Creeks to Peaks Connector Trails Habitat Conservation Fund Trail Category. Project Summary

Transcription

1 Project Summary The City of San Francisco covers approximately 49 square miles, is home to over 727,000 residents making it the most densely populated city in California, and is the number one tourist destination in the country. While most famous for its man-made Golden Gate Bridge, there are many equally stunning natural areas with unique habitats for a rich and diverse array of plants and animals. Natural areas are remnants of San Francisco s historical landscape and contain the City s natural heritage. The San Francisco Recreation and Park Department (RPD) protects many of these natural areas which provide a green oasis in a dense urban environment and hosts 17 miles of recreational trails connecting people with nature. Unfortunately, many of these natural areas and trails are in poor condition and are in need of restoration and protection. In 2008, San Francisco voters passed the Clean and Safe Neighborhood Parks Bond which allocated $5 million to the San Francisco Urban Trails Program to improve access and connectivity, promote conservation of natural resources and sensitive habitat, and improve public safety. The long-term goal of the program is to work with stakeholders to develop a well planned and sustainable trail system that encourages stewardship for these unique and precious natural areas for generations to come. An extensive public process to gather input from the community and stakeholders and to identify priorities has been used for the program development phase of the Urban Trails Program. Public meetings with the community and stakeholders were held in 2010 and Twenty-six sites were identified as needing trail and habitat restoration. However, the available bond funds can only address the most immediate needs at eleven of these sites, including Twin Peaks and Glen Canyon, primarily for health and safety reasons. The bond funds are intended to be leveraged with grant funding, donor contributions, and volunteer efforts to maximize the quantity and quality of improvements in public parks and provide the most benefit to the community and environment. In 2010, the Habitat Conservation Fund awarded RPD with two grants for the purpose of restoring independent trail systems at Glen Canyon (the Creekside Loop Trail) and Twin Peaks (the Twin Peaks Trail System Improvement Project). When the previous HCF grant applications were submitted, community outreach had not yet been completed for the Creeks to Peaks Connector Trails, known as the Portola and SOTA Trails, and were therefore not included in the grant applications scopes of work. Community outreach has since been successfully completed for these connector trail systems. The proposed trail improvements will create and restore critical connector trails between Glen Canyon and Twin Peaks, known as the Creeks to Peaks Connector Trails. Currently, pedestrians must walk on a busy, dangerous roadway to go between Glen Canyon and Twin Peaks. The new trail will protect users from automobiles, improve sight lines and visibility at crosswalks, restore trail side habitat, and provide signage and related amenities. San Francisco Recreation and Park Department 32

2 Project Proposal 1. Need The proposed project, Creeks to Peaks Connector Trails, is open space in an urban setting with social trails that have major design, safety, and construction deficiencies. Glen Canyon is a 70- acre natural oasis in the middle of a dense urban environment while Twin Peaks is one of the most visited areas in San Francisco, offering spectacular 360 degree views of the city and beyond. Creeks to Peaks will connect these Natural Areas and give the people of San Francisco contiguous, safe, and uninterrupted access to two of the most spectacular natural environments in the city. In a 2004 recreation assessment of RPD programs and facilities conducted by Leon Younger & PROS, LLC, San Francisco residents indicated that walking and biking trails were the number one needed recreational facility. 61% of respondents participated in visiting nature areas, which indicates that more than half of San Francisco households use trails and visit its natural areas 24% of respondents would increase walking and/or visiting natural areas more if it was available These numbers are higher than the CORP Trends and Challenges Report which indicate that 46.9% of Californians participate in day hiking on trails and wildlife viewing. Unfortunately, many of the San Francisco s trails are in poor shape - difficult to access, uneven, steep, and not sustainable. The natural landscapes around the trails support a diversity of species and there is a significant need to protect and preserve these native habitats. To improve access and recreational opportunities that allow people to connect, appreciate, and enjoy nature, the City of San Francisco passed the 2008 Clean and Safe neighborhoods Parks Bond and San Francisco Recreation and Park Department 33

