Visual and Aesthetics

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Noah Armstrong
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1 Such a connection could accommodate timed transfers and improve connections between local transit service and Presidio Shuttle service. Level of Service The results of the analysis are provided on a route-by-route basis. While alternatives show different loads on different routes, total GGT ridership in this corridor is forecast to be approximately 11,700 two-way average weekday riders in under the No-Build Alternative. This should not vary by more than 100 riders in for either Alternative 2 or Alternative 5. Therefore, no alternative is anticipated to induce additional bus demand above the baseline condition (Alternative 1, No-Build). Avoidance, Minimization and Mitigation Once final construction staging plans are developed, it is anticipated that some routes may require temporary re-routing. Sufficient notice will be given to the general public regarding new, temporary routes within the project study area Visual and Aesthetics What people see everyday within their community, such as greenspaces, roads, and buildings, forms much of their mental image of and attitudes toward that community. Research has shown that most people will generally agree on which views have high or low visual quality; however, defining visual quality for an environmental analysis requires a detailed methodology and analysis. This chapter summarizes how visual characteristics of Doyle Drive were studied by conducting a visual quality assessment. It also highlights how construction and operations of the project will affect the visual characteristics found within the project area. Visual quality and impacts were developed using guidelines provided in the Federal Highway Administration s (FHWA) Visual Impact Assessment for Highway Projects. Detailed descriptions of this methodology and the results of the visual assessment can be found in the South Access to the Golden Gate Bridge: Doyle Drive Visual Impact Assessment Revision 2, October Regulatory Setting The National Environmental Policy Act (NEPA) and the California Environmental Quality Act (CEQA) require the review of the potential visual impact of a proposed project. December 2005 Page 3-92 South Access to the Golden Gate Bridge, Doyle Drive DEIS/R Chapter Three: Affected Environment, Environmental Consequences, and Avoidance,

2 As part of this analysis, four primary planning documents were reviewed and considered as part of this visual quality assessment. These plans are the: Final General Management Plan Amendment and Final Environmental Impact Statement (GMPA); Presidio Trust Management Plan (PTMP); San Francisco Bay Plan (SFBP); and San Francisco Master Plan (SFMP). All four of these documents set forth scenic and visual resource goals and policies intended to preserve, enhance, restore and respect scenic vistas, historic structures and visually important landscapes and streetscapes within the Presidio and surrounding neighborhoods. Affected Environment Doyle Drive is located at the southern end of the Golden Gate Bridge one of the most recognized symbols of San Francisco and northern California, and an architectural and engineering wonder. At the east end of Doyle Drive is the city of San Francisco, which in its own right is considered a scenic, architectural and engineering wonder. The Presidio, a military-post-turned-national-park, has a unique scenic character. Much of this former military post is open space with woodlands of eucalyptus, cypress and Monterey pines. The waters of the Bay and the Pacific Ocean are almost always active, as they contain major shipping routes for the transportation of goods in and out of the Ports of Oakland and San Francisco. From almost any vantage point, on any given day, each of these elements play a part in the regional aesthetic character of the Bay Area. Doyle Drive s Regional and Local Landscape Doyle Drive is a primary transportation corridor. From points north of Doyle Drive, along Crissy Field and Mason Street, Doyle Drive is noticeable because of its elevated position along the bluffs, heavy support columns of the low-viaduct and steel truss sections of the high-viaduct. From the south side, Doyle Drive is less noticeable because of the intervening topography, vegetation and buildings. The most prominent element of Doyle Drive is the low-viaduct while the high- viaduct is a very memorable structural element. The steel elements, which are painted international orange, along with the light gray color of the concrete columns, stand out against the green-forested background of the Presidio. When viewed from a distance, this high-viaduct forms a continuous linear feature and connects visually to the Golden Gate Bridge. South Access to the Golden Gate Bridge, Doyle Drive DEIS/R December 2005 Chapter Three: Affected Environment, Environmental Consequences, and Avoidance, Page 3-93

