B08_Attach_12_2001_EIS_GOGA.pdf

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The fundamental purpose ofall units of the National Park Service is to conserve the scenery and the natural and historic objects and the wildlife therein and io provide for the enjoyment of the same in such manner and by such means as will leave them unimpaired for the enjoyment of future generations.

--From National Park Service Organic Act, 1916, as amended 1988.

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_,_ Printed on recycled paper.

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FINAL ENVIRONMENTAL iMPACT STATEMENT

| LEAD AGENCY: National Park Service

PROJECTTITLE: Alcatraz Island Historic Preservation and Safety Construction Program PROJECTLOCATION:Golden Gate National Recreation Area==, I San Francisco County, California

This Final Environmental Impact Statement (FEIS) describes and analyzes three alternatives

I for a structural repair and stabilization program needed on Alcatraz Island, a unit of theNational Park System. The document includes additions and changes made to 'the Draft Environmental Impact Statement released to the public in March 2001 based on public

I comments and includes as an appendix responses to comments received. Consistent with theNational Environmental Policy Act (NEPA) of 1969, as amended and National Park Service NEPA Guideline (DO-12), a 30-day no-action period will follow the Environmental

I Protection Agency's Notice of Availability of the FEIS.

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The purpose of the proposed project is to protect the public health and safety of the more 1

I million people who visit Alcatraz each year, preserve the National Historic LandmarkDistrict, and to implement the needed repairs in a manner that minimizes impacts to biological resources. The National Park Ser,iice has developed and incorporated as part of i the proposed project, mitigation measures that will avoid or reduce the potentialenvironmental effects associated the construction and repair activities. The proposed project is a construction/repair program, and no long-term changes in the land use or operational practices on the Island would occur as a result of this action. This FEIS evaluates three

, alternatives:

1. Proposed Action - The Proposed Action is the Alcatraz Historic Preservation and Safety

I Construction which is of (Phase One and Program, comprised two primary phases

Subsequent Phases) and includes 10 individual repair/construction projects.

I 2. RedueedProjectAlternative-Thisalternativewouldpartiallyimplementtheneededrepairactivities identified under the Proposed Action. Repairs within areas that are currently open to the public would be implemented as described under the Proposed Action. In

I areas that are currently closed to visitors, only minimal repairs would be implemented.

3. No Action Alternative - Under this alternative, the National Park Service would manage

E. the site with minimal actions to protect resources and provide for visitor safety. Ongoing

I routine maintenance would occur; however, no major stabilization or repair activities would be implemented.

1 'Copies of this FEIS have been filed with the EPA and a notice of its availability published in the Federal Register. Additional copies of the FEIS are available for review at local libraries and can be ordered by contacting the National Park Service at:

I Golden Gate National Recreation Area

Planning & Technical Services

I Fort' Mason, Building 201San Francisco, CA 94123

(415) 561-4936

I a i i I I I i

I ALCATRAZ ISLAND HISTORIC PRESERVATION AND _ _._'_t 0

I SAFETY CONSTRUCTION PROGRAM EIS

I TABLE OF CONTENTS

t SUMMARY .......................................................................................... i ............................ S-1

1.0 INTRODUCTION .................................................................................................... 1-1

I 1.1 Background on Alcatraz .......................................................................................................... 1-11.1.1 Historic Significance ................................................................................................... 1-I

1.1.2 Wildlife Significance ................................................................................................... 1-5

I 1.1.3 National Park Service Management of Alcatraz Island ............................................... 1-61.2 Purpose and Need for Action ................................................................................................. 1-7

1.2.1 Project Objectives

i 1.3 Decisionto Prepare an EIS.............................................................................................. :....... I-9

1.3.1 Scope of EIS .............................................................................................................. 1-11

2.0 PROJECT DESCRIPTION ........................................................................................ 2-1

I 2.1 Action Alternative ................................................................................. .......................... 2-1 No

2.1.1 Dock ........................................................................................................................... 2-1

2.1.2 Building 64.................................................................................................................. 2-3==

• 2.1.3 Cellhouse .................................................................................................................... 2-3 I

2.1.4 Sallyport ..................................................................................................................... 2-4

2.1.5 Water Tower .................................................... [......................................................... 2-5

I 2.1.6 Slope Stabilization ...................................................................................................... 2-62.1.7 New Industries (Laundry) Building ............................................................................ 2-6 .. 2.1.8 Quartermaster Building .............................................................................................. 2-7

I 2.1.9 Fuel Line Remediation ............................................................................................... 2-72.2 Proposed Action ..................................................................................................................... 2-8

2.2.1 Phase One- Proposed Action .................................................................................... 2-9

I 2.2.2 Subsequent Phases - Proposed Action ...................................................................... 2-182.3 Reduced Project Alternative ................................................................................................. 2-24

