HomeMy WebLinkAboutMINUTES - 07241990 - 2.5 a. s
To: BOARD OF SUPERVISORS �`t. ' Contra
FROM: Harvey E. Bragdon r Costa
Director of Community Development
.. .•• J county
DATE: July 18, 1990
SUBJECT: Certification of Final EIR, Approving the Project,
and Adoption of Findings for the West County Justice
Center, Richmond, California
SPECIFIC REQUEST(S)OR RECOMMENDATION(S)&BACKGROUND AND JUSTIFICATION
RECOMMENDATIONS
1. Certify, after Board review and consideration, that the Revised West
County Justice Center Final Environmental Impact Report (EIR) has been
completed in compliance with the California Environmental Quality Act
(CEQA) , and that the EIR was presented to and reviewed and considered by
this Board before approving the project.
2 . Approve the West County Justice Center project, including acquisition of
the project site.
3 . Adopt CEQA findings and mitigation monitoring and reporting plan
(Exhibit A) .
4. Direct the Community Development Department to file a CEQA Notice of
Determination on the project.
FISCAL IMPACT
None.
BACKGROUND/REASONS FOR RECOMMENDATION
In August of 1986, prior to construction of the West County Justice Center,
and EIR was completed and certified by the Board. On April 7, 1989 the Court
of Appeal ruled the EIR did not fully analyze the effects of expansion,
therefore, a revised EIR would need to be prepared. The Court also ruled
that construction would be allowed to go forward on the project. The County
has been given a deadline by the Court of July 24 , 1990 for certification of
a revised EIR. A revised Draft EIR was prepared and distributed for public
comment, and a hearing on the Draft EIR was held by the Zoning Administrator
on May 24, 1990. A Response Document was prepared, providing responses to
the comments received. On July 16, 1990 the Zoning Administrator considered
the Final EIR and recommended that this Board certify the Revised Final EIR
and approve the West County Justice Center project.
CONTINUED ON ATTACHMENT: YES SIGNATURE
_RECOMMENDATION OF COUNTY ADMINISTRATOR _RECOMMENDATION OF BOARD COMMITTEE
APPROVE OTHER
SIGNATURE(S):
ACTION OF BOARD ON JUL 24 160 APPROVED AS RECOMMENDED OTHER
The County Administrator and County Counsel reviewed the process of the revised
Environmental Imppact Report. Charles Zahn, Community Development Department, advised
that the Zoning Administrator is recommending that the Board find the Final
Environmental Impact Report to be adequate.
Herman Welm, representing Marwais Steel, P. O. Box 4006, Richmond, appeared and
discussed various objections to the Final EIR and declared he felt certain remedies are
necessary to make the project a good neighbor for the area.
The County Administrator advised that the objections discussed by Mr. Welm had been
included in the consideration of the EIR, and that staff urges the Board approve the
Final EIR.
VOTE OF SUPERVISORS
I HEREBY CERTIFY THAT THIS IS A TRUE
Yj UNANIMOUS (ABSENT 1 AND CORRECT COPY OF AN ACTION TAKEN
AYES: NOES: AND ENTERED ON THE MINUTES OF THE BOARD
ABSENT: ABSTAIN: OF SUPERVISORS ON THE DATE SHOWN.
ATTESTED JUL 2 4 1990
cc: Community Development (Orig. Dept.) PHIL BATCHELOR, CLERK OF THE BOARD OF
County Counsel SUPERVISORS AND COUNTY ADMINISTRATOR
Sheriff-Coroner
County Administrator By t � AEPUTY ,
j153:wcjc.brd
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FINDINGS DOCUMENT
CALIFORNIA ENVIRONMENTAL QUALITY ACT
FINDINGS PERTAINING TO THE APPROVAL
OF THE WEST COUNTY JUSTICE CENTER
BEFORE THE BOARD OF SUPERVISORS
COUNTY OF CONTRA COSTA, CALIFORNIA
JULY- 241 1990
ROOM 107, McBRIEN ADMINISTRATION BUILDING
651 PINE STREET
MARTINEZ, CALIFORNIA, 94553
SCH #89081511
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THS CEQA FINDINGS REQUIREMENT
CEQA and State CEQA guidelines contain specific
requirements for findings that must be made by a lead agency when
it approves a project for which an EIR has been prepared. These
requirements are found in Public Resources Code SS 21081 and
21081 . 5 and the State CEQA guidelines ( 14 CCR S 15000 et seq.
( "Guidelines" ) , particularly SS 15091 and 15093 . The lead agency
must make a finding for each potentially significant impact,
either that it has been mitigated below a level of significance,
or that mitigation is not feasible and the project's overall
benefits outweigh its risks (Statement of Overriding
Considerations) .
With respect to the findings and determinations
required by CEQA and the State CEQA guidelines, the Board of
Supervisors hereby finds and determines as follows:
A. A finding is made for each significant impact
identified in the FEIR. Each finding set forth below is based on
the entire record before the Board.
B. The finding for each impact describes the
mitigation measure(s ) applicable and indicates that the measures
as specified and detailed are being required in the project
approval. Where an impact is considered unmitigable, the Board
has considered and adopted a Statement of Overriding
Considerations .
C. The mitigation indicated is required by the
County, and where appropriate, mitigation is indicated as being
potentially required by other public agencies . (See Public
Resources Code S 21081, CEQA Guidelines S 15091. )
D. With respect to each finding, the Board hereby
determines that there is substantial evidence in the record, and
that a factual basis exists to support each finding (Public
r Resources Code S 21081 .51 CEQA Guidelines S 15091. )
E. Consideration has been given to each alternative
analyzed -in the FEIR, and findings have been made with supporting
rationale for rejecting each alternative. (Public Resources Code
S 21081, CEQA Guidelines S 15091 . )
F. In the face of an urgent need to provide
sufficient detention facility capacity in order to forestall the
public health hazard of severe inmate overcrowding and to meet
the County' s population and employment base needs, the Board of
Supervisors hereby finds and determines that its Statement of
Overriding Considerations contained in the findings is applicable
in those instances where there may remain any unavoidable,
significant impacts after mitigation. (CEQA Guidelines S 15093 . )
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FINDINGS
A. SIGNIFICANT IMPACTS WHICH WILL BE MITIGATED TO A LESS
THAN SIGNIFICANT LEVEL
The Board of Supervisors determines that the following
environmental effects, as further described in the DEIR, are
significant or potentially significant. The Board adopts,
requires and incorporates into the project the following
mitigation measures associated with each such impact. The Board
finds that these mitigation measures for the reasons given will
change or alter the project to avoid, or reduce to a less-than-
significant level, each such impact.
1 . PUBLIC SAFETY: ' Effects of Releasing Inmates .
Impact:
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Inmates could be released at times when
transportation is not available. Citizens living near the WCJC
have expressed concerns that such released inmates might walk
through or linger in the neighborhood.
Mitigation Measures:
Require adequate transportation for inmates
scheduled to be released during the hours public transportation
is not in operation, or hold inmates until public transit becomes
available:
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Supporting Explanation:
Because of concerns expressed by citizens living
near the WCJC, the County plans to release inmates only when they
have transportation available to them or are able to use the
public transit (bus line) serving the WCJC. Inmates without
transportation will be released only during the hours that bus
service is available, and indigent inmates will be given
sufficient funds to travel throughout the range of the Bay Area
Transit System. This is the same policy currently in effect for
the Marsh Creek Detention Facility.
2 . LAND USE: Potential Conflict with Adjacent Land
Uses.
Impact:
There are potential land use conflicts between the
project and adjacent recreational land uses to the west and
south. The Pinole Point Regional Shoreline Park is adjacent to
the project site. A potential conflict could occur along the
south and southwest boundaries of the project area, where there
is public access to the park from the parking lot. Park users
must walk north along the perimeter of the project site to get to
the park bridge and park entrance. The park users might attempt
to climb up the berm surrounding the project to look inside the
detention facility, or might be bothered by the proximity of the
facility and inmates .
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Mitigation Measures :
The County has planted and will maintain
landscaping on the berm surrounding the secured portion of the
detention facility on the south and southwest sides . The trees
and shrubs will be of sufficient density and height to permit
adequate concealment of the facility from park patrons . The
landscaping consists of trees 10 to 20 feet apart with bushes and
infill landscaping between the trees.
In addition, the WCJC security staff will
regularly patrol the security perimeter. Funding for this
measure is incorporated into the WCJC staffing budget. Finally,
the County will erect a visually appealing facility sign to
properly identify the detention facility prior to occupancy.
Supporting Explanation:
Park users arrive at the parking lot immediately
south of the project site and east of the Southern Pacific
tracks . They must walk about 800 feet north along the perimeter
of the project site to the park bridge that crosses the railroad
tracks and leads to the park entrance. This is the only area of
the project site that is not buffered by a road and/or railroad
track.
One of the project's goals is to create an
aesthetically pleasing, campus-like environment, which would
minimize the intimidating perception people often have of jail .
The landscaped berm surrounding the secured portion of the WCJC
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facility is designed to conceal the housing modules and related
inmate activity. Initial landscaping already in place consists
of shrubs and coniferous trees . Additional landscaping will be
planted.
3 . LAND USE: Potential Inconsistency with Richmond
General Plan Policy 2. 04(A) ( 2) .
Impact:
Richmond General Plan Policy 2. 04(A) (2) encourages
the limitation of uses in industrially designated areas that may
be objectionable or create nuisances for surrounding land uses .
The detention facility may create conflicts with use of the
Pinole Point Regional Shoreline Park. If these land use
conflicts should occur., the project objectives could be
inconsistent with city policy.'
Mitigation Measures :
The County has planted and will maintain
landscaping on the berm surrounding the secured portion of the
detention facility on the south and southwest sides. The trees
and shrubs will be of sufficient density and height to permit
adequate concealment of the facility from park patrons . The
landscaping consists of trees 10 to 20 feet apart with bushes and
infill landscaping between the trees .
In addition, the WCJC security staff will
regularly patrol the security perimeter. Funding for this
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measure is incorporated into the WCJC staffing budget . Finally,
the County will erect a visually appealing facility sign to
properly identify the detention facility prior to occupancy.
Supporting Explanation:
Park users arrive at the parking lot immediately
south of the project site and east of the Southern Pacific
tracks . . They must walk about conceal the housing modules and
related inmate activity. Initial landscaping already in place
consists of shrubs and coniferous trees . Additional landscaping
will be planted.
4 . LAND USE: Potential Inconsistency with Richmond
General .Plan Recreation and Park Element Policy
5 .07 (B) (7 ) .
Impact: Richmond Recreation and Park Element
Policy 5 . 07 (B) (7 ) identifies the city's priority to provide an
enjoyable city trail system. The operations of the WCJC could .be
perceived as incompatible with this policy due to its function as
a medium security jail facility located near a regional park and
trail system.
Mitigation Measures:
The County has planted and will maintain
landscaping on the berm surrounding the secured portion of the
detention facility on the south and southwest sides . The trees
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and shrubs will be of sufficient density and height to permit
adequate concealment of the facility from park patrons . The
landscaping consists of trees 10 to 20 feet apart with bushes and
infill landscaping between the trees.
In addition, the WCJC security staff will
regularly patrol the security perimeter. Funding for this
measure is incorporated into the WCJC staffing budget. Finally,
the County will erect a visually appealing facility sign to
properly identify the detention facility prior to occupancy.
