City Council
October 15, 2024
AGENDA REPORT
TO: Jestin D. Johnson FROM: Joe DeVries
City Administrator Deputy City Administrator
and Chief Resilience Officer
SUBJECT: Oakland Estuary Marine Debris
Removal Project
DATE: September 27, 2024
City Administrator Approval Date:
RECOMMENDATION
Staff Recommends That The City Council Adopt A Resolution:
1) Accepting And Appropriating Three Million One Hundred Sixty-Four Thousand Six Hundred Forty-Nine Dollars ($3,164,649.00) In Grant Funds From The National Oceanic And Atmospheric Administration (NOAA) For The Oakland Estuary Marine Debris Removal And Regional Stewardship Project;
2) Awarding Grants To Oakland Parks And Recreation Foundation (OPRF), As Fiscal Sponsor For I Heart Oakland Alameda Estuary (IHOAE) Or, At The Discretion Of The City Administrator, To IHOAE Directly Upon Confirmation Of Receipt Of IHOAE’s 501(C)(3) Status In An Amount Not To Exceed One Million Thirty-Three Thousand And Nine Dollars ($1,033,009.00) And To East Bay Regional Parks District (EBRPD) In An Amount Not To Exceed Twenty-Six Thousand Five Hundred And Seventy Dollars ($26,570.00); And
3) Authorizing The City Administrator To Negotiate And Enter Into Grant Agreements As Set Forth Above For A Term Consistent With The NOAA Grant With Authorization To Seek To Extend The Term Of The NOAA Grant And To Extend The Terms Of The Grant Agreements Without Increasing The Amounts Of The Grants
EXECUTIVE SUMMARY
The Oakland Estuary Marine Debris Removal and Regional Stewardship Project has been successfully awarded a three-year NOAA grant to address significant marine debris in the Oakland-Alameda Estuary. The project aims to remove approximately 520,000 pounds of debris and 16 sunken vessels, thereby enhancing the estuary's navigability and ecological health. The award of $3,164,649 will support coordinated efforts between the Oakland Police Department (OPD), East Bay Regional Park District, and community organizations such as I Heart Oakland Alameda Estuary (IHOAE). These efforts will include not only the physical removal of debris but also educational and stewardship programs designed to engage and empower local youth and communities, particularly from the City’s High Priority Equity Neighborhoods through hands-on Jestin Johnson (Oct 3, 2024 06:50 PDT)
Oct 3, 2024
Jestin D. Johnson, City Administrator
Subject: Oakland Estuary Marine Debris Removal Project
Date: September 27, 2024 Page 2
City Council
October 15, 2024
volunteer opportunities, educational workshops, and community cleanup events, led by IHOAE, to raise awareness and foster environmental stewardship. The grant will also allow the City to implement a boat “buy-back” program to prevent aging vessels from being abandoned by their owners in the estuary and includes community engagement opportunities within marinas to prevent the dumping of boats that owners no longer want. This initiative aligns with NOAA’s objectives to prevent pollution and restore vital habitats, making a critical step toward sustainable management of the estuary’s natural resources.
BACKGROUND / LEGISLATIVE HISTORY
The Oakland-Alameda Estuary, a vital ecological and recreational resource, has become increasingly degraded by marine debris, including a significant number of abandoned vessels that pose navigational and environmental risks. The problem of marine debris and abandoned vessels in the Oakland-Alameda Estuary began to escalate in the early 2000’s, as increasing numbers of derelict boats were left in the water due to factors like rising cost of vessel disposal, inadequate enforcement, and limited resources for removal. Over time, the issue compounded, exacerbated by economic downturns, and more recently, by severe winter storms that have contributed additional debris to the estuary. Previous initiatives, such as the Oakland Police Department’s (OPD) Marine Unit's efforts in vessel removal and the East Bay Regional Park District’s (EBRPD) long-standing debris management practices, have laid the groundwork for more extensive cleanup operations. The City Administrator’s Office and OPD have been engaged with the Bay Conservation Development Commission (BCDC) and their Enforcement Team over the past two years, addressing these issues with limited resources. Legislatively, the City of Oakland has taken proactive steps by implementing the Nuisance Vessel Ordinance (13728 CMS) that empowered OPD to efficiently address the issue and has led to the removal of dozens of derelict vessels. In the winter of 2023, this grant was identified as an opportunity to accelerate and sustain the work with prevention and educational components.