2.4 Alternatives Considered but Removed from Further Evaluation in the EIS......................... 2-25 t 2.4.1 Close Island to Visitors During Construction .......................................................... 2-25 I 2.4.2 1993 Alcatraz Development Concept Plan (DCP) Mitigation Alternative ............... 2-26

2.5 Comparison of Environmental Consequences and Impairment Findings for

I All Alternatives ..................................................................................................................... 2-282.5.1 No Action Alternative ............................................................................................. 2-28

2.5.2 Proposed Action ....................................................................................................... 2-29

I 2.5.3 Reduced Project Alternative ..................................................................................... 2-302.6 Environmentally Preferred Alternative ................................................................................. 2-31

2.7 Mitigation Measures .................................... .......................................................................... 2-32

2.7.1 Biological Resources ................................................................................................. 2-32

2.7.2 Cultural Resources ................................................................................................... 2-42

2.7.3 Recreation and Visitor Use

i 2.7.4 Air Quality ........................... [................................................................................... 2-472.7.5 Hazardous Substances: Human Health, Safety, and the Environment ............... ...... 2-47

I OCTOBER2001 Ill TABLE OF CONTENTS

" --_' ALCATRAZ ISLAND HISTORIC PRESERVATION AND

_ SAFETY CONSTRUCTION PROGRAM E|S i

3.0 AFFECTED ENVIRONMENT ................................................................................. 3-1 I

3.1 Biological Resources ................................................................................................................ 3-1 8

3.1.1 Relevant Regulations .................................................................................................. 3-1

3.1.2 Vegetation And Wildlife ............................................................................................. 3-4 I

3.2 Cultural Resources ................................................................................................................ 3-34 |

3.2.1 Regulatory Setting .................................................................................................... 3-34

3.2.2 Significance of Alcatraz ............................................................................................. 3-35 i

3.2.3 Contributing Features of Alcatraz Island National Historic Landmark ................... 3-36 II

3.3 Recreation and Visitor Use .................................................................................................... 3-38

3.3.1 Visitor Use and Interpretation ............................ ::.................................................... 3-38 t

3.4 Air Quality ............................................................................................................................ 3-40 I

3.4.1 Regulatory Framework.....: ....................................................................................... 3-40

3.4.2 Air Quality Pollutants and Ambient Air Quality Standards .................................... 3-40 Ill

3.4.3 Existing Air Quality Conditions .............................................................................. 3.40 8

3.5 Hazardous Substances: Human Health, Safety, and the Environment .................................. 3-41

3.5.1 Hazardous Substances ............................................................................................... 3.41 I

3.5.2 Asbestos ...................................................................................................... _............. 3.41 •

3.5.3 Lead ........... :.............................................................................................................. 3-42 "

4.0 ENVIRONMENTAL CONSEQUENCES ................................................................. 4-1 !

4.1 Introduction ............................................................................................................................ 4-1 m

4.1.1 Chapter Format .......................................................................................................... 4-1 m

4.1.2 Cumulative Context ................................................................................................... 4-1 i

4.2 Biological Resources ................................................................................................................ 4-8 l

4.2.1 Methodology ........................................... ,................................................................... 4-8 ;,

4.2.2 Impact Analysis - Proposed Action .......................................................................... 4-10 I

4.2.3 Cumulative Impacts - Proposed Action ................................................................... 4-32

4.2.4 Reduced Project Alternative ..................................................................................... 4-36

4.2.5 No Action Alternative ............................................................................... _:............. 4-38 i

4.3 Cultural Resources ................................................................................................................ 4-39 I

4.3.1 Methodology ............................................................................................................ 4-39

4.3.2 Impact Analysis - Proposed Action .......................................................................... 4-40 I

4.3.3 Impact Analysis of Reduced Project Alternative ................................ ....................... 4-46 i

4.3.4 No Action Alternative .............................................................................................. 4.49

4.4 Recreation and Visitor Use .................................................................................................... 4-51 •

4.4.1 Impacts of the Proposed Action...... .......................................................................... 4-52 m

4.4.2 Reduced Project Alternative ..................................................................................... 4-57

4.4.3 No Action Alternative .............................................................................................. 4-59 •

4.5 Air Quality ............................................................................................................................ 4-61

4.5.1 Impact Analysis - Proposed Action .......................................................................... 4-61

4.5.2 Impact Analysis - Reduced Project Alternative ....................................... ................. 4-61 i

4.5.3 Impact Analysis - No Action Alternative ................................................................ 4-62

4.5.4 Conformity with State Implementation Plans ....................................... ;.................. 4-62

4.5.5 Cumulative Impacts .................................................................................................. 4-62 /i

4.6 Hazardous Substances: Human Health, Safety, and the Environment .................................. 4-64 m

4.6.1 Impact Analysis -Proposed Action ............................................................................ 4-64

4.6.2 Impact Analysis - Reduced Project Alternative ................................. ]...................... 4-65 i

TABLE OF CONTENTS IV OCTOBER2001 i t 4.6.3 Impact Analysis - No Action Alternative ................................................................ 4-65

