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DEPARTMENT Infrastructure AGENDA NO. 8
MEETING DATE October 10, 2023
AGENDA ITEM
Public Utilities Commission
City and County of San Francisco
Calendar: Regular Calendar
Project Manager: Anna M. Roche
Approve Ocean Beach Climate Change Adaptation Project and authorize staff to proceed with actions necessary to implement the Project Summary of Proposed
Commission Action:
Approve the Ocean Beach Climate Change Adaptation Project, Long-Term Improvements, a multi- city-department project led by the San Francisco Public Utilities Commission; authorize staff to proceed with actions necessary to implement the Project; approve a letter of agreement describing the terms of an anticipated Memorandum of Understanding with the San Francisco Recreation and Parks Department regarding construction and operation of the Project improvements and author ize the General Manager to negotiate and execute the same; urge the San Francisco Recreation and Parks Commission and the Board of Supervisors to restrict vehicular traffic on the Great Highway Extension and take any other actions necessary to facilitate the Project; and adopt findings and a Mitigation Monitoring and Reporting Program pursuant to the California Environmental Quality Act (CEQA).
Background: On behalf of the City and County of San Francisco (City), the San Francisco Public Utilities Commission (SFPUC) is leading efforts to implement one of the City’s first climate change adaptation initiatives, the Ocean Beach Climate Change Adaptation Project (Project) located at Ocean Beach, south of Sloat Boulevard. The SFPUC partner agencies include San Francisco Recreation and Park Department, San Francisco Municipal Transportation Agency, and San Francisco Public Works. This is one of the first large, cross- agency infrastructure projects being built in the City to address the long-term physical changes needed to combat climate-induced sea level rise in the City, specifically at Ocean Beach.
Ocean Beach comprises a 3.5-mile stretch of sandy beach that forms the western boundary of San Francisco. It is influenced by complex coastal processes, including an in tense wave climate, strong tidal currents, and irregular offshore underwater features. Chronic erosion of the beach and bluffs by climate-related sea level rise and episodic coastal storms occurs at the southern end of Ocean Beach (South Ocean Beach). This erosion has undermined and damaged beach parking lots, stormwater drainage facilities, and the Great Agenda Title: Approve Ocean Beach Climate Change Adaptation Project Commission Meeting Date: October 10, 2023
Highway Extension (portion of the Great Highway between Sloat and Skyline Boulevards), threatens existing underground wastewater system infrastructure, and has constrained public shoreline access and recreational opportunities.
Since the 1990s, the City has responded to the erosion – mainly to protect the Great Highway Extension, a San Francisco Recreation and Park Department asset – through both hard shoreline armoring (e.g., construction of rock and rubble revetments) and soft shoreline protection measures (e.g., beach nourishment and sandbag revetments). In the intervening period, the City has also undertaken planning initiatives aimed at deve loping a long-term strategy for managing South Ocean Beach. Notabl y, the city partially funded and participated in the preparation of the 2012 Ocean Beach Master Plan (Plan). Led by the San Francisco Bay Area Planning and Urban Research Association (SPUR), the master planning process brought together community members, elected officials, agency
representatives, and other stakeholders to develop a sustainable, long- term vision for Ocean Beach, addressing public access, recreational use, environmental protection, and infrastructure needs in the context of erosion and climate-related sea level rise.
The Plan presented six key moves that are organized by
geographical reaches and are designed to be implemented incrementally by the responsible agencies over a period of decades.
This Project is focused on imple menting two of the six key moves at South Ocean Beach (Ocean Beach between Sloat Boulevard and Fort Funston) and includes (1) closure of the Great Highway Extension and (2) the introducti on of a multipurpose coastal protection/ restoration/access system.
The terms of a 2014 legal settle ment agreement and a 2015 California Coastal Commission permit, which has received subsequent time extensions of a total of 2.5 years with a current expiration date of June 30, 2024, both establish timelines for developing and implementing a l ong-term strategy for shoreline management at South Ocean Beach.
