Accelerating Implementation of Local and Regional Resilience to Climate Change

SB1 Adaptation Planning Grant: Final Case Study

 

Summary

The SB1 grant funded two adaptation planning efforts between May 2018 and May 2020 – one focused on Colma Creek in South San Francisco and the second focused on scoping a public access program in the 4-county ecological area intersected by the State Route 37 Corridor - both with the objectives of addressing the Bay Area’s short, medium, and long term vulnerabilities to sea level rise and flooding. Both of these efforts built on conceptual designs developed during the Bay Area Resilient by Design Challenge and were charged with further developing multi-benefit strategies to address vulnerabilities to the transportation system, the health of natural systems and ecology, and the most vulnerable disadvantaged communities at the frontlines of risk. The objectives at the beginning, which stayed consistent throughout the planning efforts, were to:  1) advance progress on two multi-benefit projects that serve to illustrate new approaches to governance, financing, planning, and design that meet 21^st century challenges of sea level rise and flooding; and 2) the completion of an adaptation implementation roadmap for each project that identifies roles and responsibilities for participating stakeholders from all levels of government and perspectives, and informs new ways of working at the institutional level.  Each project involved unique approaches to tackling this challenge.

The projects identified specific adaptation strategies in the project areas, established roles and responsibilities for partners involved and developed a roadmap for accomplishing goals over time. The deliverables included a finance strategy for each project; Governance recommendations for how best to support multi-year, cross- jurisdiction, cross-sector and multi-benefit projects; and an implementation road map and tool kit.

The State Route 37 Public Access Scoping Report identifies the current state of public access within the San Pablo Baylands, including facilities for trails, developed park and open space, hunting, and water recreation, and recommends alternatives that could lead to a comprehensive, interconnected and resilient system over time. The Report provides specific scoping direction for ongoing SR37 Planning Efforts. The study also aims to expand awareness of adaptation and resilience considerations and multi-beneficial public access opportunities within and leading to the San Francisco Baylands, including in the disadvantaged, at-risk communities that connect to the Baylands. The objective of the report is to identify opportunities and constraints for land and water-based trails and recreation. Driven by the project’s goals, guiding principles and project engagement, the report identifies a phased approach to regional connectivity with key next step opportunities.

The Colma Creek Adaptation Study – Colma Creek Connector - in South San Francisco was a continuation of work done by HASSELL and San Mateo County for the Resilient by Design Bay Area Challenge which focused on the Colma Creek Watershed over 2017-2018. The Study explored the design options and feasibility of adaptation along Colma Creek using publicly owned land, in order to accomplish 4 main goals: 1) manage flooding and sea-level rise; 2) restore creek ecologies; 3) increase public access to the creek; and 4) improve public access between Colma Creek, the Bay and the Bay Trail.

Both projects supported a number of statewide climate resilience goals and plans:

• EO B-30-15 - This grant facilitated state planning and investment in climate preparedness projects that protect the state’s most vulnerable populations as required under EO B-30-15.
• EO S-13-08 - The grant supported sea level rise planning, consistent with the state’s Climate Adaptation Strategy (Safeguarding California).
• EO N-19-19 - The two planning efforts funded through this grant are focused on vulnerable transportation assets and the opportunity to “fund transportation options that contribute to the overall health of Californians and reduce greenhouse gas emissions, such as transit, walking, biking and other active modes.”
• California Transportation Plan 2040 – This grant developed projects to improve transportation infrastructure through a collaborative process that addressed the needs of disadvantaged communities, aligning this work with the goals of CTP 2400 Vision for “resilient multimodal system supports a prosperous economy, human and environmental health, and social equity”.
• 2017 Regional Transportation Plan (RTP) Guidelines – By supporting design of projects to adapt transportation infrastructure to sea level rise, the project supports the 2017 RTP Guidelines by aiding MTC’s mandate to address climate change adaptation in its transportation planning.
• 2017 General Plan Guidelines – This grant specifically addressed the climate change, equitable communities and economic development considerations and exceeds the recommendations regarding community engagement and outreach recommendations.
• Addressing Needs of Disadvantaged Communities – Both adaptation planning projects involved collaboration with local partners from socio-economically vulnerable communities with a focus on expanding access to ecological assets and mobility options to connect key nodes of activity. For the Colma Creek Collector planning effort, the project team partnered with the City of South San Francisco’s Parks and Recreation Department to provide programming during summer school and with local libraries and the school district to conduct outreach with youth.  The State Route 37 Public Access project team operated from a core guiding principle of expanding equitable public access to the San Pablo Baylands. The team worked with the Mayor of Vallejo and Solano County Transit to identify representatives from the City of Vallejo to sit on the Local Working Group. Additionally, the nonprofit Urban Habitat was able to hire a staff person located in Vallejo to help build local capacity to engage in intersecting issues impacting the community such as housing displacement, climate change and air quality.
• Supporting Investment in Natural Infrastructure –  Both adaptation planning projects were keenly focused on expanding and enhancing natural infrastructure in the project areas both as a means to help reduce the impacts of sea level rise and flooding and as a way to create healthy natural amenities for local residents and visitors that support multi-modal public access and the reduction of greenhouse gas emissions.
• Supporting an Integrated climate approach (mitigation and adaptation) – Both the SR37 Public Access Study and Colma Creek Collector were focused on expanding multi-modal transportation options in their project areas, moving people away from vehicles as the only way to move around their respective geographies.