I 4.6.4 Cumulative Impacts .................................................................................................. 4-65

- 5.0 SUSTAINABILITY AND LONG-TERM MANAGEMENT ...................................... 5-1

I 5.1 Relationship Between Local Short-Term Uses of the Environment and Long-Term Productivity ............................................................................................................................ 5-1 i 5.1.1 Proposed Action ......................................................................................................... 5-15.1.2 Reduced Project Alternative ....................................................................................... 5-1

5.1.3 No Action Alternative ............................................................................................... 5-1

5.2 Irreversible or Irretrievable Commitments of Resources ........................................................ 5-2

5.3 Unavoidable Impacts 5-2

6.0 CONSULTATION AND COORDINATION ..................... . .................................... 6-1

I 6.1 EIS Process and Public Review 6-16.1.1 Scoping...._ .................................................................................................................. 6-1

6.1.2 Consultation with Regulatory Agencies ............................ _........................................ 6-1

6.1.3 Coordination with Resource Organizations ............................................................... 6-26.1.4 Public Involvement .................................................................................................... 6-3

6.2 EIS Authors and Contributors ................................................................................................ 6-3

I 6.3 List of Those Entities Receiving the Final Environmental Impact Statement ......................... 6-5

7.0 REFERENCES ........................................................................................................... 7-1

APPENDICES

I A: Scoping Letters

B: Proposed Monitoring Program

I C: Noise Study Technical

D: DEIS Comment Letters and Response Table

I E: Dock Consultation Letters i LIST OF TABLES 2-1 Comparison of ConstructionActivitiesfor the Proposed Action and Reduced ProjectAlternative.................... 2-l 1 2-2 SummaryComparison of Impacts of Alternatives ............................................................................................... 2-49

',--' 3.1-1 WaterbirdNesting Seasons and Peak Sensitivity Periods on Alcatraz Island........................................................ 3-7 3.1-2 Central San Francisco Bay Essential Fish Habitat Species Occurrence at Alcatraz ............................ :............... 3-28 3.1-3 Special-Status Species Potentially Occurring in the Project Area ....................................................................... 3-29 i 3.3-1 Average Monthly Visitation on Alcatraz (1996-1999) ....................................................................................... 3-38 i OCTOBER2001 V TABLEOFCONTENTS o_ A'CATRAZ'S_.O",STO.,CPR_SE.VAT,O.A.O |

SAFETY CONSTRUCTION PROGRAM EIS

LIST OF FIGURES I

1-1 Regional Site Map .................................................................................................................................................. I-2

1-2 Project Locations on Alcatraz Island ..................................................................................................................... 1-3

2-1 Location of Project Sites, General Staging Areas & Potential Barge (off-load) Sites ........................................... 2-2 I 3.1-1 Brandt's Cormorant Nesting Subcolonies on Alcatraz Island .............................................................................. 3-10 3.1-2 Pelagic Cormorant Nesting Subcolonies on Alcatraz Island ................................................................................ 3-13

3.1-3 Snowy Egret Nesting Subcolonies on Alcatraz Island ......................................................................................... 3-16 I3.1-4 Black-crowned Nigh-heron Nesting Subcolonies on Alcatraz Island .................................................................. 3-18

3.1-5 Black Oystercatcher Nesting Subcolonies on Alcatraz Island ............................................................................. 3-21

3.1-6 Pigeon Guillemot Nesting Locations on Alcatraz Island ................................... _................................................. 3-25 !

4.2-1 Nesting Bird Colonies on Alcatraz Island ............................................................................................................ 4-13

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TABLE OF CONTENTS V_ OCTOBER2001 i i SAFETYCONSTRUCTIONPROGRAMEIS \_/

I LIST OF ACRONYMS

i ACM Asbestos Containing MaterialACOE Army Corps of Engineers

ACHP Advisory Council on Historic Preservation

I APE Area of Potential Effects BAAQMD Bay Area Air Quality Management District

BCDC S.F. Bay Conservation and Development Commission

I CEQ Council on Environmental Quality

CFR Code of Federal Regulations

I CMP Construction Management Plan DCP Alcatraz Development Concept Plan

EA Environmental Assessment

I EIS Environmental Impact Statement

ESA Endangered Species Act

FONSI Finding of No Significant ImpactGGNRA Golden Gate National Recreation Area

GMP General Management Plan

I GSA General Services Administration

HABS Historic American Buildings Survey

I LTMS Long Term Management Strategy (for the disposal of &edged material in S.F. Bay region) NEPA National Environmental Policy Act of 1969

NPS National Park Service i NHPA National Historic Preservation Act of 1966 NMFS National Marine Fisheries Service i NOI Notice of IntentNO2 nitrogen dioxide i NOx nitrogen oxidesNRHP National Register of Historic Places