3 allocated $5 million in bond funds to the Urban Trails Program. This funding is designated to renovate trails at twenty-six sites in the city. RPD found that the cost to improve urban trails in the city was more than twice the bond funding available. Working with a coalition of park organizations, environmental groups and stakeholders, the Urban Trails Program developed criteria to focus the limited funds on 11 of the 26 trail projects that have the greatest need and would provide the greatest benefits based on four priorities: restoration of recreational trails, protection of natural resources, development of trail networks, and improvement of overall trail safety. In an attempt to balance funding with need, 11 projects were chosen for only basic improvements to the primary trail network. Twin Peaks and Glen Canyon (including the connector trails between these two sites) were identified as priority trail projects, however, we are unable to fully fund the needed improvements. Glen Canyon s 70-acres of parkland offer San Franciscans the opportunity to experience diverse terrains as they appeared before the intense development of the region in the late 19 th and 20 th Centuries. The park incorporates free-flowing Islais Creek and the associated riparian habitat, extensive grasslands with adjoining trees that supports breeding pairs of red-tailed hawks and great horned owls, striking rock outcrops, and arid patches covered by coastal plant communities. Twin Peaks is a 34.1 acre open space in the geographic center of San Francisco and at 922 feet in elevation, it is one of the highest points in the city. Its two peaks provide the best views, a stunning 360 of the city and the Bay Area, and the lower areas house the endangered Mission Blue Butterfly. It is a world-famous tourist attraction with high levels of recreational use and includes a segment of the larger, 400 mile, Bay Ridge Trails. San Francisco Recreation and Park Department 34

4 The Creeks to Peaks Connector Trails are comprised of the Portola Trail in Twin Peaks and the SOTA Trail in Glen Canyon. The SOTA Trail is a new trail segment that will go through a small portion of the School of the Arts (SOTA) property. The Portola Trail runs a considerable length below the lower portion of Twin Peaks Road a narrow road with significant tourist bus traffic. A trail realignment that will allow vehicles greater visibility is needed to protect trail users. New steps and retaining walls are needed to address erosion. There is insufficient way-finding signage which has lead to the creation of several social trails that lead through sensitive habitats to dangerous areas of the roadway, dead ends, or precarious eroded areas. The Creeks to Peaks Connector Trails will protect users from automobiles, improve sight lines and visibility at crosswalks, restore trail side habitat, and provide signage and related amenities. 2. Meeting the Need To meet the need for building new trails and reconstructing existing trails to minimize environmental impacts, RPD and the Natural Areas Program (NAP) developed the Significant Natural Resources Areas Management Plan in It evaluated all the trails located in Natural Areas and developed a plan of action to maintain, rehabilitate or close trails. The RPD Capital and NAP Divisions specifically evaluated the needs of the Creeks to Peaks Connector Trails in terms of access, connectivity, conservation, and safety and developed a proposal to improve these trails. Social trails are unsafe, trek through sensitive habitat, and contribute to soil erosion so will be decommissioned. Installation of way-finding and interpretive signage will help direct pedestrian access while improving the safety and the sustainability of the highly used area of these parks. New trail segments, with the design goal of minimizing environmental impact, will be constructed so that they are out-sloped by two to five percent to allow natural water drainage. Additionally, trails will be developed to a maximum width of four feet to discourage use by vehicles. Where trail San Francisco Recreation and Park Department 35

5 alignment exceed 8-12%, construction of timber steps and associated timber trail edgings will be considered. Park entrance signage with related way-finding and park welcome information will also be included. 3. Site Access Both Twin Peaks and Glen Canyon are centrally located in the city of San Francisco. There are several existing trail access points from adjacent communities. a. Free Access Both parks have free public access with no parking, membership, or activity fees. b. Parking Free parking is readily available at the Twin Peaks Overlook, several locations along Twin Peaks Boulevard, and in neighborhoods adjacent to Twin Peaks and each of the trail access points in Glen Canyon. ADA parking is also available on a paved area adjacent to the Glen Park Recreation Center and the Twin Peaks Overlook. c. Public Transportation Public transportation to Twin Peaks is provided by the San Francisco Municipal Rail Line 37; Glen Canyon is serviced by Rail Lines 44, 52, and Metro Line J. The Bay Area Rapid Transit (BART) provides regional access to Glen Canyon via their Glen Park Station, which is a short walk to the southern boundary of the park. Additionally, Twin Peaks is a major sightseeing destination and is served by several tour buses. d. Hours Both parks are accessible from 6 am to 10 pm daily, accommodating all ages and work schedules. e. Barriers/Obstacles There is a relatively flat social trail that runs along Twin Peaks Boulevard which provides access to residents who may not have the physical strength San Francisco Recreation and Park Department 36