Although the removal of derelict vessels falls mainly to OPD, the accumulation of debris along the shoreline has been addressed largely through volunteer efforts. Since 2016, IHOAE has organized several volunteer clean-ups that include deploying volunteers in kayaks to reach inaccessible areas for marine debris removal. IHOAE volunteer efforts clear 6,000 LBS with two cleanups annually, but with this grant, the organization will increase capacity to four cleanups to remove 12,000 LBS annually and 36,000 LBS in three years. Additionally, IHOAE will work with community partners and the Public Works Department’s (OPW) Environmental Stewardship Team to conduct outreach to diverse communities to raise awareness and work together on solutions and the prevention of marine debris. Initially, IHOAE will be supported by the Oakland Parks and Recreation Foundation as their fiscal sponsor, but IHOAE is pursuing its own non-profit status and can contract directly with the City of Oakland once that occurs. .
The project has four main components:
1. OPD removing sunken vessels that require technical expertise, including divers, to assess the current conditions of the vessels and prepare them to be lifted. OPD will use a qualified contractor to lift and remove these vessels.
2. Ongoing clean-ups along the shoreline with the IHOAE team of volunteers
3. Developing an Oakland-specific Boat Buy-Back Program to encourage owners of aging vessels to “sell” them to the City for proper disposal
Jestin D. Johnson, City Administrator
Subject: Oakland Estuary Marine Debris Removal Project
Date: September 27, 2024 Page 3
City Council
October 15, 2024
4. Proactive public education and outreach along the estuary about the impact of marine debris and to encourage boat owners and estuary visitors to respect the waters, participate in volunteer efforts, and properly dispose of debris.
ANALYSIS AND POLICY ALTERNATIVES
The proposed project is the most comprehensive approach to date in addressing the estuary’s marine debris issue, focusing on removal, prevention, and community engagement. OPD has consistently applied for State of California Surrendered and Abandoned Vessels Exchange (SAVE) Grants that help to remove illegal “anchor-outs” (boats that are illegally anchored in the estuary) and vessels abandoned in marinas and will continue to do so on an annual basis.
These SAVE Grants have been helpful in removing some of the vessels, but this NOAA grant will provide resources to remove sunken vessels from the bottom of the estuary which is a greater challenge and more costly. Although there have been past efforts at boat removal, those efforts have not had a built-in prevention and outreach component. The estuary has seen an increase in these vessels and the problems associated with them over the past few years.
Additionally, human-caused climate change has made winter storms more severe and delivered larger amounts of debris to the estuary during those months, which has a detrimental impact on marine life and overall ecological health of the estuary.
By incorporating a public education and environmental stewardship element into this proposal, more Oaklanders will be exposed to the importance of protecting the natural environment along the estuary. Targeted outreach to the marinas and their tenants will also raise awareness about the proper way to dispose of an aging boat, and by utilizing a buy-back program, the City can avoid the much higher financial and environmental cost of removing a sunken or derelict vessel later.
This project addresses these Citywide Priorities: 1) Holistic Community Safety by ensuring safe and navigable waters along the estuary, 2) Vibrant, Sustainable Infrastructure since the Estuary is critical infrastructure for Port operations, 3) Responsive, Trustworthy Government by addressing an issue that many estuary residents have repeatedly asked the City to address, and 4) Housing, Economic, and Cultural Security by ensuring a safe and healthy estuary for the purposes of the recreational activity that draws many people to the Oakland Shoreline.