In 2018, the City amended its local coastal plan, the Western Shoreline Area Plan, to adopt po licies that advance the Plan’s general vision for South Ocean Be ach. The local coastal program policies concerning ma naged retreat, beach nourishment, and shoreline armoring strategies aim to preserve and enhance public access, coastal recreation, and scenic resources at South Ocean Beach, while protecting critical wastewater system infrastructure from damage due to coastal hazards. The Project represents the City’s long-term strategy to shoreline management at South Ocean Beach.
Agenda Title: Approve Ocean Beach Climate Change Adaptation Project Commission Meeting Date: October 10, 2023
The Project is necessary to protect the integrity of the SFPUC’s wastewater assets built to protect public health and the environment, including the Lake Merced Tunnel, the Westside Pump Station, and the Oceanside Wastewater Treatment Plant. The Lake Merced Tunnel has a storage capacity of up to 10 million gallons for combined sewage and stormwater flows and is located closest to the section of South Ocean Beach most severely impacted from, and most vulnerable to, continued bluff erosion. The tunnel could become structurally compromised if sudden bluff retreat is experienced, resulting in signifi cant environmental and public health impacts. This project will implement a comprehensive shoreline management and protec tion plan in partnership with relevant stakeholders and regulat ory agencies to provide a long- term solution to the erosion issue along South Ocean Beach, and to mitigate potential impacts to the Lake Merced Tunnel and other critical wastewater assets at this location.
On behalf of the City, the SFPUC is leading the effort to plan, design, and construct c limate change adapta tion improvements at South Ocean Beach, which is being implemented in three sequential phases: Phase 1 Short-term Improvements [soft shoreline protection measures conducted between 2015-2023 under a Coastal
Development Permit se t to expire June 30, 2024, which include moving sand from North Ocean Beach (beach area between Balboa Street and Lincoln Way) to South Ocean Beach and placing large sand bags to temporarily protect the Great Highway Extension and SFPUC Wastewater infrastruct ure while the Long-term
Improvements are developed]; Phas e 2 Army Corps of Engineers’ Beneficial Use of Dredged Sa nd [in 2021, the Army Corps placed 380,000 cubic yards of sand dredge d from the Main Shipping Channel at South Ocean Beach in partnership with SFPUC and the National Park Service, which is needed for the long-term management of the area]; and Pha se 3 Long-term Improvements [long-term components to addr ess climate-induced erosion described as the Project].
The approval being sought t oday is for the Long-term
Improvements (the Project), the third phase of the City’s overall approach to climate change adaption at South Ocean Beach. Phase 1 is on-going until the long-term project begins and Phase 2 is complete.
Project Description and
Proposed Action:
To address these climate-related shoreline erosion challenges, the City proposes this Project that is designed based upon the guiding principles of the 2012 Ocean Beac h Master Plan and the adopted policies of the Local Coastal Program, as amended in 2018. The Project would involve a combina tion of managed retreat, beach nourishment, and shoreline prot ection strategies. Through these measures, the City aims to preserve and enhance public access, coastal recreation, habitat, and s cenic resources at south Ocean Agenda Title: Approve Ocean Beach Climate Change Adaptation Project Commission Meeting Date: October 10, 2023
Beach, while protecting critical wastewater system infrastructure from damage due to coastal hazards.
The overarching purpose of the Project is to implement a long-term coastal management strategy for South Ocean Beach that addresses shoreline erosion and climate change-related sea level rise. The specific project objectives are to:
x Implement the City’s local coastal program policies for the long-term management of South Ocean Beach,
including managed retreat, beach nourishment, and sea
level rise adaptation in compliance with Coastal
Commission permit requirements;
x Preserve and enhance coastal public access and
recreation, habitat, and scenic quality at South Ocean
Beach;
x Protect the Lake Merced Tunnel and related wastewater system infrastructure from damage due to shoreline
erosion, storm and wave hazards, and sea level rise in
order to maintain current operational capacity and meet regulatory permit requirements; and
x Maintain vehicle access for:
o SFPUC wastewater facility operations;
o San Francisco Zoo visitor parking lot via Sloat
Boulevard;
o Emergency response personnel;
o Maintenance of public access trail; and
o Long-term beach nourishment.