Supporting Explanation:
y The WCJC's operations would not exclude or
directly reduce use of the Pinole Point Regional Shoreline Park
and trail system.
Park users arrive at the parking lot immediately
south of the project site and east of the Southern Pacific
tracks . They must walk about 800 feet north along .the perimeter
of the project site to the park bridge that crosses the railroad
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tracks and leads to the park entrance. This is the only area of
the project site that is not buffered by a road and/or railroad
track.
One of the project's goals is to create an
aesthetically pleasing, campus-like environment, which would
minimize the intimidating perception people often have of jail.
The landscaped berm surrounding the secured portion of the WCJC
facility is designed to conceal the housing modules and related
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inmate activity. Initial landscaping already in place consists
of shrubs and coniferous trees . Additional landscaping will be
planted.
5 . VEGETATION: Possible Filling of Potential
Jurisdictional Wetlands .
Impact:
Less than one acre of wet depressions and swales
.within the project site was removed by scraping, grading and
filling during construction.
Mitigation Measures:
The County will mitigate for the possible loss of
wetlands by recreating similar wetland conditions of similar
extent south of the WCJC Administration Building in a suitable
vacant grassland area. Wet depressions totaling approximately
one acre in area would be created by excavation and compaction of
soil . Addition of clay may be necessary to ensure a proper seal.
Depressions will be situated to receive natural runoff . Topsoil
will be added to the depressions, and seed, collected from local
populations of rushes, will be raked into the topsoil .
Supporting Explanation:
Jurisdictional wetlands of less than one acre can
be filled under Nationwide Permit 26 . Federal and State agencies
consider adverse effects on wetlands to be significant impacts
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requiring mitigation. Wildlife species found in wet depressions
and swales are common and locally abundant. However, no
significant impacts on wildlife resources have been identified as
resulting from loss of the wet depressions and swales previously
contained on this site. This impact was characterized as
"potentially significant" because the conditions on the site
which may have qualified as "wetlands" are no longer present for
inspection and evaluation, and the disturbance of this area may
not have been significant. In particular, the quality of the
wetlands is unknown, e.g. whether hydric soil was present.
6 . VEGETATION: Cumulative Loss of Wetlands .
Impact:
Wetlands in California, and in Contra Costa County
and Richmond in particular, have been greatly reduced from their
historic extent. Continued urban development in Contra Costa
County is causing further wetland losses. State and Federal
agencies support a policy of "no net wetland loss. " The
cumulative loss of wetlands, to which this project contributes,
is considered a potentially significant impact.
Mitigation Measures:
The County will mitigate for the possible loss of
wetlands by recreating similar wetland conditions of similar
extent south of the WCJC Administration Building in a suitable
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vacant grassland area.
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Supporting Explanation:
The importance of wetlands preservation is
documented in an unpublished report to the California Assembly
Natural Resources Subcommittee on Status and Trends, entitled
"Status and Trends of California Wetlands . " The report indicates
that historically there were 200,000 acres of wetlands in the San
Francisco Bay region but that 60% of these had been lost to
dredging for ports and harbors and to filling for urban expansion
and industrial development.
Jurisdictional wetlands of less than one acre can
be filled under Nationwide Permit 26 . Federal and State agencies
consider adverse effects on wetlands to be significant impacts
requiring mitigation. Wildlife species found in wet depressions
and swales are common and locally abundant. However, no
significant impacts on wildlife resources have been identified as
resulting from loss of the wet depressions and swales previously
contained on this site. This impact was characterized as
"potentially significant" because the conditions on the site
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which may have qualified as "wetlands" are no longer present for
inspection and evaluation, and the disturbance of this area may
not have been significant. In particular, the quality of the
wetlands is unknown, e.g. whether hydric soil was present.
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7 . GEOLOGY: Expansive and Loose Soils .
Impacts :
Expansive soils may cause structural damage
through uplift pressure or differential settlement. Before
project construction, saturated, loose soils occupied at least
the uppermost three feet of the site, with impervious soils - -
below. These soils are susceptible to static compaction caused
by the weight of overlying structures, potentially leading to
structural damage.
Mitigation Measures:
Appropriate design and construction procedures
have been, and will be, employed in the project. Structures may
be supported on pier-type foundations, gaining support below the
zone of significant moisture and volume change. Expansive or
loose soils may also be removed and replaced with suitable
compacted and subdrained fill or may be blanketed with
nonexpansive fills. Removal and replacement of expansive or weak
soils with non-expansive, engineered backfill prior to building
construction has been accomplished as part of the project. This
procedure has eliminated settlement and uplift hazards at the
site and should eliminate soil creep. In areas of potential soil
expansion, each foundation excavation was checked, and weak soils
were replaced prior to construction. These measures should also
be employed in any future construction.
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Supporting Explanation:
The effects of expansive soils can range from
minor nuisances, such as sticking doors and windows, to major
structural damages, such as fractured or cracked pavements,
cracked foundations, and tilted buildings . The effects of static
compaction of loose soils can be similar to those for expansive - -
soil-induced differential settlement.
8. GEOLOGY: Increased Erosion and Sedimentation.
Impact:
Excavation for roads, foundations and grading
typically exposes devegetated soil to water and wind erosion,
particularly during the wet winter months . Vehicles also damage
existing soil cover causing potential erosion. Material eroded
from the construction site has caused some sedimentation adjacent
to the site.
Mitigation Measures:
Specific measures, in the form of an Erosion and
Sedimentation Control Plan, are being implemented to prevent
erosion and sedimentation. As much of the site as possible was
left undisturbed, and slope vegetation was enhanced to increase
soil stability. During construction, perimeter dikes for parking
areas and building lots were used to reduce overbank erosion.
Seeding and mulching of exposed soils in graded areas was used to
ti retard runoff and reduce sediment losses . Straw bale fences were
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used to protect storm drains . In areas of seepage, sub-drainage
was added to reduce gullying and slope collapse. These measures
will also be applied to any future construction on site.
Supporting Evidence:
Although earth moving and grading activities on
the site are almost completed, some loose soil may be unearthed
from utility trenches still being dug and from landscaping
activities . Because of actions already taken by the County and
the additional mitigation measures being instituted, siltation of
drainage facilities and flooding of the park access road is not
anticipated during the coming rainy season and others that will
follow. Future construction of additional housing modules will
not significantly increase erosion and sedimentation, since the
construction area has previously been graded to a nearly flat
condition and the affected area is a small portion of the overall
site. The County is not aware of any other downstream flow
constrictions in the drainage system that would cause flooding
problems .
9 . GEOLOGY: Seismic Hazards .
Impact:
Adjacent and nearby faults include the Hayward,
Calaveras and San Andreas Faults. Earthquake-related hazards
include ground shaking and differential soil settlement, which
can cause structural damage. Seismically induced compaction of
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soil can also cause structural damage. In extreme cases,
structures may collapse and occupants may be injured or killed.
Mitigation Measures :
A detailed geotechnical investigation was
performed on the site prior to the preparation of final
development and building plans . Recommendations of the
geotechnical report were incorporated into the project
development plan. These measures, which have been implemented,
include seismic design criteria to. reduce the effects of ground
shaking on buildings and cuts and fills, and to reduce the
potential for differential settlement. Recommendations for
building and road location, grading and drainage were also
incorporated in the project design. The geotechnical study
demonstrated the existence of a stable site for structures and
adjunct facility. Seismic design for all structures conforms
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with the current Uniform Building Code to protect structures and
yoccupants from strong ground shaking. These mitigation measures
:a will also be applied to any future construction on site, such as
the two additional housing modules.
Supporting Explanation:
Unlike fault-rupture hazards, earthquake-induced
"t ground shaking need not originate on the site to affect the
project. Damage can be caused to structures through strong
0' ground motion if the structures are not designed to withstand
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seismic forces . However, the geotechnical study, performed by a
registered technical engineer, demonstrated the existence of a
stable site for structures and at adjunct facilities .
10 . HYDROLOGY: Drainage Flow Problems .
Impact:
During a heavy rain storm last winter, the
drainage system failed to function properly, causing siltation of
drainage facilities and flooding of the park access road.
Mitigation Measures:
The County will install a dike to divert
stormwater runoff into the drainage channel southwest of the
administration building. Problems with drainage flows southwest
of the administration building" along the Pinole Point Regional
Shoreline Park access road became evident during the 1989-1990
rainy season. To correct a situation where flows overran the
banks of an existing drainage ditch, the County constructed a new
larger ditch along the southern portion of the west boundary of
the WCJC site. A dike of cemented sandbags or equivalent will be
installed to deflect stormwater runoff (that exits the 18-inch
culvert at the southwest corner of the access road leading to the
administration building loading dock) into the new drainage
ditch.
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Supporting Explanation:
During a heavy rain storm last winter, the
drainage system did not function as intended for two reasons .
First, the building contractor did not carefully maintain the
straw bales used to keep silt from entering culverts. Second,
the one-foot-wide ditch along the park access road proved too
small to handle the flow of water from an 18-inch culvert near
the Administration Building. To correct this problem, the above
additional mitigation measures have been instituted.
11 . VISUAL AND AESTHETIC RESOURCES: Alteration of
Views to the Project Site.
Impact:
Development of the WCJC project would
substantially change the visual character of the property' s
rolling grassland to a detention complex including
administrative, housing and program buildings, a parking lot, and
double-security fences, with surrounding berms and landscaping. .
Approximately 35 of the 50 acres on the site have been developed.
Such changes in the visual character of the project are most
noticeable to visitors entering Pinole Point Regional Shoreline
Park from the parking lot south of the project site. Such
changes in visual character are also noticeable, though less so,
to travelers on Giant Highway and Atlas Road.
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Mitigation Measures:
Mitigation of visual effects has occurred through
implementation of the "community college" design concept for the
WCJC facility. Design and landscaping features implemented to
.reduce the impact of the changes in views of the project site
include the following: low scale, neutral colored structures to
blend visually with the surrounding landscape and existing
structures in the vicinity; siting of structures to take
advantage of existing topographic and vegetative screening of
views from Atlas Road and Giant Highway; clustering of structures
to reduce the overall mass of the facility; construction of a
perimeter berm and planting of trees and shrubs to screen views
of the facility from adjacent roads and the park access trail;,
landscaping with native species and eucalyptus to simulate the
look of surrounding grasslands', woodland and parkland. The
southwest part of the project site, adjacent to the park access
trail, will be left in its current natural state; however, the
north edge of this open field will be planted with coast live oak
trees to screen the administration building from the picnic area
and parking lot.
Supporting Explanation:
Park visitors would have views of the
administrative buildings from the parking lot and picnic area .
Views. of the administrative building and tops of two housing
modules are possible from the park access bridge. The facility' s
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structures are visible to travelers on Giant Highway only at the
facility entrance. Occasional long distance views of the
facility are possible from various points along Atlas Road
between its intersection with the Santa Fe Railroad tracks and
San Pablo Avenue. The site slopes to the west, screening the
majority of views of the project from Atlas Road and Giant
Highway. ' The existing eucalyptus .grove on the southern part of
the site screens most views of the facility from Giant Highway to
the south. The perimeter berm rises six to eight feet above the
surface of Giant Highway, the access road to the steel plant, and
the park access trail. In combination with the berms, the trees
and shrubs planted this year will provide full screening of the
facility in four years.
12. VISUAL AND AESTHETIC RESOURCES: Cumulative Visual
Impacts.