FISCAL IMPACT
This Project has a total budget of $3,164,649.00 over three years, aimed at large-scale debris removal and long-term restoration of the estuary. The funds will be appropriated through Fund 2104 – Department of Commerce and the Yearly breakdown is as follows:
- Year 1
o OPD Debris Removal Contractor - $290,280.00
o Vessel Buy Back Program - $16,666.00
o EBRPD Debris Removal Contractor - $26,570.00
o IHOAE Community Collaboration and ADV Creation - $339,400.00 o City of Oakland Grant Administration - $193,464.00
o Match
▪ CAO DCA @ 5% FTE (Fringe 80%) – $10,548.00
Jestin D. Johnson, City Administrator
Subject: Oakland Estuary Marine Debris Removal Project
Date: September 27, 2024 Page 4
City Council
October 15, 2024
▪ OPW Program Analyst III @ 15% FTE (Fringe 80%) - $15,636.00 ▪ IHOAE in kind (4 cleanups) - $105,392.00
- Year 2
o OPD Debris Removal Contractor - $580,559.00
o Vessel Buy Back Program - $16,667
o IHOAE Community Collaboration and ADV Creation - $343,007.00 o City of Oakland Grant Administration - $219,508.00
o Match
▪ CAO DCA @ 5% FTE (Fringe 80%) – $10,970.00
▪ OPW Program Analyst III @ 15% FTE (Fringe 80%) - $16,261.00 ▪ IHOAE in kind (4 cleanups) - $105,392.00
- Year 3
o OPD Debris Removal Contractor - $435,419.00
o Vessel Buy Back Program - $16,667
o IHOAE Community Collaboration and ADV Creation - $350,602.00 o City of Oakland Grant Administration - $256,606.00
o Match
▪ CAO DCA @ 5% FTE (Fringe 80%) – $11,408.00
▪ OPW Program Analyst III @ 15% FTE (Fringe 80%) - $16,911.00 ▪ IHOAE in kind (4 cleanups) - $105,392.00
- Grant Totals (3 Years)
o OPD Debris Removal Contractor - $1,306,258.00
o Vessel Buy Back Program - $50,000
o EBRPD Debris Removal Contractor - $26,570.00
o IHOAE Community Collaboration and ADV Creation = $1,033,009.00 o City of Oakland Grant Administration - $669,578.00
o Match
▪ CAO DCA @ 5% FTE (Fringe 80%) – $32,926.00
▪ OPW Program Analyst III @ 15% FTE (Fringe 80%) - $48,808.00 ▪ IHOAE in kind (4 cleanups) - $316,180.00
In Year 1, the budget of $892,792.00 will focus on initiating debris removal efforts, with IHOAE taking on a major role at $339,400.00 and OPD Debris Contractors receiving $290,280.00 for operational work. EBRPD Debris Contractors will also contribute, with $26,570.00 allocated for their services. Additionally, $16,666.00 is allocated to the "Other" category to support the Vessel Buy Back Program, which aims to reduce abandoned boats contributing to estuary debris. This program will assist in encouraging the proper disposal of derelict vessels. The Matching funds will come from the CAO DCA position overseeing the grant, OPW Program Analyst III, and IHOAE in kind quarterly cleanups.
In Year 2, the budget increases to $1,186,152.00 as debris removal operations scale up. OPD Debris Contractors will receive $580,559.00, handling a significant portion of the work, while IHOAE will continue its operations with $343,007.00. No additional costs are allocated for EBRPD Debris Contractors in Year 2 or 3. The Vessel Buy Back Program will continue with $16,667.00 set aside, further reducing vessel abandonment in the estuary. This year focuses on intensive debris removal and enhancing stewardship efforts, with increased personnel and Jestin D. Johnson, City Administrator
Subject: Oakland Estuary Marine Debris Removal Project
Date: September 27, 2024 Page 5
City Council
October 15, 2024
fringe benefits to support the project’s growing needs. The Matching funds will come from the CAO DCA position overseeing the grant, OPW Program Analyst III, and IHOAE in kind quarterly cleanups.
Year 3, with a budget of $1,085,705.00, will focus on completing the debris removal and solidifying long-term stewardship programs. IHOAE will receive $350,602.00 to finalize their role, while OPD Debris Contractors will complete their work with $435,419.00. The Vessel Buy Back Program will also continue with $16,667.00 to maintain its success in addressing derelict vessels. The bulk of the budget will continue to go toward contractual services for debris removal, while personnel, fringe benefits, and supplies will support the overall operations and ensure project completion. The Matching funds will come from the CAO DCA position overseeing the grant, OPW Program Analyst III, and IHOAE in kind quarterly cleanups.
PUBLIC OUTREACH / INTEREST
Due to the impact of derelict vessels and marine debris, there is significant interest from local residents and businesses eager to see improvements in the health and accessibility of the estuary. Efforts led by IHOAE have been central to engaging the community through informational sessions, workshops, and participatory clean-up events.
Local residents have expressed a strong desire for a cleaner estuary that enhances their quality of life and increases recreational opportunities. Businesses, particularly those in the tourism and maritime sectors, have also shown support, recognizing the direct benefits a clean estuary has on attracting visitors and improving the overall business environment.
The project has utilized various platforms for outreach, including social media, local newspapers, and community bulletin boards, to ensure broad community engagement.
