality;andMitigation;

3. PublicAccessandScenicViews.TheMcAteer-PetrisActandtheBayPlanpoliciesrequirethatprojectsprovidethemaximumfeasiblepublicaccessconsistentwiththeproject,thatproposedpublicaccessbecompatiblewithwildlife,thatprojectsbedesignedtopreserveviewstotheBay,andthatanypublicaccessprovidedaspartoftheprojectremainviableassealevelrises.

a. MaximumFeasiblePublicAccess.Section66602oftheMcAteer-PetrisActstatesthat,“…water-orientedlandusesalongthebayshorelineareessentialtothepublicwelfareofthebayarea…thatexistingpublicaccesstotheshorelineandwatersoftheSanFranciscoBayisinadequateandthatmaximumfeasiblepublicaccessconsistentwithaproposedproject,shouldbeprovided.”TheBayPlanPublicAccessPolicy1states,“[a]proposedfillprojectshouldincreasepublicaccesstotheBaytothemaximumextentfeasible….”

Intheprojectvicinity,theBayTrailrunsalongGengRoadfromEmbarcaderoRoadtoSanFrancisquitoCreek(ExhibitG),continuesalongthesouthernbankoftheprojectsitetoFriendshipBridge,andthennorthalongtheleveeadjacenttoEastPaloAltoresidencesandthePaloAltoBaylandsNaturePreserve.TherearethreeexistingaccesspointstotheBayTraillocatedatGengRoad,theLucyEvanstraileastofthePaloAltoAirportinPaloAlto,andtheO’ConnorPumpStationviaFriendshipBridgeinEastPaloAlto.Additionallytherearethreeotheraccesspointsalongthelevees(locatedatVerbenaDrive,DaphneWay,andontheSFCsouthleveenearEastBayshoreRoad),whicharecurrentlyutilizedbythepublictoaccessthetrailsalongtheleveethatconnecttotheBayTrail.TheprojectisalsoproposingtoaddannewtrailaccesspointlocatedontheSFCnorthleveenearEastBayshoreRoad.

Inrealigningthesouthernleveeandwideningthecreek,anapproximatelyone-milestretchofBayTrail(600feetoftherealignedtrailwouldbewithintheCommission’sshorelinebandjurisdiction)wouldalsoberealignedadjacenttothecreekandpavedconsistentwiththeexistingtrailinthisarea.Tobridgethenewlywidenedcreek,theapplicantwouldaddaconnectingboardwalkspanningfromtheabutmentofFriendshipBridge(FriendshipIsland)tothenewlyrealignedleveealongthegolfcourse.InaccordancewiththeBayTrailDesignGuidelines,thenewboardwalkwouldmatchthewidthanddesignoftheexistingFriendshipBridge.Theboardwalkwouldincludeaviewingplatformwithinterpretivesignage.

25

In2016and2017,fromMaythroughOctobertheportionoftheBayTraillocatedalongthecrownofleveebetweenthePaloAltoGolfCourseandSanFrancisquitoCreekwillbetemporarilyclosed.Afterconstructioniscomplete,allrecreationalfacilitieswouldbeavailableforfullusebythepublic.

Toprovideadditionalpublicaccessandrecreationalopportunities,theapplicantisproposingpublicaccessimprovementsoutsideofBCDC’sjurisdiction(ExhibitG).TheseincludewideningofEastPaloAltoleveeportionofthepublicaccesstrailfrom10feetto12-16feetfrom,placinganaggregatebasealongthetrailtoimprovethesurface.TheapplicantswouldalsoprovideanadditionaltrailaccesspointandconnectionlocatedalongEastBayshoreRoad.Lastly,newsignageandgateimprovementswouldbelocatedattheO’ConnorWayPumpStation,limitingrecreationalmotorvehicletrafficandprotectingpedestrianandwildlifeinthisarea.

b.MinimizeImpactstoWildlife.TheBayPlanPublicAccesspolicy2states,inpartthat“…publicaccesstotheBay…shouldbeprovidedinandthrougheverynewdevelopmentintheBayorontheshoreline…exceptincaseswherepublicaccesswouldbeclearlyinconsistentwiththeprojectbecauseofpublicsafetyconsiderationsorsignificantuseconflicts,includingunavoidable,significantadverseeffectonBaynaturalresources.Inthesecases,inlieuaccessatanotherlocationpreferablyneartheprojectshouldbeprovided.”Additionally,PublicAccesspolicy3statesinpart,“…projectsin[naturalareaswithsensitivewildlife]shouldbecarefullyevaluatedinconsultationwithappropriateagenciestodeterminetheappropriatelocationandtypeofaccesstobeprovided.”PublicAccesspolicy4states,inpart,that“[p]ublicaccessshouldbesited,designedandmanagedtopreventsignificantadverseeffectsonwildlife….”