Major project components include:
x Permanently closing the Great Highway Extension
between Sloat and Skyline boulevards to most
vehicular traffic, reconfiguring affected intersections and San Francisco Zoo parking access, and maintaining
a service road to SFPUC Wastewater facilities;
x Constructing a buried wall to protect existing
wastewater infrastructure from shoreline erosion;
x Removing pavement, rock and sandbag revetments,
rubble, and debris from the beach, reshaping the bluff, and planting native vegetation;
x Constructing a multi-use trail, beach access stairway, coastal access parking, and restrooms; and
x Providing long-term beach nourishment (sand
replenishment; from North Ocean Beach, Army Corps
of Engineers, or purchased material).
Agenda Title: Approve Ocean Beach Climate Change Adaptation Project Commission Meeting Date: October 10, 2023
The SFPUC and SF Rec and Park have primary jurisdiction over the Project area. Future use of the Project area will continue to be shared by the two departments and will include both recreational and utility uses. SFPUC and San Francisco Recreation and Parks Department staff worked together to negotiate a letter of agreement, or term sheet, to set forth the basic terms of an anticipated Memorandum of Understanding between the two departments to (1) memorialize ownership and maintenance obliga tions for Project improvements, (2) set forth the terms and conditions under which the SFPUC will construct and install the Project improvements, (3) memorialize the process and respective respons ibilities for obtaining permanent easement rights from the National Park Service for certain Project improvements, (4) provide the terms and conditions for SFPUC’s use of SF Rec and Park property for installation or construction of Project improvements, and (5) provide the terms and conditions for each department to use the lands of the other department for ongoing operation, maintenance, and repa ir of its respective Project improvements. Followi ng approval of the letter of agreement by each departments’ respective Commissions, the SFPUC’s General Manager would negotiate a nd execute a Memorandum of
Understanding based upon the Commission-approved terms.
The San Francisco Zoological Society and SF Rec and Park have raised concerns about the sufficiency of vehicle access to the Zoo’s patron parking lot under the Proj ect, which would remove the southern entrance and exit to the Zoo lot and require vehicles entering the Zoo lot to perform a U-turn at the end of Sloat Boulevard. The Environmental Impact Report considered access to the San Francisco Zoo under the Project, and concluded that such access would not result in significant impacts related to hazardous conditions or inadequate emergency access. The SFPUC, in coordination with the San Fran cisco Municipal Transportation Agency, San Francisco Recreation and Parks Department, Planning Department, and Public Works, will evaluate vehicle access to the Zoo parking lot, and will consider whether any subsequent project is necessary to provide enhanced vehicle access, subject to any environmental review necessary at that time.
SFPUC Future
Approvals:
Future approvals that will be sought from the Commission include to (1) award of multiple construction contracts, (2) Memorandum/a of Understanding (as needed) to memorialize responsibilities and obligations between partner agencies, except for the Memorandum of Understanding between the SFPUC and the San Francisco Recreation and Parks Departme nt regarding construction and operation of the Project, (3) au thorization to seek Board of Supervisors’ approval to acquire easements on land owned by the United States of America, under the jurisdiction of the National Park Service through its Golden Ga te National Recreation Area (GGNRA) to construct three project elements on GGNRA land, and Agenda Title: Approve Ocean Beach Climate Change Adaptation Project Commission Meeting Date: October 10, 2023
(4) approval to accept a low-interest loan through the federal Water Infrastructure Finance and Innovation Act loan program.
Funding: Estimated Project Cost: $221.5 million; construction estimate for the long-term phase is approximately $152 million.
The SFPUC expects to receive $8 million from the San Francisco Recreation and Parks Department and approximately $2.5 million from the San Francisco Municipal Transportation Agency, to provide partial funding for this project.