Impact:
The WCJC project, together with other proposed
industrial and residential development along Giant Highway, would
cumulatively alter the natural character of existing open space
lands along this designated scenic route.
Mitigation Measures:
The City of Richmond should require appropriate
landscaping for new projects as well as sensitive design of those
projects to preserve natural areas and add attractive elements .
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The Board finds that these mitigation measures are within the
responsibility and jurisdiction of the City of Richmond and not
the County, and they can and should be adopted by the City of
Richmond.
Supporting Explanation:
The City of Richmond's General Plan outlines goals
and policies related to scenic routes . Giant Highway is
designated as an urban scenic route with the goal of preserving
and enhancing the public right-of-way as well as the adjacent
natural areas .
13 . VISUAL AND AESTHETIC RESOURCES: Increased Light
and Glare.
Impact:
Outdoor lighting facilities at the project site
may be visible and annoying to passing motorists and park
visitors .
Mitigation Measures:
Features incorporated into the design of the WCJC
project to mitigate light and glare effects include recessed
lighting fixtures which direct light downward and reduce glare;
perimeter landscaping to screen light from areas outside the
project boundaries from light and glare, with selected plant
species chosen specifically for their dense growth forms and
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rapid growth rates; lighting under normal operating conditions at
0. 5 foot-candle within the security compound and parking lot,
with the perimeter road and security fence area illuminated at 2
foot-candles, a fairly low level . Only under emergency
conditions would all lights be activated.
Supporting Explanation:
Lighting at the WCJC facility is similar to that
found in regional shopping centers in the Richmond area.
Lighting at the facility includes pole-mounted lights in and
around the secured area. Although normal light levels at the
WCJC would be fairly low, motorists approaching along Atlas Road
and Giant Highway would probably notice the new source of
nightlight or "sky glow" in the project area. Visitors to Pinole
Point Regional Shoreline Park would also notice the new source of
nightlight. The park is open to visitors until 10:00 p.m. and is
not lighted. Park visitors are considered "sensitive receptors . "
Direct glare impacts would not be expected because lighting would
be directed primarily downward and concrete building surfaces
generally have relatively low reflectances .
14 . VISUAL AND AESTHETIC RESOURCES: Cumulative Light
and Glare.
Impact:
The WCJC project, in combination with proposed
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industrial and residential development on surrounding lands,
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would result in a cumulative increase in light and glare in the
project vicinity. This impact, though potentially significant,
is regarded as speculative because it depends on future actions
by other landowners .
Mitigation Measures :
The City of Richmond should ensure that shielding
for light sources is provided within future projects in the area.
The Board finds that this mitigation measure is within the
responsibility and jurisdiction of the City of Richmond and not
the County, and it can and should be adopted by the City of
Richmond.
Supporting Explanation:
Existing sources of nightlighting in the vicinity
include structure and pole-mounted lights at the Pinole Point
Steel Company and Richmond Golf and Country Club, and street
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lights along Giant Highway.
15 . CULTURAL RESOURCES: Possible Impacts to Unknown
Cultural Resources During Construction.
Impact:
Although previous site investigations have yielded
negative results, and future expansion areas have already been
disturbed by grading, it is still possible that archeological
resources could be unearthed during future construction
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activities . If any cultural resources are found during future
project activities, such resources might be damaged, destroyed,
or removed from their cultural context.
Mitigation Measures:
If cultural material or cultural resources are
uncovered during future construction activities, all work within
100 feet of the find will cease and the County will retain a
qualified archeologist to evaluate the find and recommend further
procedures. If bone is found that appears to be human, the
following procedure should be followed: The County will retain a
qualified archeologist for verification. If the bone is human,
the county coroner will be contacted as required by state law.
The archeologist and coroner can determine at that point whether
the remains are prehistoric. If this proves to be the case, the
Native America Heritage Commission in Sacramento will be
contacted (916/322-7791 ) . Additional mitigation of the
archeological find will be the responsibility of the County and
will be subject to review and approval by the Native American
Heritage Commission.
Supporting Explanation:
A March 1986 field reconnaissance and an August,
1989 site investigation showed no results, and recent grading
activities have not turned up any archaeological find. Future
building pads will not require additional site grading. However,
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it is still possible that cultural material such as Midden (which
can conceal cultural deposits) , animal bone, shill, obsidian,
grinding stones (such as mortars) , or human remains will be
uncovered during further construction. In addition to protecting
any such artifacts from damage or destruction, they should be
preserved in place since displacement minimizes potential for
contributing to further studies of prehistoric or historic
cultures.
16 . TRAFFIC AND CIRCULATION: Existing-Plus-Project
Traffic (1,536 Inmate Scenario) .
Impact:
Under this development scenario, the Level of
Service at the San Pablo Avenue/Atlas Road intersection would be
reduced from LOS D to LOS E during the p.m. peak hour, leading to
severe congestion and long traffic delays .
Mitigation Measures:
Restripe and/or widen the eastbound Atlas approach
to include one left-turn lane and one right-turn lane. It is
assumed that the City of Richmond will construct the Richmond
Parkway and that this parkway will be operational by the time the
inmate population reaches the 1,536 inmate level. When the
parkway is operational San Pablo Avenue/Atlas Road intersection
will no longer exist as it does today. Atlas Road will merge
into the parkway and no longer terminate at San Pablo Avenue.
23
The traffic impacts at. the 1 ,536 inmate level for existing-plus-
project traffic level will be less than significant.
In the unlikely case that the Richmond Parkway is
not built, the improvements described should be made to Atlas
Road to improve the intersection's operating characteristics .
The City of Richmond would be responsible for building these road
improvements . The same funding resources that are in place to
build the Richmond Parkway would be available to fund this
mitigation if the Parkway is not built. The Board finds that
these mitigation measures are within the responsibility and
jurisdiction of the City of Richmond and not the County, and they
can and should be adopted by the City of Richmond.
Supporting Explanation:
The Richmond Parkway, a major new roadway. to be
built in stages over the next ten years, will extend from the
I-580 freeway north and then east to near the Richmond Golf and
Country Club and then east to Atlas Road, across San Pablo Avenue
and ending at the I-80 freeway, north of Hilltop Drive. The
segment between San Pablo Avenue and Giant Highway is scheduled
for development within the next several years. Construction of
this segment will improve the intersection of Atlas Road and San
Pablo Avenue. When the Richmond Parkway is completed, about 75%
of the project' s vehicle trips would likely be diverted away from
key intersections affected under existing conditions . According
` to the City of Richmond's traffic engineering department, sources
24
of funding for the Richmond Parkway are already in place, and it
is almost a certainty that construction will go ahead regardless
of future development in the area. As described in the DEIR, the
parkway is being built in a series of five segments . Portions of
the parkway between I-580 and the WCJC have already been
completed, along with about 4,000 feet of road improvements to
Giant Highway near Parchester Village. The segment nearest the
WCJC is scheduled to be completed in 1992 . Methods for funding
new roads have been established and will not be altered for this
project. As its share of traffic mitigation for the project, the
County has re-routed and rebuilt Atlas Road and Giant Highway to
current standards along WCJC property frontage.
17 . TRAFFIC AND CIRCULATION: Increased Parking Demand
( 1,536 Inmate Scenario) .
Impact:
Under this development scenario, the peak hour
parking demand will be about 359 vehicles and the presently
proposed parking would be insufficient by 80 to 85 parking
spaces .
Mitigation Measures:
If existing parking becomes inadequate, the actual
parking demand at that time will used to determine expansion
requirements, and additional parking spaces will constructed in
i
'a an area south of the service road and near the loading dock. In
25
addition, ride-sharing inducements will considered and
implemented. An effective TSM policy to reduce parking demand
will •be implemented at that time, including measures such as
preferred carpool spaces, covered bicycle parking and shower and
locker facilities for bicyclists .
Supporting Explanation:
If the proposed facility reaches the maximum
inmate population of 1,536 people, parking demand during the peak
hour would be about 359 when the day shift employees overlap with
the swing shift employees.
18 . TRAFFIC AND CIRCULATION: Cumulative Traffic
( 1,040 Inmate Scenario) .
Impact:
Under this development scenario, the Level of
Service at the San Pablo Avenue/Atlas Road intersection would be
reduced from LOS D to LOS E during the p.m. peak hour, leading to
severe congestion and long traffic delays.
Mitigation Measures:
In order to improve the operating conditions at
the San Pablo Avenue/Atlas Road intersection: 1 ) restripe and/or
widen the eastbound Atlas approach to include one left-turn and
one right-turn lane; 2) widen northbound San Pablo Avenue to
include three lanes and one left-turn lane and widen southbound
26
San Pablo Avenue to include two through lanes and one through/
right-turn lane.
It is assumed that the City of Richmond will construct
the Richmond Parkway and that this parkway will be operational by
the time the inmate population reaches the 1,536 inmate level.
When the parkway is operational San Pablo Avenue/Atlas Road
intersection will no longer exist as it does today. Atlas Road
will merge into the parkway and no longer terminate at San Pablo
Avenue. The traffic impacts at the 1 ,536 inmate level, for
existing-plus-project traffic will be less than significant.
In the unlikely case that the Richmond Parkway is
not built, the improvements described should be made to Pablo
Avenue to improve the operating characteristics. The City of
Richmond would be responsible for building these road
improvements . The same funding resources that are in place to
build the Richmond Parkway would be available to fund this
mitigation if the Parkway is not built. The Board finds that
these mitigation measures are within the responsibility and
jurisdiction of the City of Richmond and not the County, and they
can and should be adopted by the City of Richmond.
Supporting Explanation%
Projections for traffic circulation under
cumulative buildout conditions reflect changes expected by the
year 2005 and include the Richmond Parkway and related road
improvements, except for the San Pablo Avenue/Atlas Road
27
intersection. It has not yet been determined whether the parkway
will intersect or cross over San Pablo Avenue. Either way, the
intersection will be appropriately designed to handle resultant
through volumes as well as turning movements .
The Richmond Parkway, a major new roadway to be
built in stages over the next ten years, will extend from the
I-580 freeway north and then east to near the Richmond Golf and
Country Club- and then east to Atlas Road, across San Pablo Avenue
and ending at the I-80 freeway, north of Hilltop Drive. The
segment between San Pablo Avenue and Giant Highway is scheduled
for development within the next several years . Construction of
this segment will improve the intersection of Atlas Road and San
Pablo Avenue. When the Richmond Parkway is completed, about 75%
of the project's vehicle trips would likely be diverted away from
key intersections affected under existing conditions. According
to the City of Richmond' s traffic engineering department, sources
s
of funding for the Richmond Parkway are already in place, and it
is almost a certainty that construction will go ahead regardless
a
of future development in the area. As described in the DEIR, the
parkway is being built in a series of five segments . Portions of
the parkway between I-580 and the WCJC have already been
completed, along with about 4,000 feet of road improvements to
Giant Highway near Parchester Village. The segment nearest the
WCJC is scheduled to be completed in 1992 . Methods for funding
new roads have been established and will not be altered for this
project. As its share of traffic mitigation for the project, the
28
County has re-routed and rebuilt Atlas Road and Giant Highway to
current standards along WCJC property frontage.
19 . TRAFFIC AND CIRCULATION: Cumulative Traffic
( 1,536 inmate scenario) .
