South Field Airport Traffic Control Tower Demolition - Port of Oakland

302 Pages·2013·6.93 MB·English

oakland international airport
South Field Airport Traffic
Control Tower Demolition
Draft EnvironMEntal iMpact rEport
prEparED for:
port of oakland
prEparED by:
March 2013

OAKLAND INTERNATIONAL AIRPORT MARCH 2013
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Table of Contents
1. Introduction and Executive Summary .................................................................... 1-1
1.1 Purpose of the Draft EIR ............................................................................... 1-2
1.2 Summary of the Proposed Project .............................................................. 1-3
1.3 Relationship to Existing Plans and Documents ......................................... 1-4
1.4 Organization of this Draft EIR ...................................................................... 1-4
1.5 Summary of Environmental Impacts ........................................................... 1-6
1.5.1 Project Alternatives ................................................................................................... 1-7
1.5.2 Mitigation Measures ................................................................................................. 1-7
1.6 Areas of Known Controversy and Issues to be Resolved .......................... 1-8
2. Description of the Proposed Project ...................................................................... 2-1
2.1 Background .................................................................................................... 2-1
2.2 Project Objective ........................................................................................... 2-2
2.3 Project Location ............................................................................................. 2-2
2.4 Project Characteristics ................................................................................ 2-11
2.5 Intended Uses of This Draft EIR ................................................................. 2-17
3. Project Setting .......................................................................................................... 3-1
3.1 Land Use Setting ............................................................................................ 3-1
3.2 Environmental Setting .................................................................................. 3-2
3.3 Development Setting .................................................................................... 3-4
4. Environmental Impacts ............................................................................................ 4-1
4.1 Aesthetics ....................................................................................................... 4-1
4.1.1 Methodology ............................................................................................................... 4-1
4.1.2 Existing Conditions .................................................................................................... 4-3
4.1.3 CEQA Thresholds of Significance ........................................................................ 4-4
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4.1.4 Impact Analysis ........................................................................................................... 4-4
4.2 Cultural Resources ......................................................................................... 4-9
4.2.1 Methodology ............................................................................................................... 4-9
4.2.2 Existing Conditions ................................................................................................. 4-10
4.2.3 CEQA Thresholds of Significance ..................................................................... 4-24
4.2.4 Impact Analysis ........................................................................................................ 4-25
4.2.5 Mitigation Measures .............................................................................................. 4-25
4.2.6 Level of Significance after Mitigation ............................................................. 4-26
5. Alternatives to the Proposed Project ..................................................................... 5-1
5.1 “No Project” Alternative ............................................................................... 5-2
5.2 Renovating the South Field ATCT................................................................ 5-2
6. Public Involvement ................................................................................................... 6-1
7. List of Preparers ........................................................................................................ 7-1
7.1.1 Lead Agency ................................................................................................................. 7-1
7.1.2 Draft EIR Preparation ................................................................................................ 7-1
8. References ................................................................................................................. 8-1
9. List of Acronyms ....................................................................................................... 9-1

List of Appendices
Appendix A: Notice of Preparation and Initial Study Checklist
Appendix B: Cultural Resources Assessment
Appendix C: Mitigation Monitoring and Reporting Program

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List of Tables
Table 3-1 Past, Present, and Reasonably Foreseeable Projects ................................................. 3-4
Table 4-1 Description and Current Use of South Field ATCT Floors .................................... 4-17
Table 4-2 Terminal 1 Complex History and Modifications ....................................................... 4-18
Table 4-3 Criterion for Eligibility under CRHR ............................................................................... 4-24

List of Exhibits
Exhibit 2-1 Location Map ............................................................................................................................. 2-3
Exhibit 2-2 Project Vicinity Map ................................................................................................................ 2-7
Exhibit 2-3 Terminal 1 Complex ................................................................................................................ 2-9
Exhibit 2-4 Design Drawing of Terminal 1 and the South Field ATCT (West Section) ..... 2-13
Exhibit 2-5 Photo of the South Field ATCT (Floors 3 to 10) from the Terminal 1
Roofline ..................................................................................................................................... 2-15
Exhibit 4-1: South Field ATCT, View 1,720 feet from South Field ATCT ....................................... 4-7