6 to climb the steeper peaks trails while still giving them stunning views of the city. Glen Canyon has an access road that runs along the eastside of Islais Creek. This road provides many scenic opportunities to experience the grassland, scrub, and riparian habitats and view the rocky outcrops. Additionally, access to both Twin Peaks and Glen Canyon is available through RPD s Youth Stewardship Program (YSP). This program provides urban school children from various low-income communities with the opportunity to experience and learn about the nature that exists in San Francisco s Natural Areas. Since both the Portola and SOTA Trails will be new trails, YSP does not currently provide programming in these areas but is interested in doing so once they are complete because of the Creeks to Peaks connectivity they offer. RPD s Youth Stewardship Program recruits program participants from the City s most ethnically and racially diverse neighborhoods with the intention of encouraging and educating these residents about natural areas and open space facilities available to them. 4. Stakeholders a. Notification RPD s Natural Areas Program (NAP) has a very large network of volunteers who help NAP restore nature in San Francisco by removing noxious weeds, planting natives, improving trails, and educating others. In 2009, these volunteers contributed over 120,000 hours of service to RPD. This volunteer network, representing thousands of residents interested in trails, was notified about the Urban Trails Program since its inception through various formats including , newsletter notifications, and promotions at volunteer events. These volunteers, and other residents, participated in the planning and project prioritization process via a variety of venues. San Francisco Recreation and Park Department 37

7 Additionally, several presentations were made to the Parks and Recreation Open Space Advisory Committee (PROSAC), a committee comprised of representatives from each of San Francisco s eleven supervisorial districts and the Recreation and Park Commission, the governing body of RPD. Meeting notices were mailed to local residents, posted on-site, ed to stakeholders, and highlighted in local newsletters (Exhibit A Sierra Club Newsletter). Public feedback regarding the Urban Trails Program was received at each of these well-attended meetings. The 2008 Clean and Safe Neighborhood Parks Bond had its own website advertising all public meetings and providing past and future meeting information, including PowerPoint presentations and handouts. The website can still be found at b. Obtain Ideas One of the Urban Trails Program s goals was to develop criteria to prioritize the trail projects. There were 26 sites under consideration and from the outset it was clear that the need was greater than the bond funding available. During the planning phase, in addition to reaching out to volunteer groups and community groups, RPD initiated meetings with interested community stakeholders representing local hiking, walking and other recreation organizations, and park and open space advocates. Participants included: Nature in the City Sierra Club, Walk SF, Audubon Society, Neighborhood Parks Council, San Francisco Parks Trust, California Native Plant Society, SF Tomorrow, San Francisco Beautiful, Livable City, and Mount Sutro Stewards (Exhibit B Nature in the City Letter of Support). These stakeholders and other interested parties were invited to participate in a series of site visits to the various trail projects to inform them about the projects, answer questions, and solicit input. RPD San Francisco Recreation and Park Department 38