Impact:
Under this development scenario, the Level of
Service at the San Pablo Avenue/Atlas Road intersection would be
reduced from LOS B to LOS E in the a.m, peak hour and would be
reduced from LOS D to LOS E during the p.m. peak hour, leading to
severe congestion and long traffic delays.
Mitigation Measures:
In order to improve the operating conditions at
the San Pablo Avenue/Atlas Road intersection: 1 ) restripe and/or
widen the eastbound Atlas approach to include one left-turn and
one right-turn lane; 2) widen northbound San Pablo Avenue to
include three lanes and one left-turn lane and widen southbound
San Pablo Avenue to include two through lanes and one through
right-turn lane. It is assumed that the City of Richmond will
construct the Richmond Parkway and that this parkway will be
operational by the time the inmate population reaches the 1,536
inmate level . When the parkway is operational San Pablo
Avenue/Atlas Road intersection will no longer exist as it does
today. Atlas Road will merge into the parkway and no longer
terminate at San Pablo Avenue. The traffic impacts at the 1 ,536
29
inmate level, for existing-plus-project traffic will be less than
significant.
In the unlikely case that the Richmond Parkway is
not built, the improvements described should be made to San Pablo
Avenue to improve the operating characteristics . The City of
Richmond would be responsible for building these road
improvements . The same funding resources that are in place to
build the Richmond Parkway would be available to fund this
mitigation if the Parkway is not built. The Board finds that
these mitigation measures are within the responsibility and
jurisdiction of the City of Richmond and not the County, and they
can and should be adopted by the City of Richmond.
Supporting Explanation:
Projections for traffic circulation under
cumulative buildout conditions reflect changes expected by the
year 2005 and include the Richmond Parkway and related road
improvements, except for the San Pablo Avenue/Atlas Road
intersection. It has not yet been determined whether the parkway
will intersect or cross over San Pablo Avenue. Either way, the
intersection will be appropriately designed to handle resultant
through volumes as well as turning movements .
The Richmond Parkway, a major new roadway to be
built in stages over the next ten years, will extend from the
I-580 freeway north and then east to near the Richmond Golf and
Country Club and then east to Atlas Road, across San Pablo Avenue
30
and ending at the I-80 freeway, north of Hilltop Drive. The
segment between San Pablo Avenue and Giant Highway is scheduled
for development within the next several years . Construction of
this segment will improve the intersection of Atlas Road and San
Pablo Avenue. When the Richmond Parkway is completed, about 75%
of the project's vehicle trips would likely be diverted away from
key intersections affected under existing conditions.
According to the City of Richmond' s traffic engineering
department, sources of funding for the Richmond Parkway are
Already in place, and it is almost a certainty that construction
will go ahead regardless of future development in the area. As
described in the DEIR, the parkway is being built in a series of
five segments. Portions of the parkway between I-580 and the
WCJC have already been. completed, along with about 4,000 feet of
road improvements to Giant Highway near Parchester Village. The
segment nearest the WCJC is scheduled to be completed in 1992 .
Methods for funding new roads have been established and will not
be altered for this project. As its share of traffic mitigation
for the project, the County has re-routed and rebuilt Atlas Road
and Giant Highway to current standards along WCJC property
frontage.
20 . AIR QUALITY: Construction Emissions .
Impact:
Construction equipment and vehicles at the project
site would cause fugitive dust during construction activity and
31
as a result of wind erosion over exposed earth surfaces. Sources
of fugitive dust include clearing and earthmoving activity, and,
to a lesser degree, traffic and general disturbance of the soil.
Dust generation depends on the soil type and soil moisture.
Increased dustfall and locally elevated levels of total suspended
particulates could cause a nuisance to neighboring properties .
Mitigation Measures:
In the event of additional construction on the
site, a watering program will be used to control fugitive dust.
Complete coverage at least twice daily will be required, which
can reduce dust emissions by about 50% . All construction
contracts will require watering of sufficient frequency to keep
exposed soil surfaces damp, as well as daily clean-up of mud and
dust carried onto street surfaces by construction vehicles . On
completion of site preparation, measures to reduce wind erosion
will be implemented, including replanting, spreading of soil
binders, and soaking as needed to maintain an erosion-resistant
soil surface.
Supporting Explanation:
Construction equipment and vehicles at the
project site would emit exhaust emissions and fugitive dust.
Construction vehicle exhaust emissions are not expected to cause
significant impacts, but fugitive dust may. Dustfall could cause
exposed surfaces at neighboring properties to require more
32
e�
frequent washing during the construction. These impacts could
occur during construction of the two additional inmate housing
modules , parking lots, and other building.
21 . NOISE: Increased Noise Levels During
Construction.
Impact:
Construction-related noise activity would generate
levels of 80 - 85 dBA at a distance of 50 feet, decreasing by
About 6 dBA with each doubling of distance. This noise would be
noticeable at neighboring land uses such as the golf course,
Pinole Point Regional Shoreline Park, and Parchester Village, but
would not be at a disruptive level. The closest sensitive
receptors of noise are the inmates of already completed portions
of the facility. Indoor and outdoor activities within the WCJC
could be disrupted by noise during construction.
Mitigation Measures :
Construction activity will be limited to the hours
between 8 : 00 a.m. and 6 :00 p.m. All construction equipment will
be properly maintained and muffled. Construction equipment will
be turned off when not in use.
Supporting Explanation:
The main noise impacts of project construction,
associated with earthmoving activities on-site and with
33
relocation of Giant Highway, have already occurred. No
additional construction noise impacts would occur with the 560
inmate population. Construction of additional housing modules
would result in temporary noise impact.
B. IMPACTS WHICH CANNOT BE MITIGATED TO A LESS THAN
SIGNIFICANT LEVEL.
The Board of Supervisors determines that the following
environmental effects, as further described in the DEIR, are
significant and unavoidable. The Board adopts, requires, and
incorporates into the project the following mitigation measures
associated with each such impact. The Board finds that these
mitigation measures may not fully- reduce each such impact to a
less- than-significant level .
1 . LAND USE: Conversion of Open Space to a Detention
Facility.
Impact:
Construction of the county detention facility has
resulted in the conversion of about 50 acres of rolling
grasslands to a detention complex for 560 inmates, which complex
could be expanded to house up to 1,536 inmates. The open space
character of the property has been changed substantially with the
construction of buildings, a parking lot, security fencing and
berms . The project permanently converts open space to urban
uses .
34
r
Mitigation Measures :
Partial mitigation has occurred through building
and landscape design consisting of low buildings clustered around
landscaped courtyards and open space. The complex is screened
from adjacent uses by landscaped berms.
Supporting Explanation:
Prior to construction, the project site was vacant
open space with rolling grassland. In October 1987 work began to
grade the site, relocate Giant Highway and extend necessary
utilities to the site. In July 1988, construction of the
facility began. Project site construction was 90% completed as
of April 1990 . All the buildings initially planned for the site
have been erected and are currently being completed.
Construction of two additional modules could occur at some future
date, depending on the need for expansion. The complex could
house up to 1,536 sentenced and unsentenced inmates, although the
proposed project is for 560 inmates . The detention portion of
the complex would occupy 237 ,000 square feet of enclosed space.
Regardless of the number of inmates housed, the open space
character of the property has been changed substantially.
2. ENERGY: Consumption of Nonrenewable Resources .
Impact:
Fossil fuels have been used and may be used in the
future to develop the site, and will continue to be used for
1 35
operational purposes . The construction of additional housing
modules would increase energy consumption for housing purposes by
oi:F "4.1:d. The project will consume a substantial amount of non-
r._.,ewL la energy resources each year.
M .tigation Measures:
Tht, project design minimizes energy consumption.
State energy conservat_ n -t-Andards have been used as guidelines
where such standards will noL :_n'_-.erfere with maintenance of
security. These energy-conserving s andards will reduce the
impact on nonrenewable resources .
Supporting Explanation:
Based on standard construction data, oproximately
95 billion BTUs of fossil fuels would be required for
.construction purposes to house 560 inmates . Total annual
operation energy needs are estimated at approximately 111 billion
BTUs . With two additional housing modules, and double bunking to
house 1,536 inmates, the total anticipated energy consumption for
housing units would increase by one-third. As noted in the DEIR,
energy conservation standards set forth in Title 24 of the
California Code of Regulations do not apply to detention
facilities . Nevertheless, these standards have been used as
guidelines to minimize energy consumption.
36
C . ADDITIONAL FINDINGS AND DETERMINATIONS
The Board of Supervisors makes the following additional
findings and determinations:
1. The Board adopts the "Mitigation Monitoring and
Reporting Plan for West County Justice Center, " dated July 18,
1990, prepared by the Contra Costa- County Community Development
Department (the "Monitoring Plan" ) , attached hereto and
incorporated herein by this reference.
2 . The Board concurs with the conclusions in the DEIR
that environmental impacts other than those included in the
foregoing Findings are not significant environmental effects
within the meaning of CEQA, and mitigation measures for these
impacts are therefore not required by law. Nevertheless,
mitigation will be provided in many instances. In particular,
several impacts were identified in the original FEIR in 1986 as
significant, but are deemed insignificant in light of the Revised
FEIR:
a) Increased siltation of marshlands during
construction. The Board finds that, as a result of the
mitigation measures implemented during the construction project,
this impact has been reduced to a less-than-significant level .
b) Existing railroad noise would affect the site.
The Board finds that, as a result of the mitigation measures
37
Y
implemented during the construction project, this impact has been
reduced to a less-than-significant level .
c) Cumulative development in the area would
increase vehicular traffic, thereby adversely affecting the air
quality. As a result of additional studies described in the
Revised FEIR, the Board finds that this impact is not
significant.
d) A minimal potential for inmate escape might
have an unknown impact on public safety. In light of the
additional analysis appearing in the Revised FEIR (including
Chapter 5 of the Revised DEIR) , the Board finds that this impact
is not significant.
3 . The Board concurs with the discussion and
conclusions in the DEIR regarding alternatives to the proposed
project. The Board agrees, for the reasons stated in the DEIR,
that .these alternatives should be rejected in favor of the
proposed project. In addition, the Board makes the following
findings relative to these alternatives:
a) The Board finds that implementation of the No-
Project Alternative would not meet the primary objective of the
WCJC project to relieve severe overcrowding throughout the
County' s detention system and would therefore be detrimental to
38
public safety, to the health and welfare of detainees, and to the
effective administration of justice.
b) The Board finds that the Modified No-Project
Alternative would not meet the primary objective of the WCJC
project to relieve severe overcrowding throughout the County's
detention system and would therefore be detrimental to public
safety, to the health and welfare of detainees, and to the
effective administration of justice.
c) The Board finds that alternatives to
incarceration would not significantly reduce the overcrowding
problem because many of these alternatives programs are currently
in use and little or no additional benefit can be expected from
these programs in terms of reducing overcrowding, and because the
County anticipates continued growth in its inmate population
beyond the capacity of its present detention facilities .
d) The Board finds that incarceration in other
counties is infeasible because no excess space is available in
the jails of nearby counties .
e) The Board finds that before selecting the
project site, the County pursued a lengthy and extensive site
selection process which examined nearly 30 alternative sites, and
that through an evaluation of site conditions, operational
39
characteristics, and community and environmental impacts, five
sites were selected as having the greatest potential for
accommodating the proposed project. The Board finds that the
Shell Oil site is infeasible because major portions of it have
been determined to constitute wetlands, because its proximity to
hazardous and explosive materials stored on a nearby railroad
siding raises a serious question of public safety for the inmates
and detainees confined in the detention facility, and because it
was sold for private development and is no longer available. The
Board finds that North Richmond sites B, C and D would have
greater adverse environmental impacts than the project site.
f ) The Board finds that expansion of existing
County detention facilities would be insufficient to meet the
County's near-term and long-term detention needs; that expanding
the Martinez Detention Facility would have unacceptable
environmental impacts and fails to meet a basic project objective
of providing prisoner booking services in the west county; that
expanding the Marsh Creek Detention Facility is inappropriate
because of the site's hilly terrain and lack of necessary public
utilities and services; and that expanding the Richmond Work
Furlough Facility is inappropriate because of its size and
location.