Lead Agency and Partnerships

Lead Agency and Applicant:  Metropolitan Transportation Commission (MTC)

Sub-Applicants:  Bay Area Regional Collaborative (BARC), San Francisco Bay Conservation and Development Commission (BCDC) and the California State Coastal Conservancy (SCC). 

Grand Bayway State Route 37 Public Access Scoping Report Project Team: TLS Landscape Architecture, Atlas Lab, Alta Planning and Design, CivicKnit, Exploratorium, Rana Creek Design

Grand Bayway State Route 37 Local Stakeholder Working Group: Representatives from San Francisco Bay Trail, Napa Vine Trail, SF Bay Water Trail, Marin County Bicycle Coalition, Napa County Bicycle Coalition, Sonoma County Bicycle Coalition, Sonoma County Regional Parks, Greater Vallejo Recreation District, California Department of Fish and Wildlife, U.S. Fish and Wildlife Services, Marin Audubon, Ducks Unlimited, Sonoma Land Trust, Vallejo Community Representatives (2), the Bay Area Regional Collaborative

Colma Creek Collector Project Team: Hassell Inc., Lotus Water, Civic Edge, Hatch

Colma Creek Collector Local Stakeholder Working Group:  San Mateo County Public Works, the San Mateo County Flood and Sea Level Rise Resiliency District, the City of South San Francisco, the Bay Area Regional Collaborative.

Drivers

The SB 1 Caltrans Adaptation Planning Grant opportunity arrived at a perfect time to allow MTC, BARC and many partners to build off of adaptation planning work underway in South San Francisco and in the four counties that encompass the State Route 37 corridor. There were key efforts underway that influenced the initial grant proposal as well as the selection of the two project locations and project teams.  These include the Adapting to Rising Tides Bay Area (ART Bay Area) and the Resilient by Design Bay Area Challenge which helped lay the groundwork for the initial conceptual designs further explored, examined and developed over the course of the two planning processes funded through the SB1 grant.  Other complimentary projects include the SB1-funded Dumbarton Bridge West Approach + Adjacent Communities planning effort also managed by MTC/BATA, which benefitted from staffing overlap on the Project Management Team. The SB1 grant helped ensure a seamless transition towards more in-depth work in the two project locations that allowed momentum and ongoing learning to continue.

Engagement Process

Grand Bayway State Route 37 Scoping Report Public Engagement: The development of the Scoping Report was compiled in close coordination with SR37 planning efforts – both near-term and long-term improvement considerations. Various public events and focused discussions with key stakeholders occurred throughout development of the Scoping Report utilizing the Project Management Team and the Local Working Group (members listed above). These convenings included monthly PMT check-ins, 3 Local Working Group meetings, a Skaggs Island Bike Tour, 2 Focus Groups with key stakeholders, a discussion with regulatory agencies operating in the area, and a People and the Baylands event at the Exploratorium. Updates used in the report were shared with the 4-County Policy Committee and MTC.

