Brooklyn Basin, BCDC Letter

8/10/2019 Brooklyn Basin, BCDC Letter

1/19

San Francisco ay

Conservation and Development Commission

455 Golden Gate Avenue, Suite 10600, San Francisco, California 941 02 tel 415 352 3600 fax 415 352 3606

December 22, 20012

Bruce Wolfe

San Francisco

Bay

Regional Water Quality Control Board

1515 Clay Street, Suite 1400

Oakland,

CA

94612

SUBJECT

Oak

to

Ninth (Brooklyn Basin} Project Tentative Order, Order No. R2-2015-01XX

ear f ,/

The San Francisco Bay Conservation and Development Commission (BCDC} received notice

that

the

Regional Water Quality Control Board, San Francisco Bay Region (RWQCB} intends

to

issue waste discharge requirements and a water quality certification

for

Zarsion-OHP

1,

LLC

(applicant} to construct the Oak to Ninth Avenue Project (the Brooklyn Basin Development} in

the City of Oakland, Alameda County. BCDC staff would like to provide written comments on

the

mitigation measures proposed in

the

tentative order.

Background

On

February 4, 2011, BCDC approved and issued a

permit for the

Brooklyn

Basin development (BCDC Permit No. 2006.007.00}. As mitigation for the placement of

approximately .92 acres of fill at Gateway Park, that permit requires the permittee to remove

approximately 4.76 acres of fill at

the

site. In addition,

the

permittee proposed, and BCDC

eventually approved and requires,

the

construction of 0.93 acres

oftidal

wetlands along the

shoreline at the site near the areas of Channel Park and South Park on land subject

to

a 66-


2/19

Bruce Wolfe

December 22 2014

Page

2

Code 718),

the

Port may

not

lease public

trust

land

for

over 66 years. The

USACE

and

RWQCB

concurrently stated to

BCDC

that the Corps and Board could approve mitigation only

if

it is

based on a permanent deed restriction to ensure that

the

marsh habitat is dedicated in

perpetuity. As land subject to the public trust cannot be leased

for

longer than 66 years, the

agencies now have told BCDC

that

the marsh habitat proposal does not meet

their

requirements.

The permittee raised a possible solution to

the

agencies' objections in a series of meetings

in February and March 2014. The permittee proposed

that

a deed restriction agreement

be

recorded on

the

land

that would

ensure its use

for

mitigation. The permittee agreed to amend

its

BCDC

permit to require this deed restriction in cooperation with the SLC, which would limit

the

restriction

to

66 years in length and then be renewed subject to a public

trust

needs

assessment by the Port. At 66 years, the Port would determine that this site would still be used

as wetland mitigation, and renew

the

lease and deed restriction for an additional 66 years. In

subsequent communications with

the

RWQCB and USACE, however, those agencies expressed

concern

that

the site set aside

for

wetland mitigation could be proposed

for

another public

trust

use in 66 years, leading

to

a loss ofthe required wetland mitigation.

As

a result,

USACE

and

RWQCB

staff required the permittee to pursue

other

mitigation

options. In response,

the

permittee has indicated to BCDC that it will request an amendment to

BCDC s permit to remove the requirement

to

construct a marsh habitat wetland at the site and,

instead, propose

to

purchase 1.4 acres of mitigation credits at a mitigation bank

San

Francisco

Bay Wetland Mit igat ion Bank in Redwood City. Rather than create .93 acres of wetland at the

Oakland shoreline, the permittee

would

instead contribute

to

the

creation

of

0.93 acres

of

open

water

and mudflat. This proposal reflects generally the mitigation requirements contained in

RWQCB s tentative order. The tentative order requires the permittee

to

purchase 1.4 acres of


3/19

Bruce Wolfe

December 22, 2014

Page 3

permit process ensures that the project area will remain a mitigation site in perpetuity. This

puts aside the obvious practical point of the extremely small likelihood

that

other uses will ever

be proposed

for

this mitigation area.

Second,

RWQCB

staff

has

asserted to BCDC that

it

relies on the federal compensatory

mitigation standards when issuing Water Quality Certifications. It certainly

is the case that the

provisions

ofthe

federal Environmental Protection Agency's and

the USACE s

Federal Register

notice promulgating

the

final rule on compensatory mitigation acknowledges

that

in some

states, perpetual protection cannot be required, because the real estate

or

legal instruments

may be in effect

for

a limited number

of

years. However, accommodation is specifically

authorized

for

restoration projects in state-owned tidal waters, where the project component

does

not

have a real estate interest... Further,

if

a compensatory mitigation project

is

located

in a ROW owned by a public agency, then alternative mechanisms may be used to provide site

protection.