3 View from Doyle Drive Motorists traveling on Doyle Drive have a wide variety of visual experiences. When traveling northbound from San Francisco, it is quite evident that the viewer is leaving the urban environment of San Francisco, and entering the more natural setting of the Presidio and, after crossing the Golden Gate Bridge, Marin County. However, this transition is gradual as the Presidio provides a progression of visual character from urban (areas around Gorgas Gate and the Main Post) to broad elevated views of the Golden Gate Bridge, San Francisco Bay, and Crissy Field, to wooded and natural areas, before reaching the Golden Gate Bridge toll plaza. In the reverse direction (from north to south), the visual character of Doyle Drive transitions from area with natural characteristics to an urban character, as views of San Francisco become more prominent for motorists traveling south. The best views for motorists occur in the southbound direction as Doyle Drive leads away from the toll plaza and comes out of the wooded areas near the Park Presidio interchange. In this area, views of San Francisco, the Bay, Crissy Field, and Alcatraz Island are predominant. Further on, there are close-up views of the Main Post area, the National Cemetery, and the dome of the Palace of Fine Arts. Solid three-foot tall concrete barriers (guardrail) line the outside shoulders of Doyle Drive, thus obstructing the lower portion of the view immediately adjacent to the roadway. Temporary Impacts Temporary impacts, often associated with construction of the transportation facility, are discussed in this section. During the four- to five-year construction period, all build alternatives would result in an adverse change in the visual character of the study area. All build alternatives would require the removal of existing landscaping and vegetation during construction, resulting in an adverse visual impact. For all build alternatives construction equipment, including portable construction lighting, may be present during the construction period. At times residents living near the construction area may experience increased light and glare from temporary lighting sources at night due to the scheduling of nighttime construction work. This light and glare could be more visible due to the removal of existing vegetation. While light and glare from nighttime construction lighting would be considered an adverse effect, it would be temporary in duration, Portable construction lighting would also be required to be down-focused and oriented away from residential areas whenever feasible to reduce potential nighttime disturbance. December 2005 Page 3-94 South Access to the Golden Gate Bridge, Doyle Drive DEIS/R Chapter Three: Affected Environment, Environmental Consequences, and Avoidance,

4 Alternative 1: No-Build The No-Build Alternative would have no visual impact since it would not change the existing visual environment. Alternative 2: Replace and Widen During construction, the Replace and Widen Alternative-Detour Option would result in visual changes primarily due to the construction of a temporary detour structure. Construction activities would require the presence of substantial amounts of equipment during this process and would include grading and the removal of plants and trees for construction. Under this option, a 20.4-meter (67-foot) wide temporary detour facility would be constructed to the north of existing Doyle Drive to maintain traffic through the construction period. During construction, the No-Detour Option would have less impact than the Detour Option because it would not require the construction of a detour facility. The widened portion of the new facility would be constructed on both sides and above the existing low-viaduct and would maintain traffic on the existing structure. Traffic would be incrementally shifted to the new facility as it is widened over the top of the existing structure. Once all traffic is on the new structure, the existing structure would be demolished and the new portions of the facility would be connected. Similar to the Detour Option, construction activities would require the presence of substantial amounts of equipment during this process and would include grading and the removal of plants and trees for construction. Alternative 5: Presidio Parkway Construction activities of the Presidio Parkway Alternative would require the presence of substantial amounts of equipment during this process and would include grading, the removal of plants and trees, and demolition of existing structures. At the Park Presidio interchange, Option 1, Loop Ramp would require greater removal of vegetation than Option 2, Hook Ramp on the north side of the interchange area. Option 2, Hook Ramp would require the removal of a row of eucalyptus trees at the southeast corner of the interchange. Permanent Impacts This section presents a summary of permanent, direct impacts on visual quality resulting from the proposed Doyle Drive Project. Appendix C presents detailed information regarding visual impacts based on the analysis of six landscape units and nineteen key viewpoints. South Access to the Golden Gate Bridge, Doyle Drive DEIS/R December 2005 Chapter Three: Affected Environment, Environmental Consequences, and Avoidance, Page 3-95