Feedback and suggestions collected from these outreach activities have been instrumental in shaping the project's approach, emphasizing the community’s vested interest in the estuary's health and sustainability.
COORDINATION
This project involved collaboration and coordination between the OPD, the EBRPD, IHOAE, and various City of Oakland Departments.
1. OPD’s Role: OPD will leverage its expertise and authority to oversee the removal of sunken vessels and large debris, ensuring compliance with local ordinances and maritime safety regulations. Their coordination with the harbor authorities will facilitate smooth operational execution and adherence to safety standards.
2. EBRPD’s Contributions: EBRPD will handle contracting for the removal of debris within its jurisdiction along Martin Luther King Jr. Shoreline, drawing on decades of experience in managing similar environmental projects. Their involvement ensures that debris removal adheres to environmental best practices and is conducted without harming the local ecosystem.
3. IHOAE’s Engagement: As a community-focused organization, IHOAE will lead the public outreach and educational initiatives. Their deep connections within the community are vital for mobilizing volunteers, raising awareness, and fostering stewardship among residents, especially Oakland's youth.
Jestin D. Johnson, City Administrator
Subject: Oakland Estuary Marine Debris Removal Project
Date: September 27, 2024 Page 6
City Council
October 15, 2024
4. City of Oakland: The City Administrator’s Office will coordinate the work with OPD and IHOAE, and the Environmental Services Division of the Public Works Department will provide logistical and technical support, ensuring that stewardship events are supported.
Coordination between these departments is essential for aligning the project with city- wide sustainability goals and resource allocation.
This collaborative framework is designed to maximize resource utilization, enhance project effectiveness, and ensure a holistic approach to restoring the health of the Oakland Estuary.
Each partner brings specialized skills and resources crucial for addressing the complex challenges posed by marine debris, making their integrated efforts a cornerstone of the project’s potential success.
SUSTAINABLE OPPORTUNITIES
Economic: The project is expected to enhance tourism and increase economic activities around the estuary by improving its appeal and accessibility.
Environmental: Significant improvements in the estuary’s water quality and habitat health are anticipated, benefiting local wildlife and contributing to biodiversity conservation.
Race & Equity: The project focuses on engaging residents in High Priority Equity Neighborhoods, ensuring that these communities are central to the project’s environmental improvements and job opportunities. By providing education, volunteer opportunities, and leadership development, particularly for local youth, the project empowers marginalized communities to actively participate in environmental stewardship. These efforts, combined with the Vessel Buy Back program and partnerships will ensure the cleanup efforts and economic opportunities are maintained beyond three years.
Jestin D. Johnson, City Administrator
Subject: Oakland Estuary Marine Debris Removal Project
Date: September 27, 2024 Page 7
City Council
October 15, 2024
ACTION REQUESTED OF THE CITY COUNCIL
Staff Recommends That The City Council Adopt A Resolution:
1) Accepting And Appropriating Three Million One Hundred Sixty-Four Thousand Six Hundred Forty-Nine Dollars ($3,164,649.00) In Grant Funds From The National Oceanic And Atmospheric Administration (NOAA) For The Oakland Estuary Marine Debris Removal And Regional Stewardship Project;
2) Awarding Grants To Oakland Parks And Recreation Foundation (OPRF), As Fiscal Sponsor For I Heart Oakland Alameda Estuary (IHOAE) Or, At The Discretion Of The City Administrator, To IHOAE Directly Upon Confirmation Of Receipt Of IHOAE’s 501(C)(3) Status In An Amount Not To Exceed One Million Thirty-Three Thousand And Nine Dollars ($1,033,009.00) And To East Bay Regional Parks District (EBRPD) In An Amount Not To Exceed Twenty-Six Thousand Five Hundred And Seventy Dollars ($26,570.00); And
3) Authorizing The City Administrator To Negotiate And Enter Into Grant Agreements As Set Forth Above For A Term Consistent With The NOAA Grant With Authorization To Seek To Extend The Term Of The NOAA Grant And To Extend The Terms Of The Grant Agreements Without Increasing The Amounts Of The Grants
For questions regarding this report, please contact Joe DeVries, Deputy City Administrator and Chief Resilience Officer, at (510) 238-3083.
Respectfully submitted,
Joe DeVries
Deputy City Administrator, City Administrator’s
Office
Prepared by:
Michael Dyer, TCC Program Manager
City Administrator’s Office