PA Programmatic Agreement

PM10 inhalable particulate matterROD Record of Decision

ROG reactive organic gases

RWQCB Regional Water Quality Control Board

SHPO State Historic Preservation Officer

I SIP State Implementation PlanUSACE U.S. Army Corps of Engineers

VERP Visitor Experience and Resource Protection i OCTOBER2001 Vll TABLEOF CONTENTS

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I l I l l I I I l i I l I I

ALCATRAZ ISLAND HISTORIC PRESERVATION AND _, _5"

i SAF_ CONStRUCTiONPROGRAmEIS _',_)

I SUMMARY

This Environmental Impact Statement (EIS) evaluates the environmental effects of the proposed Alcatraz i Historic Preservation and Safety Construction (the "Proposed Action"). The National Park Program

Service is the project proponent and Lead Agency for the project. This EIS has been prepared in accordance with the requirements of the National Environmental Policy Act (NEPA), National Park

I Service NEPA Guidelines (DO-12), and NPS Management Policies 2001.

The purpose of the Proposed Action is to protect human health and safety, stabilize deteriorating historic

I structures to protect the National Historic Landmark, and implement these needed repairs in a mannerthat minimizes adverse biological effects. The repairs include replacement of badly deteriorated piles underneath the dock (the only access point to the Island), seismic retrofit of the Cellhouse (the primary i visitor attraction on the Island), repair/stabilization of other historic structures to provide for public safetyand historic preservation. No changes in the land use or long-term operation of the Island would occur as a result of the Proposed Action-- the project is a construction program addressing critically needed repairs

I on the island and is consistent with the appropriate management plan for the Island.

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Project Overview

I Three alternatives are evaluated in this EIS: the Proposed Action, the Reduced Project Alternative, and the No Action Alternative. Each of these alternatives is summarized below and described in detail in i Chapter 2.

The Proposed Action consists of 10 repair/construction projects that would be implemented in tyro phases; Phase One and a Subsequent Phase. The National Park Service proposes to implement the needed

I repair/construction projects adaptive approach that will field monitors to using an management use enhance the mitigation measures identified in Chapter 2. Phase One projects would be implemented and monitored, and the information gained through this monitoring would be used to refine arid improve

I implementation for both ongoing and subsequent projects of the Proposed Action (Refer to Appendix B for additional information on monitoring). The following is a list of the projects included in the Proposed.

Action (see Chapter 2 for detail).

Phase One:

i _ Dock Repair;Building 64 (Balconies Repair);

Cellhouse Stabilization and Seismic Upgrade; and i _" Sallyport Structural Repair and Seismic Upgrade.

Subsequent Phases:

_ Water Tower Stabilization;

Slope Stabilization;

New Industries (Laundry) Building Stabilization and Seismic Upgrade;

I _" Building 64 (Seismic Upgrade);

Quartermaster Building Stabilization and Seismic Upgrade; and Fuel Line Remediation.

I OCTOBER 2001 S-1 SUMMARY

_ ALCATRAZ ISLAND HISTORIC PRESERVATION AND

SAFETY CONSTRUCTION PROGRAM EIS I

The National Park Service has identified a variety of mitigation measures to avoid or minimize the effects • of the proposed construction/repair activities. These measures, along with the adaptive management approach to implementing the Proposed Action, will allow the park to achieve the most effective balance of resource protection and preservation, while providing safe public access to Alcatraz. B n

The Reduced Project Alternative would implement many of the safety and historic preservation actions identified under the Proposed Action. The repair and stabilization of three structures (the Water Tower, m the New Industries Building, and the Quartermaster Building) on the north end of Alcatraz Island, located l in or near a biologically sensitive area, however, would be minimal. The objective of this alternative is to reduce biological impacts, while providing for basic human health and safety and limited cultural resource stabilization. I

Under the No Action Alternative, none of the proposed construction activities identified in the Alcatraz

Historic Preservation and Safety Construction Program would be implemented. Minimal maintenance of • the Island's cultural resources would occur, and current vegetation and wildlife management practices

I would continue. Threats to public health and safety would occur, leading to the closure of affected areas on the Island, and eventually precluding public, access to the Island. I

Environmental Consequences am

IMPACTS ON BIOLOGICAL RESOURCES I

Alcatraz Island supports a diverse group of plants and animals. In general, Alcatraz Island consists of • grassland, shrubs, historic gardens, non-native trees, cliffs and other barren areas, and historic buildings and paved areas. The landscape vegetation consists of a diverse group of non-native ornamental shrubs and trees, and is considered part of the cultural resource on the Island. These provide most of the vegetative • structure and habitat for wildlife on the Island.

Alcatraz Island has become a valuable natural habitat for colonial waterbirds due to its favorable currents m and nearshore foraging areas. The Island supports the most diverse assemblage of marine and estuarine I colonial nesting waterbirds in San Francisco Bay, an important wildlife resource within the Golden Gate National Recreation Area, and as many as 4,500 adults and chicks of seven different colonial nesting species inhabit the Island during the nesting season each year. During much of the year, waterbirds •may are the most common wildlife_species on Alcatraz Island. Although these species are not afforded special status by state or federal agencies, the waterbirds are protected under the Migratory Bird Treaty Act, are of --ram interest in the San Francisco Bay area, and are addressed in this EIS. In addition to colonial waterbirds, several other bird species have been documented as breeding on the Island. The Alcatraz Bird Census m

(ABC) has been conducted yearly since 1993 to document birds using the Island during the fall and winter mm months.