5 Visual changes and potential visual impacts of the proposed alternatives were studied within six landscape units which make up the project limits. The No-Build Alternative would have no visual impact since it would not change the existing visual environment. Similarly, Alternative 2 Replace and Widen would have minimal long-term visual impact since it involves only modest changes to the existing facility. Alternative 5 - Presidio Parkway would result in the most noticeable long-term visual changes because both the location and profile of the roadway would change substantially including the removal of several buildings within the landscape units. Nineteen key viewpoints were selected based on visibility to sensitive viewers, specific views identified as important by the public and participating agencies and, the typical views available to the public. For each viewpoint, computer-generated simulations of each of the build alternatives were prepared. These simulations were used to evaluate the potential change in visual quality. Exhibit 3-30 provides a summary of impacts for the nineteen viewpoints. Exhibit 3-31 (on the following pages) illustrates the general location of these viewpoints. In addition, six key viewpoints which illustrate the visual changes associated with the alternatives are presented in Exhibits 3-32 through 3-36 at the end of this section. The effects of the project alternatives generally fall into one of two categories, they either: December 2005 Page 3-96 South Access to the Golden Gate Bridge, Doyle Drive DEIS/R Chapter Three: Affected Environment, Environmental Consequences, and Avoidance,

6 VIEWPOINT (MAP #) Exhibit 3-30 Summary of Effects on Visual Quality by Viewpoint EXISTING LEVEL OF VISUAL QUALITY REPLACE AND WIDEN (NO-DETOUR OPTION) ALTERNATIVES REPLACE AND WIDEN (DETOUR OPTION) PRESIDIO PARKWAY Gorgas Gate (1) Low Negligible Negligible Negligible Marina Neighborhood (2) Low Negligible Negligible Beneficial Marina at Lyon (3) Low Negligible Negligible Adverse Halleck North (4) Low Slightly Adverse Negligible Beneficial Former Burger King (5) Low Slightly Adverse Negligible Strongly Beneficial Mason Street East (6) Low Negligible Negligible Strongly Beneficial Mason Street West (7) Low Negligible Negligible Strongly Beneficial Mason Street South (8) Low Beneficial Beneficial Strongly Beneficial Crissy Field (9) Medium Negligible Negligible Negligible Cavalry Stables (10) Medium Negligible Negligible Negligible Lincoln Boulevard (11) Medium Negligible Negligible Negligible Halleck Street South (12) Low Negligible Negligible Strongly Beneficial Motorist s View Doyle Drive (13) Medium Negligible Negligible Strongly Adverse Halleck Northwest (14) Medium Negligible Negligible Beneficial Girard Road (15) Medium Slightly Adverse Slightly Adverse Adverse McDowell Avenue (16) Medium Minimally Adverse Minimally Adverse Minimally Adverse Cavlary Stables West (17) Medium Minimally Adverse Minimally Adverse Minimally Adverse Armistead Road (18) Medium No Change No Change Negligible to Adverse* Main Post (Building 106) (19) Medium Adverse Negligible Minimally Beneficial Note: Under the No-Build Alternative, there would be no change in existing levels of visual quality as seen from any of the nineteen viewpoints. *The Presidio Parkway Alternative includes two options in the Armistead Road Area with and without a Merchant Road slip ramp. The with slip-ramp option would result in a negligible effect on visual quality, while the without slip-ramp option would result in an adverse effect on visual quality as a result of substantial tree removal. South Access to the Golden Gate Bridge, Doyle Drive DEIS/R December 2005 Chapter Three: Affected Environment, Environmental Consequences, and Avoidance, Page 3-97

Exhibit 3-31 General Location of Viewpoints Note: Viewpoint locations represent the locations of simulations and photographs presented in this visual quality analysis.