8 also met with organizations, such as the Golden Gate National Recreation Area, to review and discuss best practices for similar trail programs and met with the Mayor s Office of Disability to discuss how the project could improve access to all individuals. Lastly, a series of informational meetings were held in the city s neighborhood service areas to discuss the 2008 Clean and Safe Neighborhood Parks Bond. Presentations about the Urban Trails Program were made to educate the public, allow for discussion, and recruit residents interested in participating in the development of the program. Residents were also encouraged to send comments electronically or by mail, request a presentation, join a neighborhood group, or contact staff directly. c. Incorporate Ideas Using the information and feedback obtained from the community stakeholders and residents, RPD capital staff developed basic scopes of work for the trail project. Using a rank-ordered scoring system, these stakeholders prioritized all the projects and types of improvements. From there, scopes of work were developed for the top scoring sites. 5. Applicant Capacity a. Design the Project to Maximum Sustainability One of the Urban Trails Program s goals is to develop a sustainable trail system for efficient long-term maintenance. This is accomplished by minimal use of structures, using the natural topography of the land, and designing trail systems that keep users on the designated trails. Additionally, RPD conducted best practices research on similar projects such as the Golden Gate National Recreation Area s Trails Forever program, and organized a peer review with staff GGNRA, the Bay Ridge Trail, and other organizations with trail-building experience to inform trail design for optimal sustainability. This, in combination with RPD s San Francisco Recreation and Park Department 39

9 Significant Natural Resource Areas Management Plan of 2006 which evaluated all the trail systems in Twin Peaks and Glen Canyon and developed a plan of action to maintain, rehabilitate, or close trails, ensures the project scope is sustainable, manageable, and is in-line with best practices in the field. A cornerstone of the Urban Trails Program is to expand the volunteer trail corps that assists RPD in the long-term maintenance of its trails. A grant from REI San Francisco was recently awarded to RPD for this express purpose. Local community residents working under the guidance of NAP staff will assist in all aspects of restoration, including invasive plant removal, plant propagation, planting erosion control, site maintenance, ecological monitoring, and education. This infrastructure will ensure the long-term success of the Creeks to Peaks Connector Trails project. b. Manage Project Completion Schedule Two key RPD divisions are involved in the project design and implementation of its Urban Trails program the Capital Division and the Natural Areas Program. The Capital Division Project Manger and the NAP Manager are experts in environmental planning, natural resource management, trail construction, habitat restoration, environmental education, and volunteer coordination. The NAP staff will design and oversee all field aspects of the proposed project, while the RPD Capital Division will manage the public outreach and construction management. c. Monitor Project Outcomes to Ensure they Remain at Intended Standards The Creeks to Peaks Connector Trails project will be a design/build contract with portions of trail work, such as clearing and grubbing and erosion control work completed by volunteers and the possibility of some phase of work being completed by the San Francisco San Francisco Recreation and Park Department 40

10 Conservation Corps. In order to insure that RPD s high standards are met throughout the design/build process, construction will be overseen by the RPD Capital Project Manager while volunteer efforts will be managed by the NAP Manager. 6. Connections Both Twin Peaks and Glen Canyon are surrounded by several residential neighborhoods, schools, and other institutions and serves a diversity of ages and ethnic groups. The Creeks to Peaks Connector Trails are particularly well suited to connecting people to parks because it maintains a contiguous connection between Twin Peaks and Glen Canyon, two of San Francisco s most beautiful and iconic natural areas. a. Neighborhoods Twin Peaks is accessible to the neighborhoods of Midtown Terrace, Twin Peaks, Clarendon, and Diamond Heights, representing a population of over 16,000 residents. There are four access points to the Twin Peaks Trail system from these neighborhoods. Glen Canyon is easily accessible to the neighborhoods of Sunnyside, Glen Park, Diamond Heights, and Twin Peaks which represent over 78,000 residents. There are seven park access points to the Glen Canyon Trail system from these neighborhoods. This project will connect Twin Peaks to Glen Canyon by way of the Portola and SOTA trails. This connection will also serve to connect this area with the Bay Ridge Trail. Thus, this whole area will be connected with the entire bay area and beyond via BART and the 400 mile Bay Ridge Trail. b. School Sites The School of the Arts (SOTA), a public high school specializing in visual and performing arts, is located on Glen Canyon s northern boundary and uses the Canyon for its visual arts and science education programs. SOTA is also in close proximity to Twin Peak s Portola Trail, making it the ideal connection between it and San Francisco Recreation and Park Department 41