Eighty-nine species were identified during censuses conducted.from September 1998 to January I1999. ..

In addition to birds, several other species are found on Alcatraz Island, including deer mouse (Peromysc_s • maniculatus), California slender salamander (Batracbosepsat_enua_us),Norway ra_ (Ra_tus norvegicus), and bat species. Seals and sea lions haul out in small numbers on or near Alcatraz.

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Implementation of the proposed repair/construction activities would impact biological resources. As I described in Chapter 4 and Section 2.7, many of these effects would be minimized or avoided through mitigation. Although the impact of the Proposed Action would be reduced to a minor level for most I, SUMMARY S-2 OCTOBER 2001 Im

ALCATRAZ ISLAND HiSTORiC PRESERVATION AND _,q_'/ species of plants and animals, there would be a greater impact on the eight species of breeding waterbirds

I that nest on the Island.

The impact analysis relied on a variety of sources, including professional judgment and knowledge of the

I Island's nesting birds (see Section 4.2.1). The analysis of the Proposed Action concluded that the impact impact on breeding waterbirds would vary by project location. The most substantial effects would include increased predation, potential reduction in the reproductive success of a particular species/subcolony, and

I in the most extreme cases possibly the or long-term abandonment of individual subcolonies.

temporary

No colony abandonment (i.e., an entire population of an individual species of birds nesting on Alcatraz) and no impairment of biological resources would occur as a result of the Proposed Action. The National i Park Service would employ a variety of protective measures and use of adaptive management to ensure theintensity and duration of the impact is reduced wherever feasible. If through ongoing monitoring, it is determined that additional impacts (beyond those disclosed in this EIS) occur, the National Park Service i would take corrective actions to reduce the level of impact to at or below the level described in the EIS.

The biological impact of the Reduced Project Alternative construction/repair activities in areas currently

I open to the public would be the same as the Proposed Action. This alternative proposes minimalconstruction activity in areas currently closed to the public and is mostly limited to the non-breeding season. The reduced level of construction repair would similarly reduce the intensity of the impact on

I nesting wildlife. However, eventual failure of structures during the breeding season could directly impactbreeding birds in the vicinity of the failure. The Reduced Project Alternative would have less impacts to waterbirds than the Proposed Action, yet neither would result in impairment to natural resource values.

I No Alternative, biological impacts the proposed repair/construction Under the Action associatedwith activities would not occur. However, failure of structures during the breeding season could directly impact breeding birds in the vicinity of the failure.

I IMPACTSON CULTURAL RESOURCES

I Alcatraz Island Was included as a unit of the Golden Gate National Recreation Area in 1972 because of itshistorical significance. Alcatraz is of special importance to the history of the military, including the United States Coast Guard, the federal penal system, Native American rights movement, arid the evolution of the National Park Service (NPS, 1993). Please refer to Section 1.1 for additional informationon Alcatraz's historic significance.

m The Proposed Action includes 10 individual repair projects requiring, in total, approximately five years tocomplete. The Proposed Action would correct serious public health and safety threats, including structural failure due to deterioration and/or seismic activity, spalling concrete and other hazards, and i stabilize the historic structures contributing to the National Historic Landmark District. The ProposedAction would have a substantial, tong-term, beneficial effect on cultural resources by stabilizing historic structures protecting the resource from impairment.

I Under the Reduced Alternative, the three minimal include the Water Project structures receiving repairs

Tower, New Industries Laundry Building, and Quartermaster Building. These structures are contributing features of the Alcatraz Island National Historic Landmark District and prominent landmarks on the

I north end of the Island. Without the rehabilitation, these structures will eventually fail and be necessary lost permanently. Other structures contributing to the landmark designation within this area are in similar deteriorated condition. Because the north end of Alcatraz can be closed to visitation if safety