7 Exhibit 3-31 General Location of Viewpoints Note: Viewpoint locations represent the locations of simulations and photographs presented in this visual quality analysis. Produce relatively little long term change and therefore maintain current levels of visual quality and also views available to motorists on Doyle Drive, but fail to improve visual quality where it may be affected by the existing Doyle Drive in certain areas of the Presidio, or 1. Produce substantial long term change, much of which improves visual quality in certain areas of the Presidio by removing portions of the existing elevated structures and placing Doyle Drive underground, but at the same time eliminate views that motorists now enjoy from those portions of Doyle Drive. The following brief summary highlights these effects for each alternative. No-Build Alternative The No-Build Alternative would have no visual impact since it would not change the existing visual environment. December 2005 Page 3-98 South Access to the Golden Gate Bridge, Doyle Drive DEIS/R Chapter Three: Affected Environment, Environmental Consequences, and Avoidance,

8 Alternative 2: Replace and Widen The Replace and Widen Alternative would have minimal long-term visual impacts since it involves only modest changes to the existing facility. The Replace and Widen Alternative - Detour Option falls into the first category, because it would result in little change in existing visual conditions. The Replace and Widen - No-Detour Option would fall between these two categories. The primary visual change associated with this alternative would be the raising of the low-viaduct structure approximately two meters (six feet) and an almost doubling of the width of the roadway which would result in a negative visual effect (increased mass and scale, resulting in additional view blockage and visual dominance) primarily when viewed from the Main Post and Crissy Field areas. Alternative 5: Presidio Parkway The Presidio Parkway Alternative would have the longest construction period and long-term visual changes because both the location and profile of the roadway would change substantially. Under the Presidio Parkway Alternative similar to the Replace and Widen, the existing high and low-viaduct structures would be demolished and new facilities would be constructed. However, the Presidio Parkway Alternative would place portions of the low-viaduct structure below grade and/or underground, thus removing portions of it from the existing landscape. The Presidio Parkway Alternative also provides direct connections between Doyle Drive and local roads within the Presidio, requiring realignment of streets, removal of several buildings, and redevelopment of portions of the affected areas. Such actions would produce changes and localized improvements in visual quality in some areas, especially in the lower Tennessee Hollow area. Modifications associated with the Presidio Parkway Alternative would restore visual connections between areas of the Presidio that have been separated by Doyle Drive s low-viaduct. The Merchant Road Slip Ramp Option would require the removal of a row of trees along the north side of Doyle Drive, as well as the removal of the row of apartment buildings along Armistead Road. Doyle Drive would be widened to accommodate the new ramp lane serving Merchant Road along the north side of the road. Avoidance, Minimization, and/or Mitigation Measures During the four-to five-year construction period, all build alternatives would result in a substantial adverse change in the visual character of the study area. All build alternatives would require the removal of existing landscaping and vegetation during construction, resulting in a substantial negative visual impact. The Replace and Widen, Detour Option would South Access to the Golden Gate Bridge, Doyle Drive DEIS/R December 2005 Chapter Three: Affected Environment, Environmental Consequences, and Avoidance, Page 3-99

9 also require the construction of a detour road and structure north of the existing Doyle Drive alignment to re-route traffic around construction areas. After construction is complete the detour road and structure would be removed and all temporarily affected areas restored to their appropriate native vegetation in natural areas, or appropriate ornamental vegetation type in landscaped areas. In some areas full restoration of mature natural species may take between ten and twenty years. Design guidelines for restoration of temporarily affected areas will be developed by the project proponent in conjunction with the Presidio Trust, the National Park Service, Caltrans, and the State Office of Historic Preservation. The design guidelines will be a collaborative effort, and will provide a planning and design framework for the new construction and associated landscaping for Doyle Drive. The design guidelines will incorporate the Secretary of Interior s Standards for Treatment of Historic Properties with Guidelines for the Treatment of Cultural Landscapes (National Parks Service, 1995). The design guidelines will provide a framework to ensure that the design and construction of Doyle Drive will be compatible with the Golden Gate Bridge historic district and that the associated landscape will be compatible with the Presidio of San Francisco National Historic Landmark District. Within the design guidelines, restoration criteria will include general restoration concepts and methods, including matching the original lighting standards of Doyle Drive which match those of the Golden Gate Bridge. Guidelines, in accordance with the Presidio Vegetation Management Plan, will also be developed by the project proponent to ensure appropriate vegetation and landscaping restoration. Based on the principles in the Presidio Vegetation Management Plan and the Presidio Trust Management Plan, some vegetation could be selectively removed to enhance views where appropriate and in consultation with the Presidio Trust. The project proponent will monitor restored areas for five consecutive years following plant installation using standard ecological methods that qualitatively estimate plant cover and to document survival rates and growth characteristics. December 2005 Page South Access to the Golden Gate Bridge, Doyle Drive DEIS/R Chapter Three: Affected Environment, Environmental Consequences, and Avoidance,