The SFPUC has executed a master loan agreement with the US Environmental Protection Agency committing low-interest financing from the Water Infrastructure Finance and Innovation Act program to fifteen WWE CIP pr ojects, including this project.
SFPUC anticipates returning to the Commission in FY 24/25 to request approval of a sub-agreement under the master loan that will obligate low-interest financing to this project and other WWE CIP projects for up to 49% of total eligible project costs.
Environmental Review: On September 28, 2023, the Pla nning Commission certified the Final Environmental Impact Report for the Ocean Beach Climate Change Adaptation Project (Case No. 2019-020115ENV) prepared pursuant to the CEQA by Motion No. 21398.
The Final Environmental Impact Report (which consists of the Draft Environmental Impact Report a nd the Responses to Comments Document), Planning Commission Motion 21398, CEQA Findings, and the Mitigation Monitoring and Reporting Program can be found here:
https://sfpuc.sharefile.com/d-
s44953da093be4608bf5b47b0a4e70320
Planning Department Motion 21398
Recommendations: SFPUC staff recommends this Commission adopt the attached resolution.
Attachment: Letter of Agreement between SFPUC and San Francisco Recreation and Park.
PUBLIC UTILITIES COMMISSION
City and County of San Francisco
RESOLUTION NO.
WHEREAS, The San Francisco Public Utilities Commission (SFPUC), on behalf of the City and County of San Francisco (City), is leadi ng efforts to implement one of the City’s first climate change adapta tion initiatives, the Ocean Beach C limate Change Ad aptation Project (Project) located at Ocean Beach , south of Sloat Boulevard to address the long-term physical changes needed to combat climate induced sea level rise in the City, specifically at Ocean Beach; and
WHEREAS, The SFPUC, in collaboration with San Francisco Recreation and Park Department, San Francisco Municipal Transportation Authority, and San Francisco Public Works has developed the cross-agency Project, otherwise known as Project No. CWWFAC01; and WHEREAS, The Project focuses on implementing two of six key moves of the 2012 Ocean Beach Master Plan at South Ocean Beach and includes (1) closure of the Great Highway Extension to most vehicular traffic and (2) th e introduction of a multipurpose coastal protection/restoration/access system; and
WHEREAS, The Project was developed in order to meet the terms of a 2014 legal settlement agreement and a 2015 California Co astal Commission permit , which has received subsequent time extensions of a total of 2.5 years with a current expiration date of June 30, 2024, both of which establish timelines for developing and implemen ting a long-term strategy for shoreline management at South Ocean Beach; and
WHEREAS, In 2018, the City amended its Local Coastal Plan, the Western Shoreline Area Plan, to adopt policies that advance the Plan’s general vision for South Ocean Beach, including the closure of the Great Highway between Sloat and Skyline Boulevards; and WHEREAS, The Project is necessary to protect the integrity of the SFPUC’s wastewater assets built to protect public hea lth and the environment, including the Lake Merced Tunnel, the Westside Pump Station, and the Oceanside Treatment Plant; and WHEREAS, This project will implement a comprehensive shoreline management and protection plan in partnership with relevant stakeholders and regulatory agencies to provide a long- term solution to the erosion issue along South Ocean Beach, and to mitigate potential impacts to the Lake Merced Tunnel and other critical wastewater assets at this location; and WHEREAS, The objectives of the Project are to (1) implement the city’s local coastal program policies for the long-term management of South Ocean Beach, including managed retreat, beach nourishment, and sea level rise adaptati on in compliance with Coastal Commission permit requirements, (2) preserve and enhance coastal public access and recreation, habitat, and scenic quality at South Ocean Beach, (3) protect the Lake Merced Tunnel and related wastewater system infrastructure from damage due to shoreline erosion, storm and wave hazards, and sea level rise in order to maintain current operational capacity and meet regulatory permit requirements, and (4) maintain vehicle access for: SFPUC wastewater facility operations, San Francisco Zoo visitor parking lot via Sloat, Emergency response personnel, maintenance of public access trail, and long- term beach nourishment, and the SFPUC’s wastewater assets built to protect public health and the environment,; and