I OCTOBER2001 S-3 SUMMARY

.... ALCATRAZ ISLAND HISTORIC PRESERVATION AND

_j/ SAFETY CONSTRUCTION PROGRAM EIS factors require it, a decision to consider only minimal safety projects for the three structures could possibly • result in a similar loss of the associated contributing historic resources in the area. The lo_s of Water I Tower including the Indian Occupation graffiti, the New Industries Laundry Building, the Quatermaster Building and possible loss of other contributing resources on the north end of the Island would lessen the II integrity of the Alcatraz Island National Historic Landmark. The Reduced Project Alternative would l have major adverse impacts on cultural resources. The cumulative loss of these cultural resources, located on the north end of the AlcatraZ, resulting in the loss of the National Historic Landmark status, and m considered impairment of the cultural resource values on Alcatraz. 8 Under the No Action Alternative, deterioration of the Island's cultural resources would continue, with /I only routine maintenance and repairs to ensure structural safety. No preservation, rehabilitation, I restoration or other management program would be implemented, and adverse effects on cultural resources would occur. The impacts would include the irreparable deterioration of the National Historic m Landmark and loss of the National Historic Landmark Status. The effects on cultural resources would be • greater than those expected under the Reduced Project Alternative or the Proposed Action. The I= cumulative effect of this benign neglect would be the deterioration of buiid_ngs and structures so that there I would be an overall loss of integrity to the Alcatraz Island National Historic Landmark and eventually • loss of the designation, and the permanent loss of an important historic resource for the nation. This irreparable damage would constitute impairment of the cultural resources and cultural resource values on

Alcatraz. I iMPACTS ON VISITOR" USE

Alcatraz Island became part of the Golden Gate National Recreation Area in 1972. Since that time, it has I become an increasingly popular destination for visitors to the park. Today, over one million people visit

Alcatraz each year. The Island offers a variety of trails, programs, and exhibits that interpret the Island's • history and natural resources, while allowing visitors to explore Alcatraz at their own pace.

As a result of the Proposed Action, temporary recreation and visitor use impacts, including increased noise l and visual intrusion of construction, would occur as a result of the proposed repair/construction activities. I Following implementation, the Proposed Action would result in long-term major beneficial effect on the recreational and visitor use values on Alcatraz. The beneficial effect would result from the repair of m critical health and safety hazards, allowing the Island to remain open for the visitor use, interpretation, I and enjoyment by future generations.

Over the long term, the Reduced Project Alternative would have an adverse impact on the recreational i and visitor use values on the Island. The impact would include the eventual loss of three important

I historic structures and corresponding reduction in the interpretive values and historic integrity of the

Island. The loss of the Laundry Building could adversely effect future visitor access to the north side and I lead to a greater potential for impairment of the resources and values that established the Alcatraz Island National Historic Landmark.

m

In the short term, the recreational values and visitor experiefice would be the same as existing with the No I Action Alternative. The construction effects (noise and visual intrusion of construction activities) would be avoided. In the long term, escalating public health and safety concerns would lead to closure of • individual buildings and subsequently closure of the entire Island to the visiting public when the Dock is I deemed unsafe for public use, causing a major, adverse impact on recreation and visitor use. The precise timing of the closure(s) that would occur under the No Action Alternative would depend on the rate of I

SUMMARY S-4 OCTOBER 200'i •

ALCATRAZ iSLAND HISTORtC PR_=SERVATION AND _' i SAFETYCONSTRUCTIONPROGRAMEIS '_ i deterioration and the ability of small-scale repair activities/routine maintenance activities to temporarilydefer closure activities. Closure of the Island to the visiting public, however, would be inevitable under the No Action Alternative. The permanent closure of Alcatraz would be an impairment of the recreational and public use values of the Island.

I IMPACTSONAIR QUALITY

I Alcatraz Island is located within Sin Francisco Bay Area Air Basin, consisting of San Francisco, SanMateo, Santa Clara, Alameda, Contra Costa, Napa, and Marin counties, as well as portions of Sonoma and Solano counties. The Island is located within San Francisco County, designated a federal nonattainment

I area for ozone and a state nonattainment area for ozone and particulate matter (PM_0). In general,Alcatraz's location allows for excellent air circulation, with very high quality air moving into the area from the Pacific Ocean. One of the primary sources of air pollution in the Bay Area region is automobile

I traffic-- which is negligible on AlcatraZ Island (i.e., an electric tram provides access for visitors, and onesmall truck is located on the Island).

I Construction emissions associated with the Proposed Action would have minor, short-term, adverseeffects with mitigation. Reduction in overall duration of the construction program associated with the

Reduced Project Alternative would result in slightly less impacts to air quality compared to the Proposed

Action. The No Action Alternative would result in eventual closure of the Island as a result of buildingand structure deterioration. This closure would decrease energy generation and maintenance activities, resulting in minor, beneficial impacts to air quality.

I IMPACTSASSOCIATED HAZARDOUS HUMAN SAFETY, AND THE

WITH SUBSTANCES: HEALTH,

ENVIRONMENT

I Construction activities associated with the Proposed Action have the potential to haZardous expose substances. Because structures on the Island were constructed prior to the banning of commercial use of lead-based paint and asbestos production, buildings and structures are assumed to contain these hazardous

I substances until otherwise. The extent of hazardous substances such as asbestos and lead-based proven paint that will be disturbed during rehabilitation and construction activities under the action alternatives will be determined prior to construction. The GGNRA will conduct surveys and sampling to identify, I characterize, and quantify the nature the hazardous substances present in work areas and the extent that these materials will be disturbed by construction activity. Construction contracts for this project will include procedures for the sampling, identification, and cleanup of hazardous substances in accordance

I with applicable state and federal regulations. Construction activities and cleanup plans will conform toapplicable federal and state laws and regulations.