11 Glen Canyon. RPD has recently secured SOTA s support to construct the SOTA Trail through a small portion of the school s property (Exhibit C SOTA Letter of Support). Volunteers, comprised primarily of SOTA high school students, will complete the majority of the trail work which is located on San Francisco Unified School District property. Other schools in close proximity to the Creeks to Peaks Connector Trails include Glen Park, Miraloma, Clarendon, and Grattan Elementary Schools. c. Employment Locations San Francisco is a major employer of California, one of the six largest economies in the world. There are several business districts and institutions with a large employee base within walking distance of the Creeks to Peaks Connector Trails, including Glen Park, Midtown Terrace, Twin Peaks, Laguna Honda Hospital, and SOTA. 7. Sustainable Design Features The long-term program goal for RPD is to develop a sustainable trail system for efficient longterm maintenance. This is accomplished by creating trails that use the natural grade of the topography, are designed with an out slope that allows for sheet drainage, are designed to meet user demand to keep them on trails, and minimal use of structures. a. Curvilinear Design The trail design follows the contours of the natural topography of Twin Peaks and Glen Canyon. b. Trail Grades Trails are aligned to the natural topography to minimize slope and reduce the need for installation of stairs. All new trails will be out-sloped from two to five percent to allow water to drain from the surface naturally. c. Minimal use of Turnpikes - Turnpikes are only used to protect sensitive areas such as the riparian area or locations with sensitive habitat. San Francisco Recreation and Park Department 42

12 d. Trail Design The trail design will encourage use of designated trails. Social trails will be decommissioned by using fencing, signage, and placing of brush. Re-vegetation will also occur, as appropriate to rehabilitate the area. Box steps will be used when possible to prevent and discourage users from entering into sensitive areas. The improvement and definition of park entrances will also encourage users to enter from the formal trail system rather than accessing from informal or social trails. Thus social trails will be decommissioned while legitimate trails are upgraded and signage is increased to encourage use of the improved trail system. e. Utilizing Recycled Materials Trail design will not use recycled materials. The project will not be importing fill or soil and using only materials generated on-site. They are natural dirt trails with minimum constructed features, thus no recycled materials are needed for this project. f. Appropriate Tread Firmness The intended user group is pedestrians and soil of the appropriate firmness will be used on these trails. g. Protected Habitats The federally listed endangered Mission Blue Butterfly is found only in a few locations, including Twin Peaks. Hundreds of thousands of Mission Blues once populated the West Bay's windy hilltops, feasting on three varieties of lupine. But as development crept up those hillsides, the Mission Blue's habitat dwindled to just three locales: Twin Peaks, San Bruno Mountain, and the Marin Headlands. The Creeks to Peaks Connector Trails will complete the Twin Peaks Trail system designed to keep users off social trails and protect this endangered natural habitat. 8. Interpretive Habitats San Francisco Recreation and Park Department 43

13 a. Natural Twin Peaks contains areas that are relatively undisturbed and remain in a natural state. The abundant summer fog for which San Francisco is known contributes to Twin Peak s diversity of microclimates, native plant, and wildlife communities. On the dryer south-facing slopes, fragrant coastal sage shrub lands harbor sticky monkey flower, coyote brush and California sagebrush. This provides critical cover for nesting birds like the white-crowned sparrow as well as habitat for lizards, rodents, and pebbly coyotes. Hikes in Glen Canyon pass through a rich diversity of habitats including creek side riparian, rock outcrops, grasslands, and coastal scrub. Some of the city s largest and most impressive and accessible rock outcrops are located and assessable by the trails in Glen Canyon. This diversity of habitats provides numerous opportunities for wildlife viewing and observation. Forage and nesting habitat for a variety of resident and migratory birds provide stunning bird-watching opportunities. Annually, migratory birds traveling from as far away as Alaska and Tierra del Fuego in Chile, depend on stopping points like Glen Canyon. Interpretive signs have been developed for Twin Peaks and Glen Canyon which will be fabricated and installed so that park s users can learn about the rich natural habitats in these areas. b. Cultural The north and south Twin Peaks are about 660 feet apart with Twin Peaks Boulevard running a figure eight around them. The peaks form a divide for the summer coastal fog pushed in from the Pacific Ocean. Their west-facing slopes often get fog and strong winds, while the east-facing slopes receive more sun and warmth. Elevation at each summit is just over 900 feet. San Francisco Recreation and Park Department 44