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1. Introduction and Executive Summary
Consistent with the California Environmental Quality Act (CEQA, Public Resources Code
§21000 et seq.) and the CEQA Guidelines (California Code of Regulations [CCR] Title 14,
§15000 et seq.), this Draft Environmental Impact Report (Draft EIR) evaluates the
environmental effects of demolishing floors 3 through 10 of the South Field Airport Traffic
Control Tower (ATCT) at Oakland International Airport (OAK or Airport) (the Proposed
Project). This Draft EIR has been prepared by the Port of Oakland (the Port), the owner and
operator of OAK, as the lead agency in conformance with the requirements of CEQA.
An Initial Study Checklist was prepared in December 2012 which identified the resource
areas that could be subject to significant impacts from the Proposed Project and that would
require incorporation of mitigation measures where feasible. Based on a preliminary review
of the project site and in consideration of the demolition activities associated with the
Proposed Project, the Port determined that potentially significant effects may occur to
aesthetics and cultural resources, because the South Field ATCT is eligible for listing on the
National Register of Historic Places (NRHP) and the California Register of Historical
Resources (CRHR). As a result, these resources are evaluated further in the Draft EIR.
The Port determined that impacts related to hazards and hazardous wastes would be less
than significant with mitigation incorporated. Proposed Project impacts related to air
quality, greenhouse gas emissions, noise, transportation/traffic, utilities and service systems,
and cumulative impacts would be less than significant. The Proposed Project would have
no impact on agricultural and forestry resources, biological resources, geology and soils,
hydrology and water quality, land use and planning, mineral resources, population and
housing, public services, or recreation.
Federal, State, regional, and local agencies, as well as the public were afforded an
opportunity to comment on the findings of the Initial Study Checklist through the 30-day
scoping period (December 19, 2012 to January 21, 2013) associated with circulation of the
Notice of Preparation (NOP) for this Draft EIR. A public scoping workshop was held on
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January 7, 2013. No areas of controversy were identified and no comments were received
during the agency and public review period. Therefore, only aesthetics and cultural
resources are evaluated further.
1.1 Purpose of the Draft EIR
Since the Initial Study Checklist determined that the Proposed Project may have a
significant effect on the environment, CEQA Guidelines require the preparation of this Draft
EIR. The Port has undertaken this Draft EIR for the following purposes:
 To evaluate the potentially significant environmental effects (aesthetics and cultural
resources) associated with the implementation of the Proposed Project, as required
by CEQA;
 To indicate the manner in which those significant environmental effects can be
avoided or significantly lessened;
 To identify any significant and unavoidable adverse impacts that cannot be
mitigated;
 To identify reasonable and feasible alternatives to the Proposed Project that would
eliminate any significant adverse environmental effects or reduce the impacts to less-
than-significant levels;
 To inform the general public, the local community, and responsible trustee, State,
and federal agencies of the nature of the Proposed Project, its potentially significant
environmental effects, feasible mitigation measures to mitigate those effects, and
reasonable and feasible alternatives; and
 To enable the Board of Port Commissioners and other Port decision-makers to
consider the environmental consequences of the Proposed Project and make
findings regarding each significant effect that is identified.
According to CEQA Statute and Guidelines, public agencies must avoid or substantially
lessen significant environmental impacts where feasible. Where impacts cannot be
mitigated to less-than-significant levels, public agencies have an obligation to balance the
project’s significant impacts on the environment against other factors, including economic,
social, technological, legal, and other benefits.
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The Port must certify the Draft EIR before approving the Proposed Project. Upon
certification, the Draft EIR will serve as a basis for decisions on implementation of the
Proposed Project.
This Draft EIR was prepared in accordance with Section 15151 of the CEQA Guidelines,
which defines the standards for EIR adequacy as follows:
An EIR should be prepared with a sufficient degree of analysis to provide decision
makers with information which enables them to make a decision which intelligently
takes account of environmental consequences. An evaluation of the environmental
effects of a proposed project need not be exhaustive, but the sufficiency of an EIR is
to be reviewed in the light of what is reasonably feasible. Disagreement among
experts does not make an EIR inadequate, but the EIR should summarize the main
points of disagreement among the experts. The courts have looked not for
perfection but for adequacy, completeness, and good faith effort at full disclosure.
1.2 Summary of the Proposed Project
The U.S. Department of Transportation, Federal Aviation Administration (FAA), has
constructed a new 236-foot ATCT (new ATCT) and 14,700 square-foot base building at
OAK1, which is scheduled to be operational in summer 2013. After opening, all Airport
traffic control functions will be consolidated in the new tower, making the South Field ATCT
obsolete. Engineering studies concluded that the South Field ATCT at OAK does not meet
current seismic and building code standards and poses a life safety hazard in the event of a
major seismic event. The Port estimates that the upgrades required for the renovation of
the South Field ATCT, which is structurally integrated with Terminal 1, to meet current
seismic and building code standards would significantly impact the integrity of the building
and usable space, and would be cost prohibitive. Therefore, the Port has determined that
floors 3 through 10 (which extend above Terminal 1) of the South Field ATCT should be
demolished.