I Risks to human health, safety and the environment on Alcatraz Island would be related to releases ofhazardous substances during construction activities to rehabilitate and stabilize deteriorating structures on the Island. The impacts associated with the Proposed Action would be short-term and negligible to minor

I with the implementation of mitigation measures. The shorter duration of the Reduced Project Alternativecompared to the "Proposed Action would result in slightly less potential impact from exposure of hazardous substances. Under both action alternatives, hazardous waste disposal and hazardous material i storage would be conducted within applicable state and federal regulations; therefore, no adverse impactswould be anticipated. The No Action Alternative would lead to the closure of Alcatraz to the public and resulting in a reduced potential for exposure from construction activities. However, building decay may i lead to uncontrolled releases of substances that are undetected.

i OCTOBER2001 S"-5 SUMMARY

,_ ALCATRAZISLANDHISTORICPRESERVATIONAND

SAFETYCONSTRUCTIONPROGRAMEIS i

Areas of Controversy i The primary area of controversy surrounding the Proposed Action is disturbance to breeding waterbird populations on the Island. Although these species are not given special status designation, they are '1protected by the Migratory Bird Treaty Act and represent a regionally important part of the San Francisco Bay waterbird population. Alcatraz has also been included in the Central California Coast International

Biosphere Reserve. Potential impact to breeding waterbirds was identified early in the planning process as ian issue of concern, and contributed to the National Park Service's decision to prepare an Environmental

Impact Statement and generate extensive mitigation for the protection of waterbirds (Section 2.7).

Protection of visitor and employee health and safety and preservation of the National Historic Landmark IDistrict and contributing features consistent with the requirements of the National Historic Preservation Act are also issues of substantial concern and are the stated purpose of the Proposed Action.

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SUMMARY S-6 OCTOBER 2001 I

I I I I I I I I i

| CHAPTER 1: INTRODUCTION

I

I I I I I I I I I

I I I I I I l

ALCATRAZ ISLAND HISTORIC PRESERVATION AND "_'

I 1.0 INTRODUCTION

This Environmental Impact Statement (EIS) has been prepared for the proposed Historic Preservation

I and Safety Construction Program for Alcatraz Island in accordance with the National Environmental Policy Act (NEPA) and National Park Service NEPA Guidelines (NPS-12). The National Park Service is the project proponent and Lead Agency under NEPA.

I The historic preservation and safety construction program, herein referred to as the "Proposed Action," is necessary to provide for the safety of the more than 1 million annual visitors on the Island, and to stabilize

I the severely deteriorating historic structures that are part of a National Historic Landmark District,consistent with requirements of the National Historic Preservation Act.

i This chapter addresses the following topics:

> Background on Alcatraz i • Historic Significance• Wildlife Significance

• National Park Service Management of Alcatraz Island

I _ & Need for Action Purpose

• Project Objectives

I _ Decision to Prepare an EIS

• Scope of EIS

1.1 Background on Alcatraz

Alcatraz Island is a 22-acre island in San Francisco Bay that was transferred to the National Park Service

I (NPS) in 1972 and opefled to the public the following year. The Island is part of the Golden GateNational Recreation Area (GGNRA), a unit of the National Park System (see Figure 1-1). Alcatraz has important historic and natural resources values, as discussed below, and more than 1 rfftUion national and

I international visitors come to the Island each year. Figure 1-2 presents project locations on AlcatrazIsland.

I 1.1.1 HISTORICSIGNIFICANCE

Alcatraz was included in the Golden Gate National Recreation Area primarily because of its historic i significance. The Island's rich and diverse history was recognized in 1986 when the Island was designatedon the National Register of Historic Places as a National Historic Landmark. Evidence of the various historical layers can still be observed on the Island today. The earliest layers of construction on the Island began shortly after California was ceded from Mexico to the United States. The Island was reshaped at

I that time to become a major component of the Civil War-era fortifications that protected San Francisco Bay from potential attacks. Many of the gun emplacements, including the original citadel that was located on the top of the Island, currently serve as the foundations for later Island structures.

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I OC'rOBEP,2001 1-1 iNTRODUCTION

_ ALCATRAZ ISLAND HISTORIC PRESERVATION AND 0

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I I I I I I I I I I I I I I

ALCATRAZ ISLAND HISTORIC PRESERVATION AND _ _"_

I SAFETYCONS1RUCTIONPROGRAME|S Q'_y i Shortly after the Civil War, the use of the Island changed from military fortification to military prison.Starting with only a few cells, the Island soon became the major military prison for the Department of War. The Main Cell Block still existing on the Island was actually constructed as a military prison in 1911 before it was turned over to the Federal Penitentiary system in the early 1930s. The history of Alcatraz as

I a maximum security penitentiary is perhaps the most recognized historic theme of the Island.