At the outset of the project, engagement activities were focused on familiarizing the team and stakeholders with the status of existing facilities, current planning efforts and defining a criteria for public access, several theme emerged out of the feedback:

• Strong desire to include public access in the planning of the 4-county sub-region
• Not all forms of public access are understood as equal
• There remains disagreement amongst stakeholders about what access is “compatible and appropriate”
• Advancing public access brought to light larger regional policy discussions
• Legitimate limitations (maintenance, sea level rise) exist for public access in sensitive habitat areas

This process led to a set of Guiding Principles and a Mission Statement for the Project. The Mission for the project is: Work to connect a safe and world-class active transportation corridor along SR37 with a network of recreational opportunities (land and water based) along the San Pablo Baylands for people of all ages and abilities that enhances awareness of the Baylands, the protection of future and current sensitive wildlife areas, enhanced regional connectivity and provides:

• Resilient connections coordinated across jurisdictional boundaries
• A wide-range of equitable access opportunities
• Opportunities for access in the near-term (5-20 years)
• Increased awareness and environmental education

Colma Creek Collector: The project team engaged the local South San Francisco community through digital and in-person forums over an 18-month period. The focus was on raising awareness within the community about flood risk, and the potential for the creek to be transformed into an ecological asset that improves public amenity. The team built a following of supporters of the project, primarily through local South City families. The first half of the project saw successful engagement events held as part of South San Francisco Parks & Rec’s ‘Parks Alive Streets Alive’ and  Youth Summer Camps, both in Orange Park by Colma Creek. Additionally, the project was shared with community members visiting the local Mission Blue Nursery, the venue for much of the restoration plants used on San Bruno Mountain.

The COVID-19 crisis and subsequent ‘Shelter-in-Place’ order that was implemented in March 2020 resulted in the cancellation of planned engagement events with the Boys & Girls Club of San Mateo, South San Francisco Parks & Rec Summery Camp, and the Silicon Valley Bike Coalition. The project engagement approach adapted to the situation and looked to focus on online engagement for children and youth stuck at home looking for activities to fill their days. That led to the creation of a Children’s Book entitled Christina Lives by a Beautiful Creek which has gained the accolades of City Council member Mark Nagales (who read the book to his children for a YouTube video), teachers and PTA Presidents from local schools and the local library.

Additionally, the project team worked with the City of South San Francisco on their General Plan update to incorporate key aspects of the report and strategies developed into the Plan, building on the extensive outreach the team conducted introducing key adaptation concepts as part of the Resilient by Design Bay Area Challenge.

Climate Impact Area

Grand Bayway State Route 37 Public Access Scoping Report: The San Pablo Baylands are an important part of the San Francisco Estuary, one of the largest on the West Coast of North America. Beginning in the 1880’s, large segments of the Baylands’ rich mosaic of wetlands were converted into agricultural fields by constructing a system of perimeter levees; in the 1980’s traditional pastureland was converted to vineyards. In the 1920’s, what is now State Route 37 was constructed, further separating the Baylands hydrologic connectivity from the San Pablo Bay. The San Francisco Bay Estuary was impacted by the rise of urbanization and suburbanization and large sections of the Bay estuary were filled for development. Since then, efforts have been initiated to reverse a century of wetland degradation led by many state, regional and local ecological stewards.

Unfortunately, the San Pablo Baylands are already impacted by both flooding due to incremental sea level rise and occasional dike failure. These challenges present both a significant opportunity for ecosystem protection and enhancement, as well as natural-system based resilient solutions for the San Francisco Bay. Intersecting with this ecosystem is State Route 37, an important east/west connector for people traversing to and from home to work. This project was focused on providing alternative modes for people to enjoy, traverse and engage in what is largely an underappreciated ecosystem asset in the Bay Area that is under threat from sea level rise.

Colma Creek Collector: The Study Area focused on Colma Creek and adjacent public land from Orange Park to the Bay shoreline. In 1959, the San Mateo County Flood Control District was formed, with one of its key objectives being to address the recurring flooding problems along Colma Creek that had been impacting the community. Subsequent changes along Colma Creek were designed to protect against a 5-year storm event, which has a 2% probability of occurring in any given year. With the emergence of global climate change and the increased intensity of storms, it became necessary to re-evaluate the carrying capacity of the creek. The project also presented the opportunity to evaluate the public amenity potential and provide improvements along the channel, given changes to accepted best practices since the channelization occurred. The Colma Creek corridor currently has limited public access and is identified in MTC/ABAG’s Plan Bay Area as Priority Conservation Area and a key link to the Bay Trail. The Colma Creek currently offers few benefits to the community and has little or no relationship to the community. The creek acts more as a barrier than a public service. The corridor has enormous potential for an ecological and open space connection between the Community and the Bay shoreline. By restoring the native ecology, more wildlife could return and create a more holistic natural community. 