1 U.S. Department of Transportation, Federal Aviation Administration, Replace Airport Traffic Control Tower (ATCT) and Establish Base
Building, Oakland International Airport, Plan Set, April 14, 2010.
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1.3 Relationship to Existing Plans and Documents
The renovation of Terminal 1 was examined and approved as part of CEQA2 and National
Environmental Policy Act (NEPA)3 documents prepared for the Airport Development
Program (ADP) at OAK. The ADP incorporates various Airport improvement projects
intended to accommodate future growth in passenger and aviation-related activities.
In compliance with NEPA, the FAA prepared an Environmental Assessment (EA) to examine
the construction of a new ATCT to consolidate North and South Field Airport traffic control
operations in one ATCT, increase operational and regional air traffic management
efficiencies, and reduce ATCT facility maintenance requirements. A Finding of No
Significant Impact/Record of Decision was issued for the Final Environmental Assessment in
April 2002.4
These documents did not evaluate impacts associated with the demolition of the South
Field ATCT. Since there is no federal action, only compliance with CEQA is required.
1.4 Organization of this Draft EIR
Following the preparation and content guidance provided in CEQA Statutes and Guidelines,
this Draft EIR contains the following sections:
 Section 1: Introduction and Executive Summary – Summarizes the components of
the Proposed Project, the relationship of the project to existing OAK plans and

2 Port of Oakland. Final Environmental Impact Report, Proposed Airport Development Program, Metropolitan Oakland International Airport,
Oakland, Alameda County, California, December 1997.
Port of Oakland. Draft Supplemental Environmental Impact Report, Proposed Airport Development Program, Metropolitan Oakland
International Airport, Oakland, Alameda County, California, March 1999.
ESA. Draft Oakland International Airport – Airport Development Program (ADP), Supplemental Impact Environmental Report, SCH No.
1994113039, September 2003.
3 U.S. Department of Transportation, Federal Aviation Administration. Revised Draft Environmental Impact Statement – Proposed Airport
Development Program, Oakland International Airport, Oakland, Alameda County, California, Volume 1 to 3, September 2000.
4 U.S. Department of Transportation, Federal Aviation Administration, Western-Pacific Region. Finding of No Significant Impact/Record of
Decision for the Construction and Operation of a New Airport Traffic Control Tower (ATCT) at Oakland International Airport, April 2002.
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