TheprojectproposalincludeslimitingpublicaccesstotheleveessurroundingsensitivehabitatfoundatFaberTractMarsh.LimitingpublicaccesstothisareaisprotectiveofthestateandfederallylistedCaliforniaRidgway’srailandsaltmarshharvestmouse.AsarequirementoftheUSFWSbiologicalopinion,andtofurtherprotecttheseandotherspecies,theapplicantproposestoinstallapredatorexclusionfence(ExhibitD)alongtheSFCnorthleveeneartheconnectionpointtotheBayTrailandFriendshipBridge.Thisfencingisintendedtokeepoutmammalianpredatorsandpreventhumansfromenteringthearea.

c. ViablePublicAccessandMaintenance.BayPlanpoliciesonpublicaccessstatethat“[p]ublicaccessshouldbesited,designed,managedandmaintainedtoavoidsignificantadverseimpactsfromsealevelriseandshorelineflooding.”TheprojectwouldprovidepublicaccessalongthecrownoftheleveesoneithersideoftheSanFrancisquitoCreek.BayPlanPublicAccesspolicy6states,“[w]heneverpublicaccesstotheBayisprovidedasaconditionofdevelopment,onfillorontheshoreline,theaccessshouldbepermanentlyguaranteed…anypublicaccessprovidedasaconditionofdevelopmentshouldeitherberequiredtoremainviableintheeventoffuturesealevelriseorflooding,orequivalentaccessconsistentwiththeprojectshouldbeprovidednearby.”

26

Thepublicaccessproposedbytheapplicantislocatedprimarilyonleveetops,onandadjacenttoabridgecrossingthecreek,andaboardwalkovernewlycreatedmarsh(ExhibitG).Thefloodprotectionleveesandbridgearedesignedtothe100-yearfloodlevel,witha100-yeartideandsealevelrise(26inches)forthelifeoftheproject(2060).Beyond2060,theapplicanthasstatedthatearthenleveesincludedintheprojecthavethepotentialtoberaisedfurtherbyaddingearthenbasketsoradditionalfloodwallsofsyntheticpilingandthatexistingsteelsheetpilefloodwallscouldberaisedbyweldingadditionalsteelsheetstotheexistingstructure.TheapplicantusedtheOurCoastOurFuture(OCOF)projections(ExhibitM)toillustratethatevenwithaboutfivefeetofsealevelriseat2100,whichisthebestavailabledataatthistime,floodingwouldlikelyoccurwithintheFaberTractMarshandthegolfcoursetothenorthandsouthofthecreek,butthattheleveesaremostlynotovertoppedbaseduponthecurrentdesign.Therefore,thepublicaccesswouldremainviablethroughthelifeoftheproject.

TheCommissionshoulddecidewhethertheproposedpublicaccessimprovementsareconsistentwiththeCommission’slawsandpolicesonPublicAccess.

4. BayPlanPriorityUseAreas.PortionsoftheprojectarelocatedwithintwopriorityuseareasdesignatedintheBayPlanasshowninBayPlanMap7:thenorthernleveeadjacenttoFaberTractisdesignatedasaWaterfrontParkPriorityUseAreaandFaberTractisdesignateasaWildlifeRefugePriorityUseArea.TheRefugehasclosedthepublicaccessalongtheseleveestoprotectRidgway’srailandsaltmarshharvestmouseinhabitingFaberTractMarsh,therebylimitingtheuseasaWaterfrontPark.TheprojectwouldprovideinterpretivesignagenearFriendshipBridgetoprovideinformationrelatedtoFaberTractMarshandthewildlifewithinthearea,supportingtheWaterfrontParkuseintheadjacentarea,whileprotectingsensitivespeciesandtheirhabitat.

Inaddition,thePaloAltogolfcourseisdesignatedasawaterfrontparkpriorityusearea.Theprojectwouldpermanentlyimpactasmallportion(8.6acres)ofthisusebydecreasingthesizeofthegolfcoursetowidenthecreek,providingadditionalflowcapacityandcreatingnewtidalmarsh.AccesstothegolfcoursewouldbetemporarilyclosedduringtheprojectandwhiletheCityofPaloAltoworksonaplannedreconfigurationofthegolfcourse.Inapproximatelytwoyears,recreationalopportunitiesatthegolfcoursewouldbefullyrestored.