14 Glen Canyon offers an experience of San Francisco's diverse terrains as they appeared before the intense development of the region in the late 19th and the 20th Centuries. The park incorporates free-flowing Islais Creek and the associated riparian habitat, an extensive grassland with adjoining trees that supports breeding pairs of redtailed hawks and great horned owls, striking rock outcrops, and arid patches covered by "coastal scrub" plant communities. In all, about 63 acres of the park and hollow are designated as undeveloped Natural Area. Elevations in Glen Canyon Park range from approximately 225 feet above sea level at the south end of the park to 575 feet above sea level at the north end and along the east rim of the canyon; the walls of the canyon are extremely steep, with many slopes approaching a length-to-height ratio of 1:1. c. Historic Before the arrival of the Europeans, the native Ohlone people may have used Twin Peaks as a lookout or hunting ground. The ecological diversity of Twin Peaks provided medicinal or ceremonial plants, grains, and berries. When the Spanish conquistadors and settlers arrived at the beginning of the 18th century, they called the area "Los Pechos de la Chola" or "Breasts of the Indian Maiden" and devoted the area to ranching. When San Francisco passed under American control during the 19th century, it was renamed "Twin Peaks". Glen Canyon s history commences with Adolph Sutro's purchase in the 1850s of 76 acres of the canyon, which he named "Gum Tree Ranch" after the blue gum eucalyptus trees he had planted. In 1889, the Crocker Real Estate Company bought the canyon to develop a neighborhood that would attract homebuyers. O'Shaughnessy Boulevard currently defines the western perimeter of Glen Canyon Park. This street was built in 1935 using roadcuts and filled slopes on the canyon's steep slopes, and was San Francisco Recreation and Park Department 45

15 named after Michael O'Shaughnessy, who was for many years the Chief Engineer of the City. The recreation center at the south end of the park was built by the Works Progress Administration in An undeveloped, very steep area just west of O'Shaughnessy Boulevard was purchased by the City of San Francisco in the 1990s, and named O'Shaughnessy Hollow. d. Scenic At 922 feet in elevation, Twin Peaks offers spectacular views of the Bay Area, 9. Trail Plan and is a world-famous tourist attraction. The Peaks provide 360 degree postcard views of the entire Bay Area, truly an expansive view as far as the eye can see. Trails along the Glen Canyon walls and the new over-loop provide spectacular views of the canyon and Mount Davidson. Glen Canyon also has incredible spring wildflower displays, dramatic rock formations, and Islais Creek, one of only two remaining free-flowing creeks in San Francisco. The proposed project is consistent with several city planning documents: Significant Natural Resources Areas Management Plan (SNRAMP) The project is consistent with SNRAMP, adopted by the Recreation and Park Commission in 1995, which mandates the protection and enhancement of San Francisco s remnant landscapes; The Sustainability Plan for the City of San Francisco The proposed project is consistent with habitat restoration, erosion control, education, sign and trail development objectives, and actions in remnant natural areas as described in the Biodiversity Section of this plan; San Francisco General Plan The proposed project is consistent with the following policies as indicated in the City and County of San Francisco Recreation and Open Space Element: Policy 1 Protect the natural character of regional open spaces; Policy 2 Preserve existing public open space by increasing public San Francisco Recreation and Park Department 46

16 awareness and expanding the use of natural plant materials; Policy 9 Develop a citywide urban trails system that links city parks and public open space, hilltops, the waterfront and neighborhood, and ties into the regional hiking trail system. 10. Conservation Corps Involvement RPD staff has contacted the San Francisco Conservation Corp (SFCC) and provided them with an overview of the project as well as the required HCF forms. Due to staffing restraints, the site visit will not take place until October 9, after which time the required forms will be completed and returned to HCF offices. Based on preliminary conversations, it is expected that SFCC will not be able to participate on the project due to budgetary reasons. San Francisco Recreation and Park Department 47