D. STATEMENT OF OVERRIDING CONSIDERATIONS.
Y
40
Y
Notwithstanding the disclosure of the significant
impacts and the mitigation measures described above, pursuant to
Section 15093 of the State CEQA Guidelines, the Board of
Supervisors finds that the benefits of the West County Justice
Center outweigh the unavoidable significant adverse environmental
impacts, and the project should be approved. The Board further
finds that there are specific social, economic and other reasons
for approving this project, based on information in the record as
a whole, notwithstanding any unavoidable significant impacts .
These reasons include the following:
1 . The primary purpose of the project is to provide
needed inmate housing to relieve the severe overcrowding
throughout the County's detention system.
As part of its ongoing responsibilities for
administration of the local criminal justice system, Contra Costa
County is mandated by Section 26605 of the Government Code of the
State of California to detain, for varying periods of time,
adults who are either waiting to testify, being held for
arraignment or trial, or serving sentences . County facilities
for housing such inmates and detainees include the maximum-
security Martinez Detention Facility (600 beds ) , the minimum-
security Marsh Creek Detention Facility ( 360 beds) , and the
minimum-security Richmond Work Furlough Facility ( 101 beds) . By
the end of 1987 , inmate population averaged over 1, 100 and the
system was operating at 130 percent of rated capacity of 859
beds . Additional inmate population growth is expected over the
41
next few years; inmate population is expected to reach 1 ,816 by
1995 . This severe overcrowding caused the County, as part of its
ongoing planning for its criminal justice program, to initiate
site selection, design, and construction of the West County
Justice Center, with a rated capacity of 560 inmates and
expansion potential up to 1,536 inmates. The present shortage of
detention facilities has been characterized by County Sheriff
Richard K. Rainey as an "extremely important" problem and a
potential threat to public safety.
2 . The present overcrowding situation is detrimental
to public safety, to the health and welfare of detainees, and to
the effective administration of justice. The safety of County
employees and inmates would be threatened by a delay or by
failure to approve the project-. The risk of physical assault on
County employees and inmates would increase, as would the general
stress associated with overcrowding. The County's ability to
properly segregate inmates based on their behavior
classification, which directly bears on safety, would be
impaired. The County might be forced to release inmates
prematurely, before they had served the sentences which would
otherwise be required by law. Some of those arrested then
released would have to be arrested again, resulting in waste of
resources and manpower, simply because they do not appear as
promised. Any delay in approving the project would also result
in overload of central services at existing facilities,
42
overtaxing the existing physical plants, resulting in increased
damage to facilities, extending the time required to process
inmates through the booking and release process, and reducing the
ability to provide mandated medical and mental health services .
3 . The project is necessary to provide an adequate
medium-security detention facility in the County and to
supplement the minimum-security Work Furlough Center in west
Contra Costa County.
4 . The project is necessary to provide booking
facility services for use by law enforcement agencies operating
in West Contra Costa County.
E. GENERAL FINDINGS
The Board makes the following general findings and
determinations and intends to be generally applicable to this
project and further intends that the following findings and
determinations shall be generally applicable to all findings and
determinations as a whole contained herein.
1 . In addition to the foregoing specific findings, the
Board hereby incorporates by reference the applicable portions of
the staff reports and studies, oral and written evidence
submitted into the record, the FEIR, and resolutions relating to
the project and these approvals .
43
2 . The Board intends that the foregoing findings and
determinations be considered as an integrated whole and, whether
or not any subdivision of these findings and determinations fails
to cross-reference or incorporate by reference any other
subdivision of these findings and determinations, that any
finding and/or determination required or permitted to be made by
this Board with respect to any particular subject matter of the
project or any of the approvals shall be deemed made if it
appears in any portion of these findings and determinations . All
of the foregoing constitute findings and determinations by the
Board whether or not any particular sentence or clause states
such.
3. Each and. all of the findings and determinations
contained herein are based upon the competent and substantial
evidence, both oral and written, contained in the entire
administrative record relating to the project and the approvals,
including, without limitation, evidence presented in hearings on
the EIR and the project. The findings and determinations
constitute the independent findings and determinations of this
Board in all respects and are fully and completely supported by
the competent and substantial evidence in the administrative
record as a whole.
44
i
Mitigation Monitoring and Reporting Plan
Part of the Findings Document
for the West County Justice Center
Before the Board of Supervisors,
County of Contra Costa, California
July 249 1990
Room 107, McBrien Administration Building
651 Pine Street
Martinez, CA 94553-0095
SCH #89081511
Table of Contents
Page
Chapter 1. Introduction . . . . . . . . . . . . . : . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
COUNTY'S POLICY ON MITIGATION MONITORING . . . . . . . . . . . . . . . 1
Chapter 2. Project Description . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
PROJECT LOCATION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
PROJECT PURPOSE AND CHARACTERISTICS . . . . . . . . . . . . . . . . . . . . 3
DESIGN CONCEPTS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
Chapter 3. Implementation of the Program . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
RESPONSIBILITIES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
REPORTING . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
Chapter 4. The Program . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12
CRIMINAL JUSTICE POLICY CONFORMANCE (CHAPTER 4) . ... . . . 12
PUBLIC SAFETY (CHAPTER 5) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12
Mitigation Measure 2-1: Require Transportation Availability
for Inmate Releases . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12
LAND USE (CHAPTER 6) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. . . . . . 13
Mitigation Measure 6-1: Provide Adequate Landscaping . . . . . . . . . . 13
Mitigation Measure 6-2: Provide Perimeter Patrols . . . . . . . . . . . . . . 14
VEGETATION AND WILDLIFE (CHAPTER 7) . . . . . . . . . . . . . . . . . . . . 15
Mitigation Measure 7-1: Replacement of Lost Wetlands . . . . . . . . . . 15
GEOLOGY, SOILS, AND SEISMICITY (CHAPTER 8) . . . . . . . . . . . . . . . 16
Mitigation Measure 8-1: Use Proper Design and Construction
Procedures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16
Mitigation Measure 8-2: Replace Expansive or Weak Soils . . . . . . . . 17
Mitigation Measure 8-3: Implement a Site Erosion and
Sedimentation Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
Mitigation Measure 8-4: Perform a Geotechnical Investigation . . . . . 19
HYDROLOGY, WATER QUALITY, AND HAZARDOUS WASTES
(CHAPTER 9) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20
Mitigation Measure 9-1: Conduct Street Sweeping and Clean
Stormwater Using Screens . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20
Mitigation Measure 9-2: Install a Dike to Divert Stormwater . . . . . . . 21
VISUAL AND AESTHETIC RESOURCES (CHAPTER 10) . . . . . . . . . . . 22
Mitigation Measure 10-1: Implement Design and Landscaping
Features to Reduce the Impact of Changes in Views of
the Project Site . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
i
Mitigation Measure 10-2: Implement Design Features to
Reduce Light and Glare Impacts . . . . . . . . . . . . . . . . . . . . . . . 24
CULTURAL RESOURCES (CHAPTER 11) . . . . . . . . . . . . . . . . . . . . . . . 25
Mitigation Measure 11-1: Implement Proper Procedures
if Cultural Materials are Uncovered During
Construction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
TRAFFIC AND CIRCULATION CHAPTER 12 26
Mitigation Measure 12-1 (1,536-Inmate Scenario):
Restripe and/or Widen Atlas Road . . . . . . . . . . . . . . . .. . . . . . 26
Mitigation Measure 12-2 (1,536-Inmate Scenario):
Provide Adequate Parking . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
Mitigation Measure 12-3 (1,040- and 1,536-Inmate
Scenario): Widen San Pablo Avenue . . . . . . . . . . . . . . . . . . . 28
AIR QUALITY AND NOISE (CHAP'T'ER 13) . . . . . . . . . . . . . . . . . . . . . . 29
Mitigation Measure 13-1: Implement Dust Control
Measures During and After Construction . . . . . . . . . . . . . . . . . 29
Mitigation Measure 13-2: Restrict Hours of
Construction Activity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30
Mitigation Measure 13-3: Minimize Noise Generation
from Equipment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31
COMMUNITY SERVICE AND FISCAL ANALYSIS (CHAPTER 14) . . . . 32
SOCIOECONOMICS (CHAPTER 15) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32
ENERGY CONSERVATION (CHAPTER 16) . . . . . . . . . . . . . . . . . . . . . . 32
Mitigation Measure 164: Implement Energy
Conservation Measures Already in Place at the
Existing WCJC Facility in any Expansion
Structure . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32
Chapter 6. Bibliography . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34
ii
1 � �
List of Figures
Figure Page
2-1 Regional and Local Vicinity Map . . . . . . . . . . . . . . . . . . . . . . :. . . . . . 4
2-2 WCJC Site Location and Vicinity . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 5
2-3 WCJC Site Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
2-4 WCJC Site Illustration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8
iii
Chapter 1. Introduction
COUNTY'S POLICY ON MITIGATION MONITORING
This report is a mitigation monitoring program for the West County Justice Center
(WCJC). The program reiterates the mitigation measures presented in the environmental
impact report (EIR) and establishes monitoring procedures as defined by the following
questions:
■ Agency or individual responsible for implementation:
- Who will be responsible for performing the mitigation?
■ Schedule for implementation:
When.will each aspect of the mitigation measure occur, and over what time
frame?
■ Monitoring work program:
- Who will perform the monitoring?
- How will the monitoring be performed?
- How often will monitoring occur?
- What will be observed?
■ Funding:
- Who will pay for the mitigation?
- Who will pay for the monitoring?
- Who will pay for maintenance of the mitigation once monitoring is complete?
■ Standards for success:
- How and when will the mitigation be deemed successful?
Because construction on the WCJC is nearly finished, some of the recommended
mitigation measures have been implemented. Those measures that have been implemented
and that are not necessary for future construction have been omitted from this plan. The
measures discussed in this report would be implemented following a certification of the EIR.
For this reason, the timing of the mitigation measures is presented in relationship to the
1
project review and permitting process (e.g., prior to issuance of an occupancy permit) and
generally not in terms of specific dates.
2
Chapter 2. Project Description
PROJECT LOCATION
The WCJC is located on 50 acres of previously vacant land on Pinole Point Steel
Company property (Marwais property) in the northwestern part of the City of Richmond
near Point Pinole. The location is southwest of the City of Pinole and northwest of the City
of San Pablo. The site is bordered by the Point Pinole Regional Shoreline Park to the
northwest and west,Parchester Village Residential development to the south,the Richmond
Golf and Country Club to the east, and the Pinole Point Steel Company and United Parcel
Service sites to the north and northeast. Giant Highway and Atlas Road are the major
points of vehicular access to the project site area (Figures 2-1 and 2-2).