1

This language seems to provide flexibility for the agencies to deviate from the

requirement

that

mitigation be in perpetuity where the mitigation would occur on state

owned lands

that

are limited by the requirements

of

public trust.

Third,

it is

unclear

how

the

RWQCB

can accept and require open

water

and mudflat

as

mitigation at the site

but

cannot accept a marsh wetland restoration at the same location.

The

RWQCB s tentative

order

requires the permittee to create 0 69 acres of new open

water

and

or

mudflats at

the

site

without

requiring a deed restriction

at the

site. Requiring open

water

and

mudflat at this location conflicts with the RWQCB s assertion to BCDC

that

it cannot accept any

mitigation

at

all at the site becau

se

the site cannot be guaranteed

into

perpetuity. While the

RWQCB asserts that it cannot accept marsh wetland at the site

without

a permanent guarantee

because

of the

lack

of

assurance

that the use of the

land would

not

change,

it is not

clear

how

open

water

and mudflats

meet

these requirements when open

water

and mudflats can be filled


4/19

Bruce Wolfe

December 22, 2014

Page

4

the

mitigation bank proposal, where we are close

to

bringing

the

401 Certification and waste

discharge requirements for the project

to

our Board for consideration

2

and did not respond to

BCDC staff

questions regarding

RWQCB s

policies and requirements.

3

The removal of a marsh wetland restoration component

to

the project is a material change

to

the requirements

of BCDC

Permit 2006.007.00. Such a change will require approval by the

Commission that includes a public hearing and a vote. BCDC s San Francisco Bay Plan

Mitigation Policies clearly provide that mitigation should

be

sited as close to

the

affected site as

practicable.

4

In

addition,

the

Commission may only allow fee-based mitigation when

other

compensatory mitigat ion measures are

infeasible

which

is not the case

at this site.

5

Finally,

the Commission s Bay Plan policies require that mitigation banks have to have an approved

mitigation bank agreement with the Commission before the Commission

can

be considered for

mitigation for a project. No such mitigation bank agreement with BCDC exists for

the

San

Francisco Bay Wetland Mitigation Bank in Redwood City

There are very

few

opportunities to restore wetlands along

the

Oakland shoreline at the

Oakland-Alameda Estuary. It is incredibly disappointing that this loss of potential habitat and

public access might occur

for

this project. BCDC respectfully requests

that

the RWQCB continue

negotiations with

BCDC, USACE,

and SLC

to

draft a deed restriction that would give

RWQCB

adequate regulatory assurance and require the permittee to construct marsh habitat at

the

site.


5/19

FW: BCDC Permit No. 2006.07 (Brooklyn Basin)

Buehmann, Erik@BCDCSent: Monday, December 22, 2014 4:23 PM

To: Ogata, Gregory@BCDC

Attachments:Brooklyn Basin - BCDC Deed~1.doc (78 KB)

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From:John Bowers [mailto:[email protected]]

Sent:Thursday, June 12, 2014 4:45 PM

To:Won, Yuri@Waterboards

Cc:Erik Buehmann; Brad McCrea; Bob Batha; Larry Goldzband

Subject:Re: Brooklyn Basin

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Cc:Erik Buehmann; Brad McCrea; Bob Batha; Larry Goldzband; [email protected]

Subject:Brooklyn Basin

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12/19

FW: BCDC Permit No. 2006.07 (Brooklyn Basin)

Buehmann, Erik@BCDCSent:Monday, December 22, 2014 4:23 PM

To: Ogata, Gregory@BCDC

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13/19

9&$- 0&1(08$A

B30#


Sent:Saturday, July 05, 2014 2:56 PM


Cc:Erik Buehmann; Brad McCrea; Bob Batha; Larry Goldzband; Logan Tillema

Subject:Re: BCDC Permit No. 2006.07 (Brooklyn Basin)

B30#A

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B30#


Sent:Thursday, June 12, 2014 4:45 PM


Cc:Erik Buehmann; Brad McCrea; Bob Batha; Larry Goldzband

Subject:Re: Brooklyn Basin

B30#A

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B30#


Sent:Monday, June 09, 2014 5:37 PM


Cc:Erik Buehmann; Brad McCrea; Bob Batha; Larry Goldzband; [email protected]

Subject:Brooklyn Basin

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Brooklyn Basin, BCDC Letter

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