Funding Source

The project was funded by an SB1 adaptation planning grant in the amount of $307,950 with $200,000 in matching funds from MTC/BATA for a total budget of $507,950.  Each of the consultant teams received $220,000 with the remaining funds supporting the active participation of the State Coastal Conservancy at $30,000, BCDC at $30,000 and BARC/MTC staff for the remaining $7,950 in expenses.

Research and Data

Grand Bayway State Route 37 Public Access Scoping Report:  The project team conducted extensive research and compiled a treasure trove of current and ongoing studies of the project area in an Appendix in the final report.  These include studies of environmental restoration, active recreation and transportation needs within and leading to the Baylands project area. The Scoping Report Appendix includes a summary of existing public access conditions, land ownership, and sensitive habitats, and creates a foundation for development of public access goals and design standards within the Baylands. It also will guide active transportation and San Francisco Bay Trail integration with other mobility improvements along the SR-37 corridor. The relevant planning documents, policies, and guidelines for the Baylands provide a brief overview of the substantial work done to-date.

Colma Creek Collector: The project team extracted a series of existing conditions from Colma Creek based on sectional profiles, adjacent conditions and land use. These conditions were selected as they were identified as being typical of the region. This allowed the project team to explore a broad range of potential adaptations within the creek corridor and adjacencies. Diverse design options were explored with outcomes evaluated against flood, ecology and access objectives, and grouped by surrounding creek context.

The projects also used the following local, regional and statewide resources:

• Safeguarding California
• FEMA data
• ART Bay Area Vulnerability Assessment, Sea Level Rise Web Viewer
• San Mateo SB1 Vulnerability Assessment
• Marin County Vulnerability Assessment
• Detailed analysis and research conducted as part of Resilient by Design in project areas.

Challenges

The Colma Creek Collector project team was initially delayed by San Mateo County completing a flood modeling project for Colma Creek. Once completed, the team was able to proceed with the project.

The biggest challenge encountered during the project was COVID-19, which brought all in-person public outreach for both planning efforts to a halt, although the teams were adaptive and creative in outreach and public engagement efforts during the health crisis.

Outcomes

Grand Bayway State Route 37 Public Access Scoping Report:  This project delivers a wealth of information all in one place for the 4-county ecological zone called the Grand Bayway that is intersected by State Route 37. Ultimately, the project outlines an overall vision for a bicycle, pedestrian and water facilities plan that aligns with the SR-37 Segment B Ultimate Project. The project design increases non-motorized user safety, enjoyment, and volume, while protecting those activities from predicted sea level rise impacts, contributing to state and regional efforts to reduce GHG emissions, improving compatible public access to national and state wildlife areas, and adding lasting community value within a reasonable timeline. The project provides different facility typologies appropriate to achieve intended goals and identifies initial pilot projects/focus areas where recommended approaches could be employed as next steps. The project team provides an overall phasing strategy and identifies potential funding sources to support next steps. 

Colma Creek Collector: This project provided: 1) an Adaptation Tool Kit of existing conditions data; 2) Adaptation Scenarios – Combining the site analysis and adaptation toolkit, the team established scenarios for 3 potential continuous routes from Orange Memorial Park to the Bay, applying adaptation options to each character area of the creek to prioritize multi-benefit outcomes across the 3 project outcomes; 3) an Implementation Roadmap, which provides a Feasibility/Benefits Assessment and road map for delivering different strategies over time, and identifies funding opportunities and reiterates stakeholder goals.

Replicability

Other communities can benefit from the Finance expertise, Governance Guidance, and How to Guide developed by these projects, as follows:

Grand Bayway State Route 37 Public Access Scoping Report:  This project provides a guidepost for how different agencies, jurisdictions and stakeholders can work together across a geography to establish shared goals and objectives as opposed to the status quo (ecological restoration has tended to occur on a project by project basis according to land ownership, funding streams and individuals and agencies involved). The learning and relationship building that occurred during this project, sometimes focused on working through tension points and differences in opinions among regulatory agencies and other stakeholders, will be helpful in all future endeavors in this project area and beyond. 

Colma Creek Collector: This project is a critical planning pilot that will inform other areas across the County and the region with similar features and challenges. The adaptation toolkit developed as part of this project was developed with this in mind and will be packaged separately as a regional resource for other creek restoration project teams and aspiring communities.

Additional Resources

The full reports developed for both projects will be posted and downloadable from the BARC website: www.barc.ca.gov.

Further Information