Two railroad lines are located near the project site. The Southern Pacific
Transportation Company railroad line is at the western site boundary, and the Atchison,
Topeka & Santa Fe railroad line is adjacent to Giant Highway east of the site.
PROJECT PURPOSE AND CHARACTERISTICS
The detention center project has several primary purposes:
■ to relieve the severe overcrowding throughout the County's detention system;
■ to be the medium-security detention facility in the County and supplement the
minimum-security Work Furlough Center in west Contra Costa County; and
■ to provide booking facility services for law enforcement agencies operating in
west Contra Costa County.
The WCJC, currently 95% complete with construction continuing (July 1990), would
be a detention facility initially housing about 560 unsentenced and sentenced inmates. The
complex would occupy approximately 237,000 sf of enclosed space and include an intake
booking area, housing units, medical support, inmate program areas, indoor and outdoor
recreation, public areas, administration and staff areas, service areas, and overall support.
Provisions for the future addition of two housing modules are considered in the current
planning.
In addition to WCJC construction and realignment of Atlas Road and Giant
Highway, the revised EIR addresses proposal to expand the WCJC. Possible facility
3
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expansion includes two additional 30,400-sf housing modules with 128 cells per module. The
potential for facility expansion is limited, and,within these space limitations, the extent and
timing of expansion are currently uncertain; however, for the purposes of this EIR, three
possible options for facility expansion can be presented:
■ constructing two additional housing modules that would accommodate 256 more
inmates, for a total of 816 inmates;
■ double-bunking cells in the four housing modules now under construction, thus
increasing the total inmate population to 1,040 (an additional 120 inmates per
module [Note: It is not possible to place two inmates in every cell because 48
cells in one building and 8 cells in each of the four housing modules are reserved
for lockdown or for inmates with special needs, such as handicapped individuals.
These cells are limited to one occupant.]); or
■ constructing two additional housing modules and double-bunking cells, thus
increasing the inmate population to 1,536.
The County staff believes that a continuous inmate population of 1,536 at the WCJC
is highly unlikely. The worst-case scenario represents the total inmate population that could
possibly be accommodated at the WCJC, given the design constraints of the site and the
facility.
Staffing levels for the WCJC facility at the planned occupancy level of 560 inmates
would be 263 employees. Expansion levels of 1,040 and 1,536 inmates would require 353
and 495 employees, respectively (MacClelland pers. comm.).
The impact analyses in this EIR assume full expansion of the project site (the worst-
case scenario). For all impacts analyzed, including topical areas that require quantification
(transportation, air quality, noise,public services, and socioeconomics) and other qualitative
impacts, the worst-case levels of inmate population (1,536 inmates) and staffing (495 staff)
are assumed. The transportation, air quality,.and noise sections also quantify impacts for
the planned project with 560 inmates and the option with an inmate population of 1,040.
In all cases, impacts for fewer inmates are less than anticipated impacts at maximum
occupancy(1,536 inmates). The projected impacts at 816 inmates are not evaluated because
this is an unlikely scenario, and the impacts are addressed at the higher levels, making
additional analysis at the 816-inmate level unnecessary.
The Martinez Detention Facility (MDF) would continue to be the booking facility
for law enforcement agencies in the central and eastern areas of the County. In general,
inmates in custody awaiting arraignment and trial at the Bay Municipal Court will be held
at the WCJC.
The County proposes, as part of project development, to minimize duplication of
services between facilities. The MDF would hold all prisoners classified as maximum
security. The MDF would also continue to provide medical and mental health housing.
Acute medical or mental health treatment would be provided at hospitals. Juveniles would
6
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not be detained in adult facilities except under a court order; these juveniles would be
housed at the MDF. The sheriff-coroner would continue to classify inmates for work/
education furloughs whenever possible, consistent with public safety. The County would
provide housing and services of equal quality for men and women.
DESIGN CONCEPTS
Figures 2-3 and 2-4 are site plans for the WCJC project. As shown in site plan
diagrams, the complex would be treated as a campus, with functions housed in a number of
buildings one or two stories high and arranged in a landscaped setting. The construction
scale and appearance of the buildings and site would be similar to those of a suburban
community college. Inmate use areas would be located in the nonpublic portions of the site,
substantially separated from public streets and developments. Buildings have been situated
on a recontoured site to control sight lines into the complex from adjacent areas.
Ground-level parking would be provided for approximately 286. Service areas would
be readily accessible but not in view from public areas. Open areas would be landscaped
for compatibility with.adjacent areas. An Alameda-Contra Costa Transit District route
would be expanded to terminate at an onsite bus stop.
A secure perimeter would be provided to control access, make escape unlikely, and
prevent the entry of contraband. This perimeter would consist of bermed and tree-planted,
landscaped areas adjacent to public roads and adjoining uses to control visibility into the
complex. The outer perimeter zones would be backed by open areas for security
monitoring, with security fencing providing a final physical barrier. Physical security
measures would be supplemented by electronic security systems. The security perimeter
would be patrolled regularly by staff. Service and inmate access from the administrative
building to the secured area would be by tunnels. Within the security perimeter, outdoor
areas would be used for inmate activities and recreation. Recreation elements would
include both passive areas (e.g., paths and benches) and active areas (e.g., a basketball
court).
9
Chapter 3. Implementation of the Program
RESPONSIBILITIES
The Contra Costa County Community Development Department director (director)
shall be responsible for assuring full compliance with the provisions of this program. The
director may delegate duties and responsibilities to county staff and consultants, as
necessary. The director shall also ensure that monitoring reports are filed on a timely basis
and, when identified, that mitigation monitoring program violations are corrected.
Other county staff shall assist the director in administering the program. The Contra
Costa County construction manager shall assist in ensuring compliance with those portions
of mitigation measures related to project design and construction, including but not limited
to,plan checking and construction activities. Staff engineers from the Contra Costa County
General Services Department shall assist with monitoring grading activities (during future
site preparation) and activities relating to changes in infrastructure. Community develop-
ment department staff (both planners and zoning inspectors) may be responsible for
responding to and reporting on complaints and violations relating to approved mitigation
plans. For this program, responsibilities are assigned to the community development
department director,the community development department,county administrator's office,
the building inspection department,the general services department,and the sheriff-coroner.
REPORTING
Progress toward completion of the mitigation program, or violations thereof, shall be
reported annually to the director. The reports shall be prepared using approved forms or
an acceptable format. All reports shall be filed in the project file located at the county
community development department. These reports will be available for public review at
any time. A copy of every report will be mailed to the WCJC project manager, Gerry
MacClelland, at the Contra Costa County Administration Office. Progress reports shall be
reviewed and filed appropriately.
If a report identifies violations or delays in the mitigation program, the director shall,
within 3 working days of receipt of such a report:
■ provide written notification of the violation or delay to the county, agency
responsible for implementation and request voluntary compliance; and
10
■ request a member of the project team or appropriate county specialist, a building
inspector, a county architect or engineer, or a community development depart-
ment planner or zoning inspector to conduct a field inspection (depending on the
nature of the mitigation) to determine the extent of the violation or delay and the
steps needed to correct the situation.
If a mitigation measure is a required part of the building or site plans (for future
development), work shall not proceed until compliance is verified by the director.
Mitigation measures required prior to occupancy shall be confirmed by the director prior
to issuance of occupancy permits by the building inspection department. Violations of an
approved mitigation program subsequent to building completion and occupancy shall be
documented with written notification and request for correction (by the director). These
violations shall be rectified immediately thereafter.
11
Chapter 4, The Program
This chapter presents the mitigation measures suggested in the EIR and recommends
monitoring plans for each measure.
CRIMINAL JUSTICE POLICY CONFORMANCE (CHAPTER 4)
No significant environmental impacts were identified in the "Criminal Justice Policy
Conformance" chapter;thus,no mitigation monitoring or reporting is necessary for this issue.
PUBLIC SAFETY (CHAPTER 5)
Mitigation Measure 2-1: Require Transportation
Availability for Inmate Releases
Adequate transportation is required for inmates scheduled to be released during the
hours public transportation is not in operation, or inmates must be held until public transit
becomes available.
Because of concerns expressed by citizens living near the WCJC, the county plans to
release only those inmates who have transportation available or are able to use the public
transit (bus line) serving the WCJC. Inmates without transportation would be released only
during the hours that bus service is available, and indigent inmates would be given sufficient
funds to travel throughout the range of the Bay Area Transit System.
Agency or Individual Responsible for Implementation
Contra Costa County sheriff-coroner.
Schedule for Implementation
This mitigation measure would remain in effect indefinitely.
12
Monitoring Work Program
The community development department can monitor this mitigation on an as-needed
basis, with citizen complaints from the neighborhood signaling need for monitoring.
Funding
Contra Costa County.
Standards for Success
This mitigation will be deemed successful if instances of newly released inmates
remaining in the WCJC neighborhood without a means of traveling elsewhere are avoided.
LAND USE (CHAPTER 6)
Mitigation Measure 6-1: Provide Adequate Landscaping
The county has planted, and will continue to maintain, landscaping on the berm
surrounding the secured portion of the detention facility. The landscaping consists of trees
10-20 feet apart with bushes and infill landscaping between the trees. Landscape species
that die will be replaced, as necessary. The landscaping on the berm should adequately
conceal the facility within 10-15 years after planting.
Agency or Individual Responsible for Implementing Mitigation
Contra Costa County sheriff-coroner.
Schedule for Implementation
Much of the landscaping is already in place. The remainder will be planted during
the 1990 summer months before occupancy of the WCJC.
Monitoring Work Program
The general services department will monitor the success of the program as part of
its ongoing landscaping maintenance program.
13
Funding
Contra Costa County will pay the cost of mitigation monitoring.
Standards for Success
The landscape buffer will be completed before occupancy and remain for as long as
the site is used as a detention facility.
Mitigation Measure 6-2: Provide Perimeter Patrols
The WCJC security staff will regularly patrol the WCJC security perimeter. Sheriffs
deputies will patrol the perimeter of the detention facility 24 hours a day. This will be
standard practice and is already incorporated into the WCJC staffing budget.
Agency or Individual Responsible for Implementing Mitigation
Contra Costa County sheriff-coroner staff.
Schedule for Implementation
Security staff at the WCJC would patrol the perimeter of the facility 24 hours a day.
Deputies will also examine the fringes of the facility, at least three times daily, for signs of
fence and security system tampering.
Monitoring Work Program
The Contra Costa County sheriff-coroner will ensure that the perimeter is patrolled
24 hours a day by assigning staff to this task.
Funding
Contra Costa County will provide the funds for perimeter security staff.
Standards for Success
The perimeter security program will be in place at the time of occupancy and for as
long as the project is used as a detention facility.
14
VEGETATION AND WILDLIFE (CHAPTER 7)
Mitigation Measure 7-1: Replacement
of Lost Wetlands
Creating and revegetating wet depressions and swales in a nearby upland site would
mitigate any significant impacts on vegetation and wildlife that may have occurred.
Wet depressions totaling approximately 1 acre in area would be created by excavation
and compaction of soil. Addition of clay may be necessary to ensure a proper seal.
Depressions would be situated to receive natural runoff. Topsoil would be added to the
depressions, and seed, collected from local populations of rushes, would be raked into the
topsoil.
Agency or Individual Responsible for Implementing Mitigation
Contra Costa County Community Development Department.