TheWildlifePriorityUseareawouldbeimpactedduringtheconstructionofthehightiderefugia,transitionalslopesandleveerepair.Whiletherewillbesomedisruptiontowildlifeuse,theconstructionwilloccurduringenvironmentalworkwindowsfromJune15thtoOctober15thasdescribedinthebiologicalopinion.Theworkonthetoeoftheleveesislimitedtoafewsmallareas,andcarewillbetakentoavoidharmtolistedspeciesthroughbestmanagementpractices.Workwithinthemarshisexpectedbybeconductedbyhandoperatedtools,andthereforewilllimitimpactsonwildlifeuseofthearea.

27

TheCommissionshoulddeterminewhethertheprojectisconsistentwiththesite’sWaterfrontParkandWildlifeRefugePriorityUsedesignations.

5. ProtectionofShoreline.BayPlanpoliciesonShorelineProtectionPolicy1,states,inpart,“[n]ewshorelineprotectionprojectsandmaintenanceorreconstructionofexistingprojectsandusesshouldbeauthorizedif:(a)theprojectisnecessarytoprovidefloodorerosionprotectionfor(i)existingdevelopment,useorinfrastructure,or(ii)proposeddevelopment,useorinfrastructurethatisconsistentwithotherBayPlanpolicies…(c)theprojectisproperlyengineeredtoprovideerosioncontrolandfloodprotectionfortheexpectedlifeoftheprojectbasedona100-yearfloodeventthattakesfuturesealevelriseintoaccount…[and](e)theprotectionisintegratedwithcurrentorplannedadjacentshorelineprotectionmeasures….”

BayPlanPolicy3requiresthatauthorizedshorelineprotectionprojectsberegularlymaintainedaccordingtoalong-termmaintenanceprogramandassureprotectionfromtidalerosionandfloodingandminimizeimpactstonaturalresourcesduringthelifeoftheproject.ShorelineProtectionPolicy4requiresthatwheneverfeasible,shorelineprotectionprojectsshouldincludenonstructuralelementsthatincludeelementsforBayecosystemenhancementandthatinshorelineareasthatsupportmarshvegetation,theCommissionshouldrequiretheinclusionofprojectprovisionsforestablishingmarshandtransitionalhabitatsaspartofshorelineprotectionmeasures.ShorelineProtectionPolicy5requiresthatimpactstonaturalresourcesandpublicaccessfromnewshorelineprotectionprojectsbeavoided,mitigatedoralternativepublicaccessshouldbeprovided.

Inordertoimproveshorelineprotection,theprojectwouldconstructasteelsheetpilefloodwallalongapproximately500linearfeetneartheO’ConnorWaypumpstationandFriendshipBridgetoconnecttheoutfallstructureatthepumpstationtotheadjacentupstreamanddownstreamleveesforshorelineprotection.Approximately200linearfeetofthefloodwallwouldbewithintheCommission’sshorelinebandjurisdiction,withportionsofthefloodwallembeddedwithintheleveeonthesouthernedgeofFaberTractMarsh(ExhibitI).Thesheetpilefloodwallwouldprovidecontinuousshorelineprotectionandstrengthentheleveeagainsthighervolumesofflowthattheprojectwouldaccommodate.

Torestorefloodprotectionalongthecreek,lowspotsontheunmaintainedleveenorthofSanFrancisquitoCreekwouldberepairedwithengineeredsoilstostrengthentheleveeandaccommodateanticipatedfuturehighflowevents.Thefinalheightoftheleveewouldbeamaximumof13feet(NAVD88).Inreinforcingthelevee,thetoeoftheleveewithinFaberTractwouldbewidenedandanewslopeatsixhorizontaltooneverticalfeetwouldbecreatedtoprotectleveeerosionduetoflowovertopping,andreducepotentialimpactstotheadjacentmarsh.Thewideningofthetoeoftheleveewillprovidetransitionalhabitatbetweenthemarshandleveeatagentlerslope,therebyprovidinganecosystemenhancementthatwillsupportmidandhighmarshhabitatsandpreventingtheneedtouseriprapwithinthemarshtostabilizetheleveetoe.Theapplicantanticipatesthattidalmarshvegetationandtransitionzonehabitatswould

28

migrateuptheleveeslopesadjustingtothechanginghydrologyandwouldremainpresentwithtwofeetofpredictedsealevelriseandanincreaseinopenchannelandlowtidemudflathabitatswithsealevelrise.However,futuresedimentationratesaredifficulttopredict.Therewouldbepotentialforsubstantiallossoftidalmarshhabitatwithintheprojectareawithpredictedsealevelriseofaboutfivefeetin2100,buttheseimpactswouldbebeyondthecurrentplannedlifeoftheproject.

