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BART Sea Level Rise and Flooding Resiliency Study

SB1 Adaptation Planning Grant: Final Case Study

 

Summary

Bay Area Rapid Transit (BART) assessed the vulnerability and risks of four critical BART systems: stations, trackway, train control, and traction power. Seven vulnerable locations identified by the BART Local Hazard Mitigation Plan (LHMP) were assessed. The project formulated both physical and non-physical adaptation strategies specific to elements of station access, trackway ballast, train control interlocking, and traction power contact rails. The findings from the project will inform the infrastructure rebuilding work supported by BART‘s $3.5 billion bond measure approved by voters in 2016. The project area overlaps with vulnerable communities, who will benefit from adaptation efforts by ensuring vulnerable communities have access to BART transit services following a flooding event. 

The Sea-level Rise and Flooding Resiliency Study (Study) evaluated the risk and developed adaptation solutions from the combined flooding from sea-level rise (SLR) and the 1-in-100 year return storm surge. The combined flood level is anticipated to reach 64 inches above current mean high higher water (MHHW) by 2050 and 108 inches above current MHHW by 2090. Recovery from a flood event could range from days to years depending on location and extent. Regional adaptation will be the highest priority and working with regional and local agencies will be an integral component of it. In addition, site-level adaptation will be prudent to providing additional safeguards to the BART system from flooding.

The project started in May 2018 and completed in February 2020.  The project’s efforts align with EO-S-13-08 for supporting regional adaptation and with EO-B-30-15 by protecting the region’s key public transit system.  The project also aligns with the CTP 2040 goal to preserve  multimodal transportation system. 

Lead Agency and Partnerships

The project collaborated with local and regional entities including BCDC, SF PORT, SFMTA, and USACE among others. Coordination was necessary to synchronize with other planning efforts including Sea Change San Mateo County (SMC), the Adapting to Rising Tides (ART) Bay Area Project, and the San Francisco Seawall Resilience Project. 

Drivers

According to the State of California Sea-Level Rise Guidance Document (2013), SLR upper range projections are 24 inches by mid-century (Year 2050), and 66 inches by end of century (Year 2100). Without intervention, rising sea levels will cause more frequent and longer flooding of existing flood-prone areas, shoreline erosion, elevate groundwater, and permanent inundation in the coastal zones. 

Engagement Process

The project engaged with internal departments and other agencies at various project stages including vulnerability assessment, adaptation development, and feasibility assessment.  

In addition, the project engaged the community through the Title VI/EJC advisory committee and transit-oriented development (TOD) planning process where vulnerable sites overlap with planned TOD that focus on high density and affordable housing. Locations including West Oakland and Millbrae were opportunities to inform and influence the TOD.   

BART services disadvantaged communities throughout the region. According to BART customer surveying, BART’s customer base is approximately 62% minority, as compared to about 60% in the service area, according to the 2011 American Community Survey (ACS).  (Note: the 2011 ACS estimate is slightly higher than the 2010 Census figure used elsewhere in this report, which places the minority population at 59.4%.)

BART customers are more likely to have household incomes under $30,000 a year, and less likely to have household incomes of $100,000 or more a year.  Approximately 43% of BART’s riders have household incomes under $50,000 vs. 36% of four-county residents.

Climate Impact Area

BART assessed the system against the sea level rise and flooding in the 2050 and 2090 time horizons. Impact area investigated includes BART and surrounding areas.  (See Brief Summary above).

Findings from the project will be used to inform and update capital improvement programs and plans.

Funding Source

The total Project cost was $650,000 at time of project scoping. BART received $500,000 from the Caltrans Adaptation Planning Grant for the Project. The local match of $150,000 was provided by BART through staff time and resources. 

Research and Data

The project built upon several existing studies and reports including the FTA BART Adaptation Pilot (BART), the BART Local Hazard Mitigation Plan (BART), the San Bruno Colma Creek Resiliency Study (San Mateo County), Climate Change and Extreme Weather Adaptation Options (MTC), the San Francisco Sea Level Rise Action Plan (City and County San Francisco), and Adapting to Rising Tides Project (BCDC). 

State and federal resources included CalAdapt (State), State of California Sea level Rise Guidance Document (State), Floodproofing Non Residential Buildings (FEMA), Identifying Adaptation Strategies, California Adaptation Planning Guide (CalOES).  

Challenges

Buy-in was a challenging aspect of this project in an agency with many urgent priorities. The project engaged internal and external stakeholders early and had a robust engineering approach to this study in order to demonstrate a strong case for adaptation.  

Outcomes

See also Brief Summary.  

Recommendations include:

  1. Monitoring. Monitor and reassess flooding risk at least every 10 years incorporating information on implemented local and regional adaptations that reduce BART’s flood risk.  

  1. Regional Adaptation Engagement. Continue to engage in adaptation efforts that collaboratively develop adaptation strategies at the regional scale, as opposed to agency-specific, siloed efforts.  

  1. Asset-Level Adaptation. Strategically implement asset-level adaptation to supplement regional adaptation. As a critical component of Bay Area transit, BART needs to consider site-specific measures so it can recover quickly and provide reliable service post-disaster.  

  1. Operational Actions. Pursue operational actions as described in Chapter 4 in concert with adaptation strategies. Examples include redirect power through switching to keep the system operating outside the flood zone; ensure substations in non-flooded zones have the capacity to absorb power loads from flooded areas. 

  1. Funding. Pursue funding avenues that will support adaptation efforts, such as the National Oceanic and Atmospheric Administration (NOAA) Coastal Resilience Grant Program, California Ocean Protection Council grants, Federal Emergency Management Agency (FEMA) Hazard Mitigation Assistance, and National Coastal Wetlands Conservation Grant Program.  

  1. Leadership. The topic of adaptation needs be part of the regular conversations among all levels of political and executive leadership.  

    1. Influence the policy process to get adaptation-related policies accepted and implemented; 

    2. Enhance connectivity across different policy-making levels, sectors, and actors; and 

    3. Increase collaboration with other agencies; make sure BART has capacity/bandwidth to work with other agencies and vice versa. 

Replicability

The approach used in conducting vulnerability assessment, engagement, and adaptation development could be replicated by any agency. Agencies with a lot of critical infrastructure and similar governance structure will find study findings to be most applicable.  

Additional Resources

FTA BART Adaptation Pilot (BART)           
 

Further Information

For questions please contact Norman Wong at nwong@bart.gov, 510.287.4741, or alternatively Tian Feng at tfeng@bart.gov, 510.464.6549.