Schedule for Implementation
A site plan depicting the wetland mitigation plan should be prepared and approved
by the Contra Costa County Community Development Department prior to occupancy of
the WCJC. The wetlands should be created during the next dry season after the plan is
approved. Construction of the wetland should be completed no later than 1 year following
issuance of an occupancy permit. The wetland should remain in place as long as
nonwetland uses continue on those portions of the site previously covered with wetlands.
Monitoring Work Program
The Contra Costa County Community Development Department should review the
wetland mitigation plan to ensure that the design is feasible and the wetland would
eventually become self-maintaining. The community development department should visit
the site at least three times during implementation of the wetland mitigation plan and at
least once following completion of the wetland to ensure the successful establishment of the
wetland. Long-term success of the community should be monitored every 6 months for 5
years following completion by the Contra Costa County Community Development
Department.
Funding
Contra Costa County.
15
Standards for Success
The measure would.be considered successful if the wetland is healthy and self-
maintaining within 2 years of establishment and if the wetland exists for as long as
nonwetland land uses exist on the portion of the project site previously covered by wetlands.
GEOLOGY, SOILS, AND SEISMICITY (CHAPTER 8)
Mitigation Measure 8-1: Use Proper Design
and Construction Procedures
(This measure applies to future construction activities.)
Structures may be supported on pier-type foundations, gaining support below the
zone of significant moisture and volume change. Expansive or loose soils also may be
removed and replaced with suitably compacted and subdrained fill or may be blanketed with
nonexpansive fills.
Agency or Individual Responsible for Implementing Mitigation
The Contra Costa County Building and Public Works Departments and the contractor
hired by the county to construct the WCJC.
Schedule for Implementation
Most of the facility design and construction has been completed. This measure
applies to construction which has not been done. Techniques to lessen impacts of expansive
and loose soils should be indicated on future building plans and implemented during future
project construction.
Monitoring Work Program
The Contra Costa County Building Department should review construction drawings
to ensure proper building techniques are used to reduce impacts resulting from expansive
and loose soils. The public works department should review grading and site preparation
plans to ensure proper design techniques are used. These reviews should precede the
issuance of future building permits. A building inspector should visit the construction site
on one occasion during the construction process to ensure proper implementation of this
measure.
16
Funding
Contra Costa County.
Standards for Success
Engineered construction requirements to reduce impacts from expansive and friable
soils should be in place upon issuance of a building permit.
Mitigation Measure 8-2: Replace Expansive or Weak Soils
(This measure applies to future construction activities.)
Relocation and replacement of expansive or weak soils with nonexpansive,engineered
backfill prior to building construction has been included in the project design as a safe,
effective, and easily monitored procedure. Use of this procedure has eliminated the
settlement/uplift hazard at the construction site and also is intended to eliminate soil creep.
In areas of potential soil expansion,each foundation excavation was checked,and weak soils
were replaced prior to construction. These measures should also be employed in future
construction.
Agency or Individual Responsible for Implementing Mitigation
The Contra Costa County Building Inspection and General Services Departments and
the contractor hired by the county to construct the new buildings.
Schedule for Implementation
Prior to future building construction, expansive or weak soils should be replaced by
engineered backfill, as necessary for structural stability.
Monitoring Work Program
The Contra Costa County General Services Department should review future grading
and other construction plans to ensure proper soil conditions are established. This review
should precede issuance of future building permits. A building inspector should visit the
construction site during the construction process to ensure proper implementation of this
measure.
17
Funding
Contra Costa County.
Standards for Success
This measure would be deemed successful when expansive and weak soils have been
replaced by engineered fill in areas where construction of future structures would occur.
Mitigation Measure 8-3: Implement a Site Erosion
and Sedimentation Plan
(This measure applies to both existing conditions and future construction activities.)
Specific erosion-control measures, in the form of an erosion and sedimentation
control plan, were prepared to prevent erosion and sedimentation. As much of the site as
possible was left undisturbed, and vegetation was enhanced(thereby increasing soil stability)
on slopes such as those on the boundary berms. During construction, perimeter dikes for
parking areas and building lots were used to reduce overbank erosion. Hydro seeding and
mulching of exposed soils in graded areas were used effectively to retard runoff and reduce
sediment losses. Straw bale fences were used to protect storm drains. In areas of seepage,
subdrainage was added as necessary to reduce gullying and slope collapse. A permanent
erosion and sedimentation control plan for operation of the project was developed with the
grading and drainage plans. These same mitigation measures should be applied to future
construction onsite.
Agency or Individual Responsible for Implementing Mitigation
The Contra Costa County construction manager and the contractor hired by the
county to construct the WCJC.
Schedule for Implementation
A site erosion and sedimentation plan is being implemented. The potential for
erosion and sedimentation should be monitored until all disturbed areas are revegetated.
This measure also applies to future site construction. An erosion control plan should
be prepared by project engineers and should be reviewed by the Contra Costa County
General Services Department prior to future project construction. Implementation should
begin when the site is graded or excavated and should continue until disturbed areas are
revegetated.
18
Monitoring Work Program
The Contra Costa County General Services Department should review erosion
control plans to ensure that adequate measures are incorporated and inspect the site for
erosion problems throughout construction.
Funding
Contra Costa County.
Standards for Success
Implementation of the measure would be deemed successful if, during site visits, the
following signs of erosion are not evident:
■ deepening rills or gullies,
■ sedimentation from the site along drainage ditches,
■ soil flows (movement of large masses of soil), or
■ exposed substrate.
During construction, monitoring personnel should verify that straw bales remain in
place,forming a continuous barrier without gaps. Vegetation is expected to be reestablished
by the end of the first wet season.
Mitigation Measure 8-4: Perform a Geotechnical Investigation
(This measure applies to future construction activities.)
A detailed geotechnical investigation was performed on the site prior to the
preparation of final development and building plans. The recommendations of the
geotechnical report were incorporated into the project development plan, specifying seismic
design criteria that include measures to reduce the direct effects of ground shaking on
buildings and cuts and fills, and to reduce the potential for earthquake-induced differential
settlement. Recommendations for building and road location, grading, and drainage were
also incorporated in the design. The geotechnical study, performed by a California-
registered geotechnical engineer, demonstrated the existence of a stable site for structures
and adjunct facilities. Seismic design for all structures conforms with the current Uniform
Building Code to protect occupants during earthquake-induced ground shaking. These same
mitigation measures should be applied to any future construction onsite.
19
Agency or Individual Responsible for Implementing Mitigation
Contra Costa County General Services Department.
Schedule for Implementation
The recommendations of the site geotechnical report should be incorporated into the
project development plans and implemented during construction.
Monitoring Work Program
The Contra Costa County Building Inspection Department should review construction
drawings to ensure geotechnical recommendations have been incorporated into the
foundation design prior to issuance of a building permit for future structures. Site visits
should be conducted to ensure compliance.
Funding
Contra Costa County. .
Standards for Success
Geotechnical recommendations have been incorporated into site and building plans.
HYDROLOGY, WATER QUALITY, AND
HAZARDOUS WASTES (CHAPTER 9)
Mitigation Measure 9-1: Conduct Street Sweeping
and Clean Stormwater Using Screens
(Monitoring for this measure is not required by law because the impact it applies to
is not considered significant.)
This mitigation measure was recommended in the previous EIR for reducing
identified water quality impacts. To reduce urban runoff water quality impacts, it was
recommended that street sweeping and cleaning of stormwater using screens be considered.
Contra Costa County, in the findings of fact and statement of overriding considerations for
the previous EIR, found that the installation of an oil-water separator and sediment trap in
the parking lot drainage system would substantially reduce some pollutant loads to San
20
Pablo Bay. Street and parking lot cleaning should be conducted on a regular schedule,
based on seasonal requirements.
Agency or Individual Responsible for Implementing Mitigation
Contra Costa County General Services Department.
Schedule for Implementation
Street and parking lot sweeping would occur before the annual rainy season.
Monitoring Work Program
The Contra Costa County General Services Department should remove sediment and
trash from screens and drainage pipes that discharge water to San Pablo Bay, at least once
each fall before the winter rains start. The oil-water separator installed onsite should be
inspected twice a year.to ensure proper operation.
Funding
Contra Costa County.
Standards for Success
This measure would be considered successful if the oil-water separator is maintained
and the county regularly sweeps the parking lots and cleans the storm drains as specified
above.
Mitigation Measure 9-2: Install a Dike
to Divert Stormwater
Install riprap dike to divert stormwater runoff into new drainage channel southwest
of the administration building. Problems with drainage flows southwest of the
administration building along the Pinole Point Regional Shoreline Park access road became
evident during the 1989-1990 rainy season. To correct a situation where flows overran the
banks of an existing drainage ditch, the county constructed a new, larger ditch along the
southern portion of the west boundary of the WCJC site. A dike must be installed to
deflect stormwater runoff(that exits the 18-inch culvert at the southwest corner of the access
road leading to the administration building loading dock) into the new drainage ditch.
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Agency or Individual Responsible for Implementing Mitigation
The Contra Costa County construction manager and the contractor hired by the
county to construct the WCJC.
Schedule for Implementation
The required diversion dike should be in place before rains begin in September 1990.
Monitoring Work Program
The community development department should contact the county administrator's
office by August 15, 1990, to verify that plans are underway to install the necessary
deflecting structure. In addition,the community development department should verify that
the structure has been built.
Funding
Contra Costa County.
Standards for Success
If the water-deflecting structure is in place and serves to direct water away from the
Pinole Point Regional Shoreline Park access road and into the newly constructed drainage
ditch in the southwest portion of the WCJC site, this measure will be considered successful.
VISUAL AND AESTHETIC RESOURCES (CHAPTER 10)
Mitigation Measure 10-1: Implement Design and Landscaping
Features to Reduce the Impact of Changes
in Views of the Project Site
(This measure applies to both existing and future construction activities.)
Mitigation of visual effects has occurred through implementation of the campus-type
design concept for the WCJC facility. The following design and landscaping features have
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been or are being implemented to reduce the impact of the changes in views of the project
site:
■ Buildings are low-scale one- and two-story structures with flat roofs, in neutral
earth-toned textured concrete. The form and color of the structures have been
selected to blend visually with the character of the area.
■ Structures are sited on the property to take advantage of the existing topographic
and vegetative screening. The site slopes to the west, screening the majority of
views of the project from Atlas Road and Giant Highway. The existing
eucalyptus grove on the southern part of the site screens most views of the facility
from Giant Highway to the south. In addition, structures are "clustered" to
reduce the overall mass of the facility.
■ The perimeter of the project site is bermed to create an additional topographic
barrier to screen views of the facility. The top of the berm rises 4-8 feet above
the surfaces of Giant Highway, the access road to the steel plant, and the park
access trail. In combination with the berms, the trees and shrubs planted this
year will provide full screening of the facility in 4 years (Heckman pers. comm.).
■ The project landscaping uses native species and eucalyptus to simulate the look
of the.surrounding grasslands and pockets of woodland. The landscaping links
the vegetation of the project with the adjacent parklands and golf course, and
reinforces the visual integrity of the site.
■ Except for a replacement area for wetlands disturbed elsewhere on the project
site, the southern and southwestern parts of the project site are planned to be left
in their natural state. The northern edge of this area will be planted with coast
live oak trees to screen the administration building from the park entry and
parking lot.