Exhibit 3-32 Viewpoint 2: Richardson Avenue at Bay Street Existing Condition Parkway Alternative Diamond Option Replace and Widen Alternative Parkway Alternative Circle

10 Exhibit 3-32 Viewpoint 2: Richardson Avenue at Bay Street Existing Condition Parkway Alternative Diamond Option Replace and Widen Alternative Parkway Alternative Circle Drive South Access to the Golden Gate Bridge, Doyle Drive DEIS/R December 2005 Chapter Three: Affected Environment, Environmental Consequences, and Avoidance, Page 3-101

Exhibit 3-33 Viewpoint 6: Mason Street East Replace and Widen Alternative - No Detour Option Replace and Widen Alternative - Detour Option (Unmitigated) Existing Condition Replace and Widen

11 Exhibit 3-33 Viewpoint 6: Mason Street East Replace and Widen Alternative - No Detour Option Replace and Widen Alternative - Detour Option (Unmitigated) Existing Condition Replace and Widen Alternative - Detour Option Presidio Parkway Alternative December 2005 Page South Access to the Golden Gate Bridge, Doyle Drive DEIS/R Chapter Three: Affected Environment, Environmental Consequences, and Avoidance,

Exhibit 3-34 Viewpoint 14: Halleck Northwest Replace and Widen Alternative - No Detour Option Existing Condition Replace and Widen Alternative - Detour Option Presidio Parkway

12 Exhibit 3-34 Viewpoint 14: Halleck Northwest Replace and Widen Alternative - No Detour Option Existing Condition Replace and Widen Alternative - Detour Option Presidio Parkway Alternative South Access to the Golden Gate Bridge, Doyle Drive DEIS/R December 2005 Chapter Three: Affected Environment, Environmental Consequences, and Avoidance, Page 3-103

Exhibit 3-35 Viewpoint 15: Girard Road Replace and Widen Alternative - No Detour Option Existing Condition Replace and Widen Alternative - Detour Option Presidio Parkway

13 Exhibit 3-35 Viewpoint 15: Girard Road Replace and Widen Alternative - No Detour Option Existing Condition Replace and Widen Alternative - Detour Option Presidio Parkway Alternative December 2005 Page South Access to the Golden Gate Bridge, Doyle Drive DEIS/R Chapter Three: Affected Environment, Environmental Consequences, and Avoidance,

Exhibit 3-36 Viewpoint 17: Calvary Stables West Existing Condition Replace and Widen Alternative Presidio Parkway Alternative South Access to

14 Exhibit 3-36 Viewpoint 17: Calvary Stables West Existing Condition Replace and Widen Alternative Presidio Parkway Alternative South Access to the Golden Gate Bridge, Doyle Drive DEIS/R December 2005 Chapter Three: Affected Environment, Environmental Consequences, and Avoidance, Page 3-105

7.5 Impacts on the Section 4(f) Properties

7.5 Impacts on the Section 4(f) Properties constructive use, such as noise, air quality and visual impacts were also assessed. It was determined that this project would not introduce changes of an external nature that would affect the recreational