Theprojectwouldalsodegradeanunmaintainedleveetoafinalelevationof8feet(NAVD88)betweenSanFrancisquitoCreekandOuterFabermarshtoallowfloodwatertoflowfromthecreekintotheOuterFabermarshareaduringhighflows,reducingwatersurfaceelevationpressureagainsttheFaberTractMarshleveeupstream.

RegardingShorelineProtectionPolicy5,theprojectwouldhavepotentialimpactstohabitatandwildlife,whichitisaddressingthroughmitigationmeasuresdiscussedunderthemitigationsectionabove.

TheCommissionshoulddecidewhethertheproposedprojectisconsistentwithitslawsandpoliciesregardingshorelineprotection.

B. ReviewBoards

1. EngineeringCriteriaReviewBoard.TheEngineeringCriteriaReviewBoarddidnotevaluatetheproposedproject.

2. DesignReviewBoard.Giventhenatureoftheproposedimprovements,theDesignReviewBoarddidnotevaluatetheproposedproject.

C. EnvironmentalReview.InaccordancewiththeCaliforniaEnvironmentalQualityAct(CEQA)requirements,theSFCJPAcertifiedtheFinalEnvironmentalImpactReport(FEIR)fortheprojectonOctober25,2012(JPAResolutionNumber12-10-25A).TheFEIRfoundthattheprojectwouldhavesignificantimpactstosomespecialstatusspeciesandtheirhabitatareas,airquality,andrecreation,ofwhichmostimpactscouldbereducedtoaless-than-significantlevelsthroughminimizationandmitigationmeasures.However,theCEQAreviewfoundthatwouldlikelyresultinsignificantandunavoidableeffectsonairqualityassociatedwithconstructionofvariousprojectelementsduringallprojectphasesandsignificantandunavoidableeffectsduetoreducedavailabilityofexistingrecreationalfacilitiesduetorealignmentofthecreek,reducingthesizeoftheGolfCourseby7.4acres.TheSFCJPAhascommittedtoallfeasiblemitigationtoreduceimpactsonairquality,buttheresidualeffectisstilllikelytobesignificant.TheproposedmitigationmeasureforrecreationimpactsisoutsideSFCJPA’sjurisdictionandthereforecannotbeguaranteed.Noadditionalfeasiblemitigationforrecreationalimpactsisavailable.

TheJPAadoptedaStatementofOverridingConsiderationsthatinconsiderationoftheexistingfloodrisksalongSanFrancisquitoCreekassociatedwithlackofadequatecapacityinthecreek,andtheanalysisofprojectoutcomes,JPAfindsthattheeconomic,

29

social,andenvironmentalbenefitsofmeetingtheproject’sfloodprotectiongoalsoutweighthesignificantandunavoidableairandrecreationimpactsassociatedwiththeproject’sconstructionandoperation.TheWaterBoardagreedonApril7,2015thattheFEIRappropriatelyaddressedtheforeseeablepotentialenvironmentalimpactsfromtheproject.

D. RelevantPortionsoftheMcAteer-PetrisAct

1. Section666022. Section66605

E. RelevantPortionsoftheSanFranciscoBayPlan

1. BayPlanPoliciesonFish,OtherAquaticOrganismsandWildlife2. BayPlanPoliciesonWaterQuality3. BayPlanPoliciesonWaterSurfaceAreaandVolume4. BayPlanPoliciesonTidalMarshesandTidalFlats5. BayPlanPoliciesonProtectionoftheShoreline6. BayPlanPoliciesonDredging7. BayPlanPoliciesonRecreation8. BayPlanPoliciesonPublicAccess9. BayPlanPoliciesonMitigation

Exhibits

A. VicinityMapB. GeneralSitePlanC. TypicalCrossSectionD. FullProjectPlanE. BCDCexistingjurisdictionalMapF. BCDCpostprojectjurisdictionalMapG. PublicAccessH. DredgingFootprintI. ConstructionMapJ. TidalMarshImpacts/RestorationK. FaberMarshBermEnhancement/RevegetationMapL. HighTideRefugeIslandsM.InundationMapN. EIRSummaryO. ConstructionStagingAreasMapP. WaterDiversionStructureMap