Agency or Individual Responsible for Implementing Mitigation
The Contra Costa County construction manager and the landscape architect hired by
the county to landscape the WCJC.
Schedule for Implementation
A landscape design plan should be reviewed and approved by the general services
department before issuance of a building permit for future construction activities.
Implementation should occur during construction.
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Monitoring Work Program
The general services department should monitor existing landscaping as part of its
ongoing maintenance program.
Funding
Contra Costa County would be responsible for initial funding and ongoing
maintenance of landscaping.
Standards for Success
The landscaping should be in accordance with approved landscape plans. Dead
plants should be replaced.
Mitigation Measure 10-2: Implement Design Features
to Reduce Light and Glare Impacts
Mitigation of light and glare effects would occur through implementation of the
following features that have been incorporated into the design of the WCJC project.
■ Lighting fixtures are recessed in square boxes to direct light downward and
reduce glare.
■ Perimeter landscaping will screen the light spilling over into areas outside of the
project boundaries. The selected plant species were chosen specifically for their
dense growth forms and rapid growth rates.
■ Approximately half of the lights within the security compound would be activated
under normal operating conditions to illuminate the facility to 0.5 foot-candle.
Only under emergency conditions would all lights be activated.
Agency or Individual Responsible for Implementing Mitigation
Contra Costa County construction manager.
Schedule for Implementation
Lighting features proposed to reduce light and glare, such as recessed light fixtures
in boxes that direct light downward and landscaping to screen areas outside the project site,
should all be fully implemented at the time of project completion.
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Monitoring Work Program
A county building inspector should inspect the light fixtures at the WCJC prior to
issuance of an occupancy permit.
Funding
Contra Costa County.
Standards for Success
Success of the mitigation measures would eliminate harsh glare beyond the site
boundaries.
CULTURAL RESOURCES (CHAPTER 11)
Mitigation Measure 11-1: Implement Proper Procedures
if Cultural Materials are Uncovered During Construction
(This measure applies to future construction activities.)
If cultural material such as midden,which can conceal cultural deposits, animal bone,
shell, obsidian, grinding stones (such as mortars), or human remains, is uncovered during
construction in the expansion areas, the following mitigation measures should be
implemented.
■ All work within 100 feet of the find should cease.
■ The developer should retain a qualified archeologist to evaluate the find and
recommend further procedures.
■ If bone is found that appears to be human, the developer should retain a
qualified archeologist for verification. If the bone is human, the county coroner
should be contacted as required by state law. The archeologist and coroner can
determine at that point whether the remains are prehistoric. If this proves to be
the case, the Native American Heritage Commission in Sacramento should be
contacted (916/322-7791). Additional mitigation of the archeological find will be
the responsibility of the developer and will be subject to review and approval by
the Native American Heritage Commission.
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Agency or Individual Responsible for Implementing Mitigation
Contra Costa County Community Development Department.
Schedule for Implementation
If cultural material is uncovered during future construction, all work should stop
immediately. A qualified archeologist should be retained following the workstoppage to
evaluate the find and recommend further procedures. Additional mitigation of the
archeological find would occur as needed following the initial evaluation.
Monitoring Work Program
If cultural material is uncovered, the Contra Costa County construction manager
should execute a cease and desist order for construction and hire an archeologist to examine
the find. The archeologist should submit a brief report on the content of the find and
should provide mitigation measures that would reduce impacts to the find to a less-than-
significant level (if necessary). Necessary mitigation measures should be implemented either
before resuming construction activities or concurrently with construction provided additional
impacts can be avoided.
Funding
Contra Costa County.
Standards for Success
This measure would be deemed successful if, when future construction occurs and
cultural resources are found, those resources are not disturbed beyond what would be
considered acceptable by a registered archeologist.
TRAFFIC AND CIRCULATION (CHAPTER 12)
Mitigation Measure 12-1 (1,536-Inmate Scenario):
Restripe and/or Widen Atlas Road
Restripe and/or widen the eastbound Atlas approach to San Pablo Avenue to include
one left-turn lane and one right-turn lane.
26 ,
Agency or Individual Responsible for Implementing Mitigation
City of Richmond.
Schedule for Implementation
This measure is applicable to an expanded WCJC development scenario (1,536
inmates). The county public works department should coordinate with the City of
Richmond Traffic Engineering Department to plan for the restriping and/or widening of the
eastbound Atlas approach in the event planned road improvements and realignments
associated with the North Richmond Parkway have not already been implemented.
Implementation of the plans should be completed prior to increasing the WCJC's occupancy
to 1,536 inmates.
Monitoring Work Program
The public works department should conduct site visits during the road widening
operation and prior to occupancy to ensure compliance.
Funding
City of Richmond revenue sources for road_improvements.
Standards for Success
The measure would be deemed successful if the mitigation is completed prior to
increasing the WCJC's occupancy to 1,536 inmates.
Mitigation Measure 12-2 (1,536-Inmate Scenario):
Provide Adequate Parking
Accommodations should be made to allow for the construction of approximately 90
additional parking spaces in the future.
Space for an additional 90 parking spaces should be provided under the 1,536-inmate
development scenario. Ride-sharing inducements should also be considered.
27
Agency or Individual Responsible for Implementing Mitigation
The Contra Costa County General Services Department and the contractor hired by
the,county to construct any WCJC expansion project.
Schedule for Implementation
If the project is expanded to include 1,536 inmates, then an additional 90 spaces
should be provided prior to increasing occupancy to 1,536 inmates.
Monitoring Work Program
The site plan should be revised to include additional parking spaces. The actual
amount of parking should be verified at the time of expansion based on actual and
anticipated parking demand. The general services department should ensure that provision
of the appropriate number of new parking spaces is incorproated into any expansion
construction project.
Funding
Contra Costa County.
Standards for Success
The measure would be deemed successful if adequate additional parking spaces are
made available before occupancy is increased to 1,536 inmates. .
Mitigation Measure 12-3 (1,040- and 1,536-Inmate
Scenarios): Widen San Pablo Avenue
To improve the operating conditions at the San Pablo Avenue/Atlas Road
intersection, widen northbound San Pablo Avenue to include three through lanes and one
left-turn lane, and widen southbound San Pablo Avenue to include two through lanes and
one through right-turn lane.
Agency or Individual Responsible for Implementing Mitigation
The City of Richmond.
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Schedule for Implementation
If the county intends to expand the WCJC to accommodate 1,040 or 1,536 inmates,
then the county should coordinate with the City of Richmond to plan for widening San
Pablo Avenue at Atlas Road. If the planned road improvements have not been built as part
of the North Richmond Parkway,implementation of the plans should occur during expansion
of the WCJC and should be completed prior to increasing the occupancy to 1,040 or 1,536
inmates and before an occupancy permit is issued for the 1,040 or 1,536 inmates.
Monitoring Work Program
The public works department should verify either that the lanes are widened as
prescribed or that alternate measures are taken to reduce any anticipated increase in traffic
congestion beyond LOS D.
Funding
City of Richmond revenue sources for road improvements.
Standards for Success
The measure would be deemed successful if the mitigation is completed prior to
increasing the WCJC occupancy to 1,040 inmates.
AIR QUALITY AND NOISE (CHAPTER 13)
Mitigation Measure 13-1: Implement Dust Control Measures
During and After Construction
(This measure applies to future construction activities.)
Watering is the normal method of dust control on construction sites. An effective
watering program (complete coverage twice daily) could reduce dust emissions by about 50
percent. All construction contracts should require watering of sufficient frequency to keep
exposed soil surfaces damp. Construction contracts should also require the daily cleanup
of mud and dust carried onto street surfaces by construction vehicles.
On completion of site preparation, measures should be taken to reduce wind erosion.
These measures include replanting, spreading of soil binders, and repeated soaking as
needed to maintain a crusty soil surface that resists erosion.
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Agency or Individual Responsible for Implementing Mitigation
The Contra Costa County General Services Department and the contractor hired by
the county to construct the WCJC.
Schedule for Implementation
Dust control measures should be implemented throughout future project construction
until exposed ground surfaces are covered or landscaped.
Monitoring Work Program
The construction manager should conduct regular site visits during future dry-period
construction to ensure compliance.
Funding
Contra Costa County.
Standards for Success
Generation of fugitive dust during future construction is avoided.
Mitigation Measure 13-2: Restrict Hours of Construction Activity
(This measure applies to future construction activities.) Construction activity should
be limited to the hours between 7:00 a.m. and 6:00 p.m.
Agency or Individual Responsible for Implementing Mitigation
The Contra Costa County General Services Department and the contractor hired by
the county to construct the WCJC.
Schedule for Implementation
The construction schedule should be controlled throughout project construction.
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Monitoring Work Program
The project construction manager should monitor the contractor's daily starting and
ending times.
Funding
Contra Costa County.
Standards for Success
This measure would be deemed successful if construction activities are limited to
7:00 a.m. - 6:00 p.m.
Mitigation Measure 13-3: Minimize Noise
Generation from Equipment
(This measure applies to future construction activities.) All construction equipment
should be properly maintained and muffled. Construction equipment should be turned off
when not in use.
Agency or Individual Responsible for Implementing Mitigation
The Contra Costa County General Services Department and the contractor hired by
the county to construct the WCJC.
Schedule for Implementation
Equipment should be maintained and muffled throughout future project construction.
Monitoring Work Program
The construction manager should monitor construction noise during random site
inspections.
Funding
Contractor (for maintaining equipment) and Contra Costa County (for monitoring).
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Standards for Success
This measure would be successful if the construction equipment is adequately muffled
throughout the construction process.
COMMUNITY SERVICE AND FISCAL ANALYSIS (CHAPTER 14)
No significant environmental impacts were identified in the"Community Service and
Fiscal Analysis" chapter; thus, no mitigation monitoring or reporting is necessary for this
issue.
SOCIOECONOMICS (CHAPTER 15)
No significant environmental impacts were identified in the"Socioeconomics"chapter;
thus, no mitigation monitoring or reporting is necessary for this issue.
ENERGY CONSERVATION (CHAPTER 16)
Mitigation Measure 16-1: Implement Energy Conservation
Measures Already in Place at the Existing WCJC Facility
in any Expansion Structure
(This measure applies to future construction activities.)
Conservation measures incorporated into the building design for the WCJC are:
■ limited air conditioning (only the computer room, central control, and a portion
of building 4 are air conditioned);
■ light-colored walls and ceilings to increase light reflection;
■ energy-conserving light fixtures;
■ roof insulation; and
■ building surface areas with a limited percentage of outside window glass.
(MacClelland pers. comm.)
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Agency or Individual Responsible for Implementing Mitigation
The Contra Costa County General Services Department and the architect hired by
the county to design the WCJC expansion buildings.
Schedule for Implementation
Energy conservation measures should be implemented prior to construction for all
future structures.
Monitoring Work Program
The building department should conduct a site visit prior to issuance of an occupancy
permit to ensure energy conservation measures are installed.
Funding
Contra Costa County.
Standards for Success
The measure would be considered successful if the energy conservation measures are
implemented in future structures.
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Chapter 5. Bibliography
Personal Communications
Heckman, Craig. Landscape Architect. EDAW, San Francisco, CA. September 15, 1989 -
telephone conversation.
MacClelland, Gerry. West Contra Costa County Justic Center Project Manager. Contra
Costa County Administrator's Office,Program and Design, Martinez, CA. July 5, 1990-
telephone conversation and meeting.
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