WHEREAS, SFPUC and San Francisco Recreation and Parks Department staff negotiated a letter of agreement containing the basic terms of an anticipated Memorandum of Understanding to (1) memorialize ownership and maintenance obligations for Project improvements, (2) set forth the terms and conditions under which the SFPU C will construct and install the Project improvements, (3) memorialize the process and respective responsibilities for obtaining permanent easement rights from the National Park Service for certain Project improvements, (4) provide the terms and conditions for SFPUC’s use of San Francisco Recreation and Parks Department property for installation or construction of Project improvements, and (5) provide the terms and conditions for each department to use the lands of the other department for ongoing operation, maintenance, and repair of its respective Project improvements; and
WHEREAS, On September 28, 2023, the Pl anning Commission certified the Final Environmental Impact Report for the Ocean Beach Climate Change Adaptation Project (Case No. 2019-020115ENV) prepared pursuant to the CEQA by Motion No. 21398; and WHEREAS, The San Francisco Zoological Society and the San Francisco Recreation and Park Department, have raised concerns about the sufficiency of vehicle access to the Zoo’s patron parking lot under the Project, which would remove the southern entrance and exit to the Zoo lot and require vehicles entering the Zoo lot to perform a U-turn at the end of Sloat Boulevard; and WHEREAS, The Environmental Impact Report considered access to the San Francisco Zoo under the Project, and concluded that such access would not result in significant impacts related to hazardous conditions or inadequate emergency access; and WHEREAS, The Planning Department is the custodian of records, located in File No. 2019-020115ENV at 49 South Van Ness Avenue, Suite 1400, San Francisco, California; and WHEREAS, The Project files, including the Final Environmental Impact Report, CEQA Findings and the Mitigation Monitoring and Reporting Program have been made available for review by this Commission and the public, and those files are part of the record before this Commission; and
WHEREAS, This Commission has reviewed and considered the information contained in the Final Environmental Impact Report, the CEQA Findings, and all written and oral information provided by the Planning Department, the public, relevant public agencies, SFPUC staff and other experts and the administrative files for the Ocean Beach Climate Change Adaptation Project; now, therefore, be it
RESOLVED, That this Commission, having reviewed and considered the Final Environmental Impact Report and the record as a whole for the Ocean Beach Climate Change Adaptation Project, finds that the Final Environmental Impact Report is adequate for its use as the decision–making body to approve the Project, and hereby adopt the CEQA Findings and Mitigation Monitoring and Reporting Program; and be it
FURTHER RESOLVED, That this Commission hereby approves the Ocean Beach Climate Change Adaptation Project and authorizes staff to proceed with actions necessary to implement the Project, including obtaining a Co astal Development Permit from the California Coastal Commission and any other required permits, provided that subsequent Commission action will be required to award the contracts for construction of the Project; and be it FURTHER RESOLVED, That this Commission he reby approves the letter of agreement describing the anticipated Memorandum of Un derstanding between the SFPUC and the San Francisco Recreation and Park Department regard ing construction and opera tion of the Project; and authorizes the General Manager of the SFPUC to negotiate and execute said Memorandum of Understanding with San Francisco Recreation and Park Department; and be it FURTHER RESOLVED, The SFPUC, in coordi nation with the San Francisco Municipal Transportation Agency, San Fran cisco Recreation and Park De partment, Planni ng Department, and Public Works, will evaluate vehicle access to the Zoo parking lot, and will consider whether any subsequent project is necessary to provi de enhanced vehicle access, subject to any environmental review necessary at that time; and be it
FURTHER RESOLVED, That this Commission urges the San Francisco Recreation and Park Commission and the Board of Supervisors to restrict vehicular traffic on the Great Highway Extension and take any other actions necessary to facilitate the Project.
I hereby certify that the foregoing resolution was adopted by the Public Utilities Commission at its meeting of October 10, 2023.
Secretary, Public Utilities Commission
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