The "Rock" as portrayed in numerous movies and television shows is now a symbol recognized throughout the world.

The Island was host to some of the most notorious prisoners in the country from 1933 through 1963 when

I it closed.

finally

The last important layer of history on Alcatraz Island has only recently been recognized. The Indian

I Occupation of Alcatraz Island from 1969 though 1971 was an event that awakened the country to theneeds and concerns of indigenous peoples. Although the occupation lasted only eighteen months, it is recognized now as one of the primary catalysts for the Native American civil rights movement in the

I United States.

Elements of all the layers of history that occurred on Alcatraz are still visible throughout the Island.

I These important elements, the contributors to the Island's National Historic Landmark designation, mustbe preserved and protected by the NPS as the responsible federal agency.

i 1.1.2 WILDLIFE SIGNIFICANCE The entire Golden Gate National Recreation Area, including Alcatraz Island, is included within the Central California Coast International Biosphere Reserve. Alcatraz Island has become a valuable natural

I habitat for colonial waterbirds due its favorable and nearshore The evolution of to currents foraging areas.

the Island's landscape of crumbling ruins and abandoned, overgrown gardens has also fostered the recent increase in diversity and abundance of colonial waterbirds. Today, the Island supports the most diverse

I assemblage of marine and estuarine colonial nesting waterbirds in San Francisco Bay, and some of the most significant wildlife resources within the Golden Gate National Recreation Area. The colonial waterbirds of Alcatraz are regionally significant, and as many as 4,500 adults and chicks of seven different colonial

I nesting species may inhabit the Island during the nesting season each year.

The Island's black-crowned night-heron colony is one of the largest in the greater San Francisco Bay

I region. The Island supports significant colonies of pigeon guillemots and Brandt's and pelagic cormorantsthat usually breed along the outer coast and on offshore islands. The western gull colony is the largest in San Francisco Bay and represents a significant portion of its in-Bay breeding population. Colonial nesting

I waterbirds are often considered important biological monitors of the health of estuarine ecosystems, asthey are high in the food web and may reflect contaminati6n in a variety of ecosystem components.

Alcatraz is the only San Francisco Bay island with large waterbird breeding colonies that is open to the

I public.

Although only night-herons and western gulls were known to nest on the Island and in much smaller i numbers when the park's General Management Plan (GMP) was completed in 1980, the GMP called forprotection of the Island's rocky cliffs and shoreline for wildlife resources (birds and marine organisms).

The emphasis of the development concepts in the 1980 GMP was on historic preservation and visitor

.access. The Alcatraz Island Development Concept Plan (DCP), approved in 1993, amended the 1980

I GMP placed emphasis on protection of Alcatraz wildlife resources (see Section 1.1.3, below, and additional for additional information on National Park Service management of the Island). A dramatic increase in the abundance and diversity of colonial breeding birds followed the 1993 approval of the DCP, probably

I OCTOBER2001 1-5 INTRODUCTION

A'CAT'Z'SUNO",STO..OPRESE.V.T,O.A.O |

SAFETY CONSTRUCTION PROGRAM EIS

in response to abundant food resources in San Francisco Bay, and evolution of the Island's landscape m vegetation.

1.1.3 NATIONAL PARK SERVICE MANAGEMENTOFALCATRAZ ISLAND I

At the time Alcatraz became part of the National Park System, the Island was in a severe state of disrepair, having experienced substantial deterioration prior to as well as damage during the Native American Occupation of 1969-1971 and the subsequent demolition work of the General Services Administration. A B significant lack of funding during the intervening years prevented the National Park Service from performing the large-scale preservation, rehabilitation, and restoration projects that are essential to m preserving the National Historic Landmark resource and providing a minimum level of human safety on • the Island. Most historic structures on the Island were open and vulnerable to further deterioration from the elements. During these years, deterioration by wind, rain, and the marine environment have continued to erode the integrity of the historic resource and create public health and safety concerns • requiring that large areas remain closed to the visiting public. However, the benign neglect of the historic w resource coupled with the limited access and improved protection has resulted in the Island's evolution m into a major waterbird nesting site. In areas that remain closed because of safety concerns, funding • constraints, or wildlife protection, wildlife habitat has developed, often in association with overgrown historic gardens. Alcatraz Island currently provides significant bird habitat.

National Park Service plans relevant to the Proposed Action are discussed below. I

The Golden Gate GeneralManagement Plan (GMP) for the Golden Gate National Recreation Area and • Point Reyes National Seashore was the result of a six-year planning effort that began in 1974. The GMP was approved in 1980, and identified the long-term planning goals and land uses for all lands within the Golden Gate National Recreation Area and Point Reyes National Seashore. For Alcatraz Island, the GMP indicated that "From a strict resource management viewpoint, historic preservation will be the primary | concern." At the time the GMP was prepared, the rocky cliffs and shoreline areas of the Island were also noted as important habitat for birds and marine organisms, and as such were designated to remain 8 untouched.